IUCN World Heritage Evaluations 2017 - UNESCO

Mongolia/Russian Federation – Landscapes of Dauriaeastern Mongolia, extending into Russian Siberia andnorth-eastern China. Composed of Daurian foreststeppe and Mongolian-Manchurian grassland, theDaurian Steppe Ecoregion constitutes one of the bestpreserved examples of Eurasian steppe whichsupports one of the last truly mass ungulate migrationsin Central Asia, that of the Mongolian Gazelle (locallycalled dzeren). Its wetlands and rivers are of criticalimportance to a number of migratory bird species, andare particularly rich in biodiversity due to cyclicalchanges in climate.The property nominated in 2014 was a contiguous,albeit unusually configured, design including anominated area of 859,102 ha and a buffer zone ofsome 310,719 ha. Following the Committee’srecommendation, the States Parties have addedfurther areas to the nominated property to augment thediversity of ecosystem types representative of thelarger Daurian Steppe Ecoregion as it transitions fromthe circumboreal taiga forest biome to temperatecontinental grassland biome and ultimately to desert.Whilst the majority of the area proposed for nominationhas not changed from the 2014 configuration, severalnew areas have been added to include greaterrepresentation of forest steppe. These additions alsoadd migration route areas important for Mongolian1Gazelle (Procapra gutturosa - LC) as well asincreasing breeding and resting areas for threatenedbird species. As a result, the property is now proposedas a transnational serial property of four componentparts, and nominated under natural criteria (ix) and (x).The size of the revised nominated area has increasedby just over 6% to an area of 912,624 ha according tothe nomination dossier. A buffer zone of 307,317 hasurrounds most, but not all of the nominated area.Table 1 shows the reconfigured nominated property.Protected area / buffer zoneRussian FederationDaursky SNBRDaursky SNBR buffer zoneValley of Dzeren FNRSub-total area in Russian FederationMongoliaArea (ha)NominatedProperty49,765 2117,690111,568279,023Mongol Daguur SPA “A”Mongol Daguur SPA “B”Mongol Daguur SPA buffer zoneUgtam Nature RefugeSub-total area in 24 haWH BufferZone128,888128,888178,429178,429307,317 haTable 1. Components of the Landscape of Dauria nominatedproperty1These codes reflect the conservation status of each species as recordedin the IUCN Red List of Threatened Species at the time of the evaluation;for more information please visit http://www.iucnredlist.org2These figures are presented by the nominating State Parties; however,IUCN was not able to fully understand how the areas were calculated6In the Russian Federation, the nomination continues topropose inclusion of the core and buffer zones of mostof the Daursky State Nature Biosphere Reserve(SNBR) and the Valley of Dzeren Federal NatureRefuge (FNR). A small additional forest-steppecomponent within Daursky SNBR has been added(with a surrounding buffer zone) and is located in thesouthern outskirts of the Tsasucheysky Bor pine forestarea, characterized by the endemic form of the ScotsPine (Pinus sylvestris - LC), known locally as KrylovPine. The referral documentation notes this as an areaof 300 ha, however, IUCN believes this figure needs tobe clarified. The addition of this forested area to theproperty provides an example of flora and fauna typicalof the Tsasucheysky pine forest and the adjacentsteppes.In Mongolia, the two strictly protected core zones ofthe Mongol Daguur Special Protected Area (SPA) aswell as a large part of its buffer zone continue to beincluded within the nominated area. An additional46,160 ha including forest steppe ecosystems hasbeen added in the form of Ugtam Nature Refuge3(NR) , located primarily on the right bank of the UldzaRiver and comprising inundated steppe and woodedsteppe areas, including tracts of pine, birch and aspencommunities. There is no buffer zone identified for theUgtam NR. The nomination points out that Ugtam NRis included in the Dauria International Protected Area(DIPA) thus ensuring its full integration with otherareas coordinated under the umbrella of DIPA. Thebiodiversity values of Ugtam NR are representative ofDaguur-Manchurian forest steppe zones. There are236 vascular plant species with the greatest floradiversity observed in the steppe ecosystems (103species) followed by meadow communities anddeciduous forests. The nomination notes a lack ofdetailed studies in Ugtam NR, but 34 mammal, 266bird, three amphibian, three reptile and seven fishspecies have been recorded. Ugtam NR contains avariety of habitats and the presence of water gives itmore diverse mega-fauna than the surroundingsteppe. 