Clearing the Air, A Pragmatic Three-Year Roadmap to End North India’s Stubble Burning Crisis
As the autumn winds begin to sweep across the Indo-Gangetic plains, a familiar, noxious haze descends upon North India, particularly the National Capital Region (NCR). The annual environmental crisis of stubble burning—the practice of setting fire to leftover paddy straw after harvest—has commenced once again. For the millions gasping for breath, it can feel like an inescapable, perennial doom. However, a groundbreaking analysis suggests that this does not have to be our fate. The end of stubble burning is not a utopian fantasy but a “pragmatic and achievable goal” within the next three years. This vision, backed by data and a clear, phased action plan, offers a way out of the cyclical despair, proposing a multi-pronged strategy that moves beyond temporary fixes and punitive measures to address the economic and systemic roots of the problem.
The Scale of the Problem: More Than Just a Whiff of Smoke
To understand the solution, one must first grasp the magnitude of the crisis. During the peak burning period of approximately 20 days in October and November, stubble burning contributes a staggering 15-30% of Delhi’s PM 2.5 pollution. These fine particulate matters are microscopic killers, capable of penetrating deep into the lungs and bloodstream, causing and exacerbating respiratory and cardiovascular diseases. To put this into perspective, Delhi’s monthly average PM 2.5 level in November 2024 was around 230 µg/m³, a level deemed “hazardous” by any global standard. The pollution from farm fires in Punjab and Haryana is a transboundary crisis, making coordinated action between states not just beneficial, but essential for the health of the entire region.
Over the past seven years, governments have experimented with various solutions. Hundreds of thousands of crop residue management (CRM) machines have been distributed at heavy subsidies, biofuel projects have been promoted, and fines have been levied on offending farmers. Yet, the fires persist. The failure of these measures underscores a critical truth: you cannot fine a farmer out of an economic predicament. When the cost of clearing stubble mechanically exceeds the perceived benefit, and the window to prepare the field for the next wheat crop is agonizingly short, burning remains the fastest, cheapest option. The solution, therefore, lies in making sustainable stubble management not just ecologically sound, but economically rational and logistically seamless for the farmer.
Pillar 1: Revolutionizing Machine Access Through Reformed Custom Hiring Centres (CHCs)
The first pillar of the three-year roadmap focuses on fixing the broken system of machine rental. Punjab and Haryana already possess a massive fleet of over 250,000 straw-handling machines, such as Happy Seeders and Super Seeders—theoretically enough to cover all non-basmati paddy fields. The primary failure lies in the operation of Custom Hiring Centres (CHCs), which are plagued by inefficiency and opacity.
Despite procuring machines at an 80% subsidy, these centres struggle with viability. For instance, a Super Seeder bought for ₹48,000 after subsidy needs to be rented out for about 100 acres (40 hectares) per year to break even over five years. A recent study by the Council on Energy, Environment and Water (CEEW) revealed a startling statistic: only 15% of Punjab’s farmers who manage stubble on-farm use rental machines from CHCs.
The proposed reforms are specific and actionable:
-
By 2025: State governments must mandate a minimum operational target of 40 hectares per Super Seeder for each CHC. They must digitize the rental process by onboarding farmers and CHCs onto mobile applications like Punjab’s ‘Unnat Kisan’ for transparent, seamless booking. Concurrently, technical training for machine maintenance must be prioritized to reduce downtime.
-
By 2026: The subsidy scheme should be redesigned. Instead of just a capital subsidy for purchase, top-performing CHCs that meet service targets should receive operational support, creating a direct incentive for efficiency and reliability.
This approach transforms the CHC from a poorly managed equipment graveyard into a viable, service-oriented enterprise.
Pillar 2: Busting Myths and Building Confidence Through Strategic Communication
The second pillar addresses the crucial, often overlooked, human element: farmer mindset. Deep-seated myths persist that using CRM machines leads to pest attacks and lower yields. These misconceptions can negate even the most well-funded machine distribution program.
The central government’s revised CRM Operational Guidelines (2020) allocated up to ₹2.06 crore per state annually for training and demonstrations. However, this is a paltry 0.5% of the ₹500 crore Punjab alone has allocated for stubble management this year. This misallocation of resources is a critical failure.
The solution is to dramatically increase investment in strategic Information, Education, and Communication (IEC) activities. States should allocate up to 5% of their annual CRM budget to this effort. This would fund:
-
Large-scale field demonstrations that allow farmers to see the machines in action and speak with early adopters.
-
Checklists of best practices for different soil types and crop rotations.
-
Clear, evidence-based data showcasing the long-term cost savings and soil health benefits of in-situ management.
Changing hearts and minds is not a soft policy; it is a prerequisite for the adoption of any technological solution.
Pillar 3: Building a Robust Market for Paddy Straw (Ex-Situ Management)
While in-situ management (incorporating straw into the soil) is ideal for many farmers, a significant portion of paddy residue must be channeled into productive use through ex-situ methods. This involves creating a supply chain where straw is baled, transported, and used as fuel in industrial boilers or as feedstock for Compressed Biogas (CBG) plants and biochar production.
The ambition has been high, but the execution has lagged. Punjab aimed to manage 5.96 million metric tonnes through ex-situ methods, but by 2023, only 60% of the target capacity was operational. As of August 2025, a mere six out of 70 planned CBG plants in Punjab were functioning. The bottlenecks are clear: the high cost of biomass aggregation and delivery, a shortage of balers and storage facilities, and an underdeveloped supply chain.
The roadmap proposes:
-
By 2025: Conduct a price discovery study to determine a feasible pricing range for paddy straw that ensures fair returns for farmers while remaining viable for project developers.
