Decision No. 2945/QD-BNN-KL Approves the Support Program for Highland People to Cultivate Sustainable Agriculture and Forestry on Shifting Cultivation Land

Pursuant to …;

Approving the Project to Support Highland People in Sustainable Agricultural and Forestry Cultivation on Shifting Cultivation Land

_______________________

THE MINISTER OF AGRICULTURE AND RURAL DEVELOPMENT

Pursuant to Decree No. 86/2003/NĐ-CP dated July 18, 2003 of the Government stipulating the functions, tasks, powers, and organizational structure of the Ministry of Agriculture and Rural Development;

Considering the proposal of the Director of the Forest Protection Department at Report No. 1134/KL-BV&PCCCR dated October 3, 2007 regarding the approval of the Project to Support Highland People in Sustainable Agricultural and Forestry Cultivation on Shifting Cultivation Land.

Pursuant to …;:

Article 1. Approves the Project "Supporting Highland People in Sustainable Agricultural and Forestry Cultivation on Shifting Cultivation Land" (attached hereto).

Article 2: This Decision shall take effect from the date of signing.

Article 3: The Heads of the Ministry's Office, the Director of the Forest Protection Department, the Directors of Provincial Departments of Agriculture and Rural Development, the Chiefs of Provincial Forest Protection Services under central cities and provinces, and the Heads of relevant units shall be responsible for implementing this decision.

Chapter I. INTRODUCTION. In the midlands and mountainous regions of our country, where ethnic minorities live, there are currently about 1.2 million hectares of shifting cultivation land, commonly found in areas with steep slopes, short-term crops such as corn, sweet potatoes, cassava, upland rice, cultivated using traditional methods, with low productivity, efficiency, and sustainability.
Due to the frequent rotation and expansion of shifting cultivation, it is a direct cause of deforestation; the uncontrolled burning of vegetation also primarily causes forest fires. According to the report of the Central Steering Committee on Urgent Issues in Forest Protection and Fire Prevention, slash-and-burn agriculture is the cause of 60% to 70% of forest fires and approximately 60% of the total annual illegal deforestation area.
Therefore, the construction of the project "Supporting Highland People in Sustainable Agricultural and Forestry Cultivation on Shifting Cultivation Land" is necessary, not only to reduce the direct causes of illegal deforestation and forest fires but also to contribute to the implementation of the Party and State's policy to alleviate poverty among highlanders and protect and develop forest resources.

Article 2. This Decision takes effect from the date of signature.

Chapter II. CURRENT STATUS OF SHIFTLAND CULTIVATION AND MANAGEMENT

2.1. Population and Income of Mountain Ethnic Groups The midlands and mountains are mainly inhabited by ethnic minorities, including: - The Tai-Thai language group, residing primarily in northern mountainous provinces, western parts of Thanh Hoa and Nghe An provinces. - The Hmong-Dao language group, residing primarily in areas intermixed with the Tai-Thai language group in northern mountainous provinces, western parts of Thanh Hoa and Nghe An provinces. - The Han language group, comprising Chinese, San Diu, and San Tri, living mainly in small areas of Quang Ninh, Vinh Phuc, and Thai Nguyen provinces. - The Mon-Khmer language group, residing mainly in western and southeastern parts of Gia Lai province, small areas in western parts of Phu Yen province, and some areas in Dak Lak, Lam Dong, Ninh Thuan, and Binh Thuan provinces. - The Mon-Khmer language group, residing mainly in western parts of Quang Binh, Quang Tri, Thua Thien Hue, Quang Nam, Quang Ngai, Kon Tum provinces, eastern parts of Gia Lai province, and some border areas between Dak Lak and Lam Dong provinces. Most ethnic minority groups in mountainous areas have the custom of shifting cultivation. Their material and spiritual lives, educational levels are low; their farming methods are backward, extensive, and mobile, resulting in low crop yields and rapid soil degradation, leading to a constant shortage of arable land, and in many places, ethnic people continue to illegally clear forests for shifting cultivation to produce staple food to meet the urgent needs of life. According to survey results and research on shifting cultivation and post-shifting cultivation forest recovery in Vietnam (Vo Dai Hai, 2004), the income from mobile farming each year is only 62% of that from stable farming on the same unit area and only meets 60-70% of local food demand. Currently, nearly 90% of ethnic mountain people rely on agriculture and forestry for their livelihoods. Among them, income from crop cultivation (upland rice, corn, sweet potatoes, cassava...) accounts for 58%, animal husbandry 13%, and forestry about 20%.

