How 'polluter pays' works in Delhi
GREEN TAXES
Every night, more than 50,000 trucks enter Delhi to add to the pool of smoke and pollution. After repeated efforts and overcoming several hurdles, a "green tax" or "pollution charge" has finally been
imposed on trucks entering the capital. The efforts include a recent report by the Delhi-based non-profit,
Centre for Science and Environment, on pollution. Latest reports suggest that there is approximately 30 per cent reduction in the number of polluting trucks entering the city, essentially to avoid paying the tax.
A look at what this tax means and why it brings a sense of relief
in Delhi's battle against pollution
Acting on rising vehicular pollution in Delhi, the National Green Tribunal (NGT) directed that commercial vehicles entering the state must pay an environmental compensation charge in addition to the toll tax, given that emissions from automobiles were responsible for the bulk of the particulate matter (PM) load that pollutes the ambient air.
Light duty vehicles and two-axle trucks will have to pay Rs 700, while three- and more -axle trucks will pay Rs 1,300. The payment will be collected by toll operators at 127 entry points into the city.
Vehicles carrying people and essential commodities such as food, raw vegetables, fruits, grains, milk and tanker carrying petroleum products will, however, be exempt from paying the tax. The court said this compensation arrangement will be experimented with for four months and could be modified thereafter.
The court took note of a study by the Centre for Science and Environment (CSE), that found that about 23% of commercial vehicles and 40%-60% of heavy trucks entering the city were not destined for Delhi. The court said it was necessary to impose the charge, along with the toll imposed by the civic bodies, to equalise the difference in cost between travelling through the city and taking alternative routes.
The NGT Bench headed by Justice Swatanter Kumar said harsh measures were needed to ensure that “non-destined vehicles” passing through Delhi to other areas are kept out of the city.
The CSE study monitored nine entry points into Delhi and found the MCD estimation of trucks entering Delhi was 70 per cent less than actual – the difference in MCD estimation and CSE study was between 50 and 96 per cent at different points. It investigated the levies on other routes and found that Delhi’s taxes were cheaper and therefore more lucrative for trucks using Delhi as a transit corridor.
The pollution tax is aimed at reducing diesel emissions from trucks, which is a major contributor to the air pollution in Delhi.
This tax through the use of the polluter pays principle is supposed to act as a deterrent and provide financial viability to alternative routes and bypass to avoid further congestion and pollution in the already toxic air of Delhi-NCR.
On Oct 9, 2015 Supreme Court (SC) ordered that commercial vehicles entering the state must pay an environmental compensation charge in addition to the toll tax, since emissions from automobiles were responsible for the bulk of the particulate matter (PM) load that pollutes the ambient air.
CSE study recommended a 'pollution levy' on trucks. It also recommended introduction of Radio Frequency Identification Device (RFID) for trucks which will enable electronic payment and tracking them electronically as they pass through tollbooths. This will help identify non-destined trucks (for Delhi) with greater precision and reduce traffic congestion at tollbooths.
Supreme Court issued warning in 2001
The Supreme Court (sc) has issued show-cause notices to the Delhi government and the Delhi police commissioner for non-implementation of its order banning the entry of trucks which do not comply to Bharat Stage-II (equivalent to Euro-II) norms in the capital. On December 6, 2001, the sc had banned the entry of trucks not adhering to Bharat Stage-II norms in the capital. The order was to come into effect from January 15, 2002. The court also reiterated that there would be no corridor joining different national highways, which will allow trucks to pass through Delhi.
According to preliminary estimates of the vehicular emissions model of New Delhi-based non-governmental organisation Centre for Science and Environment. Trucks are the biggest emitters of particulate matter, contributing as much as 45 per cent of the total particulate emissions from vehicles (see graph). The Union government was also rapped for not submitting a feasibility report for introducing liquefied petroleum gas and compressed natural gas for two and three-wheelers in other polluted cities of India.
Commercial traffic prefer to transit through Delhi. This costs less, but takes a heavy toll on health of Delhi’s children of senior residents.
