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Hongyuan County RAS 1995
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HONGYUAN COUNTYRAPID ASSESSMENT SURVEY
carried out bv
FRIENDS OF CHINA FOUNDATION
l n
June 1995
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t ) l IA t )T l l l l IraGtlNt).
I . I N T R O D U C T I O N I2. DESCRIPTION OF HONGYUAN COUNTY 3
2.1 Geography, Altitude and Climate2.2 Natural Resources2.3 Econorny2.4 Social Structure2.5 Development - V is ion
3A
A
59
] . HISTORICAL PERSPECTIVE OF HONGYUAN COUNTY 04. GOVERNI\4ENT POLICY AND PLANS 3
4. I International Conventions-1 .1 The R io "E : r r th " Sur r r rn i t.1 .3 Ch inese Governnrent Po l i cy & P lans (1977-1995)4..1 References fron.r the Chinese Consti tut ion on lv{ irrori tv
People-1.5 The Role of the Hongyuan County Off icials-1.6 Hongyuan Integrated County Project-1.7 The Green Food Corporation and the 3 Point Projcct
1 3l 61 8
1 8l q
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5. SURVEY N{ETHODOLOGY 1 A
5. I Introduction5.2 Survey Team5 .3 Terrns of Reference5.4 Method of Survey5.5 The Concepts of RRA and their Application5.6 Sur-vey Schedule and Places Visited5.7 Analysis of Findings and Report Writ ing5 .8 L i rn i ta t ions o f Survey
A A
24a A
2525272728
6. TECHNICAL REPORTS 306. I Grasslands6.2 An i rna l Husbandry6 .3 Eng ineer ing6.,1 Forestry6 5 Pub l ic Hea l th6 .6 Educat ion
3 l39495565? o
7. SUN,{MARY 907.1 Recornrnendat ions7.2 Organ isa t iona l Imp l ica t ions7.3 Ref lec t ions on Survey
909 l92
E. REFERENCES 95APPENDiCES
TAIILI] IraGlls-f).
2. I Hongyuan 20 Year Meterological Means 32. 4.1 Hongyuan Populat ion2.4.|a Pooulat ion Pvrarnids of Sichuan Prefectures 62. 4.2 Distr ibution of Honsyuan Populat ion by Vi l lage/Town 64. 6 ldeal ised Flowchart of Honsvuan Productivi tv 226 . 3. I Countv Hvdrooower Plans 506 . 5.2 Honsvuan Health Indicators 66
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Chapter 1 Introduction
l l . INIPLEIV{ENTATION OF AGREEMENTI .2 . EXECUTIVE SUMMARY
Irt July 1994, at an investrnent fair held in Chengdu, Sichuan Province, of l lcers of fr iendsof CIr ina nret with off icials fronr the People's Governnrent of Hongyuan County to discussa proposed co-operative project. Hongyuan County is si tuated in North-western Sichuan inthc centre of the Aba Tibetan Qiang Autonornous Prefecture. Counly off icials developed aconstruction plan in 1992, and requested co-operation in fbrestry, agriculture, health,education. hydra-electr ic generation, and water resource managentent. ln 199.1, AbaTibdtan Aut(rnolnous Prefecture was recognised as ;r "special t lcvcloprnent area".
A lettcr of intent was signed between FOC and off icials from Hongyuan County in July1q9.1
1. ] IIIPLI|M EN'.ATION OF AGREEMENTIn r\ugust 1994, a water engineer visi ted HongyLran, and in Septenrber of that year aforcst! ' r and an FOC oft lcer visi led Hongyuan and were presented with a nunrber ofproposals rurd requests.
At thc bcginning of 1995, international technical experts with experience in developmentrvork u'ere contacted by FOC and were invited to corne frorn a nurnber of countries. InJunc 1995, they travel led to Hongyuan County, conducted a survey of the area, andreporteci t l reir l indings to Foc. The fol lowing pages contain the detai led report of thatsrr rvcy.
It is sincerely hoped by al l rnembcrs of the Hongyuan survey teanr that FOC wil l receiveGod's gLridance and enabling as they consider the i tnpl icat ions of this report.
1.2 EXDCUTIVE SUMMARYThc purpose of doing this base-l ine survey was to assess the possibi l i ty of FOC becomingtnvolved in long-ternr rural developrnent work in Hongyuan County. We were specif ical lyir tvestieating potential involvernent in six areas previously identi f jed by the County inrvlt ich rve rnay be able to nrake an on-going contr ibution. Tlre cri tcr ia that were used inasscssing this potential were that the result ing involvement would be: within a specif ic t imefranrc, scen as responding to legit irnate needs, focusing on work with peoplc (espccial ly inrraining), and repl icable in other sinri lar areas. Along wit lr this cr i tcr ia t l le teant <levelopeda vision statenrent which was used as a guidel ine in nraking specif ic recontntendations inc:tch arca Lrndcr investigatlon (Section 2.5). Each teanl nren)bcr wrote a tcchnical report onthcir area of expert ise, giving options of future involverr ient and surnnrarising these bystating advantages and disadvantages. (Chapter 6)
Hongyuan Counry Rupid ossessmtnt Sun'ct'
The team has suggested that before Friends of China become further involved in ruraldevelopment work there are important questions that need to be addressed by ourleadership, both at a staff and board level. These key issues suggested for furtherinvestigation are in the following six areas: vision, structural implications, planning,personncl, finance and government relationships. We need to have defined a clear visionof our long-term goals, particularly considering whether we should set up our ownprogranrs or second personnel to government or other exist ing situations. Plans need to beclearly thought out which include strategies for monitoring their progress.
It was highly recommended that e Rural Development Co-ordinator be in place belore anyfurther steps or involvenrent in rural development be implernented. Their presence wouldbe necessary to ensure that adequate preparation of proposals, plans, funding and personnelwould be eff iciently completed. I t would also be important for him/her involved in theinit ial negotiat ion with the government. This person should have previous experience inrural deve)opnrent work and i t would be considered advisable for them to hlve hadacadernic training in some technical f ield. They need the abi l i ty to give clear leadership innranagerrent, faci l i tate training programs and cope with a high degree of frustrat ion. I trvrs further suggested that it rvould be ndvisahle to have an rdministrative/finance person tosuplnlt t l lc eo-ordirtator. l l is/hcr dutics would bc to crst:rblrslr proccrlurcs lbr budgctrrrg,relate to donors, and give necessary leadership in audit ing and nronitoring of projects.
Final ly, the pol i t ical i rnpl icat ions of working in a rninori ty area nrust be clearly thought-out. FOC tnust avoid being used as a pawn in any struggle between the dif ferent po)i t icalfact ions in these minority areas.
I would l ike to thank the rnenrbers of the survey teanr for their valuable contr ibution to thework of FOC. The hard work, co-operation and spir i t of unity which this team exhibitedmade the survey a del ight to lead. I am also indebted to our four FOC Associates whoacconrpanied us. They gave helpful service, both by providing support in their technicalf ields and by being a bridge into the community for the team by using their language ski l lsand knowlc'r lge of the culture.
- l - 2-
Chapter 2 Description of Flongyuan Couttty
2. I CEOGRAPHY, ALTITUDE AND CLIMATE2.2 NATURAL RESOT,IRCES2 . 3 E C O N O M Y2,4 . SOCIAL STRUCTURE
2,4 . I . POPULATION2..1.2. SETTLEMENT PATTERNS2. .1 .3 . MIGRATION2.1 .4 , GENDER ASPECTS
2.5 . DEVELOPMENT - V ISION
2.1 CEOGRAPHY, ALTITUDE AND CLIMATEHongyLran County l ies in Aba Prefecture^ in Northrvest Sichuan, see enclosed map at the
beginning. i t covers an area of 8440 km/ extending 140 knt fronr east to west and 160 kmfronr north to south. The county is a high-cold pastoral area cortrprising plateaux at about3,500 Dretres above sea level and tnountain r idges r ising to over 4,000 rn and peaking at4760 rn. The rnajori ty ol t l te county drairrs north to the Yellow I{ iver via the Bai River,
but the souti lern end drains south to the Yangtze via the Suolno River. The Suorno Valley
is largely forcst and cult ivated land in contrast to the pasture-land which predominates
clscrvhere in the county.
For six r'))onths of the year the mean tentperature renlains bclow freezing, which has a
donrinant effect o.n both the environntent and the l i festyle of t l re pcople. Minimumternperature is -36 C, and the niaxi lnunt is 25 C. Average anntral rainfal l , largely as snowis 753 rnrn, fal l ing predominantly in the sunrner months fror)) N{ry to October. Sunshinehours are a high 54 % throughout the year. Detai ls of the cl inlate arc given in Table 2. l .
' I ' lble 2.1 I longyuan 20 Year lVleteorological Melns
Ll o n.g y utt t t C (, u I t D, R a P i d Ass r.v.; n t t t I S u r v'v
The county town of Hongyuan is si tuated near the centre of the county, and the only othersignif icant town is Shuajingsi, near the southem end of the county. The county isadrninistr:r t i r , 'c ly divided into these 2 torvns, 9 "town areas", 3 state ranches and 33 vi l lages.
Hongvunrr is reached by road frorn Chengdu in about l2 hours. The road is subject tolandsl ides cluring wet weather. Within the county the roads are al l unsurfaced: the nrainro:rds frorn Chengdu and to the north and east are well-rraintained, but minor roads l t-ss so.
Most vi l lages are accessible by vehicle, and are provided with telephone, electr ici ty andwater sl ippl ies. The qLral i ty of these services is variable, however, and some have been outof conrmission for up to 5 years. There are no sewerage systems.
There arc 25 primary and 3 nriddle schools in the county. Health services are providedthror rgh 25 c l in ics and 2 hosp i ta ls .
2.2 NAT'URAL RESOURCESThe grasslands nrake up 89% of the county and are i ts nrost important natural resource,srrpport ing rn anirnal l ivestock indLrstry of 450,000 animals inclLrding 300,000 yak.
Extcnsivc peat deposits are fbuncl in the Hongyuan area. Their use rvas the subjcct of a 4-year .Swedish study for the Sichuan Inst i tute of Natural ResoLrrces (Bjork, 1993). Theconclusiorrs of the study were that the peat is not suitable for industr ial use, due to i tsburning characterist ics, but that i t is attract ive for dornestic and hort icultural use.
Conrmercial logging is taking place in the remaining forested areas, part icularly in the Westand South of the county.
Most of the 2 MW electricity capacity in the counly is generated fronr the 7 h_ydropowerstat ions. The rnost inportant are two stat ions on the Amukhche r iver, sLrpplying HongyuanTown an<l the northern part of the county, and two on the Suorno at Shuajingsi. The latterare able to operate at full capacity all year round, but those in the north suff'er fronrrcduccd l lows or have to shut down due to freezing during the winter.
Oil is reported to have been discovered recently in Roergai, the county to the north ofHongyuan, so may also be in the county. Invcstigations are currently under way toestabl ish t l le extent of the gold deposits.
2.3. ECONOMYThe pcop)c of Hongyuan appear to be reasonably well-ol l ' : indicators are that 30% of the4,000 nonradic famil ies have solar panels costing around 1000 yuan, and that ntotorcyclesare evicient in both Hongyuan Town and the vi l lages and grassl irnds. Housing standardsvary fronr well-bui l t stone houses to l imber houses with or without peat insularion.
The nrainstay of the economy is the l ivestock, which yields milk products, nteaf, Ieather,wool and related ntaterials. Herbs are collected and used both for medicinal and veterinarv'DurDoses.
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( ) r 'cr 70| l o i the popLr l r t ion are er ]gaged in nonacl ic pastoral isnl . lndus[r ies in Hongyuan' l 'oun
inclLrde t l re N{ i lk-powcler Factory (200 ernployccs), thc N{cal l ) rocessir tg Factory( 170), r r pharrnaceut ical tactory (150), and a sa$,n) l l l (70). At ShLraj ingsi there is an aninta lnrecl ic inc factory wi th i ts own 500 kW hydropou,cr . s tat ior ] . Snral l sr iwr l i l ls and leathergoods pro( luct ion are spread throughout the coLlr) ty .I {ongyLrarr h i rs only recent ly been opened for tour isnr , and is being prornoted as part of aci rcLr i t i rorr Chcngdu including Juizhaigou and Huanglong. Hongyuan Town and
Shuqingsi both have hotels, shops and restaurants; Hongyuan Torvn also has a tentpd camp
fbr tour ists. There are very l imi ted shops in the v i l lages.
2.1. SOCIAI, STRUCTURE
2 . -1 .1 . Pop r r l a t i onPopulat ion c lata on Hongyuan County i tsel f is incomplete. Local census data states that thepolru lat ion in 1980 was 26,065, and grew to29,941 by 1990, which y ie lds an averageannLral popLr lat ion growth of 1.49%. The 1994 popular ion wi ls nreasurcd by a householdccrrsrrs, conclucted by the PLrbl ic Heal th Bureau.
' fh is data is d isplaycd in Table 2.4.1a.
bclo* ' .
'1'ahlt 2.J. I I Iortgyuurt Populatiort
l ' o t r u Iu t i on Scc to r Ntrrnber o l ' Dcrsons I)e lccut of tota l
Chi ldren aeed 0 to 6 years 4204 13.4%\ \ 'onren l5 to .19 vears
'7130 2 4 . 6 %A l l n ra l es 1 5 8 7 3 50.1%- fota l
1994 Populat ion 31461 t 00%
TIrc c lata is conrparable to that of Aba prel 'ecture as a whole, the popLr lat ion pyramid of' 'vh ich is shown below, in FigLrre 2.4. Above age 44, thc populat ion asslures the shape ofpop r r l a t i ons i n n r l ny deve lop ing coun t r i es , whe re s t r i c t f a r l i l y p l ann ing po l i c i es a re no t i nfbrce. l 'crsorts norv aged 20 to 40 wcre born dur ing a t inrc of cont l ic t . and rcadjustnlentat ler the 19.19 Conrnrunist Revolut ion. Those aged younger tharr 20 rvcre born at icrru inor i ty pol ic ies regardir tg farni ly p lanning in the area were re laxccl . The nrale populat ion
rs no larger than expected, about one-hal f , a l though the dist r ibLrt ion by lge of nrales ist r nknou ,n .
I Iot .gt 'ut t t t Court t t l l t1t id A:. t t \ ! / ) i . ' r l Srrt r ,
Figrr rc 2.4. Lr l 'opu l : r t ior t P1'r : r r r r i t ls o l Sich u a r r l ) rcf 'cctu t 'cs
4 1 . . \ ! 1 i
A u t n o h o u s P r c f e c t u . e A u t n o n r o u i P r c t c c l u r e
l - hc d i s t r i bu t i on o f t he popL r l a t i on by l oca t i on i s g i ven bc l ow , j n " l ' ab l e 2 .4 .2 .b . I l ongyL ra r t
ToN,n is l lo I shown, bLrt was reported by the PLrbl ic Heal th Bureau to have a pOPLrlat ion of
about 3,000 (LeN4aster) . - fhe farrns shown are governnrcnt-run l - i rnns; tht- bret ' t l i r tg f : t rnr is
in Longr i . The actual populat ion of HongyLran County r i t any one t inre shoLr ld not [ re
considcred a f ixed qrrant i ty : t l re r lover lents of nolna<l ic l rerdsrnen wi l l caLrse th is tol l t rc t r rate $, i lc i ly . T l re popLr lat ion l ' igLrres givcn re l 'cr to ptrscrns k, \ is tct 'ed as rcsi ( lL ' l ) l \ o l -Hongl 'Lrar t CoLrnty.
' l ' ab l c 2 . . 1 .2 D i s t r i bu ( i on o l ' I I o r r g l ' r r an I ' opu la l i on by Y i l l : r g r / ' l ow r r
N r r n e o f T o r v n o r V i l l a g e Popuht ion I ) c r c r n t i ) t - f o t r l
( l r r r n t v J ) o o .
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O i u n c x 20 t %
L o n g r r n 2007 6 .3 . / ,l\'l a i rva 2061 6.5 Vc
Sed i 3374 1 0 . 1 %
R a n c k | 250 4 . 0 %
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l J r e e d r n g f i l r r n - L o n r r r 504 t . 6 7 .
Anttu ftrrnr 1 1 5 3 %Tota l V i l l : r rc pLrpu l r t iL rn 28620 9 0 . 9 %
2.4.2. Sett lenrent PatternsIn thc sunrmer a str iking feature of Hongyuan County is the black tents dottcd ircross t l l lgrassland. About three quarters of the Tibetan populat ion are I iving as noDtadic l)astural ists
- 5
Ilongvuon Countl, Rupid Ast?.tstil?nt Survet
Nonrads renrain in one locat ion f rorn about l0 days up to 3 months, but usual ly stay wi th ina linrited geographic area. Several tents fornr an encanlpnrent, often extended familygroupings. Stores, constructed of sodden grass or wood, exist whcre the herdsrnen plan toset-up the tent lbr the winter. We often observed fanrilies moving their tents with stakes,
tents and al l other possessions on the backs of 4 to.5 yak. The tents are constructed ofwoven strips ot yak belly wool. The procedure to set-up the tent for the first time in agiven locat ion is r i tual ised, and the or ientat ion of the tcnt ar)d of the hearth stones inside
are given great in)portance.
Many nonradic l l i rn i l ies own snral l houses in v i l lages near the rnain ro i td, but most ly o lderpeople and chi ldren l ive in these houses al l dur ing the year, and are jo ined by other fami lynrernbers in the rv inter . Al l of the set t lernent v i l lages that we saw have a s imi lar set-up: one
thi rd of the set t lement contains the governnrent ot l lces and housing for government
enrployees, usual ly constructed of concrete and br icks; one th i rd contains pastural is ts '
houses, which were ei ther constructed f rom local ly avai lable rnater ia ls, such as wi l low andr lLrd or t inrber, or f ronr inrportecl br icks (e.g. , in AnqLr) ; the last th i rd is of ten the s i te of an)onastery or ternple, wi th l roLrs ing arouncl that .
Hongyuan Town is the centre of the County, wi th large bui ld ings, governnrent of f ices,factor ies, hospi ta ls, schools, and a hotel .
' I ' l re urain road contains nrany smal l
entrepreneur ia l shops. Housing is nrost ly crowded into housing blocks along narrow lanes,
of ten wi th pLrbl ic tap stands or wel ls and usual ly lat r ines (as f 'ew as one pcr 40 persons(Bjork, 1993). 1 'he layout of the town is nonetheless splc ious.
The southern area of the County is qui te d i f terent , especia l ly on the s lopes of the Plateau.Farnr ing conrr luni t ies, nrost ly conrposed of Han inrnr igrants and a f 'cw indigenous Qiangand J iarong people, are set on hi l ls ides, and houses are n)ost ly at t ract ively decorated stoneconstnlct ion. Pastural is ts are largely absent f ronr th is area.
2 .4 .3 N l i g ra t i onIn-rn igr l t ion Af ter China took over the adnr in ist rat ion of Tibet , Han Chinese were
encouraged to n l igrate to t rzrdi t ional Tibetan areas. l 'he Han Chirrcse came as
adnr in ist rators, teachers and factory workers. To nrove and work in a renrote area is unt i l
today encouraged by salary a l lowances and othcr inccnt ivcs. In the southerrr part of the
county there are several Han Chinese farrn ing cor l ]nruni t ies. Thcse people f i rs t came as t ree
fel lers, then set t led : rnd began farnr ing in the 1950's. Tochty 12% of the populat ion are of
Tibetan, 270/o <t f Han Chinese and lVo of othcr nr inor i ty or ig in. More and nrore posi t ions
such as teachers, adnr in ist rat ive posts, heal th workers are f l l lec l by ' f ibetan
people, however
not so nrany in leadership posi t ion ( team's observat ion). Whcther thcre is cont inuous rn-nr igrat ion by Han Chinese or others is d i f f icul t to say.
Enr igrat iorr Tibetans always have been nrobi le people. As nor ladic pastural is ts and
traders, they move across Tibet into China, India and Nepal. Young people leave the area
for h igher educat ion. There is no infbrnrat ion avai lable on the extent and durat ion of the
rnover)rents. The teanr got the impression that the ident i f icat ion of people wi th their home
area is rather st rong. Further, pastoral isnr provides a sol id econonr ic base for the herds
people as wel l as the business people in their v ic in i ty . The tarnr ing comrnuni t ies at the
f i inges of the grassland benet l t as wel l f iom the (barter) t rade wi th herdsnten. Assunr ing
Hongyuan Counry, Rapid assessmant Survey
that economics are the strongest driving force for migration, movement out of the area maynot be large.
2.4.4. Gendcr aspectsFrom the outside the nonrad society looks quite egalitarian. Women and men are bothliving towards survival. Hard work and hardships are integrated parts of their existence.Still there are specific roles for women and rnen in the families.
Some major women's work-activi t ies are: caring for the calves, nri lking, the processing ofmilk (for butter and cheese) which does not need to be delivered to a milk collectioncentre, col lect ion, drying and storing of dung. Men take care of herding and representingthe family outside the home, for example, with the government. The women, due to theheavy physical work, are in a worse condition than the men, health wise. Most herdsmen'swives we interviewed woulcl not l ike to see their daughters l iving in a tent as nomads butrather as ernployees in town at an offlce. However, at ntarriage (on average at20-21 yr. ofage for both sexes) nrothers are prepared to give their daughters as tnany yak as possible.In one case the daughter got 45 yak as dowry. There seems to be little work in the townsbut there is always work at the hercl 's si te. Another reason wl.ry they wish their daughter tobe employed in town relates to security: "We need to have sonreone in town who knowhow to order a rneal in a restaurant; who know those parts of the world which we don't ."
Looking at the decision making processes, most dai ly decisions are made by women (rnenare often away during day-t inre in winter/spring), while the crucial decisions on:sel l ing/buying, quanti t ies of butter to be stored, out-tent relat ions are made by men with orwithout discussion with his wife. "Of course he is the head of the family." How this worksin the polyandric fanrilies is not observed, but likely the oldest man takes/has the role offamily head. But it seens indirectly that women do have a great say in the decisions. At thesame time most decisions are forced frorn the outside (clirnate, grass production,government with rules to follow or to neglect).
Children are of great value in the families regardless of sex. Often nomads families do needsome extra hands in work, which is partly solved by operating the system in a clan. Butstill extra hands are nrost welcome and at the same time well cared fbr (children helpingcatching the animals). Boys and gir ls attend schools in equal nunrber in the County. Tohave one or two sons in a monastery (from age of 8 onwards, although officially only at theage of 18) is a good thing to do. The value of a male in cultural/ religious perspectivediffers from that of the female, although there are some monasteries for girls/women.
It seems that al l chi ldren do inherit equally. The only gir l in the fanti ly whose 2 sons are rnthe monastery wil l inherit al l the possessions of the parents. "What to do?" She wil l be partof the next generation herdswornen.
In Governrnent off lces and in Governrnent as such the women can take part in al l posts, butthe nurnbers are very low. The Foreign Affairs Magistrate and the People's Representativewere the only two wonten at higher fosit ions met by the Team. In of l lces most wolnen arewell dressed cleaners and hot-water providers.
- 1 -- 8 -
Hott1l\,uatt County Rupid asl'6sncnt Survay
2.5 DEVELOPMENT. VISIONThe fo l lowing docunrent was developed by the Team in Hongyuan dur ing discussionsregarding the f-easibility of possible options which nright be considered by FOC in responseto the informat ion f ronr the Survey. I t addresses developmental ideals, which should, in the' l 'eanr 's
opin ion, a lways be kept in mind when th inking about a possib le project .
l Society / Conrrrruni ty / People
o addressing people as human creative beings (not as things / production units /consurr iers / etc. )
o self deterrnination of people and communities for own developnrent (basic needs).o that the marginalized in society will be less rnarginalized and that issues are
addressed from gender perspective.
o long term benef i ts in contrast to short term gains (educat ion - > at t i tude -
internal changes).o to ensure that in developrrent approaches the l ivel ihood of subsistence people is
i r rproved.
2. Envi lonrnent / Resources / Econonr ics
o awareness of long tenn consequences of short ternr high use of non-renewableresources.
o good nranagenrent of natural resources (by al l involved) to insLrre that the nextgenerat ions are able to use the sane resources which are now avai lable(sustainable) .
o the costs of danrage to nature/environnrent should be inclucled in the cost /benef i tana l ys i s o f deve lop rnen t ac t i v i t i e s .
o econonr ics:- looking tbr the opt imum and not the nraxinrunr at any costs (not
" technology" dr iven).- local Lrrrc lerstanding that growth happens in balance internal ly and
external ly .- opt in iun.r use and development of resources wi th in the per iphery.
3. Goverrrnrerr t / Aclnr in ist rat ion / Local Inst i t r r t ionso Covernment / Adnr in ist rat ion fbr publ ic and not for own sake (serv ice).
o Public accountability for non-confidential data by what ever n)eans possible.
o Basic 3-sel f or ientat ion: sel f propagat ing / sel f :nranaging(governing) / sel f -support lng
;1 . Re l i g i on / C r r l t r r l e / Va l r r eo Respect towards cul ture. (e.g. bel iefs, knowledge systenrs, wor ld v iews,
intellectual property rights)
o Creat ing an environnlent in which t rust can be bui ld wi th people as humanbeings wi th their needs.
o Faci l i tat ion in the way of l ight - ( not money / business / economics / s tatus in
the l l rs t p lace etc.)
- 9 -
His
tori
ca
ls
pe
cti
ve
o
f d
ev
elo
pm
en
ts
in H
oC
ou
nto
.:)
pe
rtn
on
ow
Y e
ar
Ch
ina
Ch
ina
-Tib
et
'lo
ng
yu
on
C
ou
nty
Eff
ec
ls o
n p
eo
ple
s/c
om
mu
nh
ies
liv
es
19
24
1 9
31
1 93
4-3
5
Ja
pa
n i
nv
ad
ed
Ma
nc
hu
ria
Lo
ng
Ma
rch
Pa
nc
he
n L
am
a's
to
Ch
ina
.-
Da
lai L
am
a r
eli
gio
us
& P
an
ch
en
La
ma
'lO
se
cu
lar
lea
de
r
{ov
erl
ap
& c
on
flic
ts)
Re
d A
rmy
p
as
.
se
d H
on
ov
ua
n
Th
e w
ho
le a
rea
of
Ho
ng
yu
an
wa
s d
ivid
ed
in
lo
ca
liti
es
(a
rea
's)
ov
er
wh
ich
L
am
a's
we
re
ruli
ng
on
be
ha
lf o
l th
e P
an
ch
en
La
ma
. P
rac
tic
all
y t
he
y
we
ro g
ive
n t
he
tru
st
by
no
ma
ds
to
ta
ke
ca
re o
{ th
eir
liv
eli
ho
od
(o
lte
n r
ela
tiv
es
in
mo
na
ste
rie
s a
s m
on
ks
an
d s
afe
gu
ard
s o
l fa
mil
y w
ea
lth
)
I 94
9
19
51
1 95
6
1 95
8
Pro
cla
ma
tio
n o
J
PR
C.
N a
tio
na
liz
ati
on
of
lan
d.
Ca
mp
aig
n:
"Op
pre
ss
ion
by
co
un
ter
rev
o-
luti
on
ari
es
".
(Ko
.ea
n-w
arl
.
C o
l le
cti
va
tio
n
po
lic
ies
.
Gre
at
lea
p f
orw
ard
Ha
n-C
hin
es
e i
nll
ux
Pa
nc
he
n L
am
a 1
0
retu
rne
d t
o T
ibe
t
un
de
r p
rote
cti
on
ol
Re
d A
rmy
(1
95
2).
Ag
ree
me
nt
wit
h
Tib
et
on
ro
les
of
PR
C/T
ibe
t.
Up
ris
ing
in
Tib
et.
Da
-
lai
La
ma
we
nt
to l
nd
ia.
Co
un
ty
es
tab
lis
he
d.
1-s
t C
lin
ic in
HY
C.
Lib
era
tio
n:
vil
lag
e
he
alt
h c
las
se
s b
y
so
ldie
rs.
Mil
k p
ow
de
r fa
cto
ry
es
tab
lis
he
d in
HY
.
Sc
ho
ols
sta
rte
d
Til
l 19
59
th
e P
an
ch
en
La
ma
's w
ere
th
e l
oc
al l
ca
de
rs o
l th
e n
om
ad
s c
om
mu
nit
ies
.
Via
La
gy
ab
lh
oja
ng
s {
co
nrm
itte
e o
{ L
an
ra's
ov
er
a g
eo
gra
ph
ica
l a
rea
} g
raz
ing
lan
d
wa
s a
llo
ca
ted
to
fa
mil
ies
an
d c
lan
s (
un
de
r g
rea
t s
ec
rec
y);
co
nfl
icts
am
on
g n
om
ad
s w
ere
so
lve
d a
nd
ta
x
(fo
r L
am
a's
) w
as
ra
ise
d.
Ev
ery
3 y
ea
rs t
he
gra
zin
g r
iglr
ts w
ere
re
vie
we
d a
nd
re
dis
trib
uti
on
wa
s d
on
e (
qu
ali
ty o
{ g
ras
sla
nd
an
d n
um
be
r o
f a
nim
als
- o
ve
rgra
ze
d l
an
d g
ot
un
de
r g
raz
ed
fo
r re
sto
rati
on
of
the
gra
ss
pro
du
cti
vit
y
In 1
95
9
no
ne
w c
€n
su
s w
as
do
ne
arr
d th
e L
ag
ya
b l
ho
ian
g a
llo
ca
ted
th
e s
am
e a
rea
'E t
o t
he
no
ma
ds
as
in
th
e p
as
t y
ea
rs.
Ea
rly
5o
-tie
s:
'Ch
ine
se
ch
ara
cte
r" I
or
trib
al
pe
op
le c
ha
ng
ed
lro
m
"do
g'i
nto
-m
an
".
Mo
na
ste
rie
s d
es
tro
ye
d a
nd
re
bu
ild
(b
as
ed
up
olr
mis
un
de
rsta
nd
ing
).
In H
on
gu
ua
n C
ou
nty
a P
an
ch
en
La
nra
, G
on
g T
an
g C
ha
ng
, c
oo
pe
rate
d w
ell
wit
h
Go
ve
rnm
en
t(s
ch
oo
ls,
Mil
kp
ow
de
r ta
cto
ry e
tc.)
Tra
de
in
kin
d f
orb
idd
en
bv
Go
ve
rnm
en
t o
f P
RC
.
1 9
59
,01
Fa
rnin
e p
eri
od
s
(ln
dia
-wa
r; T
ibe
tl
Tib
et
be
ca
me
an
in
-
terg
rate
d
pa
rt o
f
PR
C w
ith
P
an
ch
en
La
ma
s s
up
po
rt
Ne
w A
dm
inis
tra
tiv
e n
rea
su
rem
en
ts w
ere
in
tro
du
ce
d a
t a
ll l
ev
els
(1
96
0).
G
ov
ern
me
nt
at
loc
al
lev
el
too
k o
ve
r {r
om
th
e L
am
a's
(o
ne
in
lorm
er
nre
nti
on
ed
th
at
a C
om
mit
tee
at
vil
lag
e le
ve
l w
ith
lo
ca
lg
ov
ern
me
nt
rep
res
en
tati
on
is
do
ing
th
e d
istr
ibu
tio
n o
l g
raz
ing
la
nd
s t
o f
am
ilie
s e
ve
ry y
ea
rls
ea
so
n
lro
m 1
95
9 o
nw
ard
sl-
I 96
0C
las
s s
tru
ctu
re-
Ne
w
Ad
min
istr
ati
ve
-
str
uc
ture
at
dis
-
tric
t le
ve
l.
Cla
ss
str
uc
ture
in
tro
du
ce
d (
po
or/
mid
dle
/we
alt
hy
(n
o c
las
s-s
tru
gg
le V
et
- o
nly
{o
llo
we
rs o
{ O
ala
i
La
ma
did
su
ffe
r)
Ari
sto
cra
tic
an
d m
on
as
lic
lo
rds
lo
st
the
ir e
sta
tes
bu
t th
e P
an
ch
en
La
ma
's g
ot
reim
bu
rse
d.
Go
ve
rnm
en
t o
llic
ials
ap
po
inte
d n
ew
off
icia
ls J
rom
th
e 'p
oo
r' c
las
se
s t
o m
an
ag
e e
.g.
the
all
oc
ati
on
of
gra
zin
g l
an
ds
. T
he
mo
na
ste
rie
s
we
re c
los
ed
; m
on
ks
se
nd
ho
me
; c
ult
ura
lly
org
an
ize
d r
eli
gio
n w
as
te
rmin
ate
d'L
ate
r d
uri
ng
Cu
ltu
ral
Re
vo
luti
on
in
la
te s
ixti
es
mo
na
ste
rie
s g
ot
de
str
oy
ed
.
Th
e r
es
ult
wa
s t
ha
t n
ow
e
ac
h h
erd
sm
an
de
cid
ed
wh
ere
an
d w
he
n t
o g
raz
e,6
ell
pro
du
cts
etc
.
1 9
6',
I
19
66
-71
Cu
ltu
ral
Re
v.
(Vie
tna
m-w
ar
till
1 97
2)
Mu
tua
l A
id P
ro-
;ra
mm
e
(MA
P)
Mu
tua
l A
id G
rou
ps
in
tro
du
ce
d (
19
61
). T
he
"p
oo
r"
arr
d "
mid
dle
" c
las
se
s o
{ a
n a
rea
we
r€ o
rga
niz
ed
into
mu
tua
l a
id g
rou
ps
(c
oo
pe
rati
on
: s
ha
rin
g
of
ac
ce
ss
to
p
a6
ture
s;
ho
rdin
g a
nd
oth
6r
no
n d
ire
ct
gc
on
om
ic
ac
tiv
itie
s
we
re
do
ne
to
ge
the
r)
Wit
h M
AP
to
ge
the
r w
ith
th
e C
ult
ura
l R
ev
olu
tio
n t
he
pe
rse
cu
tio
n o
f th
o w
ea
lth
y c
las
s n
om
ad
s s
tart
ed
.(i
so
lati
on
{ro
m
tho
'm
as
se
s;
no
t p
erm
itte
d
to i
oin
MA
P;
wo
alt
hie
r g
ot
po
ore
r p
as
ture
s;
pa
id
mo
re f
or
hir
ed
la
bo
r)
l- tD ,.1 (, .Fn
a 11 (? H tD Fl a (a Fh H fr{
oa
I I
Ye
alh
ina
lhin
o-T
ibe
rH
on
gy
ua
n
Co
un
lyE
{fc
cts
o
n p
eo
ple
s/c
om
mu
nit
ies
li
ve
s
1 9
66
1 96
8-7
C
15
72
1 9
73
1 9
76
19
77
1 9
78
1 9
80
C u
l t. R
ev
.
Nix
on
s v
isit
to
1-s
t Co
me
ba
ck
De
ng
Xia
op
ing
De
ath
: M
ao
Ze
-d
on
g,
Zh
ou
En
lai
En
d o
f G
an
g o
f F
ou
r
2-n
d C
om
eb
ac
k
De
ng
Xia
op
ing
Ma
rke
t- o
rie
nta
tio
n4
- m o
de
rnz
ati
on
s:
1.
de
fen
c. 2
. in
du
st.
