Stubble Burning in North India Introduction

• Stubble burning, the practice of setting crop residue on fire, has emerged as a major environmental and public health crisis in northern India. Despite repeated judicial interventions, including the Supreme Court’s consideration of prosecuting farmers and its criticism of the Commission for Air Quality Management (CAQM), the problem persists. 
• Each year, around 23 million tonnes of paddy residue is burnt in Punjab, Haryana, and adjoining states, contributing significantly to winter smog episodes in Delhi-NCR. Understanding the systemic causes is essential to framing long-term solutions.

What are the Reasons Behind Stubble Burning? 

• The Punjab Preservation of Subsoil Water Act, 2009:  One of the most significant structural factors behind stubble burning is the Punjab Preservation of Subsoil Water Act, 2009.

• • • Groundwater depletion trigger: Earlier, farmers transplanted paddy in May, relying heavily on subsidized electricity and tube wells, causing severe groundwater depletion.
    • Legislative intervention: The Act mandated that paddy sowing could only begin after May 10, with transplantation from June 10 onwards. This aligned the crop cycle with the monsoon, initially slowing groundwater decline.
    • Narrowed sowing window: By shifting transplantation to mid-June, harvesting now coincides with late October–November. Farmers are left with only 15–20 days (earlier 45 days) to prepare fields for the next wheat crop, which is highly climate-sensitive.
    • Forced burning: Natural decomposition is too slow for this compressed window, making burning the only cost-effective option. Unfortunately, this coincides with winter meteorological conditions—low wind speed and temperature inversions—which trap pollutants and exacerbate air pollution in Delhi-NCR.

• Time Constraints in the Crop Cycle:  The narrow window between paddy harvest and wheat sowing compels farmers to adopt the fastest clearance method. Manual residue removal is impractical, and mechanized options are either unavailable or too costly. Thus, burning becomes the default solution under time pressure.

• Economic Incentives and Cost Effectiveness:

• • • From the farmers’ perspective, burning is the cheapest and fastest method. Alternatives like mulching, baling, or in-situ decomposition involve labor, time, and financial inputs, which are not feasible for marginal farmers. Thus, perceived cost-effectiveness drives burning as the preferred practice.

• Policy and Market Distortions:

• • • MSP lock-in: The assured procurement of paddy and wheat under the Minimum Support Price (MSP) system discourages crop diversification. Farmers remain stuck in a rice–wheat cycle, generating enormous quantities of residue.
    • Missed diversification incentives: Alternatives like maize or pulses, which produce less residue and are less water-intensive, are not adequately incentivized.

• Mechanization and Harvesting Practices:

• • • Combine harvesters: Widely adopted to save labor costs and time, they leave behind stubble of 1–1.5 feet in height.
    • Manual removal impractical: Collecting or uprooting stubble requires additional labor and equipment, which small farmers cannot afford.
    • Cost barrier: Alternative technologies like the Happy Seeder, balers, and mulchers involve high upfront costs despite subsidies, limiting large-scale adoption.

• Pest and Weed Control Beliefs:

• • • Some farmers believe burning helps kill pests, weeds, and pathogens. While partially true, this practice also destroys soil fertility and beneficial microorganisms, degrading agricultural sustainability in the long run.

• Labor Shortages and Rising Costs:

• • The declining availability of agricultural labor, partly due to rural-to-urban migration and rising wages, further incentivizes mechanized harvesting. 
  • Quick stubble clearance through burning becomes unavoidable in the absence of affordable labor.

Consequences of Stubble Burning

• Air Pollution and Greenhouse Gas Emissions:

• • • Stubble burning releases massive amounts of greenhouse gases (CO₂, CH₄, CO, N₂O) that accelerate climate change.
    • It is also a major source of particulate matter (PM2.5 and PM10), which worsens air quality and visibility.
    • These pollutants contribute to winter smog episodes in Delhi-NCR, with stubble burning accounting for up to 40% of seasonal air pollution peaks during October–November.

• Regional Spillover and Transboundary Effects:

• • • The smoke from Punjab and Haryana does not remain confined within state boundaries; winds carry pollutants across northern India, severely affecting Delhi and parts of Uttar Pradesh.
    • This regional spread highlights the need for a coordinated interstate and central response rather than fragmented state-level solutions.

