Lake Baikal
Experience and Lessons Learned Brief
Anthony J. Brunello*, Tahoe-Baikal Institute, South Lake Tahoe, CA, USA, tbrunello@tahoebaikal.org
Valery C. Molotov, Ministry of Natural Resources, Committee for the Protection of Baikal, Ulan Ude, Buryatia, Russian Federation
Batbayar Dugherkhuu, Federal Baikal Committee, Mongolia
Charles Goldman, University of California, Davis, CA, USA
Erjen Khamaganova, Ministry of Natural Resources, Committee for the Protection of Baikal, Ulan Ude, Buryatia, Russian Federation
Tatiana Strijhova, Baikal Foundation, Irkutsk, Russian Federation
Rachel Sigman, Tahoe-Baikal Institute, South Lake Tahoe, CA, USA
* Corresponding author
The Lake Baikal watershed (Figure 1), a critical watershed for
France. The length of the lake is 636 km and width ranges from
both the Russian Federation (Russia) and Mongolia, faces 80 to 27 km. Lake Baikal is home to over 1,500 endemic animal
enormous management challenges, many not uncommon and plant species, a characteristic that is closely connected
in post-Soviet economies. In particular, issues such as with its age and unique natural development.
inadequate coordination among federal and state resource
management agencies, increasing pressure for economic Over three hundred and sixty rivers and streams fl ow into Lake
development in the region, and declining levels of domestic
Baikal with only one river fl owing out, the Angara River, located
and international funding for resource management programs,
on Baikal's northwest shore. Clarity within the lake reaches 40-
are prevalent within the watershed.
50 m in some areas. The residence time of water fl owing into
This paper focuses on the Lake
Baikal watershed and includes
a summary of the science,
policy, and economics of the
region; an assessment of the
current watershed management
structures around Baikal; an
assessment of the GEF Russian
Biodiversity Conservation
Project and its smaller Baikal
component; and a summary of
"Lessons Learned" and Next
Steps for the region.
1. Background
Lake Baikal is well known as
the planet's deepest (1,637
m), oldest (more than 25
million years old), and most
voluminous freshwater lake
(23,600 km3). Baikal holds
as much water as the Baltic
Sea, and as much as the fi ve
North American Great Lakes
combined. Its water volume
represents 20% of all unfrozen
freshwater on Earth. Lake Baikal
draws its water from a drainage
area of 571,000 km2, an area
slightly smaller than the size of
Figure 1. The Lake Baikal Basin.

---

Lake Baikal is over 300 years. The main tributary of the lake
also rich in biological diversity, landscape values and cultural
is the Selenga River, which starts in Mongolia and brings over
and scientifi c values.
60% of infl ow waters annually.
1.2 Biodiversity
Table 1 shows land uses within the Selenga watershed. Pasture
and grazing lands make up the majority of the Selenga's land
The great variety of plants in the watershed is due to climatic
use. It is interesting to note that over 33% of the area is under
asymmetry: light coniferous forests and mountain steppes
some type of protected zone.
occupy the western part of the watershed; pine forests
predominate in the east, while deciduous forests dominate
1.1 Global
Signifi cance
the north. Terraces near the shore in the north support larch
(Larix dahurica and Rhododendron dahuricum) grading into
In 1996 Lake Baikal was added to the United Nations the more fertile mixed fi r-Korean pine (Pinus koraiensis)
Educational, Scientifi c, and Cultural Organization (UNESCO) taiga and larch forests of Pinus sibirica and Larix sibirica, with
list of World Heritage Sites (WHS) which cited Lake Baikal as
some spruce (Picea obovata), monotypic willow (Chosenia
"the most outstanding example of a freshwater ecosystem"
macrolepis), and an understorey of honeysuckle (Lonicera
(UNESCO 1996). In particular, Baikal's outstanding variety of
periclymenum), rowan (Sorbus aucuparia) and currants (Ribes
endemic fl ora and fauna and protected areas were noted.
rubrum). In the southern part of the watershed, in Baikalskiy
Zapovednik for example, a well-marked altitudinal zonation
In 1994, Lake Baikal's largest wetland delta area, the Selenga
also occurs. Sphagnum bogs and forests of poplar and the
River, was listed on the Ramsar international wetland list for
monotypic willow (C. macrolepis) occupy low-lying areas, while
its signifi cant fl ora and fauna, as well as its important role in
the river valleys contain bird cherry (Prunus padus), rowan (S.
fi ltering pollution fl owing into the lake.
aucuparia) and alder (Alnus glutinosa). The northern slopes of
the mountains have taiga of korean pine (P. koraiensis), spruce
The Lake Baikal watershed also attracts global attention (P. obovata) and `cedar' (P. sibirica), with fi r (Abies sibirica)
because it is considered an outstanding example of the dominant in places. In total, 800 species of vascular plant have
evolutionary development of a rift zone of global scale and
been recorded (Borodin and Syroechkovski 1983).
includes contrasting landscapes of mountains, forests,
steppes, tundra and lake. It contains the most ancient and
The fauna of Lake Baikal is one of the most diverse in the
largest freshwater reservoir on earth. The surrounding area is
world with, for example, 255 species of shrimp-like amphipod
species and 80 species of fl atworm. The most famous aquatic
Table 1. Approximate Land-Use Allocations for Lake
species is the unique freshwater Baikal seal (Phoca sibirica).
Baikal's Selenga River Region.
The terrestrial fauna by comparison is less distinctive, being
Area (in
characteristic of the wider region. The southeastern lake
Land Use Zone
%
thousand ha)
shores, for example at Barguzinsky Zapovednik, has a faunal
1. Pasture Lands
9,410
32
diversity that is characteristic of the taiga, with 39 species of
mammal recorded, including pika (Ochotona hyperborean),
2. Pasture Lands with
5,499
19
Siberian chipmunk (Eutamias sibiricus), marmot (Marmota
Scattered Forest
baibacina), fl ying squirrel (Pteromys volans), fox (Vulpes
3. National Nature Parks
4,596
16
vulpes), brown bear (Ursus arctos), stoats and weasels
4. Protected River System &
2,316
8
(Mustela altaia, M. erminea, M. nivalis and M. sibirica), otter
Landscapes
(Lutra lutra), large numbers of sable (Martes zibellina princeps)
5. Managed Forest Resource
noted for its exceptionally valuable fur, wolverine (Gulo gulo),
1,973
7
Areas
a local race of musk deer (Moschus moschiferus), Siberian
6. Natural Anthropological
red deer (Cervus elaphus sibiricus), moose (Alces alces) and
1,583
5
Reserves
reindeer (Rangifer tarandus). The avifauna includes 243 bird
7. Arable Lands
1,375
5
species, among them white-tailed eagle (Haliaeetus albicilla)
and capercaillie (Tetrao urogallu). To the south in Baikalsky
8. National Wildlife Refuges
900
3
Zapovednik there are 37 mammal species and 260 species of
9. Limited Production Forests
647
2
bird.
10. Reserved Forests
554
2
11. Industrial Lands
323
1
1.3
Human Demographics and History
12. Native Hay Lands
190
1
Human remains have been found around Lake Baikal dating
13. National Nature Reserves
71
<1
back almost 30,000 years proving the regions long history of
14. Resort & Recreation Areas
13
<1
human settlement. Today's native people of the Baikal region--
Total
29,450
100a
the Evenk and Buryats--connect their origin and identity with
Lake Baikal. Mongols believe their ancestors, dating back to
Source:
Ministry of Natural Resources, Russia, 1994.
Note:
a) Does not equal 100% due to rounding.
the days of Genghis Khan, came from Siberia and traveled
16 Lake
Baikal

