How Can Punjab End Stubble Burning With Crop Residue Management?

REPORT

How can Punjab Increase the Adoption of Crop Residue Management Methods?

Survey Insights from 11 Districts of the State

02 July, 2024 | Clean Air

Kurinji Kemanth, Ramandeep Singh and Sneha Maria Ignatious

Suggested citation: Kemanth, Kurinji, Ramandeep Singh and Sneha Maria Ignatious. 2024. How can Punjab Increase the Adoption of Crop Residue Management Methods? Survey Insights from 11 Districts of the State. New Delhi: Council on Energy, Environment and Water.

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Overview

Punjab has set a target to manage the entire 100 per cent (~20 million metric tonnes) of its paddy residue in 2024. The state aims to achieve this by scaling up the in-situ and ex-situ crop residue management (CRM) practices in the state. Last year, the state witnessed over 35,000 Kharif farm fires. While this stands lower compared to the cases reported during the pre-covid era, it continues to plague India’s clean air and climate commitments. In order to ensure a smooth transition to the zero-burn CRM methods, it is essential to learn from the experiences, challenges, and good practices followed in various districts.

This study undertakes a state-level primary survey covering nearly 1500 farmers from 11 districts of Punjab. The assessment provides a multidimensional evaluation of the state of CRM in Punjab, highlighting field-level nuances associated with the accessibility, affordability and sustained adoption of CRM methods. Through this report, we aim to inform the union and Punjab governments of the barriers that still hinder in achieving the zero burn target in Punjab and recommend immediate measures toward paddy varietal diversification, market development for residue-based products, and optimal utilisation of the current stock of CRM machines.

Key Highlights

There is an increased demand for environmentally beneficial short-duration paddy varieties. Nearly 66 per cent of surveyed farmers grew short-duration Parmal (PR) varieties in 2022. But sowing of PUSA 44, a long-duration excess straw generating variety, still continues in high and medium burn districts such as Sangrur and Ludhiana.
Nearly 13 per cent of the surveyed farmers burned their straw completely during Kharif 2022. The practice of burning was more prevalent among medium and large farmers than small and marginal farmers, who feared receiving financial penalties and red entries in the revenue records. The consequences of non-compliance have become more stringent in the post-COVID years.
Super Seeders and Rotavators are the most commonly used straw management machines in Punjab. Over 58 per cent of the surveyed farmers used in-situ CRM machines to manage paddy straw in Kharif 2022. However, nearly half of them burned the loose straw before using the CRM machines. They believe practising partial burning will cut down the cost and control pests.
Over 63 per cent of in-situ CRM machine users rented them, a practice particularly prevalent among small and marginal farmers. Farmers who rented CRM machines primarily rented them from fellow farmers (82 per cent of rental CRM users) who were friends or relatives. Even those who accessed them through cooperative societies (12 per cent) or other sources such as custom hiring centres (CHCs) (three per cent) relied on personal connections to obtain the machinery.
Almost 33 per cent of the surveyed farmers opted for ex-situ methods, such as giving away the biomass residue to biomass aggregators, pastoral communities for fodder, etc. and 66 per cent of these farmers had formerly employed in-situ methods to manage their stubble. This indicates a clear preference for ex-situ over in-situ options, as costs associated with in-situ methods continue to burden farmers.
Farmers adopting ex-situ methods are not entirely satisfied. A meagre three per cent of ex-situ farmers received payments of about INR 1,200 (~USD 14) per acre when selling paddy stubble. Moreover, while nearly 28 per cent had to pay the buyer to clear the stubble, 69 per cent gave the stubble away free of cost.

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Kurinji Kemanth

Programme Associate

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“Punjab has come a long way in its battle against the decades-old stubble burning, and we now clearly see the bending of the farm fire curve. But the state also faces challenges like partial burning, underutilisation of machinery, the sub-optimal performance of custom hiring centres, and prevailing farmer behavioural and psychological biases. This study will serve as a cautionary report that documents the ground realities of Punjab’s stubble management journey packed with forward-looking solutions.”

