Mongolian Journal of Biological Sciences 2003 Vol. 1(2): 49-54

Protected Area Status in

Jamsranjav Jargal

Steppe Forward Programme, Faculty of Biology, National University of Mongolia, P.O. Box 537, 210646A, Mongolia e-mail: [email protected]

Policy and Legislation The Mongolian Law on Environmental Protection of March 1995 proclaims that ‘land and Under the present constitution that was revised its soil, underground resources and their mineral in 1992 all land, forests, water, fauna, and flora wealth, water, plants, animals, and air will be and other natural resources in Mongolia belong protected from any adverse effects to prevent exclusively to the people and are under State ecological imbalance’. The purpose of this law is protection. Apart from some limited areas given to to regulate the interrelations between the state, the citizens of Mongolia for private ownership, the citizens, economic entities and organizations in land as well as the subsoil with its mineral wealth, order to guarantee the human right to live in a forests, water resources, and game, is State owned. healthy and safe environment, with ecologically The tradition for protecting nature goes back to balanced social and economic development, the 13th century when many forested hills were protection of the environment for present and future protected as holy areas. , grandson of generations and proper use of natural resources. Ghengis Khan (Chinggis Khaan), extended Environmental impact assessment is incorporated protection to forests and also decreed a law in the into Article 9 of the Mongolian Law on 13th century forbidding hunting of any game during Environmental Protection in which it is stipulated the summer months under penalty of death. The that ‘environmental impact assessment shall be introduction of Buddhism from Tibet in the 16th conducted for the development of proposals and and 17th centuries provided further protection for programs, as well as for establishing contracts for animals and for the establishment of the first the operation, initiation, and expansion of protected areas in the late 1700s (Nowak, 1970). production or services which may have adverse The Great Khural (Parliament) passed the environmental impacts’. It clarifies the state Decree on the Rational Utilization of Natural organizations plenary rights on environmental Resources and the Protection of the Natural protection as well as rights and obligation of Environment on 30 June 1972. This law requires citizens on environment protection. every person to act for the good of nature and for The National Program on Special Protected the protection of natural resources (Borisov et al., Areas was enacted in April 1998 by the Great 1985; Kosmider, 1985). Khural (Parliament) Act Number 29. This program In the early 1970s a number of laws relating to defines the main policy of Mongolian Government environmental protection were introduced: a and implementation strategy related to the Special second Law on Land Use in 1971 (revised Protected Area for the next 20 years. Mongolian November 1994); a Law on Hunting 6 January, government plans to extend the network of 1972 (originally drawn up in 1934, revised in 1944, protected areas in the future by gradually placing issued in 1962) (revised in May 1995); a Law on under state special protection areas of ecological Water and a Law on Forests 1974 (revised in 1995). importance and which support threatened wildlife The Mongolian Law on Special Protected Areas and . The plan aims to increase the (adopted 1994), the Law on Special Protected Area territory of protected areas up to 20 % of the total Buffer Zones (1997), the Mongolian Law on area of Mongolian territory by 2001-2005, 25% Environmental Protection (1995), the Mongolian by 2006-2010, and 30% by 2011-2030. The Law on Natural Plants (1995), the Law on implementation strategy describes guidelines for Protection from Toxic Chemicals (1995), the protected areas designation and expansion of the Mongolian Law on Water and Mineral Water Use protected areas network, legislation enforcement Fees (1995), the Law on Fees for Harvest of Forest and the organizational structure of protected area Timber and Fuel Wood (1995), the Mongolian Law administration. It is also provides guidance on on Natural Plant Use Fees (1995). research and monitoring in protected areas, public 49 http://dx.doi.org/10.22353/mjbs.2003.01.18 J. Jargal awareness, local participation in protected area ecological importance. They are designated buffer zones, funding and international co- for tourism development. operation. It describes expected outputs for the next 3. Nature Reserves: areas designated to create 20 