China - Gansu and Xinjiang Pastoral Development Project : environmental impact assessment (Vol. 2 of 7) : Xinjiang multiethnic group development strategy

E614 Volume 2 The World Bank China Integrated Pastoral Development Project Xinjiang Project Areas Multi-Ethnic Group Development Plan AdOO 3711! The Xinjiang Project Management Office March 2002   The World Bank China Integrated Pastoral Development Project Xinjiang Multi-Ethnic Group Development Plan Forward The World Bank China Xinjiang Integrated Pastoral Development Project aims at promoting the social and economic development by loans in a multi-ethnic group region. The selected 30 Project counties are characteristic of being inhabited by different ethnic groups. In designing of the Project, the Bank emphases the importance of the multi-ethnic groups and their development for the implementation of the Project and the significance of the joint development of all the ethnic groups by participation of the Project. Therefore, it is a very important index for evaluation of the project to judge whether all the ethnic groups of the project areas, the minority ethnic groups in particular, realize the substantial development or not by participation of the project The PMO of Xinjiang Uygur Autonomous Region for the World Bank Xinjiang Integrated Pastoral Development Project, referring to the World Bank 4.20 Principles and to the consultant report by the Social Assessment for the Project, has designed the "Multi Ethnic Group Development Plan". And the PMO requires that all the PMOs at County and Xiang levels attach importance to the development of multi ethnic groups and regard it as a significant content in the implementation of the project. Various measures should be taken to complete the tasks designed in the Plan.  The Multi-Ethnic Situation and the Characteristics of Living-Space of the Minority Ethnic Groups Xinjiang is a multi-ethnically inhabited region with the minority ethnic population of 10891549. And there exists livestock production in agricultural areas, and semi agriculture and semi-pastoralism and migrating pastoralism in pastoral areas. The ethnic groups, such as Kazakh, Mongolian and Kirkiz are engaged in pastoralist production while Uygur, Han, Hui, Sibo Daur practice farming and livestock production. The different subsistence forms that originated in the history and have been continuing up to now are the important parts of the ethnic cultures. The Multiethnic Group Development Plan should not only aim at pure economic growth, but also should consider how it can also help the minority ethnic groups of the project areas to take a sustainable development. So the Regional PMO has designed the following specific objectives: 1) Whether there has developed sustainable foundation for the economic development, use of resources, eco-environment protection and ethnic cultural progress at village level. 2) Whether the survival environment of families of the ethnic groups has been improved that they can develop on the sustainable economic basis and comparatively stable natural resources and the animal species that have been refined and the livestock produces capable for the marketing competition. 3) Whether the human resources of the ethnic groups have been improved and integrated that can provide good-quality human resources for the local development. 4) Whether the project implementation has helped the minority ethnic groups and families of the project areas to have access to the technologies, information for their livestock production. 5) Whether there has developed a certain capacity of intensified livestock production at the project villages and Xiangs.  Table: The Ethnic Population Composition of the Project Counties (The Data of the year 2000) Minority Ethnic Groups Average Population Han Farmland Total Uygur Kazakh Hui Kirkiz Mongolian Sibo Others Per. P* Zhaosu 149982 43690 106292 14661 69677 4299 4152 12462 73 968 26. 22 Tekes 148337 36009 112328 14913 58995 20570 8705 5604 855 2686 12. 07 Xinyuan 284881 113604 171277 27181 123124 17727 443 107 579 2116 13. 43 Yili Pref. Gongliu 154371 48923 105448 35053 45692 18556 440 506 1487 3714 16. 21 Chabchar 158547 54753 103794 41711 32625 6583 284 316 20533 1742 20. 86 Huocheng 341302 156474 184828 69762 26385 69453 360 508 3005 15355 10. 33 Tacheng 148949 94821 54128 4935 22316 10284 1651 1598 1406 11938 56. 48 Wusu 197548 123914 73634 18176 21509 24732 15 8248 155 799 23. 40 TachengPref. Shawan 196820 137741 59079 8342 32057 17008 17 385 27 1243 30. 72 Errning 182426 98690 83736 7521 61790 5941 292 5480 108 2604 33. 44 Yurnin 51124 30761 20363 193 16059 2871 12 146 55 1027 60. 32 Borle 220507 148294 72213 35017 16317 7828 33 11509 305 1204 12. 65 Bole Au. Wenquan 72301 43961 28340 2965 12207 2177 51 10252 55 633 28. 38 Altai Pre. Altai 217535 134030 83505 5270 67472 6471 26 2417 42 1807 8. 60 Fuhai 64882 36271 28611 658 25290 2006 197 8 452 37. 70  Fuyun 81982 21207 60775 2139 56119 1823 10 208 15 461 17. 65 Changji 352357 271270 81087 9912 17258 48621 48 1184 293 3771 13. 25 Manas 161387 132014 29373 4865 17021 6543 24 97 30 793 28. 17 Hutubi 205229 160703 44526 5293 22813 14614 9 221 34 1542 19. 35 Changji Au. Fukang 153260 112909 40351 8754 12077 17795 13 316 60 1336 13. 16 Jimsar 131967 94889 37078 6324 9909 17894 19 1898 18 1016 24. 55 Qitai 229102 176440 52662 15778 20912 12027 4 1244 61 2636 32. 