Graded Response Action Plan (GRAP)

The Graded Response Action Plan (GRAP) is a comprehensive framework implemented in India to combat and manage air pollution levels, particularly in the National Capital Region (NCR). It outlines a series of graded, pre-determined measures to be taken based on the severity of air pollution as indicated by the Air Quality Index (AQI). The plan was designed to ensure prompt, coordinated, and systematic action among various agencies to reduce emissions and safeguard public health during pollution emergencies.

Background and Development

The origins of GRAP lie in the alarming deterioration of air quality in Delhi and its surrounding regions during the 2010s. The National Green Tribunal (NGT) and the Supreme Court of India took cognisance of the situation following several studies by the Central Pollution Control Board (CPCB), which highlighted Delhi as one of the world’s most polluted cities.
In 2016, the Supreme Court approved the Graded Response Action Plan formulated by the CPCB and enforced by the Environment Pollution (Prevention and Control) Authority (EPCA). The plan was formally implemented in 2017. Its framework draws inspiration from international air quality management systems but is tailored to India’s specific environmental and socio-economic conditions.
Following the dissolution of EPCA in 2021, the Commission for Air Quality Management (CAQM) in the NCR and adjoining areas assumed responsibility for the implementation and monitoring of GRAP.

Objectives of GRAP

The primary objectives of the Graded Response Action Plan are to:

• Establish clear, graduated actions corresponding to different levels of air pollution.
• Ensure inter-agency coordination and timely execution of emergency measures.
• Prevent and mitigate severe air pollution episodes, especially during winter months.
• Promote public awareness and encourage citizens’ participation in pollution control efforts.
• Serve as a policy mechanism for long-term air quality improvement in the NCR.

Structure and Functioning

GRAP functions through a graded mechanism, where specific actions are activated according to the severity of air pollution as indicated by the AQI. The AQI categorises air quality into six main levels based on the concentration of key pollutants such as PM₂.₅, PM₁₀, NO₂, SO₂, CO, and O₃.
The plan defines four principal stages of action:

1. Stage I – Moderate to Poor (AQI 101–200)
   • Increased mechanised road cleaning and sprinkling of water to control dust.
   • Enforcement of strict pollution control for construction and demolition activities.
   • Ensuring compliance with emission standards for vehicles and industries.
   • Encouraging public transport use and discouraging the use of private vehicles.
2. Stage II – Very Poor (AQI 201–300)
   • Ban on diesel generator sets except for emergency services.
   • Enhanced patrolling to prevent open burning of waste and crop residue.
   • Intensified checks on polluting vehicles and industrial units.
   • Promotion of carpooling, remote work, and staggered office timings.
3. Stage III – Severe (AQI 301–400)
   • Closure of brick kilns, hot mix plants, and stone crushers.
   • Suspension of construction activities except for essential public projects.
   • Ban on entry of heavy goods vehicles (except essential supplies) into Delhi.
   • Increased frequency of public transport services.
4. Stage IV – Severe Plus / Emergency (AQI > 450)
   • Complete halt on construction and demolition activities.
   • Closure of schools, colleges, and non-essential industrial units.
   • Implementation of the odd-even vehicle scheme for private cars if necessary.
   • Intensified public health advisories and restrictions on outdoor activities.
   • State governments may decide to implement temporary lockdown-type measures to reduce pollution sources.

Implementation Mechanism

GRAP is coordinated by the Commission for Air Quality Management (CAQM) in partnership with state pollution control boards, municipal corporations, and transport departments. The CPCB monitors air quality data in real-time through a network of continuous monitoring stations.
Once the AQI crosses a particular threshold, the CAQM notifies relevant authorities to activate the corresponding stage of GRAP. The plan ensures that preventive measures are enforced before pollution levels reach critical limits. The Indian Meteorological Department (IMD) and Indian Institute of Tropical Meteorology (IITM) provide meteorological forecasts to predict pollution spikes and support proactive planning.

Key Stakeholders

• Commission for Air Quality Management (CAQM) – Apex body overseeing coordination and enforcement.
• Central Pollution Control Board (CPCB) – Provides scientific and technical inputs.
• State Pollution Control Boards (SPCBs) of Delhi, Haryana, Uttar Pradesh, and Rajasthan – Responsible for regional implementation.
• Municipal Corporations and Transport Departments – Enforce local measures such as vehicle restrictions and dust control.
• Delhi Traffic Police and Regional Transport Offices – Implement road-level restrictions.
• Public and Industry Stakeholders – Expected to comply with advisories and operational restrictions.

Significance and Impact

GRAP has been instrumental in creating an organised response system for air pollution emergencies in the NCR. Its major contributions include:

• Establishing a predictive and preventive approach to air pollution management.
• Strengthening coordination among agencies, ensuring timely action.
• Promoting public accountability and awareness about pollution sources.
• Encouraging technological improvements such as cleaner fuels and electric mobility.

Since its implementation, GRAP has led to periodic improvement in air quality trends during winter months, although pollution levels still frequently cross severe thresholds.

Challenges in Implementation

Despite its structured framework, several challenges hinder the full effectiveness of GRAP:

• Transboundary pollution from adjoining states, especially due to stubble burning, often undermines local efforts.
• Limited enforcement capacity and inconsistent compliance across agencies.
• Dependence on meteorological conditions, which greatly influence pollutant dispersion.
• Lack of public participation and behavioural change in reducing vehicle use or open burning.
• Industrial non-compliance and delays in implementing cleaner technologies.

Critics also point out that GRAP primarily addresses short-term emergency responses rather than long-term structural reforms needed to ensure sustained air quality improvement.

Recent Developments and Updates

In recent years, the CAQM has updated GRAP to include proactive and pre-emptive measures, based on air quality forecasts rather than post-occurrence responses. The revised version (introduced in 2022) incorporates improved flexibility, allowing authorities to implement measures three days in advance of predicted pollution spikes.
New provisions also include:

• Mandatory use of anti-smog guns and dust suppression units at large construction sites.
• Strict ban on open burning of solid waste.
• Increased penalties for violations by industries and vehicles.
• Coordination with agricultural departments to prevent stubble burning in Punjab, Haryana, and Uttar Pradesh.

Broader Implications

The Graded Response Action Plan serves as a model framework for other Indian cities struggling with severe air pollution. It has inspired similar regional frameworks in states like Uttar Pradesh and Maharashtra. GRAP’s adaptive approach integrates environmental monitoring, governance, and public cooperation — a crucial step toward sustainable urban air management.
However, experts emphasise that GRAP must be complemented by long-term strategies, such as shifting to renewable energy, enhancing green cover, improving public transportation, and reforming agricultural residue management.