---

across Lake Baikal, or the "Inland Sea", as it is named. In
designed to regulate all economic and environmental activities
the 13th century Genghis Khan proclaimed the lake and the
in the watershed, which was not passed by Parliament until
land around it "the Great Forbiddance Zone" prohibited from
1999. In 2000, the Baikal Commission was abolished by the
development. In the 17th century the fi rst Russian pioneers
Ministry of Natural Resources, and a Federal Environmental
came to the lake and, profoundly impressed by its enigmatic
Protection Agency for Baikal-- "Baikalpriroda"-- is now
power and incomparable purity, named Baikal the "Sacred responsible for coordinating amongst resource management
Sea". Over 1,200 archaeological sites have been found around
agencies in the watershed (see Section 4 for more information
Baikal, including rock drawings, stone walls and remains of
on policy developments).
ancient settlements. The Huns, Kaganates of the Zhouzhanhs,
ancient Turks, Uighurs and Kidanhs were known to have lived
1.5 Economic
Status
around the lake and were even mentioned in ancient Chinese
chronicles and historical Muslim manuscripts.
Differences in economic development both within the Russian
states of the Baikal watershed and among the Russian
Along the eastern shore of Baikal is the Republic of Buryatia
and Mongolian portions of the watershed are signifi cant.
where the Buryats, of Mongolian descent and the largest First, overall economic development within each country,
ethnic minority group in Siberia, live. The Republic was created
as measured by Gross National Income (GNI) per capita,
in 1923 with the joining of Buryat-Mongol and Mongol-Buryat
was US$2,610 for Russia and US$480 for Mongolia (by
Oblasts. The capital of the Republic is Ulan-Ude, and has Atlas method; World Bank 2003). In Russia, both Irkutsk
a population of 386,000 people. Buddhism and Russian and Buryatia's economies are based on their considerable
Orthodox are the two primary religions in the area with several
mineral wealth of gold, coal, oil and gas, rare metals (niobium,
Buddhist temples just outside the city center.
tantalum, lithium, rubidium), 47 kinds of precious and semi-
precious stones (lazurite, charoite, etc.), common salt and
On the northern shore of Baikal is the Irkutsk Oblast where
potassium carbonate, iron ore, manganese, titanium, and
the city of Irkutsk, the chief administrative and economic mineral building materials (magnesite, dolomite, etc.).
center of Siberia, is located. Irkutsk was settled in the early
1660s and was home to the "Decembrists" (one of several
Domestic tourism has historically been important within
fi nal destinations) of the 1825 uprising who were exiled to
the Lake Baikal watershed and is recovering from a decline
the area bringing a Siberian renaissance to the area. Irkutsk
experienced in the 1990s. Before the fall of the Soviet Union,
is now a central destination on the popular Trans-Siberian over a million domestic tourists travelled to Lake Baikal each
Railroad and is known for its educational institutions, scientifi c
year. Since 1990, this number has signifi cantly dropped with
contributions, and culture. The fi rst Siberian branch of the roughly 100,000 tourists visiting Baikal each year (Cook
USSR Academy of Sciences was established in Irkutsk in 1946.
2003). The early 1990s saw a number of international efforts
to develop tourism, and eco-tourism in particular, as an
1.4 Political
Overview
alternative to unsustainable economic development. The
designation of Lake Baikal as a UN World Heritage Site in
The territory of the Baikal watershed is extremely complex in
1996 promised locals a host of new tourists that would travel
terms of its political and administrative arrangements. Political
to Baikal. International tourist numbers appear to be rising
borders split the Baikal watershed practically in half between
slowly, but domestic tourist visits have risen signifi cantly in
Russia and Mongolia, although Lake Baikal itself lies entirely
the last decade as "New Russians" increase leisure spending
within Russia (note Figure 1). Within the watershed there within the country. International tourism is expanding but
are 3 separate Russian states (Oblasts or Republics) and 1
tourists are still hesitant to visit Baikal due to outdated
Autonomous Region; 12 different Mongolian states (Aimags);
transportation modes, poor accommodations, and diffi culties
over 45 national parks, strict nature reserves and signifi cant
getting to Baikal.
cultural sites in both regions; and over 25 counties (rayons) in
Russia and 116 counties in Mongolia (28 of which are divided
The tourism sector is also expected to grow in the coming
by the watershed boundary).
years due to recent laws making it easier for Russians to
purchase second and third homes around the lakeshore,
Both Russian and Mongolian national, state, and local and due to international efforts to increase eco-tourism in
environmental regulations are administered by their respective
the watershed. For example, the recently completed GEF
Ministries of Natural Resources, with each state having Biodiversity Project funded, among many other projects, over
separate branches responsible for maintaining state and 100 different organizations working to develop environmental
local environmental quality standards. In 1993, the Baikal awareness projects with many providing environmentally-
Commission was established to coordinate policies between
friendly tourism opportunities as a side benefi t. The US
the three sub-federal governments of the Russian portion of
Agency for International Development (USAID) also recently
the Baikal watershed. The mission of the Baikal Commission
funded an effort to promote low-impact tourism at Baikal by
was to facilitate the involvement of all levels of government and
developing the "Great Baikal Trail" (GBT). The GBT will create
stakeholders while focusing on the watershed as a single entity.
a path around the lake intended to draw visitors from around
In 1994, the Baikal Commission drafted the "Baikal Law", a law
the world.