97 Maigeti 195710 34343 161367 160972 9 237 15 2 132 18. 06 Kashgar.Pre.. Shache 622305 17122 605183 599803 4 747 941 33 8 3647 13. 13 Wensu 208891 46264 162627 157893 813 3561 13 1 346 22. 30 Aksu Pre. Baicheng 196015 25309 170706 168943 6 735 953 8 4 57 24. 83 Kucha 380887 38524 342363 340007 34 1937 111 37 10 227 15. 03 Kurle 357682 239866 117816 102183 58 8823 5 4181 126 2440 8. 54 Bayingguoleng Yanji 120468 55681 64787 34037 29 27270 79 2855 517 13. 97 Au. Y Hejing 170498 94510 75988 39296 891 6234 83 28410 6 1068 9. 35 Turfan Pre. Turfan 243811 50567 193244 1733829 27 18728 52 12 596 5. 28 Hami Pre. Hami 375368 261494 113874 86652 10025 13789 16 796 139 2457 4. 12 Sources: Xinjiang Statistics Yearbook 2001 1 The unit of the area is mu,, about 667 square metres  Part II The Legal Framework for Designing The Project MEGDP The Constitution and other relevant laws and regulations of China stipulate that all the nationalities of China enjoy the rights for their social, economic and cultural development, and that in the regions where a major nationality, with other nationalities, inhabit, the system of the minority nationality autonomous system should be practiced. According to the principles, the autonomous institutions are established at three levels of administration: the Autonomous Region(equal to Province, the Autonomous Prefecture(equal to Prefecture) and the Autonomous County. In addition in the towns(Xiang) where the compact inhabiting by certain minority nationality is high, the minority nationality Township is established. In the minority nationality autonomous regions, the minority autonomous rights are practiced and the minority nationalities exercise their own right to decide and manage their own affairs. In Xinjiang, according to the Law of Minority Nationality Autonomy, the Uygur Autonomous Region was established in 1954 and before or after it five autonomous prefectures were established: Yili Kazak Autonomous Prefecture, Bayinguoleng Mongolian Autonomous Prefecture, Bortala Mongolian Autonomous Prefecture, Changji Hui Autonomous Prefecture and Kirzlesu Kirkiz Autonomous Prefecture. Besides, 6 autonomous counties and 42 minority Townships were established. Within the legal framework of the Law of Minority Nationality Autonomy, the ethnic groups of Xinjiang enjoy the rights as the following: - The right for equal rights for all the nationalities - The rights to make autonomous regulations and specific regulations for managing the Affairs of the local finance, economic development, training and employing minority officials, managing the affairs of education, science and technology and culture. - The rights to use and develop the languages and writing systems of the minority nationalities (ethnic groups). - The rights for the freedom of religious beliefs. - The rights to maintain the ethnic customs and the regulations on the other nationalities'  respect of these customs. - The rights of the important proportion of non-Han officials in the autonomous institutions. - The rights to develop their own economy and enjoy the state and regional preferences for them - The rights for the development of their own culture, education and science and technology. - The rights to enjoy the preferences in the implementation of the national policy of family planning. It is based on the laws that the state have made and granted many preferential policies for the minority nationalities so as to ensure that the rights to be guaranteed. And it is based on the state laws that the Xinjiang Regional People's Congress has made many local laws and relevant regulations for the implementation of them according to the practical conditions of the multi-ethnic existence and their cultures. What is significant of the above laws and regulations for the present Project are what the National Laws stipulate that the minority nationalities have the rights on the land in which they live generation by generation. The Law of Minority Nationality Zone Autonomy stipulates that the autonomous institutions of the minority nationality autonomous zones have the rights to the ownership and utility of the pastures and forests within the zone and that they have the rights to the management of the natural resources and maintenance of them and that they have the priority to explore and use the natural resources according to the laws and regulations and the state plan for development. It is clear that there exists the legal basis for the MEGDP designed by the PMO and within the legal framework the rights of the minority ethnic groups in the project areas to participate in the Project and to develop are guaranteed by the above items of the laws of China and the relevant regulations of the Region. And the implementation of the project and its specific items are legally protected.  Part IIH The Baseline Data for Designing the MEGDP The design of the "Multiethnic Group Development Plan" depends on the knowledge obtained by the Project SA Team that conducted extensive filed surveys in 6 counties and the suggestions and expectations from the local people of different ethnic groups in the project counties for implementation of the project. At the same time, the Regional PMO refers to the following: I The policies of the central government concerning the west-region development and the decisions on developing animal husbandry production and raising the income of farmers and herders. 