FINAL REPORT - Global Environment Facility

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FINAL REPORTMONGOLIA’S NATIONAL CAPACITY SELFASSESSMENT FOR GLOBAL ENVIRONMENTALMANAGEMENT AND ACTION PLANMINISTRY OF NATURE ANDENVIRONMENT

ACKNOWLEDGEMENTSAny editorial effort involves a lot of support. This report was prepared by a NCSA teamincluding Mr. A.Enkhbat (Chairman of NSC of NCSA), Mrs.B.Munkhzul (National Coordinatorof NCSA), Mr.D.Dagvadorj (Consultant for NCSA), Mr.B.Dorjgotov (Consultant NCSA), MrsN.Oyundari (Consultant for NCSA) provided by guidance and support from GEF and UNEP.Team acknowledges inputs and comments of Mr. Abdul Majeid Haddad, NCSA Taskmanager &GEF Liaison Officer, Division of the GEF Coordination Regional Office for West Asia/ROWA/ UNEP, Mr. Bakei, Member of the Parliament, Mr.Ts.Shiirevdamba, Former MP andState Secretary of MNE.Mrs Munkhzul was responsible for the coordination and design of the preparation maps andMr Enkhbat provided guidance and editorial assistance to the team. However the project processfaced with many challenges in outside, a team worked hardly and devoted to produce “qualityproduct”, which as useful and as stated in guidelines as promotional document to national planningprocess.Special thanks are to Global Support Programme for giving possibility by consideringMongolia’s situation and challenges in project process. Thanks also to Mr. Abdul Majeid Haddadfor his encouragement and support. Mr.A.Enkhbat provided excellent editorial support, giving aconsistent format and style to all myriad details of manuscripts from consultants.2

ACRONYMSADB – Asian Development BankCHP – Central heat plantDP – Democratic PartyEU – European UnionEGPRS – Economic Growth Poverty Reduction StrategyEIA – Environmental Impact AssessmentFAO – Food and Agricultural OrganizationGHG – Greenhouse Gas EmissionGEF – Global Environmental FacilityGoM – Government of MongoliaLDC – Least Developed CountryLLDCs – Land-locked developing countriesMNE – Ministry of Nature and EnvironmentMPRP – Mongolian People’s Revolutionary PartyMAP-21 – Mongolia Action Plan – 21MDGs – Millennium Development GoalsMoSE – Ministry of Science and EducationMFA – Ministry of Foreign AffairsMoFA - Ministry of Food and AgricultureMF – Ministry of FinanceMETF – Mongolian Environmental Trust FundMFA – Ministry of Finance and EconomicNGO – Non –governmental organisationNPACD – National Plan of Action to Combat DesertificationNCSD – National Council for Sustainable DevelopmentNAPCC – National Action Plan for Climate ChangeNAMHEM – National Agency for Meteorology, Hydrology and Environmental MonitoringNCSA – National Capacity Self AssessmentHOB – Heat –only-boilersROWA – Regional Office for West AsiaODA – Official Development AssistanceUB – UlaanbaatarUNFCCC – United Nations Framework Convention on Climate ChangeUNCCD- United Nations Convention on Combating DesertificationUNCBD – United Nations Convention on BiodiversityUNDP – United Nations Development ProgramUNEP – United Nations Environment ProgramSEA – Strategic Environmental AssessmentWB – World Bank3

CONTENT1.2.3.4.ACKNOWLEDGEMENTACRONYMSEXECUTIVE SUMMARYOVERVIEW5. CHAPTER I. COUNTRY PROFILE AND ACTORS1.1. Country profile1.1.1. geography1.1.2. population1.1.3. political profile1.1.4. employment1.1.5. economic profile1.1.6. climate1.1.7. land use patterns1.1.8. water resources1.1.9 energy resources1.1.10. industry1.1.11. agriculture1.2.Actors’analysis6. CHAPTER II. CURRENT DEVELOPMENT TRENDS AND CHALLENGES2.1. Development2.1.1. political development2.1.2. economic development2.1.3. social development2.2. Challenges2.2.1. governance challenges2.2.2. social challenges7. CHAPTER III. ENVIRONMENTAL ISSUES3.1. disaster3.2. land degradadtion3.3. deforestation3.4. solid waste issues3.5. soil pollution3.6. water issues3.7. air pollution and energy issues3.8. loss of biodiversity8. CHAPTER IV. POLICY AND LEGAL FRAMEWORK FOR ENVIRONMENTALMANAGEMENT4.1. Policy framework for environmental management4.2. legal system for environmental 1323233353638444448574.3.Multilateral Environmental Agreements594.3.1. Institutional coordination of MEAs at national and local level9. CHAPTER V. ENFORCEMENT CAPACITY AND FINANCIAL RESOURCES10. CHAPTER VI. THEME-SPECIFIC CAPACITY DEVELOPMENT NEEDS6.1Specific to Biodiversity Thematic Area6.1.1 Systemic Level6.1.2 Institutional Level6.1.3 Individual Level65724

