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UNCLAS SECTION 01 OF 05 ULAANBAATAR 000401 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
State also for USTR 
State for EAP/CM and EB/IFD/OIA 
 
E.O. 12958: N/A 
TAGS: PREL EINV EMIN ETRD KCRM SNAR PINR MG KN
SUBJECT: Speaker's views on Anti-corruption, Money 
Laundering and Windfall Profit Tax Legislation 
 
 
Sensitive but unclassified -- Not for Internet 
distribution 
 
¶1.  (SBU) Summary:  During the Ambassador's May 24 call 
on Speaker Nyamdorj, he expressed his firm support for 
the windfall profits tax passed by the State Great 
Hural (parliament), and opined that the body may 
override a veto if the President chose to take that 
step.  Companies that expected to earn high profits 
without any work might have complaints, but they should 
realize those high profits were being made from 
Mongolia's soil and the Mongolian people.  Nyamdorj 
said he had initially been dismissive of complaints 
about mining by demonstrators, but had been persuaded 
there are many problems.  Nyamdorj said that he is 
working toward passage of tax reform before the July 
recess, and this should provide a favorable business 
environment.  He also said he intends for the 
parliament to pass anti-corruption and anti-money 
laundering legislation before it adjourns.  End 
summary. 
 
¶2.  (U) Ambassador met with Speaker Nyamdorj on May 24 
for 80 minutes.  Nyamdorj was accompanied by MFA 
Director General for the Americas, Middle East and 
Africa Jambaldorj.  Nyamdorj noted that the spring 
session of the State Great Hural had a busy agenda, and 
would look at important laws in taxation, minerals, 
anti-corruption and anti-money laundering (AML).  If it 
was able to pass the bills, Nyamdorj jested, the 
session could be considered the legislature's 
contribution to the country's 800th anniversary 
celebration.  Nyamdorj said that he had looked at the 
papers that the Ambassador had sent in March on laws of 
interest to the United States.  He had forwarded these 
to the various Standing Committees and hoped they would 
take note. 
 
Ambassador Urges Passage of Laws 
-------------------------------- 
 
¶3.  (SBU) The Ambassador responded that Washington is 
especially looking for anti-corruption, anti-money 
laundering and terrorist financing, and corporate tax 
legislation.  Passage of good legislation would help 
the U.S. work better with Mongolia on its democratic 
and economic development.  There is a sense of urgency 
in Washington about Mongolian action on laws regarding 
money laundering, corruption, terrorist financing and 
tax reform.  The Millennium Challenge Corporation (MCC) 
is looking at the anti-corruption legislation closely; 
passage of legislation which implements Mongolia's 
commitment under the UN Convention Against Corruption 
would demonstrate Mongolia's commitment.  The 
Ambassador continued that there is high-level interest 
in Washington on North Korean illicit activities and 
money laundering activities.  There is also concern 
that Mongolian banks, which are without AML controls, 
could be used by terrorists.  Lack of AML controls had 
resulted in Mongolian banks having difficulty 
establishing correspondent relationships with U.S. 
banks.  She noted that a senior U.S. Treasury official 
would visit Mongolia in early June to discuss the AML 
and North Korean activities.  The Ambassador added that 
there is also concern in Washington about budget 
management by the Ministry of Finance and supervision 
of Mongol Bank.  The Treasury Department is prepared to 
send a technical advisor to help the Ministry, and 
perhaps also to Mongol Bank.  She asked Nyamdorj for 
his view of the situation and possible aid. 
 
¶4.  (SBU) The Ambassador noted that the Speaker had 
mentioned minerals and the tax law.  The U.S. hoped for 
changes to the tax law that would help American 
businesses -- but such changes would also generally 
create more jobs and economic growth for Mongolians. 
She noted that the USAID-funded Economic Policy Reform 
and Competitiveness (EPRC) project had provided 
analysis to the State Great Hural on the various tax 
reform options; the project looked forward to 
 
ULAANBAATA 00000401  002 OF 005 
 
 
continuing such assistance.  Regarding the recent 
passage of the windfall profit tax, the Ambassador 
said, she had heard many complaints from both Mongolian 
and U.S. businessmen.  They described the law as 
"shocking."  Regrettably, the law seemed to have sent a 
negative message to all investors, not just those in 
mining.  This was because it had sent a worrisome 
signal about the stability of the legal environment for 
business and about transparency of policymaking. 
Noting that the Democratic Party seemed to be saying it 
would not vote to override a veto, she asked the 
Speaker for his comments. 
 