Experience and Lessons Learned Brief
17

---

1.5.1 Irkutsk
Oblast
as one of the most dynamic sectors of Mongolia's economy.
The Irkutsk Oblast continues to be the base of Russian Gold production has grown ten-fold from 1993 to 2000 making
economic expansion towards the Far East. The most productive
the country currently the 15th largest producer of gold in the
sector within Irkutsk has been its energy sector. Timber is world.
also a major driver of the Irkutsk economy producing 8% of
Russia's cardboard and over 50% of its pulp, including almost
2. Environmental
Impact
Assessment
100% of Russia's cord pulp and over 50% of its viscose pulp.
The regional share of the total volume of timber production
Environmental impacts within the Lake Baikal watershed
in Russia increased from 12.5% in 1994 to 15.3% in 1995. The
are generated from numerous point and non-point pollution
largest enterprises are the Bratskkomplex, the Ust-llimsky sources. The most signifi cant air pollution sources are located
factory, and the BPPM. The region is one of the largest just north of Lake Baikal (in the Irkutsk Oblast) and in several
consumers of electrical and thermal energy in Siberia (EIA Russian industrial centers just south of the lake at Selenginsk
2001). Irkutsk produces almost a quarter of Russian aluminum
and Ulan Ude. Water pollution sources fl ow almost entirely into
with two central aluminum manufacturers in Irkutsk and the southern portion of Lake Baikal from Russia and Mongolia,
Bratsk. The Angarsk Oil and Chemical fi rm produces 31% of the
leaving the northern end of the lake relatively pristine.
regional oil production, with the Irkutsk region accounting for
more than half of the commercial chemical production of East
Russian academic sources often state 40-60% of total non-
Siberia.
point source water pollution is generated from the Mongolian
portion of the watershed. However, this is nearly impossible
Signifi cant high-quality timber resources exist within the Lake
to confi rm since no environmental assessment has identifi ed
Baikal watershed. The Russian portion of the watershed has
the most signifi cant pollution sources and the highest
over 20 million ha of forested land (42% is estimated to be
concentration sources for both the Russian and Mongolian
harvestable) and over 2.1 billion m3 of timber. The Mongolian
portions of the Lake Baikal watershed. However, much is
portion of the watershed has over 5 million ha of forested land
known about point sources in the waershed. Consequently,
(30% is estimated to be harvestable) and over 500 million m3
environmental clean-up efforts are focused largely on
of timber (TACIS 1999). Forests are predominantly coniferous
improving water quality conditions in and around the major
with larch and pine covering over 80% of the total forested
cities of Ulan Ude (Russia) and Ulan Bator (Mongolia) and
area (Bisnes 2000).
several of the most signifi cant pollution sources downstream
from Ulan Ude to the shores of Lake Baikal (about a 160 km
1.5.2 Republic of Buryatia
stretch of the Selenga River).
The Republic of Buryatia is abundant in natural resources but
remote and dependent on federal subsidies. The region is also
The most famous and contested air and water pollution source
currently undergoing a diffi cult economic and social transition.
at Lake Baikal is the only major source located on the lake--
The major industries in Buryatia are power production, mining,
the Baikalsk Pulp and Paper Mill (BPPM). The factory is found
timber, machine building, and sheep husbandry. In 1999, on the southern shore of Baikal and creates over 50,000 m3
industrial enterprises produced 29% of the Republic's GDP, and
of water pollution and 20,000 tons of air pollution each year.
total production grew by 14%. Buryatia has over 500 known
Despite signifi cant domestic and international efforts to close
minerals, including large deposits of lead, gold, silver, quartz,
the factory, it is still operating with a relatively uncertain future.
sandstone, molybdenum, tungsten, fl uorspar, and asbestos. In
Unfortunately, signifi cant fi nancial and political resources have
terms of production, the region process over 15% of Russia's
focused on the Baikalsk factory over the last decade taking
total tungsten with the third largest facility of its kind and over
attention away from other more signifi cant pollution sources
30% of all molybdenum (including 20% of high grade ores in
within the watershed.
Russia). There are over 205 placer and 13 ore gold fi elds in
Buryatia, which produced a total of 4,080 kilograms in 1994.
Below is a brief assessment of major environmental impacts
in the region. The information is separated by major industrial
1.5.3 Mongolia
sources and includes general descriptions of the types of
The economy in northern Mongolia is based on agriculture,
pollutants as well as available information on pollution levels
husbandry, and mining. In Mongolia, large deposits of uranium,
and concentrations. In general, there is an abundance of
gold, tungsten, and lead are found in the Baikal watershed.
information on point and non-point source pollution sources
Over the last 10 years gold mining has boomed in Mongolia's
for the immediate lake watershed. However, gathering and
northeast region. There are 42 licensed mines in the Zaamar
synthesizing this information is a Herculean task leaving the
gold fi eld alone, which is located in the Yeroo sub-watershed.
current situation of an inadequate supply of reliable, current,
As of 1998, at least 25 other placer gold mines were active in
coordinated information on environmental impacts in both
the same drainage area.
Russia and Mongolia. Watershed-wide environmental quality
data does not exist, and the scattered information that does
The mining sector is Mongolia's single largest industry, exist is largely for the Russian part of the watershed. Mongolia
accounting for 55% of industrial output and more than 40%
environmental quality information typically focuses on sub-
of export earnings. In recent years, gold mining has emerged
18 Lake
Baikal

---

watersheds fl owing into the Selenga watershed (typically the
treatment. In 1991, none of these operations met discharge
Tuul and Urdun rivers, or Lake Hovsgol).
standards and "would need signifi cant upgrades which will
include facilities for nutrient removal, alternative technologies
2.1
Oil and Mineral Resources
to chlorine disinfection" (Williams and Conroy 1991).
The Baikal watershed is rich in mineral and energy resources.
2.3
Pulp and Paper Industries
Unfortunately, gold, molybdenum-tungsten, granite, uranium,
and sand mine operations in both Mongolia and Russia are
Timber harvesting within the watershed has been declining
typically ineffi cient, use little or no environmental mitigation
over the last decade due to decreasing domestic demand,
measures, and use outdated technologies and methods. For
increased transportation costs, and an increase of uncontrolled
example, the 10-12 gold mining operations in the Russian forest fi res. Before 1990, almost all harvesting was conducted
portion of the watershed still use cyanide and mercury to by clear cutting and was directed at large-sized pine sawlogs.
extract gold, as well as large water cannons separate gold
Timber harvesting was outlawed within the immediate
from soil and rock. These operations, typically found near the
"ecological zone" in the early 1990s.
Russian/Mongolian border, generate signifi cant levels of iron,
sulfur, chloride, mercury, and nitrogen into the Selenga River.
Two of the largest pulp and paper plants are in the southern
Baikal cities of Baikalsk (on the lake shore) and Selenginsk
Recent environmental assessments of mining operations in (40 km south of the lake). Both plants use a sulfate processing
Buryatia ranked the tungsten and molybdenum mining sites
technique and produce between 170,000-200,000 tons per
as having the highest environmental impacts in the region year of bleached pulp, and consume close to 250 m3 of process
(Robinson 2001). The uranium mine in Khiagda (also within the
water per ton of pulp produced. The Baikalsk plant has an
Selenga watershed) is currently being considered as a national
additional bleaching process that uses chlorine dioxide that
"catastrophe" area (similar to receiving "Superfund" status in
produces organo-chlorine compounds, but now has a closed
the US) due to its signifi cant mine water discharge impacts,
loop system that collects the majority of pollutants before
acidic tailings, and community radon exposure (Robinson entering the lake.
2001).
The BPPM is the only industrial enterprise actually located
Countless copper and gold mines also exist in Mongolia, and discharging its wastewater directly into the lake.
which are renowned for having little or no mitigation efforts
Countless attempts to close the plant have failed due to the
in place. For example, the regional government in Zaamar has
local communities dependence on the factory for jobs and
an environmental inspection budget of roughly US$1,200/year
sustenance (over 3,000 of the 15,000 residents of Baikalsk
for a gold fi eld that in 2001 produced almost US$40 million in
work at the plant). In addition, numerous plans have been
revenues.
developed that would shift operations from cellulose
production to a less-resource intensive use.
One future environmental impact is the transport of gas
around the southwestern shores of Lake Baikal. Russia already
The most recent plans to retrofi t the BPPM was initiated
has the world's largest gas reserves with a signifi cant portion
in a 1992 Federal Decree (#925), and secured in a recent
lying within the Irkutsk Oblast. Irkutsk processes over 441,000
presidential decree from Vladimir Putin (#574), that would
barrels of oil per day (EIA 2002). Currently, Russia is planning
develop a comprehensive program on "The re-profi ling of
to export gas from a large gas reserve just 200 km north of
the BPPM and socio-economic development of the town of
Baikal at the Kovykta deposit to China and/or Japan. The issue
Baikalsk (2000-2010)", developed by the Siberian Branch
is the proposed gas pipeline would potentially travel 2,400 km
of the Russian Academy of Sciences. The plan, reviewed by
to the Daging fi eld in northern China requiring pipelines to be
the Federal Government in 2001, has a two-step process
built along the shores of Lake Baikal through several national
for retrofi tting the plant including: (a) installing a closed
parks and several sensitive areas for migratory birds. Besides
wastewater treatment plant (which assumes the bleaching
visual impacts and threats to wildlife habitat, seismic activities
process cannot be eliminated); and (b) developing a paper
in the region threaten oil spills that could risk human health
and cardboard production facility while continuing to produce
and safety. Environmental Impact Assessments are currently
pulp. Only the fi rst phase has been approved; the second
being conducted to assess the proposed pipeline routes.
phase is still under review by the Federal Government. The
World Bank has authorized the use of US$25 million in loan
2.2 Municipal
Wastewater
Treatment
Facilities
funds to support the retrofi t program for BPPM.
There are four large municipal wastewater treatment facilities
2.4
Thermal and Electric Power Stations
within the Russian portion of the Baikal watershed: Ulan Ude
(200,000 m3/day), the Severobaikalsk BAM Facility (2,000 Within the Baikal watershed, major electric and thermal power
m3/day), the Severobaikalsk facility (1,600 m3/day) and the
stations are found near the city centers of Irkutsk, Ulan Ude,
Selenginsk facility (capacity unknown). All of these facilities
and Ulan Bator. Over 18,000 MW stored capacity resides in the
are known to use secondary treatment or activated sludge