6.26.3Specific to Climate Change Thematic Area6.2.1 Systemic Level6.2.2 Institutional Level6.2.3 Individual LevelSpecific to Land Degradation Thematic Area6.3.1 Systemic Level6.3.2 Institutional Level6.3.3 Individual Level747711. CHAPTER VII. CROSS-CUTTING CAPACITY DEVELOPMENT AREAS ANDOPPORTUNITIES FOR SYNERGIE7.17.27.3Cross-cutting Areas for Capacity Development807.1.1 Environmental Impact Assessment7.1.2 Strategic Environmental Assessment7.1.3 Harmonization of Environmental Laws7.1.4 Environmental Education and Awareness7.1.5 Forest Fire Management7.1.6 Strategic Planning for Environmental Management7.1.7 Integrated Environmental Information Management System7.1.8 Sustainable Financing Mechanism7.1.9 Local Environmental GovernanceCapacity Development Needs for Cross-Cutting Areas837.2.1 Systemic Level7.2.2 Institutional Level7.2.3 Individual LevelOpportunities for Synergy857.3.1 Five-Year Development Planning Process7.3.2 National Environment Strategy and Action Plan7.3.3 Millennium Development Goals7.3.4 Preparation of Convention-related Documents12. CHAPTER VIII. STRATEGY AND ACTION PLAN8.18.28.38.48.513. ANNEXESPreambleObjectives and Outputs8.2.1 Objectives8.2.2 OutputsActivities8.3.1 Related to Output 18.3.2 Related to Output 28.3.3 Related to Output 38.3.4 Related to Output 48.3.5 Related to Output 58.3.6 Related to Output 68.3.7 Related to Output 7Table of ActionNext Steps87878788921021035

EXECUTIVE SUMMARYThe Strategy and Plan to provide the capacity required by Mongolia to fulfil its commitments underthe UN Framework Convention on Climate Change (UNFCCC), the UN Convention on Biodiversity (CBD)and the UN Convention to Combat Desertification (CCD) (referred below to as “the three conventions”)summarize the results from the Mongolian national capacity self-assessment for global environmentalmanagement process. National Capacity Self-Assessment project is commenced from May 2004 and due tomany reasons it lasted for 2 years. The Strategy and Action planning is a final stage for preparation ofdocument which has goal of development initial document shall be implemented in the long term byproviding synergy between 3 Rio Conventions.···The objectives of this document are:to justify the need for joint activities to build the capacity required for implementation of the threeconventions;to provide a capacity building strategy which uses the synergies and possibilities for more efficientimplementation of the three conventions;to propose a plan for the implementation of the strategy during the period of 2007-2015.This paper and its preceding documents are the result of a series of studies, analyses andconsultancies involving a broad range of stakeholders, experts and representatives of the agencies thatcoordinate the Conventions or have mandates relevant to their implementation.In order to elaborate the cross-cutting assessment report and insure high quality the Nationalworkshop was held in Ulaanbaatar for 8-10 February, 2007 and incorporated comments andrecommendations from NCSA Task manager &GEF Liaison Officer, Division of the GEF CoordinationRegional Office for West Asia /ROWA/ UNEP. Therefore this document focused on first, to elaboratecross-cutting assessment report based on recommendations and comments from national workshop, secondto identify plan and strategies for next 5 years and finally, to develop 2-3 good projects proposals instrategic areas.The NCSA has largely been derived from a broad-based consultative and participatory process,involving all key stakeholders. It was carried out incrementally in three steps. The first step was inceptionand planning. This step was initiated with an NCSA Inception and Planning Workshop to sensitize thestakeholders about the NCSA concept, process and methodologies and to form thematic working groups toprovide inputs to the assessments in the respective areas of biodiversity, climate change and landdegradation. Each thematic working group was made up of three to 5 members.Based on the recommendation of the inception workshop, and NCSA Methodology Kit customizedfor Mongolia’s situation, terms of reference for the thematic working groups and work plan for the thematicassessments were prepared through a series of initial thematic working group meetings.The second step pertained to the thematic assessments. These assessments entailed review ofexisting literature, questionnaire survey to take stock of existing capacity situation and needs in relevantsectors, a series of regional consultative workshops to secure local insights and views on capacity issues andneeds, and consultations with key people in various agencies for additional information and clarifications.Thematic profiles were prepared, providing overview and analysis of information accumulated from thethematic assessments.After the thematic profiles were completed, the NCSA moved to the third step which pertained tocross-cutting analysis and consolidation of the thematic profiles into an NCSA Report. To set in motion thethird step, an inter-working group meeting was held for two days. At this meeting, the thematic workinggroups and other participants from relevant agencies revisited the thematic profiles, reviewed andprioritized capacity development needs based on a set of agreed criteria, and identified cross-cutting areasfor capacity development Subsequently, based on the outcome of the inter-working group meeting, indepth review of the thematic profiles, additional literature review and further consultations with key peoplefor additional information and clarifications, a consolidated NCSA Report and Action Plan were prepared.The Action Plan is primarily based on the capacity development needs identified through thethematic assessments, which have been synthesized in Chapter VI, and the cross-cutting capacitydevelopment areas discussed in Chapter VII.The implementation of the Action Plan shall be guided by the following principles:6

