Citizens rarely have direct interactions with the mayor. However, they have the right to meet with the governor of their khoroo at any time to address their concerns. In practice, essential government services are first provided by local governors, doctors and police officers within their respective villages. Unfortunately, the khoroo governors who are closest to the citizens have long misused their authority, eroding public trust by engaging in favoritism, trading rights, compromising their integrity and undermining community values.
For years, the public has identified the governors as key sources of dysfunction within local governance. Many citizens agree that their most notable activity is political agitation on behalf of parties rather than serving the community. A recurring issue raised by residents is the instability of human resources within primary government units, particularly during election years. Frequently, new appointments are made not based on merit or community collaboration but on political alignment. Given that more than 50 percent of the governors of the bag and khoroo are replaced during national, provincial and capital city elections, there is growing concern that these positions are largely controlled by political parties rather than being dedicated to public service.
Furthermore, citizens argue that many bag and khoroo governors lack relevant experience and a clear understanding of their responsibilities but excel in political campaigning. There is also a widespread perception that these officials engage in discriminatory practices, favoring individuals based on political affiliation or socioeconomic status rather than prioritizing the needs and interests of the public. This persistent issue continues to undermine trust in local governance and highlights the urgent need for reform.
Since 1992, the administrative and territorial division of Mongolia has been structured into bag, khoroo, district, province and the capital city. According to a survey conducted last year by the National Statistics Office, Mongolia comprises 21 provinces, 330 soums, 1,647 bags, the capital city, nine districts, and 204 khoroos. A khoroo is the primary administrative unit of Ulaanbaatar, while a bag serves as the primary administrative unit of the provinces. Each bag and khoroo is overseen by a governor, with 1,851 governors currently serving in primary state units nationwide.
Ulaanbaatar’s nine districts previously had 152 khoroos, but due to increasing population density, several were subdivided, resulting in the current 204 khoroos providing public services to citizens. The responsibilities and jurisdiction of bagh and khoroo governors are extensive. They manage and safeguard sensitive personal information, which is stored in the electronic database and secure archives of each khoroo, protected by law.
Would you believe that 141 laws define the powers and functions of province, soum, bag, and khoroo governors nationwide? This means a significant number of legal provisions relate specifically to the duties of bag and khoroo governors. However, governors are not required to independently search for these provisions across multiple laws. However, many members of khoroo, as well as bag leaders, are not well-versed in these laws. It is no exaggeration to say that they often operate under the “laws” of their political party and superiors rather than the actual legal framework. Moreover, when incidents that shock society arise, the governors frequently hold the “card” to manage and suppress public outrage.
A recent example is the tragic case of six family members who died from carbon monoxide poisoning, which gained widespread attention on social media. In addition to the sole surviving family member’s statement, sensitive personal information about the deceased was improperly disseminated online, seemingly to distract public attention from the core issue. Information that should have been legally protected, such as the victims’ struggles with alcoholism, their poverty, the assistance they received from the khoroo, and the victim’s son’s involvement in theft, was made public. This breach of confidentiality exposed the victims to unnecessary scrutiny and violated their right to privacy.
Minister of Justice and Home Affairs O.Altangerel recently announced that a case has been opened against B and four others who allegedly leaked this information via a Facebook group chat before it was widely shared on social media. The public remains divided over who initially disclosed these details, with widespread suspicion falling on the khoroo governor. Many citizens believe that only khoroo employees had access to such confidential information, raising serious concerns about data privacy and the ethical conduct of local government officials.
District governors have been “accused” of orchestrating political manipulation, including the unauthorized distribution of citizens’ registration numbers, addresses, family status, socioeconomic conditions and voter information during elections. It has become increasingly common for political operatives, known as agitators, to invade citizens’ privacy under the guise of election campaigning. These individuals enter homes uninvited, make unsolicited phone calls, and aggressively solicit political support. Even in public spaces, such as queues for government services, citizens report being openly approached with statements like, “You live in that building, right? Support our candidate,” blatantly violating their right to privacy and free choice.
On top of that, district officials are frequently criticized for favoritism in the distribution of donations, loans, aid and food stamps from state, private and international organizations, prioritizing personal acquaintances over eligible recipients. This persistent misconduct raises an essential question: What kind of individuals should serve as district governors? Is there any legal provision that allows a governor to infringe upon citizens’ rights, opinions, or voting freedoms? In accordance with the Law on the Management of Primary State Units, a governor is a special official responsible for implementing state administration within their jurisdiction. As a representative of the state, the governor is tasked with ensuring the enforcement of laws, government decisions and directives from higher authorities. Their powers and responsibilities are strictly defined and limited by law. Therefore, under the principle of the rule of law, governors must fully understand their legal authority and obligations and ensure that their decisions and actions strictly adhere to legal and ethical standards.
Under the Law on Administration, Territorial Units and Their Management of Mongolia, candidates for bag and khoroo governor positions must meet specific legal requirements, including having a higher education, being free of financial and tax debts, and having no criminal record. They are elected by a majority vote of local councils and must be approved by a higher-level governor. However, despite the legal framework defining their powers and responsibilities, there are few standardized procedures for their selection or appointment. Their professional background, work experience and legal knowledge are inconsistently addressed in different laws, making it difficult to establish a unified national database on the age, gender, qualifications and skills of the 1,851 bag and khoroo governors.
The National Statistics Office has acknowledged this gap, stating that since these officials are political appointees, no detailed human resource surveys are conducted at the national level. Instead, such assessments may be carried out in part by the Civil Service Council or political parties. While a census of administrative structures, territorial units and populations exists, there is no comprehensive database on the human resources within primary administrative units.
A 2021 performance assessment of the statistics office revealed serious concerns about the qualifications of local governors. Many are unskilled or non-professional, struggle with timely reporting, and lack proficiency in computer and software skills, making it difficult for them to manage population databases, census reports, and statistical data effectively. Despite these issues, no further studies have been conducted on the competency of khoroo governors at the capital city level.
This lack of oversight benefits those in power, as it ensures that governors are chosen based on political loyalty rather than professional qualifications. The result is a system where uneducated, inexperienced and politically affiliated individuals hold key administrative positions, weakening governance, public trust and service delivery at the primary level.
The bag and khoroo governors play a crucial role in implementing laws and policies within their respective territories. As officials working in coordination with government offices, secretariats, and professional organizations, they are expected to have a strong legal foundation to effectively carry out their duties. However, it is concerning that no systematic evaluation or study has been conducted on the age, gender, education and skills of nearly 2,000 primary-level government officials. To date, only one targeted study has been conducted at the provincial and soum level, leaving a significant knowledge gap in assessing the overall qualifications of these officials.
For example, a 2023 study in Khuvsgul Province revealed that out of 128 bagh governors, only three had legal qualifications, and 57 percent were newly appointed. The Bag Governor’s Office employees also face instability in their positions, with a shortage of qualified personnel and inadequate human resources. As a result, many of these offices struggle to address local issues within a legal framework, conduct project planning and monitoring with proper legal grounds, or provide informed recommendations to higher authorities.
The Law on Administration, Territorial Units and Their Management of Mongolia emphasizes empowering primary-level governors and enhancing their education and skills. To achieve this, the government organizes regular meetings, conferences, and annual online training programs covering professional, methodological, ethical and legal aspects of governance. However, despite these efforts, public criticism persists. Many argue that these governors lack the minimum qualifications and skills, make highly politicized decisions, and fail to uphold the ethical standards expected of state officials. This concern highlights the urgent need for better selection processes, stricter competency requirements, and continuous professional development for primary-level government officials.