3.
ag
r. 4
. s
ci&
tec
hn
.
Fa
mil
y p
lan
nin
gp
oli
cie
s im
ple
me
n-
tati
on
sta
rte
d.
Urb
an
mig
rati
on
oo
lic
ies
,
Co
mm
un
es
intr
o-
du
ce
d.
No
ma
ds
re
-b
ell
ed
in n
am
e o
fR
ed
Gu
ard
, bu
tin
va
in.
De
str
oy
ing
the
4 o
ld:
ide
as
, cu
ltu
re, c
us
-to
ms
an
d h
ab
its
---
>
Pri
va
te re
lig
ion
wa
sfo
rbid
de
n
etc
.
Min
ori
ty-r
efo
rm(p
os
itiv
e) (
se
e C
h.
4)
1-c
hil
d f
am
ily
.
'I 9
7O
- 1
-st
Hy
dro
po
-w
erp
lan
t in
Co
un
ty.
19
75
- M
ea
t fa
cto
ry
in H
Y-t
ow
n.
lLo
ts o
f in
tell
ec
tua
ls se
nt
to t
he
co
utr
ys
ide
for
ph
ys
ica
l la
bo
r
lMid
dle
an
d r
ich
he
rds
me
n w
ere
ju
dg
ed
to b
e e
xp
loit
ers
of
the
ma
ss
es
an
d c
las
s e
ne
mie
s. E
ve
ryth
ing
wa
sI ls
trip
pe
d o
f th
em
. --
- )
Ch
an
ge
s:
I t
an
ima
l ho
lde
rs to
ho
lde
rs o
f a
sh
are
in t
he
co
mm
un
e's
pro
pe
rty
. Wo
rke
rs o
n o
wn
'fa
rm'.
| *
co
mm
un
e le
ad
ers
we
re'p
oo
r o
ffic
ials
' wh
o t
old
ex
pe
rie
nc
ed
he
rds
me
n w
ha
t to
do
.
| *
no
ma
ds
los
t th
eir
he
rds
an
d g
ot,
;f
luc
ky
(n
ot
cla
ss
en
em
ies
), go
t s
om
e p
aid
for
the
ov
er-
va
lue
of
the
an
ima
ls th
ey
bro
rrg
ht in
to th
e c
om
mu
ne
.
| *
sp
ec
iali
za
tio
n of
wo
rk:
he
rdin
g/m
ilk
ing
. Wo
me
n h
av
e to
sla
ug
hte
r; m
en
ha
ve
to
m
ilk
etc
.
| *
sla
ve
s/n
o c
on
tro
l ov
er
life
ord
ere
d b
y n
ew
(u
ns
kil
led
) ma
ste
rs.
| --
-)
Un
ch
an
ge
d: f
ull
sc
ale
pa
stu
rali
sm
<--
--
, b
ut
de
ca
y o
f s
oc
ial a
nd
cu
ltu
ral l
ife
of
no
ma
ds
.M
on
as
teri
es
de
str
ov
ed
.H
air
cu
t of
me
n; s
lau
gh
teri
ng
by
wo
me
n:
pa
rt o
f d
es
tro
yin
g th
eo
ld h
ab
its
an
d t
rad
itio
ns
.
In b
eg
inn
ing
th
os
e
mo
de
rniz
ati
on
s
did
no
t to
uc
h
the
n
orm
al
po
pu
lati
on
,
Re
al
ch
an
ge
h
ap
pe
ne
d
on
ly
aft
er
the
in
tro
du
cti
on
o
f 'r
es
po
ns
ibil
ity
s
ys
tem
Fo
r m
ino
riti
es
lik
e t
he
Tib
eta
n a
nd
Qia
ng
3-c
hil
dre
n p
er
fam
ily
ca
n b
e r
eg
iste
red
; fo
r C
hin
es
e o
nly
on
e c
hil
d p
er
fam
ily
. L
ate
r th
is b
ec
am
e 2
fo
r m
ino
rity
gro
up
s. (
ac
co
rdin
g to
Sic
hu
an
Po
lic
ies
on
FP
).
Mo
ve
fro
m r
ura
l are
as
to u
rba
n a
rea
s d
ise
nc
ou
rao
ed
.
Mo
ve
o
the
r w
ay
ro
un
d
en
co
ura
ge
d:
ren
tote
ne
ss
a
llo
wa
nc
es
e
tc.
(im
miq
rati
on
o
f in
tell
ec
tua
ls)
c j c- < € q q G 4 q G q d a:
I tJ I
Ye
ar
Ch
ina
Ch
ina
-Tib
ei
Ho
ng
yu
an
Co
un
tyff
ec
ts
on
pe
op
les
/co
mm
un
itie
s
liv
es
19
81
l 98
3/8
5
1 9
83
'I 98
5
Re
sp
on
sib
ilit
y(Z
ha
o Z
iya
ng
- G
So
f P
art
y)
Min
ori
ty p
oli
cie
s
imp
lem
en
tati
on
En
d o
f c
oll
ec
tiv
es
.
De
co
ntr
ol o
f p
ri-
ce
s o
f a
gr.
pro
du
cts
(pa
rtly
)
Re
sp
on
sib
ilit
y-
sy
ste
m i
ntr
od
uc
ed
(m a
rke
t- ori
en
tati
on
) .
Mo
na
ste
rie
s &
lo
ca
lc
ult
ure
/la
ng
ua
ge
pro
-
mo
tio
n.
Sta
rt o
f re
bu
ild
-in
g m
on
as
teri
es
.
'19
83
- w
ate
r s
ys
tem
in H
Y-t
ow
nM
ore
Tib
eta
n
sc
ho
olt
ea
ch
ers
/
Tib
eta
n h
os
pit
al
Tib
eta
n m
idd
les
ch
oo
l at
Ho
ng
ye
an
-to
w n
Lo
ca
l in
ve
stm
en
tse
nc
ou
rag
eo
( en
tre
pre
ne
urs
) .
19
81
-84
H
erd
s w
ere
div
ide
d (
or
so
ld t
o m
ax
. o
f 2
O Y
ua
n/a
nim
al)
am
on
g c
om
mu
ne
m
em
be
rs
an
d
old
he
rdin
g
pra
cti
ce
s
sta
rte
d
ov
er
ag
ain
. G
raz
ing
la
nd
all
oc
ati
on
w
as
d
on
e
for
sm
all
g
rou
ps
o
l
no
ma
ds
(3
to
6
) a
nd
no
ta
xe
s
we
re
tak
en
fr
om
T
ibe
tan
s.
La
ter
via
th
e
loc
al
Go
ve
rnm
en
t th
e a
llo
ca
tio
n
of
gra
zin
g a
rea
wa
s
do
ne
on
a h
ou
se
ho
ld
ba
sis
, h
ow
ev
er,
an
pra
cti
ce
th
e i
nd
ivid
ua
l fa
mil
ies
o
pe
rate
d
as
"c
lan
" w
ith
c
om
mo
n
gra
zin
g a
rea
. T
he
la
bo
r re
qu
ire
me
nts
do
ne
ed
go
od
c
oo
pe
rati
on
.
Arg
um
en
t fo
r th
e
sh
ift
wa
s:
ind
ivid
ua
l h
erd
sm
en
a
re m
uc
h
mo
re
ab
le t
o l
oo
k
we
ll
aft
er
gra
ss
lan
d
an
d
an
ima
ls t
ha
n a
co
mm
un
e
is a
ble
to
.
---)
3
ty
pe
s o
f h
erd
sm
an
aft
er
19
84
:
1.
an
ima
ls f
rom
G
ov
ern
me
nt
to b
e g
ive
n b
ac
k o
ve
r ti
me
(s
he
ep
). A
ny
g
ain
in
nu
mb
er
is p
riv
ate
ga
in.
2.
an
ima
ls
pri
va
te
ow
ne
d,
bu
t p
rod
uc
tio
n
qo
uta
fo
r lo
ca
l fa
cto
rie
s
at
"go
ve
rnm
en
t's
p
ric
e".
lan
da
l lo
ca
tio
n
pe
r fa
mil
y
(pra
cti
ce
p
er
cla
n)
by
lo
ca
l G
ov
ern
me
nt.
3.
an
ima
ls
sti
ll o
wn
ed
b
y
Go
ve
rnm
en
t.
Q.u
ota
to
b
e p
rod
uc
ed
fo
r G
ov
ern
me
nt.
S
urp
lus
p
rod
uc
tio
n
is
wa
ge
. P
as
ture
all
oc
ati
on
is
do
ne
b
y
Go
ve
rnm
en
t F
arm
U
nit
.
All
th
ree
ty
pe
s a
re f
ou
nd
in
I9
95
. T
he
fir
sl
on
e i
s t
he
sm
all
es
t q
rou
p,
as
mo
st
an
ima
ls a
re o
ive
n b
ac
k,
1 9
90
1 S
91
Ec
on
om
ic g
row
th
of
2-d
igit
s p
er
yr.
Re
form
& o
pe
nin
gP
ref .
inv
es
tme
nl
Co
mm
un
e
me
mb
ers
s
tart
ed
e
qu
al,
bu
t th
e
we
ll
ex
pe
rie
nc
ed
h
erd
sm
en
, w
ho
lo
st
mo
st
in C
ult
ura
l R
ev
olu
tio
n
tim
e,
did
m
uc
h
be
tte
r th
an
th
e
'po
or'
a
rrd
'mid
dle
c
las
s'
he
rds
me
n.
Re
as
on
s f
or
the
ou
tco
me
: e
xp
eri
en
ce
/ c
lev
er/
re
lati
on
s
wit
h
fac
tori
es
-go
ve
rnm
en
t o
ffic
ials
e
tc.
Mo
re e
ntr
ep
ren
eu
rs a
nd
sm
all
bu
sin
es
se
s i
n t
ow
ns
hip
s
Tra
de
re
lati
on
s w
ith
fo
reiq
n c
ou
ntr
tes
.
1 9
92
1 9
93
Se
ttle
me
nt
po
lic
ies
.
(ch
an
ge
o
f h
erd
ing
sy
ste
m)
Mig
rati
on
p
lan
(mo
re
eth
nic
C
hin
es
e
in W
es
t-S
ich
ua
n)
Fo
rmu
lati
on
of
pla
n(p
op
ula
tio
n c
on
tol)
-->
P
lan
in
vo
lve
s l
ife
s o
f 4
OO
O h
erd
srn
en
's f
am
ilie
s.
Arg
um
en
ts
to s
ett
le n
om
ad
s t
o m
ak
e t
he
nr'
ya
k-f
arm
ers
'in
sle
ad
:
1.
po
ve
rty
(b
ac
kw
ard
/no
t ta
kin
g p
art
in
Ch
ina
's e
co
no
my
);
2.
po
or
he
alt
h 3
. b
ad
sc
ho
oli
ng
; 4
.
ov
erg
raz
ing
o
f g
ras
sla
nd
(f
utu
re
pe
rsp
ec
tiv
e
da
rk);
6
. n
o g
oo
d
dri
nk
ing
wa
ter
av
ail
ab
le
for
no
ma
ds
;
7.
ed
uc
ati
on
(T
V -
ele
ctr
icit
y);
8.
ma
ny
c
on
flic
ts/f
igh
ts a
mo
ng
th
e n
om
ad
s;
9.
ma
rke
tin
g e
co
no
my
.
1 9
95
FO
C-s
urv
ey
Ju
ly 4
19
95
th
e p
rog
ran
lme
sta
rts
in H
on
gy
ua
n C
ou
nty
. T
he
fir
st
pla
ce
, bu
t n
ex
t fi
na
nc
ial y
ea
r(J
uly
'95
- J
un
e'9
6)
it w
ill b
e c
om
ple
ted
in t
he
wh
ole
Co
un
try
.F
un
ds
are
sti
ll a
pro
ble
m. S
om
e a
d,j
us
tme
nts
in p
lan
s h
av
e c
om
e fr
om
Sta
te l
ev
el.
10
8 s
taff
me
mb
ers
ha
ve
be
en
re
cru
ite
d. 3
sta
ffm
em
be
rs g
o t
o a
n a
rea
an
d s
tud
y h
erd
siz
e p
er
fam
ily
an
d w
ill
de
term
ine
(wit
h t
he
no
ma
ds
(l?
)) h
ow
th
e s
ett
lem
en
t wil
l b
e d
on
e (
wh
ich
fix
ed
are
a (
for
at
lea
st
50
yrs
.) e
ac
h fa
mil
y w
ill
ge
t. T
he
re w
ill
be
no
: w
inte
r a
nd
su
mm
er
pa
stu
re a
ny
mo
re.
--)
ch
an
ge
d: w
ho
le 'n
om
ad
sy
ste
m'
into
a 'f
arm
ing
3y
stc
m',
wit
ho
ut
an
y p
rep
ara
tio
n ,
tha
n o
nly
pro
vid
ing
75
"r5
of
the
fe
nc
es
.
:F k c\ c- \ q h (\ 4 4 r! q -.1
A a
Hongyuan Counry Rapid asscssment Survev
4 Governnrent Policy and Plans
4. I . INTERNATIONAL CONVENTIONS4.2 . THE RIO ' 'EARTH' ' SUMMIT
4.2.I, THE DECLARATION ON ENVIRONN{ENT AND DEVELOPMENT4 . 2 . 2 . A G E N D A 2 I4.2.3. THE FOREST PRINCIPLES4.2.4. CONVENTION ON CLIMATE CHANGE4.2.5. CONVENTION ON BIOLOGICAL DIVERSITY
4,3. CHINESE GOVERNMENT POLICY AND PLANS (1977-1995\4.3. I . MODERNISATION POLICY4 . 3 . 2 . L A N D4.3 .3 . MINORITY POLICY4.3 .4 . POPULATION POLICY4,3 .5 . N, I IGRATION POLICY4.3 .6 RURAL REFORM
1.4 REFEITENCES FROM THE CHINESE CONSTITUTION ON l"{INORITY PEOPLE4.5 . THE ROLE OF THE HONGYUAN COUNTY OFFICIALS4.6 . HONGYUAN INTEGRATED COUNTY PROJECT
4.6. I . PRACTICAI- ELEMENTS OF HONGYUAN INTECRA'|[ ,D COT]NTYPROJECl'
.1.7. THE GREEN FOOD CORPORATION AND THE THREE POINT PROJECT
4. 1 I NTERNATIONAL CONVENTIONSSince the early 1970's there have been ar nunrber of international conventions that addressdevelopment, including "Rio Earth" Sunruri t . The "Earth" sumnrit , which China signed,chal lenges conventional developnrent nlodels that only apply science, technology andgrowth econornics in a top-down fashion to the exclusion or dctr irr tent of socir l ,environmental, cultural, cornnrunity, gender, subsistcncc st:ctor and tradit ionalconsiderations. Effbrts have been rnade to identi fy clauses rclevant to the six discipl inesthat arr: represented in the study team and clauses pert inent to development phi losophyadopted by the team.
4.2 TIIE RIO 'EARTTI'' SUMMITIn Rio de Janeiro, Brazi l in June of 1992, at the largest-ever nreeting of world leaders, 179countr ies agreed on a blueprint on how to rrake the future develoyrnrent of our worldecononrical ly, social ly and environnrental ly sustainable. The agreernent corrprised f ivedif l-erent docurnents (Keating M 1993 & Grubb M 1993 ):-
a) The declaration on Environment and Developnrentb) Agenda 21c) The Principles on Forestsd) Convention on Clinrate Change
e) Convention on Biological Diversityl
4.2.7. The Declaration on Environment and DevelopmentThis comprised 27 principles that define the rights and responsibilities of nations as theypursue human development and well-being. In terms of the study there are six rmportantprinciples that emphasise:-
a) the relat ionship of man with the natural world (principle l) ,b) the need to rneet the equitable needs of present and future generarrons
(Pr inc ip te 3 )c) the necessity for environrnental impact assessment of deveropment activities
(Principle l7)d) The vital role of women and indigenous peoples and their full participation in the
development process (princi ple 2O & 22)e) The recognit ion ofand srrpport for the identi ty, curture and interests of
indigenous peoples (principle 22)fl The need to protect the environment and natural resources ofpeoples under
occupation (principle 23)
4.2.2. Agenda2lA blueprint on how to make development socially, economically and environmentailysustainable. In terms of the study the areas of most interest include :_
a) The peoples participation in poverty alleviation (Chap. 3)b) The protection and prornotion of human health
- through crean water, sanitat ion, chird spacing and the incorporation ofindigenous healrh knowledge and practice. Chap. 6)
c) The sustainable management of land- through the incorporation of indigenous land- use knowledge and practice (including pastoralism) and with the full
participation ofwomen, youth and indigenous people. (Chap. l0)d; Combating deforestat ion
- through protection and pranting. Forests need to be preserved for theirsocial and spir i tual values; including that of tracl i t ional habitats ofindigenous peoples. (Chap. I l )
e) Combating desert i f icat ion and drought- through sustainabre land - use and water -use, tree planting and alternative
energy use. (Chap. l2)f) Sustainable Mountain Development
- through erosion control, protection and appropriate cottage industries.(Chap. l3)
g) Sustainable Agriculture and Rural Development- through resource ownership, access to resources ,financing, nrarkets and a
mixture of r'odern and tradition conservation techniques. (chapter 14)
' The 1972 Stockhorm Conference, r9g2 raw of the Sea, The London Durnping Convcntion, The Baselconvention on wastes, vicnna Convention and the Montreal protocor on ozone
t4t 3 -
Hrttt14l'ttutt County Rapid a'l'ltr'rsztcrt' St''
h) Conservation of Biological Diversity- through the incorporation of tradit ional nrethods of agriculture,
agro-forestry range and wildlif'e managelnent and with the full
part icipation of local corntnunit ies.- by ensuring the indigenous people receive a fair and e'qtritable benefit
from the use of biological and genetic resources. (Chap' l5)
i) Management of BiotechnologY- through the developnlent of vaccines, disease resistant plants, soil fertility
nreasures, renewable energy technologies, fast growing tree strains, and
environnrenlal ly fr iendly mineral extract ion' (Chap. l6)j) Protecting and Managing Fresh Water
- improving safe water supplies and sanitat ion. (Chap. l8)
k) Managing Solid Wastes and Sewage (Chap. 2l)l) Strengthening the role of wotnen in sustainable development
- through reducing their workload, and giving therr access to
decision-rnaking, education, credit and property r ights. (Chap. 24)
m) Strengthening the role of irrdigenous people- by consult ing with thenr and ensuring thcir act ive part icipation in resource
developnrent and nranagerltent attd developrttelt t str l tegies'- by recognising their values, tradit ioi lal knowledge and resource
luranagcnlent practlces.- by adopting laws and pol icies to preserve thcir custornary practices and to
protect their indigenous intel lectual property ( ideas and knowledge)
rights. (Chap 26)n) Strengthening the role of Farnrers
- to ensure sound tarni ing practice, conservatiott , low-input rnethods,
optimal use of labour/animal power' and throtrgh training in ecology'
Chap. 32)o) Science for Sustainable Developnent
- by training scientists; to l ink science with indigenous knowledge, in
natural systems, ecology and resource managenlent and by enabling them
to conduct qual i ty-of- l i fe audits. (Chap. 35)p) Education, training and ptrbl ic awareness
- by training environlnental technicians'- incorporating indigenous knowledge and experience of sLrstainable
developnrettt into education and training. (Cltap. 3)
,1.2.3. The Forest PrinciplesA statentent of 15 principles to guide tlie nranagentcrlt, conservation and sustainable
development of all types of forest, which are essential to econonlic development and the
maintenance ol al l forms of l i fe. There are three principles of interest to us :
l) management of fbrests to Ineet social, econornic, ecological, cultural and spiritual
needs of present and future generations.2) tbrestry ptans should count both the econotnic and nort-econonlic values of
forests, and the environntental costs and benefi ts of harvesting or protectlng
fbrests.
H o r t g| u a n Co u n ty R u p i d .lJ.tal Jrl('nl,tun'{)
3) support the identi ty, cLrl ture and r ights of indigenous people and fbrest dwellers.Their knowledge of conservation and sustainable forest use should berespected and usecl in developing forestry progralnnles.
4.2.4. Convenlion on Clirnltc ChangeCountr ies should seek to stxbi l ise greenhouse gasses in the atmosphere at levels that wi l lnot dangerously upset the global cl irnate system. In terms of the study the clause of mostinterest is:
- the sound tnanagenrent and conservation of such greenhouse gas sinks as plants,forests (and peat - which may account for 30% of the worlds total soil carbonstore). (Dr Maltby 1992)
4.2.5. Convenlion on l l iokrgicnl Diversi lyCountr ies should aclopt ways and rreirns to conserve the variety of l iv ing species, anclensure that the bcnefl ts frorn using biological diversity are equitably shared. In terms of thcstudy the clause of n)ost intercst is:
- nrany indigenous and local conrnrunit ies have a close dependence on biologicalresources, and nations should rnake use of this tradit ional knowledge. Countr iesare to preserve and rnaintain such indigenous and local knowledge and prontoteits wider use, with the approval of the knowledge holders.
4,3. CIIINESE GOVERNTTENT'I'OLICY AND PLANS (1977.1995)
4.3.1 . lVloderrr isrt t ion I)ol icyIn the nriddle of 1977 Deng Xiaoping returned to power and becanre part of a new 6-nranparty leadership. The China they took over was rackecl with problerns, a backward countryin desperate nced of nrodernislt ion. Ncrv rneasures rvere neecled-
In 1978 China introduced the "Four nrodernisation's" (agriculture, industry, nationaldefence, and science and technology) (China Lonely Planet 1994) and this pol icy st i l lappl ies across a broacl spectrurn of act ivi t ies including rural developnrent. For exanrple theapplication oi science to the l ivestock industry is st i l l being r igorously pursued inHongyuan County today (Bjork, 1993). In 1991 a "reforrn and opening" pol icy "for 100years" was endorsed by the l .+th Congrcss Party ( in spite of rarrpant inl lat ion) (ChinaLonely Planet 1994) and subsequently pref 'erential pol icies were introdtLced to encourageinvestment in disadvantaged areas. Both Aba and Canzi Pret-ectures have prelerentialinvestment pol icies.
4.3.2. LandIn 1949 al l land ( including forest l i rnd ) was national ised with the exception of tenrp)e landwhich was not national ised unti l l9-5 I (Richardson). Land tenure has rcnrainecl with theState ever sincc, although under the responsibi l i ty system, which was introcluced in thc80's, al lotment of land was al lowed to pass into the rnanagenlent of an individual orgrouping. Between 1979 and l98l 267,000 ha. of forest legal ly passed into themanagement of individuals and production teanrs in Western Sichuan (Off-farnr). An AbaLand lr{anagenrent Pol icy was forrnulated in 1991 (Sichuan National i t ies Policy l99l).
l-5 1 6 -
HrtttgSuan Coulil)' RuPid asscssmcnt Survey
' :1 .3.3. Nl inor i ty Pol icy
Tradi t ional ly the Han Chinese have regardecl the Minor i t ies as barbar ians. I t was only in
the ear ly days of the Republ ic that the Minor i t ics nanre ( in Chincsc characters) was changed
tront "dog" to "Dtan" but a pol icy of assinr i lat ion was r igorously pursued (China l -onelyplanet 1994). Since 1976 governrnent has t r ied to d i f fuse discontent by re laxing solne of i ts
grasp orl the day to day lif'e of nrinority people by allowing ternples and mosques to open
(China Lonely Planer 1994). In the 1980's Mao's pol icy of assirn i lat ion, c lass dist inct ion
and c lass struggle was re jected. In i ts p lace a pol icy was introduced that accepts the val id i ty
of t radi t ional nr inor i ty peoples and cul ture wi th in t l ie cornntunist state. (Coldstein 1991).
ln the 1980's Western Sichuan i r r t rocluced a pol icy of nr inor i ty support to enable them to
better participate in the rnarket econorny (Off-lurr)l). Aba Preflcturc introduced policies of
compulsory edLrcat ion and inher i tance tbr nr inor i ty peoplcs in l99l (Sichuan Province
Nat ional i t ies Pol icy 199 I ) .
.1.3.4. Populat ior t Pol icy
A nat ion-wide bi r th contro l was iDst i tuted in the 1950's wi t l t sonre success but was
aban<joned dur ing the CLr l tural Revolut ion. I r4ao bel ievcd i t was part of a capi ta l is t p lot to
nrake China wcak. In 1973 populat ion growth targcts wcre agairr inc luded in China's
econorr . t ic p lanning and in 1979 thc one chi ld pol icy fbr Han Chincse was introduced
(Ch ina Lonc l y P lane t 1994 ) . Ch ina ' s r r r i no r i t y pcop les i n i t i a l l y ha t l no c l r i l d l i n i t , bu t
gradLral ly a l inr i t of 2,3 or 4 chi ldren was introduced. In Aba the nrarr iage pol icy of l99l
puts sorne restr ic t ions on the age of nrarr iage and l in i ts nr inor i ty couples to 2 chi ldren
(Sichuan Nat ional i t ies Pol icy l99l) .
4.3.5. Nl igral ion I 'o l icy
Chincse r l igrat ion to n inor i ty areas has been encour i rged as a nrcans of contro l (China
Lonely Planet 1994). As late as 1993 t l r is was st i l l Lre ing encotrraged in Sichuan at a
nteet ing wi th the codc nutuber 512 (16th session of . the UN Sub Cort t t t r i t tee on Prevent ion
of Discr iminat ion and Protect ion of Minor i t ies - Geneva 1994). A pol icy to set t le China's
nomacls began in thc late 1950's. I t o l - ferecl conrtbr t , protect ion ancl lbr the developnrent of
the indiv idual and society. The proposals answered real r tceds but t l le real object ive was to
contro l the nontacl ( l ikval l 1968). The process cont i r tLres today ar td t l tc agenda is st i l l ,
arnong other th ings, contro l a l td incorporat ior t into the Inarkel econolny.
With the introduct ion ot econorDic re lbrnr in the ear ly 1980's grcater d ispar i t ies enrerged
between t l re rural arrd urban sectors; thrs resul ted in out-r t t igrat iot r l ' rot t t sonle rural areas.
To hal t th is f low governrnent int roduccd a pol icy separat ing c i ty f ronr v i l lage (Off -Farrn) .
Sichuan ot ' fbrs inducements to univers i ty , col lege and technical school graduates who want
to work in thc rur l l areas. - fhey
are exenrptecl f rorn probat ion per iod, get an addi t ional
al lowance and enjoy a salary grade one step higher than in ot l ter parts of China.
4.3.6. I {ural ReIorr t t
In l98l Deng introduced the Responsibi l i ty Systenr to re l ) l tce thc r ig id ly col lect iv ised
agr icul tural systern. This inc luded; a) l iberal is ing China's econor)ry; b) ending the
comlnunes ancl ; c) returning to a household based systenl of procluct ion in rural areas for
agr icul twe and industry. l t a l lowed agr icul tural householc ls and lactor ies to sel l their
surpluses af ter "contract-quotas" on the opcn ntarkct (China Lonely Planet 1994 &.
Hcsngl'uan Coun1, Rapid asscssmcnt Surv(y
Goldstein l99l). Under the responsibi l i ty systern al l the nomad "contnrune" animals weredivided equally among the nouracls by the governnlent authorit ies while the grassland waskept by the state to control and regulate its use. The nornads were allowed to retain theprivate aninrals they had held during the cornmune period.
In 1984 the quota systenr was abolished apart from grain and cotton (China Lonely Planet1994) and a policy to encourage nrral enterprise was introduced.
In West Sichuan :a) Where the focus had been on rnaximising grain production instead efforts were
nrade to increase cash crops, hort iculture, l ivestock, forestry and special isedlocal products (Off'-Farrn).
b) The contract terrn lor orchards and forest was extended to 30 years and timberproducts given tax-free status. In 1985 fol lowing 3-5 years of r igid price controlson agricultural products legislat ion was introcluced to "decontrol" prices(China Lonely Planet 1994 ). Some dif f icult ies are apparent in the move from acomnrand to a nrarket econorry. In Western Sichuan preferential investrnent(native & foreign) pol icies, as part of "reform and opening" have beenintroduced at county ancl township levels (Off-Farrn & Canzi Investrnent Guide1994) and "Special Developrnent Areas" identi f ied. (Aba and CanziPrefectu res).
4.4. REFERDNCES FROIV 7'IIE CTIINESE CONSTIT'UTION ON I},IINORITYPEOPLE
The fol lowing are basic staterrents about the minorit ies in China:o Every area inhabited by nrinori ty national i t ies wil l form an autononrous region.
Minority National i ty Autonomous regions are not separated parts of China.o Art icle 4 Section 3 (new consti tut ion) In the People's Republic of China al l
national i t ies are equal. The Governnrent wi l l ensure the legal r iglrts of al lminority national i t ies and prohibit any form of racial discrir l ination oroppresslon.
o Governrnent wi l l help al l rninori ty national i ty regions to develop their economyand culture.
o Government wil l try to ensure the prosperity of each national i ty rninori ty region.o Government wil l assist al l rninori ty national i ty regions to develop their economy
and culture by fhcilitating finance, goods, materials and technology.o Government wil l assist minority national i ty regions to educate dif ferent ranks of
cadres, prof-essionals, technicians and workers who are rninori ty nationals.o Covernment wil l ensure nrinori ty national i ty r ights and respect their tradit ional
culture.
4.5. TIIE ROLE OF TTIE IIONGYUAN COUNTY OFFICIALSAs well as the government role in Hongyuan County there are other players who cannot beignored. They include tradit ional leadership, the Lanas, and the "Green FoodCorporation", a quasi-governnrent agricultural product company. I t was impossible tcrobtain detai led inforuration of any of the non-governrnent players. We were assured of the
- 1 1 - - l 8 -
Hongl,uutt Couttts' Rapid asscssnent Survey
presence (verbal contmttnication) of a network of traditional leaders and larnas. It wassuggested that we network wil.h thenr to ensure the grass-rools level of our good intent.Without the co-operation of this network, it was suggested that our developrnent effortswould fai l .
4.6 HONGYUAN INTEGRATED COUNTY PROJECTHongyuan county otficials presented Foc with a chinese language Integrated countyProposal in 1994, and this has have been translated by FOC surff. The translations have notbeen rechecked by Hongyuan officials, but are tlie rnajor source of the followingdiscussion. where addit ional intornration rvas col lected dLrring the survey by teamntembers, those persons are cited in the text. The detailed technical proposals themselvesare available from FOC.
The original integrated Hongyuan Integrated county project proposal is dated october1992. The author is not identified, but at least the Education proposal was written by Mr.Gu, county vice-magistrate and Green Food company officer (Dohne). The main proposalappears to be an attentpt to address three objective difficulties encountered in the meat andanimal by-product indusrry:
l) loss of up to 30,000 yak in severe rvinters, drle to starvtt ion2) Overgrazing by an estirnated 52%3) loss of fat in nlcat every year worth 2 to 3 t inres the leln ment production that year.
These problctrs were attr ibrrted to the fbl lowing causes:l) Primit ive nonradic aninral husbandry practices lead herdsnren to " lbl low the grass
and water", and this provides inadequate shelter and tbod fbr anirnals in severervinter condit ions.
2) Internal confl icts exist, apparently between the herdsrnen and between thenr and theproduction expcrts.
3) Aninal husbandry production is not provided with qual i ty scrvices or "scienti l lcgu idance" .
4) The herdsnren are not provided adequate basic amenit ies, including health,education, clean water and electr ici ty, and are thus de-motivated in their vi tat job ofanirnal husbandry.
The essential theme running through all the technical Project proposals except forestry is"aninral production by construction and technological nranagcnrent". The objectiveappears to be optimisation of the economic productivi ty of the anirnals and animal by-products in the county, and the organisation of all services, people and structures to thisend. Senior unidenti f ied 'cadres' have discussed the problerns and corne to a consensus:they have developed a technological solut ion to "perfect the county husbandry industr ialbusiness conrpany". The basic pol icies to accotrpl ish this inclucle:
. l) construction ofa disaster-prevention infrastructLrre, inciucl ing fence-enclosed pasturelands, winter anintal shelters and storage barns
2) inst i tut ion of a grassland nanagement systen) that " integrates humans, l ivestock,grass, bui ldings, management and uti l i t ies" to raise the productivi ty of the pastures,and thus of the aninrals that graze upon them. Al l Hongyuan residents are expectedto fal l in l ine with this system, and a systern of rewards and punishments wil l be
Hottgyuutt County Rupid assessmcnt Survey
adlnin istered by the "Leadership Group" v ia every l ine agency bureau involved,
" those who construct wi l l supervise and benef i t " . From t l ie wr i t ten proposals, i t
would be necessary to deduce that the nlain reason fbr settling the nomads in
Hongyuan is to facilitate the snrooth operation of this ntanagement plan, despite any
cont- l ic t wi th Nat io la l ethnic nt inor i ty pol ic ies nray exist . These re lat ionships are
i l lustrated in Figure 4.6.
The Project is deemed t-easible in the Integrated County Proposal because the Sichuan
Provinciil governntent has "designated Hongyuan County as the experinental point in
animal husbandry disaster prevent ion". There are reportedly a lso 120 in-county " technical
experts" in aninral husbandry, and related research institutes fbr dairy products, beef
products, grassland and l ivestock nlanagelnent .
4.6.1. Pr lct ic i t l Eler t r t ' r t ls of t l te I longyrrrn I r ) tegrated Cotrnty l ) r 'oposl t l
In order to nraxirn ise product iv i ty , a f ive point act iv i ty p lat) is d isccrnib le in the Integrated
County Proposal :
l ) 1.600 nomadic tant i l ies wi l l be set t led in township areas over a 3 year per iod, the
f l rst 200 of these star t ing in July 1995. Eventual ly the number of tanr i l ies wi l l reach
4,000, and the local government is comrni t ted to nrainta in th is set t lement pat tern for
at least 50 years. Each tantily is to fence-in 50 acres of grassland in the pasture area
given to thenr tbr use, and the grass in this acreage will be harvested and stored for
use i r r winter . The f l rs t tarni l ies wi l l be set t led in uni ts of 5 to l0 households in the
townships of Anrukha, Anqu and near Hongyuan Town i tsel f (Mi l la is) . Summer
grassland areas will be extended, ancl the Winter/Spring use of pasture reduced to
2/3 of the total area. Artit'icial and senti-artificial pastures will be produced by
seeding and use of chernical ter t i l iser (Brown), and I arca of 1,000 acres in the
county will be set aside to procluce grass seed. At the end of the initial 3 years,
80,000 acres of grassland will have bccn set asicle 1br disastcr prevention. It should
be enrphasised that the apparent reason given in tlre Project proposal fbr settling the
nonrads is to taci l i tate fu l f l lnrcnt of the aninta l industry procluct ion goals. The
herdsrnen thentselves have expressed concern regarding the nced for disaster-
prevent ion, despi te nr isgiv ings about the way that the governt t lent 's proposed
rnethods (van Dis) .
