世界银行-波斯尼亚和黑塞哥维那萨拉热窝州空气质量管理职能审查（英）-2024.12_122页_3mb

报告摘要

Functional Review Summary: Air Quality Management in Canton Sarajevo, Bosnia and Herzegovina

Core Content

This document presents a Functional Review (FR) of Air Quality Management (AQM) in Canton Sarajevo, Bosnia and Herzegovina (BiH), and the Federation of BiH (FBiH). The review is based on a cyclical model of AQM functions, aiming to assess the current regulatory and institutional framework and identify gaps and opportunities for improving air quality management. The findings are structured around six AQM functions and supported by detailed data, policy instruments, and case studies.

Main Objectives

To evaluate the effectiveness of AQM in Canton Sarajevo and BiH.
To identify key challenges in the policy and institutional framework.
To develop recommendations for strengthening AQM systems and achieving better air quality outcomes.

Key Findings by AQM Function

1. Setting standards and objectives

The FBiH and Canton Sarajevo have adopted air quality standards aligned with the EU’s CAFE Directive, with minor deviations.
The FBiH Environmental Strategy 2022-2032 outlines strategic goals for AQM, but cantons are expected to translate these into practical actions through Cantonal Environmental Action Plans (CEAP).
CEAPs are not consistently developed or implemented, and there is a lack of quality assurance and accountability mechanisms.
Only a few cantons have adopted CEAPs, and the FBiH Law on Environmental Protection lacks specific quality criteria for CEAPs.

2. Determining required emission reductions

The FBiH Environmental Strategy does not fully cover all relevant sectors and areas, and its emission reduction targets are based on estimated or missing data.
None of the ten cantons in FBiH have attempted to estimate the emission reductions needed to meet air pollution limit values.
Canton Sarajevo is developing an electronic, geo-referenced emission inventory, but there is no defined mechanism for regular updates.
Chimney sweep services were previously used for monitoring and reporting, but their absence has left a gap in residential emission tracking.

3. Developing control strategies

The FBiH Environmental Strategy includes measures to control residential emissions, such as regulating fuel quality, promoting energy-efficient stoves, and introducing a ban on non-certified heating appliances.
The Strategy to Limit the Use of Coal and Other Solid Fuels in Canton Sarajevo 2023-2033 provides detailed implementation arrangements, including the re-introduction of chimney sweep services.
Despite these efforts, key analytical elements such as emission reduction estimates and source apportionment are missing from the CEAPs.

4. Implementing control strategies

The CEAP 2021-2025 implementation is progressing, with most measures either completed or in progress.
However, the capacity of the cantonal government to implement AQM strategies is limited due to lack of staff and technical expertise.
The Strategy to Limit the Use of Coal and Other Solid Fuels requires new capacities that are not currently available, especially for subsidy programs, fuel regulation, and chimney sweep integration.

5. Monitoring implementation and enforcing compliance

The regulatory framework lacks enforcement mechanisms for government institutions, including cantons and municipalities.
Residential emission sources are largely unmonitored, and there are no AQM rules or responsibilities for homeowners.
Chimney sweep services could play a key role in monitoring and enforcing compliance, but no legal basis currently exists for this.
The draft Strategy aims to enable chimney sweeps to monitor, advise, and support enforcement of air quality standards.

6. Air quality monitoring and progress evaluation

Responsibilities for monitoring are defined at the entity and cantonal levels, but measurement capacity is limited.
Some pollutants, such as benzene, lead, and mercury, are not monitored at all due to lack of resources and technical capacity.
The data collected is not routinely used to evaluate the effectiveness of AQM strategies or to inform policy adjustments.

Main Challenges

Fragmented governance: Multiple legal frameworks and institutions exist, leading to regulatory gaps and lack of coordination.
Institutional weaknesses: There is limited capacity, inadequate staffing, and weak accountability mechanisms.
Data limitations: Emission inventory data is incomplete or based on estimates, which hinders accurate planning and evaluation.
Residential sector oversight: This is the largest source of PM2.5 emissions, yet it is underregulated and unmonitored.
Enforcement deficiencies: AQM measures are not enforced effectively, especially at the local level.

Recommendations

Strengthen institutional capacity for AQM at all levels, particularly in municipalities.
Develop comprehensive emission inventories with regular updates and data quality assurance.
Introduce binding legal requirements for emission reduction targets and residential emission regulation.
Re-introduce chimney sweep services to monitor and enforce compliance with air quality standards.
Enhance communication and public participation in AQM planning and implementation.
Improve coordination between federal, cantonal, and municipal institutions to ensure consistent AQM strategies.
Integrate AQM with climate change mitigation and energy transition efforts for synergistic benefits.
Implement a robust financing mechanism to support the development and execution of AQM strategies.

Conclusion

The functional review highlights that while Canton Sarajevo and FBiH have taken steps to improve air quality, the institutional and policy framework remains weak. The residential sector is a major contributor to air pollution, yet it is underregulated and unmonitored. To achieve sustainable improvements, a coordinated, data-driven, and legally binding AQM framework is essential. The re-introduction of chimney sweep services, enhanced data collection, and improved institutional capacity are key to addressing these challenges and aligning with EU standards.