Speaker Defends Windfall Profit Tax 
----------------------------------- 
 
¶5.  (SBU) Nyamdorj immediately responded that he would 
deal with the last issue first.  This issue had become 
a public issue and sensation -- rather like immigration 
in the United States, he opined, which had also 
resulted in marches and public debates.  There had been 
organized efforts to discuss the mining issue in the 
media, and provoke public attention.  As to the 
windfall profit tax, the Speaker said, the historic 
cost basis for gold production is $250 per ounce. 
Mongolia had said that, if world prices are more than 
$500, a 68% tax would be imposed -- companies would 
continue to keep 32% above this high price.  There was 
also a 68% tax on copper on prices in excess of the 
stated level.  Nyamdorj smilingly noted that Mongolia 
had been very happy in May of 2005 at the "peak" price 
of $2800 per ton.  The Speaker said he did not know 
whether the President would veto the windfall profits 
law, but if he did that could be overridden by the 
State Great Hural and the law implemented.  Regarding 
the Democratic Party, he said, he did not know if they 
would support the veto, but the bill had been 
introduced by their own members.  Nyamdorj recalled 
that in 1998, during Enkhsaikhan's time as Prime 
Minister, the Democratic Coalition government had 
introduced a windfall profits tax.  However, then 
President Bagabandhi had vetoed it, and the Democrats 
had accepted the veto. 
 
¶6.  (SBU) When the price of metals goes up, Nyamdorj 
said, it should not be just one party enjoying the 
benefit -- neither the Erdenet copper mine (note: a 
Mongolian-Russian joint venture) nor private companies. 
Nyamdorj said he had read carefully the Ambassador's 
thoughts on how the 1997 mining law had been "perfect." 
He said he was now comparing the 1997 law to the 1994 
law.  He had asked a working group to review how mining 
licenses had been distributed.  As he saw things now, 
Nyamdorj said, there had been many mistakes and 
misjudgments in implementing the 1997 law.  All of the 
negative outcomes had been caused by the imperfect 
nature of the legislation.  This had also led citizens 
to demonstrate and to the debate about new legislation. 
Nyamdorj cited two examples of problems with licensing. 
One person who was not even properly registered as a 
company owned 200 licenses.  In 19 soums of one aimag, 
50 mining licenses had been distributed in one day. 
Nyamdorj grimly jested that he felt sorry for the 
person who had signed all that paper on one day.  Some 
200 "companies" had obtained licenses by filing false 
documents.  These were examples of why Mongolia needed 
to review the licenses and needed to act to prevent 
these problems in the future. 
 
¶7.  (SBU) The Speaker continued that lack of land 
rehabilitation on mining sites is also a problem. 
Moreover, the Speaker noted, when the international 
market price for coal is $45 a ton, Mongolia was being 
told coal exports were priced at only $10 a ton.  All 
this explained the feeling there need to be changes to 
the law.  However, Nyamdorj said, Mongolia also 
believed that principles should be observed and mining 
companies which operated properly should be allowed to 
continue.  This position had been explained to 
demonstrators.  All domestic and foreign investors 
 
ULAANBAATA 00000401  003 OF 005 
 
 
should be treated fairly.  Those companies getting 
profits from mining should obey Mongolian law. 
 
¶8.  (SBU) The Ambassador commented that one of the 
concerns of mining companies regarding the windfall 
profit tax is its relationship to tax reform.  Mongolia 
also seemed to be considering abolishing tax holidays. 
There was concern that this was not being done as part 
of an overall tax package which would also contain 
offsets, for example deductions for business expenses 
as was being proposed in the tax law.  If done as part 
of an overall package, the government could still 
ensure it gets appropriate revenues from the sector. 
 
¶9.  (SBU) Nyamdorj responded that there had been two 
alternatives put forward: increased royalty payments or 
a windfall profits tax.  Mongolia had chosen the second 
option.  As to why the bill had moved quickly, the 
SGH's schedule is tight, and the bill seemed very exact 
and easily understandable.  There had been concern 
expressed by companies, who had been expecting to earn 
high profits without exerting any efforts.  These 
companies should remember they earned those profits at 
the expense of Mongolia's soil and its people. 
Nyamdorj added that there were many debates over Oyu 
Tolgoi (note: an apparent reference to the copper mine 
being developed at the site by Canada's Ivanhoe Mines). 
He understood that it would be 7-8 years before 
production was at full scale.  Prices might well drop 
considerably during this period.  Nyamdorj added that 
he disliked attempts by companies, both Mongolian and 
foreign, to "intervene in state policy."  Commenting 
that there had been many cases of corruption in 
government, Nyamdorj said he opposed these.  Ambassador 
asked him to clarify what he opposed, noting that of 
course corruption should be stopped.  Nyamdorj 
reiterated that he opposes intervention by lobbying and 
bribing. 
 
¶10.  (SBU) Regarding environmental damage caused by 
mining, the Ambassador noted that she had recently 
visited a Rio Tinto mine in Alaska.  The mine is 
situated in an environmentally protected area, and 
there are tight regulations on it from the federal, 
state and local governments.  At the outset of mining, 
a set aside of funds had to be made to ensure the land 
was fully restored.  She commented that it provided a 
good example of how effective regulation can ensure 
mining that respects the environment. 
 