years. conditions for protecting, preserving and The Law on the Special Protected Areas Buffer restoring certain natural features as well as Zones of 23 October 1997 covers the establishment any natural resources and wealth. of buffer zones for Special Protected Areas and 4. Monuments: areas of natural unique regulates activities within those buffer zones. formations designated to protect historical According to Article 3, Special Protected Area and cultural monuments. Also aimag Buffer Zone is an area established for the purpose (province), capital city, soum or duureg of reducing, eliminating and preventing adverse (district) may take certain areas within the impacts to Strictly Protected Areas or National territory under local special protection. Conservation Parks through the appropriate use of natural resources by local citizens. The buffer zone Chapter 6, Article 29, 28, 26, 25 of the law is also designed to broaden local citizen provide for the establishment of the protected areas. participation in environmental protection and to Governorf of aimag (province), capital city, soum ensure proper living standards. The law also covers (local district) and duureg (district within capital the criteria for establishing a buffer zone, boundary city) have plenary right to prepare proposals for determination, buffer zone council, funding, buffer taking certain parts of their territory under state or zone management plan and the implementation of local protection and submit it to the appropriate the law. organization. The citizens representatives khural State protected areas are covered under the for aimag, capital city, soum and duureg decide on jurisdiction of Protected Area Division, Ministry taking certain parts of their territory under local of Nature and Environment and funded by State protection and set out its boundary and protection central budget and other resource of funding. rules. The state government establishes boundaries The Law on Protected Area was adopted in for Nature Reserves and Monuments. At the request November 15th 1994. The purpose of the Law on of the government, the state Ikh Khural (parliament) Protected Area is to regulate the use and decide on taking territory under state special procurement of land for special protection and the protection and include the territory under one of preservation and conservation of its original the State Special Protected Area classifications as condition. This is to preserve the specific traits of well as approving or changing Strictly Protected the natural zones, unique formation, rare and Area and National Conservation Park boundaries. endangered plants and animals, historic and cultural monuments and natural beauty, as well as research. International activities The Legislation on Special Protected Areas of Mongolia shall consist of the constitution of On 2 February 1990, Mongolia became a party Mongolia, the Mongolian Law on Land, the present to the Convention concerning the Protection of the Law and their legislative acts issued in conformity World Cultural and Natural Heritage (World with them. According to the Mongolian Law on Heritage Convention), accepting the terms of the Special Protected Areas, areas under protection are Convention. Since then Basin, the ancient layer of Gobi Gurvansaikhan, part “A” of classified under the following categories: the Great Gobi Strictly Protected Area, Khovsgol lake together with the area supporting reindeer 1. Strictly Protected Areas: areas that can people of shaman religion, and Otgontenger, represent unique features and characteristics Bogdkhaan, mountains are being of natural zones, have preserved their accepted as word heritage sites. In 1991 the Great original conditions, and are of special Gobi Strictly Protected Area and in 1997 the scientific and cultural significance. Bogdkhan Uul Strictly Protected Area were 2. National Conservation Parks: areas where included in the UNESCO MAB site. Also some the original natural condition is relatively areas were recorded on the Ramsar Convention List preserved and which have historical, of Wetlands of International Importance. These cultural, scientific, educational and included Mongol Daguur Strictly Protected Area 50 Protected Areas of Mongolia in 1997, Terkhyn Tsagaan Lake, Ogy Lake, Lakes by the Council of Ministers; (Orog lake, Tatshyn tsagaan lake, Boon • Wildlife Management Section was initiated in tsagaan lake, Adgyn Tsagaan lake) in 1998, and the Forest Research Institute (Anon., n.d. b). Khar Us Nuur National Park, Airag lake in 1999. Mongolia joined the Convention on Biological At the local level legislation is administered by Diversity. the aimag and soum authorities.

