Mongolia is experiencing a steady decline in birth rates, raising concerns about demographic shifts and the shrinking number of young people entering the population. To explore the reasons behind this trend and discuss potential solutions, we spoke with Acting Head of the Department of Family Policy at the Ministry of Family, Labor and Social Protection M.Tsogtbaatar about the government’s strategies for population growth.
With the birth rate steadily declining year after year, demographers now suggest that a continued decrease may be an inevitable demographic trend. In light of this, has Mongolia’s population growth policy lost its momentum or direction?
Despite the government’s policies aimed at increasing the population and supporting stable family structures, the birth rate saw a sharp decline in both 1999 and 2005. For instance, in 2005, the number of births dropped to around 50,000. However, the trend began to reverse, and by 2014, the birth rate had climbed to 80,000. One of the factors currently influencing birth numbers is that individuals born during those years of low birth rates are now reaching reproductive age. Moreover, the legalization of abortion in 1990 has had a lasting impact on overall birth trends.
There have also been noticeable spikes in birth rates following significant events. For example, the introduction of cash benefits for children and newly married couples, as well as the culturally significant “Golden Pig” Year in 2007, both contributed to temporary increases in births. In contrast, last year saw 57,800 births nationwide, which is a decrease of about 10 percent compared to the previous year. To address these challenges, the Family Law originally adopted in 1999 is currently under revision. A working group within the Ministry of Justice and Home Affairs is leading this effort.
Simultaneously, the Ministry of Family, Labor and Social Protection is drafting the first-ever Law on Family Support. This new law aims to create a supportive environment for population growth, childbearing and family development. It includes updates to legal frameworks covering areas such as adoption, guardianship, alimony, inheritance and embryo transfer. In addition, it proposes the establishment of a specialized family court. Beyond handling divorces, this court will also offer mediation services. Social workers and psychologists trained in mediation will be available to assist families through conflict resolution. Currently, the draft Law on Family Support is open for public comments, marking a significant step toward comprehensive legal support for families in our country.
Given the complexity of family-related issues, it seems reasonable to have two separate laws regulating them. However, in a country where we already have numerous laws - many of which suffer from weak implementation - was it truly necessary to introduce a standalone Family Support Law?
The most recent study on the state, structure and trends of family relationships in the country, conducted in 2018, found that one in three families requires housing support, while one in five families lacks sufficient income and needs a stable, regular source of earnings. Financial difficulties were identified as the leading cause of family separation. For comparison, the Republic of Korea has established legislation covering nearly every aspect of family life, including specific laws for single-parent households. In contrast, Mongolia currently addresses such issues through just one article within the Social Welfare Law, which is insufficient given the complexity and diversity of family needs.
Different types of families, such as young couples, families with members who have disabilities, and those with elderly dependents, face distinct challenges and require tailored forms of support. Moreover, families engaged in herding or those whose livelihoods depend on mining have unique needs that must be addressed through policy frameworks designed specifically for their circumstances.
Could you provide examples of the main provisions of the Family Support Law, particularly in terms of how it supports young families?
Globally, there are more than 10 common approaches to supporting families. These include monetary incentives, tax benefits, improved access to education and healthcare, work-life balance policies and housing assistance. We have studied these international practices and are working to incorporate them into the new Law on Family Support.
Currently, such comprehensive regulations do not exist in our legal framework. Instead, family-related support is scattered across sector-specific laws. For instance, the Law on Social Insurance provides benefits for targeted groups, such as survivor support and caregiving assistance. Young families, in particular, face significant challenges related to housing and employment. To address this, a new Law on National Housing is being drafted, and the Law on Employment Support is undergoing revisions.
One of the key factors in enabling parents, especially mothers, to participate in the workforce is access to childcare services. Our ministry is responsible for regulating these services as part of its mandate. Last year alone, over 1,600 children benefited from government-supported childcare. The need for such services is especially acute in rural and border regions, where access to kindergartens remains limited. The establishment of childcare centers in rural areas has led to increased employment among women and produced positive economic outcomes for communities. The Family Support Law includes a wide range of measures aimed at promoting family well-being. These include fostering positive family values, creating child-friendly environments, maintaining accurate family records, and officially recognizing and celebrating Family Day.