2.2. Current Distribution and Cultivation Methods

2.2.1. Regarding the distribution of shifting cultivation land According to statistics from the Institute of Forest Inventory and Planning, Ministry of Agriculture and Rural Development in 2004, the shifting cultivation land area of ethnic minorities in highland provinces is currently about 1.2 million hectares, widely distributed across steep terrain, with elevations of 300 meters or higher, of which 43% is concentrated in Northwest region, accounting for 36% in Northeast region (Table 1: Distribution of shifting cultivation land by region and elevation). Table 1: Distribution of shifting cultivation land by region and elevation No. Area (ha) Percentage (%) Elevation (

m)

301- 700

701- 1000

1001- 1700 >1700

1. 199.700 100

597. 920

293. 680

267. 710

40. 390 1

430. 140 36

248. 100

91. 220

70. 600

20. 220 2

514. 050 43

182. 920

149. 760

162. 940

18. 430 3

72. 500 6

53. 640

9. 730

8. 740 390 4

108. 020 9

86. 990

14. 040

6. 870 120 5

73. 340 6

24. 640

28. 910

18. 560

1. 230 6

1. 650

1 630 20 Total area of 1.2 million hectares of shifting cultivation land surveyed includes: - 840 thousand hectares of fixed shifting cultivation land, of which: + About 360 thousand hectares of Hmong, Dao, commonly terraced fields, cultivated with one or two paddy rice crops depending on natural water supply capacity, with yield of about 1-2 tons/ha/crop, located above 700 meters and mainly within the upstream protection planning area; + The remaining 480 thousand hectares are scattered with small scale at elevations of 300-700 meters, with better natural conditions and market access. - 360 thousand hectares of rotational shifting cultivation land (cultivating short-term agricultural crops for a period before leaving fallow), of which: + About 240 thousand hectares with difficult agricultural cultivation conditions, very low crop yields, mainly using slash-and-burn method during dry season to plant short-term agricultural crops. This is a very vulnerable upstream protection area with elevations over 700 meters and slopes over 25%, home to more than 100 thousand Hmong, Dao... people; + The remaining 120 thousand hectares are distributed in rocky areas with thin soil layers.

2. 2.2. Cultivation methods for shifting cultivation The main method of shifting cultivation is slash-and-burn agriculture, which depends on natural conditions and thus yields low productivity per unit area. According to customs and traditions, different ethnic groups have different cultivation methods for shifting cultivation, as follows: - Progressive shifting cultivation (or pioneer shifting cultivation): This method is typically applied by the H'Mong people. Shifting fields are cultivated for several years until the soil becomes depleted (about 3-5 years), after which they are abandoned. - Rotational shifting cultivation: This method is used by the Dao, Ede, Bana, Giẻ Triêng communities. Under this method, shifting fields are cultivated for several years, then left fallow for a period to allow the vegetation cover and soil to recover naturally (about 3-5 years) before being cleared again for the next cultivation cycle. - Supplementary shifting cultivation: This method is employed by the Muong, Thai, Tay, Nung communities. Shifting fields are usually adjacent to stable paddy fields in a combined field-forest model. This cultivation method requires technical support and agricultural extension guidance to help the community adopt integrated farming-forestry-garden practices.

2. 2.3. Crop structure in shifting cultivation Crops such as corn, sweet potatoes, cassava account for 70% of the area; rice terraces make up 30-45%; vegetables and various types of beans 6%; short-term industrial crops 8%; coffee and tea 4%, with the remaining 12% consisting of other types of plants (Table 2. Customs and main crops on shifting fields of some ethnic groups). Table 2: Customs and main crops on shifting fields of some ethnic groups No Ethnic Group Geographical Cultivation Area Types of Commonly Planted Crops 1 Cultivation at altitudes > 700m Rice terrace, corn, cassava 2 Cultivation at altitudes from 300-700m Rice terrace, cassava, corn, sweet potato 3 Cultivation at altitudes from 200-700m Corn, rice, cassava, taro 4 Cultivation at altitudes from 300-700m Rice terrace, cassava, corn, sweet potato 5 E De Cultivation in the Central Highlands Rice, corn, beans, cassava, sweet potato 6 Jarai Cultivation in the Central Highlands Rice terrace, corn, cassava, beans

2. 3. Main characteristics of current shifting cultivation practices - The land usage period has increased while the fallow period has shortened, leading to insufficient time for soil fertility recovery, resulting in soil degradation and low efficiency of shifting cultivation. The average yield of staple food is 3.6 tons/hectare/year, with the rice terrace yield in the Northwest region only reaching an average of 1.1 tons/hectare/harvest. Therefore, under normal weather conditions, provinces in the Northwest region can only meet about 60-70% of local staple food needs. - Due to the impact of market mechanisms and waves of free migration, the nomadic people have shown signs of retaining or selling their cultivation land, continuing to move deeper into forests to clear new fields, thereby reducing the awareness of rotational cultivation and soil fertility restoration, leading to more intense deforestation for cultivation land. - Difficult conditions for irrigated rice cultivation (high mountains, steep slopes, degraded soil, low fertility, undeveloped irrigation systems if present are only small-scale, lacking water sources for cultivation). - People have not been trained or educated, making it difficult to transfer technology and techniques to mountain communities, leading to slow changes in perceptions and conversion to shifting cultivation. - Population pressure continues to increase, leading to higher demand for land use: previously, the fallow period was 8-10 years, now it is only 3-4 years, with some areas even lower, causing the soil to become increasingly impoverished and degraded. - People lack capital for investment as well as inefficient use of borrowed funds; infrastructure is weak (although the Government's Program 135 has invested in poor communes, it has not met infrastructure development needs, so infrastructure in mountainous areas remains very inadequate). - Lack of effective development projects. Many support development projects have not yielded results, such as sugarcane planting projects, dairy cattle breeding projects... - Lack of information on production, processing, markets, development of new varieties, advanced production methods, as well as rational crop groupings with higher yields. Agricultural product prices fluctuate due to market mechanisms. - Agricultural and forestry extension work has not received adequate attention, with the number and quality of extension staff not meeting practical requirements.