Administration and management New Parliament and Government formed as a result of the first democratic free election in 1990, In the 3rd century BC Mongolian ancestors, the have taken the first steps for integration of ‘Hunnus’, protected and worshipped the highest environmental protection with economic and social peak of the Hangai mountain range, named issues (Adiyasuren Ts. 1998). The Agency for Otgontenger (Adiyasuren Ts, 1998). In the Code Protected Areas and eco-tourism was established of Chinggis Khaan’s ‘Ikh Zasag’(Great Rule) and by the Ministry of Nature and Environment in 1993 in many other laws and regulations of the 16th and became a fundamental beginning of century such as the Code of Oirods and ‘Khanlkha involvement of state administrative bodies in nature Regulation’ there were 14 mountains recognised conservation activities. With regard to the structural as sacred including Bogdkhaan Mountain, Khan change in the governmental organizations, the Khentee, Khognokhaan, Jargaltkhaan, Bayan, Environmental Protection Agency-Government Suman Ulaan and Tovkhonkhaan, where hunting, Regulatory Agency was put in charge of protected cultivation and logging were completely restricted. area related issues. The Protected Area bureau was The first reserve, Bogdo ula, was declared in established in 1996. 1778; others were declared by separate decrees in Over 270 people work in protected area 1957 (two sites), 1965 (eight sites), 1975 (one site), administrations including 150 rangers and 30 1977 (one site) and 1978 (one site). One national specialists (Myagmarsuren, 2000). At the same time park, Great Gobi National Park, was established there are some additional rangers, who work under in 1975 and given legal status under Decree No. local province administration. One park ranger 283 of 1976; a second national park was created in working in a protected area is responsible for the southern part of Ar Toul Game Reserve in 1984 107,100 ha area on average. 87.1% of the specialists and two hunting reserves in 1983 and 1984. In 1991 working in special protected areas have university the Mongolian government approved a ‘Procedure degrees; 79.9% are people professionally qualified on Protected Areas’, established the network of in biology and ecology. Half of all rangers are protected areas and their protection rules and professionally qualified and possess appropriate regimes, and classified protected areas into four working experience and skills (Myagmarsuren, categories, which became an initial step towards 2000). forming an integrated network of protected areas. Among the special protected areas, strictly In 1992 (8 sites), in 1993 (7 sites), in 1996 (9 sites), protected areas and national parks are financed in 1997 (3 sites), in 1999 (4 sites) and in 2000 (6 from the state budget and other funding sources sites) were designated. Between 2001-2005 24 including tourism, donations and aid from citizens, more sites are planned to be protected and a further economic entities and organisations. Also, fines 51 between 2006 – 2015. from citizens who break the law contribute to the Responsibility for protected areas used to lie protected areas budget. with the Academy of Sciences (IUCN, 1971). In Eleven park administrations and one branch 1972 the government established several office are currently operating in different parts of organisations concerned with conservation issues: Mongolia (Myagmarsuren, 2000). Two of them are operating from Ulaanbaatar. The Great Gobi • Wildlife Management Department was Strictly Protected Area Administration was established within the Ministry of Forestry and established in 1975. Size and location: 5.3 million Forest Industries; hectares in two parts, including 4.4 million hectares • Department for Nature Protection was brought of the Southern Altai Gobi and Khovd provinces. into being within the Council of Ministers Mountain Strictly Protected Area State Committee of Science and Technology Administration was established in 1778 and re- 51 J. Jargal established in 1988. It covers 41,651 hectares just participation in conservation. south of Ulaanbaatar. The Lake Khuvsgul National Since 1992 WWF has been working in Park Administration is located outside of the Mongolia to assist the Ministry for Nature and the Khuvsgul Lake National Park and it was established Environment to expand its network of protected in 1992. Khan Khentee Strictly Protected Area areas and protect the country’s biodiversity. Administration was established in 1993. It is Specifically WWF is working with the Government operated from Ulaanbaatar. Eastern Mongolia of Mongolia to identify and extend protected areas Strictly Protected Area Administration was network to cover 30 percent of Mongolia. Several established in 1993. It covers 1,896,328 hectares additional protected areas were established based in Sukhbaatar and Dornod aimags. Otgontenger on recommendation made by WWF. Since 1997, Strictly Protected Area Administration was under the Law of NGO, the office has obtained established in 1996 and it is located in central official status as an independent representative Mongolia in Zavkhan aimag. office of WWF International. The WWF Mongolia Strictly Protected Area Administration was Country Office is part of the WWF’s global established in 1994. South Gobi State Protected network, active in more than 96 countries around