The consultation workshop, organized by Clean Energy Nepal (CEN), Sajha Yatayat, Clean Air Network Nepal (CANN) and with support of EPIC (Energy Policy Institute of Chicago) was held to collect feedback from experts, stakeholders, CSOs, youths and the general public to help improve the draft standards proposed by MOFE. Shreya KC, representing CEN, welcomed the participants and highlighted the damaging impact of air pollution on human health, including shortened lifespans, increased death rates, and various health risks, as well as the negative effect on the economy.
Key Note Speaker: Depak Gyawali, DoE
Depak Gyawali, Under Secretary of the Department of Environment (DoE), emphasized the critical importance of standards and outlined the comprehensive process of developing these standards, beginning with problem identification and extending through to draft formulation. He highlighted recent updates to the national standards, notably the inclusion of new limits for air quality indicators, specifying an annual average of PM2.5 at 25 and an annual average of PM10 at 70. Additionally, Gyawali introduced the test methods adopted for these standards, noting the incorporation of manual and semi-automatic methods for measuring both daily and annual average particulate matter levels. He also detailed other standards drafted by DoE.These enhancements are aimed at improving the accuracy and reliability of air quality monitoring.
Panel Discussion
Moderator: Bhushan Tuladhar
Speakers:
Mr. Panthi, when asked to comment on the national ambient air quality, stated that there is still much unknown about air pollution. He highlighted air pollution as a major risk factor, citing global data from 2019 which reported 7 million deaths in a single year due to air pollution. According to the State of Global Air report published in 2020, air pollution ranked as the fourth leading risk factor for death worldwide.
He further presented updated data from 2021, based on the World Health Organization’s death toll database published in 2024, showing that the number of deaths attributed to air pollution increased to 8 million. Consequently, air pollution rose from the fourth to the second leading cause of death globally.
Discussing air pollution in more detail, Mr. Panthi noted that countries including Nepal, India, Pakistan, and Bangladesh consistently show the worst air quality results. He emphasized that nearly 30% of deaths caused by brain hemorrhage and approximately 50% of deaths from chronic obstructive pulmonary disease (COPD) are linked to air pollution. Additionally, he referenced research by Indian doctors indicating that exposure to peak air pollution levels in India is equivalent to a student smoking 20 cigarettes in terms of health impact.
He also pointed out that air pollution contributes to 30% of strokes and 20% of diabetes cases. Importantly, Mr. Panthi highlighted that air pollution poses a greater threat to people with diabetes than sugar intake does, yet this significant risk is often overlooked even by the medical community.
Mr. Panthi shared recent data from Nepal, that out of 100,000 deaths, 222 are due to air pollution. The country aims to reduce this number to 77 by 2030 and further to 60 by 2035. He emphasized that if the established standards are not taken seriously, the World Health Organization (WHO) and health departments cannot be held solely responsible for managing the issue. An implementation plan is currently underway, considering sectors such as air pollution, energy, agriculture, and transportation. He stressed that without a coordinated multi-sectoral action plan, Nepal will not be able to meet the targets set for 2030 and 2035.
Speaking about the World Health Organization (WHO) guidelines, Mr. Panthi noted that the WHO’s most recent 2021 guidelines recommend an annual average of 5µg/m³ for PM2.5 and 15µg/m³ for PM10. In contrast, Nepal’s proposed national air quality standards set the limits significantly higher, with 25µg/m³ for PM2.5 and 70µg/m³ for PM10. He compared these WHO guidelines with Nepal’s National Ambient Air Quality Standards for 2025, covering both annual and 24-hour, and criticized the government for not setting an interim target that allows the standards to be two to three times more lenient than those recommended by the WHO. He questioned the rationale behind adopting such higher standards instead of aligning more closely with the WHO’s stricter guidelines.
He offered several suggestions to address air pollution effectively. First, he emphasized the need for a strong, legalized framework to support air quality management. Second, he recommended setting national air quality standards that are aligned with the current WHO guidelines, although he acknowledged that implementing this immediately may not be feasible. Additionally, he stressed that there should be strict regulations prohibiting municipalities from burning waste, with heavy penalties imposed on those who violate the rules. He concluded that implementing and enforcing such stringent measures is essential to reduce the number of deaths caused by air pollution.