2. 4. Current management status of shifting cultivation fields

2. 4.1. Policies and institutions Our country has many policies and initiatives with significant efforts aimed at prioritizing rural mountainous development, alleviating poverty for ethnic communities facing difficulties in remote areas, and fostering integration into overall development. However, policies and institutional frameworks for managing shifting cultivation fields remain complex and have many limitations, including: - There are no clear policies or regulations regarding a systematic and comprehensive management mechanism for shifting cultivation fields. - At the local level, there is currently no specific state agency responsible for managing shifting cultivation fields, leading to a situation where multiple agencies have related responsibilities but lack a coordinating body to direct implementation. - Agricultural and forestry extension work is ineffective; research and transfer of scientific and technological progress and techniques are limited, with some cultivation models transferred to the community not suitable for financial capacity, traditions, perceptions, and levels of the people; some technology transfer projects for producing commercial crops for the community have not established markets or sales networks, leading to the inability of people to sell their products. - The criteria for classifying shifting cultivation fields, unused land, and forest land are unclear and inconsistent. As a result, many areas of rotational fallow fields are classified as unused land, causing management and usage issues for people's land as well as legal disputes. - There are no comprehensive and specific policies to ensure sustainable livelihoods on shifting cultivation land, such as support policies for material, financial, technical, technological, and market aspects.

2. 4.2. Planning work - The planning work for shifting cultivation areas still has many limitations and has not been given due importance, failing to align with land use plans and land allocation, leading to situations where people's farming activities do not follow the plans, and in response to concerns about insufficient farmland, people have to clear forests to obtain land for production. - Areas of land that have long been used by people for shifting cultivation according to traditional practices have yet to be legally assigned long-term usage rights (granting land titles) by local authorities, causing them to lack assurance in their production activities. - Some localities have not implemented the planning work for shifting cultivation areas.

2. 4.3. Awareness at all levels - The attention and guidance on shifting cultivation work by local authorities are still limited, the collaboration among related sectors is not tight enough, considering this as the responsibility of the Ministry of Agriculture and Rural Development, while the latter does not manage state land affairs. - Local authorities at all levels have not effectively and regularly organized the implementation of management work for shifting cultivation, without specific regulations on burning fields for cultivation. Inspection and supervision work is still being neglected. - Although the State pays great attention to the economic and social development of mountainous residents, investment in infrastructure construction, transportation systems, irrigation works, and agricultural and forest product processing in remote areas remains insufficient.

2. 5. General assessment Traditional shifting cultivation activities have contributed significantly to self-sufficiency in the lives of ethnic minorities in mountainous regions over a long period. By applying crop rotation cycles, ethnic groups have learned how to restore soil fertility, creating conditions for continuous, long-term, and sustainable agricultural production to some extent. However, traditional shifting cultivation can only be stable under certain conditions, when there is a large area of natural forests, low population pressure, and no competition regarding land and forest ownership. Currently, all these factors have changed, with degraded land, fewer natural forests, and increasing population affecting the traditional shifting cultivation methods, making it unsustainable.

Article 3. The Head of the Ministry's Office, the Director of the Forest Protection Department, the Directors of Provincial Departments of Agriculture and Rural Development, the Chiefs of Provincial Forest Protection Services, and the Heads of relevant units shall be responsible for implementing this decision.