Experience and Lessons Learned Brief
19

---

Baikal watershed including coal-fi red, hydropower, and diesel
2.5 Agricultural
Pollution
plants.
Agricultural pollution is assumed to be signifi cant within the
Within Russia, Irkutsk is the major electricity provider in the
Baikal watershed, but data on its impacts has been sparse.
watershed with "Irkutskenergo" being the 2nd largest power
Pollutants such as suspended solids, nutrients, organics, toxic
generating company in Russia. The company's key advantage
organics, human pathogens, and inorganic salts are known to
is that 70% of its 13,000 MW capacity is from hydropower
exist from the intensive agriculture and husbandry practiced
stored within the Irkutsk and Angarsk dams. Construction of
within the watershed.
the dams in the 1950s raised the lake level by 1-2 m fl ooding
valuable wetlands, depleting forests due to inundation (e.g.
2.6
Hunting and Fishing
north of Ust-Barguzin) depleting sensitive fi sh habitat, and
fl ooding of settlements located in the northern and southern
Fishing and hunting are relatively minor threats across the
shores of Lake Baikal. In 1999, a law was passed that created
watershed, but are becoming bigger problems in centralized
a maximum and minimum water level to reduce environmental
areas along the lakeshore, and within the larger watershed.
impacts. The other 30% of Irkutsk's power is generated from
Poverty within the region has exacerbated the problem as have
13 coal-fi red thermal plants that co-generate electricity and
signifi cant declines in funding for monitoring fi sh and wildlife
heat. Irkutskenergo provides more than 5% of Russia's total
populations. Fishing has become less of an impact since the
electricity production with 61% of total electricity provided for
mid-1990s after the state fi shing enterprise collapsed. There
regional smelters, pulp and paper manufacturers, refi neries
are 15 "commercial" fi sh species within the lake and over 50
and chemical producers.
different registered commercial fi shing enterprises (Buyentuev
1999).
In Buryatia, the major power stations in Ulan Ude,
Guzinoozersk, and Severobaikalsk are all coal-fi red stations.
In Mongolia, among the 25 fi sh species inhabiting the
The power plants use low-sulfur coal and have not met air
Selenga and its tributaries is the largest, wholly-freshwater
quality standards since 1991 due to fl ue gas de-sulfurifi cation
salmonid, the taimen (Hucho taimen) which historically
facilities not being installed (Williams and Conroy 1991). No
reached weights up to 95 kg and 2 m in length (Matveyev et
hydroelectric stations exist in Buryatia.
al. 1998). Unfortunately, taimen populations have decreased
in their native habitat and are facing similar problems as
western salmonids, such as the alteration of spawning
Table 2. Total Air Emissions in Russian Baikal Settlements (1998-2001) (1,000 tons/year).
Territory
1998
1999
2000
2001
% Change
Krasnochikoi
Rayon
15.46
12.25
5.90
1.30
-92
Baikal
Port
0.08
0.06
0.07
0.02
-75
Kultuk
Settlement
0.47
0.47
0.20
0.27
-43
Irkutsk
City
82.50
54.00
56.40
53.00
-36
Angarsk
City
176.80
155.80
131.50
128.00
-28
Sludjanka
City
4.90
4.75
4.35
3.60
-27
Gusinoozerks
Region
42.00
30.85
32.26
32.00
-24
Cheremkhovo
City
13.00
11.40
11.30
10.00
-23
Usolie-Sibirskoe
City
40.70
38.50
37.10
33.20
-18
Petrovsk-Zabaikalsky
City
7.04
5.90
1.50
5.80
-18
Selenginsk
Settlement
3.68
1.63
3.49
3.20
-13
Ulan-Ude
City
61.85
53.49
55.96
55.00
-11
Shelekhov
City
30.00
27.30
28.30
27.40
-9
Listvjanka
Village
0.05
0.05
0.05
0.05
0
Kyakta
Region
6.16
5.89
6.22
6.20
1
Baikalsk
City
8.05
8.76
8.84
8.57
6
Severobaikalsk
City
3.90
4.57
5.04
4.90
26
Khilok
Region
2.28
2.09
12.20
12.40
444
Total 498.92
363.76
400.68
384.91
-23
Source:
Baikal Commission Report for 1999 and State Environmental Reports for 2002 from Ministry of Natural Resources offi ces in Irkutsk,
Buryatia, and Chita.
20 Lake
Baikal

---

habitat, increased water quality degradation, and overfi shing.
2.8 Water
Pollution
The taimen is now listed as an endangered species in both
Mongolia and Russia (Matveyev et al. 1998; Baasanjav and
Point and non-point sources of pollution are located within
Tsend-Ayush 2001). Recent intensive placer gold mining in both the Russian and Mongolian portions of the watershed.
Mongolia is drastically altering the riparian landscape in some
Major point sources of pollution in Russia are located south of
regions (Bazuin et al. 2000) and threatening the natural river
Lake Baikal in the cities of Ulan Ude, Selenginsk, Gusinoozersk
ecosystems posing serious dangers for environmentally-
and Baikalsk; in the mining complexes in Kabansk, Kamensk,
sensitive species such as the taimen.
Zakamensk, and Kyakta in the south; and in the mining
districts of Mongolia and in Ulan Bator. The most intensive
Hunting in the region is focused on sable, rabbit, deer, and
pollution sources are generated from mining of ore, uranium,
the Baikal "Nerpa" seal. Hunting for the Nerpa has attracted
and gold and through the processing of limestone, clay,
international attention due largely to the campaigning of sand, and gravel. Chemicals such as cadmium, lead, zinc, and
Greenpeace and the local NGO "Baikal Wave" for the seal's
fl uorine are still used for gold mining, which are caught in mine
protection, but also because of the questionable calculation
residue and eventually leak into local water systems.
of the average of 6,000 hunting licenses distributed each year.
The total population is estimated at over 80,000 seals, which
Table 3 shows total water effl uent in six major Russian
decreased signifi cantly in the 1997-1999 due to a massive die-
settlements between 1998-2001. Table 3 shows total emissions
off blamed on several potential causes including high toxin
in this cross-section have increased only slightly. However,
concentrations generated from local pollution found within similar to air emissions within this same period, total
the seals, and a viral infection similar to that found in Caspian
concentrations have decreased for all cities but the BPPM,
Sea seals.
which has had total emissions increase almost 47% in this
period. This is troubling since Baikalsk is located right on the
2.7 Air
Pollution
lakeshore.
Air pollution at Lake Baikal is generated largely from sources
3. Watershed
Management
Assessment
in the north, and from sources close to the lake in the south.
Air pollution is deposited largely along the southern shores
Over the last 50 years, watershed management efforts at Lake
of Baikal and consists of particulates, sulfur, nitrogen, Baikal have progressed from a strictly resource extraction focus
carbon oxides, and other pollutants. Sources include power
in the 1950s, to a management and educational development
plants, the Baikalsk and Selenginsk cellulose factories, other
focus in the 1990s to the current period of transition. Policy-
industrial sources and agriculture. Although the industrial makers currently have a number of development paths to
sector remains the major contributor to Baikal's air pollution,
choose from including the choice of utilizing progressive
the transportation sector (autos, bus, and trains) is playing an
watershed management tools and methods developed in the
increasingly signifi cant role.
last decade that balance environmental, social, and economic
goals, or to pursue intensive development options that could
Table 2 shows air emission trends in a select number of increase economic gains in the short term, but jeopardize
Baikal settlements. The table shows two interesting trends.
environmental integrity and human health in the long run.
First, the majority of total emissions in each city has declined
The path taken in the next decade in regards to environmental
signifi cantly since 1998. Second, the four out of fi ve cities that
policy could very likely guide development within the region for
show increased air pollution totals since 1998 (the last fi ve
the next century. This long-term trajectory is based on current
listed in the table) are located either on, or right next to the
decisions because economic development is just beginning to
shores of Lake Baikal.
take hold in Russia, in general, and at Baikal, in particular. For
example, recent legislation allowing housing developments
around the shores could bring a huge infl ux of development
Table 3. Total Water Effl uent in Russian Baikal Settlements (1998-2001) (m3 effl uent/year).
Location
1998
1999
2000
2001
% Change
BPPM
33.70
42.20
48.20
49.40
47
Sludjanka
2.00
1.67
1.88
1.81
-10
Ulan
Ude
51.60
50.20
51.89
50.70
-2
Kabansk
Rayon
4.52
4.39
4.29
4.20
-7
Severobaikalsk
2.15
2.69
1.83
1.95
-9
Chita
Oblast
25.00
22.70
22.00
22.00
-12
Total 118.97
123.85
130.09
130.06
9
Source:
Baikal Commission Report for 1999 and State Environmental Reports for 2002 from Ministry of Natural Resources offi ces in Irkutsk,
Buryatia, and Chita.