2) A grasslancl rnanagentent associat ion wi l l be set-up to issLre grassland ut i l isat ion
pernr i ts , ancl a , 'contract-responsibi l i ty systenr" to "guarantec the supply of raw
ntater ia ls lbr the l ivestock product ion processing indtrstry." This wi l l apparent ly
take the fbrnr of procluct ion targets in tenus of nut t tbcrs of anir t ra ls and volunle o1'
fbdcler prodLrcecl.
3) Socia l serv ices, in the areas ol 'educi l t ion, heal th, water ancl e lectr io i ty wi l l be bui l t
gp around the set t len)ent areas. Three power stat ions wi l l be re-bui l t or extended,
t l i ree c l r ink ing water projects wi l l be constructed,24 v i l lage heal th c l in ics star ted,
42 km of h ighway constructed, and school ing taci l i t ies provided for an est i rnated
2,140 chi ldren. An animal husbandry technological serv ice centre wi l l be set up to
provide aninral disease prevention services and to train hcrdsnren in veterinary
Hongyuan Counry Rapid assessnent Survey
techniques. All of the technical area proposals except that for Forestry were writtentogether in October 1992, and all were meant to fit in with the general theme ofimproving the econornic productivity of the herdsmen and aninral industries. By thetime of the survey, there had been substantial changes in the details of most of theseservice-related proposals, and these changes are reviewed in the reports of eachtechnical area.
4) A Project construction expert team will be appointed from the technical specialistsresident in the County's various related departments, and "experts from the relatedprovincial departrnents and units (slc.' or other outside experts?) will be invited forconsultat ion. The smooth execution of the project is guaranteed".
5) The herdsmen wil l be rnobi l ised to invest col lect ively to construct sett lement vi l lagesand townships, in terms of both labour and money. Of the estirnated 39.8 mil l ionRMB that the Project wi l l cost, 24.6 mil l ion wil l conre frorn the herdsmen, andmost of this (22.88 million) will be directed toward the construction of disaster-prevention bases and settlement housing. Government has, however, offeredrecently to pay for 25% of settlement housing construction, and'/5Vo of the costs ofconstructing the winter feed storage sheds, small fences around housing, and fornew grain variet ies which wil l be grown in these plots (?). The Hongyuangovernment wil l also pay the approximate $1,900 US. for the outside fencingaround each herdsrlan's 4,000 to 6,000 mu (1 mu : .667 ha.) of grazing land, butherdsnren will be responsible for all rnaintenance of these fences, and forconstruction of the insicle fencing that will protect the 50 acres of disasterprevention grassland frorn the actively grazing animals (van Dis).
An additional Forestry proposal was given to FOC in Septeniber 1994, which appears to beunrelated to the goals and rhetoric of the 1992 Integrated County Proposal. This proposal,which calls for creation of a Shelter Forest in southern Hongyuan to deal with deforestationin that area, was reviewed by John Studley in October 1994. The feasibility of forestrywork in Hongyuan has been investigated by this tearn, and a technical report to that effectis also included in the Appendix.
In summary, all the technical sections of Hongyuan Integrated County Project Proposalwritten in 1992 revolve around the problems faced by the animal production industry. Theteam discussed the advisability of supporting this Proposal in Hong Kong prior to thesurvey. We realised that there were possible advantages and disadvantages to the Proposal,but approached the survey without limiting our information gathering activities to theProposal's boundaries. Each technical expert had opportunity to discuss the extent to whichrelated Hongyuan government offices identified with and supported the County proposal, tofind out how much of the proposed activities have already been accornplished, and to hearwhat each Bureau currently hopes to accomplish. This information can be found in theTechnical Reports in the Appendix of this report.
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4.7, THE GREEN FOOD CORPORATION AND THE THREE POINTPROJECT
Several references to a three point project appear in the University of Lund, Sweden's 199-lstudy of Peat mining in Hongyuan (Bjork, 1993). In that report, a three pronged approachincluding sett lement, peat ut i l isat ion and cross breeding of animals was mentioned. Duringthe survey, our education expert was told by the vice magistrate for Education and Healththat the three point proposal included industrial development by the Green FoodCorporation, energy production by peat utilisation, and settlement and education of thenomads (Dohne). The three point proposal and the Green Food Corporation (GFC) wouldappear to be much involved with county plans for development.
The role of the Hongyuan Creen Food Corporation (GFC) has rernained mysterious, butseveral observations can be reported:
l) When the team arrived in Chengdu, we were received at the GFC offices by Mr.Gongbu Dongzhou, the Hongyuan Chief Magistrate and senior government off icialin the County, and Mr. Gu, an off icer of the GFC.
2) Verbal infornration was given to us in Hongyuan that the rni lk powder and mea(processing factories in Hongyuan Town are financially related to GFC, and thatherdsmen must supply a quota of their stock each year to the company to partake inits financial interests (van Dis and Brown).
3) When permission for the tearn's presence in Hongyuan was requested of the SichuanProvincial government, GFC's Mr. Gu was responsible to try to obtain this(Thuma).
4) Mr. Gu and Mr. Congbu Dongzhou have always identi f ied themselves asrepresenting the sarne interests, so that Mr. Gu was sent to Hongyuan as Mr.Gongbu Dongzhou's representative at the end ofour t irne in the County.
We may speculate that GFC is the profit-making business arm of the county governmentitself, and that the affairs of local government and of the Corporation are intertwined. Thisraises the issue that the Hongyuan governrnent is likely not disinterested financially in theproductivity of the County, and may therefore be less able to be a disinterested proponentof the citizens of the County. It must be said, however, that clear and unambiguousinformation about the CFC was not offered by County Officials when requested (van Disand Brown), and further research into the Corporation's role in the County will benecessary.
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Chapter 5: Survey Nlet l todology
5. I INTRODUCI ' ION.5 .2 SURVEY ] 'E . \M5.3 TERMS OF I{EFEITENCE5.1 METHOD Ol : THt i SURVITY
5,.{. I . RAI' IONALE TO ADOPT AN RRA METHODOLOGY5,4 .2 POSSIBLE DANGERS OF USINC RRA
5.5 THE CONCEPTS OF RRA AND THEIR APPLICATION5.5 . 1 . OPI ' ]MAL IGNORANCE5.5 .2 . TRI , {NCULATION5.5 .3 . LEARNINC AS A TEAM5.5 .4 . USE OF APPROPRIATE INSTRUMENTS
5.6 SURVEY SCI - IEDULE AND PLACES VISITED5.7 . ANALYSIS OF FINDINGS AND REPORT WRITING5.8 . L IN{ ITAI ' IONS OF' fHE SURVEY
Hortg,yuutt Countl, Rapitl assessntcnt Survcv
2. possib)y to be repl icated in other sinri lar areas3. t i r r re l i rn i ted,1. respond to a legit irnate nced5. focus on working with people and on training
The tcanr rvas asked tc write the reports in such a way that they can be uscd as funcl ingproposals, including budgets and personnel needs. The teanr nrcnrbers werc encouraged t<restabl ish good work relat ionships with governrnent off icials ancl to bujki trust for FOC. Onthe other l land, the team was warned not to give any inrpressitrns on pronrises or talk toospecif ical ly on projects. Hongyuan County had subrl i t ted proposals to FOC for theirconsideration which were passed on to the team nrembers as basic intbrnration (see chapter4.5 and Appendices).
5,1 IIIIJI'HOD OF THE SURVEYUnti l the orientat ion in Hong Kong, prior to going into China, no part icular methodologywas sclectcd. During the preparation meetings t.he tearr, in agreerlent with FOC, decidedto adopt a Rapid Rural Appraisal (RRA) Inethodology in a tearn approach.
j,t |NTRODUC.rION 5.4.t nit'.nitc ro Adopr rtr RRA MclhodotqyThe suney of Hongyuan Counry was inniahd by Friends ofChina (FOC) to invesligate lh€ o RRA allows and rcqlircs a high dcgr@ of flexibilily, and therefore s*nred to be wellpo$ibihies olrural developmenr wort in this area, So far, FOC his not been involved in suiEd for lheteam's rask lo cxplo€ a situatlon ofmany utnowns.dy rural developnrent work in China, thus lhe organieion had no experience in doing this o It is i prfes appr@ch, which neans that whiledoinB the appraisal it is possible tokind ofsufley in rhe counrry. The ran aho did not know, wh ro expecr, Two out ofthe change, ro adjust - either to over.ome problens or to take adva.rage olunforeseerseven leao nren$etr had seen the ar@ during Drevious shoi visits, wheras the othcr five oppofiuinies,rean nemb.rs hld never previously visned China, Further, n was nol known how nuch o RRA plovidcs a number ofinq0ir looh dd nlerhods (semi-nnrcxrred interiew,tieedonr rhe tanr would hav€ to nrxke ils own plans, to lalk to pcople and lo se plaB bsenalion, tnnsr walts, diagans, nrappirg exercise9 which can be applied asFOC could nor exacdy pEdicr whar ravel lacilities would bcavlilablc to the tei1. the situation rcquircs-
o RRA alloes a multi-disciplinary leanr to tate fulladvailage oflhe va.iousprcfessional and experienti.l backgrounds ofi$ ne'nbers by shari'rE, exchangins, nnd
5.2. SURVDY IE"AM rcflecting.Foc inv iEds ix !p4 ia l i s$o fvar iousbac4runds |ocovc ! lhc tec [n ic i la reas .HongyuanCounty had submirted proposals for: rhcy arc willinB Governmenl smfi, officials, comnunily meDrbc!,
Annnal Hlsbandry (willem vu Dis)Gn$lods (Owen Blowi) 5.1.2 Possiltlc Drnsers or UsnB RRAHydropos.rand w.rer (Perer Millais) o hrphztrd inforlration tatheling, unreliable dala,Heilth (Joe Lenrasrer) o beins sr@red by others, e.g. govedhenr.Foresrry (Johtr Studley, an FOC A$oci.re ) ^ririne cxpeclations and subs€quent disppoinrmenl.Educatioo. T4hnical Teanr Lqder (Karir Dohnc) o cxplorilion ofcommunity s needs and perceptions is linrned,Ten ladcr {winnieThuma. FOC Staio
As obseneB lbur FOC A$ociat€s i@k pan in th. Rey (Margo and Adam toyner, Cary SoiD of thcse dange4 could bc overcone by rhe prcper apDlicatior oi rhe RRA conceprs.Psquarell, and h"ils Helle). othcrs xrned out lo beco e li ihtions ofthis srudy.
5.3.|ERI\SOr:RET\E\TDNCE 5.5 TItE CONCETTS OF RIU ANDTI:|IIIR AP\L|CATIONThe ream had the rask to ide.tiiy ars fo! posible tunl developNe.t wark which would ln contnst to convcnlional sufley nelfods, RRA uses diny or non-fornEl nrethods lofulfil rhe fouowing criteria: coll<t infordation. In order to avoid crc.s a number of concepts are npplied ro incrcase
L function as a 'door opener' for turorc involvemenl the validity oi knowledge gained throuSh an RRA prccess. A bdef description of rhese
1 ^
Ilongl,uutt Cowu), R.tpid ussl,]s,n?nt Survey
concepts and how the teanr put thern into pract ice now fo l lows.
5.-5. I Opt inral lgnor: rnccTo t lnd the nr iddle way between the two extrenres of having predeterrn ined quest ionnaires
and recording anything which crosses the path of the invest igator , i t is nccessary to ident i fythe key areas fbr infonnation collection. To study available literature is a first step to get
some orientation, however very little was available to the team nrenrbers, who came fromoutside China.
The teanr then approached the ident i f icat ion of key in lbrrnat ion areas in four stages:l ) Dur ing the or ientat ion in Hong Kong, general problerns and opportuni t ies
were ident i t led. Each technical specia l is t presentcd a plan out l ine fbr their own f ie ld.2) Af ier arr ival in Ht ' rngyLran, we l rad a f i rs t sessiorr wi th the governnrent of l lc ia ls
in order to gain an inrpression 01' the area, and c laborate on the plans lor eachtcchnical f le ld. Thc general problems and opportLrni t ies were i r rcorporated into thetechnical p lans. Ful ther, a l is t of conr)ron quest ions was col lccted to enablc each
tea,)r nrenlbcr to invest igate broadly wi thoLrt nccding specia l is t knowledge.l) After one week, it was planned to review and to adjust tlle process as necessary and
to ident i fy infonnatron gaps. (The teanl was in the nr iddle of th is exerc ise when thenews arr ived that i t had to leave ear ly) .
4) After the cornpletion of the field work the tearri decided on a reporting fbrnrat andshared the l indings which each other. This helped to s i f t through the large amounl ofinfornrat ion and lo c lar i fy contradict ing observat ions. To havc a plan and to know onwhich issues one needs inf i r rnrat ion helped to negot iate * ' i th t l re governnrcnt and
enabled t l )e teanl to push at the l inr i tat iot rs.
5 .5 .2 ' f r i l ng r r l a l i onTr iangulat ion nreans the process of cross checking infbrrnat iorr . Cross checking is needed toconf i r r r i in tbrmat ion, to ident i fy contradict ing in lbrnrat ion ( tbr hrr thcr invest igat ion), and,r l raybe most inrportant , to reduce biases of the invest igator (stereotypes, personalpref 'erences. an ' l know already' rn ind-sets; . The sLrrvey tcar l achicvcr l t r iangulat ion in thcfbl lowing ways:
o apply ing several tools to explore the srnre issue, e.g. l i terature study, observat ion andinterv iew, interv icw, obse rvat ion, and t l iagram;
o v is i t ing the sanre place by two te2lnrs and exchanging infbrrnat ion ancl i rnpressions,e .g . Sed i , S i zha i ;
o exani in ing a topic in i ts h istor ical d i rnerrs ion, i ts present status and possib le t i r ture
deve lopmen ts (wha t , i f . . . ) , e . g . se t t l en ren t , s choo l edL rca t i on ;o probing an in lbrrnarr t by asking, by nraking diagrarns or caiculat ions;o intcrv icwing several infbrnrants d i rcct ly and indirect ly , intcrv iewing di f t 'erent types of
intbrrnants, e.g. I rerdsnran, v i l lage l readrrran, governnret l t o i t lc ia l .
5.-5.3 Lelnr i r rg as a Tcanrln mul t i -d isc ip l inary teanrs the nretnbers carr conrplernent each other, or chal lenge each
other with (naive) questioning. In this survey teanr six diff'erent prolessions and nrany years
of overseas experience fronr severai countries (nrainly Nepal) were represented. Further,fbur FOC Associates took part as observers. The teani nret regularly in the evenings toshare the day's f indings, and correct each other 's i rnpressions. Dur ing the f i rs t week the
Hrsttg;,uan Crtunty Rapid asscssm(nt Suryey
team split up in five groups of two to three people of similar profession, accompanied bytranslators and governnrent off icials, who functioned as guides and 'rninders'. In the smallgroup one person could lead the investigation, whereas the other one functioned as observerand record-kker. Sometinres the one person could occupy the 'minder' to enable the otherone to talk to sonrebody undisturbed. It was planned to change the small group compositionand mix the professions to investigate rrore in depth at community level. Unfortunately thiswas not possible.
5,5.4. Use of Appropri:r te InstrunrentsIn recent years several inslrurnents for investigation have been developed under the RRAumbrel la. The tearn reviewe(l these tools during the preparation and practised them tofarni l iar ise each rrtett tber with the rt t . The nrain tools used were the serni-structureointerview and observation. Several groups attempted transect walks, but could notcomplete, because they wcre rLrshed to other places. The preparation of diagrams weresotnetimes interrupted by our guides, sornetinres diagranrs helped to clari fy information.The groups used seasonal calendars and historical t i rrel ines. To combine walks withinterviews proved to be trseful: i t al lowed the interview to happen in a more casual waywithout too nlany others I istening.
5,6 SURVEY SCHEDULE AND PLACES VISITED29-30 May3 l May- I June7 June3-4 June5-9 Junel0-1 I June
l5-23 June24-25 lune.26 June
Preparat ion in Hong KongTravel to Hongyuan CountyMeet ing wi th governrnent of f rc ia lsTeanr lneet ings and restFie ld workTeanr rneetings and restInformat ion that the survey t ime was cut by one weekAnalysis o l - f indings and reporr wr i t ingTravel and restDebrieling and presentation of report to FOC
The survey team, spl i t in f ive groups could v is i t a l l 8 township areas in the county.However, the team did not get to see the more remote v i l lages in Sizhai township in theSouthwest of the county. Vi l lages, tent encampments, winter quarters of nomads, towns, aswel l as v i l lages and towns of the agr icul tural area in the south of the county could beobservecl . For detai ls , sce map.
5.7 ANALYSIS OF FINDINGS AND REPORT WRITINGDiscussion of the findings, analysing the information, writ ing the report and developingoptions and recornrnenclations are an integral part of the survey. It gives the team a lastchance for cross checking and correcting each other. The different parts can be related toeach other to get a rounded picture.. I t helps to prevent each technical special ist looking attheir own area in isolat ion.
The general part of this report (chapters I to 7) was produced by first brainstorming andcollect ing the infornration in a group discussion. A team rnenrber then would produce.a
2 6 - - 2 ' 7 -
Ilortgyuutt County Rupid usslsttt(nt Surv(y
drafi and present it back to the group lbr discussion. 'l 'he
tcchnical reports were written by
each expert. These reports were then presentcd to the tearn and possiblc options for future
action discussed. The tean.r developed advantages and diszrdvantages (a risk analysis) to
each of the opt ions by consider ing:o the general part intbrnrat ion, which provides background fbr assessing possib le socia l
and environnrental inrpacts, and gives informat ior t on the econornical and pol icy
franrework.
o the Ternrs of Reference of FOC.
o a 'development v is ion' s tateurent which the survey teanr worked out in order to have a
deeper and a shared understanding on the purposes of developnrent.work.(see sect ion 2.5) .
o Final ly the teanl d iscLrssed the inrpl icat ions ofat tenrpt ing rural developrnent work for
an organisat ion, which has not been responsiblc for rural developrnent before.
5.8. LIMITAT'IONS OF T'IIE SURVEYLirn i tat ions of th is k ind ot survey rnay resLr l t f rom the rnethoclo logy appl ied and/or f rom
the c i rcumstances encountered. I t is inrportant to ident i fy t l iese boundar ies, in order toprevent n i is- or over- interpret i i t io t r of the resul ts. l t a lso points towards fur ther research
needs. When the Hongyuan CoLrnty adnr in ist rat ion asked the survey tear) l to leave ear l ier
than plannecl , i t nrcant , th: r t an i rnport l rnt part of the survey process coLt ld not be
implenrented: i t had bcen planned c lur ing the second rveek to rearrange the groups ancl go
out to v i l lages or tent encanrpnrents ancl to observe thc l iVes of thc ;>eople and ta lk wi th
them. Therefore, the biggest l inr i tat ion ident i f ied by the teanr is t l re lack of ins ight into the
cornr luni ty 's perspect ive. Horvever, the anirnal I tust lurdry/grassland group had
opportuni t ics to rneet wi th nonrads.
Even i f the team coLr ld have done what was planned, th is area would have been a
l i rn i tat ion. Any survey conducted in sonre weeks, whatcver rnetho( ls used (RRA, PRA,
Quest ionnaire survey) can only produce intpressions on the local people 's v iews and
problerns. To f lnd out in depth can be done only in the context of longer term involvenrent
wi th the part icular conrnruni ty. Proper infbrnrat ion on the people 's v ie iv depends on the
trust they have i r r the invest igat<rr and on the knowledge of the invest igator of the
cor l r luni ty, i ts fact ions, conl l ic ts ins ide and outs ic le, i ts pcrwcr structurc ctc.
Only one group (hydropower) had a chancc to v is i t a r ) ronastery, yct i t is known that
t radi t ional iy nronaster ies and Ianras haci and have big i r r l luence and power. The economic
data the tearn got were biased towards noney economy. The subsistcnce econonry and
barter trade are not represented.
To be acccrrnplrn ied dai ly by go!L ' rnnrcr l t of l lc ia ls I i rn i ter l the teanr 's abi l i ty to ta)k openly
wi th people. Part ly , however, tearn nrenrbers were inhib i t ing thenrselves by ant ic ipat ing
contro l , or by being tense towards the'n inder ' , thus fur ther reducing the radius ofact ion.
Several te l rn nrernbers got the i rnprcssion of being gLr ided to part icul l r r p laces and
selected people. One group exper ienced refusal of infornrat ion, e.g. epidenr io logical data
Al though nrany places were v is i ted, i t was f 'e l t that the range of r ich and poor, of
Hongl,uan Counry Rapid ussassment Survey
advantaged and disadvantaged could not be fully explored. For example the animalhusbandry group had asked to meet a family responsible for a herd of less than 30 animals;this was not possible to arrange.
Not being familiar with the Chinese and the Tibetan culture caused other limitations. It isnot easy to understand jokes, ironic remarks and hidden messages. How to interpret non-verbal communication and the not-said? How do they express critical or negative matters?
2 8 - -29 -
6: Technical lleports
The lbllowing technical reports were written by each technical expert on the Team. Eachreport has been produced fionr the technical perspective of its writer, so the rcports are notexact ly paral le l ; however, a l l fo l low a general f rantework:
l ) Interpretat ion and Discussion of Observat ions.2) Possib le opt ions which FOC nr ight take up in response to th is Survey.3) Personal reconrnrendat ion of the wr i ter , wi th h is or her cot)ccrns.
The detailed observations fronr each area can be found in the Appcndices oi this report.
Hortgl,uart Coun4, Rapitl oss(ssment Survey
6.1 GRASSLANDS
6. I .1 . OBSERVATIONS6, I .2 . L IMITATIONS6,1.3. INTERPRETATION, EXPLANATION AND DISCUSSION OF FINDINGS6. 1,4. OPTIONS AVAILABLE6. I .5. RECOMMENDATIONS6. I .6 . SUMMARY
6.6,1. OBSERVATIONSThe dai ly observations are recorded in the text of the observations in the Appendix. Thefollowing are important observations which relate specifically to grasslands managementassessment.
Grass Types:The prirnary grasslands are cornposed of two types of grass, a fine and medium fine grass.The fine grass is pref'errecl by the herdsnren, with medium fine grass of secondarypreference. There are several other species on the grasslarrds, but of secondary irnportanceto the herdsmen. A volurne of 1,500 kg per hectare of dry nratter was presented as a yieldon natural grasslands area. There is no current use of indigenous legume species, vetch,pea vine, clover, or alfalfa grown in this area.
Pest Problems:The grasslands have varying infestations of noles and pocket gophers. These are theprimary hazards to growth of the grass. There have been other international experts in thearea to discr.rss solutions to nroles and pocket gophers. The lack of natural predator control,via fox, eagle, or wolf is evident. The rnole is nruch more dif f icLrl t to control because i trarely surfaces out of the earth. Fox pelts are sold in large nurnbers in Songpan to tourists.A high infestation of caterpillar moth was reported, but not seen. The insect has moved infrom another area. It consunres large quantities of grass, and is considered a problem pestby the government off icial with us on our f ield tr ips. A rnechanism of control, spraying.developed by scientists at one of the r.rniversit ies in Chengdu, is eff icient, but nray not becultural ly appropriale in a Tibetan Buddhist area.
Weed Problenrs:There are several species of weeds, consisting of buttercups and other flower species.These have high infestat ion rates in heavi ly grazed areas. Sea buckthorn and wil low plantsare also in evidence in varying arrounts at diff'erent sites. This decreases the productivity ofthe grassland depending on infestation severity.
Grazing land Allocations:The herdsmen are given grazing allocations twice a year. Allocations are given to thevillage level by the local county governrnent. The village head, in conjunction with theherdsmen, do grassland grazing al locations at the vi l lage level.
The grass along the road south of Hongyuan, to the border of the county was very short,with init ial indications of overgrazing. This was indicated by high weed infestat ions and theheight ofgrass above ground level. Grasslands to the north and west of the county were in
3 ll 0 -
Hongyuan Courtty Rapid assassment Survey
much better shape, and were perhaps the later sunlner pastures. These grasslands were also
in nrore of a peat bog type of land. Sorne yak were grazing in this area the day we left the
county. The other areas of the county were not v is i ted, thus no observat ions regarding the
state of the grassland in those areas are presented.
Grasslands close to the main road were very closely grazed by the aninrals. This was due to
the milk frorn the yak being shipped to the niilk powder tactory.
Grass Var iety Developrnenl :
Grasslands developnent at the local experinrental farnr was being done on a broom grass
species from lnner Mongolia which used 50-70 kg pcr ha of cornnrercial fertiliser to grow.
Indigenous species were not in the exper i r rental p lans at th is t i rne.
The local experirnental farni appears to be in the ntaintenance tnode. The seeding
equiprnent was awai t ing parts, and nrany bui ld ings were c losed up. The exper i rnental farm
had one newly p lanted t le ld of grass, others were in a grazing t r ia l , wi th yaks grazing on
the f ie lds.
The Grasslands Inst i tute in Hongyuan town wirs dry ing ginger on a concrctc pad in back of
the rnain bui ld ing, no one wi th keys was avai lable to g ive rre a tour of the taci l i ty . The
manager of the Grasslands Inst i tute was in Chengclu at sorne provincia l nreet ings, and no
one was avai lable to answer quest ions or g ive r lc a tour of the faci l i ty when I requested i t .
The impression received at this specific tirre was that grasslancls developrnent was not a
high pr ior i ty for Hongyuan County Covernnrent of f lc ia ls.
Fencing:Wire fence enclosed grasslands north and south of Horrgyuan Tolvn had natural grasses in
them, wi th no evidence of ar t i f lc ia l grasses planted. The fence surrounding such plots
showed s igns of h igh rates of wear by aninrals. QLrest ions aboLrt the long terrn v iabi l i ty of
maintenance and repairs of this type of t'encing by the hcrdsrncn wcrc not answcrcd
suf f ic ient ly to regard th is type of f 'encing as a posi t ive al ternat ive to the currcnt method of
al locat ion of grazing area. Cross-checking of infbrnratron given to us by the of f lc ia ls of
Hongyuan County regarding the 95% success rate of adopt ion of f -encing was not
substantiated.
Establ ished set t lements used wi l low in I ive or dead fence appl icat ions. This was for winter
enclosures, where high densi ty l ivestock appl icat ions were evic lent . There was also sonre
evidence of sod fences, which wcre in poor repair . ' l 'hese
were found in the north westernpart of the county.
Fert i l is ing:The tether ing s i tes of aninrals at the base camps near the nrain roads were moved on aregular basis. Over fer t i l isat ion by natLrra l nreans (ur inat ion), on tether s i tes, occurred. The
tuse of dung as f i re l by the herdsr len decreasecl the anrount o l natural fer t i l iser which was
cycled onto the land.
Commercia l fer t i l iser is not considered v iable by the herdsnren. They bel ieve i t k i l ls
organisms in the soi l , so is not in accordance wi th their re l ig ious bel iets. In addi t ion, the
Flortgyuan County Rupid asscssment Survay
costs and avai labi l i ty of comnrercial fert i l iser in this area could be a problern.
Spatial Differentiation of Crass Sites:The area to the west of the monastery we visited, on Tuesday, has a great deal of willow inthe secondary river valley. This would have to be renovated in order to have grass forstorage produced. It also cuts down grazing yields.
The low rounded mountains on the east of the main river valley have a lower stocking rateofproductive grasses. There was more shrubs and other herbaceous growth there.
Harvesting of Grass:Harvesting of grass for winter usc cloes occur. The amount stored per anirnal ranged froml5-25 pounds per anirnal fbr the entire winter. In Canada, for a similar cl imate situation,the stored hay required is 4,000 pounds per animal per winter. Harvesting of grass is doneby hand, with a hand sickle. In sonre cases this cut grass has to be transported to the basecamp. No storage facilities for the hay were observed. The low precipitation in the wintersuggests no need for such storage facilities.
Water Avai labi l i ty for Grass:Precipitation for the growth of grass is adequate in the surnnrer. See the appendix on waterin the engineering section for precipitat ion totals tbr each month. Water for the animalswas avai lable everywhere. The l irr ther ani lnals range from water, the less the grass isgrazed. Thus, and uneven Anlor.nt of grazing, based on distance from water, wasobserved.
Rotation of Grass Grazing:Sorne herdsnren had rotat ions of winter/spring/sunrrner/fal l with sorne area set aside forwinter grass production. Others had only three rotat ions of winter/spring/summer-fal l .Rotations seerned to work around the quota of milk required by the milk powder factory byeach herdsman. Movenrent of households takes l-2 days fronr one pasture to another andvaries. Herdsmen may work in extencled family groups to graze the yak, allowing othermembers of the family to do other tasks.
Notes from Sichuan University:The visi t to Sichuan Union University, Inst i tute of Biotechnology and National Lab ofGrasslands Biotechnology, provided intbrrnation regarding the biological control of thecaterpillar, rnole and pocket gopher pest problems on the grasslands. The professors statedgood control of these pests was feasible with the natural chemical controls they havedevised. Understanding of t l re social and cultural rarr i f icat ions to the Tibetan Buddhistpeople was unclear.
6.1.2. LIMITATIONSThe prirnary l inr i tat ion of the report was the avai labi l i ty of an in country counterpart personat the Grasslands Inst i tLrte in Hgngyuan. Atternpts to gain inforrnation there wereunsuccessful. This infbrmation would have been very valuable to assess the current statusof the grasslands, and the specif ic pcrceiveci/ felt needs they have.
Another l i rnitat ion was the shortness of t inte at the Experimental Farnt across the r iver
33- 3 2 -
Hottg;'uutr Count)' Rdpid ass?ssment SurvaY
fronr Hongyuan. A br ief int roductory tour was not suf t lc ient to detenr ine the extent ofgrass species research that has been done in the area.
The I i rn i tat ion of number of s i tes v is i ted. Crasslands inspcct ions only occurred along thernain road and a secondary road past a large rnonastery. I t would have been useful to have
access to nrore of he land area, part icular ly away l ronr the nrain ro ld. I t was nrent ionedthat desert i l lcat ion was occurr ing in the north e: is t part of thc county. This was notpersonal ly observed by th is part ic ipant .
The l imi tat ion of t ime of year. I t would have bcen nrore usef l l to go to the area several
t i rnes dur ing the year, to observe grass growing at several s i tes and the pest and insectproblems occurr ing.
6.T.3. INTERPRETATION AND DISCUSSION OF FINDINGSThe grasslands area has been in product ion fbr nrany centur ies. Only recent ly has intensiveproduct ion been advocated by the governrnent. l t was di f f lcul t to detennine i f the 50% of
overgrazing stated in the in i t ia l Hongyuarr proposal was an accurate assessment. Somedocuments suggest overgrazing is a probler l , sonrc do not . T l icre does appear to beovergrazing along the roaci , but th is nray [ re r lLre to tho season of mi lk shiprrents going tothe mi lk powder factory. At other t inres of the ycar thc aninrals wi l l be fur ther away f ronr
the road, where the longer grass was.
Grass Types:
The two grass species or types ident i f led above are rapid gr t . rwing spccies, wi th excel lent
surv ival capaci t ies under the extrenre condi t ions found on the Tibetan plateau. The grass
yield appears to be average for this type of clinrate. The secondary species of grasses areless palatable by the aninrals, so they are not nrent ionet l , and pose no large econornicalbenef l t to increasing their growth. Increases in y ie lds would require investrnent in
cornnrerc ia l t -er t i l iser . The di f f icul t ies wi th th is have becn noted above under the tonic offer t i l is ing.
Pest Problenrs:The nrole arrd gopher infest l t iorrs prcscnt Br. ivc problcr t ts to t l rc in lproveruent of thegrasslands. l rnproved grasses, e i ther by inrprovecl v l r r ic l ics, new vl r iet ic 's , or increased
inputs into the soi l to inprove grass growth wi l l have l i t t lc e i l -cct i f thcse two pests are not
adequately contro l led. Even i f appropr iate h igher y ie ld ing var ict ics are v iable f rom a
cl i rnate stand point , the in i t ia l problern of nroles ancl gophers wlr ich k i l l the grass needs to
be deal t wirh.
Weecl Problenrs:The weed species which are evidcnt are a synrptonr of overgr i rz ing and lack of nutr iL 'nts in
the soi l . Adequate nutr ients to st inrulate growth in thc grass species nray enhance growth of
the grass and they in turn choke out weed species. Reseeding of grasses will also increase
the y ie lds and f l l l in the spaces where overgrazing has caused the grass to d ie. Weed
problems may also be eft-ectively controlled by spraying, spcaking fionr a scientific and
technical v iewpoint . The econon.r ic v iabi l i ty of th is is yet to be deternr ined. Normal ly on
rangelands, spraying fbr weecls is not deenred l inancia l ly et f lc ient , because of the low
densi ty rates of aninrals. The densi ty rate of aninrals in Hongyuan County, as taken f ronl
Hortgyuart County Rapid a.;scssment Survcy
the Hongyuan County proposal, suggests a stocking rate of one animal fbr 30 acres. Thisis quite low.
Fencing:The costs of fencing with woven wire and steel posts is not justified, particularly with amixed response from herdsmen and government officials as to it's necessity. The cunentfencing of the grass on the grasslands is a very costly endeavour. The posts and fence areestimated to cost $1,900 USD in total for one family, $1,400 USD would be paid for bythe governnrent, and $500 USD by the faniily. The estinrated repairs and life span of thecurrent fence plan do not just i ly the init ial costs. The question of who wil l maintain thefence is not clearly deflned and governrnent maintenance of a private fence does not makesense. The labour costs involved in constructing l ive fencing or fencing woven out of deadwil low branches as an extensive fence is not f inancial ly just i f ied. Sod fences, according tocurrent information are not acceptable by the Tibetan Buddhist people, so they are notviable.
Fert i l is ing:Comrnercial fert i l is ing is not acceptable. Use of aninral dung fbr fuel curtai ls the amount ofnatural fert i l iser recyclcd into the soi l .
Spatial Differentiat ion of Grass Sites:The dif ference in grass sitcs indicates dif terent nricro cl inrates. Renovation of the sitesinfested with wil low is possible, but requires private lease/ownership agreernents with theindividuzrls involved, otherwise, publ ic property irrproved by private individuals wil l notoccur. Improvement of the grass on the shrub covered hi l ls would be more dif f icult andtinre consurning. An analysis of the f inancial gains of this needs to be done beforerenovation would be attelnpted.
Harvesting of Grass:Harvesting and storage of grass, on a larger scale, would be very advantageous forindividual fantrers. Since there is l i t t le precipitat ion in rhe winrer, l i t t le, i f any storagefaci l i t ies are required. Harvesting of grass could be inrproved by use of longer sickles, ofthe type known in North Anerica. The ground is f lat, so the long bladed type would work.These harvest sites need to be identified and blocked off near the winter quarters, sotransportation by yak of the hay does not take up a large tirne frante.
Water Avai labi l i ty for Grass:Grass growth does not appear to be hindered by lack of precipitat ion, no irr igationdevelopment needs to occur. The further anirnals range from water, the less the grass isgrazed. Thus, and even amount of grazing throughout the r iver val leys was observed. Grassgrazing further away frotn the valleys nray be less intense due to distance from water. Thisneeds to be taken into consideration when determining the animal carrying capacity of thegrasslands.
