Delhi Implements GRAP-1 as Air Quality Worsens Ahead of Diwali

In a decisive move to counter rising air pollution levels, the Commission for Air Quality Management (CAQM) has ordered the imposition of Stage 1 measures under the Graded Response Action Plan (GRAP) across Delhi and the National Capital Region (NCR). The decision came on Tuesday, October 14, 2025, after the Air Quality Index (AQI) for Delhi surged to 211, placing it squarely in the “poor” category—a threshold that triggers the first level of anti-pollution restrictions.

With Diwali just around the corner, authorities have expressed urgent concern over further deterioration in air quality and have directed all implementing agencies to strictly enforce the new guidelines, monitor compliance, and review the situation continually to prevent escalation to more severe levels.

This article provides a comprehensive overview of GRAP, the triggers and provisions under Stage 1, the likely impact and challenges, the roles and responses of various stakeholders, and the way forward in managing Delhi’s chronic air pollution crisis ahead of the festive season.

Background: Delhi’s Air Pollution Challenge

Air quality in Delhi has long been a matter of intense public debate and policy focus. Multiple factors—vehicular emissions, industrial discharge, dust from construction and roads, the burning of biomass and solid waste, agricultural stubble burning in the neighboring states, and meteorological conditions—combine to make the region one of the world’s most polluted capitals. Wikipedia+2Business Standard+2

To respond to seasonal spikes in pollution—especially in winter when low wind speeds, stable atmospheric conditions, and temperature inversions trap pollutants near the surface—India introduced the Graded Response Action Plan (GRAP). GRAP is designed as a framework of escalating mitigation measures that are triggered according to air quality severity. Press Information Bureau+3Business Standard+3Business Standard+3

In practical terms, GRAP offers a menu of preventive, regulatory, and enforcement-based measures to be activated in stages—Stage 1 (for “poor” AQI: 201–300), Stage 2 (“very poor”), Stage 3 (“severe”), and Stage 4 (“severe plus”). The Times of India+4Business Standard+4Press Information Bureau+4

Why GRAP-1 Now? Triggering Conditions and Rationale

AQI Breaches the Threshold

Under the extant GRAP protocol, Stage 1 is activated when the AQI crosses the threshold of 200, entering into the “poor” category (i.e. AQI between 201 and 300). On October 14, Delhi’s AQI was recorded at 211, thus triggering the move. The CAQM order explicitly notes that with the AQI in the “poor” zone, Stage 1 restrictions are to be implemented, monitored, and reviewed across the entire NCR.

The order further emphasizes vigilance to prevent further deterioration and to ensure that the air quality does not “slip further.” All agencies are directed to intensify efforts under the Stage 1 schedule and to enforce citizen compliance under the associated citizen charter.

Seasonal and Meteorological Pressures

As is common in Delhi, pollution levels often climb ahead of and during the winter months, aided by stagnant air conditions, lower temperatures, and minimal wind dispersal. The onset of festival season—especially Diwali, which is traditionally associated with firecracker use—heightens the risk. The authorities are acting preemptively to arrest further decline, anticipating that pollutant levels might be pushed into “very poor” or worse categories.

This pattern is well documented. In previous years, GRAP Stage 1 has been periodically triggered when AQI readings hovered around 200–210, with preventive restrictions imposed on dust, emissions, vehicle controls, and public awareness drives. www.ndtv.com+5The Times of India+5India Today+5

Key Measures Under GRAP-1

The Stage 1 protocol under GRAP comprises 27 specific actions across sectors such as roads, vehicles, construction, waste management, industries, and public utilities. These actions are aimed at cutting pollution at source, controlling dust, curbing emissions, and enforcing strict adherence to existing pollution norms. Business Standard+4News on AIR+4Press Information Bureau+4

Here is a detailed breakdown of the major measures now in force in Delhi-NCR:

Roads, Dust, and Construction Activities

Mechanised sweeping and water sprinkling on roads
Authorities will carry out periodic mechanised road cleaning and sprinkling of water to suppress dust. The dust collected must be scientifically disposed of in designated landfill sites.
Dust suppression at construction or repair sites
Projects involving road widening, resurfacing, maintenance, or new construction must intensify the use of anti-smog guns, water sprinkling, and dust suppression techniques. Dust curtains, sand barriers, and covering of debris are expected.
Strict control at construction and demolition (C&D) sites
C&D debris must be handled carefully; open dust-raising operations should be minimized. Some reports indicate that private construction/demolition projects of size 500 square meters or more may face curbs. Business Standard+3Moneycontrol+3The Financial Express+3
Vigilance at landfill sites / dumpsites
Authorities are tasked with ensuring no burning occurs at landfill sites or open dumps. Any burning incidents must be strictly prevented and monitored.