Prof. Dr. Rejina Maskey, discussed the environmental and health aspects related to the proposed air quality standards. She began by highlighting key strengths, including the validation of reference-grade monitoring, which will help address previous data gaps. Another positive aspect she noted was the inclusion of annual averages for PM2.5 and PM10 in the standards. She emphasized the current air quality challenges, stating that fresh air is available for less than two months each year. She cautioned against setting standards that cannot be realistically met, citing past difficulties in achieving the previous annual standard of 40 µg/m³. Instead, she recommended strengthening the standards while considering the overall infrastructure. Dr. Maskey stressed the importance of analyzing when targets can be achieved and identifying which sectors require focused efforts to reach those targets. She also pointed out that a recent study showed that 14% of air pollution in Kathmandu originates from outside the city,with the remaining pollution generated locally with road traffic as the major emission source. In the Terai region, this transboundary air pollution is significantly worse, accounting for 60% of the total pollution.
Furthermore, she pointed out that air pollution levels remained above 35 µg/m³ even during the COVID-19 pandemic and currently range between 50 and 56 µg/m³, showing that meeting the 40 µg/m³ standard is still a challenge. She proposed establishing an initial standard of 35 µg/m³, followed by a long-term target of 25 µg/m³, with a plan to review and revise the standards every 10 years. Implementing interim targets was emphasized as a more effective approach to achieving the overall goals. She also noted the absence of clear information on the revision process of standards.
Speaking about ozone as a secondary pollutant, she noted that Nepal’s ozone levels are twice as high as those in Switzerland and Finland. She explained that instead of measuring ozone directly, the current approach involves measuring hydrocarbons that contribute to ozone formation. She pointed out that while most pollutants are well described in the standards, ozone lacks sufficient information and suggested that details about ozone should be included. She also emphasized that Nepal is not yet equipped to measure ozone levels accurately. Additionally, she questioned the requirement of using 75% data for analysis and recommended that for 24-hour data analysis, more than 80% data should be considered to ensure reliability. She stressed the importance of taking 24 hour data analysis more seriously in air quality monitoring, because it affects the weekly and monthly average.
Mr. Suyesh Prajapati, discussed the industry emission standards, highlighting significant revisions and new proposals across various sectors. He noted that revised standards exist for boilers, kilns, and cement factories, while completely new standards have been proposed for furnaces for the first time. Prajapati emphasized the challenge of weak baseline data, pointing out that only the brick industry has more comprehensive and accurate emission measurements, whereas data from other industries remain limited.
He described the newly proposed emission standards as progressive yet challenging for industries to meet. Specifically, for the brick industry, the maximum allowable particulate matter emissions in stack emissions are proposed to be reduced from 350 mg/Nm³ to 250 mg/Nm³, representing around a 30% reduction. Out of the annual production of approximately 5 Arab bricks, about 66% originate from fixed chimney natural draft kilns, which currently have emission levels near 500 mg/Nm³. The new standard of 250 mg/Nm³ means nearly a 50% reduction, which is progressive but challenging for this sector.
Referring to a 2017 Department of Environment (DoE) study of 30 brick industries, Prajapati mentioned that the average emission from 28 fixed chimney forced draft kilns was 326 mg/Nm³. Given that fixed chimney natural draft kilns typically emit around 420 mg/Nm³ these kilns face a significant challenge in reducing emissions to the proposed 250 mg/Nm³.
For boilers, he explained that the proposed standards reflect a substantial 60% reduction, from the current 1,200 mg/Nm³ to 500 mg/Nm³ for boilers operating on non-biomass fuels, and 600 mg/Nm³ for biomass-fueled boilers. These changes are deemed valid and logical given the need for stricter emission controls.
Prajapati stressed that while these proposals are challenging for industries to comply with, the message is clear: industries must either upgrade their technologies or adopt pollution control measures such as filters. He praised the introduction of emission standards for furnaces, but suggested that a single standard may not fit all furnace types and recommended developing differentiated standards tailored to specific furnace industries. Regarding the cement industry, he noted that all standards have been carefully reviewed and measured. He pointed out that the proposed standards appear to be compatible with those of South Asian countries, especially India. He concluded by affirming that the proposed emission standards are progressive and represent a positive step forward for industrial pollution control, while being a challenge for the industries.