Rotation of Grrss Grazing:Rotation of grazing slrould occur when grass hirs one to two inches, or 2.5 to 5 cm ot 'growth above the ground. This provides and adequate arnount of leaf surface to al low thegrass to regenerate itself. Rotations observed occurred when the grass was at ground level.
- 3 1 - - 3 5 -
It r u t u t' t t u t t Co u nt y tl u p i d d s s ( s s ne ru S u r\'(\'
Lower ing stocking rates and intensi ty ing the value of the yak, v ia value added products isone of the easy to deal wi th th is problenr. The rotat ion decis ions occurr ing at the v i l lage
level seern to be well done with local area knowledge. Rotations on the open grasslands arerelated to the nr i rnagenrent . exper l ise of the herdsnren. A wise nranager knows when tomove his aninrals on his a l located grassland.
6,1.4. OPTIONS FOR DEVELOPMENT
Grass Types:Ef for ts to increase the arnount of the f ine grass on the grasslands should be pursued. Use ofother grass var iet ies should also be pursued. Another opt ion is to do developrnent ofIegurnes for grirzing and foclder storage.
Weed Problenrs:Weed problems can be deal t wi th in several ways. One, spraying of the weeds, which hasbeen discussed previously in th is report . Two, t i l lage and rcseeding of the grass which hasre) ig ious ramif icat ions. Three, broadcast seeding of grass seeds at h igh rates in the ear ly
spr ing, so the seeds wi l l be integrated into the ground by f iost and nroisture. This wi l l
choke out the weed species. Four, use of lerr i l iser which wi l l incrc lse the growth rate ofthe grass, but not the weeds. Tl r is is in the exper in lental s tage in North America, so i t wi l l
not be appl icable for th is s i te at th is t inre.
TIre rnost v iable opt ion is [ r roadcast seecl ing of grass scccls which wi ] l c l roke out weeds. Thegrarss to do th is is not deterr) r ine( l at th is t inre. Reseurulr to the appropr iate type needs to bedone tbr th is to have opt inral resLr l ts .
Grazing Land Al locat ions:Grass land al locat ion nrechanisnrs are di f f 'erent in var ious countr ies. ln adaptat ion of one ofthese mechanisnrs nray be useir l here. The v i l l t rge levcl i r l locut ion systeln in conjunct ionwith the coLrnty of f ic ia ls is appropr iate at th is t inre.
Crass Var iety l )cvclopDlei l t :
Exper imentat ion wi th indigenous legunre species as rvel l as grass, r ) rore awareness ofcurrent state of grass and legunre var iet ies, and the research done on thcnr lbr th is arcawould be very usef i r l .
Fencing:Electr ic f 'encing, using one or two wires has been ef f 'ect ive in contain ing cat t le in NorthAmerica. This type of solar powered f'encing has been used to keep bears out of bee hivesin Alberta, Canada. I t is very ef t 'ect ive. Costs of th is type oi l 'encing are substant ia l lybelow the current f 'encing proposal . High in i t ia l costs n lay c lcter snnre hcrdsrnen f ronradopt ing th is technology in the short terrn.
Fert i l is ing:
Introduct ion and use of legunres such as c lover or a l ta l la which f lx their own ni t rogen
fert i l iser has potent ia l tbr th is area. Longer ternr exper inrentnt ion wi th ar t icular species and
var iet ies is required to determine rvhich species woLr ld be thc best .
llortgt,uurt County Rapid dssassmcnt Surv?y
Harvest ing of Crass fbr Storage:Harvest ing of grass lor storage tbr t l rc winter nronths could be acceleratccl by using largers ick les held by two hands. A pat tern could be taken over by an indiv idual f rorr NorthAnrer ica, and used to nranulncture local copies. This would ease the one handed grab andcut type of s ick le current ly used.
Water Availability for Crass:There is l i t t le to speak about fbr opt ions of i rnprovenrent in th is area. "Looking to the sky"for more ra in at certa in t inres of the year would be appropr iate.
Rotat ion of Grass Grazing:Et jucat ion of herdsmen to the bcnef i ts of intensive rotat ional grazing pract ices would bevery benef ic ia l to a l l the people cor lponents concerned. This wi l l only work i f there isenough grass avai lablc to do th is wi th. I f overgrazing is at the 50% level , they are probablyrotat ional grazing, thoLrgh not intensively, a l ready. Eclucat ional sent inars for thegovernrrent of f lc ia ls ant l extcnsion of f iccrs woulc l bc- a beginning point , then v is i ts tocort r tnuni t ies in the winter to expl l in the benef l ts , an( l a rotat ional t r ia i done by the countygove rn r ren t wou ld be vc r y benc l l c ra l . Es t i r l a t i ons o f ' a one day sen r i na r w r t h a g roup o f l 0people would be a beginning to st i r r t f ronr orr th is topic. Mcet ings wi th hcrdsrnen in groupsof 3-4 should produce good resul ts as wel l .
6. 1. 5. RECO M M EN DATI ON SShort Ternr:Set t r inars on the benel l ts of rotat ional grazing on the open grasslands woLr ld be ef fect ive. Inaddi t ion, the ( lenronstrat ion of the l i r rger, two harrded scythe/s ick le to the herdsrnen couldalso have an in lnediatc posi t ive ef t 'ect on the anlount of grass harvested for winter use.These coul t l l tappen as soon as the sLrnurer of 1996, wi th a t ranslator . Senlnars ondi f f 'erent typcs of grazing land al locat ions coLr ld a lso be given, presented to the herdsmenancl local of ' f ic ia ls, togcthcr, t l re opportuni ty to ta i lor ntake a worki ib le lease use progran)for the grasslar tds that r ray not inc ludc thc nccd for fencins. This wi l l g ive rhent a var ieryo f cho i ces so t hey can se l l ' r i c t e r rn i ne r vha t w i l l r vo r k bes t i n l he j r s i t ua t i on .
Cost ing requircnrents for short ternr :J 'he rotat iorra l grazing serr t inars, and grazing lzrnd al locat ions serninars, would require atransportat ion al lot rDent tbr the prescnter . Mater ia ls t ranslated into Chinese and Tibetanwould require t ranslat ion work r lonc by sonreone. The dcrnonstrat ion of the scythe wou)din i t ia l ly be done by the wr i ter of thrs reprrr t . thcn t ra in i rn inc l igcnoLrs person to do th is. Thcwage paying of th is persort u 'oul t l h lve to be u 'orked out in conjunct ion wi th the localgovernnrent . Cost shar ing ol '50-50 is suggestcd, hal l 'by the local governnrent , and hal f bythe organisat ion in Hong Kong. The cost of a scythe, i ts t ransportat ion to th is area, and thr .demonstrat ion to the herdsncn would be covered by sponsorship f ronr the Anter icas.
Iv ledium Ternr:J 'he t rse of e lectr ic fencing to enclosing areas fbr rnore interrs ive growrh of grass for rv intert tse could occur. A dcruonstrat ion plot of the et ' l !c t iveness of the electr ic f 'ence needs to brdone in order for the herdsnten to belreve i t wi l l work. This is a nruch lower cosral ternat ive to the current fencing progranr. The costs would be born -50-50 by the localgovernrnent and the larnrers, and the person wr i t ing th is woLr ld br ing in the solar powcred
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I1ottx)'uun Cttuntt' Iiupid ass(ssm(N Surw'y
f-encers. Al l other hardware would be suppl ied in country. Fence insulators can be made
out of old inner lubes at)d tlres, irnd willow sterns cotrlti be used as the stlpport structure for
short ternr fences, ancl longer ternr ones coul<.1 tlse nlore substantial hardware and
indigenously produced post-s.-bost ing require ' rents fbr r t lc t l iunl tef ln: The solar powered
elecl ic fcnce cost is $ LIS i r r the Artrer ic i ts . ' l ' rvq wi l l in i t ia l ly be provi t led, one as
d e t n o n s t r a t i o n . a n d o n e a s b e c k u p ' T h i s c o s t w i l l b e c a r r i e c l b y s p t l n s o r s i n t h e A n l e r i c a s .The cost of rwo strands of barbei wire tor l 'encing wi l l be carr ied by the local governnent '
Labour to assist in the constrLrction of the fence will be provided by both the local
government and the Hong Kong agency'
Long Tenn:
The developnrcrr t of gr i iss and Iegut l le species which have incrcasecl y ie lds at t l l is a l t i t t lde
would be of great benef l t to thc herdsr len. This wclu ld incrcase their abi l i ty to husband
ntore anir la ls or t a f lxet l Lrase of land. Interact ion wi th thc prot 'essors at the t ln ivers i ty in
Cn.ngau, suggests th is is a feasib le opt ion. I r t r r ther i t t teract ion wi th thenl and having thent
as the of f lc ia l c l rannel rv l r ic l l to work throtrg l t rvotr ld bcnel l t a l l part ies
Cost tng reqt l l re lnel l ts :
T l r i s r e c o t t l n r e n d a t r o n r e q u i r e s s e v e r a l y e a r s , a n d c o s t i n g r e ( l t | i r e r r l e n t s . f b r . t h i s w o u l d b enrore substant i i r l than the t rvo t rbove rccotnt ] let tc lat ions. An ot t t l ine of cost i l rg is as fo l lows:
Yce r l y :Personnel wage needs dl t r l l lg st ln l lncr :
Equipntent needs:
Seed needs:
TransPortation ueerls:
Fencing:
6.1.6. SLI t t t I IARY
T h e r e i s a p l a c e f b r t h i s o r g i r n i s a t i o n t o p l a y i n t h e d e v e l o p r t r c n t o f t h c g r a s s | a n d s o f t h i s
t rea. I t wi l l need to uegir i sntal l , and work Up in projecl s ize as t rust on both s ides ls
devclopecl . Excel lencc rn a snral l job wcl l t lor te at the bcginnir rg u ' i l l lbster cont inued io int
t lcveloprnent prOJectS ln the long ter t t t . Furt l ter C0t l lnt t tn icat ion ant l in tcract ion regarding
the extent of inreract ion needs tJbe negrr t iated wi t i r rhe local governrnent. cont inued v is i ts
ancl courntLt t t icat ion wtth area of f lc ia ls is necessary to l tave a progranl in p lace for t l tc
sunrnter of 1996.
6.2 AMMAL IruSBANDRY
6.2 ,1 . INTRODUCTION DISCUSSION AND ANALYSIS6.2 .2 . CAN THE NOMAD SYSTEM BE IMPROVED?
I. BREEDING2. FEEDING3. HOUSINC4. HEALTH
6.2.3. ARE THE SET'|LEMENT POLICIES FOR NOMADS A JUMP FORWARD?6.2.4.THE PROCESSING OF ANIMAL PRODUCTS IN HONGYUAN COUNTY6.2.5. OPTIONS FOR POTENTIAL INTERVENTION6.2.6. RECOMMENDATIONS
(For Animal Husbandry Observations/Lirnitat ions, plcase see Appendix B).
6.6.1 INT'RODUCT-ION DISCUSSION AND ANALI'SISLooking at the ctr l ture and tradit ion of the herdsnran, i t is not surprising that the words"work" and "dif f icult" are related words in Tibetan. A lot of harclshipihave had to beendured in order to survive over the centuries. Those hardships come f iom both the naturalside (cl imate, alt i tude, grassland prorlLrct ion etc.) and also frorr inst i tut ignal stde. Theculture and social l i fe of the nomads has been uncler severe pressures during the CulturalRevolut ion, but st i l l the endurnnce of the nonrads ancl the wise decisions of th! Government(minority policies) werc enough to overcorne those periods of threat. Nornads have learnedto keep some spare breath tbr tough periods ancl come out after sorne years as ,,wealthycit izens, part icipating rnore than everybody else in the (black?) rnarket economy,' . Theycannot be considered as poor.
Sti l l the qt lcst ion is: can intprovernenls be nrucle in the systent to reduce the r isks andoptinise opportunit ies? I lelated with (hxt: i rrr the proposals for sett l ing rhe nontads ln acertaln area as "yak-f irrnrcrs" a rviry to i lnprove the econornic prospects of the herdsrnen?Another question relates with the outp.t of the herding ryrt",n, ho* can the outputproducts be processed in a way beneficial 1br rnany part icipants?
6.2.2. CAN TIIE NOTIAD SYSTEM BE III,IPROVED ?Looking at the system, some sub-systerns can be identi f ied as Breeding, Feeding, Housing,Health. They wil l be dealt with in brief.
l . BreedingNo real breeding geared towards upgrading the stock is taking prace. There are no specificcri teria for breeding as srrch, other than just "character ' , (what ever this rnay mean _sometimes i t seenrs l i teral ly 'character ' : two calves are bountl togetlrr,r so one is teachingthe other one how to behave in a rrercr). In this breeding area, however, there are qultesolne potentials. The variat ion within.the herd is so nir.rch that there is select ion on certaincri teria, other than'character ' : ni lk production / nreat procluct ion / f 'ert i l i ty / hair_woolproducrion can be esrabl ished (pu Jiabi _ 1994).
on the other side, there is not rnuch roorn for breeding o. rts own, when i t is not done ln
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Hongtuun Countl, Rupid ass?ssnlcnl Survey
conbinat ion wi th the other bot t le necks: feeding (especia l ly in winter and spr ing), housing(protection) and health. The greatest natural selection takes place based on fitness /toughness of the aninrals (sonret inres up to 30% of the l rerd dies as resul t of lack of fodderdur ing winter and spr ing). Breeding ( i f any occLrrs) gocs v ia ferra le l ines. With a l i t t le b i tof " recording of y ie lds" of nr i lk /nreat /hair etc. , a bet ter basis fbr select ion of breeding-bul lscan be establ ished. Often the "best bul l " is sold of f , as i t g ives rnore money to the fami ly inneed (negative selection for breeding ends).
In th is County 's p lan, i t lbrwardcd the idea of having each year 20 cat t le cows brought intothe County to star t breeding (at Anirnal Heal th Off lcers suggest ion). This is not reasonableor feasib le. Product ive aninrals. l ike cat t le cows. wi l l not surv ive the severe winters. In theear ly 1950s, Holste in-bul ls were introduced in the area, but d ied al l wi th in two years(nobody knows how to care lbr then and one cannot treat a cattle-cow like a yak-cow).Another reason is that the inrpact of 20 (cost ly) cat t le cows on the tota l populat ion of300,000 fentale yaks is equal to zero (upgrading against the strearn of yak bul ls) .
The idea as nent ioned in another vers ion, to open an Art i f ic ia l Insenr inat ion (AI) Centre ata b ig yak farrn, is a lso qLrest ionable. I t has becn t r ie i l out in the 1980's in Hongyuan, butfa i led: to cost ly to keep th ings running srnoothly (avai labi l i ty of enough l iquid n i t rogenntust be guaranteed); detect ion of aninrals in heat is vcry d i f f icul t and the ler t i le per iod isshort . Concept ion rate was only 30 to 40% under contro l led rnanagen)ent and not inextension. In extension, i t wi l l be cven lower ancl o l ' terr a yak bul l gcts thc f l rs t chance. I fnew techniques are used ( l ike horr lone syrrchronisat ion), t l )e conccpt ion rate may go up to70% or nrore. This, however, is qui tc " l r igh-tech" and not rcal is t ic in a courr ty area.
The idea to sel l crossbrceds ( that g ive 2 to 3 t i r res nrore In i lk than yak and are stronger inr luscles) to local yak owners is a br ig l r t idea, as such, s ince f rorn there the yak-upgradingstar ts in next generat ions in the ferra le l ine. The assunrpt ion is that rnore nr i lk is producedper animal , even when the herd s ize remains the sanrc. This rnay bc not the case. Again,when the yak-bul ls are negat ively selected fbr breeding I )Lrr l )osc ( th is nrcans a posi t ivese lec t i on t b r ' d i r ec t n l oney ' pu rposc ) , t he i l upuc t r . v i l l p r csL r r l ) : r b l y no t be as h i gh asassunted. The ef fbr ts to get those crossbreccls are enof l ) r ( )us v ia AI . I t rnay bc goocl to t ryth is out at lower a l t i tudes, where crossbreeding (cat t le bul l x yak cow) is pract ised tnore ina natural way (by Chinese and not by Tibetans). Both parcnts stocks, cat t lc and yak, haveto be kept and generated tbr next generat ions crossbrcccls (orr ly l 'erra les are l 'er t i le) .
When br inging in st rangc blood (nrale or f 'enrale) , the dangcrs are er)onror. ls in a balancedsystem. I would, as indicatcd, bctbrc opt lbr " intprovernent f ronr wirh in the systenr" bybct ter bul l select ion (sel l ing of two "bad" aninrals to get the sanle anrount of nroney in hancland keeping the one good bul l ) , as there is enough var iat ion on al l character is t ics l ike: rn i lkproduct ion (var ies f ronr 100 to 225 l i t re per lact t t ion - lactat ion per ioci f rom 5 to 7ntonths); fer t i l i ty ( there are bloodl ines wi th nrore twins, shortcr intcrcalv ing per iods); meatproduct ion (s izes of animals d i f fer enorrnously as their carcasses do); hair product ion.
2. FeedingFeeding is the rnost cr i t ical part . When the DM intake in sLrurnrer is up to 5.5 - 6 kg perday in winter i t drops to 1.5 - 2 kg DM only. Again, the enrphasis should be onimproventent f ronr wi th in the systeur. (For t l re grassland i rnprovernent, p lease refer to
Ilortgyuurt Counry Rupid ass?ssnl?ttt Survey
Chapter 6. l . ) . The whole systenr is qui te conrplex: i t covers the grasslands at one s ide and
the animals at thc ot l rer . As soon as they i i re out of balance, one has to g ive up nuch in the
short term and pay brck unt i l a nerv balance occurs. In sorre cases, the system wi l l conre
back to an overall balance, but rnore often presumably at a more deteriorated balance,
cornpared to what it has been in the past. This concept should be clear before entering any
speculat ion (as in p lans). A herdsnran decreases his number of aninrals before the winter
star ts, by sel l ing of h is lat ty hcavy aninrals (h igh pr ices). He is not able to sel l of f toonrany animals as he does not know what the end of winter and spr ing wi l l do to h is herd(secur i ty) . He is fami l iar wi th nraking those decis ions. He is not fami l iar wi th making
decisions related to grassland rnanagenrent ("natural material God provided to this
Coun ty " ) .
This makes the overall inrprovenrent of the system in relation with feeding more
chal lenging. Feeding- i rnprovenrents should be geared towards cover ing higher product ion(for a short per iod tb l lowed by the sale of aninrals/n i i lk) and the surv ival of the weak
aninrals (young and product ive fentale aninrals) in winter .
The idea of fencing of a certa in area (50 acre per fami ly or 20 ha.) for hay-rnaking/wintergrazing, with special so-called inproved and high productive grasses, is fair and worth a
tr ia l . However, the qLrest ion to answer is whether the so-cal led inproved hay-grasses,which do very wel l at th is a l t i tudc, are avai lable ( ten)perature at soi l level may vary wi th in
a 24 hours f iom -34 to +5lC), what is the l i t -et ime of those grasses, and whether they
rnul t ip ly thenrselves or whether the herdsn)en needs to re-establ ish the grassland at certa i r r
intervals.
For winter grazing, -50 acres is not enough tbr a herd of 100 yak, b l r t when re-growth t inreis g iven to th is area (nrani lgenrcnt) , i t may save a lot of anirnals and less concentrat ion is
required to kcep the aninrals a l ive.
1 'he product ion of anirnal fat is enornrous. Most of i t wi l l be needed for hur lan
consunrpt ion in the cold HorrgyLran County, but there nray be potent ia l to have some waste
fat to be rc-used in arrimal l'eecl.
The other area to look into is the t ree/shrubs fbdder species. Wi l low is certa in ly avai lable(rnul t i -purpose t ree). Sonre more systenrat ic research is required to f lnd the potent ia ls.
Dr ied wi l low leaves, mixed wi th sorre urea (up to3-570) and waste fats (up to 5%) may be
a good 'concentrate' for the winter periocl.
3. HousinsHousing, as such, is not required fbr the yak. I t is a hairy and wool ly animal wi th a very
thick skin (6.2 rnrn). However, for young and pregnant anirnals the loss of energy to keepthe body at the right tempcrature should be avoided as rnuch as possible. Thereforeprotect ion against cold, icy winds is a step for surv ival . The real nomad wi l l take the r iskand is not " in" for having a barn/shed for female anirnals, but some herdsnren have beenconvinced to use kind of shed/natural place (gully) to protect their anirnals. Those sorts ofshel ter protect ion can be improved ( for l i t t le costs) or new ones can be bui l t . Costs per shedof 20 x 3 meter enough fbr 40 to 60 aninals are around 5 to 10,000 Yuan. The shed-plan istherefore worth a go: there are enough herdsrren pract is ing th is rvay of keeping female
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Itottgy,uutr County Rapid ass(ssment Survey
anirnals over the winter /spr ing.
4. Heal th
On the u,hole, the heal th status of animals is good. Local t radi t ional medic ines are in use:
only in real problem si tuat ions need a " town doctor" . ( in tota l 14) be cal led for assistance.
This works wr. l l in sorne v i l lages. The "v i l lage doctor" (a herdsnran) is kept responsible for
nrany th ings of which he is not in contro l . He should stop del ivery of nr i lk to the Mi lkPowder Factory when an animal is s ick; he should report on al l aninral heal th aspects in thevi l lage to " town doctor" and local Covernment. His funct ion is not c lear ly understood. Thetraining he gr-'ts frorn the "town doctors" (5 of which only get a salary for 5 nronths of a
Chinesc year of i2 nronths - due to iack of funds) is presunrably not worth cal l ing atra in ing ( i f provided, which in i tsel f is quest ionable) . In sonre areas, the Hongyuan Towndoctors were n() t able to g ive rne a "d iagnose/ t reatrnent scenar io" for an anir la l wi th ( l iver
f luke) synrpto ' rs. They are the ones who t ra in the " town doctor" . The lat ter is the t ra inero f t he " v i l l age . l oc to r " .
On the wholc rnorta l i ty is low, a l though heal th ar)d nutr i t i r )n arc p i r r t of the balanced systenr: rs wel l . I t * 'ould t re very interest ing to learn rnorc t rat l i t ional techrrologies on prevent ion
and t reatrncnt of d iseases, wlr i le in certa in cases input f ronr 'westcrn veter inaryscience/knowlecige' nr ight be of great help wi th i i l the nor l rad systcnr.
6.2.3. ARE 7-IIE SE'TTLEII'TENT POLICIES FOR NO]IIADS A JUMP FORWARD ?I t is not that e:rsy to say yes or no. Qui te sonre i r r te l lectuals have been in favour of th isset t lenrent pol icy. Protessionals have been, a lso, a l though in analysing the plan there arenrany aspects u 'or th looking at again. As t i rne gocs on, urore al ternat ives and ideas havebeen brought r rp.
The kerrre l o l ' the proposal is th is: can one expect a r ronrad (able to ganrble wi th h is aninralsin a harsh environntent) to be a i r ianager of the grassl lnt ls?
- l 'o nrake a norrrad into a soi l -
t i l ler rnay not bc a good th ing to star t wi th, cven when i t is said by one of t l rern: "We dolvhat the Go! 'cr ' ) rncnt wanls us to do". The only a l ternat ivc lbr the herdsnran is to gamble
with anirnals r r h igher r isks (The Anirnal Husbanclry N' lagistrate rnent ioned that when aIrerdsuran does not have enough grass wi th in h is fbnce hc rnay scl l nrore anirnals thanusual) .
Certa in ly i t is not fa i r and good to force a person over thc eclge rv l rcn there are no examplesor nrodels how grassland can be managed at th is a l t i tude and c l inrate. Real exanrples ofnraking a I iv ing wi th yaks at th is a l t i tude in a l l r rnr ing set t ing are not avai lable. Thecl i rnate, and u. i th i t the grass product iorr , are such Lrnccrta in factors that the I ivestock
system reqr l i rcs a r rore f lex ib le set t ing/environnrent in ant ic ipat ion of the c l imat icsurpr ises: a l 'ence l inr i ts the f lex ib i l i ty . To mrke the l rcrc lsurcn just " responsible fbr a p iece
of land", wi thoLrt provid ing the author i ty and nreans (kuowlcclgei exarnples, etc.) , js not anexample ol gotrd nt : inagenrent /governnrenI and i t rn:ry backt l re at the cnd: yaks don' t knowwhat lenccs are and they u, i l l go throLrgh then). The grass on the other s ide of the fence isalways rnore green-
None of the interv iewees has been 100% posi t ive about the set t lenrent idea. Evenprofessionals (Pu Jiabi, Anirnal Health Doctor) struggled with qtrestions: is it really
I Ittng..'utut Courtry' Rtrpid drJrllrrc/il .tr/rv?,r
needed?; is i t good for the anirnal ( long horns and fences don' t go too wel l together)? Mostherdsmen have been negat ive about i t : i ronical ly def in ing reasons why the neighbour is notin favour of the fencing/set t lenient (" the poor one cannot af ford i t " ) or g iv ing non-answers("1 don' t know i f i t is good, rnay be i t is good, or may be i t is bad" - "We wi l l do what theGovernrnent wants us to do"- " l t may be good fbr people, but i t is not good for theanimals. So what to do?") . In the past their cul ture and socia l
' l i fe has been under at tack,
whi le now the whole systenr is under at tack. Ccrta in ly there is no place for sel f -dcterrn inat ion as the proposal is not a real is t ic one fbr the herdsnrcn to begin wi th. On theother hand, the preparat ion l i l r inrp lenrenlnt ion has star ted in threc v i l lages and onctownship (4 July 1995 onwirrc ls) . I ar l to ld that the tota l inrplcrnentat jon nray take nrorethan 50 years, as the poJicy is only dc- f lnecl for a pcr iod of 50 ycars.
Having v is i tet l some of l lc i l ls and expcrts in th is Clounty and country, i t secnrs that theorganisat ional preparat ion f i r r th is p lan is absent. I t wi l l in f lucrrce the pat tcnl of animalr l iseasesi i t wi l l cer ta in ly have inrpact orr product ion of aninral proclucts and thc two agro-tzrctor ies in Hongyuan Tos,n. Anrazingly, no preparat ion of what ever sort has been takenor done, whi le i t wi l l e l ' fect u l t i rnately sonte 20,000 people of th is County.
In some discussions I c l ic l have the tcel ing that sonre leaders did not bcl icve in the planei ther, but for fonnal i t ies sake star ted ol ' f very enthusi ls t ical ly . At the enr l , real i ty canrcdown: " l t may take rnore tharr 50 years to inrplenrent the plan".
Front an ecot tonr ic point of v iew, the rate of returr l wi th r rorrnal accountancy standards isnegat ive: i t wi l l rernain a r ) )oney r i r i r in towards the rcpair i tnd rnaintenance of f -ences. Thecost of th is l tas not been t rken into consi t lcrat ion. The subsidy part has, but that is a onet i rne th ing. Rough calculat ions te l l us that a herdsrnan needs to invest US$400 for externalf -ence every l0 years. To rnanage the grass w'el l he nec<ls to have intenral fences as wel l .which depending on the type, wi l l be arouncl another US$700 at least . The tota l investnrentf rom herdsmarr 's s ide is just beyond reason. I t is asking a person in ja i l to pay for thcpr ison wal ls and keep them in good shape. He never becontes owner or whatever, i r is jusrhis responsibi l i ty to isolate h inrsel f f ronr h is fe l low c lan-ntares.
There st i l l are reasonable parts in the plan, which has al ready changed over t inte a l i t t le b i t ,narnely the ( l isaster progr: ln ln)e: fLncing a sural l arca in wintcr p i ls tures lbr hay or h11,grazing and t lu i ld ing the s l red 1i>r mainly young and fenrale anir la ls.
' l 'hese havc been
discussed abol 'c , but st r l l l i r r norni t< ls i t h i is to bc ( lcr l ronstr l ted wi th in the system that i tbet ters the r isks lbr surv ival . I drd not l rave erroLrgh t i rne to c l iscLrss th is i tenr through wtt l rof t lc ia ls, which I intended to do.
6.2.4. THE PITOCESSING OIt ANIIIAL PITODUCTS IN IIONGYUA*' COI:llTl'I t is very appropr iatc to add valLre to the product local ly produccd in orc ler to keep the gainin the area as a rcw:rrc j l i r r t l re coutr t ron ef lbr ts. Howevcr, in a changing the econonry, andLtnder wise guidance l rorn the Str te Covernrnent, i t rv i l i be very hard f 'or locai industr ies tokeep the qual i ty of product ior t up and the product ion costs down. Having paid v is i ts to t l rcrn i lk powder tactory and the r l rcat lac lory (ant i leather p lant) , i t seet ls t ( ) nte that they wercrun very un-econornical l ) . Coing on i r r th is way of opcrat ion, in the lorrg run they rv i l l bcout of business due to conrpet i t ion in a open/f rc 'e lnarket econonty.
fl ( ) tl Nv u Lt I t Ct t u t t t v Rtt p i tl us s (.t s m c ttt S urvey
The main re i rson that herdsnren don' t l ike to sel l the product to the tactor ies is that the
prices are very low compared to the local rnarket prices. The contpulsory production of
herdsmen against an extreme low pr ice keeps the factor ies going, but their way of operat ion
is very inef f ic icnt , e.9. , the nur lber of yaks processed in the nteat- tactory last year was
only 600, whi le roLrgh est inrxtes indicatc that keeping the tota l yak populat ion in r ight shapc
fronr Hongyuan County a lone sorne 7,000 to 40,000 yak should be avai lable fbr s laughter( the f igure di f terence re lates to the type of winter) . But on the average, sonte 25,000
animals are sold v ia other channels. Presunrably, by of fbr ing the hcrdsntcn more, the
processing cost per aninral rnay decrcase, as the t l rc tory wi th 147 wurkcrs is put t ing an
enonnous drain on the 600 yak and 1,000 sheep.
As soon i rs conrpct i t ion c<rnrcs in, i r t rvhi t tcvcr rvay, f ronr in or outs ide th is County, the
tactor ies, l r 'ho are v ia local governnrenrs now in cor) t ro l over the herdsnrcn (v ia product ion
contracts) , wi l l lose their s tancl . In the long rLrn, th is would be a pi ty as ior the general
devclopnrent of the County.
6.2.5. OPTIONS T'OR POTENTIAL ]NTERVEN'TION
Opt ion l . Assistance in breeding progranrnre using interrra l resources.
In essence th is can be wi th in a t ra in ing prograrnnle: select ion nrethods of local breeding
stock lonly a part of the curr iculurrr on breecl ing). I t r lay t re a lso possib le f rom a sntal l( t ra i r t ing) r lor lc l ccntre - togcther wi th sonre herdsrnen or one v i l lage) as a pi lot project in
t he n l i ds t o fa co rn rnun i t y w i t h l oca l gove rno r i nvo l ved a t t he s i de - l i ne .
Adv i t n t ages :o technical potcnt ia ls i t re t l rere; var izr t ion is lhere.o expected outconrc can be def lned.o i rnpact should not take that long
o product ion per aninral goes ul ) , which rnay lcaci to kceping lcss animals( less ovsrgraztng etc. )
o g i v i ng poss ib r l i t i c s t r . r con t r i bu te i n a s rna l l way , b r r t n l l y ge r ) c ra te
nrore ideas and area's wlr i le being involvcd.
o i ts re lates qLr i te d i recc u, i th the Iocal populat ion
o wi thout going in crossbreeding t rust can be bui ld wi th local pcople.
o cornpared to other breedirrg propos:r ls qLr i te i r rexl lcnsivc.
Dis i rdva ntages:
o sonre r l rore rcsr 'arch rnay l rc rcc lu i rcd. This i r r i tsel f , l rowever, ruay bc an
advantage (resuarch focus on var iat ion in hcrds and del i r t ing brecdingpurpose/goals) . I l rnay everr nrei rn to havc sorne yaks-bLr l ls f ronr anotherprovlnce or area.
o al though castrat ion is pract ised al ready, nrore systenrat ic select ing-out is
required. This rnay not be fu l ly in l ine wi th l ' ibetan cul ture/bel iefs.
Opf ion 2. A nrodel can be worked out wi th some herdsmen to inrprove the nutr i t ion statusof the aninta ls over the year (e.g. nranagenrent of hay- land / searching tbr rvastes to beuser l as anirn l l t 'eed / inrproving teeding pract iccs / s torage). (Again th is can be done f ronr
Hotlg)'uan Counry Rapid asstssnrcnt Survat
within a training sett ing, with a seasonal fol low-up or together with a comrnunity ofherdsmen in one vi l lage in co-operation with the local animal husbandry off icer at vi l lagelevel or whoever. It should be brought as a pilot-activity and be formulated in the way theGovernment proposal has been fornrulated).
Advantages:o The benef i ts are qui te d i rect for the nomads.
o Bui ld ing up t rust is a key part .
o Expected outconre can be deflnecl.o A Fr iend Of China-expert may have mainly a faci l i tat ing ro le.
o Geared towards " improvenrent f rom wi th in system" (sel f contro l ) -
o Start may be rather snrall, but nray grow over time (control in ownhand).
o When cr i ter ia are bLr i l t in belore hanr l there is a lways a possib i l i ty to
step out (evalLrat ion af ter 3 to 5 years) .
Disadvantr tges:o Some nrore research rnay be required.(which area, which herdsnren etc. in
i tsel f posi t ive s ide as wel l ) .o Focus should be on the target group, although others may feel bypassed
(Local County experts) . (A report ing co-ordinat ion systern may bedeveloped to include thenr fronr a distance: the way how frr FOC will go
nee( ls to be def ined beforehancl) .o When only possib le in an area where the Plan has been inrplenrented th is
idea needs seconr l thoughts (see Point 4) .o Star t nray be wi th sonre nr is t rust .
Opt ion 3. Inrprove the poor n lot ivat ion level of ' town doctors" by working along s idcthem to inrprove the qual i ty of " :v i l lage doctors" (This only v ia t ra in ing and fo l low-up wi th
report ing/co-ordinat ion instruments to of l lc ia ls in Hongyuan Town). Target groups are:l . the Vi l lage Doctors
2. the Town Doctors and
3. wornen t ra ined in basic animal heal th issues.
Advant lges:o Clear target groups.
o Integrat ion of local r lec l ic ines wi th "western techno)ogies".o Progranrme qui te easy to def ine.o Likely that some tra in ing faci l i t ies are al ready exist ing (Al though planned,
i t was rnade i rnpossib le to v is i t a town doctor and his working/ t ra in ing
environnrent - th is may nrake th is an A- opt ion as wel l . )o A t ra iner wi th sor le basic knowledge on aninral heal th and husbandry wi l l
do marvel lous th ings (very rewarding)( t ry to get expert to Nepal fbr alook at Rural Developrnent Centre, Pokhara/UMN and AHI&TP)
Disadvantages:o Compet i t ion and incent ive stressed environment (but th is wi l l be the case
everywherel ).