Waste Management and Open Burning

Ban on open burning of biomass and municipal solid waste
Any open burning of agricultural residue, leaves, garbage, wood, or other waste is strictly prohibited and enforcement will be strengthened.
Strict enforcement of municipal waste disposal norms
Collected waste must go to authorized landfills or processing sites. Illegal dumping or burning in open areas will attract penalties.

Vehicle Emissions & Traffic Control

Pollution Under Control (PUC) norms enforcement
Vehicle emission tests will be strictly enforced. Vehicles failing to meet acceptable emission standards may be impounded or heavily penalized.
No tolerance for visible emissions
Vehicles showing visible smoke or exhaust emissions may be stopped, impounded, or fined at the maximum allowable penalty.
Diversion of non-destined trucks
As per Supreme Court orders, non-essential truck traffic destined for Delhi is to be diverted via the Eastern and Western Peripheral Expressways.
Control of over-aged vehicles
Strict enforcement will be applied regarding bans on older diesel or petrol vehicles, in accordance with extant statutes and judicial orders.
Prohibition on idling / engine-off rules
At red lights or in traffic jams, vehicles are expected to switch off engines rather than idling unnecessarily. Maintain correct tyre pressure, and get engines regularly tuned.

Industries, Thermal Units & Fuel Use

Restriction on diesel generator sets (DG sets)
Diesel generators should not be used as regular power sources. Their use is permitted only in strictly emergency cases, subject to prior permission or exemption.
Clean-fuel use in hotels, restaurants, open eateries
Such establishments must rely on electricity, gas, or other cleaner fuels; use of coal or firewood is prohibited.
Emission control in industries, brick kilns, power plants
Units must adhere to emission norms. Excessive emissions or violation may lead to suspension of operations or stronger action.

Administrative, Monitoring & Public Measures

Citizen Charter & public guidelines
Authorities will invoke a citizen charter for Stage 1, urging residents to reduce outdoor exposure, avoid use of private vehicles if possible, assist in reporting violations via apps, and adopt pollution-conscious practices.
Unified commute / carpool encouragement
Offices are encouraged to arrange group commuting or staggered timings to reduce vehicular load.
Strict monitoring and periodic reviews
The sub-committee on GRAP and other agencies must monitor air quality data, review enforcement effectiveness, and decide on escalation or rollback of measures.
Penalties and enforcement
All implementing agencies—Pollution Control Boards, municipal authorities, traffic police, urban development bodies—must execute enforcement and levy maximum penalties for violations.
Public awareness and reporting tools
Citizens are urged to report violations (burning, dust, polluting vehicles) via apps (311, Green Delhi, SAMEER, etc.) or local helplines.
Coordination among agencies
All stakeholder agencies across NCR (Delhi, Haryana, Uttar Pradesh, Rajasthan) must coordinate to ensure measures are uniformly implemented, especially on state borders and transit traffic.

These measures reflect a broad-based approach, targeting not just one source but multiple contributors to air pollution simultaneously. The goal is to arrest further deterioration, stabilize air quality, and ideally nudge it back toward the “moderate” zone.

Implementation and Monitoring Strategy

Enforcement Machinery & Institutional Oversight

The CAQM and its sub-committee hold primary responsibility for activating, monitoring, and reviewing the GRAP measures. They coordinate with state pollution control boards (PCBs) in Delhi, Haryana, Uttar Pradesh, Rajasthan, municipal bodies, and traffic and urban development authorities. News on AIR+3caqm.nic.in+3Press Information Bureau+3

Each agency has been tasked to adopt intensified monitoring, to conduct inspections, impose penalties, and coordinate with enforcement teams. The CAQM order states that the actions must be “implemented, monitored and reviewed by all the agencies concerned in the entire NCR” to ensure effectiveness.

Review meetings will be held frequently to assess AQI trends, compliance levels, and decide whether stricter measures (Stage 2 or above) must follow.

Role of Meteorology / Forecasts

Because meteorological conditions (wind speed, humidity, temperature inversions) play a critical role in pollutant dispersion, the CAQM and implementing agencies will closely watch weather forecasts (IMD, IITM). If unfavorable conditions persist, the pressure to escalate the stage increases.

Forecasts suggesting poor dispersion or no rains may trigger earlier or stricter enforcement of the existing measures. Conversely, favorable wind or rainfall may provide partial relief and opportunities for rollback.

Public Communication & Citizen Awareness

One essential dimension of GRAP’s success lies in public cooperation. The citizen charter under Stage 1 provides guidelines to residents: avoid burning waste, use public transport, minimize use of private vehicles, maintain vehicles properly, stay indoors during peak pollution hours, and report visible pollution violations.

Communication channels—media, radio, social platforms, apps—will be used to disseminate warnings, explain the restrictions, and solicit public support. Enforcement agencies also rely on citizen reporting (via designated apps) to identify violations.