2 The documents and decisions on developing animal husbandry production made and issued by the government of Xinjiang Uygur Autonomous Region. 3 "The Tenth Five-Year Plan for Social and Economic Development" designed by the government of Xinjiang Uygur Autonomous Region. 4 "The Plan for Social and Economic Development" designed by the governments of the Project Counties. 5 The Plans for Social and Economic Development" issued by the governments of the Xiangs where the SA Team conducted field assessment. 6 The Baseline Survey Report for the Project by the Baseline Assessment Group 7 The statistics of the relevant counties, Xiangs and villages, the statistics of the population, livestock and natural resources in particular; 8 The extensive information about the minority ethnic groups of the PRA sites, including their economic status, land conditions, management and use of resources, access to the local loans, and problems in their development. The information was obtained by intensive interviews of the individual farmers and herders. 9 The special information of the ethnic groups that are not included in the Terms of Reference for Social Assessment of the Project, such as Mongolian, Daur, Sibo, Kirkiz and Dongxiang, which are small in terms of their population size in the specific sites and  are considered to be in the marginalized status of the communities. It is assumed that their special difficulties and demands should be considered in the design of the MEGDP. 10 The local plans for the development of the minority ethnic groups designed by the governments at Region, County and Xiang levels. The government of Xinjiang Uygur Autonomous Region has made the policies and taken measures to help the minority ethnic groups in their development and in getting rid of poverty as its priority work and many plans have been made and the projects related to the strategies have been imnplemented. For instance, in the Tenth Five Plan of the Region, the government decides that the development of livestock production should be one of the most important strategic objectives of the region and specific measures have been taken to help improve the management, and to give priorities to. the settlement of those pastoralists who are still nomads. And the government has decided that the intensity development should be the main goal in reforming the traditional animal husbandry of the region.. Part IV The Land Tenure The land tenure system is one of the key factors not only for the implementation of the project but also for the multiethnic group development plan as an important part of the project objects. At the present moment, there are three forms of the land tenure in the project areas of Xinjiang: I According to the Constitution of China and the Law of the Land, all the land, farmland or pastures, is the property of the State. The State manages the land by the administrative institutions, such as the Department of the State Land Management at regional (provincial), county levels and at the Xiang level ( The Land Manage Station). The use of land by anyone or any institution should be permitted by these institutions and any misuse or damage of farmland and pasture should be punished. However, due to the complex local power structure, the county government and Xiang government are powerful in issuing the permnission for the use of land.  2 Farmers and herders were issued the rights to use the farmland and pastures through the contract fomis in 1984 and 1992-1993 in which they signed the contracts with the local govemrnments to obtain the rights for use of certain area of farmland or pastures. These contracts are legally guaranteed .In the first reform of 1984, the tenure period was 10 years and in the second reform the tenure period was extended to 30- 50 years and farmers and herders were issued the Permit of Land-use Tenure" or The Permit of the Pasture-use Tenure" by the governments of their counties. According to the regulations of the Chinese government, any changes of the land-use rights should be permitted by the use-right owners through negotiations and in condition that farmers and herders do not agree on the change, then the govermnents of the county and the Xiang concemed should not take away the land or the pasture from them at their will. And both farmers and herders should pay fees every year for their use of the farmland and pastures 3 In some of the state-owned farns, the above reforms were implemented and the herders were issued the rights to use certain area of pastures. But on other farms, both the land tenure and use-rights belong to the farms and the herders obtained the permiit to use pastures through signing contracts with the farmns. And the farms can get back the pastures if they believe the users of the pastures fail in implementing the contracts. In recent years, some villages and Xiangs of Xinjiang leased certain area of farmland to the companies and individuals from other areas to grow crops In the pastoral areas, there have been more cases of leasing pastures . Herders say that the lands that were leased out are their pastures, but the Xiang or Village authorities say they are "wasteland". The companies and individuals from other areas used the leased land to grow crop, econornic crops in particular. The PMO believes that the new development