(Translated from the original Tibetan)
MEMORANDUM ON GENUINE AUTONOMY FOR THE TIBETAN PEOPLE
I INTRODUCTION
Since the renewal of direct contact
with the Central Government of the People’s Republic of China (PRC) in
2002, extensive discussions have been held between the envoys of His
Holiness the 14th Dalai Lama and representatives of the Central
Government. In these discussions we have put forth clearly the
aspirations of Tibetans. The essence of the Middle Way Approach is to
secure genuine autonomy for the Tibetan people within the scope of the
Constitution of the PRC. This is of mutual benefit and based on the
long-term interest of both the Tibetan and Chinese peoples. We remain
firmly committed not to seek separation or independence. We are seeking
a solution to the Tibetan problem through genuine autonomy, which is
compatible with the principles on autonomy in the Constitution of the
People’s Republic of China (PRC). The protection and development of the
unique Tibetan identity in all its aspects serves the larger interest
of humanity in general and those of the Tibetan and Chinese people in
particular.
During the seventh round of talks in
Beijing on 1 and 2 July 2008, the Vice Chairman of the Chinese People’s
Political Consultative Conference and the Minister of the Central
United Front Work Department, Mr. Du Qinglin, explicitly invited
suggestions from His Holiness the Dalai Lama for the stability and
development of Tibet. The Executive Vice Minister of the Central United
Front Work Department, Mr. Zhu Weiqun, further said they would like to
hear our views on the degree or form of autonomy we are seeking as well
as on all aspects of regional autonomy within the scope of the
Constitution of the PRC.
Accordingly, this memorandum puts
forth our position on genuine autonomy and how the specific needs of
the Tibetan nationality for autonomy and self-government can be met
through application of the principles on autonomy of the Constitution
of the People’s Republic of China, as we understand them. On this
basis, His Holiness the Dalai Lama is confident that the basic needs of
the Tibetan nationality can be met through genuine autonomy within the
PRC.
The PRC is a multi-national state, and
as in many other parts of the world, it seeks to resolve the
nationality question through autonomy and the self-government of the
minority nationalities. The Constitution of the PRC contains
fundamental principles on autonomy and self-government whose objectives
are compatible with the needs and aspirations of the Tibetans.
Regional national autonomy is aimed at opposing both the oppression and
the separation of nationalities by rejecting both Han Chauvinism and
local nationalism. It is intended to ensure the protection of the
culture and the identity of minority nationalities by powering them to
become masters of their own affairs.
To a very considerable extent Tibetan
needs can be met within the constitutional principles on autonomy, as
we understand them. On several points, the Constitution gives
significant discretionary powers to state organs in the decision-making
and on the operation of the system of autonomy. These discretionary
powers can be exercised to facilitate genuine autonomy for Tibetans in
ways that would respond to the uniqueness of the Tibetan situation. In
implementing these principles, legislation relevant to autonomy may
consequently need to be reviewed or amended to respond to the specific
characteristics and needs of the Tibetan nationality. Given good will
on both sides, outstanding problems can be resolved within the
constitutional principles on autonomy. In this way national unity and
stability and harmonious relations between the Tibetan and other
nationalities will be established.
II RESPECT FOR THE INTEGRITY OF THE TIBETAN NATIONALITY
Tibetans belong to one minority
nationality regardless of the current administrative division. The
integrity of the Tibetan nationality must be respected. That is the
spirit, the intent and the principle underlying the constitutional
concept of national regional autonomy as well as the principle of
equality of nationalities.
There is no dispute about the fact
that Tibetans share the same language, culture, spiritual tradition,
core values and customs, that they belong to the same ethnic group and
that they have a strong sense of common identity. Tibetans share a
common history and despite periods of political or administrative
divisions, Tibetans continuously remained united by their religion,
culture, education, language, way of life and by their unique high
plateau environment.
The Tibetan nationality lives in one
contiguous area on the Tibetan plateau, which they have inhabited for
millennia and to which they are therefore indigenous. For purposes of
the constitutional principles of national regional autonomy Tibetans in
the PRC in fact live as a single nationality all over the Tibetan
plateau.
On account of the above reasons, the PRC has recognised the Tibetan nationality as one of the 55 minority nationalities.
III TIBETAN ASPIRATIONS
Tibetans have a rich and distinct
history, culture and spiritual tradition all of which form valuable
parts of the heritage of humanity. Not only do Tibetans wish to
preserve their own heritage, which they cherish, but equally they wish
to further develop their culture and spiritual life and knowledge in
ways that are particularly suited to the needs and conditions of
humanity in the 21st century.
As a part of the multi-national state
of the PRC, Tibetans can benefit greatly from the rapid economic and
scientific development the country is experiencing. While wanting to
actively participate and contribute to this development, we want to
ensure that this happens without the people losing their Tibetan
identity, culture and core values and without putting the distinct and
fragile environment of the Tibetan plateau, to which Tibetans are
indigenous, at risk.
