2024-04-29-世界银行-塞尔维亚城市垃圾管理现状分析（英）_51页_1mb

报告摘要

Summary of Municipal Waste Management in Serbia

Core Content

This report provides a comprehensive baseline analysis of the municipal waste management sector in Serbia, emphasizing its role in achieving Sustainable Cities objectives and aligning with EU environmental standards. It outlines the legislative, strategic, and institutional framework, current waste management practices, and financing mechanisms, while offering recommendations for improvement.

Main Points

1. Legislative and Institutional Framework

Serbia's waste management laws and policies are heavily influenced by EU requirements.
The National Waste Management Program (NWMP) for 2022–2031 is a key policy document that sets new goals for an integrated waste management system.
The Ministry of Environmental Protection (MEP) is the central authority overseeing waste-related legislation and implementation.
Local Self-Government (LSG) units are primarily responsible for managing waste, including the implementation of local waste management plans and setting service fees.
Public Utility Companies (PUCs), owned and managed by LSG units, handle collection, transport, treatment, and disposal services.
Regional Waste Management Plans (RWMPs) are required for regions with at least 250,000 residents, and 28 such regions are planned.
Extended Producer Responsibility (EPR) applies to packaging and packaging waste, with seven operators managing EPR schemes in Serbia.

2. Current Waste Management System

In 2020, 2.95 million tons of municipal waste were generated, with 2.83 million tons collected and either landfilled or recycled.
Collection coverage was estimated at 86.4%, but significant gaps remain, especially in rural areas.
Separate collection of recyclables and biowaste is limited, with only a few LSG units implementing systems like the two-bin approach.
Biowaste management is underdeveloped, and biodegradable waste continues to be largely landfilled.
Landfills are the primary destination for municipal waste, with 135 non-compliant municipal landfills and 2,656 illegal dumps identified.
Approximately 20% of generated municipal waste ends up in illegal dumps.

3. Waste Treatment and Recycling

Sorting facilities for recyclables are limited, and the recycling rate for packaging waste is low.
Refuse-derived fuel (RDF) and waste-to-energy (WtE) technologies are being explored, especially in larger cities.
Biological treatment facilities are being developed, but their full implementation is expected by 2039.
The NWMP outlines three phases for the development of regional waste management systems, focusing on infrastructure, treatment, and closure of non-compliant landfills.

4. Financing and Investment Needs

The NWMP estimates total investment costs at €1,051 million.
Private sector participation is expected to cover around 40% of the required investments.
LSG units and their associated PUCs are resource-constrained, with low tariffs that do not support full cost recovery.
International donors, including the European Investment Bank (EIB), Swiss State Secretariat for Economic Affairs (SECO), and World Bank, provide support through budgetary and project financing.
Economic instruments such as product taxes, landfill taxes, and deposit refund schemes (DRS) are under consideration to improve waste management.

5. Key Challenges

Incomplete or inaccurate data on waste generation, treatment, and disposal hampers planning and monitoring.
Low collection coverage and weak separate collection systems limit recycling and waste prevention efforts.
Non-compliant landfills and illegal dumps remain a significant environmental issue.
Insufficient coordination between LSG units, PUCs, and PROs in implementing waste management systems.
Need for stronger institutional capacity and better public awareness to support the transition to sustainable waste management.

Recommendations

1. Data and Reporting

Improve data collection and reporting to ensure accurate and complete information on waste generation, treatment, and disposal.
Strengthen oversight and monitoring mechanisms to track progress towards waste management goals.

2. Targets and Policies

Regularly review and update waste management strategies and policies to align with evolving EU standards.
Devolve national targets to regional and local levels with clear guidance to enhance implementation.

3. Inter-Municipal Cooperation

Develop clear implementation mechanisms to support inter-municipal cooperation in the procurement of waste management services and the establishment of common infrastructure.
The MEP should play an active role in coordinating the development of new waste treatment infrastructure.

4. Full Cost-Recovery and Private Sector Participation

Implement tariff policies based on the "polluter pays" principle to ensure full cost recovery.
Encourage private sector involvement in technically complex projects requiring significant investment and operational budgets.

5. Collection Systems and EPR

Expand collection coverage and promote separate collection of recyclables and biowaste.
Strengthen EPR schemes by clarifying responsibilities between LSG units, PUCs, and PROs.
Establish a national coordination mechanism involving state institutions, local authorities, PUCs, PROs, and the recycling industry.

6. Stakeholder Engagement and Capacity Building

Develop a national stakeholder engagement and communication strategy to increase awareness and promote new production and consumption models.
Promote peer learning and capacity building at the local level based on existing best practices in Serbia.

Key Information

Total municipal waste generated in 2020: 2.95 million tons
Total collected and treated: 2.83 million tons
Collection coverage: 86.4%
Separately collected packaging waste: 482,000 tons
Illegal dumps: 2,656
Non-compliant landfills: 135
Total investment needs (NWMP): €1,051 million
Expected private sector investment: ~40% of total investment
EPR operators: 7
Rate of exchange: EUR 1 = RSD 117.324

Conclusion

Serbia is making progress in aligning its waste management system with EU standards, but significant challenges remain in terms of infrastructure, data collection, and implementation. The NWMP outlines a long-term vision for sustainable waste management, but achieving its goals will require stronger institutional coordination, improved data systems, and increased private sector involvement. The transition to a circular economy and the development of modern waste management systems are critical for Serbia's long-term environmental and economic sustainability.

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