about the lease of land may bring changes in the use-right and ownership of the farmland and pastures in the areas. It is evident that all the minority ethnic people of all the project counties have the equal rights in obtaining the rights to use land and in most of cases their rights are guaranteed and protected by the laws and regulations. In certain areas, the minority ethnic groups with small population enjoy  certain favorable terms in use of land. However, there are some problems in use of land (farmland or pastures) in the project counties, such as regional differences in the area, quality, in particular, water source, of the land that thee present land could not provide enough natural resources for farmers and herders. Besides, the degradation of pastures obviously reduces the productivity of the pastures that used to provide sufficient grassland resources for herders. In general, the present land tenure system provides the basic conditions for the minority ethnic groups to participate the Project. In order to ensure the rights of the participants of the minority ethnic groups to the land resources and to ensure the rights to be the important part of the Multiethnic Group Development, The Regional PMO suggests that the PMOs of the project counties should take strict measures as the following: 1) The MEGD Groups at Xiang and villages must listen to and deal with the complains from the project participants of the minority ethnic groups about the illegal occupation and use of their farrmland and pastures by outsiders and must report these cases to the government offices concerned so as to take measures to protect their rights. 2) The area of pastures used by the ethnic families that participate in the project should remain unchanged and the local governments should not change the their right to use the land, nor should they take over for use their farmland and pastures. 3) The PMOs and the minority ethnic groups should work together to establish the land -resources protection measures and the methods for rewarding those who make contributions to the protection work so as to ensure that the implementation of the project to be based on a sustainable prospect.  IV The Strategies for Participating in the MEGDP The Regional PMO suggests that the govemments of project counties should attach great importance to the minority ethnic development and in order to ensure their development, the govemments concerned should follow the principles as the following and show concems to the specific related issues" 1) The principle for the participation in the development by the multiethnic groups (1) To ensure the implementation of the State policies for minority nationalities; (2) To ensure the equal rights of the minority ethnic groups to the participation in the project and to prohibit the discrimination and exclusion of the minority ethnic groups;  (3) To fully listen to the opinions of the masses of the minority ethnic groups about the design and implementation of the project and to design the local livestock development projects that are based on the local conditions, and in the implementation, to prohibit any practice of forcing the minority ethnic groups to accept the plans that are not practical to the local conditions. (4) To offer financial support to the minority ethnic groups; (5) To give priority to the demands of the minority ethnic groups in the project areas for funds and to ensure the funds they need; to provide more free necessary gratis for the minority ethnic villages of the project areas. (6) To make sure the funds for improving the infrastructure of livestock production of the minority Xiang and villages, such as fine-species breeding farms, artificial breeding stations, dipping vats, ammoniation facilities and markets of animals, so as to improve the environment for the project investment. (7) To provide the technological aids; (8) To give full play to the roles of the professionals to spreading technologies of animal husbandry production and to speed up the development of, introduction of and spreading and training work for practical technologies, and to organize the institutions and professionals to offer seivices; (9) To help the minority ethnic villagers to establish cooperative organizations for live -stock production and to develop the forms of cooperation between companies and herders and farmers and contracted livestock production so as to enhance their marketing ability. The World Bank and the PMOs at all levels will work hard to seek for free gratis aids to help in the development of the minority ethnic Xiang and villages of the project areas. 2) The Minority Ethnic Group Participation Plan (1) The access to participation a) They participate in the associations organized by themselves which are related to the implementation of the project, for herders and farmers have their own understanding of and demands for their development, and the roles of the governments and Village Councils are to offer advice and necessary conditions for  them at suitable time and to suitable extension; b) The participation strategies raised by herders and farmers should be comnbined with the implementation strategies designed by the county and Xiang governments so as to reach a common understanding and to maker sure that their interests and demands can be fully realized in the implementation. 