National ownership and leadership: The efforts should be nationally owned, led and driven. Theyshould be progressive encompassing self-monitoring, self-evaluation and learning-by-doing. Highdegree of commitment from key players such as MNE and the relevant line ministries to the capacitydevelopment process is critical for positive results. Broad-based consensus and decision making: Capacity development decisions should involve multiplestakeholders and be derived from broad-based consensus to the extent possible. Consultative andparticipatory process is essential to foster broad-based consensus. Holistic approach: All dimensions – the systemic, the institutional and the individual – of capacity needattention. Therefore, there is a need to establish a good balance between all the three dimensions.Capacity development efforts must be linked to the broader environmental management and sustainabledevelopment needs as reflected in the Millennium Development Goals, and the National SustainableDevelopment Strategy. Partnership and collaboration: Capacity development efforts will require concerted effort that drawsupon the comparative advantages of multiple stakeholders to maximize impact and create synergies.Partnership and collaborative relationship between various stakeholders should be promoted to addresscapacity development needs. Flexibility: Capacity development efforts should have the flexibility, without losing the focus ofpurpose, to respond to changing circumstances and needs. Adaptive management of resources forcapacity development is essential to allow such flexibility.The Action Plan has been formulated to achieve the following objectives and outputs:Overall Objective is To ensure a sustainable environment through integration of sustainabledevelopment principles in the global context, into national and internationalpolicies as well as reversing the loss of natural resources.The Action Plan has been formulated with the overall objective to strengthen the systemic, institutional andindividual capacities of the Mongolia and its partners in the non-government, public and private sectors foreffective implementation of the Rio Convention obligations consistent with national circumstances andneeds for sustainable development as reflected in Mongolia 2015.Immediate ObjectiveThe immediate objective of the action plan is to address capacity development priorities at the systemic,institutional and individual levels of the Mongolia and its partners in the non-government, public andprivate sectors for improved implementation of the Rio Convention obligations consistent with nationalcircumstances and needs for sustainable development over the next 8 years as reflected in cross-sectoral andsectoral plans and programmes.The Action Plan, if and when implemented, is expected to result in the following broad outputs:1. Policy and legal framework for environmentally sustainable development improved2. Implementation of environmental management at national and local levels improved3. Information and monitoring systems in the areas of biodiversity, climate change and land degradationstrengthened4. Implementation capacity of National Committees on Conventions and MNE enhanced to effectivelyfunction as national focal agencies for the Rio Conventions5. Institutional mechanisms for environmental management strengthened6. Environmental financing mechanisms strengthened7. Environmental education and awareness programmes strengthened7