Delhi is one of the most polluted cities not only in India but the world. This pollution is a cause of serious public health hazard – particularly for the health of children as well as senior citizens, who are the two most vulnerable groups.
A survey released by Delhi-based non-profit, Centre for Science and Environment (CSE), shows that the entry of a large number of trucks in the national capital adds on to the city's air pollution level.
The non-profit has also welcomed the Supreme Court's intervention into the matter in response to an application filed by Amicus Curiae Harish Salve. Based on the CSE findings and the recommendations of the Environment Pollution (Prevention and Control) Authority, Salve has sought immediate measures to control the entry of trucks before winter pollution brings in its wake health hazards.
Speaking to the media on the occasion of the release, CSE director general Sunita Narain said, “Without the right numbers and more varied strategies, official action to control truck pollution has remained and will remain weak and ineffective.”
Delhi's pollution battle
CSE Executive Director Anumita Roychowdhury, who also heads the air pollution control campaign, said, “The study has become necessary as it is clear that Delhi cannot fight its pollution battle without addressing the enormous pollution contributed by trucks crossing its borders daily.”
“The delay in building the two expressways has cost the city dear in terms of pollution. But given the coming winter and the increase in pollution, we need to find urgent options. While immediate steps are needed to complete the two expressways—western and eastern—as directed by the Supreme Court over a decade ago, it is possible to take additional steps in the short term to reduce pollution load from trucks before this winter. Delhi has now got the dubious distinction of being the most polluted city in India and perhaps even the world. This is putting a huge health burden on its people.”
One, I realised, painfully, that it would mean accepting defeat. It was in the mid-1990s that we started work on clean air. Then, unlike now, people did not even see the connection with our bodies. When we said tiny particles emitted from diesel vehicles could be carcinogenic, a leading automobile manufacturer slapped us with a Rs 100 crore defamation suit. But courts and governments worked to take decisive and difficult action, and pollution was checked.
- Sunita Narain
Diesel exhaust contains significant levels of small particles, These fine particles in the air are a serious public health problem. They pose a significant health risk because they can pass through the nose and throat and lodge themselves in the lungs, Click here for more information on Health impacts of Diesel Pollution
Details about the study
As part of the survey, CSE roped in M/s V R Techniche Consultants Pvt Ltd to accurately estimate the number of commercial vehicles entering and leaving Delhi at all key toll points. It was done to get an independent estimate and verify the municipality data, which underestimated the number of trucks entering the city.
Video recording was used to carry out a survey on the actual traffic count 24x7 at fixed spots near selected entry points between June 29 and July 18, 2015. All categories of trucks and commercial vehicles that feature in the municipal database were counted.
The term commercial vehicles is used for mini-light goods vehicle, light goods vehicle, two-axle trucks, three-axle trucks, four-axle trucks, five-axle trucks, six-axle trucks and trucks with more than six-axles. During the survey carried out 24 hours (8 am to 8 am) on all the days during the period mentioned above, trucks entering as well as exiting Delhi were counted.
Nine representative entry points were chosen for the survey. According to the MCD, all these points account for close to 75 per cent of the total commercial vehicle entry into Delhi.
Kundli border on NH-1 (KGT Main), Tikri border on NH-10, Rajokri border on NH-8, Badarpur border on NH-2, Kalindi Kunj, Ghazipur Main on NH-24, Ghazipur Old, Shahdara border on NH-19 and Shahdara Flyover were selected for the study.
A large number of commercial vehicles enter and leave Delhi every day. On a daily basis, some 38,588 commercial vehicles (excluding taxis) enter Delhi from all these nine locations. If this is extrapolated to 127 entry points, then 52,146 commercial vehicles (excluding taxis) enter Delhi daily. While it is difficult to know if a particular vehicle has entered and left Delhi on the same day or not, it is clear that such a large number of vehicles affects the city's air quality.