¶11.  (SBU) Nyamdorj asked if the Ambassador had visited 
one of Mongolia's most notorious mining sites.  He said 
that whenever he drives past it, he can't bear to look 
at it.  All the excavated soil is still there, and is 
spoiling the Tuul River.  His question is, "What price 
is the Tuul River worth?"  When he had visited Utah, he 
had seen a copper mine using modern technology, and 
without damage to the environment.  In Mongolia, 
however, the mining companies were causing a lot of 
damage; this should not be a problem if modern 
technology is used.  Nyamdorj repeated his 
recommendation the Ambassador pay a visit to the mining 
site.  The situation had led to considerable public 
upset.  The Ambassador responded that she was aware of 
at least one local group opposed to the mining damage. 
Companies are not making an effort to rehabilitate the 
land, Nyamdorj said.  "That's why I'm going to tell 
them to stop."  Nyamdorj opined that countries like 
South Korea are able to reach high development without 
mining. 
 
¶12.  (SBU) Nyamdorj returned to the subject of the 
disparity in coal prices between world markets and what 
was claimed as the price on export from Mongolia. 
These companies are using false documentation to keep 
the profits outside Mongolia, he said.  The Mongolian 
state and public could not turn a blind eye to this 
problem.  This also raised questions of justice and 
fairness, and about Mongolia's fight against 
corruption.  If these companies mine Mongolian coal, 
 
ULAANBAATA 00000401  004 OF 005 
 
 
they should obey Mongolian law and pay Mongolian taxes. 
Otherwise, why should Mongolia allow export of its 
coal?  Nyamdorj said he was being frank with the 
Ambassador because he knew he could do so and receive 
fair comments in response. 
 
¶13.  (SBU) The Ambassador responded that she also 
wanted to be frank.  Mongolia could reasonably control 
speculation on mining licenses without any production. 
It should certainly protect the environment. She 
expressed concern, however, that the windfall profits 
tax and other things being discussed might result in 
driving away high quality foreign mining companies, 
which would pay taxes and protect the environment.  She 
noted that such companies, from the UK, Australia and 
Canada are in Mongolia, but none from the U.S.  As a 
result, Mongolia might be left with Russian and Chinese 
companies who would not play by international 
standards. 
 
Speaker Hopes for Tax, Mining Law By July 
----------------------------------------- 
 
¶14.  (SBU) Nyamdorj said that he hoped the State Great 
Hural will finalize mining and tax laws before its 
planned recess in July.  There is an urgent need to 
settle all these issues.  Mongolia would be more than 
willing to accept suggestions and even change laws, if 
companies are willing to use modern equipment and not 
harm the environment.  Both sides need to work to 
better understand each other's position.  The companies 
should respect Mongolia sovereignty, he said.  Nyamdorj 
said that when the demonstrators had first begun 
raising these issues, he hadn't taken their claims 
seriously.  Then, upon looking more closely, he had 
realized there are major problems.  Hopefully, Mongolia 
would soon pass legislation to provide a good new legal 
environment, and one which would allow foreign mining 
companies to make profits.  He said he understood the 
need to do this as quickly as possible. 
 
Speaker Cites Weak Bank of Mongolia Management 
--------------------------------------------- - 
 
¶15.  (SBU) Regarding the Bank of Mongolia, the Speaker 
said he had set up a SGH working group to review the 
matter.  The law on central banking, which had been 
adopted in the early 1990s, is being reviewed and might 
be amended.  This year, there would be leadership 
changes at the bank; he opined that the bank's 
management was weak.  He said he also felt that 
oversight of the bank needs to be looked at.  He had 
hoped the IMF team that had just visited would make 
good recommendations, but he was disappointed.  The two 
IMF recommendations were either unacceptable or 
unhelpful:  one, that the SGH amend the banking law to 
prohibit the government from dipping into the central 
bank reserves as it did to pay off the Russian debt in 
2003 and, two that the membership of the supervisory 
committee of the Bank should be expanded.  He did not 
accept the first point.  The money in the bank was 
owned by the people of Mongolia, and the State Great 
Hural had viewed it as the responsibility of Mongolia 
to settle its debt with Russia.  He did not accept 
criticism on this issue.  He had been looking for 
constructive IMF suggestions on how to take steps to 
improve the structure of the bank.  He was now waiting 
for the working group's report and would then take a 
look at supervision. 
 
Speaker Hopes for Anti-Corruption Law, AML By July 
--------------------------------------------- ----- 
 
¶16.  (SBU) Regading the anti-corruption law and anti- 
money laundering law, he said, he expected the State 
Great Hural will be able to pass these during its 
spring session.  Standing Committee work on the anti- 
corruption law would hopefully begin next week.  Tax 
reform had already passed its first reading, and more 
work would be done during this week.  After both these 
 
ULAANBAATA 00000401  005 OF 005 
 
 
laws had passed, the SGH would take up the anti-money 
laundering laws.  He repeated that he wanted the SGH to 
pass all four laws he had mentioned before it adjourns. 
 
SLUTZ