A <
Hott14l,utut Courtty Rupid uss6sm(tt Survcy
Option 4. FO(l should try to ref iain fronr any involvement in the inrplenrentat ion of thesctt lement plan. This rneans also staying away frorn the areas whcre the programme isir))pler))er)ted or on the way of irnplenrcntat ion. I t is too pol i t ical. A tbreign agency shouldnot be involvecl in this type oi act ivi t ies (to take st irnd agxinst real necds and wants ofpopulat ion is bevond what can be expected). Locl l governors wil l understand.
However there are a few points in the proposals which seenr quite reasonable: as the
disaster plan (-50 acre fence for fbdder production and shed).
Havc a dcnronstrat ion set-up at one or a f 'ew winter quarter area's to test f -ence ( in
cornbinat ion wirh yaks), to test so-cal led i rnproved grasscs, to have a shed bui ld and
tuscd/ testcd (bui id ing sty le i locat ions is izcs etc.) . This can only be donc in area where the
Sctt le lnent Pol icy is not inrplenented ancl does not got i rnplernented for a certa in number of
vcars.
Adv:rn l r rges:
o Snral l s tar t but wi th poter) t ia l i rnpact . (c i ther at icr negat ive outcotr le
the Sett ler l rent I 'o l icy nray be redef inecl) .
o However not a l l detai ls are yet c lear a good set of expectcd outcotnes can
be def lned.o Can bc done in cornbinat ion wi th above t t tcr t t ior ted act iv i t ies.
Dis i r r lvrr r r t ages:o ( lan be dragged in the sct t lcnter t t issLre ( t l tercfore l )ar t ic ipat l ts in
denronstrat ion nceds to be selectecl vety ntuch on ntot iv i l t ion) . Local
governors wi l l rcspcct th is, as long as FOC t locs not inter lcrc in t l te
i rnplenrcntat ion as such. (This aclc l resscs t l re I rousing potent ia l at the santc
t l nre. )
Op l i o r r 5 . FOC n ray p l ay a r o l c i n t hc u ranagcn )cn t o l ' l i r c t o r i c s . ' l - l t i s i s on l y f u t u r c
drcanrs, i rut I cun see that nranagcnlent sk i l ls and expcr icncc are lackrng. A nl tnagetncnt
advisor nray do a good job to provide nranagenlent urocle ls lor the agro- industr ies keeping
in n i ind th i i t t l te qLtant i t ics of products has to incrc i rsc fbr rnakir tg thc factor ies Inorr '
c ' f f ic ient , whi le the hcrdsnren is able to/should get a ruorc ta i r pr ice for h is products. This
idca of nranagcnrent /product ion advisor re lates to the holder of the nr i lk powder factory.
( l 'crsons ancl inst i tut ions are invi ted to g ive good suggest ior ts on the rnarrulhctur ing process,
the tcchniqucs or even tbrnr a jo int-venturc wi th other cornpanies. Persorts get rewarded:
why not a f r iencl to take that ro le?) This can only be done af ter a longer per iod of t i rne.
I 'eople/ leaders should f l rs t know FOC, as I can intaginc thxt the basis tbr funct ioning as
adv i so r ( l ) i s j us t t r us t . Bu t t h i s i s t o keep i n r n i nd .
Advant r ges :o When a factory ( l inked with Green Food Corporation) writes this i t maybe
out of despair. l t operates in a way i t cannot go t ln in alt environntentwh ich tends to be nrore ' rnarke t o r ien ted ' .
o Models / re-organisation-strategies can be of '1erccl, whi lc i t retnains local
ti,t,)uon County Rcrpid asscssment Survq,
leaders responsibi l i ty to be convinced that the advice is the correct one.o some training (management skills) can easily be incorporated.o ternrs of secondnrent can be defined precisely and rnay be a little
frustrating job for a quick tempered person.
Disadvantages:o there may be a lot of intr igues and hidden-agenda's (GFC etc.), which
make operating in that environrnent difficult (in terrns safeguards need tobe bu i l t in ) .
o outconle is clifflcult to define.
6.2. 6. RECO M M E N DATI O N SBeside the general recornrnendations on rural development act ivi t ies as a whole, includingthe preparations internal ly fbr being involved in this type of act ivi t ies.
l . Rerrain out of the pol i t ical progranrne in irnplementation at any cost. The host wi l lunderstand this, as foreign agency FOC cannot be a front-runner in the irnplernentation ofpol icies heavi ly under discussion. This means that FOC should not work too direct ly withpeople in process of (forced) sett lernent, even i f part of the plan sounds very reasonable.FOC has been shown enorrlrous trust that the local governnlent has given us a look int irtheir ki tchen and given sor)re taste of their pol i t ical dishes for nornads. Maybe at a latcrstage FOC may do sonre welfnre work an)orlg the nornads.
2. Focus on geographical areas, with the help of the County's top leaders, by-passing sonrt- 'other "chickens on the road", where the sett lernent pol icies are not implenrented and wil lnot be irrplenlented for a coLrple of ycars ( i f ever).
3. Try to incorporate the (top) leaders by giving thern syrnbolic roles in a kind ofmonitoring-cornrnit tee (discussing problenrs and progress) together with some other actorsin the FOC's progranrme activi t ies. I t should not be a steering comnrit tee. I t nray be goodto put those nrernbers on a payroll of the project/programrne.
4. Be sure that any Project Documents and Agreements are very t ied in areas where FOCdoes not want to lose any grip. This means even small i rnplernentation detai ls rn sonrccases; i t avoids surprises afterwards. In a fr iendly way, dictate the rules of the garne: i thelps them to understand FOC and i ts phi losophy for developrnent. FOC is not a businessorganisation or a company where bargaining and negotiat ions are fal l ing in l ine with eachother. FOC is always able to "hide" i tself behind the Donor. Negotiat ions can only start atthe small , less important issues.
5. Regarding the options:a. The options can potentially be cornbined, although staff -wise, there is roorn for two
expats to begin with: one grassland/economist special ist and one animalhusbandry/aninral health special ist. I t would be good i f one of the two had practicalexperience training adults.
b. Discussions with top-leaders on the icleas should f irst focus on general ideas:
* Only training using exist ing Governnrent taci l i t ies:
- 4 0 -
Hottgl,uurt Coutttl, Rupid ass?ssnrcnt Surycy
Advantages:
o low investment.o nluch ntore in control on the what and how with less pressure frotn
possib le 'chicken on the road' .o outside local resources can be invited ibr contribution against a rewards
( incent ive)
o as contract/agreetrent should draw clear lines the actual physicat workingarea under l ines i t .
o more 'freedorn and less frustration' for expats.
Disadvantages:
o For a beginning expat, i t is rnuch rnore di f t - rcul t to inf luence an exist ingsystent for the good.
o Working along s ide is presurt rably not appreciated (expat lnay be seen asthe ethical warchdog).
o Working wi thout one's own budget is r rore di f f icul t : governr l rent hasbudget I inr i tat ions).
o Working wi th a l ine agency is very poor t ra in ing for any futLrre k ind ofFOC u'ork-uni t centre: ( f ionr where the progranr))e act iv i t ies and rnater ia lstock are planned/recorded).
o More investntents over the years (a l t l rough a bui ld ing should not be bought- but taken on lease - a local person is benef i t ing f rorn FOC,s present; hei s FOC 's l oca l ' f r i end ' .
o More rnanagernent sk i l ls are rcquired f ro l r t the expat.o More tieedorn can lead to kingdonr-building and it gets a personal
progratntne, fbr which you cannot f lnd a sLrccessor, when expat leaves.(The progranrme should be designed in such zr way that there is roonr forpersonal interest - lQ to 157o of the tillte at nlost (to provide a closes ofsatisfaction) but the rernaining part should be designed together with otherexperts and the organisat ion.
x Area select ion (This is part ly not in Foc contro l but sonre 'condi t ions 'could bel is ted - as not to work in too big an area (e.g. , up to 20 to 30 herdsmen).
Final conclusion: The opt ions l , 2, and 4.1 can be contbined and are real is t ical ly feasib lewi th reasonable predict ions on outconle. The opt ion 3 ( t ra in ing of Vi l lage Heal th Doctors)is nrore in l ine wi th exist ing systenls, but wi l l be much nrore a chal lenqe to be inf ' luent ia l ina posi t ive way (weak environnrent) .
Hongyuan County Rapid assassment Suryay
6.3 ENGINEERING
6.3.1. SUMMARY OF OBSERVATIONSI. HYDROPOWER2. WATER SUPPLY
6.3.2. INTERPRETATION AND DISCUSSION OF FINDINGS1. LOCAL CAPABILITY2. PERCEIVED ELECTRICITY NEEDS3. PERCEIVED WATER PROBLEMS
6.3.3. OP"TIONS6. 3.4. RECOMMENDATIONS
6.3.1. SUMMARY OF OBSERVATIONSThe engineering team visited a number of hydropower and water supply schernes all overthe county with the Director of the County Hydraul ic Bureau. I t became apparent that theengineering proposal that had been presented to FOC was part of an ongoing infrastructuredevelopment programme, to provide water and electricity to each village as part of theoverall plan to settle the nornadic population. The director stated that the county had theabil i ty to implement this programrne, using consultants and contractors from elsewhere inSichuan when necessary: the assistance they sought from FOC was funding.
Details of the observations are presented in Appendix c, and a summary of each sector isgiven below.
l. HydropowerThere are 7 hydropower stations in the county with a norninal total capacity of 2083 kw.Two stations are out of conrnrission: Sezhai (28 kw) was put out of action by a flood in1990, and Maiwa (75 kw) in 1991. Both of these are isolated stat ions supplying onty theirrespective villages; Maiwa is now under repair by a Sichuan contractor. Two stations onthe Amukehe r iver supply 1285 kw into a grid covering the northern part of the county,including Hongyuan town, whilst the southern area is supplied by a transmission l ine fronrthe 150 kw Shuajingsi stat ion. The two remaining stat ions are not control led by thecounty Hydraul ic Bureau: they are a 500 kw stat ion at Shuajingsi supplying rhe animalmedicine factory there, and a 45 kW supply to the Longriba sheep breeding station.
The hydros in the north of the County all have reduced or no winter output because of lowriver flows and freezing: Hongyuan Town is therefore limited to three hours electricity pernight during the winter; the industr ial users of electr ici ty are closed during the winteranyway. By contrast the two stations at Shuajingsi are able to operate at full capacity allye f.
The current hydropower plans of the county are given in Table 6.3.1.
4 8 - - 4 9 -
Httng1'uart Couttty, Rupid assessmcnt Survey
ab le 6 .3 .1 C t i un t v I l vd rouo* ' c r P l l ns
Location Type of project Capaci tykw
Budget costl 0o v r ran
Yuan/kW
Maiwa I{ehabi I itrrtion 75 1 . 0 r3.300Anrukar Expansion 500 2 . 5 5,000Sezhai Rehab i l i t a t i on 28 1 . 0 35.700J iangcong n ra New
'75 0.75 10.000S h u a i i n g s i Exoarrs ior t 200 t . 0 5.000Shuaj ingsi ande lsewhere
Other rrew projects I 600 1 .2 4,500
ln addi t ion to the above plans fbr addi t ional generat ing capaci ty, there are plans to extendthe t r ansn r i s s i on l i r r e sys te rn a t a cos t o f 0 . 7 r n i l l i on I {M13 by :
o A 25 knr l ine f ronr Longr iba to Anqu, whic l r would connt:ct the now separatenort l lern and soul .hern gr ids in t l re countr , .
o A 15 krn l ine f iom Longr iba to Sezhai . This is a very rnuch cheaper a l ternat ive torehabi l i rat ing the Sezhai hydro, bLrt could only be done at ic ' r expansion of theSl tuej ingsi gcncr i { t ing c.rp lc i ty .
2 . Wa te r Supp l vThe survey tearn v is i ted seven piped water suppiy systcnls, i l rost ot ' which had beeninstal led by thc county wi th in the past t ive years. Outstanr l ing county I ) lans in th is sectora r c t o supp l y Sezha i and Ma iwa v i l l ages , a t bL rdgc l cos t s o l ' 107 ,500 and 148 ,750 RMBrespect i vc ly.
One interest ing f inding was that Hongyuan Town has a pipcd water d ist r ibut ion systenoperatcd by the rneat processing tactory, but that contanr inated u,el ls cont inue to be widely
Lrset l in t l re to\ \ 'n to avoid the nlcter charge of 0.4 ILran/nrJ tbr c l t 'un w:r t \ l r .
6.3.2. L\TTRPRETATION AND DISCUSSrcN OF ITtTYDINGS
l. [ ,ocal Capnbi l i t -vThe survey has indicatcd that there is the local capi lb i l i ly to bui ld, Inain la in and operatewater and hyclropower schernes. However, there docs appear to be roorn to strcngthen theplanning ancl design of such scherres.
Cost est i rnat ing of projects s l rcrrvs wide discrepancies: the t l i l ' lerences between costs in
Tables C. l and C.2 cannot be explained s inrply by inf- lat ion; t l rc or ig inal budget fbr Maiwa
hyd ro rehab i l i t i t t i on was 0 .12 n r i l l i on RMB, wh i ch was t hen i nc reased t o 1 .85 n r i l l i on , and
the actual contract pr ice is 1.0 nr i l l ion RMB.
The County p lans appear to igrrore economic real i t ics. For cxanrple the bencf i ts of water
schenres are countcd over 30 years rv i thout any discount ing to present value. The
hydropower progranrnre is presented as an essent ia l conlponcr l t of thc county 's set t lernent
Hongyuun County Rupid ussessmant Survey
programrne, wi thout any econonr ic just i f icat ion: e lectr ic i ty charges are inadequate t t r
f inance the expansion proBrarnure, and nray not even cover labour and mir intenance costs;
there appears to be no pr ior i t is ing of low cost year-round schemes over |nore expenslve
developrnents which nray only produce power tbr s ix rnonths pcr year. Isolat td
hydropower schernes supply ing v i l lages wi thout any industr ia l load have a very poor load
factor , and therefore tend to be unecononr ic: there has been l i t t le considerat ion of
al ternat ives such as diesel , which is l ikely to be a cheaper means of provid ing power for
only a few hours per day.
i t is notable that the watcr arrd hydropower schernes constructed in the northern part of thc
county have almost all suff-cred headworks problems:
o At Sedi the intake is inrnediately downstreant of a landsl ide, so is regular ly
blocked by debr is;o At Arnukar the c lanr l i i led;o At Maiwa, Arnukehe, Sczhai , Longr i , and both l l .angkotr sc l rentes the t i ivers ion
weirs have been oLrt l lanked, unclernr ined or washed out by the r ivcrs.
When adcled to the la i lure of the Rangkou water schenres to del iver water, apparent ly duc
to inadequate gradient in the prpes, th is an)ounts to a case tbr st rengthening the engincer ing
des ign capab i l i r y .
2. Perceived Electr ic i tv Necds
Electr i f icat ion is being pronroteci as a nreans of encouraging nontads to sct t le in thc
vi l lages: as support for th is the case of Sezhai is quoted, where a populat ion of 1000* in
1990 has dropped to 100 of t lc ia ls s ince the hydro fa i led. There rnay be other reasons tbr
th is, however, such as f 'ears about a contanr inated water sLrpply, poor locxl grazing, and thc
al ternat ive scl rool ing avai lable near the nronastery at J ianggongrna. Contrary evidencc is
avai lable f ronr Sedi and Maiwa that e lectr i t lcat ion nray not be as inrportant to the pcople a: ;
suggested: Sedi is a developing set t lenrent wi thout e lectr ic i ty i Maiwa has never had l iwinter e lectr ic i ty supply, anci has been tota l ly wi thout e lectr ic i ty tbr the past lbur years, bLr l
there was no indicat ion that t l r is has ef fected the v i l lage populat ion.
3. Perceived Wnter Problems
The fact that Sezhai v i l lagers are unwi l l ing to rnainta in t l re i r water supply systenr suggest : r
that the value of c lean water is not fu l ly appreciated. The unwi l l ingncss of HongyuanTown residents to pay for c lean water demonstrates the sanle at t i tude. There is therefore l
case fbr a heal th educat ion progranrne to expla in such basics.
6.3.3. OPTTONSThe county e lectr i f rcat ion proposals f i r r t l te near f i r ture ( i .e. exclLrc l ing the larger pro. ;cc ls : r '
Shuaj ingsi) have a tota l budget cost o i 5.95 mi l l ion RMB. Nat ional g()vernrnent woul( j
contr ibute a large port ion of th is, but locul governnrent is st i l l looking lbr sonre 2 rn i l l ior ;
RMB to f inance the work: the county proposr l to FOC is essent ia l lv looking for th i : ,money. Apart f ron the tact that FOC is not a f i rnding agency, f rorn a developmcnrperspect ive there is no just i f icat ion fbr grant ing th is r roney, s ince:
o The coLrnty is not poor and could af iord to t lnance the u,ork, e i ther out of genenr l
revenue or by increasing thc electr ic i ty tar i f f ;
o Using grant l inancc is not a sustainable forrn ofdevelopnrent , but encourages
50
Hortgyuutt Counry Rupid usscssr'r(nt Survc)
dependency;o The electrification progranrnle is essentially part of the prograrnrne to settle the
nornadic populat ion, which FOC should not be di rect ly involved in.
The counry water supply p lans involve lower costs <zi /so,zsoRMB for sezhai and Maiwa),but s imi lar arguments can be made against FOC helping to f inance thern.
opt ions that could be considered by Foc in the engineer ing sector are out l ined below.
Opt ion I - Secondrneut of an Exper ienced Civ i l Errg i r reerSuch a person could be seconded to work in the county Hydraul ic Bureau, to assist in thework of the bureau and to g ive on-the- job t ra in ing to i ts stafT.
Advirntages:
o Strengrhening local capabi l i ty in p lanning and design_o No large sunrs of rnoney to go astray.o Consisrenr wirh FOC phi losophy.
Disadva ntages:
o Technical help has not been requested by the bureau, so there is the risk ofFOC engineer being put in an of f lce and having no inrpact .
o Might be seen as indirect ly support ing the governntent 's p lan to set t le thenontadic popLr l l t iorr .
Opt ion 2 - Secorrdnrcnl of i ru Ahelrur l ive Techrrr i logist
There are at least two areas where introduct ion of new technologies could make asignificant irnpact on the lives of local people.a) In the energy sector, the introduction of solar water heaters is likely to be worthwhile in
settled areas: solar radiation is high throughout the year; the technology has alreadybeen proven in other parts of the world, although sonre nrodif'jcation may be needed tocope with the very low winter ternperatures; the nlanufhcture of solar heaters could becarried out as a snrall-scale local industry.
b) In the water sector , the problern of contarninated water suppl ies fbr nomads could betackJed by introducing appropriate portable treatment svstents, e.g. Katadyne filters orthe portabie uitra-violet sysrern which is reported to have been rieveloped atLoughborough univers i ty water and Engineer ing tbr Developing countr ies uni t(WEDC) .
c) In addition to the introduction ol these new technologies, there is a need for a localperson to provide a repair and Inaintenance service tbr the 300 W solar panels which arewidely in use by the nonrads.
Al l of these serv ices would be most sui table fbr pror lot ion by a coninrerc ia l enterpr ise,which would be the nrost ef fbct ive way of ensur ing their sustainabi l i ty : i t is suggested that asuitably experienced FOC associate should tlnd one or more local partners to train in eacharea (there is already a local workshop nraking nie[al wood-burning stoves which could bea suitable partner fbr nraking the solar water heaters).
Honlqt,uort CounD, Ropid oss(.tsnutt Su^,ay
Advaulages:o Opportunity to help both settled and nontadic people.o No large suurs of nloney to go astray.o Consistenr with FOC philosophy.
Disadvnntages:o Not requested in the County proposal.o Perfornrance of solar heaters in Hongyuan winters has to be proved.o Portable water treatmenc systenrs must not be introduced withoLrt a paral lel
health education prograrnme (see Option 3) which may not be acceptableto the authorities (badly nraintained tllters can be worse than no watertreat ment).
Option 3 - I lygierre Edrrc:rt ion and Protection of Water SuppliesOne suitably experienced person (experienced in hygiene education and/or cornnrunitydevelopment) could take on rhis combined role, working in conjunction with the vi l lagehealth workers. A small budget nright be required.a) None of the water supply intakes visited has any forrn of protection to stop livestock
grazing ir lrrediately upstrearr ol the intake and contarr inating the sLrpply, although i tseems to be generally recognised that wet weather runoff fronr the grazing lands iscontaminated. cairncross and Feacharn (1993) reconrnrend that there should be aminimum l0 nr horizontal distance between a water source and possible contatnination,therefore l ivestock should be excluded fron) a str ip at least l0 rr.r wide on each side ofthe source streatn and extencl ing (say) at least 500 rn upstrearrr. This land might be usedfor "disaster hay" and/or social lorestry.
b) The typical local well has a protective slab some 0.5 m above ground level, but isuncovered and vulnerable to dirt being kicked in or chi ldren fal l ing in; this could beimproved without infr inging local taboos by adding a 0.8 m high masonry wall aroundthe well opening.
c) Simple hygiene education has the potential to effect nrajor irnprovernents in the l ives oflocal people: advice on washing hands and safe drinking water could prevenr manyi l lnesses, arnongst both the sett led and nornadic comnrunit ies.
Advantages:o Opportunity to help both sett led and nornadic people.o could be integrated with proposars for "disaster hay", fbrestry and training
of vi l lage health cl inic workers.o No large surns of ntoney to go astray.o Consistent with FOC philosophv.
Disadvantnges:o Not requested in the County proposal.o Authorit ies may not,accept proposal for working direct ly with the
cornmunity.
Option 4 - Hongyuan Town Se.rver:rgcA suitably experienced civi l /environnrental engineer could be seconded to work up detai ledproposals lor deal ing with HongyLrart 's serious Iack of water and waste watcr treatnrcrl t
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Ilong;'uan Counry Rupid assassm(nt Survey
taci l i t ies.
Advantages:o Urgent need to avoid publ ic heal th problenrs as Hongytran Town grows.
o Opportuni ty to p lace an exist ing FOC Associates.
Disadvantages:o Not requested in the County proposal.
o Apparent ly not in County p lans.
o Detailed report by Per Johansson of the Wetland Research Project
has not been seen and may already have covered the work.
o Creates expectation that FOC will be able to secure the
funds to i rnplernent any proposals.
o Serves the r ichest segment of the cotnr t tuni ty.
Opl ion -5 - Water Qual i ty Rese:r lchWater quality problems are suspected or known to exist downstreatil of Hongyuan Town, in
the Sezhai area and at certain water sources regularly used by nourads. Basic research into
what is in the water at diff'erent tirnes of year could be followed by an epiderniological
study ( i f re l iable records fbr a sul f ic ient ly large populat ion at r isk can be obtained), leading
to reconrnrendut ions v ia the v i l lage heal th workers on sui table preventat ive nreast t res. The
research could also be used as part of the docurnetrtation of the need for funding proper
sewerage for Hongyuan Town.
Advlnt irges:o Opportunity to place an exist ing FOC Associ ir tes.o Could work in associat ion with personnel proposed uncler
Opt ions 2 ,3 and 4 .o No large sunrs of nroney to go astray.
Disadvantages:o Not requested in County proposal.o Work may already have been done by t l tc Countyo Epiderniological Bureau, which refused data to the survey teal l l .o Work may be regarded as sensit ive by the authorit ieso Risk of acadernic studv with no Dractical use.
6. 3.4 - RECOMMENDATI ONSOptions 1,2 and 3 can ai l be recounrended as being corlsistent with FOC's phi losophy andwithout serious disadvantages i f Hongyuan accepts thern; however, FOC cannot commititself to these options befbre it has personnel available with the required experience. Themain advantages to FOC of Options 4 and 5 are that they errable Associates to be placed,but the signit icant disadvantages should not be ignored.
LI o tt gt, u u tt Ct t u u ty Ru p i d u s s t's s nc nt S u rvc \,
6.4 FORESTRY
6.4.I. INTRODUCTION6.4.2. FORESTRY BUREAU PROPOSAL
I. SOCIAL FORESTRY COMPONENT2. FOCUS AREA3. SHUAJINGSI FOREST DISTRICT
6.4 .3 . SOCIAL FORESTRY TI IA ININC6.4 .4 . COSTING6.4.5 TREE TENURE AND USER RIGHTS6.4.6. FORESTRY BUREAU STAFF AND EQUIPMENT6.4.7. MANAGEMENT PLANS FOR OLD GROWTH FOREST AND NIiw
PLANTATION6.4. 8. SILVICULTURE AND MANNGEMENT
I , SPECIES CHOICE2. NURSERY3. SEED4. GIS AND N FFORES' |ATION SITE SELECTION5. LOGCINC6. RESEARCH7. FIRE CONTROL8, WILDLIFE
6.4 .9 . INFORMATION LACKING6 . 4 . 1 0 . o P T r o N S6.4 . t I . RECOMMENDATIONS
6.4.1. INTRODUCTIONForests are an irnportant resource in any country. They not only supply t inrber and othcrproducts, but they play a vital rolc in cnvironrnental protection, and have economic antlsocial signif icance. Forests ir t morrntain arL'as are part icularly inrportant because they: ir)protect soi l frorn rain and wind; b) enhance agricultural production; c) providc products,goods and services for peasant lirnrers and; d) protect downstrearr areas 1'ronr excessivuflooding and other harrnful l luctuations in streanr f low. This is part icLrlarly irnportant in t lr ,- 'f iagi le mountains of South Western China, where high intensity, long-duration raini;r l l .extreme variat ions in land fornr, st€ep streanr gradients, earth trernors, nrASs nrovelnents,landsl ides and other natural Irazards are comrnon. In these areas, accelerated foresldegradation causes adverse eft-ects not only in the uplands but also downstream.
South-western China was a very inrportant forest region, and it still contains today 30% o1'the nation's growing stock. I t has treen subject to accelerat ing defbrestat ion since l9-50. ln1950 nracro-scale t inrber production enterprises were establ ished. In Sichuan Provincc.alone, as a result of more than 30 years of intensive exploitat ion, rnostly fronr the Westernmountains, forest resources are exhausted in nrany accessible places, and the torest covcrhas decreased front 30%(19-50's) to l4%(1980's). As late as 1986 Chinese f i)rester\p rov ided the fo l low ing s ta t i s t i cs fb r S ichuan Prov ince : Annua l t 'e l l ing ,30 mi l l ion nr l ;Annual growth, l-5 rr i l l ion rt tJl Restrurce I i te, l0 years! ( l t ichardson, 1990)
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5-5
Httttt|uurt Crturttt' Iltpid us.stssnrcrtt Survc|
i \ l though the area of intensive explo i tat ion nray be snral l , the inf luence on the environrnenthas been rapid. Upland erosion has led to extrenrely h igh sedinrent loads in rnany of theregion's nvers. Each year the Yel low and Yangtze Rivers, conrbined, d ischarge 2,095 MIons of s i l t (Richardson, 1990). Soi l erosion has caused se<l i rnentat ion and s i l tat ion dantaget t r rg5g*o1tr , hydro-electr ic projects, and i r r igat ion and donrest ic supPly networks. I t hasalso led to an increase in f lood f requency, Ioss ofcrops, property and l ives (Tacke, 1993).- fwo
t loods on the Yangtze River ( in 1981 and 1983) undeqr inned the re lat ionship between\\ 'ater conservat ion, land use and tbrestry and resul ted in an acknowledgernent thatdelbrestat ion had played sonre part (Richardson, 1990). As a resul t , investment inrctorestat ion rvas steppcd up and rnore at tcnt ion u,as tocuscd on r iver heaclu,aters. Since198,1 the tbrest are 'as of Sichuan have ceasecl to decl ine, l ' rorn 1984 to 1988 an average ofi11.100 ha. of fbrcst were aclded each yeir r (L i , 199- l t . Al rhough th is is encouraging, nruchof the err tphasis has been on conrnercia l species in t l )e p la ins. More neecls to be done in theh i l l s .
Since t l tc ear ly 1980's, fbrestat ion plo jects in h i l ls have increasingly recognisecl the needsarrd souglr t the part ic ipat ion of local people. At the Rio "Earth surnur i t " (Grubb et . a l . ,1993 & Kca t i ng , 1993 ) , wh i ch C l r i na s i gncd as pa r t o i Agenda 2 l ( - 1 rd t o l 4 t h June 1992 ; ,t l te v i ta l ro le t l f indigenous people, worncn, youth, and other local cornrnuni t ies . incr tv i ronrt tental I l I In i lgeDlent ancl c lcvelopnrent ( inc l t rc l int re lbrestat i0n) was highl ighted( A g e n d a 2 l i t e n r 1 0 . 2 0 , 2 1 , & 2 2 ) . ' f h c A g c n d l a l s o c l i s c r r s s e s t h e s t a t e ' s r o l e i n : a )c t l ab l t l t g l oca l pcop le ' s cn tpowennen t ; b . ; r ecogn i s i r r g en t l sL rppo r t i ng t he i r i den t i t y ,i r td igenotrs knowleclgc, inte l lectual property r ights:rnd cul ture ancl ; c) in enabl ing their fu l lp l | r t ic ipal ion in the developutent process.
- l 'here is resonance wi th th is in the wr i t ings of Chincsc scholars and lbrestcrs. L i (1993)
rc 'cot t ln let tds thc people 's part ic ipat jon in reforestat iorr in the SW Chin:r nroLrntarn areas.Long and Chen (1994) recort rutenci that indigenous knowledge be used tbr natural resourcenlanagenrcnt . use is being nrade of Rural Rapid Appraisal (RRA) techniques in severalparts of the Yangtze headwaters shel ter tbrest area to undcrstand the neecls of the localpeopie, to rcsoive potent ia i coni l ic ts of i r r tercst arrd invoive t i renr in rcfbrcstat ion (Du S19911 and Zou H 1993 ) .
l {ongyLren C-oLrntv is s i tLratcd i r r the ccntrc of Ihc Aba Tibctan ant l e iang Nir t ional i t iesAutor. rontoLrs [ ' rc fecturc. Thc county was establ is l rcd in August 1960. Hongyuan Town(Kachudo in Tibctan) is s i tLratcd i r t thc Fla larra gr lss lant l . T l rc 'whole Courr ty adrnin isters 9towns, 2 towttships, and 33 v i l lages. l t is loc i r ted in (he heaciwaters of ( r iburar ies of botht l re Yangtze and Yel low Rivers ar td has an elevat ion of between 3,210 and 4,857 nretres. l lcorrrpr ises 8,440 krrr2. Pasture represents 92o/o of the county and lbrest land 5.8%. Forestcovcr hxs dropped to ot t ly 5.4% and lh is has rcsLr l ted in h igh s i l t loads, rcducecl stockrais ing abi l i ty (grass procluct ion, carry ing capaci ty) , reduced agr icul tural product ion,increased desert i t lcat ion, reduced ecological bencf l t , and rcdLrcecl proclucts, goocls andservices.
6.4.2. TIIE FORI]57'RY BUREAU PROPOSALThc People 's Ciovernnten( of HongyLran County is scckir rg : iss istance to p lan[ 20,000 ha oifbrest in tbur d i f ferent areas ("systenrs") . Since the proposir l was wr i t ten, the Chalong areahas bcen adcled to the ot l rer fbur "systcnls" (areas), as part of i t l ies i r r the yanBtze
Hortgyuan Counry Rapid usscssmant Survcy
catchment and concern is being expressed over the Three Gorges project. The rationale forforestation is as fbllows:
a) There are not nrany forests in the (foLrr) system (area), but they are mainlydistributed in the river valleys of the White and the Black rivers, tributaries ofthe Yellow River, and the Suorno River, - a tributary of the yangtze Riversystem. They not only serve an important function as water-conserving rivers ofthe upper Yellow and Yangtze Rivers, but also contribute much to the industrialand agricultural production of the middle and lower reaches of the two rivers.
b) There is low forest coverage and uneven distribution. The present forests in thecotlnty are mainly concentrated on the transitional belt between the Southwestand the hilly plateau. In the Northwest, especially in the area to the west of theupper and middle reaches of the White River, there is virtual ly no high forest.
In principal the proposal is thought out, but spoilt by minor mathematical errors andonrissions. I t is reminiscent of a 1960's style top-down blue print end-state project. I temphasises commercial and environmental forestry, but the subsistence needs and theparticipation of the local people appear to be irrelevant. The stake-holders appear only tobe the Governrnent, Industry and Agriculture.
l . Social Forestrv Conrnorrentciven the current global attention on social forestry and peoples'part icipation byinternational inst i tut ions and the donor conrmunity, i t is considered necessary to add asocial forestry component to the comrnercial and environntental cornponents and torecognise the local people as stake-holders. Social Forestry should include both the wageand subsistence needs of sett lers, ago-pastural ists and pastural ists. In discussion with theForestry Bureau (FB), they were not opposed to social forestry, but indicate<t that theylacked the funding and training. Further irrvestigation needs to be done into the place offorestry goods and services in the l ivel ihoods ofpastoral, agro-pastoral ancl sett led peoples.
2, Focus AreaThe cost of establ ishing shelter tbrcst in fbur areas (costing in excess ot '66 nri l l ion RMB)would exclude all potential donors apart from the World Bank or some UN organisations.This would involve both Hongyuan county and Foc in protracted lobbying in Bei j ing,require a major feasibi l i ty study, and would be incompatible with the development vision(See Section 2.5) of the team and the spirit of Agenda 21. There are very real dangers of'el i te capture' of funds, and of fLrrther nrarginal isat ion and disenfranchising of the poor, thesubsistence sector and wonten.
Given FOC's inexperience in development act ivi ty, there are advantages in considering onearea from the proposal (of say 5,000 ha over l0 years) in an easy area wlrere the FB havesome experience. This would al low FOC to approach the bi lateral aid conmunity for anyfunding, only require Hongyuan County and FOC ro lobby in Chengdu, :rnd al low FOC toestablish credibility before considering difficult areas.
3. Shuaiingsi Forest Dislr ictThis area is located in southern Hongyuan county, and covers an area of 97,1g5 ha.(12.6% of the county's rotal) of which the foresr cover is 24,393.43 lra (25.1% of thearea). "Forest Land" comprises 26,084.3 ha (26.84% of the area). I t is located ro the sourh
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flongt,uan County Rupid uss?ssnail Survey
of the Chazhenliangzi nrountains on the upper reaches of the Suomo River (a tr ibutary ofthe Dadu River). I t has narrow, precipitous r iver becls and rushing waters. I t has a growingstock of t imber: 3,306, 1'78 n3 65.97o of the counly's total).
In addition to l)eing the easiest area in HongyLran County to grow trees and the area wherethe FB have nrost experience, a forestation project of'lbrs the prospect of addressingLrnemployrnent in South Hongyuan, of posing Inininral threat to other land users, and ofaddressing the w'orst erosion in the county (using CAS cri teria).
Shuajingsi Adrninistrat ive Distr ict and Rangkou Administrat ive Distr ict are both atypical ofHongyuan Cotrnty in dif ferent ways. Rangkou resenrbles Hongyuan in i ts ethniccorrrposit ion and rn the I ivel ihood strategies of i ts people, but i ts cl jnrate is a l i t t le dif ferent.l t has a wanner yearly average tenrperature and i t has nrore rain thln Hongyuan Town.' fhere was irrsLrft lcicnt data to deternrine i f I langkou lrad a binrodal rainfal l pattern.