The daily average number of light as well as heavy goods vehicles that enter and exit from all these nine points stand at 85,799. The total number of commercial light and heavy duty trucks entering and leaving the city is 115,945 each day.
Municipality underestimates number of vehicles
According to the Municipal Corporation of Delhi (MCD) data, on an average 22,628 commercial vehicles (excluding taxis), enter Delhi every day from these nine entry points, as against the 38,588 commercial vehicles counted by the CSE survey. The former figure, which is almost 16,000 vehicles less than the CSE study, is an underestimation of about 70 per cent in the number of trucks entering the capital.
Source: CSE Traffic Count Survey & MCD Data for toll entry between 16.05.2015 to 31.07.2015
When it comes to pollution, Delhi’s own vehicles are responsible for 62 per cent of the particulate load from the transport sector and 68 per cent of the NOx (nitrogen oxide) load. The total number of light and heavy trucks that enter Delhi spew close to 30 per cent of the total particulate load and 22 per cent of the total Nox load from the transport sector.
“This is clearly a massive loading of toxic pollution. Without any restraint on the movement of these trucks, Delhi’s battle against toxic pollution cannot be won. Though light goods vehicles are 49 per cent of all commercial vehicles, the relative contribution of heavy trucks is much higher,” said Narain.
Source: Centre for Science and Environment (CSE)
The CSE survey includes information on the time of entry of all commercial vehicles into the city. When the movement of vehicles is correlated with the pollution data, a clear trend emerges. The pollution is the highest in the city during the time when there is a movement of heavy as well as light trucks. While trends are more variable during summer night time, the level of pollution increases during winters.
Source: Centre for Science and Environment (CSE)
The MCD data shows that the percentage of trucks turned back, in compliance with the order of the Supreme Court, is a mere 0.3 per cent of the total traffic.
Drawbacks of travel study
Conducting a travel destination study has a huge drawback, as drivers often do not provide accurate or correct information. A rapid diagnostic survey was carried out in 2014 only on the roads approaching NH-1 and NH-10 to Delhi.
During the study, truck drivers were randomly surveyed and asked about their origin and destination and the commodities in their vehicles. This rapid and limited survey found that around 23 per cent of all commercial vehicles travelling on NH-1 were not destined for Delhi.
In the same survey, it was found that 40 to 60 per cent of heavy trucks (three-axle and those above) were not destined for the city. But it also became clear that it is not possible to distinguish between such vehicles and a strategy must be designed so that all light and heavy-duty trucks are duly covered.
Another shocking fact has been revealed by CSE. It has come to light that while there are viable options available to bypass commercial traffic, these roads are not favoured by transporters. There are alternative highways that exist on the western side of the city to transport goods to north India as well as west and south.
However, truckers prefer to traverse through Delhi and not take these alternative highway roads despite the fact that there is no apparent and real difference in length.
The key reason behind not taking these routes is that it is cheaper to travel through Delhi than to take alternative roads. The reason for this choice of route is that these roads are all toll roads and charge according to the rates as decided by the National Highways Authority of India (NHAI). The road that cuts through Delhi has a lower charge that is based on rates decided by the MCD.
For instance, NH-71 and NH-71A are toll roads that connect Rewari via Jhajjar and Rohtak to Panipat. This means that commercial vehicles, which is travelling from north India to west via Jaipur and then to south India, can take this route. It will not need to travel through Delhi. But the toll rate for three-axle trucks to travel on this road is Rs 1,420. If the truck travels through Delhi, it is required to pay the MCD toll, which for a three-axle truck, is only Rs 450.
The length of the trip is not much different – while travelling via NH-71 and NH-71A it is 172 km. Travelling through Delhi is marginally shorter with 163 km. It is also clear that travelling to the east of India—from north to east via Agra, there are fewer ready highways that can obviate the need to traverse through Delhi.
“Travelling through Delhi needs to be charged so that there is a clear disincentive for the use of these roads, the cost of pollution is paid for and there is an incentive for viable options to be built that do not require going through the already congested and polluted airshed of Delhi,” Roychowdhury added.
