Montenegro is set to implement a new strategic document aimed at managing air quality over the next few years. The draft strategy for the period from 2026 to 2029, released by the Ministry of Ecology, Sustainable Development and Northern Development, is currently open for public consultation. This strategy outlines measures to reduce pollutant emissions, align with European standards, and enhance the monitoring system.
Analysis within the document reveals that a significant portion of air pollution in Montenegro originates from household heating. According to the strategy’s findings, households contribute approximately 84 percent of PM2.5 emissions and 79 percent of PM10 emissions. Notably, the share of benzo(a)pyrene emissions from households is nearly complete, at around 99 percent. Furthermore, it identifies household heating, energy production, and road traffic as the primary sources of suspended particulate emissions in the country.
The strategy highlights a disparity in pollution distribution across the nation. While the southern region generally maintains particulate matter concentrations below European limits, the northern region frequently experiences prolonged pollution episodes during winter months. In some years, the number of days exceeding permissible PM10 levels has surpassed 100 annually.
Air Quality Challenges in Northern Montenegro
The document points out that air quality remains a pressing issue, particularly in northern cities like Pljevlja and Bijelo Polje, where the annual exceedances of PM10 concentrations often exceed the European standard of 35 days. The strategy proposes various measures, including reducing emissions from households and transportation, modernizing the energy sector, and developing district heating systems in select cities. One notable project is the district heating system in Pljevlja, with an estimated investment value of several million euros.
Despite these plans, the strategy lacks a consolidated assessment of the total costs associated with the proposed measures and fails to specify the funding allocated in the national budget for implementation in 2026. Additionally, the strategy aims to promote changes in household heating methods by encouraging energy efficiency and transitioning to cleaner energy sources. The household heating sector is recognized as crucial for reducing suspended particulate emissions in the coming years.
This strategy aligns with Montenegro’s obligations under Chapter 27—environment and climate change—considered one of the most challenging areas in the European Union accession process. The EU has adopted stricter air quality standards that will further lower permissible levels of suspended particulates and other pollutants. The environmental chapter in negotiations with the EU is regarded as one of the most financially and administratively demanding, requiring substantial reforms in energy, transportation, and natural resource management.
Government Accountability and Future Steps
The new strategy outlines that Montenegro must comply with upcoming European air quality standards, which will necessitate even stricter emissions reduction targets in the coming years. In this context, questions have been directed to the Ministry regarding the financial framework and accountability for executing the Air Quality Management Strategy for 2026-2029, as well as the anticipated new nature protection law.
The publication Pobjeda has inquired about key financial figures, including the estimated total cost of implementing the strategy and the budgetary allocations for 2026. They also requested information on the three priority measures for the first year, the implementation bodies, and the necessary legislative acts for the application of the nature protection law.
The strategy emphasizes that reducing pollution cannot be achieved solely through technical measures but requires changes in resource management and local environmental policy. Concurrently, the government has announced a new nature protection law aimed at establishing a clearer management system for protected areas and aligning national legislation with EU directives.
Azra Vukovic, a representative from the NGO Green Home, expressed that the success of the new law will primarily depend on its implementation. She noted that while Montenegro has produced many commendable laws, their full implementation has often been lacking, leading to negative environmental consequences.
Vukovic pointed out that the new law is part of the commitments under Chapter 27, emphasizing that the EU’s environmental protection and climate change directives are becoming increasingly stringent, necessitating amendments to existing laws.
She also highlighted the lack of civil sector involvement in the law-making process, stating that although she was part of the working group, she lost insight into the development stages of the law after its dissolution.
Concerns regarding the funding for managing protected areas remain, especially as the new law shifts significant financial responsibilities to local governments. The establishment of management for protected areas has faced challenges, with some areas lacking appointed managers even years after designation.
The strategy underscores long-standing air quality issues in Montenegro, particularly during winter months. Vukovic noted that the previous air quality management strategy expired in 2020, and the new plan has been in preparation for nearly five years, during which air quality problems have persisted, especially in northern regions.
The air quality management strategy not only addresses emissions and industrial sectors but also considers the health impacts on the population. The document cites international studies linking air pollution to increased risks of respiratory and cardiovascular diseases, while acknowledging that quantifying actual health effects in statistics can be challenging.
Experts from the Institute of Public Health of Montenegro warn that evidence increasingly shows adverse health effects from exposure to particulate matter even at concentrations below current EU recommended limits. They emphasize that health information systems do not allow for precise tracking of illnesses directly attributed to air pollution.
Certain population groups, including children under five, the elderly, individuals with chronic respiratory diseases, heart conditions, pregnant women, and those with weakened immune systems, are particularly vulnerable to air pollution.
Monitoring air quality and collecting emissions data in Montenegro falls under the responsibility of the Environmental Protection Agency. The strategy relies heavily on monitoring data collected by the Agency, as well as emissions inventories and nature condition databases. The Agency maintains that monitoring and records are continuously updated and publicly available.
Currently, Montenegro operates nine permanent automatic air quality monitoring stations and one mobile station, with locations in various cities, including Pljevlja and Podgorica.
The strategy projects that emissions of suspended particulates should decrease by 2029, leading to fewer exceedance days in the most affected areas. However, achieving these goals will hinge primarily on implementing measures in household heating, transportation, and energy sectors.
Ultimately, the Air Quality Management Strategy for 2026-2029 establishes a framework that intertwines emissions data, health impact assessments, and planned pollution reduction measures. The effectiveness of this strategy remains to be seen as Montenegro confronts persistent air pollution challenges each winter.
