Analysis of Corruption Risks and Development of Policies and Measures for Mongolia‘s National REDD+ Strategy
ҮнэгүйThe various problems included under the concept of corruption are thought critical in understanding how and why forests are lost, and why the social and ecological benefits provided by forests are unfairly distributed. Addressing corruption is therefore an integral part of the process for implementing policies and measures to improve forest resources and to ensure the sustainability of initiatives focused on forest management. This has been recognized by the United Nations‘ collaborative effort on reducing emissions from deforestation and forest degradation (REDD+). Countries participating in the UN-REDD program have been encouraged and supported to undertake corruption risk assessments and to develop plans to address these problems and monitor results over time (UN-REDD 2014). This report, therefore, attempts to describe how corruption manifests in the forest and climate change sectors in Mongolia, and it offers ideas on what strategies could be adopted to limit these problems in going forward with a national strategy for REDD+ in Mongolia.
Судалгааны мэдээлэл
- Ангилал:Улс төр
- Хамрах хүрээ:
- Нийтлэгдсэн он:2018
- Хуудасны тоо:77
- Түлхүүр үг:anti-corruption strategy risk analysis corruption sustainable forest management forest sector
- Үзсэн:941
Судалгааны агуулга
Addressing corruption in the forest sector is recognised as an important component of efforts for achieving REDD+. Based on a guidance note developed by UN-REDD for undertaking corruption risk analysis for national REDD+ Strategies, analysis was undertaken on the current manifestation of corruption in the forest sector of Mongolia, as well as potential risks stemming from a national REDD+ strategy. The research involved interviews with key stakeholders in Mongolia as well as consultation with an Advisory Group. The nature and extent of corruption in Mongolia is complex and difficult to establish. However, many stakeholders interviewed for this study believe that corruption currently undermines sustainable forest management and the fair distribution of benefits from forests. A national REDD+ Strategy may also introduce new risks, particularly with fund management and the procurement of goods and services. There is therefore strong support for integrating anti-corruption strategies into the policies and measures proposed for the national REDD+ Strategy.
Primary information for this report has been based on interviews with people in Mongolia, including forest experts, government representatives, NGOs and representatives from the private sector. The majority of the interviews for this report were undertaken over two weeks, during which the research team also visited a rural town where timber production represents an important industry for the local economy. Further research has been based on desk-top study, and information shared by other researchers working on REDD+ and forestry in Mongolia. A multi-stakeholder advisory group was also established for this study. This advisory group met at the beginning of the study period to help inform the themes of the research, and again in December 2017 to evaluate initial findings and policy ideas.
List of Tables
Executive Summary 4
List of Tables 9
Acronyms and Abbreviations 11
1. Introduction 12
1.1. Methods and limitations 13
1.2. On defining corruption 13
2. Context 14
2.1. An overview of corruption in Mongolia 14
2.2. Corruption and governance challenges at the sub-national level 17
2.3. Characterisation of the forestry sector 19
2.4. Governance and institutional challenges 21
Decentralisation and community co-management 22
4. Concerns with Corruption in the Forestry Sector 23
4.1. Forest tenure 23
Conflicts of interests and companies with long term forest contracts 26
Conflicts of interests and elite capture in forest user groups 27
Nepotism and bribery in licensing for forest use 28
Failure to consent and compensate to forest user groups 30
Further issues 31
4.2. Forest law enforcement & illegal logging 32
The extent of illegal timber harvesting in Mongolia 32
Authorised logging above quotas 35
Conflicts of interests, political expediency and the role environmental inspectors 36
Engagement in illegal timber production by forest user groups 36
Bribery and fraud in the issuing of certificate of origins 37
The role of political elites in the timber trade 38
Further issues 38
4.3. Revenue management 39