Experience and Lessons Learned Brief
21

---

pressures on Baikal's shoreline. Once constructed, it would
funded thousands of projects supporting government, NGOs,
be impossible to then reverse development trends towards
scientists and local citizens.
conservation priorities.
From 1991 to 1996, a USAID-funded team cooperated with
Despite the diffi cult institutional and economic situation within
Russian and Mongolian policy-makers and scientists to
the watershed, progress has been made in protecting Lake
develop the fi rst land-use plan for the entire Lake Baikal
Baikal and its watershed over the last 15 years. The sections
watershed. This plan (often called the "Davis Plan" after
below provide a brief summary of these developments, an the project's leader George Davis) provided the groundwork
assessment of the current resource management institutions
for subsequent international projects to understand the
in place, and an assessment of one project that has worked
vast scale and challenges in trying to develop a coordinated
to improve resource management efforts at Lake Baikal--the
watershed management plan for the area. Unfortunately, the
Global Environmental Facility's Russian Biodiversity plan received minimal political support due to poor planning
Conservation Project. Information is focused largely on the by project leaders, and was diffi cult to interpret to Russian
Russian portion of the watershed due to the limited number of
and Mongolian circumstances since it was based on planning
projects, fi nancing, and assistance to Mongolia for improving
efforts developed in the United States.
environmental management conditions for the Mongolian
portion of the Baikal watershed.
In 1993, Russia established a "Baikal Commission" which
included 17 representatives from federal, state, and local
3.1
Watershed Management History
government. The Commission's task was to establish a
coordinated Russian effort to protect the Russian-portion of
The fi rst period of coordinated resource management at the Baikal watershed. This was the fi rst regional government
Baikal began in the 1950s when Soviet leaders saw Baikal as
body formed to look at the regional economic and
an engine for national economic development. The Irkutsk environmental conditions within the Baikal watershed and was
dam, constructed in 1956, was one of the fi rst large scale a major step in coordinating Baikal's multiple political players.
water diversion projects in Siberia. The dam and its resulting
However, Mongolia was still left out of watershed management
hydropower preceded the development of a series of resource
discussions. In trying to develop a regional management plan
extraction or mineral processing enterprises in the region. framework for the Baikal watershed, the Baikal Commission
Construction of the dam raised the entire surface of the lake 1-2
developed a draft "Baikal Law" which included specifi c
m, depending on the time of year. The Baikalsk Pulp and Paper
environmental and social goals for the watershed, work plans
Mill (BPPM) was built just after 1960. The BPPM's construction
for their realization, and indicators measuring the progress of
on Baikal's lakeshore caused considerable controversy when
these plans in meeting objectives. As will be explained below,
constructed and spurred local protests thought to be the the Baikal Law was probably too progressive for its time and
birth of Russia's current environmental movement. Numerous
was signifi cantly altered, stripped of substance, and eventually
aluminum processing, timber harvesting, and mining passed in 1999.
operations were also developed around Baikal prior to 1985.
Between 1994 to 1996, the Russian portion of the watershed
In the early 1980s, signs of environmental damage around received signifi cant international attention boosting its
Baikal from logging, transport of these logs on the lake, stature as a global treasure. The Selenga Delta connected to
and pollution from BPPM brought Baikal's fi rst watershed Lake Baikal was made a Ramsar site in 1994 for its signifi cant
management legislation. Federal Decree #434 was passed wetland and bird populations. In 1996, Lake Baikal including
in 1987 and banned logging and transport of logs in the its immediate drainage area was made a UN World Heritage
Baikal watershed. In 1989, a second monumental Federal Site, but the designation excluded four settlements within
Decree was passed that forced Irkutsk, Chita, and Buryatia
the watershed: Baikalsk, Severobaikalsk, Selenginsk, and
to develop a "Comprehensive Plan for Watershed Protection"
Sluydyanka. In Mongolia, the Terhiyn Tsagaan Nuur reserve
for Lake Baikal, and areas 4-6 km inland from Baikal's shore.
southwest of Lake Hovsgol was made a Ramsar site in 1998.
Although the resulting plan was more a vision statement than
management plan, it began a decade long process in widening
In 1996, the Global Environmental Facility funded a
policy-makers geographic perspective of what "watershed" US$20 million Russian Biodiversity Conservation Project,
actually means.
implemented by the World Bank. The project had a specifi c
component looking at the Lake Baikal watershed which is
The fall of the Soviet Union in 1991 created an institutional
described in more detail below.
vacuum in developing watershed management plans and
programs for the watershed. Domestic efforts to develop plans
3.2
Current Watershed Management Assessment
were greatly enhanced from assistance from international
multi-national and unilateral development programs such as
Four major issues characterize the current resource
the World Bank, Global Environmental Facility (GEF), USAID,
management situation at Baikal.
German Development Agency (GTZ), EU/TACIS, which have
First, there is little or no coordinated management:
22 Lake
Baikal

