For over a decade, Ulaanbaatar, one of the coldest and most polluted capitals in the world, has been grappling with the issue of air pollution. While certain measures and policies have been implemented with some success, the reality remains that we continue to breathe air far more toxic than both the WHO-recommended levels and Mongolia's own standards. This is not something we should become accustomed to.
The impact of air pollution on our health, our children's development, their education, and even the economy is glaringly evident. Research shows that, regardless of advancements in education programs or the construction of hundreds of schools and kindergartens, the presence of fine particulate matter (PM2.5) continues to reduce children's IQ and cognitive abilities and adversely affects their mental health. Even if the nation embraces justice, digitization, and economic renewal, the UN reports that air pollution will still cost Mongolia the equivalent of 10% of its annual budget next year. Another study notes that despite a “Healthy Mongolia” and revolutions in the healthcare sector, children in Ulaanbaatar will still grow up with compromised lung capacity compared to their peers elsewhere.
The problem is not the absence of solutions. Rather, it lies in the failure to consistently implement them, evaluate their outcomes, and sustain momentum. Policies are often abandoned or reversed midstream, caught in a blame game that shifts responsibility from one entity to another. This systemic issue must change.
Lessons from the Past: A Glimpse at Policy Implementation
Take, for example, the "Improved Stoves" initiative launched in 2011 and intensified in 2013. This program successfully reduced air pollution, as evidenced by the monthly average PM2.5 levels from 2010 to 2023. At its peak, over 80% of households in ger districts adopted these stoves. However, as oversight weakened, the gains diminished. Today, research reveals that 82,429 households are still using inefficient, handmade stoves that leak pollutants — a testament to the ongoing challenges posed by poor public awareness and behavioral inertia.
Graph 1: Monthly Average PM2.5 Levels in Ulaanbaatar (µg/m³)
Similarly, in 2017, the government approved the "National Program for Reducing Air and Environmental Pollution" with a bold budget of 9.9 trillion MNT to be implemented in two phases until 2025. A centerpiece of this program was the introduction of refined fuel, which brought measurable improvements during the winter of 2019-2020. Yet, in the years since, the program has lacked evaluation, enhancement, and continuity. Most notably, the decision to dissolve the National Committee on Reducing Air and Environmental Pollution, reallocating its budget to the Ministry of Environment and Ulaanbaatar’s municipal government, has disrupted progress.
Graph 2: Monthly and Annual Average PM2.5 Levels in Ulaanbaatar (2014-2022)
- Blue: Monthly average (µg/m³)
- Gray: Annual average (µg/m³)
- Green: Mongolia’s air quality standard for annual PM2.5 levels (25 µg/m³)
- Yellow: WHO-recommended annual level (5 µg/m³)
Decentralization and Policy Missteps
In recent years, the government has taken commendable steps to empower Ulaanbaatar’s municipal government with increased budget and decision-making authority. This move enables the city to address local issues more autonomously and with greater agility. With a dedicated budget and broader scope of responsibilities, the municipal government can now implement air pollution reduction policies tailored to its specific needs, paving the way for greater accountability and responsiveness.
However, the decision to dismantle the National Committee on Reducing Air and Environmental Pollution in 2023 and transfer its functions to Ulaanbaatar City and the Ministry of Environment and Climate Change has proven counterproductive. This committee played a critical role in aligning multi-sectoral policies at the national level and ensuring coherence across stakeholders. Its dissolution has created a policy vacuum, leaving unclear divisions of responsibility between local and national entities and weakening the mechanisms for oversight and accountability. Without a centralized body, there is a heightened risk of fragmented and inconsistent efforts to tackle air pollution.
Policy Gaps and Implications
The absence of a cohesive framework has led to several challenges:
- Weakened National Oversight: The committee not only addressed Ulaanbaatar’s pollution but also targeted air and environmental degradation in rural areas. Without it, rural issues risk being neglected.
- Inefficient Budget Allocation: The reallocated budgets lack transparency and thorough evaluation, raising concerns over the effectiveness of spending.
- Policy Inconsistencies: The unclear roles between the municipal government and ministries undermine collaboration among stakeholders, hindering comprehensive solutions.
What Needs to Change?
- Independent Monitoring Mechanisms: Introduce external oversight systems involving civil society organizations and experts to evaluate policy implementation and budget utilization.
- Coherent Policy Frameworks: Clarify the responsibilities of Ulaanbaatar’s government and national ministries while fostering robust inter-agency collaboration.
- Strategic Long-Term Plans: Develop and execute sustainable strategies tailored to both urban and rural contexts, supported by innovation and technological advancements.