Area Administration was established in 1996 and the world. In June 1997, a Mongolia Conservation it is operated from South Gobi aimag. Khangai Programme of WWF for the next 5 years has been Nuruu National Park Administration was developed with clear objectives, outline of established in 1996. Mongol Altai Mountain State activities and tasks required to meet the objectives. Protected Area Administration was established in The Programme will focus on the Altai Sayan and 1996. Khar Us Lake National Park Administration Daurian Ecoregions both Global 200 Ecoregions was established in 1998. Khustai Nuruu National and 80 percent of WWF’s resources will be invested Park Administration was established in 1994. in these regions. Several countries and international projects play a key role in strengthening protected areas System reviews management by providing necessary equipment, strengthening institutional capacities, conducting Mongolia is a land locked country, which training and public awareness, improving living borders the Russian Federation to the north and conditions in local communities in the buffer zones, the People’s Republic of China to the south. The disseminating information on protection of rare and northern part of the country is covered by forested endangered species. 163.3 million tugrugs have mountain ranges dominated by Siberian Larch been spent for strengthening protected areas (Larix sibirica), Siberian Pine (Pinus sibirica), and management within the framework of the Scotch Pine (Pinus sylvestris). The southern part Mongolian biodiversity Project which is funded encompasses desert, desert- and steppe open by the United Nations Development Program and grassland areas with low mountains, rolling hills, Global Environmental Faculty. The project also hillocks with sparse vegetation cover, the western assisted in environmental lawmaking, institutional part is made up of snow-capped high mountains capacity and community support building, as well and glaciers, and the eastern part consists of an as public awareness activities in environmental area of vast plains and grasslands. Physically, the protection and the development of the National country is a high altitude plateau, the lowest points Action Plan on Biodiversity Conservation for being some 500m above sea level, almost all of the Mongolia. country lying above 1,000m. There are a number The German Technical Assistance and of mountain ranges, notably in the north and west Cooperation Agency is running a twelve-year of the country. The Altai Massif occupies the ‘Environmental Protection and Buffer Zone western borders; as this range runs southeastwards, Development’ project. The project is working on it fades into a series of isolated fault blocks known possibilities to improve the protection and as the Gobi Altai. The highest peak lies in this range management of the Khan Khentee Strictly and is some 4,231m above sea level. The Khangai Protected Area and Gobi Gurvan Saikhan National Mountains occupy the centre of the country, while Park by developing management plans for these the Khentee Mountains run from just east of the protected areas, improving the institutional centre up to the Russian border. Most of the capacity and strengthening local community southern borders run through the Gobi Desert, a 52 Protected Areas of Mongolia large desert of relatively low relief. Since 1975, two months, called Nature and The country is divisible into four main Environment Protection Months, have been held phytogeographic zones: mountain forest/ (7% annually (starting on 15 April and on 15 September of the surface area) is found in the high altitude for one month). These are supported by the Ministry regions in the north of the country and is dominated of Nature and Environment Protection and are by larch, cedar, pine and birch. There are also areas devoted to nature conservation related activities of natural forest on the edges of the Gobi Desert on any number of themes, such as protection of found along riverbanks, dominated by poplars and and forests against fire, water conservation tamarisk. Steppe occupies a broad range across the and so on. In 1980 a nature palace, which houses a country from east to west (51% of the surface area). museum and nature exhibitions was opened in Arid steppe/semi desert lies in a line to the south Ulaanbaatar. of this on the borders of the Gobi Desert (27% of Threats to ecosystems are generally limited in the surface area), and desert on the southern border extent and severity. A number should be mentioned, with China (15% of the surface area). The steppe however. Mining, especially open-cast, is on the category may be subdivided into mountain steppe increase and is causing soil erosion and pollution with sparse forests (25% of the total surface area) in some areas. There is little or no environmental and grassy steppes (26%) (Nowak, 1970). Forest control. Open cast phosphorite mining 100km from cover of all types totals 15 million ha or 10% of Lake Huvsgul (Khovsgol) threatens to cause the country. eutrophication of the delicate ecosystems of this Wetlands are an important habitat type – important oligotrophic lake which is an integral standing water covers some 15,000 sq. km and there part of the (USSR) basin (Anon., 1988; are some 50,000km of rivers. These wetlands are Mavlet, 1988). Over utilisation of water