---

·
between the two countries within the watershed (Russia
Federal Order 234 (passed 26 March 2001), which regulates the
and Mongolia);
required water level of Baikal by the Irkutsk Hydropower Plant.
This law restricts the water level variation to one meter. In
·
between policy-makers, scientists, and non-profi t
August 2002, a decree was passed providing a list of forbidden
agencies representing the four Russian states activities within the "Central Ecological Zone". This decree is
surrounding the Russian portion of the watershed important in providing more detail for specifi c restrictions
(Irkutsk, Chita, Buryatia, and the Ust Ordynskiy such as the extraction of oil and gas exploration. However,
Autonomous Region); or,
the three zones have still not been specifi cally defi ned leaving
a gray area in terms of where specifi c boundaries begin and
·
between Russia's Federal Government and State end. Two additional laws are currently being discussed in
Agencies.
Russian Parliament including a law on ecological monitoring
and another on ecological thresholds for the use, disposal, and
Second, funding is declining at the federal, state, and resulting impacts of "harmful substances to Lake Baikal" as
international levels for environmental protection planning, stated in Article 14 of the Baikal Law.
monitoring and restoration programs.
Further weakening the strength of the Baikal Law is the lack
Third, federal and state priorities emphasize regional economic
of a strong regulatory agency responsible for enforcing the
development over environmental conservation.
law. The Baikal Commission previously coordinated resource
management issues amongst the Russian territories. However,
And fourth, there is no coordinated environmental research
when the Ministry of Natural Resources incorporated the
and monitoring program for Lake Baikal or its watershed.
former State Committee on Ecology in 2000, the Baikal
Commission was abolished leaving another policy vacuum for
In attempts to coordinate resource protection efforts within
the protection of Lake Baikal. Despite the Baikal Commission's
the Baikal watershed, the Russian Parliament passed the slow process in developing policies, it was useful for
"Baikal Law" in 1999 that became the fi rst federal land-use
coordinating and mediating among the numerous agencies
regulation for a specifi c Russian territory. The Baikal law within the Baikal watershed.
includes four main sections: (1)
a general overview of problems
at Baikal; (2) an outline of
the three regions (presented
in Figure 2 below) requiring
special protection including
the "central ecological" zone,
the "atmospheric infl uence"
zone, and the "buffer" zone;
(3) a description of maximum
allowable pollution within the
central ecological zone; and
(4) a list of existing federal
regulations on the protection of
Lake Baikal.
The Baikal Law has been an
important step in providing the
foundation and coordinating
framework for protection of Lake
Baikal among the numerous
resource management agencies
within the watershed. However,
details within the law are not
specifi c in how state and local
governments must comply
with "keeping air quality to
acceptable standards," for
example. Due its lack of specifi c
direction, several subsequent
laws associated with the Baikal
Law have been passed such as
Figure 2. Baikal "Zones of Infl uence" as Explained in the Baikal Law.

Experience and Lessons Learned Brief
23

---

Figure 3. Russian Federal Structure for the Management of the Baikal Watershed.
In September 2002, the Federal Government established a resources to existing projects. For example, the 6-year, US$7
Federal Environmental Protection Agency on Baikal, titled million GEF Biodiversity project ended in May 2003; GTZ
"Baikalpriroda", formed with special jurisdiction to enforce the
has completed its land-use planning programs; EU/TACIS
Baikal Law, and to coordinate the numerous federal and state
completed its projects focusing on watershed management,
agencies at Baikal, as presented in Appendix 1. Figure 3 shows
feasibility studies on the pulp industry and national and
a rough outline of the current government structure with local forest fi re protection; and USAID is focusing largely on
Baikalpriroda placed between the Local Coordination Council
small, segregated environmental advocacy and economic
(responsible for working with local governments, NGOs, and
development programs in cooperation with the Foundation for
public service organizations) the regional and federal Ministry
Russian and American Economic Cooperation (FRAEC).
of Natural Resources agencies, as well as the responsibilities
of "other" federal agencies.
Mongolia's management efforts within the Lake Baikal
watershed have focused on developing legislation that will
Baikalpriroda is also responsible for coordinating with amend their existing Mongolian "Water Law" and focus on
Mongolia on all transboundary water issues, and on the "responsibilities for pollution of nature and the environment"
Selenga watershed, in particular. This role as international which will set pollution fees. Federal funding is going towards
transboundary coordinator is Russia's fi rst government-led fi nishing a land-use plan for the Mongolian-portion of the
effort to look at the entire Baikal watershed and determine
Selenga watershed, strengthening monitoring capacity on the
a management structure that works for both Russia and Selenga and Tuul Rivers, restoring water quality on the Tuul
Mongolia. Figure 4 shows the structure of the "Russian/
River (especially downstream from urban areas and mining
Mongolian Transboundary Water Agreement", its governing sites), and purifying wastewater on these two rivers.
structure, and the specifi c project themes within this
agreement. The goal is to complete a land-use plan and
implementation schedule between the two countries by 2010.
Production of an annual report looking at transboundary
issues is currently being planned between the two countries.
Despite the importance of Baikalpriroda's role in coordinating
policies within the watershed, its fi nancial and staffi ng roles
are inadequate for this role. In 2002, Baikalpriroda's budget
was slightly less than 30 million rubles (less than US$1 million)
with a total staff of 15.
While Baikalpriroda's budget has at least remained constant
over the past two years, state and international funding for
resource protection efforts have signifi cantly declined. For
example, state agencies promised almost 200 million rubles in
2002, but only 96 million was actually distributed. In addition,
long-term international development programs funded
through the GEF, USAID, EU/TACIS, and GTZ are closing down,
shifting to projects that promote "economic development" or
Figure 4. Russia and Mongolia Transboundary Cooperative
environmental-advocacy programs, or signifi cantly decreasing
Agreement Structure.
24 Lake
Baikal

---

3.3
Assessment of the GEF Biodiversity Conservation
and implementing mechanisms and approaches which will
Project
mainstream biodiversity conservation and environmental
protection into the policy making process; iii) assessing the
In 1996, the GEF initiated a project focused on protecting protected area institutional framework and subsequently
Russia's biodiversity, and improving Russia's national and strengthening its effectiveness; iv) enabling the participation
regional biodiversity conservation management infrastructure.
of all interested stakeholders, including aboriginal peoples
The US$20.1 million project was completed in May 2003. and local communities into biodiversity conservation; and v)
The project included four components including: (1) a developing an inter-regional demonstration of inter-sectoral
"Strategic Overview Component" (13% of total costs); (2) biodiversity conservation and environmentally sustainable
a "Protected Areas Component" (53% of total costs); (3) a
natural resource management (World Bank 1996)."
"Lake Baikal Regional Component" (25% of total costs); and
(4) a "Project Management and Coordination Component" The Lake Baikal component (titled "Component 3" in project
(9% of total costs). More specifi c objectives for the overall
documents) of the GEF project received US$7 million to
program included: "i) supporting the development of complete three programs including:
federal and regional biodiversity strategies; ii) developing
Table 4. Objectives and Partial Results of the GEF Baikal Regional Biodiversity Component.
Category
Primary Objective
Results
· Supporting the development of a general biodiversity
policy for three administrative territories of the Baikal
· Approval of Strategy and Action Plan for Lake Baikal
Region (BR)
Ecosystem Biodiversity Conservation by the Republic
· Involvement of local population in biodiversity
of Buryatia, Irkutsk and Chita Oblasts and the Ministry
conservation, including public discussion of the Lake
of Natural Resources of the Russian Federation (RF)
Interregional
Baikal Declaration, Strategy and Action Plan
· 73 protocols signed by organizations on Baikal
Activities
· Development and implementation of an interregional
protection
administration of Lake Baikal in the framework of the GEF
· Baikal Component Supervisory Committee and Project
project
Implementation Group (PIG) established
· Creation of common computerized databases relevant to
· Databases created
the protection of living nature in the BR
· Improvement of the Environmental Monitoring System
in Buryatia
· Designation of Ecological Network sites
· Sustainable Forest Management
· Improvement of land-use system in Khilok River basin
Regional Activities
· Environmental Education
· Reforestation at model territories in the Republic of
· Management plans for Zakazniks
Buryatia
· GIS mapping of Forest Resources in all regions
· Improvement of nature use management system in
model territories
· Ecological Education concepts developed Designation
of 8 new Natural Protected Areas (NPAs)
· Habitat restoration of 35 threatened species
· Refuges established for conservation of wetland and
fl ood-lands
· Natural Landscapes reconstructed
· Disposal of man-made waste
· Establishment of new reserves
· Creation of Education programs, manuals, and
handbooks
· 103 training programs
· Implementation of Local Initiatives Small Grant Program
· 30 fi eld ecological camps
Local Biodiversity
· Stimulation and Support of local initiatives on biodiversity · Consultative information centers created in 5 cities
Initiatives
conservation in Baikal Region to shape "Baikal Ideology"
and 6 villages
and unifi ed interregional environmental policy
· Contacts established with mass media
· 60 publications
· 100 booklets brochures and bulletins
· TV and fi lms created
· Exhibitions
· 28 Internet sites
· 251 seminars and conferences
· Over 69 mass public actions with an ecological slant
· 73 public environmental organizations created
· New areas allotted for outdoor leisure activity
· Support of environmental protection initiatives
Source:
Annex 4 of the Baikal Regional Component, Draft Results Overview.