- Public Engagement: Foster a culture of civic participation and accountability by empowering citizens to actively engage in monitoring and advocating for solutions.
The Way Forward
Despite various measures — from improved stoves and refined fuel to insulation and alternative heating systems — the lack of policy continuity and stability remains a persistent challenge. Addressing air pollution demands more than short-term fixes tied to political cycles; it requires a sustained cultural shift toward meticulous implementation, monitoring, and enhancement of long-term programs.
Let’s reject simplistic promises like “This will fix everything” because there is no magic bullet for air pollution. It takes a comprehensive approach, including steadfast government policies, technological innovation, economic mechanisms, public awareness, and individual accountability.
Above all, we must hold policymakers accountable, demand tangible progress, and insist on participatory governance to ensure no one breathes toxic air.
Let’s take action now! Instead of just sharing pictures of the smog, demand your constitutional right to a safe and healthy environment. Add your voice by signing the online petition: Sign the Petition Here (Mongolian)
Written by
Batbaatar Mungunkhishig
Country Director, People in Need Mongolia
Mr. Mungunkhishig Batbaatar works as the Country Director for People in Need (PIN) Mongolia. Before taking up his role in Mongolia, Mr. Mungunkhishig served UNICEF East Asia and Pacific Regional Office in Bangkok, Thailand, as Knowledge Management Specialist supporting 13 Country Offices in 27 countries in the region on education and climate issues. Previously he worked for UNICEF Mongolia as a knowledge management officer and consultant for over five years.
Prior to this period, he worked for government agencies - the National Center for Public Health, the Ministry of Health Mongolia, and international organizations such as the Asian Development Bank (ADB), Voluntary Service Overseas (VSO), and Research Triangle Initiatives (RTI) International. He earned his master's degree in Development Policies and Practices from the Graduate Institute of International and Development Studies in Geneva, Switzerland, and his degree of BS in Development Communication from the University of the Philippines Los Banos. About PIN Mongolia People in Need has been operating in Mongolia since 2009.
We strive for Mongolia, where local communities are strengthened, respective of human rights, and empowered to be the drivers of change and equal opportunities. Apart from providing emergency relief, PIN builds the capacities of cooperatives, small and medium enterprises, civil society organizations, and local authorities, supports sustainable living, strengthens higher education, promotes environmental protection, and raises awareness about air pollution.
For over a decade, Ulaanbaatar, one of the coldest and most polluted capitals in the world, has been grappling with the issue of air pollution. While certain measures and policies have been implemented with some success, the reality remains that we continue to breathe air far more toxic than both the WHO-recommended levels and Mongolia's own standards. This is not something we should become accustomed to.
The impact of air pollution on our health, our children's development, their education, and even the economy is glaringly evident. Research shows that, regardless of advancements in education programs or the construction of hundreds of schools and kindergartens, the presence of fine particulate matter (PM2.5) continues to reduce children's IQ and cognitive abilities and adversely affects their mental health. Even if the nation embraces justice, digitization, and economic renewal, the UN reports that air pollution will still cost Mongolia the equivalent of 10% of its annual budget next year. Another study notes that despite a “Healthy Mongolia” and revolutions in the healthcare sector, children in Ulaanbaatar will still grow up with compromised lung capacity compared to their peers elsewhere.
The problem is not the absence of solutions. Rather, it lies in the failure to consistently implement them, evaluate their outcomes, and sustain momentum. Policies are often abandoned or reversed midstream, caught in a blame game that shifts responsibility from one entity to another. This systemic issue must change.
Lessons from the Past: A Glimpse at Policy Implementation
Take, for example, the "Improved Stoves" initiative launched in 2011 and intensified in 2013. This program successfully reduced air pollution, as evidenced by the monthly average PM2.5 levels from 2010 to 2023. At its peak, over 80% of households in ger districts adopted these stoves. However, as oversight weakened, the gains diminished. Today, research reveals that 82,429 households are still using inefficient, handmade stoves that leak pollutants — a testament to the ongoing challenges posed by poor public awareness and behavioral inertia.
Graph 1: Monthly Average PM2.5 Levels in Ulaanbaatar (µg/m³)
Similarly, in 2017, the government approved the "National Program for Reducing Air and Environmental Pollution" with a bold budget of 9.9 trillion MNT to be implemented in two phases until 2025. A centerpiece of this program was the introduction of refined fuel, which brought measurable improvements during the winter of 2019-2020. Yet, in the years since, the program has lacked evaluation, enhancement, and continuity. Most notably, the decision to dissolve the National Committee on Reducing Air and Environmental Pollution, reallocating its budget to the Ministry of Environment and Ulaanbaatar’s municipal government, has disrupted progress.