Executive Summary

India’s food grain production has nearly tripled from 115.6 million tonnes (Mt) in 1960–61 to 329.6 Mt in 2022–23, with improved access to modern agricultural technologies driven by the Green Revolution (Deshpande et al. 2023). However, this heightened production has resulted in unsustainable crop residue management (CRM) strategies, such as stubble burning (Khundrakpam and Sarmah 2023). Of the 754 Mt of crop biomass produced annually, nearly 228 Mt remain as surplus after being utilised for processes such as roof thatching and cattle bedding; the majority of it is burnt (Sardar Swaran Singh National Institute of Bio- Energy n.d.). The practice of burning is prominent in northern states such as Punjab, where rice–wheat farming dominates. Factors contributing to this longstanding practice include the paddy–wheat cropping system, cultivation of long-duration paddy varieties, mechanised harvesting that leaves standing crop stubble in the field, labour scarcity and the lack of a viable market for crop residue (Kurinji and Prakash 2021).

Exposure to intense stubble burning increases the risk of acute respiratory problems threefold (Chakrabarti et al. 2019). Atmospheric modelling studies estimate that during the peak burning, stubble burning contributes up to 30 per cent of post-harvest PM 2.5 levels in the Delhi National Capital Region and surrounding areas (Khan et al. 2022; Kurinji, Khan, and Ganguly 2021). Recognising the health impacts of stubble burning, states such as Punjab have adopted several measures, including the promotion of short-duration paddy varieties to extend the stubble management window, subsidies for CRM machines, and financial incentives for industries to create a market for biomass (PIB 2023). The existing stock of Super Seeders (43,452 units) and Happy Seeders (13,560 units) – the two most prominent CRM machines – is sufficient to cover 100 per cent of the paddy fields in Punjab if deployed at maximum capacity. However, barriers to timely access to CRM machines and their inflated operational charges, coupled with misperceptions over reduced yields and pest attacks on wheat sown using in-situ CRM machines, have resulted in the lower adoption rate of zero-burn residue management (Kurinji and Prakash 2021; Prakash and Singh 2022).

Putting an end to crop residue burning could avert an economic loss¹ of USD 120 million annually in Punjab (Chakrabarti et al. 2019). This requires timely deployment and widespread adoption of CRM methods at a rapid scale. To obtain a granular view of the preferred paddy variety and CRM methods, along with farmers’ experiences with using them, we conducted a survey of 1,478 farmers from 11 districts of Punjab between March and May 2023. The selected districts – Amritsar, Bathinda, Fatehgarh Sahib, Fazilka, Firozpur, Gurdaspur, Jalandhar, Ludhiana, Patiala, Sangrur, and SBS Nagar – collectively accounted for about 58 per cent of Kharif farm fires reported in Punjab in 2022. The survey aimed to answer three key questions:

How can Punjab achieve paddy varietal diversification?
To what extent has the increase in CRM machines resulted in reduced open burning of farm waste, and what factors can explain the continued gaps?
Can ex-situ methods gain traction among Punjab’s farmers?

We employed a multi-stage stratified sampling method to mirror Punjab’s farming population. To complement the findings, we conducted interviews with staff from agricultural departments and Krishi Vigyan Kendras (KVKs) during the analysis phase. This survey provides a multidimensional perspective on the state of CRM in Punjab and highlights multiple nuances associated with the sustained adoption of CRM methods. In response to another smoggy winter in 2023, the National Green Tribunal directed Punjab to prepare a time-bound action plan and implement phase-wise preventive measures from 1 January to 1 September 2024. Through this study, we aim to inform the union and Punjab governments of the challenges farmers face on the ground, and recommend policy measures to control stubble burning in the current and upcoming seasons.

A. Key findings

How did cropping preferences change?

Promoted by the government, the demand for short-duration² paddy varieties is on the rise

The notable trend is the growth in acreage of short-duration varieties, increasing from 32.6 per cent in 2012 to 69.8 per cent in 2021 (Dhillon and Gill 2022). In 2022, nearly 66 per cent of surveyed farmers grew short-duration Parmal rice (PR) varieties. PR 126 is the most sought-after variety, grown by 57.7 per cent of PR growers), but short in supply.

High-burn districts continue to grow PUSA 44

Over 36 per cent of surveyed farmers grew PUSA 44³ in Kharif 2022 due to its high yield. High- and medium-burn districts, such as Sangrur and Ludhiana, have the highest proportion of PUSA growers. Though farmers’ preferences are driven by PUSA 44’s higher yield, current agricultural subsidies (for electricity and fertiliser) lead them to overlook the crop’s implications on agricultural input use (Joshi et al. 2018; Dhillon and Gill 2022). Considering the environmentally detrimental traits of PUSA 44, the government de-notified the variety in October 2023. However, it remains in circulation primarily through private seed dealers.

Have government efforts influenced the adoption of in-situ CRM methods in Punjab?