KT. MINISTER DEPUTY PROJECT
"SUPPORTING HIGHLAND RESIDENTS TO PRACTICE SUSTAINABLE AGRICULTURAL AND FORESTRY PRODUCTION ON SHIFTING CULTIVATION LANDS FOR THE PERIOD 2008-2012" (Attached to Decision No. 2945/QD-BNN-KL dated October 5, 2007 of the Ministry of Agriculture and Rural Development)

Chapter III. STATE POLICIES RELATED TO SHIFTLAND MANAGEMENT - Law on Protection and Development of Forests 2004.
- Decree No. 56/2005/ND-CP dated April 26, 2005 on promoting agriculture and fisheries.
- Decree No. 181/2004/ND-CP dated October 29, 2004 guiding the implementation of the Land Law.
- Decree No. 23/CP dated March 3, 2006 on guiding the implementation of the Law on Protection and Development of Forests.
- Decision No. 135/1998/QD-TTg dated July 31, 1998 of the Prime Minister approving the Program for Economic and Social Development of Particularly Difficult Communes in Mountainous Areas and Remote Regions.
- Decision No. 134/2004/QD-TTg dated July 20, 2004 of the Prime Minister on several support policies for production land, residential land, housing, and drinking water for poor households of ethnic minority groups with difficult living conditions.
- Decision No. 304/2005/QD-TTg dated November 23, 2005 of the Prime Minister on pilot transfer of forests and forest protection responsibilities to individual households and communities in villages inhabited by ethnic minorities in the Central Highlands provinces.
- Decision No. 210/2006/QD-TTg dated September 12, 2006 of the Prime Minister on issuing principles, criteria, and standards for allocating investment development funds from the state budget for the period 2007-2010.
- Decision No. 18/2007/QD-TTg dated February 5, 2007 of the Prime Minister approving the Strategy for Forestry Development in Vietnam for the period 2006-2020.
- Decision No. 33/2007/QD-TTg dated March 5, 2007 of the Prime Minister on support policies for relocation and settlement of ethnic minority groups for the period 2007-2010.
- Decision No. 100/2007/QD-TTg dated July 6, 2007 of the Prime Minister amending and supplementing some articles of Decision No. 661/QD-TTg dated July 29, 1998 on the objectives, tasks, policies, and implementation of the Project to plant five million hectares of new forests.
- Decision No. 147/2007/QD-TTg dated September 10, 2007 on several policies for developing production forests for the period 2007-2015.
- Comprehensive Strategy for Growth and Poverty Reduction (Approved by the Government on May 21, 2002, Document No. 2685/VPCP-QHQT).
- Directive No. 36/2000/CT-BNN-KL dated April 6, 2000 of the Minister of Agriculture and Rural Development on zoning for shifting cultivation production.
- Directive No. 15/2007/CT-BNN dated February 13, 2007 of the Minister of Agriculture and Rural Development on strengthening the management of shifting cultivation activities.
- Circular Joint No. 30/2006/TTLT-BTC-BNN & PTNT dated April 6, 2006 guiding the management and use of public funds for agricultural and fishery promotion activities.
- Circular No. 38/2007/TT-BNN dated April 25, 2007 guiding the procedures and formalities for transferring forests, leasing forests, and reclaiming forests for organizations, households, individuals, and village communities.
- Document No. 23/BNN-LN dated January 6, 2006 on building a project to provide food subsidies for planting forests instead of shifting cultivation.
- Document No. 3165/BNN-LN dated November 28, 2006 of the Ministry of Agriculture and Rural Development on building a project to support highland residents to practice agricultural and forestry production instead of traditional shifting cultivation.

Chapter IV. OBJECTIVES, REQUIREMENTS, TASKS, AND SCALE OF THE PROJECT

4.1. Objectives - Support and create conditions for people to cultivate agriculture and forestry sustainably on shifting cultivation land throughout the country, gradually changing the practice of slash-and-burn cultivation to intensive farming with increased yields on shifting cultivation land and developing forestry, enhancing land use efficiency, contributing to stabilizing livelihoods, creating jobs, and generating income from agriculture and forestry for mountain residents. - Ensure that shifting cultivation activities do not negatively impact forest resources, contributing effectively to the Program of Planting Five Million Hectares of New Forests and the Forestry Development Strategy for the period 2006-2020.

4.2. Requirements - Ensure that shifting cultivation is only carried out on areas that have been planned, ending the practice of slash-and-burn cultivation without planning and illegal encroachment on forest areas. - The planning of shifting cultivation areas must be linked to the planning of forest allocation and forestry land allocation. Clearly identify areas suitable for agricultural cultivation, combined agriculture-forestry cultivation, and afforestation. - Apply scientific and technological progress, strengthen agricultural extension work to increase crop yields on shifting cultivation land. Maintain traditional shifting cultivation areas appropriately. For low-yield, steep-sloped shifting cultivation areas at high risk of erosion, convert them to afforestation and planting multi-purpose trees suitable for local conditions and mountain residents' customs. - Ensure equal support for shifting cultivation for all people; prioritize support for ethnic minorities in difficult areas and key shifting cultivation zones, those who manage shifting cultivation land according to customary practices and have existed for a long time without disputes, households and individuals who have received forest protection payments to improve their living standards, contributing to poverty reduction. - Identify tree species suitable for each ecological region for protective forests and production forests. - Integrate and coordinate programs, projects, and funds in the area with support for ethnic minorities to avoid overlap and ensure investment effectiveness.