8. Public participation at decision making and law making process increasedThe capacity development needs identified for the thematic and cross-cutting areas have been translatedinto activities under each of the aforesaid outputs. The Action Plan also provides a Table of Action, givingan overview of the capacity development activities in relation to the thematic area, type of capacity, level ofpriority, implementation timeframe, and responsible institution(s).It will be extremely difficult to implement the Action Plan as a single, consolidated package. Therefore,based on the proposed Table of Action, the MNE – in consultation with the stakeholders involved in theNCSA process – will package the capacity development priorities into 2 to 3 detailed project proposals forfunding consideration by GEF, UNDP, UNEP and other potential donors in the field of environmentalmanagement capacity development. Each project proposal will provide the rationale, work plan,implementation arrangements, budget, and co-financing arrangements. Some project ideas that can bedeveloped into project proposals to address capacity development needs identified through the NCSAinclude:Enhancing Environmental Management in Local Governance System,Environmental Management in Local Governance system, otherwise environmental governance at locallevel will be crucial coordination in providing sustainable development consistent with Rio Conventionobligations. In order to ensure environmental governance system, a lot of policy arrangements andcoordinations are required. We couldn’t conserve the nature and environment, even we have increasedstaffs in Ministry of Nature and Environment or numbers of inspectors. The cross-cutting and systemicarrangement is to strengthen local governance in environmental management.Strengthening Policy and Legal Framework for Environmental Management, aiming at reviewing andrevising existing policies and legislations that contain ambiguities and contradictions, developing andrevising policies and legislations needed to ensure environmentally sustainable development consistent withRio Convention obligations, conducting research to support development of policies and legislation, anddeveloping instruments (guidelines, information dissemination, training workshop, networking andcoordination mechanisms) to support the implementation of the policies and legislations. In this context,good Enforcement Programme need to be developedStrengthening Information and Monitoring System for Environmental Management that includes creation ofan integrated environmental information system covering biodiversity, climate change and land degradationaspects and a GHG database and inventory system to monitor GHG emission trends and issues. This willaid planning and decision-making as well as enable production of State of the Environment.8

OVERVIEWKey Global Environmental ConcernsOur world today is challenged by numerous environmental problems. The wide range of environmentalproblems and concerns is manifested largely within the broad areas of biological diversity, climate changeand desertification or land degradation. With modernization and globalization, consumption patterns havechanged and demand on biological resources has increased rapidly. We are threatened by the irreplaceableloss of many species and genes and the deterioration of ecosystems' ability to meet human needs. Since1600, about 500 animal species and 650 plant species are recorded to have become extinct. Changinglifestyle and consumption patterns are also heavily influencing climatic patterns. Today, human-inducedclimate change is the greatest global environmental challenge that the world faces as a result of increasedconcentration of greenhouse gases in the atmosphere over the years. It is estimated that the world emitsmore than 24,000 million metric tons of carbon dioxide alone every year. The extraction and use of energyfor electricity and heat, manufacturing and construction, transportation, and other fuel combustion is said toaccount for nearly 80 percent of the total greenhouse gas emission. As population grows and human needsincrease, there is increasing pressure on land resources. Desertification and land degradation areenvironmental problems of global dimension that affect more than 900 million people in some 100countries, with the most severely affected being the least developed countries which do not have theresources to combat the problems. It is estimated that 3.6 billion hectares, i.e. a quarter of the Earth’s landarea, are being affected by various forms of land degradation.The Advent of Global Agreements for Environmental ManagementIn June 1992, the United Nations convened the UN Conference on Environmental and Development, alsoknown as the Earth Summit, at Rio de Janeiro to discuss the wide range of environmental concerns and tocome to an understanding of “development” that would support socio-economic development and preventthe continued deterioration of the environment. It was at this Summit that the foundation for globalpartnerships was laid for environmentally sustainable development between the developing and developednations, based on mutual needs and common interests. The Summit resulted in Agenda 21, the RioDeclaration on Environment and Development and the Statement of Forest Principles. Also emanating fromthe Summit were the Convention on Biological Diversity and UN Framework Convention on ClimateChange. Furthermore, the Summit deliberated on the issue of desertification as a major environmentalconcern and called on the UN General Assembly to establish an Intergovernmental Negotiating Committeeto prepare what is now known as the UN Convention to Combat Desertification. Mongolia is a Party to allthe three “Rio Conventions”.Rationale for the NCSA ProjectEnvironmental sustainability has been a cornerstone of Mongolia’s development philosophy long beforeenvironmental conservation became a global issue. While the country has been progressive in nationalenvironmental management and has become increasingly active in its efforts related to globalenvironmental management, it

MNE – Ministry of Nature and Environment MPRP – Mongolian People’s Revolutionary Party MAP-21 – Mongolia Action Plan – 21 MDGs – Millennium Development Goals MoSE – Ministry of Science and Education MFA – Ministry of Foreign Affairs MoFA - Ministry of Food and Agriculture MF – Ministry of Finance