Ms. Rupa Basnet, speaking from a legal standpoint, emphasized the critical importance of standards in the context of legal compliance and environmental governance. She highlighted that while standards play a significant role, it is essential to distinguish between standards and laws. Referring to Nepal’s legal framework, she mentioned Section 2(ग) of the Explanation of Laws of Nepal (Ein), which clarifies that standards are not laws and therefore do not hold the same legal authority.
However, Basnet pointed out that the Environmental Protection Act (EPA), Section 21, mandates the appointment of environmental inspectors at the provincial level. The role of these inspectors is crucial as they monitor compliance across various sectors, ensuring that environmental standards—including those impacting public health—are upheld within their jurisdictions. This strong linkage between standards and enforcement underscores the necessity of environmental inspectors.
She also noted that approximately 19 cases related to air pollution have been adjudicated by the Supreme Court, with binding decisions rendered. Despite these judicial decisions, there appears to be a disconnect between court rulings and their incorporation into actual standards by concerned governmental departments. Basnet urged that judicial verdicts should be systematically integrated into the formulation and revision of standards to enhance their effectiveness in mitigating environmental harms.
Furthermore, Basnet referenced the advisory opinion of the International Court of Justice (ICJ), which posed two key questions regarding the legal consequences when individuals or institutions pollute within a country’s territory. The ICJ’s stance implies that the state bears responsibility for such pollution. She argued that Nepal’s proposed environmental standards are aligned with this ICJ advisory opinion.
Basnet stressed that Nepal faces limited choices: compliance with established environmental standards or bearing the cost of pollution. This reality reinforces the need for serious commitment to standards and their enforcement.
She strongly advocated for two main issues:
Basnet also criticized the existing gap between central and provincial governments. While the central government continues to develop standards, provincial governments often fail to comply or implement these standards effectively, creating enforcement challenges.
In agreement with Suyesh Prajapati, she supported the idea of categorizing industrial standards based on industry size: cottage, medium, and mega to provide more tailored regulatory oversight.
Lastly, Basnet referenced Nepal's commitment to decarbonization by 2045, as highlighted in the Nationally Determined Contributions (NDC). She expressed concern over the current rate of pollution and emphasized that the country is far from achieving its decarbonization targets. She concluded by calling for greater seriousness in both the formulation and enforcement of environmental standards. She also suggested setting interim targets for standards aligned with the targets in the NDC.
Mr. Bhola Bhattarai, emphasized the critical role of civil society in shaping and enforcing policies, particularly in the context of air pollution. He stressed that air pollution infringes on fundamental rights, including the right to clean air, a healthy environment, and most importantly, the right to life for children and the general public.
Highlighting the intersection of social, economic, and environmental aspects, Bhattarai cautioned against overlooking justice in these discussions. He noted that justice considerations are often neglected when addressing these dimensions, and the proposed air quality standards currently fail to adequately incorporate justice factors.
Drawing on the insights of Rupa Basnet, Bhattarai pointed out that air quality standards are not legally binding laws in the country, which undermines their ability to deliver justice and enforce compliance effectively. He supported his argument with alarming data illustrating the severe impact of air pollution, including significant death tolls, reduced life expectancy, and economic losses such as GDP decline. Air pollution is identified as the second leading cause of mortality, making it a critical public health and socio-economic challenge.
Bhattarai also highlighted institutional challenges, such as the shortage of manpower and limited capacity within the environmental department responsible for the implementation and enforcement of air quality standards. Moreover, he remarked that environmental inspectors have not yet been mandated at the provincial level, further weakening enforcement mechanisms.
To address these issues, Bhattarai proposed setting interim targets for air quality improvement, suggesting this approach would be more efficient and practical. He further recommended that the responsible departments simplify air quality standards, making them more accessible and understandable to the general public, particularly non-technical audiences. This, he argued, would enhance awareness, compliance, and effectiveness of the standards.