Experience and Lessons Learned Brief
25

---

· Inter-regional Activities (US$0.9 million)--This ·
passing a regional "Biodiversity Strategy" tied to the
program focused on linkages between economics
Baikal Law.
and environmental protection, data collection and
dissemination and development of uniform legal, A signifi cant portion of the project's success was in the Local
environmental, and economic regulatory mechanisms;
Grants Initiative, which created a more public arm of the
program that helped energize the other two parts of the Baikal
·
Regional Activities (US$2.5 million)--This program Component. In total, GEF staff have estimated over 80,000
focused on sustainable forest management, people were reached through the duration of the program.
environmental education, modeling agriculture projects
and management plans for watersheds of three rivers
Table 5 shows that through the Local Grants Initiative nearly
entering Lake Baikal from each of the three surrounding
300 grants totaling US$2 million were distributed over a three-
states; and,
year period with 60% of the grants for less than US$5,000.
Over 50% of the grants were distributed in Buryatia, 35%
·
Local Biodiversity Initiative (US$2.5 million)--This in Irkutsk, and around 15% in Chita to individuals, NGOs,
program distributed small grants to NGOs, institutions,
academic institutions, national parks, schools, and others.
local communities, businesses and individuals to
encourage small-scale biodiversity protection and Of the 296 grants distributed, over 100 were for development
sustainable development activities in the Baikal and distribution of environmental education media; 70 were
watershed.
for actual restoration projects; 13 were for environmental
management related projects, and 16 supported scientifi c
Although the GEF Baikal project was specifi cally focused on
research.
biodiversity protection efforts within the Russian portion of
the Baikal watershed, many projects were directly related In reviewing the GEF Baikal Biodiversity Component, it should
to improving inter-regional management, environmental be remembered the diffi cult political environment in which
education, and strengthening the mentioned Baikal Law--all
this project was implemented. During the development of this
necessary in improving watershed management efforts at Lake
program, the Ministry of Environmental Protection and Natural
Baikal. Table 4 provides a partial list of objectives and results
Resources was signifi cantly altered with a large number of
from the GEF Baikal component.
project managers turning over. In addition, the project was
contained within two levels of projects implemented by the
Overall, despite a very slow start for the Baikal component, the
World Bank including the Russian Biodiversity Conservation
project was successful in:
Project and the US$280 million Russian Environmental
Management Project making management for this specifi c
· developing
signifi cant written and visual environmental
sub-project diffi cult. Finally, the former federal Baikal
education media;
Commission responsible for coordinating all policies at Baikal
was disbanded in 2000; it would have been responsible for
·
supporting a wide range of environmental education assisting in regional biodiversity conservation efforts.
and research entities evenly distributed across the
entire watershed;
With these diffi cult political issues aside, several areas could
have been improved within the GEF project. First, within the
·
assisting the development of the tools and institutional
design of the project, more effort should have been made
frameworks for improved resource management; and,
to incorporate international (Mongolian), regional and local
government goals into the regional planning efforts to ensure
its long-term success. This idea was discussed in the initial
GEF project planning stages, but was not adopted since it
Table 5. Summary of GEF Baikal Local Grants Initiative.
would have increased the project implementation time, and
Number of Grant Competitions (1998-
would have required a regional GEF project. In addition, this
14
2001)
project should have incorporated scientists or policy-makers
Grant Applications Received
1,758
from the Mongolian portion of the watershed. It is understood
this was a biodiversity project and not an international waters
Grants Approved by Board and
296
Financed
program. However, if the project was truly planning to conserve
regional biodiversity, fl ora and fauna are seldom infl uenced by
Total Grant Money Distributed
US$1,939,866
political boundaries and should be managed in a bio-regional
% of total grants distributed for less
59.5%
framework. The Regional Biodiversity Strategy does seem to
than US$5,000
be the main policy success of the program which did work to
% of total grants distributed between
38.7%
coordinate with all levels of government.
US$5,000 and US$20,000
% of total grants greater than
Second, the majority of follow up materials and reviews for
1.87%
US$20,000
the GEF project provide limited information about the regional
26 Lake
Baikal

---

and inter-regional activities of the Baikal program and how
70% of the water fl owing into Lake Baikal. Expected future
they have infl uenced regional biodiversity planning in the economic growth in Mongolia could bring a signifi cant rise in
Baikal watershed. One successful product has been regional
pollution levels, thereby increasing pressures between the two
biodiversity legislation.
countries. Both countries should work together through their
respective federal environment ministries to coordinate land-
Third, despite the obvious success of the local grant initiative,
use, monitoring, and restoration projects for the watershed.
there seems to be no larger focus on how selected projects will
help in the larger goal of either protecting regional biodiversity
Programs such as the GEF Local Grant Initiative should
or improving capabilities of regional resource management continue in order to empower and educate local communities
institutions.
on the benefi ts of protecting the environmental quality of
Lake Baikal. Visitors and residents to Lake Baikal can easily
Fourth, it is unclear how successful projects developed under
see the benefi ts of the US$2 million in GEF small grant funds
the GEF project will continue to receive funding now that the
distributed to over 260 individuals and organizations in the
project is over. A "Lake Baikal Foundation" was developed Russian portion of the Baikal watershed. Environmental
within the project to help fund and continue certain projects,
conservation and education messages are now apparent in
but little information is available yet as to the structure of this
every type of popular media in Baikal. Although these types
organization.
of programs could be more focused, the Baikal program
reached out to a wide sector of local constituents, empowering
4.
Lessons Learned and Next Steps
individuals in all economic strata to highlight their personal
efforts in protecting Lake Baikal.
In looking at domestic, regional, and international watershed
management efforts at Lake Baikal over the last 15 years, Local government agencies, staff, NGOs and residents
several important lessons can be learned that should be have built up signifi cant knowledge capital on watershed
incorporated into future resource management efforts.
management tools and methods over the last decade. Now,
assistance is needed to develop, implement and enforce
Strong, effective, regional coordination among government creative new watershed management strategies. Millions
resource management institutions at Baikal is essential of dollars in development assistance has been brought to
for effective long-term watershed management. Currently, Baikal since 1990 in the form of regional planning tools such
this does not exist. The lack of an intergovernmental and as GIS, international experts, and other signifi cant educational
interregional body to facilitate communication between resources. After a decade of learning these tools and
national, state, local, and international government and developing plans, now is the time for regional agencies to fully
non-government agencies is one of the most important implement a unique strategy. This would also include passing
gaps in watershed management at Lake Baikal. A successful
and enforcing laws that fall under the guidance of the existing
coordination effort could assist the region in harmonizing Baikal Law and developing more concrete boundaries for its 3
regional environmental legislation which in turn could assist
defi ned "ecological zones".
economic development. Coordination would also assist
regional monitoring efforts in synthesizing, analyzing, and A coordinated research and monitoring program is needed
assessing new and existing data and presenting environmental
to look at environmental impacts within the entire Baikal
thresholds for protection of the watershed.
watershed. Currently, no coordinated research and monitoring
program exists within the Baikal watershed. However,
Lake Baikal Watershed Management policies must link with
signifi cant regional environmental quality data exists on
regional economic development priorities, or risk being Lake Baikal. Regional budgets continue to decrease with less
ignored. Policy-makers should work hard to show the economic
money being applied to scientifi c research. Consequently,
and social benefi ts of proposed environmental conservation
policy-makers do not possess any cohesive set of water
legislation, projects, or policies in the Baikal watershed. For
quality information that would help them decide upon future
example, improvements to water quality should be connected
development in Buryatia and Mongolia. Efforts should be made
with the resulting health benefi ts, or increases in tourism to establish a long-term research and monitoring program that
potential. In the mining sector, it is relatively straightforward
measures environmental impacts throughout the watershed.
to show how small investments in new technology can greatly
This would also greatly assist resource management decisions
reduce environmental impacts in some regions.
in preserving the world's largest freshwater lake.
Mongolia should be incorporated into all Baikal watershed
5. Acknowledgements
management discussions. The defi nition of "watershed
management" to many working at Baikal has progressed The authors would like to thank Bill Wilson, Paul Grigoriev,
from meaning only the lake, to typically just the Russian Andrey Kushlin, John Tracy, and Gary Cook for providing
portion of the watershed. The Selenga watershed in Mongolia
comments. Any errors or omissions are the sole responsibility
provides over 60% of the water (and possibly an equivalent
of the authors.
level of pollutants) fl owing into the river providing almost