4.3. Tasks Ensure effective management and use of shifting cultivation land (approximately 1.2 million hectares nationwide) as follows:

4.3.1. Transition from rotational cultivation methods (approximately 360 thousand hectares) - Shifting cultivation on rocky mountains with thin soil layers (approximately 120 thousand hectares): Mainly used for production forest planting. The State supports high economic value forest planting. Create conditions for people to engage in long-term and stable production and business on this shifting cultivation land. - Shifting cultivation on land designated as upstream protective areas (approximately 240 thousand hectares): + For areas within very weak protective forest planning above 1700 meters (approximately 40 thousand hectares): Allocate to households for protective forest planting or implement natural regeneration promotion through enclosure, which may be allocated to village communities for management and protection, prohibiting burning to allow natural regeneration. + For remaining areas (approximately 200 thousand hectares): Create conditions for people to plant protective forests combined with short-term food crops during the initial period or fruit trees and industrial crops. The planted species should be suitable for local conditions and ecology, multi-purpose trees (capable of protecting the environment and soil while providing non-timber forest products). Depending on local land funds, allocate land and forests to households based on a rotational forest-shifting cultivation system design.

4.3.2. Intensive fixed shifting cultivation (approximately 840 thousand hectares) Gradually transition to intensive agricultural and livestock farming methods, combining forest planting, industrial crops, and fruit trees. - For fixed shifting cultivation currently yielding relatively high results (approximately 80 thousand hectares): Strengthen the application of intensive techniques to increase yields, expand models. These models contain much local knowledge and experience of the people and should be considered good visual models to enhance agricultural and forestry extension work. - For fixed shifting cultivation with low yields and poor results (approximately 400 thousand hectares): Focus on applying intensive techniques, changing crop structures to high-yielding and quality varieties. Among these: + Agricultural cultivation approximately 70% (280 thousand hectares), + Industrial tree planting 10% (40 thousand hectares), + Fruit tree planting and grass planting for livestock 10% (40 thousand hectares), + Maintaining traditional shifting cultivation such as sacred rice for ancestor worship, maintaining ethnic cultural traditions 10% (40 thousand hectares). - For fixed shifting cultivation above 700 meters but mostly terraced fields (approximately 360 thousand hectares), usage direction as follows: + Stable terraced field areas (70% of the area, approximately 250 thousand hectares): Apply intensive techniques, plant new high-yield food crop varieties. + Areas without terraced fields or temporary terraced fields (28% of the area, approximately 100 thousand hectares): Production forest planting (approximately 54 thousand hectares); industrial tree planting (approximately 18 thousand hectares); fruit tree planting in suitable and traditional areas (approximately 18 thousand hectares); grass planting for livestock grazing (approximately 10 thousand hectares). + Maintain traditional shifting cultivation areas such as sacred rice for ancestor worship, maintaining ethnic cultural traditions (approximately 10 thousand hectares). Land use directions for shifting cultivation are summarized in Table 3. Table 3. Directions for Shifting Cultivation Land Use Type of Shifting Cultivation Area (ha) Usage Direction

a) Rotational Shifting Cultivation

360,000 - Shifting cultivation on rocky mountains with thin soil layers

120,000 Production forest planting. - Shifting cultivation on land designated as upstream protective areas

240,000 Upstream protective forest planting + Areas within very weak protective forest planning above 1700 meters

m shall be used.

40,000 Protective forest planting or natural regeneration promotion through enclosure, + Remaining areas designated as upstream protective areas.

Article 200. 000 - Plant protective forests upstream, combined with short-term food crops during the initial period or fruit trees, industrial crops.

b) Fixed shifting cultivation plots

Article 840. 000 - Fixed shifting cultivation plots at altitudes of 300 - 700 meters, currently being cultivated with relatively high efficiency.

Article 80. 000 Continue agricultural cultivation, apply intensive technical methods to increase yield, expand models. - Fixed shifting cultivation plots at altitudes of 300 - 700 meters, currently being cultivated with low yields and efficiency.

Article 400. 000 Continue agricultural cultivation, combine planting industrial crops, fruit trees, grass for livestock grazing, and retain a portion for traditional shifting cultivation. Apply intensive technical methods, change crop structure to high-yield and quality varieties. + Agricultural cultivation

Article 280. 000 + Planting industrial crops

Article 40. 000 + Planting fruit trees, grass for livestock grazing

Article 40. 000 + Traditional shifting cultivation plots

Article 40. 000 Plant sacred rice, maintain ethnic cultural traditions - Fixed shifting cultivation plots at altitudes above 700 meters, mostly having terraced fields

Article 360. 000 + Areas with stable terraced fields.