The family is the fundamental unit of society, yet since 2020, the divorce rate has been steadily rising. Has the ministry conducted any studies to understand the underlying causes of this trend? What initiatives is the ministry undertaking within the framework of policy to promote and maintain family stability?
According to the Mongolian Family Profile Study, the most pressing challenges faced by young families, those under the age of 34, are related to housing and maintaining a stable income. For families aged 35 to 49, financial concerns, as well as their children’s education and upbringing, were identified as the most urgent issues. When examining the causes of family conflict, 58 percent of respondents stated that financial difficulties were the main reason for their separation or divorce.
Other contributing factors included alcohol consumption, issues related to children and differences in opinion between partners. Interestingly, over 60 percent of those who divorced had been married for more than 10 years, with financial stress cited as the most common cause of the separation. While the number of divorces in Mongolia is on the rise, the rate remains moderate compared to other countries. In the previous year, the country’s divorce rate stood at 2.1 per 1,000 people. In contrast, the rate is significantly higher in countries like Russia and those in Scandinavia, where it reaches 4.7 per 1,000. Meanwhile, countries such as India and Sri Lanka report a lower rate of around one percent.
I understand that your ministry is conducting a study on the financial costs associated with having and raising a child. Could you share more details about this study and its findings?
Internationally, the cost of raising a child is assessed using various methods, typically based on expenses related to food, housing, transportation, education and other essential needs. In collaboration with the United Nations Children’s Fund (UNICEF), the Ministry of Family, Labor and Social Protection has initiated a project to calculate the cost of raising a child in our country.
There is an urgent need for a study that accurately reflects the real costs families face in Mongolia. Many countries, including New Zealand, Australia and India, have conducted comprehensive research to estimate these expenses. Notably, the cost of raising a child is among the highest in countries like China and South Korea, where not only childcare, kindergartens and schools, but also additional education expenses, contribute significantly to the overall cost. All of these factors are currently being examined as part of our ongoing efforts to better understand and support family needs.
It is projected that by 2050, one in five people will be over the age of 60, making social welfare and care facilities for the elderly increasingly vital. How is the ministry preparing for this demographic shift? What policies and initiatives are currently being developed to address these needs?
Mongolia is among the countries experiencing an increasingly active aging population. In June 2024, amendments were made to the Law on the Elderly to better address the needs of this growing demographic. As the number of older adults continues to rise, targeted programs are being developed, starting with enhancements to pension and benefit systems. The amended law also introduces alternative care services tailored to the elderly. These services are being implemented through regulations jointly developed with the Ministry of Health and other relevant ministries.
On top of that, the Law on Corporate Income Tax now includes provisions to support citizens and businesses that establish care centers for the elderly and persons with disabilities. Enforcement of these incentives and support measures is set to intensify this year. Another key initiative is the “Active Aging Support Center” Project, which has been piloted in partnership with the Asian Development Bank over the past two years. This year, the project is expanding and will continue its operations in seven to eight centers nationwide.
An audit has concluded that child protection spending has been inefficiently allocated. What oversight mechanisms does the ministry have in place to ensure proper management and accountability of funds and activities related to child protection?
Last year, 13.9 billion MNT was allocated to child protection. While this may appear to be a significant sum, it becomes quite limited when distributed across the children living in 21 provinces and nine districts. To ensure transparency and accountability, a new methodology for tracking and monitoring budget expenditures has been developed in collaboration with the Ministry of Finance. This system allows for the annual monitoring of child protection spending, ensuring that every tugrug allocated to the child protection budget is accounted for. The methodology was officially approved at the end of last year.
For the first time in Mongolia, incentives will now be provided to members of joint child protection teams. These teams, led by local governors, have historically worked under extremely challenging conditions, often without any compensation. Supporting children who have experienced abuse or who suffer from psychological and behavioral challenges is demanding and emotionally taxing work. Recognizing this, the government has increased funding for 2025, allocating 20.8 billion MNT for child protection services. This increase is expected to strengthen the capacity and motivation of child protection teams, improving the overall effectiveness of child welfare services nationwide.