Despite adequate machinery, fires are not entirely addressed

Nearly 13 per cent of the surveyed farmers burned their straw completely during Kharif 2022 (Figure ES1). The practice of burning was more prevalent among medium and large farmers than small and marginal farmers, who feared receiving financial penalties and red entries in the revenue records; the consequences of non-compliance had become more stringent in the post-COVID years.
Of the 58 per cent of farmers who had adopted various in-situ technologies such as the Super Seeder, nearly half of them (30 per cent) practised partial burning before utilising the CRM machine for efficient operation and pest control (Figure ES2). Rectifying partial burning requires the use of a combine harvester equipped with a Super Straw Management System (SMS) capable of cutting and spreading straw uniformly across the field. Despite the government’s mandate for the compulsory use of the Super SMS, 64 per cent of the farmers refrained from using it due to its unavailability and high operational costs.

Figure ES1 Nearly half of the in-situ CRM machine users burned the loose straw before using the machine

Personal connections are valued over digital solutions while renting CRM machines

Over 63 per cent of in-situ CRM machine users rented them, a practice particularly prevalent among small and marginal farmers. Farmers who rented CRM machines primarily rented them from fellow farmers (82 per cent of rental CRM users) who were friends or relatives. Even those who accessed them through cooperative societies (12 per cent) or other sources such as custom hiring centres (CHCs) (3 per cent) relied on personal connections to obtain the machinery.
Just 1 per cent of farmers use the Punjab Remote Sensing Centre’s i-Khet app to access rental services for farm machinery. This is attributable to the fact that the current version of the i-Khet app collects extensive personal data, including Aadhar numbers and land ownership information, resulting in limited acceptance among farmers.

Figure ES2 Punjab primarily used the Super Seeder and Rotavator to manage paddy stubble in 2022

Misconceptions about pest attacks and wheat yields continue

Nearly 77 per cent of farmers following in-situ methods reported maintaining traditional sowing practices without making the recommended changes. Among them, over 20 per cent who experienced a decline in wheat yield and pest attacks attributed these issues to the use of in-situ CRM machines. Incorporating the prescribed changes in the application of irrigation, fertilisers, and rodent control measures while using in-situ machines can mitigate concerns surrounding the decline in wheat productivity and pest attacks. Further, only 7 per cent of farmers practising in-situ methods had received any training in using CRM machines.

Ex-situ CRM is gaining momentum

The adoption of ex-situ CRM, such as using stubble for fodder or energy production, is gaining popularity due to its potential for additional income. According to our survey, nearly 33 per cent of the surveyed farmers opted for ex-situ methods, and 66 per cent of these farmers had formerly employed in-situ methods to manage their stubble. This indicates a clear preference for ex-situ over in-situ options, as costs associated with in-situ methods continue to be a burden for farmers.
Ex-situ methods include providing residue to biomass aggregators/balers (60.4 per cent of ex-situ users), followed by supplying it to pastoral communities for fodder (28.8 per cent) and nearby industries.
However, farmers adopting ex-situ methods are not entirely satisfied. A meagre 3 per cent of ex-situ farmers received payments of about INR 1,200 per acre when selling the paddy stubble. Moreover, while nearly 28 per cent had to pay the buyer to clear the stubble, 69 per cent gave the stubble away free of cost.

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B. Strategies to improve the sustained adoption of CRM methods

In view of our findings, we recommend that all policy actors in Punjab and beyond focus on the following measures to reduce crop residue burning in the coming seasons

Paddy varietal diversification

Despite the ban on the cultivation of PUSA 44 by the Punjab government in October 2023, its seeds are still in circulation through private seed dealers. The state must enforce strict inspections of private seed dealers, distributors and producers to ensure a complete phase out of the variety.
The last two sowing seasons (2022 and 2023) involved a rapid depletion of seed stock for popular varieties such as PR 126 and PR 128. Many farmers had to resort to less popular varieties such as PR 121. Therefore, state authorities must encourage recognised institutions such as the Indian Council of Agricultural Research (ICAR), agricultural universities, government seed farms, the National Seed Corporation and state seed agencies to undertake large-scale seed breeding and retention of popular PR varieties to meet the state’s seed demand.
The initiative to procure summer moong at the minimum support price (MSP) if the farmers sowed PR 126 or basmati in the same field after harvesting moong in 2022 triggered massive demand for PR 126 seeds among farmers (Kamal 2022; Dey 2022). The state must continue such incentives to promote the adoption of short-duration varieties among PUSA- growing farmers.