Article 250. 000 Continue agricultural cultivation, apply intensive technical methods, plant new high-yield food crop varieties. + Areas without terraced fields or temporary terraced fields

Article 100. 000 including:

54. 000

18. 000

18. 000

Article 10. 000 Plant production forests Plant industrial crops Plant fruit trees Plant grass for livestock grazing + Traditional shifting cultivation plots

Article 10. 000 Plant sacred rice, maintain ethnic cultural traditions

Article 4. 4. Scale of the project The project is expected to be implemented over a five-year period (2008 - 2012) on all national shifting cultivation land (approximately 1.2 million hectares), involving 500 - 600 thousand households with more than 1.5 million people in about 1,200 communes, focusing on 34 key forestry provinces across six regions: - Northwest: including four provinces of Dien Bien, Son La, Lai Chau, Hoa Binh. - Northeast: including eleven provinces of Ha Giang, Tuyen Quang, Phu Tho, Cao Bang, Bac Kan, Thai Nguyen, Quang Ninh, Lang Son, Bac Giang, Lao Cai, Yen Bai. - North Central: including six provinces of Thanh Hoa, Nghe An, Ha Tinh, Quang Binh, Quang Tri, Thua Thien Hue. - South Central: including five provinces of Quang Nam, Quang Ngai, Binh Dinh, Phu Yen, Khanh Hoa. - Central Highlands: including five provinces of Gia Lai, Kon Tum, Dak Lak, Dak Nong, Lam Dong. - Southeast: including three provinces of Binh Phuoc, Ninh Thuan, Binh Thuan. The total financial support amount is 30,469 billion VND and 310,500 tons of staple food (rice), estimated for each region as follows: Table 4: Average level of support in terms of capital and staple food (rice) by region No Area (ha) Support Level Capital (billion VND) Staple Food (tons) Nationwide

1. 200.000

3. 046,9

310. 500 1

430. 000

1. 091,8

111. 300 2

514. 000

1. 305,1

Article 133. 000 3 North Central

73. 000 185,4

Article 18. 900 4 South Central

108. 000 274,2

27. 900 5

73. 000 185,4

Article 18. 900 6 Southeast

2. 000 5,0 500

Chapter V. SOLUTIONS

Article 5. 1. Mechanism and policy - Provide production land and invest in infrastructure construction in mountainous rural areas from the project funds 134, 135 and other government sources; construct water conservancy projects to ensure irrigation conditions for paddy and vegetable cultivation areas, creating a basis for increasing cropping intensity and intensifying crop production. - Issue specific guidelines to implement Decisions 100/2007/QD-TTg dated July 6, 2007 and Decision 147/2007/QD-TTg dated September 10, 2007. - Develop planting procedures and technical measures for each species based on determining crop groups and main species suitable for economic ecological zones; study natural characteristics and markets, particularly paying attention to processing, preservation, and consumption needs according to ecological zones. - Establish a system of service centers providing seeds, fertilizers, pesticides, processing facilities, and create markets for farmers' products based on preferential tax and financial policies to attract domestic and international credit organizations with preferential loans. - Create conditions for highland residents to access state-subsidized loans. - Have clear mechanisms to strictly and effectively monitor land use.

Article 5. 2. Land planning and allocation for shifting cultivation plots - Review, inventory, classify, and specifically determine the area of shifting cultivation land for cultivation, classify and determine types of shifting cultivation land suitable for agricultural production, protective forest planting, production forest planting, industrial crop planting, fruit tree planting, grass planting for livestock grazing, and areas of shifting cultivation plots to continue traditional shifting cultivation practices by ethnic minorities as a basis for developing shifting cultivation production plans and support schemes, balancing needs to support sustainable agricultural and forestry production on shifting cultivation land. - Study land use planning methods and land allocation at commune and village levels. Clearly define criteria for different types of land according to their purposes, especially defining boundaries between forestry and agricultural lands. Land use planning for shifting cultivation must involve consensus with local residents. - Based on the shifting cultivation land plan, allocate land to residents for stable agricultural and forestry production. - The choice of crops on shifting cultivation plots is decided by the residents themselves. The State recommends high-quality seed varieties that are market-preferred and have a reasonable structure for each region's soil to achieve high economic efficiency and sustainable development.

Article 5. 3. Mobilizing the masses and training, promoting agriculture and forestry - Educate residents about natural resource management, enhancing their awareness and knowledge about natural resource management and the harm of slash-and-burn practices; about the State's policy in supporting sustainable agricultural and forestry production on shifting cultivation land to encourage voluntary participation by ethnic minorities. - Build demonstration cultivation models on sloping land in localities, organize visits to fixed cultivation models with high yields, production volumes, and economic efficiency; develop teaching materials to guide residents in learning, organize training sessions to teach technical skills to residents in localities.