• Public Health Hazards:

• • • Exposure to stubble smoke is linked to a range of respiratory diseases such as asthma, chronic bronchitis, and chronic obstructive pulmonary disease (COPD).
    • It causes eye irritation, reduced lung capacity, and cardiovascular stress, particularly among vulnerable groups like children, the elderly, and outdoor workers.
    • Long-term exposure may also increase risks of lung cancer and other chronic health conditions, imposing a heavy public health burden.

• Soil Fertility Degradation:

• • • Burning destroys valuable soil nutrients such as nitrogen, phosphorus, potassium, and sulfur, which are essential for crop productivity.
    • Beneficial soil microorganisms and organic matter are killed, reducing soil fertility and long-term sustainability.
    • As a result, farmers become increasingly dependent on chemical fertilizers, raising input costs and degrading soil health further.

• Water and Ecosystem Impact:

• • The release of CO₂ contributes indirectly to ocean acidification, affecting global aquatic ecosystems.
  • Locally, burning reduces soil’s water-retention capacity, increasing dependence on groundwater irrigation in already water-stressed regions.
  • This exacerbates the cycle of unsustainable farming practices, especially in Punjab and Haryana.

Government Measures to Address Stubble Burning in India

• Promoting In-Situ Crop Residue Management:

• Subsidised Machinery: Under the Central Sector Scheme on Crop Residue Management (CRM) (2018–19 onwards), financial support is provided to farmers to manage residue within their fields:

• Individual Farmers: Receive a 50% subsidy on machines like Happy Seeders, Super Seeders, mulchers, and zero-till drills. For example, the Happy Seeder allows simultaneous straw removal and wheat sowing.
• Custom Hiring Centres (CHCs): Farmer Producer Organisations (FPOs), cooperatives, and panchayats get 80% subsidy to set up CHCs, which rent out machines to small and marginal farmers.
• Digital Access Platforms: States like Haryana have introduced mobile apps such as Krishi Yantra to help farmers book and hire machines conveniently.

• Bio-Decomposition Initiatives:

• Pusa Decomposer: The Pusa Bio-Decomposer, developed by the Indian Agricultural Research Institute (IARI), is a microbial solution that decomposes crop residue into manure within 15–20 days. Although highly effective, many farmers find the short sowing window for wheat a challenge in adopting this method widely.

• Ex-Situ Crop Residue Management:

• Alternative Uses of Paddy Straw: The government is encouraging the conversion of crop residue into valuable industrial resources:

• Biomass Power Plants: Paddy straw is used as feedstock for renewable energy.
• Compressed Biogas (CBG): Plants are being set up to produce green fuel.
• Packaging and Cardboard: Crop residue is promoted as raw material for eco-friendly industries.

• Financial & Industrial Incentives:

• Supply Chain Support: Subsidies up to 65% are provided for projects creating storage, baling, and transport infrastructure.
• Biomass Co-Firing: Thermal power plants within 300 km of Delhi must co-fire coal with at least 5% biomass pellets.
• Pelletization & Torrefaction Plants: The CPCB supports the establishment of plants that convert straw into pellets and briquettes.
• 2G Ethanol Projects: Government-backed bio-refineries in Panipat (Haryana) and Bathinda (Punjab) use paddy straw as feedstock for ethanol production.

• Enforcement and Monitoring:

• Strengthened Oversight:

• Commission for Air Quality Management (CAQM): Acts as the nodal body for enforcing stubble-burning prevention, designing state-specific action plans, and monitoring fire incidents.
• Heavier Penalties: In November 2024, fines were significantly increased, varying by landholding size.
• Satellite Monitoring: CAQM employs satellite imagery and on-ground teams for real-time tracking of fire events.
• Administrative Accountability: States like Punjab and Haryana have suspended officials for failing to curb burning in their jurisdictions.

• Encouraging Crop Diversification:

• Shifting Away from Paddy:

• Subsidies for Alternative Crops: Haryana’s Mera Pani Meri Virasat scheme incentivises farmers to grow maize, pulses, and vegetables instead of water-intensive paddy.
• Early-Maturing Varieties: Farmers are encouraged to cultivate shorter-duration paddy strains that reduce residue volume and allow more time for wheat sowing.

• Awareness and Communication Campaigns:  Extensive Information, Education, and Communication (IEC) drives include:

• Kisan Melas (Farmer Fairs), field demonstrations, and workshops.
• Media Outreach to raise awareness about the harmful effects of stubble burning and benefits of sustainable alternatives.

 

How has Commission for Air Quality Management (CAQM)  Tackled the Stubble Burning Crisis? 