resources also extremely diverse, ranging from cold, deep is causing a problem in some urban and industrial ultra oligotrophic lakes to temporary saline lakes. areas and many rivers are apparently growing Many of the rivers have extensive floodplains shallow (Mavlet, 1988). Deforestation is also (Scott, 1986). taking place. Some 14,000ha of forest are cleared Mongolia has a very low population density and every year, while only 5,000ha are replanted this is unlikely to change very rapidly despite the (Mavlet, 1988). Due to desertification and high population growth rates, as one third of the aridification in recent decades some rodents, population lives in the capital Ulaanbaatar. especially the Brandt’s Vole (Microtus brandti), Traditionally, a large proportion of the economy and some species of grasshoppers have caused was centred on livestock herding by the large deterioration in pastures. By 1997 the Brandt’s Vole numbers of nomadic people. Government efforts spread to 8 million hectares of a new area and there, to transform the economy have led to the expansion it started to cause deterioration of 90 percent of of settled agriculture and to the development of the vegetation cover (First National Report, industry. In response to the dramatic decline in Biological Diversity in Mongolia, 1998). The wildlife during the 1930s and 1940s, conservation policy on development of road networks is very measures were enacted in the 1950s and 1960s poor. Consequently, at present, Mongolia has (Hibbert, 1964). According to the resolution of the approximately one million hectares of land 17th Congress of the Mongolian Peoples Republic destroyed by the multiple off-road tracks of Party and the national economic and cultural different vehicles. In the last few years the development guidelines for 1976 to 1980, the five government of Mongolia has launched the year and annual plans include sections on ‘Millennium Road’ project which is aims to conservation and environmental protection. The construct a road network. At present, power five year plan section contained 140 projects and stations, steam boilers using coal as fuel, ger had a budget of 700 million tugrugs. Projects townships producing smoke and soot, and cars are carried out in the five year plan to 1980 included the main permanent pollution sources especially pollution control, forest regeneration, forest belt in urban areas. Ulaanbaatar’s power plants planting, soil conservation and wild animal consume up to 5 million tonnes of coal annually. breeding. There are also longer term schemes for In winter, the level of air pollution in Ulaanbaatar environmental protection and scientific programs often exceeds the permitted levels by up to five to 1990 and to 2000. times. 53 J. Jargal

Mongolskiej Republice Ludowej. Chronmy Acknowledgements Przyrode Ojczysta 33 z.l.: 79-82. Constitution of Mongolia. (1992), Ulaanbaatar. This article was written as part of a Chevening Hibbert R.A. 1967. Wildlife protection in Scholarship in Biodiversity awarded to Jargal Mongolia. Oryx 9(3): 196-210. Jamsranjav and conducted at the UNEP-World IUCN 1971. United Nations List of National Parks Conservation Monitoring Centre, Cambridge, UK. and Equivalent Reserves. 2nd Ed. Hayez, Brussels. References Jigj S. 1982. Ochrana prirody w Mongolskicj Narodnej Riespublice. In: Komitet po nauczno techniczeskomu sotrudniczestwu, wklad stran Adiyasuren Ts. Borjigd. 1998 Environment and czlenow CEW w ochranu okruzajuszczej sredy. Development issues in Mongolia. Ulaanbaatar. Moscow. (not seen) p 18-19. Anon Mongolian People’s Republic Protected Jigj S. 1986. Report of activity of environmental Game Management Areas. English translation protection of nature and use of natural resources of the law concerning the establishment of these in the MPR. Unpublished. areas (incomplete). Kosmider J. 1985. Mongolskie Towaszystwo Anon. Establishment of the ‘Mongolian Altai Ochrony Przyrody. Przyroda Polska 7/8. 46 pp. Wildlife Reserve’. Draft project outline. Unpub. Mongolian Environmental Laws. 1996. Official 9 pp. translation. Mongolian Ministry of Nature and Anon. 1977. Forestry development and wildlife Environment. management. FAO report. Unpub. 5 pp. Mavlet U. 1988. Ensuring harmony between Anon. 1982. Hunting, conservation and interests of man and nature. News from development in Mongolia. International Mongolia 6(54): 1-3. Foundation for the Conservation of Game. Myagmarsuren D. 2000 Special Protected Areas Bulletin 10/11: 2-3. of Mongolia. Ulaanbaatar. p. 12-13; 26-27; 31- Anon. 1988. Journalists hold ‘ecological’ round 33; table. News from Mongolia 13(61): 1-7. Nowak E. 1970. The waterfowl of Mongolia. Alexandrowicz Z. 1984. Nowe dane o ochronie Wildfowl 21: 61-68. przyrody w Mongolii. Chronmy Przyrode Parewicz R., Rudzki K., Szaniawski A. & Walther Ojczysta 40 z.l.: 55-58. S. 1972. Report to the Government of Mongolia Bayer R. 1988. Nature protection month. News on Forestry, Forest Industries and Wildlife from Mongolia 8: 16.1 April. Survey. United Nations Development Borisov V.A., Belousova L.S. & Vinokurov, A.A. Programme, No. TA 3093. FAO, Rome. 1985. Okhranyaemye prirodnye territorii Mira. Scott D.A. 1986. A directory of Asian wetlands. Moskva, Agropromizdat. IUCN, Gland, Switzerland and Cambridge, UK. Brzezniak E. 1977. Obszary chronione w p. 1-30.

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