According to Government Resolution No. 57 of 2019, organizing horse races, show jumping events, and sprint trials is prohibited annually from November 1 to May 1. However, during its meeting on January 29, the government nullified this resolution, announcing that spring races could be held starting from March 1. This decision has met with strong opposition not only from the public but also from child protection experts. Furthermore, the United Nations has issued a formal statement addressing this matter to the Mongolian government.
In light of these developments, we present the stance of T.Ikhtamir, Director General of the Authority of Child and Family Development Protection (ACFDP).
The government’s decision to allow spring horse races has faced significant public backlash. What is the position of the authority, which is tasked with protecting children’s rights?
ACFDP operates in accordance with the laws and legal acts enforced in Mongolia. We focus on protecting and preventing violations of the rights of children, who comprise one-third of the country’s population. Recently, protests were held regarding the organization of winter and spring horse races. Protesters advocated for the resumption of these races during the colder months. Consequently, the government decided during its meeting to permit horse races starting from March 1. In addition, it was decided that local authorities would determine whether horse races would be organized in their respective areas.
This decision directly violates children’s rights. Therefore, professionals working in the child and family development sector do not support this decision. Although we are government officials tasked with implementing governmental resolutions, we have taken an oath to protect children’s rights. As such, we will not comply with unlawful decisions that endanger the well-being of children.
Experts have assessed that this decision violates international agreements, conventions, and the Law on Children Protection. As a legal professional, could you explain the legal implications of this issue?
Mongolia has joined and committed to implementing several international conventions aimed at eliminating hazardous child labor. As a result, it is imperative for us to align our domestic laws and regulations with these international treaties and conventions. For instance, the Law on Children Protection has been enforced since last year, and the Law on Labor provides specific regulations regarding child labor. The Criminal Code also addresses the forced or unpaid labor of minors, outlining legal consequences for offenders under both the Criminal Code and Law on Infringement.
The government has been implementing projects and programs aimed at family-based child protection. However, this recent decision essentially negates these efforts. By allowing horse races to be held starting from March 1, horse trainers will naturally begin preparing their horses, including sprint trials and other training activities, before that date. This poses significant risks to children who participate as horse riders.
Article 27 of the Law on Children Protection explicitly states that children may participate in cultural, sporting, artistic, and other events based on written parental or guardian consent, provided that the environment does not adversely affect their development, health, or upbringing.
Given Mongolia’s harsh climate during the late winter and early spring months, such activities could pose serious health risks to children. While the law includes innovative provisions outlining the rights and duties of child horse riders and horse trainers, this decision blatantly contradicts these regulations.
Our sector has formally submitted recommendations to the Prime Minister, who also serves as the Chair of the National Council for Children, urging the government to adopt child-friendly and lawful resolutions. The National Council includes the Ministers of Family, Labor, and Social Protection; Digital Development, Innovation and Communications; Justice and Home Affairs; Education; and Health, as well as representatives from three international partner organizations and child rights NGOs, totaling over 20 members. ACFDP is responsible for serving as the working arm of the council.
We sincerely hope that the government will prioritize the implementation of the Law on Children Protection and make decisions that uphold the best interests and well-being of children.
Is there any research on children injured in horse racing?
The digital database for child horse riders statistics has been operational since 2017. As of now, the database contains records of 11,723 children. Data indicates a steady increase in the number of child horse riders over the years.
In 2022, a total of 397 horse races were held, resulting in 85 children falling from horses, with six fatalities. The following year, 2023, saw 353 races, during which 464 children fell, 149 sustained injuries, and four lost their lives. Last year, 388 races were organized, with 212 children injured and four fatalities recorded.
Since records began in 1996, a total of 52 child fatalities have been documented due to horse racing-related accidents. From 2017 to 2024 alone, 24 such cases were officially registered. According to the National Trauma and Orthopedic Research Center, 1,115 children sought medical attention for injuries sustained in horse riding accidents during this period, with 16 succumbing to their injuries. Alarmingly, 47 percent of these cases—524 children—suffered head trauma, while shoulder and upper arm injuries were also prevalent.
Research findings from relevant institutions have confirmed the extreme dangers of allowing children to ride horses during the winter and early spring seasons, when icy and slippery conditions prevail, and temperatures plummet to minus 20 to 30 degrees celsius. The risk of severe injury is significantly heightened under these hazardous conditions.
These statistics underscore the urgent need for stricter regulations and enforcement to protect children from unnecessary harm in horse racing events.
Is there a provision in the list of prohibited jobs for children that includes horse racing activities?
Yes, the list explicitly prohibits children’s participation in horse races, including sprint training and practice races, from November to May each year. This regulation is crucial as involving children in horse racing infringes on their rights to education, development, and safe living.
Many decision-makers and the public must acknowledge this serious issue. Children lack the capacity for independent living and self-advocacy, making them highly vulnerable. Alarmingly, a study conducted between 2017 and 2024 found that 609 children were living with horse trainers, raising concerns about potential labor exploitation. According to international guidelines, cases where parents abandon their parental responsibilities and leave their children in the care of horse trainers could be classified as human trafficking crimes.
When children are injured or die in horse racing accidents, the relevant authorities investigate these cases under the Criminal Code and Law on Infringement. Moreover, research has been conducted on how damages are compensated. One concerning case involved a 12-year-old child who suffered a severe head injury after falling while racing a horse. The police investigation concluded that the case did not meet the criteria for a criminal offense and found no liable party. However, the National Human Rights Commission of Mongolia intervened, appointing an expert to hold the horse trainer accountable for compensation. Tragically, the child sustained a permanent brain injury, rendering them unable to continue their education and causing lifelong disability.
Such cases are unfortunately all too common. Consequently, the authority is actively working to address and mitigate these incidents. Greater awareness, enforcement of regulations, and comprehensive child protection measures are essential to ensure the safety and rights of children in Mongolia.
How do local authorities and horse trainers collaborate on child protection efforts?
The heads of provincial governors serve as leaders of the Local Child Protection Councils, tasked with ensuring cross-sectoral cooperation and safeguarding children’s rights. However, in practice, some local leaders support horse trainers and organize circular horse races despite the legal prohibition of such gambling events. Disturbingly, a race offering a 1,000 USD cash prize was held in 2024, despite regulations banning gambling races and competitions.
The Minister of Family, Labor and Social Protection has issued an order explicitly prohibiting the participation of children in circular races. Nevertheless, cases of children being involved in betting races have increased recently. In response, we held meetings and discussions with the leadership of the association in charge of Mongolian horse racing and trainers last year.
In addition, we are investigating the causes of injuries when children fall from horses. This includes examining whether protective clothing and equipment meet safety standards and assessing if issues such as non-detachable stirrups contributed to the accidents. Ensuring adherence to safety standards and raising awareness about these requirements remain key priorities to prevent further harm to children involved in horse racing activities.
Are there challenges for child protection workers operating in rural areas?
Yes, working in rural areas presents significant challenges. The child and family protection sector currently employs around 1,100 personnel, supplemented by 833 social workers. According to the Law on Children Protection, every soum and khoroo is required to have a dedicated child and family protection officer. The government’s focus on increasing human resources in this area is commendable.
Child protection workers have a range of responsibilities during horse races, including registering participating children, ensuring they are wearing complete protective gear, and following the race from start to finish by car to monitor their safety. However, some units lack vehicles entirely, while others have vehicles that are non-operational due to mechanical issues.
We have submitted proposals to the relevant ministries to address these logistical challenges, emphasizing the urgent need for functional vehicles to improve safety monitoring and ensure more effective protection of children during such events.
By D.CHANTSALMAA