5. 4. Science and technology - Scientific and technological solutions in mountainous areas should focus on promoting the restructuring of crop structures, producing goods in accordance with the direction of conserving and developing land resources, exploiting strengths related to forests, land, special crop varieties, and local experience, promoting the development of goods with small volumes but high value, which do not require significant investment or modern transportation means for transport. - Research and apply models of agroforestry cultivation, slope agriculture land technology (SALT) suitable for each region's conditions; develop and apply technology for producing specialty agricultural and forestry products such as cultivating and processing dried mushrooms, turmeric, medicinal plants, and other non-timber forest products, livestock breeding, poultry farming, and veterinary services, organizing and supervising resource management activities. - Implement pilot projects supporting highland residents to cultivate sustainable agriculture and forestry on shifting cultivation lands in three regions: Northeast, Northwest, and Central Highlands, aiming to draw lessons and experiences for wider implementation.

Chapter VI. ESTIMATED INVESTMENT COSTS

6. 1. Estimated costs and food requirements Table 5: Total estimated costs and food requirements by categories No Category Area (ha) State support Source Cost (billion VND) Rice (ton) 1 Plantation Forests

174. 000 461,1

130. 500 Decision 147 Decision 100 2 Protective Forests Cultivation and Encirclement Promotion of Regeneration

240. 000

1. 612,8

180. 000 Decision 100 3 Conversion of Shifting Cultivation Fields to Permanent Fields

46. 000 230 Decisions 134, 135 4 Irrigation System, Agricultural Extension: Applying scientific and technological progress, restructuring crop structures, transferring technology to improve yields for permanent fields; propaganda and training

740. 000 370 Decision 135 Decree 56, Decision 33 5 Planning Support, Land Allocation, Forest Allocation 96 6 Management Fee (10%) 277 Allocation: Central: 0.7%; Local: 1.3%, Project Owner: 8%

1. 200.000

3. 046,9

310. 500

6. 2. Sources of cost and food support The funds for encirclement promotion of regeneration and protective forest planting from the sources specified in Decision 100/2007/QĐ-TTg dated July 6, 2007 of

Chapter VII. IMPLEMENTATION SCHEDULE AND SUPPORT REQUIREMENTS BY YEARS

7. 1. Implementation Schedule The schedule for plantation forest planting, protective forest cultivation and encirclement promotion, conversion of shifting cultivation fields to permanent fields, construction of irrigation systems, implementation of agricultural extension activities, application of scientific and technological progress, restructuring crop structures, and technology transfer to improve yields for permanent fields according to the following years: Table 6. Expected implementation schedule of the project by years No Category Area (ha) 2008 2009 2010 2011 2012 1 Plantation Forests

174. 000

17. 400

26. 100

43. 500

43. 500

43. 500 2 Protective Forests Cultivation and Encirclement Promotion

240. 000

24. 000

36. 000

60. 000

60. 000

60. 000 3 Conversion of Shifting Cultivation Fields to Permanent Fields

46. 000

4. 600

6. 900

11. 500

11. 500

11. 500 4 Irrigation System, Agricultural Extension: Application of scientific and technological progress, restructuring crop structures, technology transfer to improve yields for permanent fields.

740. 000

74. 000

111. 000

185. 000

185. 000

185. 000

1. 200.000

120. 000

180. 000

300. 000

300. 000

300. 000 To complete the implementation schedule above, in 2007, the Ministry of Agriculture and Rural Development will build and approve the project. In 2007 and 2008, localities will build their local projects and approve investment projects for implementation. By 2010, an interim evaluation will be conducted to prepare for building the project for the next five-year period.

7. 2. Support Requirements by Years Based on the implementation schedule of the project's activities, the requirements for food and capital support by year are expected as follows (Tables 7 and 8). Table 7: Food support requirements (rice) by year No Category Food (ton) 2008 2009 2010 2011 2012 1 Plantation Forests

130. 500

13. 050

19. 575

32. 625

32. 625

32. 625 2 Protective Forests Cultivation and Encirclement Promotion

180. 000

18. 000

27. 000

45. 000

45. 000

45. 000

310. 500

31. 050

46. 575

77. 625

77. 625

77. 625 Table 8: Cost support requirements by year No Category Cost (billion VND) 2008 2009 2010 2011 2012 1 Plantation Forests 461.1 46.1 69.1 115.3 115.3 115.3 2 Protective Forests

1. 612.8 161.3 241.9 403.2 403.2 403.2 3 Conversion of Shifting Cultivation Fields to Permanent Fields 230 23 34.5 57.5 57.5 57.5 4 Irrigation System, Agricultural Extension: Application of scientific and technological progress, restructuring crop structures, technology transfer to improve yields for permanent fields; propaganda and training 370 37 55.5 92.5 92.5 92.5 5 Planning Support, Land Allocation, Forest Allocation 96 19.2 19.2 19.2 19.2 19.2 6 Management Fee 277 55.4 55.4 55.4 55.4 55.4

3. 046,9 342 475,7 743,1 743,1 743,1

Chapter VIII. RESULTS AND EFFECTS OF THE PROJECT

8.1 Results - After 5 years (2008 - 2012) implementing the project, the main expected results are as follows: - Planting production forests: 174,000 hectares - Encircling and nurturing to promote regeneration and planting protective forests at the headwaters, combined with planting short-term food crops during the initial period or fruit trees, industrial crops reaching 240,000 hectares. - Approximately 46,000 hectares of shifting cultivation fields will be converted to permanent fields for planting industrial crops, fruit trees... creating conditions for the application of intensive farming methods. - The area of permanent fields for growing food crops (approximately 740,000 hectares) will be improved in terms of irrigation systems, applying intensive farming methods, increasing cropping intensity, and restructuring crop types to achieve high efficiency.