Shuajingsi is dissirr i lar in i ts ethnic conrposit ion, the l ivel ihood strategies of i ts peoples andits cl inrate. Shuajingsi had over 83% Han Chinese, 53% ol i ts populat ion areagro/agro-pastoral ists who grew crops for cash or hon)e consunrption. I t is wetter and has awan)rer ycarly average than Hongyuan. l ts rainfal l is binrodal with peaks in July andSr'pternber. l 'hc Si-tu people who l ive in Shuajingsi are Jiarong, but tbr pol i t ical reasons al lthe Tibetan peoples are put together. In both Rangkou and Shuajingsi, when I asked i f therewere any Jiarong present, I was told that there were only "Arudo Tibetans".
6.4,3, S0CIAL FORESTRY TRAINING"Social Forestry" as a t leld of study or research is st i l l in i ts intancy in China. A socialtbrestry network has only very recently been establ ished ( l ;rrgely with Ford Foundationfunding) and fbrestry schools (e.g. Dujiangyuan) have only very recently begun to teachsonre of the concepts involved. Most loresters in China do not have the "social" ski l ls toinclucle "soci ir l tbrestry" conrponcnts. ' l ' l re Dircctor of Hringyuan County Forcstry Burcauasked "What clo nonrads have to do with tbrestry?". Whcn I repl ied that I had seentlrewood outside nomad tents and read of Yak eating wil low and rhododendron fodder, hesaid, "We r)rr)st talk to the Agriculturl l Department." He Inust have driven past heaps oft lrewood outside nonrad tents Inxny t irnes, but his tr:r ining caused hinr to f i l ter outsubsistence fbrestry needs. I t is recognised that i f Social Forci j try were (o be added furthertraining may be required.
6.4.4. COSTINGThe FB appcared to be Lrntarni l iar with accoLrnting tools usecl fbr cornputing f lnancialviabi l i ty over t irne. (Narnely IRR, NPV, NDR) On the basis of t igures given, on typicalsites in SoLrth Hongyuan, with Fir/Spruce, in cornnrcrcial plantat ions, I was able toconclude that the IRR would be approxinrately 5.2% (Sec Appendix D). Although theproposal rnajors on the environrnental role of the proposed tbrestat ion, no f igures areavai lable regarding erosion decrease or water capacity increase, and no environmental costbenefi t analysis has becn conclucted. This is worthy of l i rr ther investigirt ion.
6,4.5. TREE l 'ENURE AND USER RIGITT-SLegally there appcars to be nothing preventing each vi l lage having i ts own cornmunityforest (the trees, not the land). The legisl ir t ion has a comnrercial orientat ion, although the
Hongyuan Countf Rapid ass?ssmcnt Survey
subsistence sector is not excluded. User r ights to tbrest products (for home consumption) orfor animal grazing are renrarkably relaxed. The only limitations are live trees, youngplantations and areas selected for natural regeneration. Cornpensation is given to userswhen traditional grazing land is converted to forest.
6.4.6. FORESTRY BUREAU STAFF AND EQUIPMENTOut of a staff compliment of 64, 58 were in position. The offices were adequate, but verybasic. They appeared to lack basic mensuration and surveying equipment and stated that themost advanced equipment they possess were calculators.
6.4.7. MANAGEMENT PLANS FOR OLD GROWTH FOREST AND NEWPLANTATIONSThe age structure of the forests is disproportionate and there is a lack of young andsemi-mature forest (In the systenl area95% of the forest areas are over mature and 3.5%are mature). This is a result of mining (the best) in the past and inadequate planting (33ha/year since 1957)(5?0). Hongyuan County has requested help in nraking a Inanagenrentplan to develop its old growth fbrests and for its new plantations.
6.4, 8. SILVIC U LTU R E A N D MANAG EM ENT
l. Species ChoiceThe FB staff exhibited extrerre conservatism, with respect to species choice and appearedunwil l ing to consider other options apart from Fir, Spruce and Wil low (This might be aresult of top down comnrand structure - [ ]ost government forest departrnents don'tencourage their staff to experintent). Sonre si lvicultural tr ials had been conducted in the1960's, but seerningly al l the species that had been tr ied had fai led. A l ist of fai led specieswas not avai lable. I f the airn is water conservation capacity, Oak forest is better atconserving rnoisture than Fir or Spruce (Lei, 1992). Oak is rnuch ntore of a mult ipurposespecies providing more cuts, goods and services than Fir or Spruce. Quercus serneca4rifol iais suggested. Picea asperata shows the nrost prornise in ternrs of production cornpared toother Spruces (Jiang H. 1992). Research has shown that there is a close association betweenvolunre and soi l volunre weight, soi l ntoisture, land forrn, alt i tude, slope and pH. Furthcrinvestigation is required.
2. NurservAlthough there nright be economies of scale producing seedlings in large nurseries, thisdoes not enhance relat ions with the local comrnunity. Small comtnunity nurseries may prorata be more expensive, but they encourage participation with the local people.
3. SeedCurrently the FB purchase al l their seed requirenrents and they have no seed col lect ion orseed test ing faci l i t ies. Sonre cost savings could be made i f they had their own equipmentand test ing faci l i t ies and through-sales to other counties. This would require equipment andtraining.
4. GIS and Afforestat ion Site SelectionGeographic Information system computer software (GtS) gives us the abi l i ty of usingBoolean logic to select at'forestation sites that cause minimum conflict with the other
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Hongyuan County Rapid astassmail Survey
'; take-holders. Unfortunately this could not be optinrised because i t was not possible to,r[rtain a grassland nrap, and also because i t was not possible to ascertain the place, i f any,oi agro-fbrestry or silvi-pasture in the livelihood strategies of the people. Some sort of ideal';ite could be fornrulated fbr the three forest tvoes:
Cornrnercial Foresta) NE, SE or E aspectb) More than 500rn frorn water coursesc) On slopes less than 45 degd) Areas larger than 200 hae) On non agr icul tural land
f) Ort poor or non grazing landg) 2km frorn villages
I)rotec( iorr Fores(. a) 500rn ei t l rer s ide of major water courses
b) Steep eroded areasc) Agro-lbrestry ??d) Si lv i -pasrure ??
Soci l l I ro lestry(consider the wage and subsistence needs of the nonrads, ago-pastoral is ts, set t ledTibetan and Han)
a) Areas wi th in 2knr of v i l lagesb) Agro-forestry ?? (on agr icul tural land)c) On poor or non grazing land
I 'here is no quest ion that GIS technology would great ly assist in the management of o ld
; r ow t l r a r r d new p lan ta t i o r r s .
i.l=!scr!.cN{ost of the te l l ing and logging is being condlrcted in Chalong Distr ic t .
' I rees are being
clear- te l led, i .e. a l l the t rees are being renoved. Theoret ical ly , provid ing thc forest is nrorethan 200 ha, the s lope in less than 45 degrees, and rnore t l ran 500 nr . f roul water courses,there is no nraxinrum size to the f 'e l l ing coup. Given the c l i rnate, the s lopes and the soi ltypes, th is is a recipe for ser ious erosion and i t nrakes reforestat ion very d i f f icul t . toggingis nain ly done manual ly and fe l ied logs, af ter being cross-cut are ei ther ro l led down thehi l l or put on chutes. Alp ine "skyl ine" logging systenrs and environmental ly f r iendlylogging systems that l imi t the s ize of the fe l l ing coup are avai lable in China (we sawseveral NW of Wenchuan). When I asked why they werc not used in Chalong I was to ldthat they lack the rnoney and t ra in ing.
5. Rt ,sei t rc l tNlost of the research appears to have been done in the 1960's. With the advances inpropagat ion techniques and the avai labi l i ty of g lobal l i tcrature, srnal l l i rn i ted nursery andsi lv icrr l tur l r l rcsuarcl r t leserves sonle at tenl ion.
H o n y \ u a rt Ct t u ntl ' R u p i d asse.tJlttrr, S'irrrt ' r
6. Fi re ControlResearch indicates that fire towers are not cost effective and engender the wrong mcssagcsto the comrnuni ty at large. I f the community is incorporated into fbrest rnanagemenrthrough peoples participation they are more likely to protect their vested interests.
7 . W i l d l i f eThe Forestry Bureau has requested assistance in conduct ing a wi ld l i fe census. Al though th isis in lportant and a necessary pre-requis i te for b iodivers i ty managetnent, I (Studley) lack t l rcexpertise. FOC may need to approach a wildlife expert.
6.4, 9. I N FORMATI ON LACKI NG
1) Age c lass pyrani id data2) Sonre meterological data -water balance3) If forest is increased frorn 25% to 35 % rvhat js the effcct on
a) water conservation capacityb) Erosion and s i l tat ion reduct ion
4) The inrportance of t rees, N{FP and forest to pcople5) ' f rees on grazing land6) Si lv i -pasture (protect ion)7) Agro-forestry (prorect ion)
6.4.10. OI'TIONS
Opl ion I - Shel ter Forest i l )esert Controt Proposl lThe people 's governrnent of Hongyuan County are seeking assistance to p lant 20,000 ha ol 'lbrest in four d i f ferent areas ("systerns") . Since the proposal was wr i t ten the Chalong arcahas been added to the othcr four "systems" (areas), as part of i t l ies in the ) 'anStzccatchrnent and concern is being expressed over the Three Gorges project .
Advtrntagcs:o Rapid impacto Economies of scaleo Industr ia l forestry potent ia l (sawmil ls , pulp rn i l ls , wood processing)o High prest ige disadvantages
Dis:rdvantages:o Di f f lcul t to l i rndo Major feasib i l i ty study requiredo FOC and Hongyuan Counry lobbying required in Bei j ingo Dangers of c l i le captureo Dangers of fur ther marginal isat ion and disenfranchisenrent of the poor and
suDsrs(ence sector.so Saddled wi th a nta ior bank ascncla
C)pt ion 2I t is srrggcsred that-
a) -Only one easy "systern" area be consideredb) -A socia l forestry cornponent be included and the peoplcs
part ic ipat ion incorporated.
Of the areas being of fered thc "Southern Water Conservat ion Shcl ter Forest Svstcnr" arcu
- 6 0 - o l -
ITotutl'uatt County Rapid dss(tsttt(trl Survcl
i r r Shu:gingsi Forest Distr ic t of f 'ers the most potent ia l . The County have requestedassistance in 500 ha of afforestation over 10 years. Shuajingsi Forest District comprises' ihur j ingsi Adnr in ist rat ive Distr ic t and Rangkou Adnr in ist rat ive Distr ic t Supplementaryc()nrponents inc lude:- Nurser ies, t ra in ing, a seed lab/col lect ion stat ion, a lp ine logging, o ld
:r rowth and piantat ion nranagenrent p lan, research, a f l re toB'er .
. \dv l l r tagcs:o I t wi l l a l lorv FOC to gain exper ience and credib i l i tyo I t wi l l bc easier to secure funding (b i lateral a id)o I t wi l l only require lobbying in Chengduo More ol a grass-rools focus possib leo l r , lore f reedorn of inrplenrentat iono lr.rse of Af-forestationo FB have nrost experience tirereo Addresses the n)ost ser ious erosion (using CAS data)o Addresses the nrost ser ious uncrnp)oyr l r 'n to Train ing needo Potent i : r l tor socia l forestry and peoples pl r t ic ipxt iono Greater turrd ing potent ia lo Tradi t ion oi agro-tbrestrv, bLrt lack oi rcsearch
Disa dr ' : r nt : rges:o Degree of popular support unknowno
' l -oo nrany eler lents
o Unclear statLrs o i socia l lbrestryo InadeqLrate reserrch (what works, ho*, nccr lcd)o Not an er1>ressed needo Lack o i t r e i n i ngo Degree of pol i t ical wi l l unknowno Darrgers o i b i lateral a id "steer ing"o Dangers of long term commitment
Op t i on 3F-O[] assists the FB by establ ishing a three year Pi lot Schernc (possib ly leading at somestage onto sonre elernents of opt ion 2) . The Scherne should have a town or c luster focus,: rnd conrpr ise act ion research ( in socia l forestry) , l inr i ted al lbrestat ion (say 100 ha vear) ,r Lss i s t r ncc r v i t l r r nanagen re r r t p l ans , t r a i n i ng an i l I i r n i t ed cqu ip r r r cn t nccds .
A t lv l rnt l rgcs:o AI Iows FOC to star t sr la l l and expartdo Al lows I rOC lo explore rra l ly current Lrnknownso Does not commit FOC to too rnuch, for too longo Al lows FOC to develop i ts capaci tyo Addresses sonre of the fe l t needs of the Fl l
Di-s i rd vantnges:o Possib le d isappointrnento Further deforestatrono Negl ig ib lc intpact on erostol lo Neg l i g i b l c i n rpec t on w r te r conscn ' r L t i dno Negl ig ib le inrpact on unenrploynrento Negl ig i t r le i r rpsct on the Yangtze River catchnrent
l lrtrt. l t uan Crturttt ' Rttpil d.f r( '.\.r/r1('/ l f J/1r 1 '
6.4. 1 I. RECO IIT M EN DAI'IO N S
Pi lot SchemeIt is reconrntcnded that FOC assists the Hongyuan County Forcstry Bureau by cstabl ishi r rg
a three year Pi lot Schernc (possib lv )cading at sonrc stac.e oDlo sor l le e lcnrents ofopt ion 2) .
The Schcnre should have a lo\ \ 'n or c luster fbcus, ant l conrpr ise act ion research ( in soci l t )
fbrcstry) , l i r r t i ted af forestat ion (say 100 ha year) , an( l assistance wi th r r ranagert tent Plans.t r a i n i ng and l i r n i t ed eqL r i p l r r c ' n t ncec l s .
The Pi lot scherre shoulc i bc cstabl ishecl in Shtra j ingsi Forcst Drstr ic l .
Socia l Forcstry Coruportetr tI t is recontrncnded that FOC, in rccogni t ion of the neecis of a l l t l rc stakc- l to lc lcrs ( ' l - l t t Statc.
the Countv and the Peop)e; sLrpports Hongyuan CorrDtr ' I rorestry I lLt reat t ( l - lOFI l ) tn l t
t r ipart i tc approach to forestry nanrely:I corrr r r rerc ia l fbrestry coi l r l )on( ' r ' t t , l tn cr t t ' i r . t r rn l t t t l l l t i r restry coi l lponL' i l i a t td a socl l t ilbrcstry colrponcnt in a nrarrner t l l l t does ntr t r l is : rc lvantage any of the st :Lkc-hol<jcr :(Socia l Forestry inc lu<lcs both the r i ,a l lc ancl thc sLrbsistcncc requircnrcnts ( ) lpas t r r r a l i s t s , ag ro -pas tu r x l i s t s anc l se t t l e r s . ' f hc needs o f t he poo r , t hc s t r bs i s t cnc r 'scctor , wonren, and the r tnrginal isccj neecl spccia l recogni t ion).
' l ' r ' : r in i l rg
I t is recornnrended that FOC supports HCIr I ' ] in at ldrcssing socia l f i r restrv, peoplc ' :pa r t i c i l ) a t i ( ) n , I 'R .A , i n< l i g t no r r s kn r r * , l c c l ! l e an< l r v i l L l l i l r : nnn i r gcn rcn t by l ac i ) i t l t i r r g p , r r t , , ' 't l r c l i r r r r l i r g .
Sccd Lnb/Col lect ion St : r t ionI t is recor lnrencled that FOC reviervs possib ie strpptrr t l i r r a scecl lab ar td or scct l col lcct ior tequipment at the end of the Pi lot Stage.
Cort tnru ni ly Nurser iesI t is reconrrnended that FOC reviervs possib le sul)port t i ) r conrnrLrni ty nLrrser ies i t the en( lof t l )c Pi lot Stage.
Alpi r re LoggirrgI t i s r cco r r r r nended t ha t FOCI r cv r cws poss i t l l e su l ) po r t t o r cnv i r o r r r nen la l l y l r i c r r d l y l ogg r r i l 'a t t l re cnd of the Pi lot Stage.
Old Grorvth Forest Anr l Nov l ) l : r r r tut ionsI t is reconrrnended that FOC sLrpports HCFB wi th the r) r i inugenrent o l ' i ts o ld growlh tbresland new plantat ions by assist ing thern wi th t l re preparat ion of rnanagcnrent p lans and brl : i t : i l i t a t i ng so r r r e o f t l r e f r r n r l i r r g l i r r cqu ipn ren t .
I tcsr ,u lc l r
l t is recornrnended that FOC reviews possib le sul)Ports lor appropr iate torcstrY rcscrrch l r rthe r 'nd of the Pi lot s tage.
Fi le l 'orvcrI t i s r cco ru rue r t ded t hx t I rOC r l ocs no t s r l l ) l l o r t I I ( l F I l u i t h a f l r c t ou ' c r / s t : r t i on r s t hcv ( 1 ( ,
-62 - 63
Hottgyuun Coun4' Rapid oss(ssm(nt Survey
not engender any publ ic spir i t or responsibi l i ty . I t is hoped that by ensur ing the co-
operation and full participation of the local people that there is a cotllmunity-based vested
interest in put t ing f i res out .
Wi ld Aninr : r l CensusI t is recomnrended that FOC supports FB by seeking the assistance ofa wi ld l i fe specia l is t .
Nloni to l ing and Evaluat ionI t is recontnrended that FOC supports HCFB wi th the jo int nroni tor ing and cvaluat ion of
t l re Pi lot Scheme by faci l i tat ing independent expert ise.
I ixpatr iate CounterpartI t is reconrrnencled that FOC supports HCFB by provid ing a rcs ident Pi lot Scheme
counterpart to provide advise, expert ise and to jo int ly supervise the disburset t tent of funds.
I t is suggestecl that the FB arrange 1br sui table housir rg, t ravel and a v isa fbr the expl t r iate
counterpart .
FundingI t is reconrrnended that FOC supports the FB by seeking approxinrately 1,050,000 RMB
lirnding fbr three years (ltMB 350,000 fbr I year)- fhe
break-down is as lb l lows:
H nn 11t'uan Counry Rapid cssc.rsrnan, Strrvc-r'
6.5 PUBLIC IMALTII INTERPRETATION OF FINDINGS AND
DISCUSSION
6.5 . I . APPROACH TO THE AI IEA6,5.2. HEALTH STATISTICS (N'(ORBIDITY, MORTALITY AND STANDARD
INDICATORS6.5.3. HEALTH SYSTEM REVIEW BY FACILITY: INFRASTRUCTURE,
ACTIVITIES, AND KNOWLEDGE, ATTITUDES AND PRACTICES1. HOSPITAL2. EPIDEMIOLOCY CENTRE3. WOMEN AND CHILDREN'S CLINIC4. VILLAGE HEALTH CLINICS
6.5 .4 . COUNTY PUBLIC HEALTH PROPOSAL6.5 . .5 . OPTIONS AND RISK ANALYSIS6.5 . 6 , RECOMMENDATIONS
6.5.1. APPROACII 7'O TIIE ]IONGYUAN AREAOn arr ival in Hongyuan County, the Public Health investigative teanr (Dr. J. LeMaster,Mrs. Margo Joyner and Translator Liu Xiao, hereafter the PH team) met with senioroff icials from the Hongyuan County Public Health Bureau (PHB) to discuss the teanr'sapproach to gathering infornration. I t was agreed that the PH tearn, cluring the f irst week ofthe study, rvould conduct senri-structured intervieu's at the PHB, County Hospital andrelated faci i i t ies, and vi l lage health cl inics, and rnventory the physical structures !rn(lequiprnent at each site as ner-cssirry. DLrring the second investigative week, a fbcus groLrpdiscussion was to be held with 8 to l0 vi l lage health cl inic doctors to discuss nonradichealth behaviours that the doctors had observed. Also during that week, the PH tearn wott ldspend at least a half a day actual ly observing the hygiene belravioLrr of nontadic householdsin the f ield. Addit iontl ly, the PH teanr was to Ineet the PHB off lcials twice weekly for ortchour .
Checkl ists tbr the senti-structLrred interviews held at each health taci l i ty were drawn l ' rotn l t
l ist of protocols developed by C1'Z (Kielnrann) tbr_use in the assessrrent of developirrgcolntry health needs, services aud systerls (Kielnrann et.al. , 1991). Al l observations notet lwere those of the PH teant except where otherwisc mentioned. The visi ts to the variot)sfaci l i t ies went ahead as planned, and these forrned the brr lk of the observations. PHIJoff icials, in the end, denied pernrission to the PH teatn to carry out the locus grotrp
discussion and houschold observations. Health statistical inlbrmation was collected at thePHB, Epidemiology Centre and Hospital. The complete record of these observations isincluded in Appendix E.
6.5.2. HEALT'H STATISTICS (T'IORBIDITY, MORTALITY AND S'nANDARDINDICATORS
Populat ion and mortal i ty stat ist ics. are col lected as a col laborative effort between l l tr 'hospital and the Wonren and Children's Clinic (W&C), also sit trated in Hongyuan To*'rr.Reportedly, twenty trained health worker's frorn W&C annually conduct a populat ion
census, at which standard health indicator inforrnation is col lected. vi l lage health cl inic(VHC) staffwere noted, however, to have recorded al l this data in their cl inics on the basis
- 6 5 -
[[rtn t'uatt Counn' l?altitl (/.tJ('JJ/ircli
Ast ion ResearchA fforcstationN' [anagerrent p lans
EquiprnentWi ld l i fe Consul tantMiscel laneoLrs
TOTAL
*fbr fu l l l is t of equipnret t t t teccls see Appendix D
R M B10,500807,000 (100 ha x 3 years)10,50040,50040,50040,500
1.050,000
- 6 4 -
I*t r r gt' u u rt Co u n t1, R u p i d a s s (.\.\ nt ( tr S u rv?),
of their own contacts with the houseliokls in their area: morelver, al l cl inic staff inforrnedthe I 'H tearn that PLIB off lcials and staff only canre to thr: VHC areas to col lect thisintbrrnatiorr once annLral ly. The standard incl icators arc shown in Table 6.5.2.
T 'ab le 6 .5 .2 . : I l He I r l I r rd ic
I r rd ic t t ur Rute Exoccted Rln
In l ' a r ) t M ( ) r t x l i t y Ra te 0.8 /1000 b i r thsI 991)
60-r00/r000(Nepa l i s 105)
Nlaternal N' lor ta l i ty Rate 40/100,000 b i r thsl 991)
100-500/ l 00,000(Neoal is 5-50)
Clnrdc l l i r th I late 13.4'7 o/o t0-30%flaesarean sectior'r rate(C-scct ions/ est i Inatedtotal col rnty b i r ths)
t . 5 %(24 procc'dures/.2l-5-49 year old totalworlen)
3 - 5 %
- lhc actLral nutnber ofdcerths of0- l ycar o ld chi ldrcn * ,as not sLrppl ied, so t l )e accuracy of
thc ( in l i r r r t nror ta l i ty rate) I I \ '1R cxnnot be conr l tcntcd uporr ; however, t l tcre wirs only I
recorded ruaternal death, rnaking the est i rnatecj nraternal nror ta l i ty rate very unrc l iable
stat is t ical ly . Apparent ly , the chi ld surv ival rate ( l - under 5 year o ld rnorta l i ty rate) has
never becrr est inrated, and we could f lnd ncl recort l of chi ld dcaths. ' l 'he
populat ion C-
sect ion rate g ivcs an indical ion of the al r i l i ty of the heal th systen) tcr dcl iver qual i ty obstctr iccare to \ r ,onlcn wi t l r h igh r isk pregnancics. I r ronr -5-15% ol 'a l l r lc l iver ies exl ) ! ' r iencL'apotent ia l ly l i t 'c threatening obstetr ic ct r rnpl icat ion rvhich nrLrst be given obstetr ic assistance:a C-sect ion rate of 1.5% is lower than cxpected. Orr t l re other hand, the nurnber of doctor-
assisted del iver ies was 154, or 9.96% of tota l expectcd del iver ies, which is qui te wi th in the
expected range. Al l expected ranges given in Table 6.5.2 are lbr devu: loping countr ies, wi th
Nepal g iven as an exanrple. Please conrpare Hongyuan f igures to t l tose tbr China in the
Wor l d Bank ' s 1993 Wor l d Deve lopn re r t Repo r t " l nves t i ng i n Hea l t h " (WB, 1993 ) .
The PH tetnr was to ld that there was no actual b i r th or c leath record as such, and that the
hospi ta l s ,as able [o record accurately the nLrrrrber of b i r ths and deaths in the u 'hole county"because the populat ion is srnal l in the arca". A houschold registrat ion systcnl exists, and
every lar l i ly is accordingly registered throLrgh th is, so thci r rvhcreabouts and v i ta l events
can be checked annual ly .
The Epidcrnio logy C-entre is responsible for int 'ect ioLrs d iscrse stat is t ics, and that
departnrent d id furnis l r us wi th sonre in lorr lat ion. lnfornrat ion on the incidencc of
inrnrurr isat ion-preventable d iseases was not suppl ied, but the vaccine reginten reported is
the standard WHO recomrnended reginten lbr pol io, d iphther ia, BCG, nreasles and
pertussis. Tetanus imnrurr isat ion is not g iven to e i thcr chi ldren or to pregnant wonren. VHC
doctors d id report t l la t they had seen cases of neonatal tetanus, but d id not of t 'er stat is t ics.
With regard to imrnunisat ion coverage rates, only t l re nunrber of BCG vaccinat ions given
were reported to us, and the est i rnated inrmunisat ion coverage rate tbr BCG is 77%, based
on the nur l lbcr of b i r ths reported by the County cct tsLts data (see Kiel r t tann, et .a l . , p. 122. . r , . , , , p rb r t r l t
Hongyuan Court4' papil assessmcnt Sumcr
The PHB reported that 8 cliscascs are causing signilicant nrorbidity in the area. Where theteam was able to obtain annual incidence data at HospiLll or Epidemiology Centre, this isshown below:
l . Chronic a i rway disease
2. Tuberculosis (21 cases in 1994, or a tota l of 66.7/100,000 populat ion)
3. Gastro intest inal d isease (d iarrhoeal /dysentery adrnissions : 79, or 2.411000populat ion)
4. Osteoarthr i t is , inc luding rheumatoid spondyl i t is (due to brucel los is)5. Derrnatologic nranifestations of exposure6. Chronic f lLrorosis7. Anthrax (2 to 3 cases/year)
The f luorosis problem was said to be chronic, but l imi ted to teeth discolorar ion and mi ldgastro intest inal problerrrs. The Water tealn was to ld that natural Uraniurn )eaking into thegrorrnd water rvas causing a strange arthr i t ic condi t ion; th is was not cont l rmed by PHBoff ic ia ls, and cancer rates in t l re area were not above the expectcd levcl . Al though theEpidenr io logy Centre also docs watcr qual i ty test ing, they would not d ivulge measurr .df luor ide levels, n i t rate levels, or other measures of water contanr inat ion, such as faecalcol i fornr levels in tested wcl l rvr ter . The PH teanr was shown a very cornplete rest ing lab,and the Director of the centre inc l icr ted that a l l wel ls in Hongyuan are tested at leastannual ly , t reated wi th l iquid d is infectant i f necessary, but would not report the locat ion ofcontaminated wel ls . The Epidenr io logy Centre of f lc ia ls refusal to sharc informat ion ondisease incidence and water qrra l i ty severely l in i ted the invest igat ion, so that conchls ionsregarding these topics arc inrpossib le.
I t should be noted that the sewage problem in Hongyuan Town cont inues exact ly as Bjorkreports in the 1993 Univers i ty of Lund Wet land Research Project report : s ix foot h ighmounds of garbage l ine the southern approach to town f ront the r iver ; the l \ ' l i lk PowdcrFactory cont inues to pour untreatecl ef l ' luent into the Longreka River, f rorn whence i t i :carried we stward toward Longran Township; pit latrines are still ntany fewer thannecessary to meet the town's needs (Bjork, 1993).
In l ight of the sani tat ion problenrs noted in the town, a thorough look at nonradic hygienebehavior . r r would also have been in order, but th is has not been possib le, as no te: l rnmembers were given free access to local people. A few observations have been able to bemade by various team ntenrbers in passing: water was often observed being drawn for usein tents directly from rivers or creeks. It is sonretimes stored irr coveretl containers. antlsometimes not. Wornen were never observed to wash hands prior to fbod preparation.Defecat ion is usual ly away f ronr tents, i f possib le on high ground away f rorr t l re r iver (vanDis & Brown). In general , observed nontadic hygiene behaviour was not adequate toprevent the spread of laecal-oral gastroenter i t is v ia hands or water sources, especia l ly i f infuture they are placed in crowdcd condi t ions.
Conclusion: Recorcl ing of v i te l s t : r t is t ics by the County r ray be Lrnrel iable. E,ven i f VHCdoctors are col lect ing th is data v ia dai ly contacts wi th residents in their townships, thenomadic l i festy le rnay take herdsruen away f rom the area fbr sLrbstant ia l per iods, so thatbi r ths and deaths could be missed. Addi t ional ly , i f there is no bi r th or dearh register , even
- b / -
Ilongvnurr County Rupid dss.rsnutt SurncJ
VHC col lected data nray be lost . I f , as was suggested at t l le W&C, census data is col lectedby PHB/W&C staf f , T ibetan nornadic nrothers would seern unl ikely to g ive v i ta linfbrntation to unknown Han Chinese census-lakers. Some intprovenlent is needed in thissystem: at the least, birth and death registers should be kept, verbal autopsies collectedwhen a death occurs, and t ra in ing and support g iven to those col lect ing the pr imaryinformat ion.
Control of inf 'ect ious and sani tary drsease is nroderate at bcst . The high rate of brucel los isrepresents a severe publ ic heal t l l probleut . However, s ince the Epidernio logy Centreof f ic ia ls were not for thcoming wi th intbrmat ion, l iave not rnade s igni f icant improvementsin the sani tat ion of their own local town (despi te the possession of very advanced food andwater testrng equipment) , and have not requested outs ide help, the prospects foritnprovenlents in this area seellr renrote. Further research could reveal to what extent thepoor sani tary condi t ion of the town is creat ing a hazard to the surrounding nornadicencanrpr))ents and townships.
6. 5. 3. I I EALT'II S y S7'EllI R EV I Ely u Y F-AC I LI'l ' l ' : I N F RA ST R U CTU R E,ACT|VITIES, AND KNOIYLEDGE, AT-IITUDES & PRACTICES
l . Hosp i t r lOf the 158 [ '>HB staf f in HongyLran, 64 work at thc l )eop]e 's County Hospi ta l , a Westernlnedical lac i l i ty wi th representat ion by Chinese t radi t ional nredic ine. The nunrber ofdoctorsln-post , twenty-seven, is generous by any standard lbr t l r is s ize populat ion. Al l the nrajorspecia l i t ies are represented, a l though apparrent ly only s ix of the doctors are fu l ly univers i tyt ra ined. At the t in le of the survey, 16% of the posted c loctors were out of Hongyuan foradvanced t re in ing, which also seen)ed a large proport i t ln .
' l 'he nurnber of nurses, e ighteen,
is insuf f ic ient lbr a hospi ta l of th is s ize, and the greater nunrber of doctors suggests thatpr ior i ty is g ivcn to specia l is t knowledge and not to pract ical pat ient care.
Outpat ient c l in ics are conducted in medic ine, paediatr ics, obstetr ics and gynaecology,Chinese t radi l ional ntedic ine (rnain ly acupuncture and electrost i r lu lat ion, t l ie onlyphysiotherapy apparent ly avai lab)e), but only 2,000 pat ients l r re seen ntonthly. Civen apopulat ion of 3t ,000, th is suggests on lverage three v is i ts to thc hospi ta l OPD every fouryears. The nurnber of pat ients seen by each c l in ic is recorded, bLl t the diagnosis of thepat ients, or any of their personal intbrrDat ion (ethnic i ty , ager scx, township) is not a part ofany permanent record, reportedly. However, we were to ld that 80o/o of outpat ients seenwere f rotn the township areas (which infbrnrat ion would not have been possib le to obtain i fpersonal informat ion were not recorded sonrewhere). The history, exarninat ion, d iagnosisand t reatr) rent g iven to the pat icnt is reportedly recorded on the Hospi ta l pharrnacyprescr ipt ion, which is rcta incd in the Pharr lacy for one year and thcn thrown out . There isno other pcnuanent rccord of the pat ients ' care kept e i thcr by thc Hospi ta l or thc pat ienrsthemselves. This was recognisc 'c l by the Hospi ta l d i rector i rs a ser ious c lc l lc i t .
Inpat ient st i t t is t ical rccords are rather bet ter . The nurnber of adrDissions for each diagnosis,the nuniber and type of operat ion, the nuutbcr and type of dcl ivery, and the number andcause of inpat ient deaths are recorded; however, we wDre not shown th is inforntat ion.Average stay iD each of the f i f ty beds was eight days, wi th a bed ut i l isat ion r . , t te of 5 l%o,wh i ch sL rggcs t s t ha t t he i npa t i e r ) t i i l c i l i t i e s a re no t unde r -u t i l i sed (K ie l u rann e t . a l . , l 99 l ) .
Hongyuan Counry Rupid ossessment Sumet'
Charges for outpatient and inpatient services were flat rate and nrodest (10.6 RMB for anOPD visit , 18.6 RMB for an inpatient day, including al l procedures and medicines), andthis may account for the fact that the Hospital only has a reported net income of 90,000RMB/year to spend on training and equipment.
The team's detai led review of the faci l i ty and i ts equiprnent can be fbund in Appendix E. Ingeneral, the bui ldings were old, but kept clean and in nrostly good repair. Outpatient cl inicand inpatient room space was nrore than adequate. The only outpatient equipment noted tobe absent was an adequate number of otoscopes.
Although the Hospital Director was at pains to point out many old or dysfunctional piecesof equipment, only a few are really needing replacement; most possibly could be repaired,or have parts replaced. The X-ray machine in use as a fluoroscope was dangerous: thccentral ray was directed through a standing patient onto a thin f lLrorescent screen, behint iwhich the radio technician sat. No personal f i l rn badges appear to be worn by X-ravdepartment personnel, and i f use of this piece of equiprnent continues, a regular user is arhigh r isk of damage to the ol)t ical lens, and of developnent leukaernia or another radiat ion-carrsed cancer.
Equipnrent which conceivably nceds attention str ict. ly on the basis of i ts functional status.after inspcction, includes:
l . Rentoval of a f lrrorescent screen and placenrent of a Photo mLrlt ipl ier unit andx-ray tube for 500 Ma fluoroscope (renrove the dangerous 40 Ma tluoroscope)
2. Repair or replacernent of 3 channel ECC rnachine3. Replace transducer of real time Ultrasound machine4. Repair or replace laboratory refrigerator5. Replace operating theatre l ight
In addition, several pieces of equiprnent would seern to be standard for a hospital in a rurlllocation such as this, and rvould be advisable for this Hospital to oblain. These include:
J. Basic resuscitat ion equiprnent (anrbu bag, perhaps a Bird verrt i lator)2. One addit ional good quali ty otoscope for OPD3. Vendeuse suction obstetr ic apparatus4. EMO ether nebulizer for operating theatre.