-
By 2026: State energy agencies must standardize biomass storage guidelines to minimize losses and fire risks, making investment in storage infrastructure more secure.
Creating an economically vibrant market for paddy straw transforms it from a waste product into a valuable commodity, providing farmers with an additional revenue stream.
Pillar 4: Fostering Markets for Circular Economy Products
The success of the ex-situ strategy hinges on creating demand for its end products. The two most promising are Fermented Organic Manure (FOM) from CBG plants and biochar.
-
Fermented Organic Manure: While the government has amended the Fertiliser Control Order to prescribe quality standards for FOM, widespread adoption requires more. State agricultural universities must, by 2027, establish clear application guidelines on dosage, frequency, and methods.
-
Biochar: This carbon-rich charcoal is a powerful soil amendment and a tool for carbon sequestration. The government must urgently notify quality standards for biochar. Furthermore, by leveraging the booming global voluntary carbon market, Indian farmers and biochar producers could earn premium carbon credits, creating a powerful new revenue stream that makes stubble management highly profitable.
Proactive training, field trials, and evidence generation are essential to build farmer confidence in these new products.
Pillar 5: Reducing the Problem at its Source
The most sustainable solution is to generate less waste. A significant part of the problem is the cultivation of long-duration, water-intensive paddy varieties like PUSA 44, which generates nearly two extra tonnes of straw per hectare compared to short-duration varieties like PR 126.
The roadmap proposes a bold procurement policy shift:
-
From the next sowing season: Actively promote short-duration varieties.
-
By 2026: The Union government must mandate a per-acre paddy procurement cap equivalent to the district-level yields of these short-duration varieties. This would make PUSA 44 less attractive, as the government would not procure the additional yield. This is administratively feasible, as land records are already integrated into the procurement process.
This measure attacks the problem at its source, reducing the sheer volume of straw that needs to be managed.
Conclusion: A Collective Endeavor for a Breathable Future
The three-year roadmap to end stubble burning is a symphony of coordinated actions, each reinforcing the other. It requires the seamless collaboration of policymakers, farmers, industry leaders, and academia. It demands that we move beyond blaming the farmer and instead empower them with viable choices. The technology exists, the financial resources are being allocated, and the blueprint is now clear.
What has been missing is the relentless, coordinated execution and a “can-do attitude” to replace the annual “narrative of despair.” As the winter of 2025 approaches, the time for implementation is now. The promise of a winter without severe pollution peaks by 2028—with PM 2.5 levels potentially reduced by up to 40 µg/m³ on the worst days—is within our grasp. It is a future where the autumn sky in North India is blue, and its citizens can breathe freely. This is not a distant dream but a tangible goal, waiting only for our collective will to make it a reality.
Q&A Section
Q1: Why haven’t previous measures, like distributing machines and levying fines, succeeded in stopping stubble burning?
A1: Previous measures have failed because they did not adequately address the root economic and logistical constraints faced by farmers. While machines were distributed, the system for renting them (Custom Hiring Centres) is inefficient and opaque, making access difficult. Fines are a punitive measure that punishes farmers for a practice they resort to out of economic necessity, as burning is the fastest and cheapest way to clear fields under the tight schedule between paddy harvest and wheat sowing. Solutions must make sustainable stubble management economically viable and logistically seamless.
Q2: What are “Custom Hiring Centres (CHCs)” and how can they be reformed?
A2: CHCs are centres, often cooperatives, that purchase crop residue management machines with government subsidies and rent them to local farmers. The proposed reforms include:
-
Setting minimum operational targets (e.g., 40 hectares per machine) to ensure financial viability.
-
Digitizing the booking process through mobile apps for transparency and ease of access.
-
Providing technical training for maintenance to reduce machine downtime.
-
Redesigning subsidies to provide operational support to high-performing CHCs, incentivizing efficiency.
Q3: What is the difference between “in-situ” and “ex-situ” stubble management?
A3:
-
In-Situ Management: This involves dealing with the straw directly in the field. The primary method is using machines like the Happy Seeder or Super Seeder, which cut the stubble, mix it with the soil, and sow the next crop’s seeds in a single operation. It enriches the soil but requires access to specific machinery.
-
Ex-Situ Management: This involves removing the straw from the field for other uses. This includes using it as fuel in industrial boilers, feedstock for Compressed Biogas (CBG) plants, or raw material for biochar production. This creates a value chain for the straw but requires a developed supply chain for collection, baling, and transportation.
Q4: How can promoting short-duration paddy varieties help reduce stubble burning?
A4: Long-duration varieties like PUSA 44 not only guzzle more water but also generate significantly more biomass—almost two extra tonnes of straw per hectare. This excess straw directly contributes to the burning problem. Short-duration varieties like PR 126 mature faster and produce less straw. By promoting these varieties and, crucially, by linking government procurement to their lower yield caps, farmers are incentivized to switch, thereby reducing the total volume of residue that needs to be managed in the first place.
Q5: What are “biochar” and “fermented organic manure,” and why are they important for a long-term solution?
A5:
-
Biochar: A charcoal-like substance produced by heating crop residue in a low-oxygen environment. It is a valuable soil amendment that improves fertility and water retention. Crucially, it sequesters carbon for centuries, making it eligible for valuable carbon credits on the global market, creating a new revenue stream.
-
Fermented Organic Manure (FOM): A nutrient-rich byproduct of the Compressed Biogas (CBG) production process. It can replace chemical fertilizers, closing the nutrient loop.
Both products are vital because they create commercial markets for paddy straw, transforming it from a waste product into a valuable commodity. This ensures the financial sustainability of the ex-situ management chain and provides farmers with an economic incentive not to burn.