• • The Commission for Air Quality Management (CAQM) was established in 2020 as a statutory body to address air pollution in the National Capital Region (NCR) and adjoining states.
  • Tasked with coordinating interstate efforts and enforcing strict measures, CAQM was expected to act as an empowered institution to mitigate recurring environmental crises. 
  • However, its functioning in the past four years reveals significant shortcomings, particularly in handling the stubble burning issue.

• Susceptibility to Political Pressure: 

• • • Although CAQM is a statutory body with considerable powers, it has failed to exercise independence. Its decisions are often influenced by political considerations rather than being rooted in scientific and evidence-based environmental policy. 
    • For example, its reluctance to implement strict measures against stubble burning highlights its inability to resist political pushback from states.

• Delays in Policy Implementation: 

• • • One of CAQM’s biggest weaknesses has been its delay in executing crucial interventions. The order banning petrol and diesel sales to end-of-life vehicles, originally scheduled for July, was postponed to November after political resistance and public backlash. Such delays dilute the urgency of environmental action and allow pollution to worsen unchecked.

• Transparency Deficit: 

• • • CAQM has often been accused of lacking transparency in data disclosure. For instance, it chose not to reveal that Punjab’s official claims of reduced farm fires contradicted satellite observations showing rising incidents. By not confronting misleading narratives, CAQM undermines its credibility and public trust.

• Weak Enforcement Capacity: 

• • • Despite having statutory backing, the commission has struggled to enforce compliance effectively. It has been unable to convince the judiciary or the public that stubble burning persists due to a combination of farmer resistance and weak enforcement by state governments in Punjab and Haryana. This has resulted in the continuation of a seasonal crisis with little deterrence.

• Poor Interstate Coordination:

• • • CAQM was specifically designed to ensure cross-border collaboration among Punjab, Haryana, Delhi, Uttar Pradesh, and Rajasthan. 
    • Yet, it has failed to achieve meaningful coordination. Sudden water releases, fragmented monitoring, and blame-shifting between states have worsened the crisis instead of mitigating it.

• Lack of Accountability Mechanisms:

• • Another glaring weakness is the absence of a robust accountability framework. The commission has not developed transparent systems to evaluate the effectiveness of its policies or take corrective measures.
  •  Instead, decisions are often influenced by perceived political repercussions, sidelining the environmental priorities that should define its mandate.

Way Forward

• Financial Framework and Support Systems:  A critical reform proposed is the creation of a pricing mechanism similar to the Minimum Support Price (MSP) to ensure guaranteed returns when farmers sell stubble. This would:

• • • Provide benchmark prices for crop residue, notified annually before the Kharif harvest season.
    • Ensure compensation reflects real costs of residue collection, including labor and machinery use.
    • Offer farmers a viable alternative to burning, thus reducing dependency on environmentally harmful practices.

• Technical and Infrastructure Development: The committee emphasized the role of technology and logistics in residue management:

• • • Real-time mapping of crop acreage and forecasting crop maturity at the district level will aid better planning and timely intervention.
    • Establishment of interim storage facilities in districts lacking industries within a 20–50 km radius to store and channel crop residue effectively.
    • Support for local entrepreneurs, farmer producer organizations (FPOs), and aggregators to strengthen collection and transportation networks.

• Regulatory and Administrative Improvements: To improve governance and accountability, the recommendations include:

• • • Designating a specific authority for grievance redressal of farmers in a time-bound manner.
    • Introducing amendments in rules to provide legal clarity for enforcement and farmer protection.
    • Establishing an incentive-based “Red Entry Removal” system, rewarding farmers who adopt sustainable practices.
    • Mandating a new sub-rule for utilizing the Environmental Compensation Fund exclusively for stubble management projects.

• Agricultural Practice Improvements: Transforming cropping patterns and agricultural practices is essential:

• • • Encourage adoption of short-duration paddy varieties as an alternative to long-duration types like PUSA 44, which leave behind large quantities of stubble.
    • Standardize procurement processes for alternative crops and ban uncertified seeds of problematic varieties.
    • Provide direct incentives for crop diversification towards maize, pulses, and other less residue-intensive crops.

• Coordination and Policy Integration: The committee has called for a Unified National Policy to integrate agricultural residue into India’s energy and industrial ecosystem:

• • Promote technologies such as bioethanol, compressed biogas (CBG), and biomass pellets to convert residue into green energy.
  • Strengthen industry linkages with farmers to create a stable demand-supply chain for stubble.
  • Ensure cross-sectoral coordination between agriculture, environment, and energy ministries to streamline policy execution.