Graph 2: Monthly and Annual Average PM2.5 Levels in Ulaanbaatar (2014-2022)
- Blue: Monthly average (µg/m³)
- Gray: Annual average (µg/m³)
- Green: Mongolia’s air quality standard for annual PM2.5 levels (25 µg/m³)
- Yellow: WHO-recommended annual level (5 µg/m³)
Decentralization and Policy Missteps
In recent years, the government has taken commendable steps to empower Ulaanbaatar’s municipal government with increased budget and decision-making authority. This move enables the city to address local issues more autonomously and with greater agility. With a dedicated budget and broader scope of responsibilities, the municipal government can now implement air pollution reduction policies tailored to its specific needs, paving the way for greater accountability and responsiveness.
However, the decision to dismantle the National Committee on Reducing Air and Environmental Pollution in 2023 and transfer its functions to Ulaanbaatar City and the Ministry of Environment and Climate Change has proven counterproductive. This committee played a critical role in aligning multi-sectoral policies at the national level and ensuring coherence across stakeholders. Its dissolution has created a policy vacuum, leaving unclear divisions of responsibility between local and national entities and weakening the mechanisms for oversight and accountability. Without a centralized body, there is a heightened risk of fragmented and inconsistent efforts to tackle air pollution.
Policy Gaps and Implications
The absence of a cohesive framework has led to several challenges:
- Weakened National Oversight: The committee not only addressed Ulaanbaatar’s pollution but also targeted air and environmental degradation in rural areas. Without it, rural issues risk being neglected.
- Inefficient Budget Allocation: The reallocated budgets lack transparency and thorough evaluation, raising concerns over the effectiveness of spending.
- Policy Inconsistencies: The unclear roles between the municipal government and ministries undermine collaboration among stakeholders, hindering comprehensive solutions.
What Needs to Change?
- Independent Monitoring Mechanisms: Introduce external oversight systems involving civil society organizations and experts to evaluate policy implementation and budget utilization.
- Coherent Policy Frameworks: Clarify the responsibilities of Ulaanbaatar’s government and national ministries while fostering robust inter-agency collaboration.
- Strategic Long-Term Plans: Develop and execute sustainable strategies tailored to both urban and rural contexts, supported by innovation and technological advancements.
- Public Engagement: Foster a culture of civic participation and accountability by empowering citizens to actively engage in monitoring and advocating for solutions.
The Way Forward
Despite various measures — from improved stoves and refined fuel to insulation and alternative heating systems — the lack of policy continuity and stability remains a persistent challenge. Addressing air pollution demands more than short-term fixes tied to political cycles; it requires a sustained cultural shift toward meticulous implementation, monitoring, and enhancement of long-term programs.
Let’s reject simplistic promises like “This will fix everything” because there is no magic bullet for air pollution. It takes a comprehensive approach, including steadfast government policies, technological innovation, economic mechanisms, public awareness, and individual accountability.
Above all, we must hold policymakers accountable, demand tangible progress, and insist on participatory governance to ensure no one breathes toxic air.
Let’s take action now! Instead of just sharing pictures of the smog, demand your constitutional right to a safe and healthy environment. Add your voice by signing the online petition: Sign the Petition Here (Mongolian)
Written by
Batbaatar Mungunkhishig
Country Director, People in Need Mongolia
Mr. Mungunkhishig Batbaatar works as the Country Director for People in Need (PIN) Mongolia. Before taking up his role in Mongolia, Mr. Mungunkhishig served UNICEF East Asia and Pacific Regional Office in Bangkok, Thailand, as Knowledge Management Specialist supporting 13 Country Offices in 27 countries in the region on education and climate issues. Previously he worked for UNICEF Mongolia as a knowledge management officer and consultant for over five years.
Prior to this period, he worked for government agencies - the National Center for Public Health, the Ministry of Health Mongolia, and international organizations such as the Asian Development Bank (ADB), Voluntary Service Overseas (VSO), and Research Triangle Initiatives (RTI) International. He earned his master's degree in Development Policies and Practices from the Graduate Institute of International and Development Studies in Geneva, Switzerland, and his degree of BS in Development Communication from the University of the Philippines Los Banos. About PIN Mongolia People in Need has been operating in Mongolia since 2009.
We strive for Mongolia, where local communities are strengthened, respective of human rights, and empowered to be the drivers of change and equal opportunities. Apart from providing emergency relief, PIN builds the capacities of cooperatives, small and medium enterprises, civil society organizations, and local authorities, supports sustainable living, strengthens higher education, promotes environmental protection, and raises awareness about air pollution.