With the above exceptions, in every area that the team visited, the nuntber and type ol 'equipment observed, and the state of the bui ldings, seenred appropriate to a hospital of thisievel and in such a location. The laboratory area had tunctional equipnrent for the mainimportant biochemical and bacteriological analyses done in general rural hospitals. Tlr.:surgical department's equipment was sonrewhat l inr i ted, but considering the fact that onlt 'an average of 0.54 procedures per day are performed there (despite the presence of seveneager surgeons), this seemed adequate as well.
2. Women & Children's ClinicAlthough the visi t to this Hongyuan Town faci l i ty is reviewed in Appendix E, ir is
- 6 8 - - 6 9
I I o n gl' u tt t t C r t u t t ; -t R u 1t i d a/.J.f (''rJ/rJrlll Sarv{'-l'
rncnt ioned herc becausc i t was the only centra l lac i l i ty uhosc di rector spontancously
cxpressed a desire to be involved in the t r i r in ing of Vi l lage Heatth c l in ic i loctors ' The
Director hat i a l rcady reportedly wr i l ten a proposal 10 th is ef t 'ect , whic l r had been turned
down by the County due to lack of fLrnds. The team r l let the enthusiast ic staf f , who perfornl
ante natal ancl gynaecologic exanrs as wel l and s ick chi ld exams at the c l in ic, conduct three
nlonthly maternal-chi ld outreach c l in ics in retnote locat ions nlonthly, and col lect the annual
populai ion and heal th srat is t ics for the County. These c l in ics inc lude ante natal checks, but
nei ther wel l -chi ld exatns nor imrnunisat ion are perfbrrned. Abort ions (wi thout any
anaesthesia) ancl farni ly p lanning pr<lcedures (e.g. , p laceruent of IUDs) are also perfor tned
at the c l in ic, rvhich charges a very nrodest rate of 0.50 RMB per v is i t ' The c l in ic is wel l
s tockcd wi th rcgir rd to eqLr i l t t t tent and ntedic ine, and did not request hclp in th is regard
3 . V i l l i r : : l e I { c : r l l l r C l i n i c s
The PH te:rnt was al lor ied to v is i t t i>Lrr v i l lage heal th c l i r r ics (VHCs), in Antrkehe, Waqre,
Anqu ancl Longran. Ar ld i t ional ly , the Et lucat ion tear l l were able to v is i t the VHC in Sedi .
At each s i te, the teanr determined the nunrber and level of t ra in ing of a l l s taf f prcsent , d id a
rapid i r rventory o l thc t i rc i l i ty ancl cqtr ipnrert t , and i r l tcrv iewecl the Western rnedical
exanr in ing staf f on their knowleclge ancl pract ices concerning col l l t ) lon ai ln lents (d iarrhoea.
nralnutr i t ion, neol lata l tc tant ls , chi lc l l tot rc l pneurt tor t ia) . Wc wcrc also ablc to learn how the
staf f rneet the t r ls ic heal t l r needs of the nor l r r t l ic Ti t rct i lns. l r tc l iv idual c l i r t ic observat ions
are, or)ce nrore, to l re fotr r td i l r Apl lendix E.
' l 'he rrunrber of " r loctors" at caclr c l i r r ic ranged 1 ' ror t t I to 4. Whcrc thcre wore fbur doctors,
there were at leas( two Tibct i rn ntedic ine pract i t ioners. [Jstr r l ly thc secon( l Wtstcrn nret l ical
pract i t ioner had aclc l i t iorra l t ra in ing rn Obstetr ics. Alnrost a l l the "( loctors" werc t rarned at
N' la 'erkang' l 'echnical school , which they cntcred af tcr . iurrror h igh schcxl l and at which they
tra inccl for 2 t t r J yelr rs. At i r l l bt r t one ol ' t l re c l in ics. th.re \ \ 'aS ol lO l l t l rse, : t lso t r : l lnc( l at
N1a 'e r kang l o r two yca I s .
- fhe c loctors a l l saw pat ierr ts c la i ly at t l ie c l in ics, rc l tor tct l ly l rc tu 'ecr t 2 to 4 pcrsons per day
at nr in i rnunr, to up to twenty persons at t r lax i r t tut t t . Winter pat ient lo lds were greater , whcn
nrore ol ' the populat ion is staying near the towns, a l lhough l t lore chi ldren present wi lh
diarrhoea in thc sunrr) ler . ' I 'he
doctors a lso wi l l at tenr l pat ients in the tents i f requested; th is
appcars to happen alntost dai lY.
Each c l in ic had at nrost two f i rnct ional roor)1s, inc ludir lg space to Pcrtor ln l l l lnor proccclures
(such as abscess drainrge) or to exanr pat ients, a registr i r t ion area and a Inecl ic ine ct lpboard.
Basic exani inat ion eclu ipnrent was Lrcking in every c l i r r ic ue v is i tcc l , cspccia l ly stethoscopes
and otoscopes. tnta i r t u,e ighing sca)cs werc universr l ly abscnt . N4inor surgical /dressing
equipnrent was usual ly in short supply.
Mccl ic inc supply, in contrast , d id I lot appexr to be short . I \ ledic ine is ordcrccl d i rect ly f rorn
the phanuaceut ical supply house in HongyLran. Each VHC doctor or t lers whichever
nredic ines he/she t 'eels appropr iate. The nredic ine is paid lbr f ronr a revolv ing drug fund
that the PHB in i t ia l ly suppl ies and apparent ly tops up every year, and af ter drugs are sold
at f lxcd pr ices in the c l in ics, ntore drugs are or t jerecl f ronr the sLr l>ply hotrse. A var iety t r f
oral ant ib iot ics were al rvays noted t r . r be in stock, as were nlany v i tar t t ins and Sylnpt6niat lc
t r ea t r l en t s . N leny o f t t r c d r r r gs we re s l i d t o L r c Wcs t t r r t . bL t t $c re l l o t l h l n i l i a r t o us .
I! o n gy tt u r t Co u n | ), Ila l'' i I a : s ( :i s n ( t' t S u rv()'
Scveral drugs which would secnr essent ia l were not of ten present: xy locaine in ject ion.ergornetr ine, p iperazine or oth! ' r ant ihel nrenthics.
Al l of the c l in ics co-operatcd wi th the inrmunisat ion programrre operated by the PHB, anddid inforrn their populat ions rvhcncvcr a vaccine carrp was about to be conducted. Thevaccine bt lxes fbund in the c l in ies in two cases (at Arnukhehe and Waqie c ln our f i rs t day'sv i s i t ) con ta i ned vacc ine s to r cd i r t a n reasu red roon l t e r r pe ra t l r r e o f . l 5 'C . , wa rn t enoughto inact ivate nreasles vaccine, at least i f kept at that temperature for any t inte. Staf f s tatcdthat the ice containers were f i l lcd wi th a lcohol that was changcd every 2 rveeks, and had noknowledge of the need tbr a cold chain, nor even * ,hr l th is nreant .
Medical knowledge and pract ice was lacking in regard to d iarrhoea in every c l in ic v is i ted:al l doctors were aclrn in ister ing ant ib iot ics to rout ine cases or d iarrhoca, and no oncspontaneously descr ibed the Lrse of rehydrat ion solut ion (rnost said they had used such asolut ion nr ix ture, but had rLrrr otr t and not replaced i t ) . Al l doctors coLr lc l accLrrately descr ibethe synrptotns and t rc i l t rncnt lbr prrcurnonia and nralnutr i t ion. but none knew that tetanusvaccinat iot t t - r f pregt tant wourcr l prevents ueonatal tetanus. Obscrved pract ice was alsoIacking: we observed the adnr in ist rat ion of int rantuscular gentant jc in (a very strongant ib iot ic) for cold synrptonts in an infant : inappropr iate by any Westcrn standard, at least .In surnrnary, nredical knowledge was patchy.
Al l of the doctors expressecl a strong c lesi re for rnore t ra in ing in a l l areas, bLrt speci f ical lyin Obstetr ics. One of the Obstctr ic doctors ( in Sedi) reported carry ing out 80-90 tenrdel iver ies/yerr (which is interest ing, considcr ing the tota l nunrber of reported del iver ies inthe Cou'r ty, 424), and al l of the Ol>s-Gyn doctors l rad encountered and ret 'erredappropr iate ly to Hospi ta l ob: j tet r ic conrpl icat ions. Al l of t l re c l in ic doctors reported thatpregnant wonren do r lot conte for antenatal checks. Except fbr doctors in Longran, only 2ktn l iot t t l - longyuan Towrt , none of the doctors had been s iven addi t ionai post-graduat,t ra in ing of any k incl , despi te Lrp to f - ivc years of c l i r r ical serv ice in the VHCs. Al l thc VH( 'doctors, when we asked di rect ly , repurte.d that Hongyuan doctors and PHB staf i d id notcorne to the VHCs ei ther to provide t ra in ing or to supervise ntedicr l pr . lc t ice.
Conclusion:Staf f ing of doctors in a l l sectors of t l rc heal th systenr are excess rr f recpr i rerrrents, burespecia l ly at the hospi ta l . ' l 'he nunrbcr of t loctors there, the level of specia l isat ion, and thcapparent ready avai labi l i ty ( for r l tcr t t ) of 'addi t ional t ra in ing oLrt : j ide rhD County probablrincrease the perceived need fbr more technical equipment, but such a percept ion would notbe grounded in a real is t ic appraisal of the s i tuat ion. There are real equipr lent needs at t l rchospi ta l , in a few key arcas, but the need to overhaul the Ol)D nredical record systerrrseerns tnore urgent , so that any addi t ions to the eqLt ipnrent an] . lanrentar iurn can be re lated t0the publ ic 's neecl for the speci f ic serv ices re lat ive to the diseases that are occurr ing in rh,populat ion. ancl nol the doctors ' desires fcrr new gadgcts-
Despi te the tact that the VHCs are responsible for pr i rnary care of the bLr lk of thcpopulat ions, the lesser t ra ined doctors are sent there, and they are given v i r tLral ly no f r r r theit ra in ing or c l in ical supervis ion. Rat ionl l drug use has not been er lphasised anywhere in thr 'system, which appears subsequent ly to have degenerated into " t rcet luent by consensus'wi thout any other sc ient i l lc basis. The e<luipnrent needs in the VH(--s are brs ic and urgcnl :
1 l'70
i.longl,uan Countl, Rapid ass?ssment Survey
a few sintple exanrination tools really are essential to prirrary health care. The need fort ra in ing and support there is c lear and urgent ; the only quest ion is whether the pol i t ical wi l lis present.
other sectors of the health systern (immunisation,. antenatal and well child care) arefunct ioning, but not wel l . I rnmunisat ion rates are not poor, but the lack of a cold chainsuggests that vaccinatiotl tlray not be effective, and the absence of tetanus vaccinationanywhere in the County is s i rnply unconscionable. I f the nontadic populat ion is p laced incrowded set t lernent condi t ions, the potent ia l for a nreasles epidernic is very h igh, and thetransmission of TB wi l l increase. Antenatal and wel l chi ld exarninat ion should be suppl iedby the VHC doctors, which would free up w&c stalr, for example to train and supervrsethese act iv i t ies.
6.5.4, COUNTY PUBLIC HEALTH PROPOSALThere were four main areas to the Publ ic Heal th sect ion of the CoLrrr ty Proposal : hospi ta land bui ld ing construct ion, nredic ine and equiprnent supply and cash f low, stafT t ra in ing andVHC support . Detai led discussions regarding these proposals are in Appencl ix E.
Sorne parts of the Proposal h:rve al ready been completed, i .e . , the consrruct ion of 25 VHCsis conlplete. Hospi ta l bui ld ing refLrrb ishment is st i l l seen as a pr ior i ty , but the currentbui ld ings are recognised by the PHB to be funct ional . DrLrg cash t low appcars to be arecurrent budgetary i tcrn, to top-up the revolv ing c l rLrg tLrnt l of a l l fac i l i t ies whcre drugs 1resold to the populat ion: th is would appear to be sonrething that could be deal t wi th by arestructur ing of the systent to enrphasise cost recovery and ret ional drug Lrse.
Al though PHB Director and Hospi ta l Director J ia recognised that post-graduate t ra in ing isappropr iate for a l l doctors in every area, they consistent ly st ressed that h ighest pr ior i tyshould go to hospi ta l doctors, and that sLrch t ra in ing should occur in ter t iary hospi ta ls in b igci t ies becat tse the pat ient load there wi l l be bet ter . Whi le recognis ing that VHC doctors a lsoneed such t ra in ing, they consistent ly stated that , even i f a fbreign c loctor came to conductsuch t ra in ing, i t could best be accornpl ished at the hospi ta l , rather than in the VHC doctors 'own setting, because the sanre patients present to both the vHC and to Hospital. Theydenied that the constra ints of t ravel for pat ients or of the l inr i ted condi t ions under whichVHC doctors t ravel should have any bear ing on th is. They stated that even i fWHO/UNICEF did state that mininral ly t ra i r red heal th personnel , g iven adequate t ra in ingand support , could d i : rgnose and t reat the bulk of pat ients ( lbr a good discussion on th is,see King, 1969; UNICEF, 1994; wor ld Bank, 1993), rh is wirs nor necessar i ly rhe case inHongyuan. We wcre given the strong inrpression that foreign c loctors would not bewelcol .ne to spend t i t rc in the VHCs tra in ing the doctors there, tor any reason whatsoever.
The need for technical r ledical equipr lent was emphasisecl to us over and over, in everysi tuat ion. Befbre we lef t Hongyuan, a ncw Publ ic Heal th proposal was given t r> Lrs, whichcontalns a request fbr rnoney to purchase thirty-seven pieces of advanced medicaltechnology (Appendix E). As noted above, t l )e hospi ta l does need refurbishing and possib lereplacement of a few i tems of equipnrent , but the i rnportance of th is appears to have beeninf lated out of a l l proport ion in the rn inds of the PHB of f lc ia ls. I t is interest ing ro note that ,out of a request for 6. l5 nr i l l ion RMB, only 100,000 of th is is for r ra in ing, whi le 4.37mi l l ion RMB is requested for h igh technology. The PHB of f rc ia ls a lso insisted that repair
Hongl'uart Counr;' l lapid .l l .t(.t), it ' i l l Jlrr '
of their exist ing equipment was not possib le, because of i ts advanced age and thc
unavai labi l i ty of parts, despi te the fact that they most ly request new equipment which
expands their current invcntory. lvlany features of the .r1'.rrcrn are lar nlore inrportant to
update ( the OPD ntedical records systern, VHC tra in ing and support , rat ional drug use, an
ef fect ive i rnrnunisat ion systent , to narre a few).
On a more positive note, the PHB proposal does not appear to lay great emphasis on the
County Proposal, nor to be overly concerned with the issue of settletnent of nornads. The
VHCs have been in p lace s ince Liberat ion of the County in 1958, and wi l l provide care to
the nomadic populat ions near thent , whatever the set t lement pol ic ies of the Government.
PHB of f ic ia ls made no comntent on the issue of set t lenent and did not appear much
interested in i t .
6.5.5. OPTIONS AND 1I/.'l( ANAI-YSIS
l . P rov i de a ' f r a i n i ng P t ' og l i t r t t r t t e l o l V I IC Doc to r s by FOC S ta l f l ) i I ' e c t l y .
A step-wise approach could bc dcvclopccl :
a) FOC Train ing personnel could be placed in Hongyuan to t ra in VHC doctors. This should
probably be conducted i r r batches of 4 to 6 VHC doctors, probably f rom 2 VHCs at a
t i r t re. Each c iass shoLr lc i be con( lucted i r t Hongyuan hospi ta l (or another centra l locat ion
with adequate teaching space) tbr two weeks, i rnd should enlphasise rat ional drug use,
standard t reatmert t of cornrnon chi lc lhood diseases, antenatal and obstetr ic care, and
inrntunisat ion pract ices. I t mxy even be possib le lbr such c lassr 's to be con( iucted outs jdc
Hongyuan, especia l ly i l 'FOC were conduct ing another s i rn iJar prograrr tnte in another
CoLrnty. An ideal text f i r r such a c lass * 'ould be Werner 's "Where there is no Doctor" .
wh i ch has been t r i l l s i u t e ( l i n t o l \ l unda r i n , and , , vh i ch has an exce l l en t t e r c l t i r t g
conrpanion volume in Engl ish (Werner, 1992).
b) These preclorninant ly d idact ic c lasses would be i rnrnediately tb l lo* 'ed by a pcr iod of onc
month of t le id observat ion ant i t ra in ing, dur ing which FOC staf i r . r "oulc l accort tpany th,
VHC doctors on al l their l le ld and VHC-based act iv i t ics in Hongytran. This step is I '
v i ta l part of th is opt iorr , bcczrrrsc i t is centra l to the issue of being able to assure thal
VHC doctors are able to apply lheir d idact ic knowledge in thc real , constra ined c l in icul
s i tuat ion that they encounter in their day-to-day c l in ical l ives.
c) The above t ra in ing progranrtne could cont inue in s ix week cycles f ronr Apr i l to October.
when l iv ing and t ravel condi t i<-rns in the County are acceptable. Al- ter s ix nronlhs, thc
tra in ing programn)e should be evxluated, to be sure that the t ra ined VHC doctors arr '
able to adequately perforrn a l l c l in ical funct ions for which they have been t ra ined ( th is
could be done using standard qual i ty-of ' -care chcckl is ts: tbr an exarnple, sec Aga Khan
Foundat ion, 1994). This would ic leal ly be perfbrmed by an outs ide exant iner, who need
not be a physic ian or bc pcrrnuner) t ly staf fed in Hongyuan, but who should be medical l l '
t ra ined. I l thc t ra in ing l ) rognrnrnlc has not bcerr able Io bs c:r r r iet l oLr l due to l f ick o l '
access to personnel or local i t ies, the progranl lnc encis here.
d) An advisory board, consist ing of the County Magistrate, Assistant N' lagistrate, and
related PHB ot l lc ia ls, could oversec the progress of such a l ) rogran)r) le. I t would bc
expected that a represcrt tat ive of PHB would acconlpany the' FOC tra iner, but th is
person should be selectecl nrutual ly by FOC and the PHB on the basis of re levl t t (
t ra in ing ancl exper ierrce.
1 a
- 7 3 -
I I o t t g| u u rt Co u r t t S, Rtry i I d s.t ( t' ); nrc n t S u rv(y
e) At the end of the evaluat . ion, i f sat is factory progrcss has beerr madc, presentat ion of a setof i r rd iv idLral basic exarninat ion equipnrent (a stethoscope, an s inrplc otoscope, a portable
blood pressure cuf f , several s imple pieces of surgical equipnrent , i .e. a toothed forceps,a c lanrp, and a pair of i r is sc issors) , and a personal copy of "Where there is no Doctor"could be given to thc graduates. Provis ion of such. equiyrnrent would be in kecping wi ththe spir i t of the progranrme. Adequate recogni t ion of the ro le of county of t lc ia ls infaci l i tat ing th is process could be given at that t ine.
i ) Staf f ing needs: At loast one, preferably two t ra iners, rvho have cxper ience in t ra in ingbasic heal th persortncl in dcveloping countr ics, probably for at lcast three years. Chineselanguage ski l l rvould bc nrandatory. These staf f need not be qual i f led doctors: a l r , [aster 'sin Publ ic Heal th r .vould be an acceptable a l tc lnat ive qual i l rc l t ion, probably even to PHBo f f rc ia l s .
Advlnt lges:
Th i s op t i on wou ld pu t FOC t r a i nc r s d i r ec t l y i n t o a t r l i n i ng re l a t i onsh ip w i t hthe heal t l r s ta l f rvho are rcsponsible tbr thc rncdical care of the bLr lk of thepopLr l i r t ion. I t woLr ld l i l l a t ra in ing gap that hus been ident i f icd b_y the PHBand by the VHC doctors, tnd was noted by thc or ig inal County ProposalObservat ion of the carc adrr in istcrcd by the VHC cloctors vr i l l a lso put FOC
staf f into c l i rect contact wi th krcal nor l rd ic pcclp le, wlr ich wi l l fac i l i tatelearning about their heal th and hygicnc bel iets and pract ices. This, in turn,w i l l he l p t hc FOC t r : r i r l c r s t o t a i l o r t hc t r : r i n i ng p rogn l r ) r r ) r e t o hc l p t he VHCrloctors providc al tpropr i l lc c l r rc.
f ) is ldvl ntngcs:In the current c l inr i r te, i t seeurs very unl ikely thxt PHB of f lc ia ls wi l l agree toth is opt ion. Even i f they do agree, the exterrs ive observat ion of the VHCcloctors whi le they are wi th the t ra iner, lnd of t l rc actLral t ra in ing sessions,rnay l i rn i t the ar)rount of real in lbrnrat ion shared about c l in ical constra ints, orabout t l re d i i f lcul t ies encour) tercd by nornadic tarni l ies regarding their heal th.I t nray beconre di f t lcul t to contr ibute real is t icr l ly to thc i rnprovenrent ofc l i r t icai pract ice or Lhe nonlad's her i th/ l rygicnc prrct ices. Sorne ol t i r is nrayinrprove af t r : r FOC stal - t -h i lve beetr working in (he County fbr sonre t i rne,but evalLrat ior l of th is aspect rvoul t l nced to be includcd.
2. Tr l in I lospi ta l Doctors to Train the VI IC DoclorsI t nray be niore possib le for FOC to place heal th experts in Hongyuan for shorter per iods,to t ra in the County Hospi ta l doctors to execute the above t ra in ing for the VHC doctors.Hospi ta l doctors could a lso reap the benef i t of cxposLrre to a tbreign nredical specia l is t intheir own area. The foreign expert coLr lc l sLrperv ise thc tu(ees u 'h i le they teach the VHC
doctors, preferably in the VHCs, but possib ly a lso at Hongyuan hospi ta l . FOC wouldevaluate the progranrrr te a l ' ter SIX nronl .hs i rs above, but thc rnoni tor ing indicator would bethe number and qual i ty of t ra in ing's conducted tbr VHC doctors by the Hospi ta l doctors.The best group of t ra inees, in i t ia l ly , would bc the W&C cl in ic doctors, who are al readyrnot ivated to conducl t ra in inc lor the VHC doctors.
Advan t t ges :Hospi ta l /Hongyuan town doctors wi l l bc put int ( ) c l ( )scr cont l ic t wi th the
Hotrgyuun County Rapid ass?ssment Survey
vi l lage heal th staf f who are t reat ing the rnajor i ty of d isease in the populat ion.
The VHC doctors wi l l be the di rect benef ic iar ies, as wi l l their nomadicpat ients. Helping hospi ta l doctors take the f i rs t s tep toward t ra in ing theirVHC counterparts nray be a good initial move toward re-orienting the health
system to support Primary Health Care. The political will is already present
in the W&C, and th is would be a posi t ive response to one part of the CountyProposal (provid ing t ra in ing for the VHCs).
Disadvl ntages:Provid ing t ra in ing th is h igh up in the hierarchy of the heal th systenrc lecreases thc l ikel ihood that real benef i t wi l l reach the intended benet lc iar iesof the progranrure: the VHC doctors. The Hospi ta l doctors showed nomot ivat ion to provide t ra in ing to VHC doctors, only to obtain funds so thatthey themselves could obtain t ra in ing outs idc the County; therefore, they areunl ikely to be enthusiast ic part ic ipants of such a progranrme, unless they alsohope to receive s igni f icant addi t ional incent ives. Hospi ta l specia l is ts are alsorunl ikely to be a rcccpt ive audience rvhen FOC tra in ing staf f at ternpt torevierv standrrc l nredical care wi th theni (especia l ly i f such pract ice di l ' fcrsfronr rv l rat thcy are doing!) .
I t is unl ikely that e i ther Opt ion I or Opt ion 2 would be acceptable to thePHB i f their pr i rnary request for advanced technical equiprnent were notaddresset l . I f the PHB does not part ic ipate in negot iat ions wi th FOC, but isforced to accept a t ra in ing prograrnme due to agreentents made wi th FOC ontheir behal f by the County Magistrate, the PHB/ l lospi ta l s taf f rnay block thein ip lernentat ion of th is prograrnnre, at least funct ional ly .
3. Rese:rrch into the Sani tat ion Problenrs of the AreaThis study has only touched on the s igni f icant problenrs in hygiene behaviour and saniut ionin Hongyuan County. Much infornrat ion remains to be col lected; speci f ical ly , i t would beinrportant to learn what eff'ect contamination of water sources near Hongyuan Town havcon water qual i ty and the incidence of d iarrhoeal d isease in herdsnren near the town. l twould also be good to conre to the bot tonr of the quest ion of the existence of naturalUraniunr leaking into the water suppl ies. In i t ia l ly , these issues could be approached on anacadenr ic basis, wi th reconrmendat ions fbr inf iastructural sani tary a l terat ions beingforwarded to the County afterwards. lt would be inrportant to llnd a local counterpartresearcher who would be interested in th is opt ion, to help open the doors which nr ightotherwise renrain c losed dur ing such an invest igat ion.
Advantages:Sanitat ion research would al low FOC to fol low-up on the recotntnendationsof the University of Lund's Hongyuan Wetland Research report (Bjork,1993), as well as to nrake use ofcurrent personnel now working in China.The f indings of such fesearch would be of imnrediate practical use, i f theCounty is wi l l ing to ntake the changes which are indicated.
Disad vr rrtage.s:Work in this area has not bcen requested. Already we have encoun(ered
_ 7 5 _
Hottgyuan County Rupid assessment SurveJ
significant resistance frorn the Epiderniology Centre; if there is no requestnor openness for work along this l ine, i t nray not be fruit ful to pursue i t , atleast as an integral part of the recourmendations of this investigation. Even ifsuch a research project is allowed, the practical implications which willfbl low ( i .e., that structural alterat ions.need to be made in Hongyuan Town'ssewerage systern) rnay involuntarily seem to comrnit FOC to willingness tocontribute to this financially.
4. Set-up of the Medical Records/Systern AlterationsAn expert in rnedical statistics/records/public health could come to Hongyuan for a shortterm project to help the Hospital and other departments respond to the diffrculties pointed
out in this report. In part icular, the Hospital outpatient records could be re-organised. Thiscould probably be accornpl ished in a I to 2 week tr ip. At the satne t inre, i f there wasopenness to this, i t rnay be possible to conduct a training on iurnrunisation programmepractice, using WHO standard texts, such as " l t l ]nturt isi i t ion in Practice" (WHO, 1991).
Advantages:The Hospi ta l Director has exprcsscd recogni t ion that the records systenr
needs revanrping. This sort of t ra in ing woulc l not contr t r i t FOC to a long
term involvement in Hongyuan in a nrecl ical system that is resist ing change,
but nlight give an opportunity to see how receptive to change the systeln
could be. A fur ther spot-check to see i f the pr incip les which have been
taught are being practised could probably be arranged (and should certainly
be agreed to frorn the outset). If a functioning record systetn could
demonstrate which sort of diseases are being diagnosed at Hongyuar.
hospi ta l , an object ive basis tbr equipment needs could be establ ished. This
could be an initial step into the Hongyuan health system at a level that does
not impinge on local government sensibilities toward tlie Tibetan population.
Disadvnntages:I t is a lways di f f lcul t to take advice on the way our own systeln funct ions
f iorr t an outs ider, not n lat ter how "expcrt" ; the issue of iace' n lay be at
stake here. Al though the def ic iencies in the OPD records system were
admitted, there was no request for help, and FOC access to all medical
records nray be a sensitive area, especially if there are activities which the
Hospi ta l does not wish to publ ic ise (e.9. , ' f ibetan abort ion nunlbers) . A
short fbray into the heal th systenr n lay test the wi l l ingness of PHB/Hospi ta l
of t lc ia ls to change, but th is invest igat ion has gauged that a l ready: some more
fundanental change is needed belbre t l r is sort of interact ion is l ikely to
receive a reudv hear ins.
5. Send in a Bionredicr l Enginccr to Assess the Stalus ol the Hospi t i r l Equi l lnte l t t
Which Needs Repair ' , as Mert t ioned i t t th is l teport .
Those i tems which can be repaired on the spot , could be. Parts which need replacing could
be obtained, i f avai lable, and a recotrrnendat ion could be given as to whether the ent i re
uni t in quest ion needs replacerrent . This would problb ly require at least two t r ips to
Hongyuan: the flrst to diagnose the need for parts, and the second after whatever parts are
available have been ordered and obtained.
Hongyuan County Rapid assassment Survcy
Advnntages:This approach would optirnise the efficiency of any attempt to help theHospital with i ts equiprnent problems. Since the basic equipment inventoryat the Hospital is appropriate for the population it serves, a biomedicalengineer coLrld help prevent great expense for unnecessary hardwarereplacement. This would seem a mandatory first step to any donations ofequipment, whatsoever.
Disadvantages:The PHB/ Hospital offlcials have already patently rejected this option, and ifit were agreed to in negotiations with the Magistrate, this could createresentment. Also, i f the biomedical engineer recommends replacement ofany equipment, since FOC sent him in, i t may seem mandatory to go aheadand replace the equiprnent. It shotrld be noted that most of the most recentCounty Proposal equiprnent cost est imates (Appendix E) are conservative:replacernent of an X-ray tube and placenent of a photo rnult ipl ier unit on af luoroscope is l ikely to cost about $50,000 U.S. Placement of a biornedicalengineer could inaclvertently cornnrit FOC to rnajor expenses.
6. 5.6 Recomrn enduIi ort
Option l : Training VIIC Doctors Directly
If the Hongyuan off icials are wil l ing to al low FOC trainers access to VHC doctors andnomadic patients in the f ield, even though this may be dif f icult at f i rst, this option wouldbe most consistent with the Developrnent Vision developed by the whole teanr. The greatdifficulty would lie in the tendency of the PHB offlcials to continue to try to negotiate forHospital equiprnent, and to block the implementation of the training programrne unless thiswere forthcorning. This would seern especial ly l ikely i f the training programme wereagreed to by the Magistrate on behalf of the County. I f the PHB off lcials take part in thenegotiations, it would seern likely that there will be sorne effort to get FOC to accept aminimal presence in the training schene (such as Option 2), and even then, only to al lowsuch involvement after equipnrent has been donated (increase the "carrot" and decrease the"st ick").
Supply of nredical equipnrent to hospitals and PHBs such as that in Hongyuan as the majoror ini t ial elenrent ofan NGO's involvernent in health developnrent has, in our experience inNepal, led to increased expectat ions for more donations'as the "price" ofany substantialdeveloprnent work, a passive att i tude on the part of recipients, and the clevelopment ot 'dependency on the donor agency. Considering the overwhelrning ernphasis that the PHB isplacing on equipment supply at this t inre, and their intransigent att i tude toward this andtoward change in the other elements of their system, i t would be quite just i f iable to explainthe f indings of the study to the PHB off icials, and to state that FOC cannot, at this t ime.work with them on this basis.
I t is true that, i f FOC is not involved, the opportunity for an ongoing presence, to serve assalt and l ight, to inf luence the systent for posit ive change, wil l be lost, at least for thc
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Hottgl,uutt Couttty Rupid usscssn?nt Survq
nronent. The Pl l l l n)ay go on wi th their current hospi ta l - town centred pol ic ies, and may be
successful in f inding another NGO who rv l / / f l l l l l thei r desires fbr technical equipmentwi thout organisxt ional change. I f FOC has other work in the County, the presence of such
an NGO nray harnper sLrch work; however, it is tlrc opinion of this writcr tha.t no major
tilntling botly ttoultl .fittul the PIlB request as it now stunds.
I t is my reconrnrendat ion that FOC does not provide Hongyuan County wi th any donat ions
of medical eqLr iprnent at th is t in le at a l l . I f the PHB or Hongyuan of f ic ia ls are not
cnthusiast ic about the t ra in ing progranr l re by i tsel f , wi thout cquipnrent donat ions, then i t
rnay be best fbr FOC to wi thdraw fronr Publ ic Heal th work at th is t in le. FOC should then
explain the f indings of th is report to the PHB, so that FOC's commitnrents and reasons for
wi thdrawing are c lear. This would al low FOC to point out the inconsistencies of the PHBs
requests and approach with FOC developnrental policies, and possibly allow the
organisat ion to help the PHB to begin to re-or ient i tsel f wi th current real i t ies. I bel ieve that
th is rnay c lear the way fbr fur ther f ru i t fu l ncgot iat ions in the future. The PHII of f rc ia ls
should be invited to reconsider their proposal and to approach FOC at a later date, should
they wish to do so. I t nrust be emphasised, no nrat ter what approach FOC chooscs to Lrke,
that donat ions of ntedical eqLr ipr i lent wi thout appropr iate agreenrents wi th Horrgyuan that
crnphasise re:r l heal th systenr developnrent wi l l lcad to a passive at t i tLr t lc on the part of PHB
ol'flcials: th is r s rrrrt re t:t tr t t tr t t tttt c d.
I t wi l l bc inrportant fbr FOC to be able to det lne to i tsel f , ancl to the Chincse govcrnmcnt,just what i ts c levelopr lcntal pol icy is going to be. l -here should be s igni f icant over lap
between FOC's goals ant l in terests and those of the goverrrnrcnt bodi t :s wi th which FOC
works. There rnay be sonre di f f 'erences of opin ion at the edgcs of these areas of over lap:
th is is the basis fbr negot iat ion. When there is r ro over lap in i r t terests at a l l , there is no
basis tbr negot iat ion, e i ther. A development agency that t r ies to fbnn an agreenrent wi thout
mutual interests because of a desire to work in a geographical area, or because i t has
certa in resources (say, donated nredical equrpnrent) , wi l l f lnd i tsel f enrbroi led in cont inuous
conf iontat ion wi th i ts negot iat ion partner. I t is hoped t l la t F-OC wi l l choose wisely.
Hongyuan Counry Rapid assessm(nt Survcy
6.6 EDUCATION
6.6. I GENERAL DATAI. STUDENTS2. TEACHERS3. CURRICULUM AND TEACHING4. FACILITIES
6.6.2 EDUCATION, NOMADIC LIFE STYLE AND SETTLEMENT1. WHAT CAN EDUCATION OFFER TO A NOMADIC FAMILY2. LANGUAGE AND CT]LTURE3. IMPACT OF GEOGRAPHIC LOCATION4. ADULT EDUCATION (LITERACY)
6.6.3 OPTIONS AND RISK ANALYSIS6.6.4 RECOMMENDATIONS
6.6.1 GENERAL DATAThe education group of the survey tcarl (Karen Dohne and Winnie Thurna) visi ted ninr:schools in Hongyuan County: seven Tibetan prinrary schools, one Chinese prirrary schooland the Tibetan Boarding Middle School (TBMS). Of these schools, eight headmasterswere interviewed, several tcachcrs, solne students, vi l lage headmen and Comntunist Partysecretaries. For these detailed observations please refer to the diary in Appendix. At theend of this chapter is an overview chart of the visi ted schools.
Schools in Hongyuan County were mostly establ ished after 1959. From the beginning olestablishing a formal school system, the governnrent emphasised the education of Tibetanchi ldren. "Schools on horseback" were started, fol lowed by the Education Departmerrlrunning schools in tents and later establ ishing boarding schools. Boarding schools are theonly feasible way to provide effect ive education to the chi ldren of nornadic farni l icsaccording to the Hongyuan County Education Bureau.