Table 1: Percentage of natural resource fees to be used for environmental protection by law 39
Public data on forest revenues 40
Table 2: Growth in forest revenues at the sub-national level and the MET 41
Misallocation of resource user fees at the local level of government 42
Table 3: Income from pine nut harvest at the sub-national level 43
Table 4: resource use fee at the sub-national level (in million MTN) 44
10
Missing revenues for the central state 44
Table 5: Comparison of data on pine nut exports: Audit Authority and MET (in millions MNT) 46
Revenue Management and FUGs 47
4.4. Public administration 48
Kick backs and fraud in the procurement of goods and services 49
Nepotism in staff appointments 52
Conflicts of interests and forest sector NGOs 54
4.5. Summary 54
Table 6: Summary of corruption risks and potential consequences for REDD+ 55
5. Responding to Corruption Risks for REDD+ in Mongolia 56
5.1. Strengthening forest tenure 58
Digitisation and publication of forest tenure arrangements 58
Strengthening rules for forest user groups 59
Assessment of existing grievance mechanisms for forest tenure 62
5.2. Increasing public information on forest revenues and expenditures 63
Improving understanding of local level spending of resource user fees 64
5.3. Detailed investigation into the illegal tiber trade 65
5.4. Development of a national strategy for the regulation of the trade in pine nuts 67
5.5. Civil service reforms 68
5.6. Increasing accountability in the procurement of goods and services 70
5.7. Summary 72
Table 7: Summary of corruption measures and policies 72
References 74
Executive Summary 4
List of Tables 9
Acronyms and Abbreviations 11
1. Introduction 12
1.1. Methods and limitations 13
1.2. On defining corruption 13
2. Context 14
2.1. An overview of corruption in Mongolia 14
2.2. Corruption and governance challenges at the sub-national level 17
2.3. Characterisation of the forestry sector 19
2.4. Governance and institutional challenges 21
Decentralisation and community co-management 22
4. Concerns with Corruption in the Forestry Sector 23
4.1. Forest tenure 23
Conflicts of interests and companies with long term forest contracts 26
Conflicts of interests and elite capture in forest user groups 27
Nepotism and bribery in licensing for forest use 28
Failure to consent and compensate to forest user groups 30
Further issues 31
4.2. Forest law enforcement & illegal logging 32
The extent of illegal timber harvesting in Mongolia 32
Authorised logging above quotas 35
Conflicts of interests, political expediency and the role environmental inspectors 36
Engagement in illegal timber production by forest user groups 36
Bribery and fraud in the issuing of certificate of origins 37
The role of political elites in the timber trade 38
Further issues 38
4.3. Revenue management 39
Table 1: Percentage of natural resource fees to be used for environmental protection by law 39
Public data on forest revenues 40
Table 2: Growth in forest revenues at the sub-national level and the MET 41
Misallocation of resource user fees at the local level of government 42
Table 3: Income from pine nut harvest at the sub-national level 43
Table 4: resource use fee at the sub-national level (in million MTN) 44
10
Missing revenues for the central state 44
Table 5: Comparison of data on pine nut exports: Audit Authority and MET (in millions MNT) 46
Revenue Management and FUGs 47
4.4. Public administration 48
Kick backs and fraud in the procurement of goods and services 49
Nepotism in staff appointments 52
Conflicts of interests and forest sector NGOs 54
4.5. Summary 54
Table 6: Summary of corruption risks and potential consequences for REDD+ 55
5. Responding to Corruption Risks for REDD+ in Mongolia 56
5.1. Strengthening forest tenure 58
Digitisation and publication of forest tenure arrangements 58
Strengthening rules for forest user groups 59
Assessment of existing grievance mechanisms for forest tenure 62
5.2. Increasing public information on forest revenues and expenditures 63
Improving understanding of local level spending of resource user fees 64
5.3. Detailed investigation into the illegal tiber trade 65
5.4. Development of a national strategy for the regulation of the trade in pine nuts 67
5.5. Civil service reforms 68
5.6. Increasing accountability in the procurement of goods and services 70
5.7. Summary 72
Table 7: Summary of corruption measures and policies 72
References 74
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