22 people, in five households of Dashbalbarand Bayandun soum, live inside the NR boundariesand practice traditional grazing (5,200 head oflivestock).Also in Mongolia, the Chuh Nuur (lake) and thesurrounding areas have been added to the nominatedarea. This area includes the lake, Uldza Riverfloodplain and swampy lowland areas south of thelake. The nomination notes this region is an importantbreeding ground for three crane species, namelyWhite-naped Crane (Antigone vipio - VU), DemoiselleCrane (Anthropoides virgo - LC), and Common Crane(Grus grus - LC), and plays a crucial role as a restingplace for migratory birds. The dossier focuses on theavifaunal values of the Chuh Nuur area, noting thatover 10,000 waterfowl and semi-aquatic birds use thissite, with at least eight globally threatened bird speciesrecorded here during breeding and migration seasons.Among these species, the White-naped Crane andSwan Goose (Anser cygnoid - VU) breed here every3The nomination dossier refers to this protected area as both UgtamNature Refuge and Ugtam Nature Reserve. In this evaluation, NatureRefuge (NR) is used.IUCN Evaluation Report – May 2017

Mongolia/Russian Federation – Landscapes of Dauriayear. This area, previously included within theproposed buffer zone of the property, was visited bythe IUCN evaluation mission in 2014 and noted as anarea of high biodiversity value that needs to becarefully managed in tandem with the local communitywhich is developing ecotourism around the lake.Further detailed description of the natural values of theremainder of the nominated property may be found inIUCN’s 2015 evaluation.3. COMPARISONS WITH OTHER AREASThe globally important values of the Landscapes ofDauria, as nominated in 2014, were discussed in depthwithin IUCN’s previous evaluation and will not berepeated here. IUCN concluded that the “variousanalyses make a strong case of the potential for aproperty in the Daurian ecoregion overall to meetWorld Heritage criteria. However, the justification ofthe relative importance of the biodiversity values of thenominated property in comparison with other protectedareas in the Daurian ecoregion is not clear”. IUCNfurther considered “that the global biodiversitysignificance of the Daurian region should be framedaround its importance for conserving an excellentexample of Daurian steppe and its characteristicwildlife ”. IUCN specifically highlighted the lack offorest steppe ecosystems as seriously underminingthese claims at that time.In IUCN’s view, the additional areas proposed forinscription positively add previously missing elementsof Outstanding Universal Value, to those existing in theoriginal nomination. The chosen component partsappear to be in good condition with relatively lowthreats, and strengthen the case to meet naturalcriteria (ix) and (x). Areas of additional forest steppehave been added in the Russian Tsasucheyskycomponent of Daursky SNBR and in the larger UgtamNR in Mongolia. A critical area for birdlife, which wasnoted in IUCN’s 2015 evaluation, has been added inthe Chuh Lake area of the Mongol Daguur SPA. Takentogether, the serial property has better encompassedvalues which demonstrate Outstanding UniversalValue around the transition of the ecosystem complexfrom the circumboreal taiga forest biome to thetemperate continental grassland biome, and thegradient of climate conditions from cold humid taigaforest climate to strong continental semi-arid steppeclimate. The nominated property includes a widerdiversity of ecosystems and species adapted to theextreme cyclic changes of life conditions (wet and dryperiods) and has enhanced ecological functionality.The addition of the Chuh Nuur component augmentsthe large number of lakes and wetlands thusreinforcing the property’s global importance as a keyresting place for more than 3 million migrating birdswithin the East Asia - Australasian flyway, including 16globally endangered bird species observed in theproperty. Although the overall migration route ofMongolian Gazelle is more extensive than thenominated property, the additions nevertheless addimportant new areas along the migratory routes of thisemblematic species in Central Asia.IUCN Evaluation Report – May 20174. INTEGRITY, PROTECTION AND MANAGEMENT4.1.ProtectionIUCN’s previous evaluation noted the adequate legalprotection afforded to Daursky SNBR, Valley of DzerenFNR and Mongol Daguur SPA under a range of statelegislation, decrees, resolutions and executive orders.The additional 300 ha Tsasucheysky component isalso under the umbrella of the Daursky SNBRprotection regime. The nomination notes that UgtamNR in Mongolia is controlled by the “Administration ofStrictly Protected Nature Areas of the EasternMongolian Province” and enjoys