2) Type of Participation: I The participation realized at the different levels of the local communities. Which stresses the cooperation between the local herders and farmers and the power structures of the counties, Xiang and villages in implementation of the MEGDP as well as the Project itself. 2 The independent participation by the local farmers and herders, which stresses that minority ethnic groups have the right to design their own strategies for participating in the Project and the MEGDP. 3 The joint-participation by all the ethnic groups in one community, which is preferable for a village or Xiang in which there are several ethnic groups. 3) The Decision-making in the Participation As there is an significant change of the Project purpose from fine-wool sheep development to the integrated pastoral development, the decisions made by the locals on what animals they are going to develop should be made on their conditions of natural resources and traditional ways of raising animals with the help of the local governments and the Project. The decision-making by the governments the demands of the project for decision-making should be based on the strategies selected by the participants. The best decision-making will be the one realized by the cooperation between the locals, the governments and the Project. In making decisions, the local minority people's choice and demands should be fully considered. The Regional PMO believes that the PMOs and the project should not only help the dominant  ethnic groups to design their participation strategies, but also should help the ethnic groups whose population sizes are smnall to do so. The strategies should help them to enjoy the equal rights that the dominant groups have in obtaining resources for their own development. 4) The Participation Expectations of the Minority Ethnic Groups: The following are the expectations of the mninority ethnic groups for participation of the MEGDP and the Project, which were obtained by the SA experts in the SA sites. (1) They hope that the Project and local governments will listen to their ideas about their participation of the Plan and the implementation of the Project. (2) They can participate in the Project and obtain the Project loans and help on the equal terms for their livestock production. (3) They hope that the Project can offer special funds for them to improve the environment of pastures and to select fine-quality species of grass, and to enlarge the area of the artificial pastures so that the pasture degradation can be stopped and the degraded pastures can be restored to the normal state. . (4) They hope to be able to obtain the technological training and the project can provide them with information, technology so that they can learn the advanced management and technologies. (5) They hope thOt the governments of the project areas will make relevant policies to limit the "blind increase of the animal number" and to avoid overgrazing so as to protect the natural resources. The Regional PMO believes that the above not only offers the important basis for the implementation of the project, but also for the implementation of the MEGDP suggested by the project. So they are worth being valued by the county PMOs. 4 The Specific Strategies for the Multiethnic Group Participation I) To give full play of the roles of the County Comuissions of Nationalities affairs and  ensure that they have the rights to be informed about the project and the rights to offer consultation for the complaints about the project from the minority ethnic groups. 2) To establish the Associations for Livestock Production at Xiang and Towns level and the associations participate in the design and implementation of the project and monitor the project executive organizations of the same level.( CF: the Handbook of Beneficiaries Participation) 3) The equal rights to the participation of the minority ethnic groups of the project areas are guaranteed through their participations in the activities of the associations and the village project teams. For those minority ethnic groups with smaller population-size, they should be ensured to have their own representatives in the village project teams. 4) The county PMOs should keep close relations with the multiethnic participation groups of Xiangs and villages and the groups have the rights to propose their suggestions for the implementation of the project and the PMOs should give full considerations to the suggestions and support those which benefit the project implementation so that they can be turned into activities of the implementation. 5) There are aged experienced men who possess the traditional knowledge of local livestock production and eco-environment of pastures. We emphasize their special roles for the MEGPP and hope that the village project implementation groups should invite them to be their members and should listen to their opinions for the implementation of the project. 