In-situ CRM methods

The state has been introducing new CRM machines annually under its CRM subsidy scheme – Super Seeders in 2020, Smart Seeders in 2022, and Surface Seeders in 2023. While Super Seeders are commonly preferred, machines such as Happy Seeders, Smart Seeders, and Super SMS have limited acceptance among farmers. To avoid incorrect resource allocation, it is imperative to assess the efficacy of these machines and farmers’ preferences in terms of cost and yield through pilot programmes before incorporating them into the subsidy scheme. To this end, the state must codify an evaluation framework to include only machines with demonstrated success in the CRM subsidy scheme.
The Punjab government has ambitious targets to scale the rental model of CRM machines through its i-Khet app. But the app in its current version collects extensive personal data, including Aadhar numbers and land ownership information, making it less attractive among farmers. To resolve this, the Punjab Remote Sensing Centre (PRSC) must upgrade the app to incorporate responsive design and cater to farmers’ needs, preferences, and behaviours. Further, it must enable the automatic alert feature to send personalised notifications covering the health and cost benefits of CRM methods, improvement in soil health, and savings made on agricultural inputs.
Despite years of promotion and awareness drives, the survey highlights the prevalence of misapprehensions among farmers regarding pest attacks and productivity of wheat sown using CRM machines. This indicates a knowledge gap in integrating adequate changes to the cultivation practices that can mitigate these challenges. Therefore, the Department of Agriculture and Farmers Welfare (in collaboration with technical institutes such as the Punjab Agricultural University (PAU)) must create a practitioner’s guide, which lists the standard operating procedures and best practices while using CRM methods.
Training workshops by KVKs and agricultural departments are mostly scheduled towards the tail-end of the Kharif season (September) when the farmers are busy with harvesting and selling produce in local mandis. Instead, the state must organise year-round training workshops with well-curated content to cover not just zero-burn CRM methods but also the related changes needed in the cultivation practices of Rabi crops.

Ex-situ CRM methods

While the ex-situ CRM sector is slowly growing in Punjab, our survey indicates that only 2.9 per cent of farmers following ex-situ methods received payments of about INR 1,200 per acre while selling their stubble. The remaining farmers either gave the stubble free of cost or paid around INR 1,000 per acre to clear the stubble. As per the latest CRM guidelines released by the Ministry of Agriculture & Farmers Welfare (MoAFW) in July 2023, the cost of collected biomass is to be mutually agreed upon by the farmer group/aggregator and industry based on the market condition. Therefore, the Punjab Energy Development Agency (PEDA) must set a price floor for raw biomass and biomass-based products to ensure a minimum viable price for farmers to incentivise them not to undertake stubble burning.

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Endnotes

^1.Economic value of disability-adjusted lives saved per year by eliminating the risk factor.
^2.Farmers get a longer window for scientific paddy stubble management while growing short-duration varieties.
^3.PUSA 44 is infamous for its long crop duration, excess straw generation, and high agricultural input (fertiliser, pesticides, and water) consumption (J. M. Singh et al. 2022).

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FAQs

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What is crop residue management?

It refers to the process of managing the leftover crop residue from the field after harvesting crops such as paddy, wheat, etc., using techniques like incorporation, mulching, or baling.
Why do farmers burn crop residue?

Farmers resort to burning as they often have a short window of 15-20 days to clear the field and sow the crops for the next season. Additionally, the limited market for crop residue and access to crop residue management machines are reasons for farmers to burn their crop residue.
How can India manage crop residue?

India can effectively manage crop residue through crop diversification, including shifting to short-duration, lesser straw-generating paddy varieties such as the government-promoted PR126, PR128, PR121, etc. Optimal use of CRM machines such as Super Seeders etc., and scaling up ex-situ options such as use in industries and compressed biogass plants also result in effective utilisation of leftover crop residue.
How much does large scale crop residue burning affect the air quality?

Burning one tonne of crop residue releases 1460 kg of CO2, 6 kg of CO, 3 kg of particulate matter, and 2 kg of SO2. Scientific estimates suggest that crop residue burning contributes about 15 per cent to India’s PM2.5 emission load annually. The Decision Support System of Delhi estimates stubble burning in northwestern states contributes about 20-30 per cent to Delhi’s PM2.5 pollution load during the peak burning period.
What are the machines available for crop residue management?

The most commonly used machines for crop residue management are Super Seeders, Rotavators, Zero-Till-Drill and Happy Seeders for in-situ, while Balers, Rakers, etc. are used for ex-situ crop residue management.