Experience and Lessons Learned Brief
27

---

6. References
which any of the authors are associated, any judgment on the
legal or other status of any territory, or any endorsement or
Baasanjav, G. and Y. Tsend-Ayush. 2001. Mongol Orny Zagas
acceptance of any boundary.
[Fish of Mongolia]. ADMON Publishing Company: Ulaanbaatar.
Bazuin, G., R. Grayson, F. McBride, and I. Barclay. 2000.
"Review of the Gold Dredges in Mongolia, with comments on
mitigation of environmental impacts." World Placer Journal 1:
90-106.
Borodin, A. and E. Syroechkovski. 1983. Zapovedniki SSSR.
Lesnaya Promyshlennost Publishing House: Moscow.
Matveyev, A.N., N.M. Pronin, V.P. Samusenok, and C.R. Bronte.
1998. "Ecology of Siberia Taimen (Hucho taimen) in the Lake
Baikal Basin." J. Great Lakes Research 24(4): 905-916.
Robinson, W.P. 2001. "Identifi cation of Potential Water Quality
Risks to Lake Baikal's Largest Tributary, the Selenga River, from
Mining and other sources: A Preliminary Investigation." Paper
prepared for Baikalwatch. Earth Island Institute: San Francisco,
CA, USA.
TACIS (Technical Assistance to the Commonwealth of
Independent States). 1999. Sustainable Forestry in the Baikal
Basin. TACIS.
UNESCO (United Nations Educational, Scientifi c and Cultural
Organization). 1996. Convention Concerning the Protection
of the World Cultural and Natural Heritage: Report from 20th
Session, 2-7 December, 1996, Merida, Mexico. (Available at
http://whc.unesco.org/archive/repcom96.htm#754).
Williams, D.S. and Conroy, A.D. 1991. Principal Point Pollution
Sources in the Lake Baikal Watershed with Observations on
Necessary Investments, Priorities, and Techniques to Minimize
Pollutant Discharge. Report prepared for Davis and Associates:
Wadhams, NY.
World Bank. 1996. Russian Federation Biodiversity
Conservation Project: Project Document. World Bank:
Washington, DC.
World Bank. 2003. GNI per capita 2003, Atlas Method and PPP.
(Tables available at http://www.worldbank.org)
Disclaimer
The fi ndings, interpretations and conclusions expressed
in this report are the views of the authors and do not
necessarily represent the views of The World Bank and its
Board of Directors, or the countries they represent, nor do
they necessarily represent the view of the organizations,
agencies or governments to which any of the authors are
associated. Also, the colors, boundaries, denominations, and
classifi cations in this report do not imply, on the part of The
World Bank and its Board of Directors, or the countries they
represent, and the organizations, agencies or governments to
28 Lake
Baikal

---

Appendix

Russian State and Regional Resource Management Institutions Cooperating with the
Ministry of Natural Resources (MNR) for Protection of Lake Baikal.
Institution
Roles
Federal Service of Hydrometeorology and Environmental
Monitoring (Roshydromet) (Irkutsk Agency of
· state ecological monitoring
Hydrometeorology, Transbaikal Agency of Hydrometeorology
(Chita) and Buryat Center for Hydrometeorology (Ulan-Ude)
· state water monitoring
· water protection zones
State Agency of Sanitary and Epidemiological Control of the
· licensing of water use
Russian Federation (4 territorial centers in particular)
· state control in water protection and use
· exploitation of reservoirs
· transboundary pollution control
· licensing and quotas for water use
· development of two comprehensive schemes of use and
State Fishery Committee of the Russian Federation, its
protection of natural resources on the Baikal Natural
territorial bodies Baikalrybvod (Baikal Basin Fishery Agency
Territory and on the Selenga River
with headquarters in Ulan-Ude and branches in 4 regions of
· research and restoration of fi sh and bioresources
the Russian Federation)
· research and protection of rare and endemic species
· ecological zoning
East Siberian Fishery Research Institute (Vostsibrybvod)
· research and restoration of fi sh and bioresources
Ulan-Ude
· development of comprehensive schemes of use and
protection of natural resources on the Baikal Natural
Territorial Agencies for control, protection and restoration of
Territory
game and wildlife resources of the Republic of Buryatia, and · assessment of permissible number of game for hunting
Chita and Irkutsk Oblasts
· research and protection of rare and endemic species
· ecological zoning
· water protection zones
State Land Resources and Land Planning Committee of
· ecological zoning
the Russian Federation (Land use Committee of Buryatia,
· development of two comprehensive schemes of use and
Chamber of the Land Cadastre, Irkutsk region, etc.)
protection of natural resources on the Baikal Natural
Territory and on the Selenga River
· control of safety of hydrotechnical facilities
· fl ood prevention
Ministry of Emergencies
· forest and steppe fi re prevention
· prevention of technology-related catastrophes
Ministry of Health Care of the Republic of Buryatia; State
Committee for the Affairs of Youth, Tourism and Sports of
· management and licensing of recreational resources
the Republic of Buryatia; Ministry of Culture; Ministry of
· environmental education
Education of the Republic of Buryatia; and corresponding
· cultural environmental traditions
departments of the regional Administrations of Chita and
Irkutsk Oblasts
Attorney General Offi ce and Inspectorates; Tterritorial
Divisions of State Technical Inspection of Mining and
· control and inspections of environmental compliance and
Industry; Inspectorates on Oil, Transport, and River
enforcement
Transportation
· public hearings of proposed decisions
· public control
Local self-governance and NGOs
· environmental initiatives
· promotion of ecological awareness

Experience and Lessons Learned Brief
29

---

---