“Imposing this charge will reduce the (number of vehicles) that have options not to travel through Delhi immediately. It will also create conditions for traffic that is not destined for the city, to look for alternative routes,” she said.
Urgent steps needed before winter
CSE welcomes the fact that key urgent measures that can make a difference in the short term have been taken on board and recommended to the Supreme Court by Salve and the EPCA.
There should be an implementation of a pollution compensatory charge on all light and heavy-duty trucks entering Delhi as an additional charge to the MCD toll. This should be done to equalise the difference between toll roads and travel through Delhi. Taxis are being exempted as they provide options for public travel. Similarly, in category two buses should also be exempted as there is a need to make this travel cheaper and viable to take away from private car travel.
There is also a need to implement Radio-Frequency Identification Device (RFID) on trucks. The RFID scheme will enable electronic payment and track them electronically as they pass through the toll booths. This will help to identify non-destined trucks with greater precision and make management easier. The highways authority has directed a nationwide roll out of RFID for commercial vehicles, but the implementation is slow.
This can be easily implemented in Delhi, as technology is available and relatively cheaper to install on every truck. The contract given by the MCD to the private operator includes the provision to move towards RFID, but no deadline has been given. Clearly, there is no incentive for the operator to move towards RFID, which would reduce the dealings in cash considerably.
There is also a need to introduce Bharat Stage IV emissions standards across India by April 2016. Emission levels from trucks cannot be lowered effectively if they continue to run on outdated technology and highly polluting fuel.
The current Bharat Stage III standards that apply to trucks across the country are 15 years behind European standards. As trucks have a 15-year life, any delay in bringing in better technology or fuel, means more polluting on-road vehicles. Cleaner fuel is also required nationwide as trucks travel long distances. The current draft standards issued by the Ministry of Surface Transport and Highways require inter-state (truck) traffic to move to Bharat Stage IV only in April 2017. This delay is, however, unacceptable.
On October 9, 2015, the Supreme Court had passed an order imposing Environment Compensation Charge (ECC) of Rs 700 on all light goods vehicles and Rs 1,300 on heavy goods vehicles entering Delhi. The additional levy will not be applicable on trucks carrying food stuff, oil tankers as well as passenger vehicles and ambulances.
The order had also asked the toll collector to install the Radio Frequency Identification Device (RFID) system at all 127 entry points by January 31, 2016, at their own cost. The order had stated that the money collected from these tolls will be handed over to the Delhi Government to mitigate the losses caused by air pollution, promote public transport and green spaces, and make pedestrian and cycle lanes on roads.
Who is responsible for collecting the congestion tax?
The three MCDs man entry points to the state, which are also the points of ECC collection. South Delhi Municipal Corporation (SDMC) is the “lead corporation” for collection of ECC, which means it speaks and acts on behalf of all three corporations. SDMC has outsourced the process to a private partner, and the contractor or “concessionaire” who collects the toll now also collects the ECC on the corporation’s behalf.
As of now, the court has directed the contractor to collect the additional tax at all 127 entry points into the capital city.
While the civic body, Municipal Corporation of Delhi, will collect the money without any deductions, it will be handed over to the Delhi government every Friday. The top court has asked the Delhi government to use the money for improving roads, particularly for cyclists and pedestrians. The Delhi government will also have to inform the Supreme Court about its spending.
Pollution tax collection: What were the difficulties in implementing the court order and what is status of tax collection
On October 30, 2015 the consortium informed Supreme Court that collecting this tax was “beyond the terms of (its) agreement…". It asked state agencies to clear ambiguities around the transport of mixed goods, multiple entries, etc. For example, if taxed items are carried with exempted items in a truck, does the carrier pay tax?
The tax collection was supposed to start from November 1, 2015 onwards. But SMYR Consortium, the agency authorised by the municipality to levy the so-called “green tax” said lack of a clear policy proved to be a major deterrent on the first day of the exercise and also raised doubts over successful deployment of the system in the near future.