5 Use of the Minority Ethnic languages The Regional PMO requires that the minority ethnic languages should be used in the introductory materials of the project ( the Uygur, Kazakh. Mongolian languages) 1) The materials should be printed in the above languages and distributed according to the local language situation: Altai Prefecture: Kazakh language and Chinese language Kashgar Prefecture: Uygur language Tacheng Prefecture: Kazakh language, Mongolian language, Uygur language, Chinese language Bayinguoleng Mongolian Autonomous Prefecture: Mongolian language, Uygur  language and Chinese language Bortala Mongolian Autonomous Prefecture: Mongolian language, Kazakh language, Uygur language and Chinese language Changji Hui Autonomous Prefecture: Kazakh language, Uygur language and Chinese Language Hanmi Prefecture: Kazakh language, Uygur language and Chinese language Yili Prefecture: Kazakh language, Uygur language Aksu Prefecture: Uygur language, Chinese language Gunnes Stub Sheep Breeding Farm and Tacheng Stub Sheep Breeding Farm: Kazakh language Bayinguoleng Stub Breeding Farm: Mongolian language, Uygur language 2) The Project Handbooks, training materials and Loan Contracts must be printed in the languages according to the above language use situations in different areas. 3) The relevant minority ethnic languages must be used in training programs. 5 Training Programs Technological and marketing training programs are an important part of the MEGDP. And in the project training programs, the technological training should refer to the Handbook of Beneficiaries Participation. In order to ensure the quality, the following are required: I) To Use the local knowledge for training: The county PMOs should organize the professionals and the experienced aged men to collect and edit the local knowledge of the ethnic groups concerned about livestock production (including the knowledge of breeding, raising, use of pasture resources) that may be directly related to the project implementation in combination with modern technologies and let the minority ethnic participants learn them and encourage the professionals to use them in the training materials. ( For examples, in the South Xinjiang, the knowledge of Uygur farmers about raising sheep at pens and the knowledge of herders in the North Xinjiang about selecting fine quality breeding.) 2) Emphasis on the participation and training of women and young people  The county PMOs should take the training programs in modem technologies of livestock production and marketing skills, as the major work for the MEGDP. And the priorities in training should be given to the minority ethnic young people, and women training should be planned and carried out. The training programs should aim at training them to become the main technological forces for the implementation of the project. 3) The participation of the departments of science and technology at various levels in the training programs It is suggested that the training programs in modem livestock production technology should be placed in the training programs of the county departments of science and technology. And the training programs on marketing should be based on the local conditions and emphasize on the training, the minority personnel who understand both livestock production technologies and marketing selling. The Regional PMO will make a feasible plan for this and the county PMOs should make their owns. The project should offer necessary funds for the training work. 4) Sex of the trainees: the suggestions from the local grass root officials should be obtained on whether it is necessary to organize trainingO classes according to the sex of trainees. 5) The Religious Factor in training programs: In organizing the training programs, the PMOs and the trainers should be careful to avoid using any contents religiously sensitive. 6 The plan for herders' participation in the marketing training programs and the loan granting experiment The plan aims at helping herders understanding and gaining access to the markets for animal husbandry products through learning the relevant marketing knowledge. The experiment: it is planned to conduct the experiment of training and granting loans to households, and large herding villages respectively inhabited by herders of Tibetan, YugurD Uygur, Kazakh and Mongolian nationalities will be selected for the experiment. The World Bank will organize the experts to compile the training materials. The procedures: . I) A survey about the conditions of livestock production, especially the situation  in marketing of the villages should be done before hand. 2) The Association for livestock production organize the training programs on marketing at villages and the volunteer participation is preferred. 3) The Associations reconmiend those trainees who prove to be suitable to do business to attend the further training programn, the training work should including visits to the mnarkets. 4) The County PMOs grant the loans to the Xiang and village associations and the granting work should be conducted by those herders who were trained. 