8.2 Effects of the Project

8.2.1 Economic effects - Stabilizing shifting cultivation production currently existing (about 1.2 million hectares). Increasing land use efficiency in shifting cultivation fields by 1.5 to 2 times. Farmers have stable agricultural and forestry production land, meeting local food needs, gradually improving and enhancing their quality of life. - Forming models of cultivation on sloping land, including some high-yielding and economically efficient agricultural and forestry crops, industrial crops, and fruits, fulfilling protective functions.

8.2.2 Social effects - Significantly reducing poverty rates for about 500,000 to 600,000 households relying on shifting cultivation, ensuring an average of 2 hectares of agricultural and forestry land per household for sustainable and diversified production (agriculture, forestry, industrial crops, fruits, livestock); solving employment for nearly 200,000 workers and helping people stabilize their lives through food support during the process of converting part of shifting cultivation land to forest planting, contributing positively to the national policy of eradicating poverty, adding momentum for remote areas to develop. - Increasing the average income of people in mountainous regions by 50% to 80% (Appendix 1). - Creating opportunities for wealth creation for families with economic potential and technical knowledge through investment in cultivation models.

8.2.3 Environmental effects - The current shifting cultivation land (about 1.2 million hectares) when planned with appropriate cultivation methods will reduce soil erosion and degradation. Converting part of the area to forest planting contributes to enhancing upstream protection capabilities. - Land resources are protected, limiting deforestation and slash-and-burn practices that cause forest fires. Contributing to building and protecting upstream areas as well as natural landscapes, gradually resolving the issue of shifting cultivation.

Chapter IX. IMPLEMENTATION ORGANIZATION

9.1 Implementation of the Project - The implementation of the project must be based on comprehensive solutions, involving all levels, sectors, localities, and people from planning to monitoring, inspecting, and evaluating the implementation results; under the guidance of the Government and close cooperation between ministries and sectors. - At the local level, the project is implemented through integrating investment projects from related program funds. Building and implementing investment projects according to current regulations.

9.2 Program Management

9.2.1 Ministry of Agriculture and Rural Development The Ministry of Agriculture and Rural Development establishes a Steering Committee for the implementation of the project, entrusting the Forest Protection Department as the permanent body of the Steering Committee, leading and coordinating with relevant units inside and outside the agriculture and rural development sector to implement the project. The Steering Committee is responsible for working together with units and localities to implement, monitor, and supervise progress as well as results. Guiding localities to build detailed plans and projects for each province. Establishing mechanisms to coordinate the implementation of projects. Regularly inspecting and supervising the implementation of projects in localities and compiling the situation of project implementation to report to the Government.

9.2.2 People's Committees at all levels

a) Provincial People's Committee - Directing and assigning the Department of Agriculture and Rural Development to organize the formulation of a project to support highland residents in sustainable agricultural and forestry cultivation on shifting cultivation land locally, while organizing the formulation and integration of investment projects from related program funds. - Allocating investment capital according to the current regulations of the State. - Monitoring, inspecting, evaluating, and reporting the results of implementation to the Steering Committee established by the Ministry of Agriculture and Rural Development, and at the same time proposing appropriate measures and policies to effectively achieve the objectives of the project.

b) District People's Committee - Integrating investment projects from related program funds within the district. - Assigning and issuing land use right certificates to households and individuals currently cultivating shifting cultivation land. - Promoting and disseminating the State's policy on supporting people in sustainable agricultural and forestry cultivation on shifting cultivation land.

c) Commune People's Committee - Promoting and disseminating the State's policy on supporting people in sustainable agricultural and forestry cultivation on shifting cultivation land. - Supervising the implementation of investment projects from related programs within the commune.

Chapter X. CONCLUSION. Shifting cultivation is a long-standing form of agricultural production closely associated with ethnic communities living in highland areas not only in our country but also in many places around the world. Based on the practical experience of managing shifting cultivation fields over recent years and the trend of economic and social development in the future, it is necessary to develop a proposal to support highland residents in sustainably cultivating agriculture and forestry on shifting cultivation lands. The implementation process of this proposal will gradually stabilize and improve the livelihoods of ethnic mountain communities, maintain political security and social order and safety in mountainous rural areas; limit and eventually prevent the practice of clearing and burning forests for shifting cultivation, contributing to protecting forest resources and effectively implementing the Party and State's poverty alleviation program.