Phased Escalation or Revocation

If air quality continues to worsen despite Stage 1 measures—or if AQI moves into “very poor” or worse—the CAQM may escalate to Stage 2, Stage 3, or Stage 4 restrictions, with correspondingly stricter curbs (e.g. halting certain construction, stricter vehicle bans, class closures).

Conversely, if air quality improves, authorities may consider revoking Stage 1 restrictions. In the past, GRAP Stage 1 curbs have been lifted when AQI trends moved into safer bands and remained stable. The Pioneer+2The Indian Express+2

Challenges, Limitations, and Risks

While the activation of GRAP-1 is a meaningful step, several challenges and limitations may affect how effective the restrictions prove to be.

Enforcement Gaps and Compliance

Coordination across multiple jurisdictions: NCR spans multiple states; ensuring uniform enforcement across state lines, border areas, transit routes, and localities is complex.
Resource constraints: Adequate manpower, monitoring equipment, pollution control labs, and legal capacities are required for inspections, vehicle checks, and penal actions.
Black-market or slack enforcement: Violations such as unauthorized burning, tampering with PUC certificates, use of generator sets, or oversize dust emissions may occur if surveillance is weak.
Resistance from stakeholders: Construction firms, small eateries using biomass or coal, logistics and transport operators (especially with older vehicles), and informal sectors may resist or seek exemptions.

Limited Impact Without Broader Structural Interventions

Agricultural stubble burning: While GRAP focuses inside NCR, a significant share of Delhi’s pollution comes from crop residue burning in Punjab, Haryana, and Uttar Pradesh. GRAP measures do not directly regulate that external source.
Systemic vehicular emissions: Older vehicles, fuel quality, and vehicular growth trends demand longer-term policy solutions beyond episodic curbs.
Industrial and power plant emissions beyond NCR: Pollution drift from regional industries or coal power plants in adjoining areas may undermine local efforts.
Meteorological constraints: On days with very low wind or temperature inversion, even strict local measures may struggle to reverse pollution accumulation.

Public Fatigue and Economic Costs

Disruption to daily life and business: Restrictions on generator use, construction, roadwork, vehicle checks, etc., can impose compliance costs and economic disruptions, particularly for small businesses and informal sectors.
Public pushback: People may chafe under mobility constraints, especially if alternatives (public transport, awareness) are not viable.
Sustainability over time: GRAP measures tend to be reactive and short-term. Maintaining public discipline and enforcement over many days during pollution episodes is demanding.

Risk of Rapid Escalation

If AQI continues to degrade, authorities may be forced to escalate to Stage 2 or higher quickly. Failure to act decisively or late interventions could result in health emergencies and greater burdens on the system.

Likely Impacts & Expected Outcomes

Given the activation of GRAP-1, one can anticipate several near-term outcomes—some positive, others limited by constraints.

Potential Benefits

Slower deterioration of air quality
If enforced properly, the measures could prevent AQI from jumping into “very poor” or “severe” categories, buying time until meteorological relief or further interventions.
Reduction in dust and local emissions
Restrictions on open burning, dust suppression, and vehicle smoke checks may help reduce particulate matter (PM₂.₅, PM₁₀) contributions from local sources.
Greater public awareness and participation
Frequent communication and citizen engagement can increase awareness of pollution actions—leading to better individual practices (e.g. reduced vehicle use).
Signaling seriousness of the issue
The move underscores government resolve, sets expectations for stricter measures if needed, and sends a deterrent signal to violators.

Constraints on Impact

The effectiveness will heavily depend on enforcement strength, coordination, compliance, and the relative share of pollution from external sources (e.g. stubble burning).
On days with adverse meteorology, local measures alone may not suffice to bring rapid improvement.
Behavioral change (in vehicle use, waste burning) is slow and gradual, so short-term improvements may be modest.
Some pollution that has already accumulated in the air cannot be instantly cleared; benefits may accrue gradually over days.

When Could Improvement Be Seen?

If favorable winds, some rain, or atmospheric mixing occur, positive effects may emerge within a few days to a week. But sustained improvement will require continued enforcement, adherence, and likely escalation if the situation worsens.

In previous episodes, GRAP Stage 1 has been lifted after a sustained trend of milder AQI values and meteorological relief. The Pioneer+2caqm.nic.in+2

Diwali, Firecrackers, and Seasonal Risks

One key context for the timing of this move is the imminent Diwali festival. In past years, the post-Diwali period has seen sharp spikes in pollution due to firecracker bursts, adding to already high baseline pollution. Many stakeholders—environmentalists, health experts, and courts—have warned strongly against firecracker use, arguing it significantly worsens air quality.

In the CAQM order, the enforcement of the ban on firecrackers (as per existing Supreme Court/NGT orders) is explicitly included in GRAP-1. This reinforces that amid rising baseline pollution, no leniency will be permitted for fireworks.

