More than a decade ago, China was in the same boat. Its megacities Beijing and Shanghai regularly had PM2.5 levels more than 10-20 times higher than the safe level recommended by the World Health Organization (WHO). PM2.5 are fine particles that can penetrate the lung barrier and enter the blood system. The WHO says its average annual level in the air should not exceed 5 micrograms per cubic meter (μg/m³).
Public anger grew. Beijing’s crisis was linked to rapid industrial growth, lax environmental regulations and an energy-intensive growth model that relied heavily on infrastructure, according to Calvin Quek of the Smith School of Enterprise and Environment at the University of Oxford.
A key moment came in 2013, when China unveiled a sweeping national action plan, considered the toughest in its history. This was followed by tighter environmental rules, vehicle restrictions in major cities, binding PM2.5 reduction targets for local governments, nationwide air monitoring stations, and measures against coal and other high-polluting industries.
A clean sweep
The results were astounding. China cut down PM2.5 levels by 41% from 2014 to 2023, according to the Energy Policy Institute at the University of Chicago (EPIC). The dramatic improvement left South Asia largely alone as the most polluted region on Earth. In 2023, China’s average PM2.5 level was 27.4 μg/m³, still above the global average (24 μg/m³), but still a remarkable achievement.
The contrast with India could not be more stark. While residents of Beijing spent 20% of their time with PM2.5 levels exceeding 10 times the WHO limit last year, it was 60% for residents of New Delhi, according to the latest World Air Quality Report by IQAir, a Swiss air quality technology company. “Despite government measures such as the National Clean Air Program (NCAP) to reduce pollution levels, problems persist due to inconsistent policy implementation and inadequate infrastructure,” it said.
China’s success was not only due to money, but also political will and strict accountability. India has the funds but lacks the structures to use them effectively. And 2025 message climate policy organizations Clean Air Fund and Climate Policy Initiative reported that India received $19.8 billion in air quality funding from 2019-2023, making it the largest recipient globally with a 16% share. However, this financial advantage did not translate into success.
Unused piles of cash
Even at home, the pattern repeats itself. Launched by the Department of the Environment in 2019 to reduce particulate matter levels in 130 cities by 20-30% by 2024 (later expanded to 40% by 2026) from 2017-18 levels, the success of NCAP has been elusive. With the March 2026 deadline looming, the latest figures from the Department of the Environment reveal that only 64 out of 130 cities (49%) saw a reduction in PM10 of 20% or more between FY18 and FY25, while only one in five achieved the programme’s ambitious 40% reduction target.
Plan received ₹19,711 crore in allocations from FY20, but a message according to the Foundation for Responsive Governance, only 52% of this was used by December 2024. Not only has the release of funds consistently delayed allocations, the amounts released have also declined every year. An analysis of 126 cities in 20 states revealed significant problems at the state level when it comes to releasing and using funds.
The funds came from two sources: the ministry, which funded 78 cities in 20 states, and 15th Finance Commission grants, which funded 48 cities in 15 states. In the first set, 11 of the 20 states used less than 80% of what they got. Of the 15 states in the second set, 10 did not spend 80% of the funds released, which were already conditional on how well they performed in improving air quality.
In addition, NCAP focuses on PM10 – primarily dust – rather than the more harmful PM2.5, which comes from vehicles, waste burning and industry, which experts say should be the priority.
The price we all pay
Governance failure has a devastating human cost. According to the EPIC Air Quality Life Index report, PM2.5 levels exceed WHO standards across India. Air pollution kits average life expectancy in India by 3.5 years back, meaning it has almost double the impact of child and maternal malnutrition and more than five times the impact of safe water and sanitation.
The burden is particularly severe in the most polluted areas of India. Delhiites lose 8.2 years of life to WHO standard PM2.5 (5 µg/m³), followed by Bihar (5.6 years), Haryana (5.3 years) and Uttar Pradesh (5 years). Even compared to India’s moderate standard of 40 µg/m³, Delhi residents still lose 4.7 years.
This threat has similar roots in both China and India—rapid industrialization, heavy dependence on coal, and massive construction activity. Unless those responsible for unspent allocations and missed targets are held accountable, India’s cities will continue to suffocate while the money meant to save them remains unused.