similar protection tothat of the Mongol Daguur SPA.IUCN recalls its concerns over the protection regimewhich exists across significant areas of the nominatedproperty where it corresponds to the designated bufferzones of protected areas and/or areas subject tocommunal/customary protection. The Chuh Nuur areawhich has been ‘excised’ from the former WorldHeritage buffer zone and now included within thenominated area lies within the large buffer zone ofMongol Daguur SPA and is subject to communalownership under a cooperative of ten families (the“Chuh Lake Herder Association”). IUCN requestedadditional information from the States Parties tounderstand better the protective measures andmanagement systems which apply in the areas inMongolia to ensure they meet the requirements ofParagraphs 110 and 111 of the OperationalGuidelines. The Mongolian State Party’s responseoutlines a range of legal instruments which apply tolocal community activities in these areas. Aspects ofthe Mongolian national law on environmentalprotection aims to prevent “environmental disorder andto conserve and manage from harmful activities onfollowing natural resources: land (including soil),underground (including all resources), water, flora,fauna, atmosphere”. The law further promotesparticipatory approaches to nature conservation.Further details have been provided of various positivecommunity conservation programmes which are inplace with support from international organizations andlocal NGOs. Some community training activities arealso carried out. Whilst grazing is a key livelihood,there are some communities (around Chuh Nuur) whoare pursuing ecotourism opportunities linked to birdwatching. Mongolia has furthermore identifiedprohibited activities within the Mongol Daguur SPAreiterating that hunting is not allowed. Strong EIAs forany threatening activities or developments proposed inbuffer zones are also required. Finally, both StatesParties have indicated that in Russia and Mongoliainternational law supersedes national law, thus if thenominated area is inscribed as World Heritage, theConvention will confer additional protection to what isalready in place.Based on the supplementary information, and whilstnoting the variability in protection regimes across theareas comprising the nominated property, IUCNconsiders that the communal/customary regimesprovide adequate protection to ensure the protection ofthe site’s Outstanding Universal Value. This also7

Mongolia/Russian Federation – Landscapes of Dauriaconsiders the generally relatively low current threatlevels which have been confirmed within thenominated property and its buffer zone.IUCN considers that the protection status meets therequirements of the Operational Guidelines.4.2BoundariesIUCN recalls the findings of its 2015 evaluation that themain natural values of the nominated property residein its large area of mostly intact steppe interspersed byhills and a large number of wetlands. While grasslandsand wetlands were well-represented in the originalnomination, the transition from forest to steppe, andthe presence of Daurian “forest steppe” was verypoorly represented within the area nominated at thetime. Only small relicts of forest steppe were included.At the time, IUCN concluded that while the vistas ofvast grasslands within the property were veryimpressive, evidence of the suite of transitionalfeatures which makes the Daurian ecoregion uniquewas lacking. The chief shortcoming of the originalnomination was that it did not encompass the areanecessary to demonstrate 1) the transition of theecosystem complex from the circumboreal taiga forestbiome to the temperate continental grassland biome,2) the cyclic changing gradient of climate conditionsfrom cold humid taiga forest climate to strongcontinental semiarid steppe climate, and 3) differentecosystems and species adapted to the extreme cyclicchanges of life conditions (wet and dry periods).In response to the Committee’s decision, the StatesParties have carefully considered several othersuggestions which arose from the original IUCNevaluation including Onon-Baji National Park andYakhiin-Nuur Nature Refuge (both in Mongolia).However, the addition of these areas was notconsidered feasible due to them either existing indifferent ecological systems, and/or having integrityissues such as mining threats, and/or not beingintegrated into the coordination systems establishedunder DIPA. The IUCN field evaluator, in October2015, was able to discuss with the States Parties therationale for additions to the originally nominatedproperty and the factors behind rejecting other areas.IUCN considers that the areas now included in thenominated property have added important areas