The government’s strategy is to preempt a dramatic post-festival pollution surge by reining in sources early. If fireworks are permitted unchecked, any gains from dust or vehicle restrictions might be quickly reversed.

Authorities will likely step up surveillance around known firecracker markets, residential areas, and public celebrations and impose strict penalties for violations.

Role of Citizens, Civil Society, and Media

The success of GRAP-1 is not purely a matter of government regulation, but also public cooperation. Citizens, civic bodies, NGOs, and media can contribute significantly:

Adopt pollution-conscious behavior: Avoid burning waste, reduce private vehicle use, opt for public transport or carpooling, use masks or air purifiers indoors, and avoid strenuous outdoor activity especially during high AQI hours.
Report violations: Use apps (311, Green Delhi, SAMEER, etc.) or helplines to report visible burning, dusty construction work, polluting vehicles, or generator misuse.
Demand accountability: Local resident associations, RWAs, and civil groups can press municipal bodies to enforce local norms (construction dust controls, waste management, road cleaning).
Spread awareness: Media and social networks can help disseminate information about real-time AQI, explain permissible vs non-permissible acts, and encourage behavioral compliance.
Support vulnerable groups: Aid elderly, children, people with respiratory illnesses by monitoring air quality and advising on protective measures (masks, indoor air filtration).

Comparing with Past GRAP Implementations

Delhi has activated GRAP Stage 1 multiple times in recent years when AQI nosedived. The current activation echoes past patterns, but also comes with refinements.

In earlier triggers, similar steps—road sprinkling, dust suppression, vehicle checks, open burning bans—were imposed. www.ndtv.com+2The Financial Express+2
In some cases, GRAP curbs were later revoked when air quality improved. The Pioneer+2caqm.nic.in+2
The revised GRAP framework emphasizes 27 actions under Stage 1, strengthening the specificity and clarity of measures. Press Information Bureau+2caqm.nic.in+2
Earlier instances have shown that enforcement intensity and coordination across agencies heavily influence outcomes—where enforcement lacked, gains were limited.

Thus, while this is not new, the real test lies in execution, interagency cooperation, and resilient mechanisms to guard against slippage.

Risks of Escalation & What May Trigger Stage 2 or 3

If the current curbs fail to arrest pollution progression, authorities may need to ramp up to Stage 2 (“very poor”) or Stage 3 (“severe”). These higher stages bring stricter controls, including:

Suspension of more construction work
Tighter bans on older vehicles
Restrictions on industrial operations
Closure or partial shutdown of thermal plants or brick kilns
School closures or online classes in severe cases
More aggressive transport curbs, limiting non-essential traffic

Whether escalation happens will depend on sustained AQI trends, meteorological forecasts, and compliance levels. If AQI crosses 300, escalation becomes likely. Press Information Bureau+3Business Standard+3Business Standard+3

The CAQM sub-committee is expected to review daily and decide whether to maintain, intensify, or relax measures accordingly.

Recommendations & Way Forward

To make GRAP-1 effective and to build resilience into Delhi’s air quality framework, the following are key recommendations:

Strengthen enforcement and coordination
Ensure that each implementing agency (municipal, state PCBs, traffic police, waste management, construction authorities) has clear roles, accountability, and resources. Cross-border coordination (among NCR states) is vital.
Transparency and real-time monitoring
Publish daily AQI data, pollution breakdowns, enforcement reports, violation statistics, and progress updates. Use digital dashboards for citizen visibility.
Incentivize cleaner alternatives
Encourage adoption of electric vehicles (EVs), better public transport, vehicle scrappage programs for old vehicles, subsidized clean fuel adoption in eateries.
Long-term structural reforms
Address sources beyond temporary curbs: stricter emission norms, fuel quality upgrades, industrial regulation, and regional coordination to combat agricultural burning.
Support for vulnerable populations
Provide advisories for health risks, supply masks or air purifiers in schools or hospitals, and strengthen healthcare readiness for respiratory cases.
Public engagement and education
Ongoing campaigns, school programs, community workshops to foster behavioral change and sustained civic participation.
Review and feedback loops
After the GRAP phase passes, conduct a post-mortem to analyze what worked, what failed, and refine protocols for future episodes.

Conclusion

With Delhi’s AQI crossing 200 and entering the “poor” category, authorities have activated Stage 1 of the Graded Response Action Plan (GRAP) in a bid to arrest further deterioration just ahead of Diwali. The 27-point measure plan targets dust, vehicle emissions, waste burning, industrial sources, and public behavior. Its success will depend heavily on enforcement, interagency coordination, meteorological relief, and citizen cooperation.

While GRAP-1 is not a panacea, it is a necessary early intervention. If followed rigorously and supplemented by structural reforms and public participation, it can stave off worse pollution episodes. But the onus also lies on the government and the people: curbs alone cannot save the air—collective action and long-term strategies must follow