Graded Response Action Plan (GRAP), Mechanism, Stages, Challenges

Graded Response Action Plan (GRAP) is a stage-wise plan to manage air pollution in Delhi-NCR based on AQI levels. It links rising pollution to specific interventions, with measures escalating as air quality worsens.

GRAP’s four stages range from dust control and public awareness (Stage I) to strict emergency actions (Stage IV). However, GRAP’s effectiveness is limited by weak enforcement and poor coordination among agencies.

Graded Response Action Plan (GRAP) About

Graded Response Action Plan (GRAP) is a structured, science-based framework implemented in 2017 to manage air pollution in Delhi and the National Capital Region (NCR). It was developed following the Supreme Court directives in the M.C. Mehta vs Union of India case (2016) to enable timely and coordinated action against environmental pollution.

• Development Authority: GRAP was formulated based on a plan submitted by the Central Pollution Control Board (CPCB) in 2016 and notified by the Ministry of Environment, Forest, and Climate Change (MoEFCC) in 2017.
  • It was initially implemented by the Environment Pollution (Prevention and Control) Authority (EPCA) constituted under the Environment Protection Act, 1986, as per the Supreme Court mandates.
• Implementing Agency: Since 2021, the Commission for Air Quality Management (CAQM) has executed GRAP in coordination with MoEFCC, state pollution boards, and local authorities.
  • CAQM has a sub-committee of officials from pollution control boards, meteorological institutions like IMD and IITM, and health advisors to operationalise GRAP measures.
• Revisions: The framework has been regularly updated, most recently in 2023–24, to enhance winter measures, integrate real-time air quality monitoring, advanced data analytics, and preventive interventions.

Graded Response Action Plan (GRAP) Mechanism 

Graded Response Action Plan (GRAP) framework links rising AQI levels to predefined interventions. It works incrementally, ensuring earlier stage measures remain in effect as pollution worsens. It combines stage-wise actions with forecast-based preventive measures to protect public health.

• GRAP Stages: GRAP functions in four stages, which are GRAP 1 (Stage I), GRAP 2 (Stage II), GRAP 3 (Stage III), and GRAP 4 (Stage IV), with each stage corresponding to a specific AQI range.
• Stage-wise Measures: Early stages focus on dust control, anti-smog campaigns, and public advisories, while higher stages enforce stricter restrictions on vehicles, industries, and construction activities.
• Forecast-Based Action (Advance Warning): GRAP is both proactive and reactive, using pollution and weather forecasts from the India Meteorological Department (IMD) and the System of Air Quality and Weather Forecasting and Research (SAFAR) to implement preventive measures.
  • Example: If smog is predicted due to stubble burning and low wind speeds, early restrictions are triggered to prevent pollution buildup and protect public health.

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GRAP Stages

Graded Response Action Plan (GRAP) operates in four progressive stages, each linked to a specific AQI range. As pollution worsens, all measures from earlier stages remain in effect while additional restrictions are applied. The stages escalate from early dust control (Stage I) to strict emergency measures (Stage IV).

GRAP 1 or Stage I

GRAP 1 or Stage I is activated when the AQI reaches ‘Poor’ (201–300). This stage focuses on early action to control dust and particulate pollution and prevent further decline. GRAP1 restrictions include:

• Regular road sweeping, water sprinkling, use of dust suppressants, covering construction materials, and deploying anti-smog guns.
• Open burning of garbage, crop residue, or biomass is banned, while awareness campaigns promote carpooling and greater use of public transport to reduce vehicle emissions.

GRAP 2 or Stage II

GRAP 2 or Stage II is activated when the AQI enters the ‘Very Poor’ (301–400) range; this stage aims to quickly cut major emission sources and stop air quality from worsening. GRAP1 restrictions include:

• Ban on diesel generators except for emergencies, higher parking fees to discourage private vehicle use, and the addition of metro and bus services to promote public transport.
• Patrolling is intensified, and strict action is taken against the open burning of garbage and biomass to limit smoke and particulate pollution.
• The measures primarily target diesel generators, private vehicles, and waste burning, while promoting greater use of public transport.

GRAP 3 or Stage III

GRAP 3 in Delhi or Stage III is triggered when Delhi-NCR’s AQI crosses approximately 350 with a rising trend, which is a revised threshold set by the Supreme Court and CAQM to allow earlier action before the air quality breaches the traditional ‘Severe’ range of 401–450. GRAP 3 restrictions include:

• Construction and Industry Restrictions: All non-essential construction and demolition activities are banned, with exceptions only for essential linear projects like roads, railways, airports, and sanitation works.
  • Major polluters such as hot-mix plants, stone crushers, and brick kilns are also shut down to curb industrial emissions.
• Transport Limitations: Entry of non-essential trucks is restricted, while older vehicles, BS-III petrol and BS-IV diesel four-wheelers, face movement bans. Odd-even car rationing may be introduced if pollution remains critical.
• Public Safety Measures: Schools up to Class V may be closed to reduce children’s exposure to hazardous air.
• Enhanced Dust Control: Mechanical road sweeping, daily water sprinkling, anti-smog guns, and real-time particulate monitoring at construction sites are intensified to suppress dust and particulate matter.

GRAP 4 or Stage IV

GRAP 4 in Delhi or Stage IV is enforced when the AQI exceeds 450, entering the ‘Severe+’ category, representing an emergency level of air pollution. GRAP 4 restrictions include:

• Transport Curbs: Entry of all diesel trucks and commercial vehicles is banned, except those carrying essential goods. Delhi-registered BS-IV and older diesel goods vehicles are prohibited, and odd-even rationing may be imposed to limit private cars.
• Work and Education: All schools are closed, with senior classes potentially shifted online. Government and private offices must keep 50% staff working from home to cut commuting emissions.
• Construction and Commercial Activities: All construction, including linear public projects, and most non-essential commercial activities are suspended to sharply reduce industrial pollution.
• Health Advisories: Vulnerable groups such as children, the elderly, and those with respiratory illnesses are urged to stay indoors and avoid outdoor activity.

Graded Response Action Plan (GRAP) Challenges

Graded Response Action Plan (GRAP) provides temporary relief during periods of high air pollution. However, it has several key challenges, such as weak enforcement and a short-term approach, which makes the environment vulnerable in the long term.

• Weak Coordination and Enforcement: Effective pollution control requires smooth coordination among government and regulatory authorities. But poor collaboration and exemptions for “critical projects” allow construction dust to remain a major pollution source.
• Vehicle Emission Gaps: High-emission vehicles often evade Pollution Under Control checks, while remote sensing technology remains underused due to weak infrastructure and follow-up.
• Short-Term, Reactive Approach: GRAP mainly targets winter spikes, neglecting year-round sources like open waste burning and poor public transport. Temporary steps like odd-even rationing give only brief relief without systemic change.

Road Dust and Health Risks: Inadequate road sweeping and incomplete paving keep dust levels high, worsening health impacts. In 2021, air pollution caused 2.1 million deaths in India, including 12,000 in Delhi.