offorest steppe which was previously very limited. TheTsasucheysky Bor area of Daursky SBNR is small(300 ha) but is in good condition and is the only partthat comes under the special protection of the DaurskyReserve management. Regrettably, larger forestedareas in this area were quite recently burnt (70% of theforested areas) with damaged trees logged to providefire wood. Although regenerating, the disturbedintegrity of these areas makes them unsuitable at thistime to include in the nominated area. However, whenconditions improve, there is room to consider theaddition of further areas of forest steppe to this serialnomination.8The addition of Ugtam NR (Mongolia), part of theTorrey Lake river basin, is a significant area of justover 46,000 ha which also adds forest steppe. It is freeof any mining impact and is on the migration route ofMongolian Gazelle. The protected area alsopossesses good biodiversity values, especially forbirdlife including breeding White-naped Crane in theUldza river and breeding Great Bustard (Otis tarda VU).Over 7,300 ha of the Chuh Nuur area in Mongolia hasalso been proposed within the nominated area. Thenomination dossier reports that Chuh Nuur is one ofthe key sites for the conservation of migratory,breeding, and moulting waterfowl and semi-aquaticbird species. It is of outstanding value for theconservation of breeding White-naped Crane andducks which undergo seasonal moulting in the area.The dossier provides good evidence of the wetlandvalues of this area arguing its significance for up to10,000 waterfowl and semi-aquatic birds using the siteat the same time, with at least eight globallythreatened birds being recorded at the site. The IUCNevaluator did not visit this site during the short fieldvisit of October 2015, but based on the documentaryevidence, the area appears to add important values tothe nominated property.Whilst satisfied that a pragmatic approach has beentaken to reviewing the site’s configuration, IUCNconsiders there is potential in future to further expandthis serial site and build a stronger, more cohesiveproperty that extends the diversity of transition-zoneecosystems and biotopes of what is a very largeecoregion.IUCN considers that the boundaries of the nominatedproperty meet the requirements of the OperationalGuidelines.4.3ManagementIUCN previously concluded that the respectivemanagement plans for different protected areas in boththe Russian Federation and Mongolia satisfied therequirements of the Operational Guidelines. Additionalareas added to the nominated property are alsocovered by the existing management systems andplans.IUCN raised concerns about the coordinationarrangements across the transnational property which,although covered under the umbrella of the high levelDIPA framework, lacked a more detailed jointmanagement plan at operational level. The IUCNevaluator obtained some further information on thisduring the 2015 field visit and the States Parties haveprovided a greater level of detail in supplementaryinformation. Management of DIPA is organisedthrough the Joint Commission, a high-level forum thatmeets occasionally, and Working Groups comprised ofstaff of protected areas that meet once or twice everyyear. The Joint Commission assists with internationalprojects, approves Working Groups plans andsupports their work financially. Supplementaryinformation from the States Parties has stressed thatIUCN Evaluation Report – May 2017

Mongolia/Russian Federation – Landscapes of Dauriathe DIPA framework, operating as it does at trinationallevel, respects and enshrines the independence ofnational level protected area planning systems. TheStates Parties have indicated, consistent with this, adesire to pursue a system with separate managementplans and a system of Memorandums ofUnderstanding as the more effective way to achievegreater consistency and cohesion across the site’smanagement.Disparities in funding between the different componentparts of the property are also an issue which wasnoted in IUCN’s previous evaluation. The StatesParties have provided additional figures on 2015-2017government and NGO/donor financing. This confirmsan almost 10-fold difference in government fundingbetween Russia and Mongolia, offset to some extentby more NGO/donor funding being directed toward theMongolian side. While there are some jointly fundedinitiatives, the DIPA framework stipulates that fundingis the responsibility of each side.In assessing these arrangements, IUCN considers itwould be counter to the effectiveness of the DIPA totry and impose another layer of joint managementplanning. DIPA has an established record ofsuccessful transboundary cooperation and areasonably well-developed hierarchy