New Delhi, January 9, 2026: Nearly 44 per cent of Indian cities are grappling with chronic air pollution, a structural problem driven by persistent emission sources rather than short-term episodes, according to a new analysis by the Centre for Research on Energy and Clean Air (CREA). Despite the severity of the issue, only a small fraction of cities are covered under the National Clean Air Programme (NCAP), raising concerns about gaps in India’s air quality governance and policy implementation.

The CREA study assessed PM2.5 concentrations in 4,041 Indian cities using satellite data and long-term monitoring, providing a comprehensive picture of the urban air quality landscape in India. The analysis highlighted that 1,787 cities exceeded the national annual PM2.5 standard consistently for five years, excluding the COVID-19-affected year of 2020. This indicates that nearly half of India’s urban centers face chronic pollution, with emissions arising from industrial activity, vehicular exhaust, construction dust, biomass burning, and other persistent sources rather than temporary or episodic spikes.

However, the report noted a serious mismatch between pollution burden and policy coverage. India’s flagship National Clean Air Programme, launched to reduce air pollution in non-attainment cities, currently covers only 130 cities, of which just 67 overlap with the 1,787 chronically polluted cities. This implies that approximately 96 per cent of India’s most polluted urban areas remain outside the purview of targeted interventions, leaving a large segment of the population exposed to hazardous air quality levels.

Worst-Affected Cities

The PM2.5 assessment for 2025 identifies Byrnihat, Delhi, and Ghaziabad as the three most polluted cities in India, with annual concentrations of 100 µg/m³, 96 µg/m³, and 93 µg/m³, respectively. These levels far exceed the national standard of 40 µg/m³, posing severe health risks, including respiratory diseases, cardiovascular problems, and premature mortality.

Other cities on the top pollution list include Noida, Gurugram, Greater Noida, Bhiwadi, Hajipur, Muzaffarnagar, and Hapur, reflecting a geographical concentration of air pollution in northern India, particularly across the Indo-Gangetic plain, industrial clusters, and urbanized belts.

NCAP Coverage and PM10 Status

While NCAP aims to mitigate pollution in non-attainment cities, progress remains incomplete and uneven. Out of the 130 cities covered under NCAP, 28 still lack continuous ambient air quality monitoring stations, hindering accurate assessment and timely action. Among the 102 cities with operational monitoring stations, 100 cities reported PM10 levels exceeding 80 per cent of the national standard, underscoring the persistent challenges in particulate matter control.

The report highlights mixed results in PM10 reduction efforts. Only 23 cities have achieved the revised target of a 40 per cent reduction, while 28 cities recorded reductions of 21–40 per cent, and 26 cities saw modest improvements of 1–20 per cent. Alarmingly, 23 cities reported increases in PM10 levels since NCAP’s inception, indicating that interventions have not been uniformly effective.

Delhi continues to lead in PM10 pollution, with an annual average of 197 µg/m³, nearly three times the national standard. Ghaziabad and Greater Noida follow closely with 190 µg/m³ and 188 µg/m³, respectively. Rajasthan has the highest number of cities in the Top 50 PM10 concentration list, with 18 cities, followed by Uttar Pradesh, Madhya Pradesh, Bihar, and Odisha.

State-Wise Distribution of Non-Attainment Cities

Uttar Pradesh tops the list with 416 non-attainment cities, highlighting the severe air quality crisis in the northern state. Rajasthan, Gujarat, Madhya Pradesh, Punjab, Bihar, and West Bengal also feature prominently, reflecting regional pollution hotspots where industrial emissions, vehicular traffic, construction activity, and agricultural burning contribute significantly to air quality deterioration.

Spending and Program Focus

Since its launch, the NCAP has received ₹13,415 crore through the central allocation and 15th Finance Commission grants, with ₹9,929 crore already utilized. Notably, 68 per cent of the expenditure has been directed toward road dust management, reflecting the prioritization of one of the largest contributors to particulate pollution. Other sectors, including transport, waste and biomass burning, have received lesser attention, while industries, domestic fuel use, public outreach, capacity building, and monitoring account for limited allocations.

Experts argue that the current allocation and focus areas may not be sufficient to address the structural nature of India’s urban air pollution, which requires comprehensive interventions spanning industrial regulation, transport policies, waste management, energy transition, and public awareness campaigns.

Recommendations for Policy and Governance

Manoj Kumar, India Analyst at CREA, emphasized the need for strengthened governance and science-based reformsto tackle air pollution effectively. According to him, the key strategies include:

1. Prioritizing PM2.5 and precursor gases: While PM10 reduction has been the traditional focus, evidence shows that PM2.5 particles, which penetrate deeper into the lungs, pose greater health risks. Targeting PM2.5 and its sources—such as vehicular emissions, coal-based power plants, and industrial processes—is critical.
2. Revising the non-attainment city list: Only 67 of 1,787 chronically polluted cities are currently under NCAP, highlighting the need for a comprehensive reassessment of cities requiring intervention.
3. Stricter emission standards: Implementing stringent regulations for industries and power plants can reduce persistent sources of pollution.
4. Airshed-based approach: Pollution does not respect administrative boundaries. Implementing regional strategies that encompass multiple cities and districts can effectively address transboundary pollution sources.
5. Source apportionment-based funding: Allocating resources according to the specific contribution of different emission sources will ensure that interventions are more targeted and impactful.

Public Health Implications

Chronic exposure to particulate pollution has severe consequences on public health. Studies link prolonged exposure to PM2.5 and PM10 with asthma, chronic bronchitis, cardiovascular disease, stroke, and increased mortality rates. Children, the elderly, and individuals with pre-existing health conditions are particularly vulnerable.

The widespread exposure in 44 per cent of Indian cities signals a significant public health crisis, with millions at risk due to inadequate policy coverage and implementation. The CREA report underscores the urgency of bridging the gap between pollution burden and targeted interventions under NCAP.

Conclusion

The analysis by CREA presents a stark reality: nearly half of India’s cities face chronic air pollution, yet most remain outside the scope of focused interventions under NCAP. Addressing this requires scientific, targeted, and regionally coordinated measures, stronger policy implementation, and increased resource allocation for sectors beyond road dust management.

Without such reforms, millions of urban residents will continue to face persistent exposure to hazardous air quality, exacerbating public health challenges and undermining India’s efforts toward sustainable development and environmental protection. The findings reinforce the need for urgent, evidence-based action at both city and regional levels to ensure cleaner air and healthier communities across the country.

---