Traffic chaos and lack of trained staff to collect the tax proved to be major hurdles.
Municipal corporation leaders and officials washed their hands of their responsibilities. They said that since the apex court ordered the concessionaire to collect the tax, the consortium would have to bear the consequences of not complying with the directive.
SDMC was then criticised by Delhi government for the failure to implement court order in the first week.
Nov 2, 2015
According to EPCA, visited Rajokari Toll Collection Post on 1-2 November 2015 (night). orders of Hon’ble Supreme Court are being flouted with impunity. No Environment Compensation Charge (ECC) is being collected at the post. No instructions have been issued to the staff manning the post. They are reluctant to enforce the order with utter disregard to Hon’ble Supreme Court. The Transport Department deputed its teams to check 15 major entry points. The feedback from these teams is the same indifference and unwillingness to enforce the order
Read Letter from EPCA to Delhi Govt.
Nov 4, 2015
The Supreme Court-appointed Environment Pollution Control Authority (EPCA) decided on Nov 4, 2015 that every truck which enters Delhi without paying the 'green tax' at toll booth, will be chased, apprehended and made to cough up Rs 2,000 apart from the tax., EPCA also responded to 11 quaries raised by SMYR.
View EPCA respond to 11 quaries raised by SMYR
Nov 6, 2015
Environment Pollution Control Authority (EPCA) clarified issues raised by SMYR and from so consortium decided to start collection of ECC from the midnight of Nov 6, 2015 onwards.
Read more: http://www.ndtv.com/delhi-news/trucks-entering-delhi-to-pay-green-tax-from-today-1241012
Three days after a green tax was levied on heavy commercial vehicles, the number of trucks entering the capital has gone down by at least 30% at 124 border points. The environment compensation charge ( ECC) imposed by the Supreme Court is aimed at reducing diesel emissions from trucks, which is a major contributor to the air pollution in Delhi.
Officials from South Corporation as well SMYR Consortium claim the tax has served its purpose of bringing down the number of trucks entering the capital. This change is being noticed at major entry points, including Rajokri, Badarpur, Tikri, Kalindi Kunj, Shahdara, Shahdara Flyover, Ghazipur, Old Ghazipur and KGT.Officials claim at least 800 trucks used to enter Delhi at night through each of these points and after the Supreme Court's order, the number has reduced by 20% per day at the nine major entry points.
Source: Times of India, New Delhi
Nov 09, 2015
Environment tax collection at Rs 1.25 cr a day: Civic body
Nearly two days after the Environment Compensation Charge (ECC) or environment cess on trucks entering Delhi was implemented, the South Delhi Municipal Corporation (SDMC) said around Rs 1.25 crore was being collected in a day.
The Supreme Court had ordered that the cess be implemented from November 1. Officials said the concessionaire, SMYR Consortium, had collected the amount from 124 entry points to the city each day. “The exact details of the amount collected is awaited. But preliminary information shows that around Rs 1.25 crore is being collected daily,” said an official.
Source: Indian Express, New Delhi (09 November 2015)
Nov 17, 2015SMYR Consortium, the private company collecting toll tax from trucks entering Delhi from neighbouring states of Haryana, Uttar Pradesh and Rajasthan informed the Supreme Court on Nov 16, 2015 that it was not in a position to comply with the court order for collection of pollution tax from these commercial vehicles.
The company questioned the validity of the SC's order passed on October 9, directing the company to collect additional tax for four months–from November 1, 2015, to February 29, 2016–on experimental basis.
Important Readings
⇒ EPCA Report, Oct 2015
⇒ New CSE survey and study debunks official numbers of trucks entering Delhi
⇒ Application by Harish Salve
⇒ Order of the National Green Tribunal regarding pollution caused by heavy vehicles, Delhi, 07/10/2015
⇒ Order of the Supreme Court of India on steps to check pollution by commercial traffic in Delhi, 09/10/2015