of cooperativestructures that allows both top-down and bottom-upcooperation. Despite good intentions there remain,nevertheless, significant gaps in capacity betweenRussia and Mongolia which warrant ongoing attention.These capacity differences are often the root cause ofweak and inconsistent management approachesacross the different components of the nominatedproperty. As was noted in IUCN’s previous evaluation,strengthened operational-level cooperation is neededto better address transboundary threats and overcomecapacity imbalances including in the areas of firemanagement, buffer zone planning and management,and control of hunting and poaching.Although management capacity remains low,particularly on the Mongolian side, the current threatsto the nominated property are also generally low. Thissituation, however, may not last as there are a rangeof potential threats which could rapidly overtakeexisting management capacity. IUCN recommendsincreasing resourcing and capacity in anticipation offuture management needs across the nominatedproperty as a whole.IUCN considers the management of the nominatedproperty meets the requirements of the OperationalGuidelines.4.4CommunityIUCN previously evaluated the community aspects ofthe nomination noting several outreach programmesand the generally low population pressure in thisregion, particularly on the Mongolian side. Issuesrelated to communal / customary protection have beenaddressed elsewhere in this evaluation.IUCN Evaluation Report – May 20174.5ThreatsA range of threats to the nominated property werediscussed in IUCN’s previous evaluation and theoverall threat level has not changed appreciably.IUCN’s assessment of threats has also not changedalthough it is worth stressing that many of the issuesraised pertained to potentially escalating threats suchas fire, mining, grazing and increasing tourism. Severalthreats are discussed below in light of additionalinformation and/or issues linked to the proposedadditions to the nominated property.Fire continues to be a threat and the addition of moreforest steppe potentially heightens this risk. As hasbeen seen in the Tsasucheysky area of DaurskySNBR, these forests are vulnerable to fire damage andpost fire recovery is slow. Fire frequency appears to beincreasing with reports of multiple fires in single years.Ignition is mainly caused by human activity butincreased frequency and intensity may also be climatechange related. Further information was provided bythe States Parties on the joint “forest fire protectionagreement” signed in 2016. This reveals good levels ofcooperation and communication but fire control isessentially the responsibility of each State Party.Further cooperation is encouraged in the areas of earlyfire detection, first response and reciprocal firefightingaccess rights.Mining activity in the wider region is undergoing rapidgrowth. According to Russian law, mining is notallowed in Special Protected Area buffer zones, whilein Mongolia, it is allowed with approval of the Ministryof Environment. The Ministry of Environment, GreenDevelopment and Tourism of Mongolia providedwritten assurances (letter of 12 June 2015) that theproperty, if inscribed on the World Heritage List, wouldbe “preserved from mining and natural resourceexploitation.” These assurances from the State Partyof Mongolia are welcome, as is the advice thatinternational law supersedes national law. However,IUCN remains concerned about this threat whichcontinues to affect several World Heritage sites in thisregion and indeed worldwide. It was concerning to beadvised that several of the areas being considered foraddition to the nominated property were discounted, inpart, due to mining activity/impact concerns. Continuedvigilance will be necessary to guard against thepotential impacts of mining in the property should it beinscribed on the World Heritage list.Poaching is a further issue on which additionalinformation was provided by the States Parties. It isacknowledged that in Mongolia the effectiveness ofanti-poaching measures remains challenging due toresourcing limitations. Only two cases of poachingwere detected on the Mongolian side in 2014-15:illegal hunting of the Tarbagan Marmot (Marmotasibirica - EN) which is reported to be low - but this mayalso be an indicator of weak enforcement capacity.Actions, through the DIPA framework, to prog

WORLD HERITAGE NOMINATION - IUCN TECHNICAL EVALUATION LANDSCAPES OF DAURIA (MONGOLIA / RUSSIAN FEDERATION) - ID N 1448 Rev IUCN RECOMMENDATION TO WORLD HERITAGE COMMITTEE: To inscribe the property under natural criteria (ix) and (x). Key paragraphs of Operational Guidelines: Paragraph 77: Nominated property meets World Heritage criteria.