5) The tracing surveys will be conducted after one year's experiment and comparison should be made with the situation of the villages where there are no training programs and experimnent of this kind. 6) Five sites for the experiment should be selected: A village of Zhuoni County, Gannan Tibetan Project area, Gansu Province A village of Sunan Yugur Autonomous County, Gansu Province A village of Maigeti County, Xinjiang ( Uygur) A village of Xinyuan County, Xinjiang ( Kazakh) A village of Borle City, Xinjiang ( Mongolian) 7) In the areas where the condition is ripe, the joint - share system with sharing the interests and undertaking the risks can be used. Part VI Technical Identification of Development or Mitigation Activities The Regional PMO has noticed that farmers and herders of the SA counties place great hopes on the Project as they believe that the implementation of the Project will help them to improve their living conditions by offering opportunities for them to develop their livestock production and to increase their income. And the minority ethnic peoples, the non-major mninority ethnic people in particular, from different Xiangs and counties, expect that the Project will offer them funds and technologies with which they can get rid of poverty. The county PMOs should pay attention to the adverse impacts of the project and the county  MEGDPs should consider the development patterns of different ethnic groups of the project areas and the adverse impacts of the following factors on the MEGDP, based on the reality of livestock production of Xinjiang, should be attached importance to: First, the increasing demands in increasing family income by enlarging the herd size will certainly lead to greater pressures on the environment; Second, the unequal and unjust chances of access to the Project loans due to the misbehaviors of those local officials who have more to say about who could obtain the loans may enlarge the gaps that have already existed between the rich and the poor, thus causing new social inequality in the Project areas. Third, if the interests and problems of the minority ethnic peoples whose population sizes are smaller are not properly put into consideration, it is possible to push them further marginalized with imbalance in psychology.. Consequently, these groups may complain that the Project and the MEGDP fail to care for their objectives. The development bases and different development patterns of agricultural areas, semi-pastoral and pastoral areas are neglected. The Regional PMO believes that we should take the sustainable development as the most important standard for evaluating the project effects. The Project should take the principles of sustainable development as the key in implementing the MEGDP. It is important that the Project necessarily emphasizes the improvement of breeding, pastures, economic effects and marketing. And it is suggested that there may be different ways to realize them in consideration of the diversities in the development and cultures of the given Project areas. So, it will be of significance to develop different patterns for the MEGDP according to the local conditions and diversity of cultures and we should avoid the tendency that all the Xiangs and villages should have the same patterns and we should try to explore multi development patterns, of which the economic growth is not the only index. At the same tome it is important to improve the quality of human resources of the project areas. These are what the PMO suggests: I) The county PMOs should ensure the rights of ethnic groups to be informed about the project implementation and should inform them the progress of the project and should  make special explanations to them when the imnplementation work is related to their interests so as to have their understanding. 2) The implementation should be based on the respect of the local ethnic cultures. Specifically, if there are any measures that go against the local customs, or desert adverse impacts on their cultural customs, they should be stopped to use. 3) To establish the channels for the minority ethnic groups and individuals to complaints so that their opinions and suggestions can be heard and accepted (Cf: the relevant items in the Handbook of BPP). Specific measures to be taken: 1) To hand out the "Forms of Minority Ethnic Complaints" printed in minority ethnic languages to the communities and households so that they can complain. 2) The Xiang PMOs should work out the regulations to ensure that the minority ethnic participants can complain and the time-span and procedures for dealing with the complaints should be worked out. 3) The PMOs at various levels should deal with on time the behaviors of encroaching the interests of the weak groups and individuals in the imnplementation of the project. Part VIII The Implementation Schedule The implementation of the MEGDP needs a plain but easy-operative timetable and we suggest that three stages should be arranged for it. Stage Tasks Contents Targets Time Understanding the MEGDP I ) the minority ethnic Participating in Three and the project people discuss the thedesigning of months Project and the the development after the MEGDP plan and project enhancing the starts  2) making the family confidence planfor development 3) obtaning the support from the project Designing the development I ) designing the I) refining the mid-term for the village and household development plan breeding of the Starting to implementing the 2 ) participating in the 2) learning new project project training program and technologies beginning to. 3) improving the implementing the project pastures 3 ) completing partial tasks of the project III Continuing the I ) self-assessment of Developing Last implementation of MEGDP villages and individuals sustainable Period of 2) continuing the training development the project capacity Timetable for the Iiplementation of the MEGDP Time Activities Responsible Participants Demands Fund Persons or Source Institutions Establishing County All the project Election and PMO The Village PMO participants