2025-01-12-世界银行-北马其顿空气质量管理的制度和职能审查（英）_92页_759kb

报告摘要

Executive Summary

North Macedonia faces significant air pollution challenges, with high PM2.5 levels in major cities like Skopje and Tetovo, particularly during winter. This pollution leads to substantial health and economic costs, with an estimated 2,800 premature deaths and an annual economic loss of US$1.7 billion (15.9% of GDP in 2016). Air quality management (AQM) requires significant improvements.

The review examines six AQM functions—setting standards, determining emission reductions, designing strategies, implementation, monitoring compliance, and reporting—through four analytical dimensions: legal and regulatory framework, institutional configuration and capacity, vertical and horizontal coordination, and information, participation, quality assurance, and accountability.

Key findings:

Legal and Regulatory: Significant gaps exist in transposing EU directives (NEC, IED, MCPD). Institutional capacity is weak, with vacant positions and inadequate staffing in MoEPP and SEI.
Institutional Capacity: MoEPP lacks a dedicated air quality unit. Staff shortages, especially in technical roles, hinder AQM. Local governments struggle with funding and capacity.
Coordination: Weak horizontal and vertical coordination limits integration of AQM across sectors and levels of government.
Communication and Monitoring: Air quality data is available but not fully utilized. Accountability mechanisms are absent for plan implementation.

Recommendations prioritize institutions (B: Capacity), legal/regulation (A: Framework), coordination (C: Integration), and accountability (D: Assurance). Immediate actions include creating an Air Quality Department, addressing staffing gaps, and forming inter-sectoral coordination councils.

Overview

This executive summary outlines the Institutional and Functional Review of Air Quality Management (AQM) in North Macedonia. The Legal and Regulatory Framework identifies gaps in transposing key EU directives and weaknesses in institution coordination. The Institutional Setup highlights staffing shortages and insufficient capacity in critical agencies like the Ministry of Environment and Public Prosecution (MoEPP) and State Environmental Inspectorate (SEI). Coordination deficits limit effective cross-sectoral and inter-level actions. Communication and Monitoring shows progress in public data sharing but lacks robust accountability for enforcement and citizen participation.

Recommendations

Analytical Dimension	Key Recommendations
Legal and Regulatory	Transpose outstanding EU directives (NEC, IED, MCPD). Develop new National Air Quality Planning documents integrating EU and domestic requirements like the Rulebook on Solid Fuels Quality.
Institutional Capacity	Create dedicated Air Quality Departments in MoEPP and SEI. Implement recruitment drives and incentives to fill vacant positions. Establish air quality manager roles in affected municipalities.
Coordination	Establish a High-Level Inter-ministerial Coordination Council. Integrate SEI functions into MoEPP. Mandate Inter-municipal cooperation on inspections and AQP peer reviews. Ensure vertical coordination in the Inter-sectoral Council.
Communication and Monitoring	Formalize citizen engagement mechanisms. Institutionalize annual AQP peer reviews. Introduce enforceable sanctions for AQM plan implementation failures.

Priority: Begin with recommendations in Institutional Capacity (B Recommendations) followed by Legal and Regulatory (A Recommendations)
Medium-Term: Strengthen coordination (C Recommendations)
Long-Term: Complete regulatory alignment (A Recommendations) and integrate chimney sweeping into AQM framework

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For detailed regional analysis and action outlines across seven analytical dimensions (Legal, Institutional, Coordination, Communication, Capacity), see the main report chapters.

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