In total there are twenty-f ive schools in the County: twenty-two prirnary schools and thrr 'cmiddle (high) schools. Out of the twenty-two prirnary schools, eighteen are Tibctan an(lfour Chinese, whereas out of the three rniddle schools, one is Tibetan and two are Chinese.
All education activi t ies (besides irrr anirnal health worker training school uncler the aninralhusbandry office) are overseen by the Hongyuan Education Bureau headed by a director.The Education Bureau relates to the Vice Magistrate fbr Education, CultLrre and Hcalth olthe County adrninistrat ion. The Vice Magistrate of the Education, Culture and Health is.responsible for a budget of 4 rr i l l ion RMB annually. Of this 3.6 nri l l ion is spent in thceducation sector (80%). According to national pol icies there should be rr ine years of freeeducation for al l chi ldren by the year 2000. However, in Hongyuan, due to the localcondit ions, and the late beginning of school education, the Education l3ureau has set rtsgoal to provide six years of free education to all children by the year 2000.
The primary school starts with a prelinrinary class and goes to grade 6. Crade 7 to grade (l
are considered rniddle school, grade 9 to 12 as high school. Contplet ing grade 9
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I Iortgytttn Coun\, JlupiI urscss|il(n| Surve),
st lccessi t l l ly c l t i lb les to enter technical schools such as tcachcr t ra in ing schools, ntedicalt ra in ing schools ar l< l anirnel husbendry schools. Thcsc scl lools are located in N,Ia 'erkang, theAba Prct 'ccrure cert t re, ar t t l othcr p laccs. Af ter conrplct ion ol 'gradc 12, students can go onto col leges ancl univers i t ics. The Chinese univers i t ies regulate enrolrncnt by a toughentrance ex3.n1ir lat ton. h. l inor i ty students get a bolrus. For ru inor i ty pe<-rplc thcre are theInst i tutes for Nat ional i t ies (e.g. , Southwesr and Norrhwest and Bei j ing,s Central ) .
ln Hongyuan schools are avai lable up to grade l l . Thc pr i r lary schools are wel l spreadover the area of the county. In spi te of the di l ' f icu l t ies presented by the geography,renloteness and c l intate \ \ 'e got the impression that the scl rools are wel l establ ished andt i rnct ioning.
I . S t u d e r r t sou t o f4 ,209 ch i l d ren aged 7 -12 yea rs i n 1995 , 2919 a re a r r cnd ing schoo l s , 125 i n g rade 6 .' f he
en ro l n ren t r a te i s 69% ( i n 1983 , 25o /o ) . ' l be l ow nu rnbe r o f ch i l d ren i n g rade 6 maycl ther point to a h igh dropout r : t lc or a rccent incrcase oi enrolruent in cracie I or acon rb ina t i on o f bo th .
' lhe nut t lbers of boys arrd g i r ls is the s lnrc ( i r r tbrnrat ion f ionr l rc tc lnrastcrs nratch our
observat ion). The age in one grade lnay vary e.g. in one gracle I c lass we saw chi ldren wholooked the age of 8 and 10. None of the schools reportet i a h igh dropoLrt rate, bur there isev i dence t o r i t , e , g . 1 ' e * , s t l i l d sgn i n t hc c l ass . Thc TBNIS r cpo r t ec l c l r opou t du r i nCprepxrat lon c l lsses. Two hcadtt tastcrs rcported i r regular at tendxncc dur ing the Sumnrer,when there is a lot of u,ork on thc l )asturr :s. TI le studenls u,c s;r rv in the c lasscs, part ic ipatedin the Class work. They wcre very d isc ip l incd.
2. TelchersThere are J l6 reaclrers in the county, nrost of these (310) were t ra ined in a tancherst r a i n i ng schoo l , e . g . i n Ma ' r ckng . Acco rc l i ng t o t he Educa t i on Bu reau t he re a re on l y t h r ceort the job t ra ined teacl tcrs. We nret sever l l (caclrcrs rv l ro l racl only conr l> letcd rn id i l le schoolas t l l e i r qua l i f i ca t i on . A f t s r seven ye r i r s t hcy go t r cco l l n i t i on as ' govcn l l cn t t eachc rs ' .' Ihere
are senior lectLtrers as wel l , u,ho havc stLrdrcd lor 2- .1 years at a Lrnivcrs i ty . Fronrobservat ion, about one th i rc l of the teachcrs are l tnralc, 16% arc o l" f iberan or igrn. loar lf ronr Educat ion Bureau).
The teacher 's orrgoing t la in ing is t l re resporsib i l i ty of the [ ]ducat i t r r r Bureau, which of ferscourses dur ing hol idays. We did not r t teet teachers who hld takcn part in thcse courses.,Askcd aboLrr orrgoing t ra in ing, a l l bur n 'o said thcy had ncver hat i any, nor u,ould the-1,have t i rne or n loney to take part . only two tcxchcrs got a short t ra in ing on how to use thesclence equlpntent which was recent ly g iven to the schools.
- 1 . C r r r r i c t r l r r n t an r l Te le l t i r r gAl l schools we v is i ted used the govcrnnrcnt curr iculurn lncl tcxt books. The fo l lowingsubjects are taught in t l re pr inrary schools: Tibetan languirge, chinese ranguage.rnathernat ics, sc ience, nruslc, ar ts, physical educal ion, sonret i rnes history. Text books wereavai lable in a l l schools. Two schools conrp)aincd oi not having enough books for a l lsubj ects.
I l ) c I l r \ 15 l \ l c . l c l l l l t g t l l l l t e r r ) \ l i ( r Je ! { : , . ( , r i , u i - . ' . , . -
husbanclry ancl hydropower technical coursc. For var ious r t 'asot ts t l ) is was too di l ' l lcu l t an,
unspccessfrr l . In t l re c lasses rve cclLr lc l observc scverx l teachi l lg n lctht)ds being uset l
rc l )cat lng al lcr thc teachcr arrd ruelnor is ing, copying 1l -orr t t l te b l : rckboart i , qt lcst ion-ans\ \ 'cr
i n t e rac t i pn , 1se o f b l ackboa rd t o exp la i n and i l l u s t r a t c , L r se o f books and d i c t i ona r i es ,
erpcr i r lcnts u, i t l r sc ience cqrr ipr t rent . ln t* 'o schorr ls wc s3w classes rvork ing ui thout i r
t c : t c i r c r . \
4. Faci l i t ics
Besides one (Longran which is p lanned to rebui ld) , a l l sc l rools h lc l qui te good c lassroonl
bui ld ings wi th h igh cei l ings, b ig windows, space lbr about twenty- f ive students. Thc
r l i f tererrcc was not so ntuch the bui ld ing standard bLr( morc the c leanl incss and cars for thc
roonts and Vards. Some schools had unwept f loors, rLrbbish pi led up in corners, f i rewoot l
drrr rper l in corners. Other schools u 'ere c lcan. and hrd r t rbbish bins ctc
Al l schools had brand-new science equiprr tent . One school had an overhead projector ,
arro lhr ' r hat l lbur ovsr l rer t l projectors, onc school l :ac l a ' l 'V. Al l schools had a basketbel l
coUr t .
' l 'hc boart i ing laci l i t ies of a l l sc l rools were rathcr s inrple.
' fhe bLr i lc l ings lbr boarding werc
old and snla l ler than the c lassroorn bui ld ings. Usual ly 8-12 chi lc l ren share a roont . There
were k i tchens, d in ing roont , s tore rool t l .
6,6.2 EDUCATION, NOMADIC LIFE STYLE AND SET'rLEMENT
"Hrrc lspcoplc are pract ical , the schools don' t teach their chi ldrerr pract ical sk i l ls ; therefore
thcv don' t sce any benef i t in get t ing ther l educatc ' r i . Nornacl ic petrp le spcrtd their I i fe on the
grasslancis, therefore they don' t unclerstand thc nccd l i r r cdLrc i r l jon." (Headrr tastcr of tho' l ' i b c l an
I l oa r c l i ng M idd le Sc l t oo l ) .
No r l a r i i c p t r s t r r r a l i s t s l ea rn t l r e i r t r a t l o w l r i l e g ro * ' i r t g L rp [ r y copv ing : i dL r l t s and t h ro i r gh
l c : r r r r i r r g by do ing . Thc g i r l s l i r l l o r v r r r r t l l t c l p t hc r r I t t o l l i e r r v i t l t t cnd ing t hD l t t l i n l a l s .
p rodL rc i ng [ r L r t t c r and checsc . T ] r e boys l i r l l ow t l r c r r l i i t h c r l r c r t l i r t g and l ook ing a f i e r t hc
an ina l s . ' l - l t c ch i l d ren l ea rn a t an ca r l y age ho rv t o han t l l e a t t i t t i a l s .
A school ct rn never replacc th is typc of cducir t ion. To bc i l nonla( l ic prstoral is t in thc hars l t
cnv i r o l l t c r t t o f t he T ibe tan p l a teaL r r equ i r es no t on l y sk i l l s , bu t an i ndepcndcn t pe rsona l i t y ,
a q,c l l c lcveloped int l i t ion to c l iagnose a s i t t rat ion ant i rc l tc l to i t quick lY (sec Ekval l ) . A
school wi th even the best anir r ta l husbanclry c lass car lnot achieve t l ) is .
On the other hand, the socia l environtnent of norrrads is c l ranging fast : intmlgrat ion i r l t ( '
thei r area by people wi th d i f fer ing interests, pol i t ics and repeated at tenlpts to contro l
notr l i r< l isDr, in( lUstr ies needing raw products and u,urkctr , I l l r r rkut econol l t -y at td ccrnsunl t r
goods ava i l ab l c i n t owns .
I . \\' I r : r { (':t r r llclu cn!!t!!-gJf(]l!!sd!q!'1 tl ic F:r rr t i l1 .'' l 'hc
abi l i ty to cope wi th a charrging environurent , t r ) ncgot iatc wj th a g()vernlncnt
ernployee, to do business in town, to deal wi th the nr i lk pow(lcr an( l nteat faclor ies, I ( )
un( lcrstand l )o l i t ics these could al l bc enhanced by good qLr l l i ty pr i r r rarv cducal iot t . Rcadi t tg
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Hottg;'Ltutt County Rupid asj'assment Survey
and wr i t ing ski l ls , calculat ions and understanding of the basics of sc ience (natural and
socia l ) and Chinese langLrage is essent ia l to cope wi th i r ) the Chinese society.
Whether schools (pr imary as wel l as secondary) havc anything to of fer to nontadic chi ldren
in ternrs of pract ical vocxt ional educat ion is d i f f lcul t to say. The Tibctan plateau ls an
extretne environnrent and the nonradic l i f 'esty le is so di f t -erent , that i r rd igenous knowledge is
probably super ior to school knowledge. Inst i tut ions wi l l not recognise the value of th is
l i festy le and the wisdonr of i t . Of ien we heard " the tent people are backward, they don' t
know how to behave, are undiscip l ined, etc."
Whether i t would be useful to int roduce lessons orr pract ical topics such as anirnal heal th,
hygiene, nutr i t ion, etc. is theretbre di f l lcul t to say ( intagine the contrast of a snndard
lesson on a balanced diet to the noDrad's meat d iet) . The content certa in ly would need
ad jus tmen t t o t he pa r t i cu l a r l i v i ng cond i t i ons .
Unt i l l99l fanr i l ies of nr inor i ty groups were al lowecl to have up to three chi ldren. Since
l99l th is is recluced to two chi ldren only. According to oLlr observat ions, larni l ies do have
3,4,5 chi lc l rcn bLrt send only three to school . ' f racl i t ional ly sort re chi lc l rcn became (are
beconr ing) r lonks (nuns'?) . Educat ior t of fers a new ul tcrni t t ive ancl opens thc way to paid
enrploynrent . More and nrore posi t ions get f i l lcd by Tibct : r r rs, both i r r acl r t r in ist r i r t ion and in
factories. 'fo
beconre educated and get a job nray lrc nrr.rre attractive to children froln
larnr ing tarni l ics. What the interests of the parcr t ts in educat ion are, we don' t know; i t is
beyond the scope of t l r is survey. The te i rnr had only l i t t lc opportuni ty to ta lk to parents
wi thout too nrany people l rstening. One parent , a v i l lage heaclrnan, has four chi ldren. three
at tend school . The youngest was kept at honle to look af ter t l re herds. The father expects
that edLrcat ion should i rnprovc his c l r i lc l ren's condi t ions and teach thenr how to ra ise cat t le
ski l l 'u l ly . He was unable to expla in what that nreans.
A nrother (nonradic herc lswonran) expressed that shc woukl l ike to send her daughtcr to
school so that she gets an ol ' t ice job, because l i te in thc tcnt is so di l ' t lcLr l t . Anothcr Inother
would l ike to see her daughter educated because "shc nect ls to have i r person who knows
what you can order in a restaurant . "
Since the beginning o1' the PRC there have been nrore or less strong at tenrpts to contro l the
people of the Tibetan platcau and in part icular the nornrds - not only fbr pol i t ical reasons
but fbr econour ic reasons as wel l : to make their products (nr i lk , nteat , h ides, wool) as raw
ntater ia l into industr ies. The nrajor st rategy to achievc t l r is has been to set t le the nontadic
pastu ra l i s ts.
Governnrent of f lc ia ls c lcar ly l ink set t lenrent and cclucat ion. ' fhe thrcc point progranrrne tbr
nontadic socicty developnrcnt rc lates eclucat ion to the set t ler) lent of the nontads and an
ovcral l improvenrent in their l iv ing condi t ions. l 'echnical c lasses s l tould be provided,
c lasses tbr aclu l ts and on TV.
The Hongyuan eclucat ion proposal of 1992 pl r ts the sct t lcr) )ent of noruacls as a pre-condi t ion
tbr i rnproved educat ion. ln the past there have bcen at tcntpts to a<l just schools to the
l i festy le of the people (schools on horscback, schools in the tcnts ancl at present very snral l
boarding schools) . ln future people wi l l have to adjLrst to the inst i tut ions: set t le or send
Ilortgyuan Counry Rapid assessment Survey
their children far away to a central Hongyuan board primary school. According to theEducation Bureau such a central school for 1,000 children would solve all problems inprimary education (see option 1).
The central middle school already has the potential to alienate children from the way of lifeof their parents; this alienation process will only increase with the introduction of a centralprimary school. The children are cut off from the "learning by doing" process in theirfamilies. As boarding students, Iiving in a big peer group is completely different fromgrowing up in a tent with i ts rather lonely environment. (according to Ekval l , nomadicchildren don't have much interaction with each other). They learn a different lifestyle:sleep in beds and store houses, eat different food, wear Chinese clothes, and are told thatthe nomadic way of l i fe is backward, etc.
To summarise, school education can inrprove the standard of nomadic pastoralist, but is canas well contr ibute to the underrnining and destruction of the nornadic way of l i fe.
2. Langrrnse nnd Crrl trrreAt the primary schools, besicles the Hongyuan ones, we visi ted other classes in eitherChinese or Tibetan language as teaching rrediurns. We could not f ind out who decideswhich language to use: the parents, the teachers, the chi ldren, others?
Many classroonrs we saw were decorated with pictures of Tibetan temples and Lamas. 46%of the teachers are Tibetan. In the Qiang cornmunit ies of the Southern part of the County isa prirnary school which uses Qiang language as the teaching mediunr. There is certainly agreat openness by the education inst i tut ions to al low (even encourage) the expression of theculture and the use of the nrothcr tongue. The Tibetan Boarding Middle School owns al ibrary with 12,000 Tibetan books. I f chi ldren can study during their f i rst years in theirown language i t wi l l contr ibute greatly to their future learning abi l i ty and forrnation of theiridentity (literature references can be provided at request).
Tradit ional ly education was not avai lable to al l except for those who becanre monks. Thus,education, inf luence and power were l imited. Since 1959 primary schools have beenestablished all over the County, off'ering secular education to all.
Since 1983 monasteries were reconstructed. Our team saw at least six monks in theircharacteristic dress on the street. The rnonastery in Amakhake has 300 monks trainees. (P.Mil lais) although according to the law boys only above the age of l8 can join a monastery.We learned that boys after the corlpletion of primary school join ntonasteries.
The Tibetan Boarding Middle School has three senior teachers and one vice headmasterwho wear rnonks' dress. According to the headmaster, the teachers were ntonks before theybecame teachers and decided to continue a cel ibate l i festyle, but they were no longermonks. One of these teachers we observed teaching the Tibetan language. He is respectedas a very well-educated person.
Although, learning in one's own rnother tongue improves the study effect iveness, i t maybecome a stunrbl ing block in the later years of secondary and tert iary education, since thenational language is Chinese.
- 8 2 8 3 -
Hongyuan Counry Rupitl assassmut Survey
According to our observat ions the students of the Tibetan pr i tnary schools tend to cont inue
their educat ion in the' f ibetan Middle School , and therr e i ther in technical schools or one of
the Inst i tutes for Nat ional i t ies. We could not explore the career opportuni t ies to a studentf rom these inst i tut ions, but presumably they are . l inr i ted to Tibetan speaking areas.Al though students of nr inor i ty background get a bonus in the entrance exarns to themainstream (Chinese) univers i t ies, one can assurne that only a few are passing.
However, the value of school educat ion cannot only l re measured by the success of the fewin ter t iary educat ion who beconre rnedical doctors and engineers, but what i t contr ibutes tothe inrprovement of l i fe lbr the many.
Looking at the schools f rorr the Hongyuan perspect ive i t seems that the Tibetan schoolsnrake a contr ibut ion to keep al ive ancl to develol> Tibetan language and cLr l turc ' . However,in the nat ion-rv ide cortext t l rese schools secrn (o be second rr te thus enlrancins t l re"backwater status" o l ' the grasslands.
3 . I n rpac t o f Geog raph i c I - ocu t i o r rCornpar ing schools according to thci r locat ion, there are notable d i f ferences.
The two schools we v is i ted in remote areas, Sizhai and Sedi both have di f f lcul t ies to at t ractqual i f ied teachers because of the long distance to the town and the lack of faci l i t ies such aselectr ic i ty and housing. The qual i ty of a school however depends very nruch on the)eadership of the headrraster and the teachers. Hongyr:arr Pr inrary School in contrast haswel l qual i f ied teachers, inc luding scveral senior teachers. Tl re school is the only one whichreports ongoing teachers t ra in ing act iv i t ies. Even our l in l ted observat ion, t l le d i f f 'crences rr rl ivel iness, var iat ion of teaching between the Horrgyuan Town and the rural schools were
str ik ing.
The school in the rnost deplorable state surpr is ingly was the Longran school , just outs ideHongyuan Town. The Educat ion Bureau plans to rebui ld the school . Another reason couldbe that inf luent ia l parents send their chi ldren to the Hongyuan Town school , rather than tothe local school , which in turn reduces at tent ion to the school . The Tibetan BoardingMiddle Schooi has stat is t ics on how rnany stLrdents conre f rorn which pr i rnary school . Thehighest number - 63 - corrres f ronr a srnal l township in the South. The headrnaster of theTBMS explained, " ln agr icul tLrra l areas the econonr ic condi t ions are poorer, land cannot bediv ided unendingly arnongst the chi ldren. Tl terefore parents pay higher at tent ion to
educat ion." Simi lar ly Sizhai school , a l though a renrotc, st ruggl ing school has sent 48students. Sizhai , a l thoLrgh a pastoral area, is poorer and c lose to the agr icul tural areas.
4 . Ac l t r l t Ed t r c : r t i o r r ( l i t c r ucJ , )
A p r i r na ry schoo l sys t c r r has on l y ex i s t cc l s i nce 1959 . Cu r ren t l y , t hc en ro l n r cn t i r r p r i n ra r yschool has reached 69%, thereforc, there r) r . rst bc a h igh r i r te of non- l i tcratc people. In1988 t he Educa t i on Bu reau l aunched a ca l r r pa ign t o "w ip€ ou t i l l i t e racy " . S i nce t hen aschool teacher in each townsl i ip is responsible tbr c lngoing adul t educat ion work. We nretthree teachers in d i f fcrent schools who have th is task. According to the Educat ion Bureau
al l people under the age of 48 are l i terate. We were to ld that in Sunrurcr thcre are no
Hongyuan County Rapid assessment Surwy
classes, only in the Winter during the day, when the nomads have more t ime, and visi t theencampments.
How long tlre course lasts, how often the classes meet, and how the teacher was doing,were questions that were not answered. There are two Tibetan language text books, ofwhich we were shown one. It started with simple letters and words but quickly progressedto pages of small printed text. The book had some illustrations of poor quality.
Adult education or non-formal education has two aspects: functional literacy skills andconscientisation. Conscientisation means the increasing awareness of one's ownenvironment, a better understanding of the world, the learning effect beyond the technicalskills reading and writing. Many community developrnent programmes use theconscientisation aspect of adult education as a means of entry or as an awarenes5 raisingtool. In this they are assunring that those who are non-l i terate are disadvantaged, not onlyin that one area, but also in the wider context.
According to our (very l imited) inforrnation we can guess that the focus of Hongyuan'sadult education classes is on the functional ski l ls. Neither the books nor what we toldindicates that conscientisation is part of i t .
If school teachers are made responsible for the literacy work, it is likely that they do theteaching sinri lar to school teaching and treat adults sirni lar ly to chi ldren - which is contraryto conscientisation. We did not get inforrnation on the administrat ion's view of l i teracy. Ingeneral, teachers were reluctat)t or not interested to talk about adult education.
6.6.J. OPTIONS AND RISK ANALYSISFollowing are the options I can see for work in the field of Education. Presentation of anoption doesn't mean that it is recomnrended. Each option is followed by a discussion of theadvanlages and disadvantages.
Option l: Education Bureau Ploposal "HOPE SCHOOL":Hongyuan County needs to increase i ts prirnary schooling capacity by 1,200 places toachieve the goal of six years education. As most chi ldren are frorn nomadic famil ies,boarding facilities are needed as well. Therefore the Hongyuan Education Bureau proposesto build a central boarding prinrary school in Hongyuan Town. A plan for this is in placebut was not given to us due to our early departure
The cost estimated is 8 million RMB. The County has already received some money from apartnership fund. FOC coulcl support this plan by providing funds for construction,a ^ , ' i ^ m - n t a r ^
Advantageso Solves the problem of lacking education faci l i t ies in one go.o A big school can provide more and better facilitieso Easy to attract teachers and to exchange experience with other schools
- l J 4 - - 8 5 -
Hongl'uan County Rapid usscsstn(nt SurveJ
Disadvant:rgeso i t is expensive (st i l l seenrs very high and is lrore expensive than expanding
:r1 ready exist ing schools).o f{unroves young children far arvay frortt their parents.o No l ink with the local courrnunity and less contr ibution opportunity for the
pnrents.o Not a "step-by-step" approach for FOC to gain experience
Option 2 Support the Tibetan Boarding llliddle School (TI|I\{S).'The TBMS is the only one in the Hongyuan County which offers secondary education inthe Tibetan rnediLrnr. It has realised its capacity linrit and asks for support. Needed aremore classrooms, i i language lab, tape recorders. They did not ask for teacher training fortheir side, but i t rnay be possible to explore the seconclurent of an English tcachcr.
Advantagcso iiusy to relate to.o l l secondrnent. opportuni ty to be in contact wi th young Tibetans.
Disadvautageso l i 'cus on seconclary educat ion instcad ol -pr inaryo Support to the centre rather than to the periphery.
Opt ion 3 Expansion : rnd l rnprovenrent of lhe Faci l i t ies of Exist i r tg Sclrools
To achieve i ts goal , f ree s ix years educat ion lbr a1l chi ldren, the County needs to expand i ts
taci l i t ies by a th i rd: nrore c lassroonrs, furni ture, teaching cquiprnent , boarding faci l i t ies,
teachers ' housing, water supply, e lectr ic i ty .
Sorne of the exist ing laci l i t ies could use upgrading arrd rcnovat ion. Addi t ional teaching
aids, e.g. textbooks, books, tape recorder and tapes are also needed.
FOC could imple rnent th is in two ways: by i tsel f or by devolv ing funds to the Educat ion
Bureau. The lat t r - r would bui ld a l ready exist ing capaci ty in the bureau, whose leader seems
to be a s incere nran who knows his f le ld.
Advantagcso Responds to an urgent necd.
o Can be inrplemented in steps and al lows t rust and re lat ionship bui ld ing.
o ( lan be combined wi t l i ot l ter opt ions.
o Keeps the local schools c lose to t l re conrniuni ty (parents) .
Disadvantages
o Introduct ion of FOC as resource provic ler
o Nu e r r t p l t as i s o t t t r a i r t i r t g .
o l . i l l l e pe rson t o pc r son i r r t c rac l i ou .
Option 4 Teachcr Training
Besides the inrprovenrent of the physical lac i l i t ies, n lost schools expressed a need for ntore
and better qualified teachers. The teachers are generirlly very young and nrost corne from
I Iong t L ,a r t Count \ ' l i ' t : ' t , | asscssntu t t Survay
Ma'erkang Teacher Training School. On-going tercher training is near)y non-existent. TheHongyuan Education Bureau has a teacher training unit for on-going rraining, but i t doesnot function very well . FOC could support Hongyuan's Education Burcau by sett ing up theteacher training unit for on-going training of prirnary school teachers. An expatr iate, anexperienced primary school teacher or teacher trainer in co-operation with l-2 local staffcould organise courses during hol idays on subjects l ike chi ld-development, bi l ingualteaching, teaching methods, use of equiprnent, didactic on the various subjects, few headmasters administrat ion, supervisor of staff , and general managemcnt. DLrring school t i rne,the team could visi t the schools, observe teachers, and train on the spot.
A dvarr lngeso Supports the exist ing sct up of schools which is qui te r rc l l adjusted to the
local needs.o Hclps Tibclen rr ' : rchers to catch ul ) .o Answers an expresscd ncecl o l - rnany schools, but not as ; l r ior i ty need.o Al lows FOC to get to knorv the edLrcat ion systent f rorrr r l rc ins ide.o Staf f can l ive in Hongyuarr and st i l l be in contact wi t l r rural areas.o Component how to teach adul ts in l i teracy could be adclet l .o Can be conrbined wi th Opt ion 3.
Disadvnntagcs
o Is not seen as pr ior i ty by thc Educat ion Burcau.o Is not responding to the exPectat ion for l inancia l hclp.
Opt ion 5 Adul t L i tcracy Educl t ionLooking at the school enroln lent l igLrrcs, one can conclude that t l )erc is i r h igh rate of non-literate people.
The Educat ion Bureau launched a campaign " to wipe out i l l i teracy" in 1988 and cont inuesteaching of adul ts. However, we got very l i t t le intbrmat ion.
FOC could support the Educat ion Bureau by staf f , t ra in ing and nrarcr ia i . Train ing wouldinclude teacher 's t ra in ing as wel l as v is i t ing lhe c lasses. The teaching rr ; l ter ia l ( textbooks)needs to be revised.
Advarr tages
o Direct contact wi t l r rural people.
o Opportuni ty to f ind out people 's v iewpoints and probh:nts_
Disadv:rntagcs
o No interest by of l ic ia ls.o Could quickly become pol i t ical .o Textbook changes are of ien seen as highly pol i t ical .o Would require t rust .by governrrent as wel l as by people ro be ef fect ive.o Governntent ntost I ikely wi l l not a l low a foreign organisr ' t ion to get in a
posi t ion of doing conscient isat ion work.
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Chapter 7 Sunrnrary
7. I RECOMMENDATIONS7.2 ORGANIZATIONAL IMPLICATIONS7.2 .1 FOC'S LONC' |E I I .M VISION7.2.2 PLANNINC, N,IONITORING, EVALUATION7.2 .3 ORGANIZA' I IONAL SET.UP7.2 .4 PET{SONNEL7.2 .5 F INANCE7.2 .6 GOVERNMENT7.3 REFLECTIONS ON SURVEY
7. I R EC 0 lt Lv I N D.-t't. I ( ) t\ S-l 'he tean discussecl the options of clch techrrical f lcld and asscssed thcm against t l re cri tc-r iawhich werc r levelopcd out of F()C's lcrrn.s of rclercnce, thc gencral si tLrat ion and thedevelopntent visions of the teanr. On thc fbl lowing page is a chart wlr ich sLrnrrnarizes thed i scussi on.
The team reconrrncnds that a training prognr)rn)e be est:rbl islrcd in HongyLran for vi l lagclevel profcssit tnal/scntiprol 'essional workers ol ' r ,arious f ields. For dctai ls see thereconrmendecl option of the technical reports. A training l)rogramDre coLrld t l t w,el l with thealso reconlrnended applicd (act ion) rcscarch con)l)or)cnts on grass, fbcidcr and soci l lfbrestry.
I t is reconrmended to bring in not only technical special ists, to cover part icular technicall lelds, but also staf i who have training and experience in trainer's training, adult educationand/or conlnrul) icat ion. Nianar:enrent as well could be of use.
FOC should be cautious with funding besidcs the inrrncdiate budget needed fbr thc runningof the training and rescarch projects. However, fLrncl ing could bc nreaningiul once there istrust and FOC is convinced that eood use wil l be nrade ol i t .
H o n 91, u a n C o u n ty R o p i d u.s -s L,s : t n t n ! S u r-ve1,
7. 2 ORGAN I ZATIO NAL I M PLI CATI O N SIf FOC enters into rural development work it will have implications for the overallorganizational set-up. So far FOC has nrainly seconded personnel to cxisting Chineseinstitutions. with rural development work, Foc as an organization might be in a positionto influence the shape of a particular programme and back its position by the provision offunds. Only i f FOC is equipped to do this, wi l l i t be to the FOC's advantage.
The following questions and recommendations are grouped under six headings, with whichthe team wants to make FOC aware of the organizational implications. See summary chartat the end of the chapter.
7.2.1 FOC'S LONG TERM VISIONQuestions: why does Foc want to begin Rural Development (RD) work? what are thespecific reasons? What are the long ternt goals to be achieved? Are there alternatlves toachieving these goals? Is Hongyuan reaily a poor and needy area? The team observedmany problems, but is economic support or social service the adequate response, if most ofthe problems are rooted in politics?
Recommendations: FOC (its leadership, staff and board) should ntake the effort to definetheir vision careful ly with or without the help of an outside advisor.
7.2.2 PLAN N ING, MON ITORI NG, EVALUATIONQuestions: Are the planning and plan approval procedures in place? Is the Foc's centraloff ice's capacity suff icient to faci l i tate planning, and to do monitoring?
Rccommend.t ions: FoC needs to keep in nrind that RD programnres req,ire guidance anddirection, which can only provided i f there is suitable staff to do this. Have a staf f memberas RD coordinator who is avai lable ful l- t ime to bui ld up the progranrrnes and to supportthe field staff. The teanl feels that such an RD coordinator shoull be in place before thework starts, e.g. to negotiate with the government, to prepare proposals with the field staff,plans, budgets, f ind funding, ancl to recruit personnel. Furthei, i t is important that thespecif ic objectives of each progranrnre, the strategies to be Lrsed, the indicators to assesssuccess, inrplementation scheilLrles and budgets are clearly determined.
7. 2. J O RGAN I ZATI O N AL S ET- U PQuestions: How does Foc want to implernent RD work: through the government lineagencies, or more independently? where should the RD coordinator be located? InChengdu? Who supervises whom? What are the areas of responsibility?
Recommendations: Pay attention to the organizational set-up and have clear jobdescriptions. Place at leasl two people in the sanre field location so that they can share andexchange with and be support ive to each other.
7.2.4 PERSONNELQuestion: what recruitment strategies can be developed to find people who are well_balanced and able to bear fnrstration? Is two years of language study too long?
FOC needs to be c lcar on i ts ro le, wlrcthcr i t wanls to be sccn as aprovider.
' l -hc teanr t l r ther recomrnen<ls that FOC reviews i ts goals, delrnes a c lear
assesses i ts internal capaci ty.
r r rater ia l resource
futLrre v is ion and
The foi lowing chir l) tcr dcscribes in nrore dctir i l the possible ir lpl icat ions entai led byentering into rural developnrent rvork. A lot delrerrcls now on the further negotiat ions ofFOC and the governnlent. ls i t pos.siblc to f lnr l arees ol 'nrulual irr terest ' l Is the governnrentinterested only in funds, when FOCI off 'ers r lost ly training progranrs? Docs the pol i t icalfrarre work allow I-'OC to tlo what thcv lvant to do'l
- 9 0 - 9 t
Hongvuan Counry Rapid uJsc$nent Survc),
Recommendations: Find well qualified and experienced staff. The experience does notnecessarily need to be front developing countries. Additional skills as trainer or inmanagement are desirable. If local people are employed by Foc, a policy ard salary scaleneed to be in place.
7,2.5 FINANCERecommendations: Procedures for budgeting, financial monitoring and auditing arenecessary. Funding proposals need to be written, donor relations developed, reporting andcorrespondence with donors maintained; all this requires a lot of attention and time. Maybea financial person (administrative) is needed to support the RD coordinator.
Foc should aim to run pilot projects first, which need only srnall scale funding. This willal low Foc to learn as i t goes along. Many donors provide'nratching, funds only, whichrneans that funds are provided for a certain percenrage oF the budget, and the other partrnust be provided by the organization, e.g. through personnel.
7.2.6 GOVERNMDNTQuestions: How can Foc avoid getting crushed in the middle of the Tibetan-Chineseconflict?
Recomnendations: Have clear ancj specitic agreenrents, based on well thought-out,definite plans, which spel l out Foc's responsibi l i ty and that of i ts partners, define reviewpoints and the response to unfultllled obligations. Bind in high level government officials,for exarnple by establishing an advisory cornrrittee.
Prevent the high level officials being the only ones steering the process. The governrnentshould also make a contribution to the programme, e.g. by providing office space, payingsome expenses, providing visa.
Avoid gett ing in a posit ion of being obl igated, e.g. rhe tr 'arn f 'elr rhat by accepting rhe rnpto Jiuzaigou, this could have created tuture indebteclness.
7.3 REFLECTIONS ON SURVEYFollowing are solne comlrents by the team nrernbers on their experiences of this survey:
o Although the team had to face so nrany unknowns, it was surprising howmuch information could be gathered. To work as a teanl was extrernelvhelpful.
o The openness of the Hongyuan County adrninistration was antazing.o More time for preparation and pre-survey reconnaissance would have been
valuable; however, John was very helpful in putting together literature andproviding background information.
o Looking back, the tearn felt very uneasy on having accepted the Jiuzhaigou trip.o The lirnitations of the consultant role should have been clearer, sometimes
the governement people got confused, r.g. by use of FOC visiting card, but theteam members not representing FOC.
o
Hongyuan Counry Rapid assessmant Survey
The size of the team was appropriate, but teams could have been mixingmore when doing the survey.The preparation and report writing required as much time as for doing theactual survey.The team felt guided by rhe Spirit of the Way of the Light.
- 9 2 ^- v J -
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Hottgyuan County Rapid assassmcnt Suney
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Serind ia
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