consultation Multiethnic 2. Representatives Paricipation of Group all ethnic groups 3number of Women Rep. should not be less than 30%. Establishing County Representatives The number of the Xiang PMO Of Village village Multiethni MPG representatives Participation . should not be Group less thatn 60% 2. The Xiang leaders 2002/10-12 Multi-language Regional PMO at all 1. Plain and easy The PMO Instruction and County levels, the local to understand Books Writing PMO SA experts First level Translation , translation  Circulation work in Uygur, Kazakh and Mongolian languaged 2. Circulation according to the language map of the Project counties) Training PMOs beneficiaries Special Progranmmes Departmnent village I Local Funds for Of representatives professionals with Training Science the local ethnic Work Training in And languages modem animal Technology 2 The educated husbandry Of rural young people Technology Counties Training in PMOs representatives 3. Comnpiling the The marketing and of villages Training Outline world selling organized and Bank sponsored by funds Collecting and PMOs and The I . Use the PMO editing the Village knowledged collected local local MPGs old herders and knowledge into the knowledge local training materials professionals 2002/10-2003 Participation PMO and the volunteering I selecting 1) loans for in the Marketing further large villages marketing training grous\p training of Uygur, system f those who Kazakh and 2 training are capable Mongolian for programs of business experiment 2 loan granting and operated by the trained villagers Once two mid-term SA Participation 1I)independent Project  years after the assessment institutions of the SA academic management project experts institutions and 2) selection monitoring jointly by the Bank and the PMOs Monitoring Sa Participated I academic Project irregular surveys on Institutions by institutions management assessment implementati SA experts outside the and every on of the project areas monitoring year( except MEGDP 2 jointly funds the mid-term decided by the assessment World Bank year) and PMO IX Monitoring and Evaluation The monitoring and evaluating system designed for the Project can be used for the monitoring and evaluating of the implementation of the MEGDP. However, the methods and it is believed necessary to apply some new methods. It is suggested to establish three independent but cooperative Monitoring Systems: (I) The Government Monitoring System(GMS) (2) The Farmer and Herder Monitoring System(FHMS) (3) The Project Monitoring System(PMS)  Each of them has its own focus. For the GMS, the main target is to -see whether the MEGDP is institutionally implemented and in what way the governments can help in case that there are problems the minority ethnic people have in participation of the Project and the MEGDP; For the FHMS, the main target is to see whether the Village Committees strictly implement the tasks they should complete and whether the objectives of the MEGDP are realized during the implementation of the Project; as for the PMS, the main function is to monitor the work of the GMS and the FHMS and to make suggestions for the MEGDP implementation. In order to ensure the implementation of the MEGDP, irregular monitoring and surveys should be organized eveiy year and the report on the implementation should be presented to the World Bank and the Regional PMO. 1) Irregular supervising Surveys: a) They should be conducted by the independent academic institutions out of the project province and region b) The supervising survey institutions will be decided jointly by the World Bank and the Regional PMO c) The report from the surveys should be presented to the World Bank and the PMO d) The results of the survey should be feedback to the PMOs at all the levels so as to improve the work 2) Social Assessment Social assessment is a necessary procedure for the implementation and monitoring work of the project and the assessment of the project should include that of the implementation of the MEGDP. However, it is suggested that an independent mid-term assessment on the MEGDP should be designed and this type assessment should be conducted by the experts employed by the World Bank The Mid Term Assessment It must be done by independent academic institutions; 1) The supervising survey institutions will be decided jointly by the World Bank and the Regional PMO; 2) The report from the surveys should be presented to the World Bank and the PMO  3) The results of the survey should be feedback to the PMOs at all the levels so as to improve the work The assessment of the Project implementation as whole should include that of the implementation of the MEGDP. But independent evaluation of the implementation of the MEGDP is not only necessary but imperative, for, the MEGDP is concerned specially with whether the interests and demands of minority ethnic peoples are considered and attached importance to. So some new contents and methods are necessary for it. In order conduct successful monitoring and assessment of the implementation of the MEGDP, the participation of Xinjiang local experts is necessary, who will play an independent role in monitoring and providing technical assistance to the MEGDP.  2002/3/27 _gffiSttIg E ~ I o ~ BtIJ E i ffitg 30 1I n ? 9,F$ PUjR" F-. oY q34 I-?Ti 19 RT- iri.ffiQ7 a xJki4tEbMI  PrVT4:Stw mC 20PH,6MPM 49!Tffig a R olFL V, 3