In summary, Bhattarai underscored the urgent need for legally binding, justice-focused, and practically enforceable air pollution standards, backed by adequate institutional capacity and public engagement, to protect public health and the environment.
QUESTIONS FROM THE AUDIENCE
Tap Bahadur Tamang raised important questions about indoor air pollution standards and the presence of biological air pollutants. He highlighted concerns regarding the health and protection of workers in environments like brick factories, cement plants, and shrimp industries, where indoor air pollution is particularly severe. He also inquired about the availability of personal protective equipment (PPE) for these laborers to safeguard their health.
Bharat Poudel questioned whether the government has sufficient manpower and capacity to effectively implement and enforce the proposed air quality standards over the next five to ten years.
Bikram Thapa suggested that relying solely on 24 hour and annual average data may not provide a complete picture and recommended including seasonal average data to better understand air quality fluctuations. He also inquired about the monitoring and evaluation mechanisms, infrastructure compliance plans, and the role of the general public in the enforcement process. He stressed the importance of involving the public actively and asked who is responsible for public engagement. He emphasized that time-bound goals should be maintained for achieving targets and proposed focusing on identifying pollution sources to develop source-based standards.
Kishor Amatya asked about the specific parameters established for generators.
Lastly, Mr. Chakra raised concerns about the health and lifestyle impacts on communities living near brick kilns, emphasizing the need for attention to their well-being and living conditions.
ADDRESSING THE QUESTIONS
Mr. Depak Gyawali from the Department of Environment (DoE) shared important insights during the discussion. He highlighted that indoor air pollution is a serious concern and the government is committed to developing standards specifically for indoor air quality. Regarding worker health and safety within industries, he clarified that this falls under the Labour Ministry's responsibility, not the Environmental Protection Act (EPA).
He emphasized the importance of involving civil society groups and labor representatives when creating policies and standards, as their input makes the outcomes more effective. Their voices should be prioritized during policy formulation.
On the topic of implementation and enforcement, Gyawali stressed the need for clear organizational management, adequate human resources, laboratory facilities, infrastructure, and equipment. While the current human resources may not be sufficient, this should not stop progress. The government is taking these factors seriously and working on proper management to improve the situation.
He also mentioned that seasonal average air quality data is already being used in assessments. Gyawali pointed out that the general public plays a key role in reducing air pollution, and the government is actively running awareness programs, which need to be expanded in the future.
Lastly, he noted that generators have their own set of standards that are separate from other air quality rules.
Mr. Bhola Bhattarai, emphasized the need to establish social and environmental safety standards specifically aimed at protecting workers in high-pollution industries such as brick, cement, and shrugs. He suggested that civil society organizations, media, and educational institutions could effectively represent and be accountable for the general public’s interests in policymaking and standard-setting.
Prof. Dr. Rejina Maskey, stressed that standards should be time-bound and include intervals for regular revision. She also highlighted the importance of thoroughly analyzing the feasibility of meeting these standards before they are set.
Dr. Sudhan Raj Panthi, advocated for legally binding standards in Nepal. He proposed strict inspections of industries with heavy penalties for non-compliance. Additionally, he recommended changing the standards for carbon monoxide (CO) to a 24 hour average instead of 8 hours, increasing the averaging time for sulfur dioxide (SO2), and adjusting the ratio of PM2.5 to PM10 in the standards.
Mr. Suyesh Prajapati pointed out enforcement weaknesses, noting that industrial monitoring is limited and that although EPA mandates twice-yearly checks for industries, this is not adequately practiced due to lack of infrastructure. He also emphasized the need for public awareness to drive demand for environmentally friendly bricks and products, which could encourage industries to adopt cleaner technologies.
Ms. Rupa Basnet called for explicit inclusion of punishments and penalties within standard documents. She urged the Department of Environment to strengthen the role of environmental inspectors to oversee compliance in private and corporate sectors. She also underlined the importance of educating children about pollution from an early age, both at school and home.
For closing remarks, Ms. Sumitra Mahat from CANN thanked all participants, experts, advocates, researchers present and reiterated that air pollution is a timely and critical issue. She emphasized the necessity for legally binding standards and highlighted CANN’s role as a platform facilitating collaboration for air pollution control in Nepal.