The uniqueness of the Tibetan
situation has consistently been recognised within the PRC and has been
reflected in the terms of the ‘17 Point Agreement’ and in statements
and policies of successive leaders of the PRC since then, and should
remain the basis for defining the scope and structure of the specific
autonomy to be exercised by the Tibetan nationality within the PRC. The
Constitution reflects a fundamental principle of flexibility to
accommodate special situations, including the special characteristics
and needs of minority nationalities.
His Holiness the Dalai Lama’s
commitment to seek a solution for the Tibetan people within the PRC is
clear and unambiguous. This position is in full compliance and
agreement with paramount leader Deng Xiaoping’s statement in which he
emphasised that except for independence all other issues could be
resolved through dialogue. Whereas, we are committed, therefore, to
fully respect the territorial integrity of the PRC, we expect the
Central Government to recognise and fully respect the integrity of the
Tibetan nationality and its right to exercise genuine autonomy within
the PRC. We believe that this is the basis for resolving the
differences between us and promoting unity, stability and harmony among
nationalities.
For Tibetans to advance as a distinct
nationality within the PRC, they need to continue to progress and
develop economically, socially and politically in ways that correspond
to the development of the PRC and the world as a whole while respecting
and nurturing the Tibetan characteristics of such development. For this
to happen, it is imperative that the right of Tibetans to govern
themselves be recognised and implemented throughout the region where
they live in compact communities in the PRC, in accordance with the
Tibetan nationality’s own needs, priorities and characteristics.
The Tibetan people’s culture and
identity can only be preserved and promoted by the Tibetans themselves
and not by any others. Therefore, Tibetans should be capable of
self-help, self-development and self-government, and an optimal balance
needs to be found between this and the necessary and welcome guidance
and assistance for Tibet from the Central Government and other
provinces and regions of the PRC.
IV BASIC NEEDS OF TIBETANSSubject Matters of Self-government
1) LanguageLanguage
is the most important attribute of the Tibetan people’s identity.
Tibetan is the primary means of communication, the language in which
their literature, their spiritual texts and historical as well as
scientific works are written. The Tibetan language is not only at the
same high level as that of Sanskrit in terms of grammar, but is also
the only one that has the capability of translating from Sanskrit
without an iota of error. Therefore, Tibetan language has not only the
richest and best-translated literatures, many scholars even contend
that it has also the richest and largest number of literary
compositions. The Constitution of the PRC, in Article 4, guarantees the
freedom of all nationalities “to use and develop their own spoken and
written languages …”.
In order for Tibetans to use and
develop their own language, Tibetan must be respected as the main
spoken and written language. Similarly, the principal language of the
Tibetan autonomous areas needs to be Tibetan.
This principle is broadly recognised
in the Constitution in Article 121, which states, “the organs of
self-government of the national autonomous areas employ the spoken and
written language or language in common use in the locality.” Article
10 of the Law on Regional National Autonomy (LRNA) provides that these
organs “shall guarantee the freedom of the nationalities in these areas
to use and develop their own spoken and written languages….”
Consistent with the principle of
recognition of Tibetan as the main language in Tibetan areas, the LRNA
(Article 36) also allows the autonomous government authorities to
decide on “the language used in instruction and enrolment procedures”
with regard to education. This implies recognition of the principle
that the principal medium of education be Tibetan.
2) CultureThe
concept of national regional autonomy is primarily for the purpose of
preservation of the culture of minority nationalities. Consequently,
the constitution of PRC contains references to cultural preservation in
Articles 22, 47 and 119 as also in Article 38 of the LRNA. To Tibetans,
Tibetan culture is closely connected to our religion, tradition,
language and identity, which are facing threats at various levels.
Since Tibetans live within the multinational state of the PRC, this
distinct Tibetan cultural heritage needs protection through appropriate
constitutional provisions.
3) ReligionReligion
is fundamental to Tibetans and Buddhism is closely linked to their
identity. We recognise the importance of separation of church and
state, but this should not affect the freedom and practice of
believers. It is impossible for Tibetans to imagine personal or
community freedom without the freedom of belief, conscience and
religion. The Constitution recognises the importance of religion and
protects the right to profess it. Article 36 guarantees all citizens
the right to the freedom of religious belief. No one can compel another
to believe in or not to believe in any religion. Discrimination on the
basis of religion is forbidden.
An interpretation of the
constitutional principle in light of international standard would also
cover the freedom of the manner of belief or worship. The freedom
covers the right of monasteries to be organised and run according to
Buddhist monastic tradition, to engage in teachings and studies, and to
enroll any number of monks and nuns or age group in accordance with
these rules. The normal practice to hold public teachings and the
empowerment of large gatherings is covered by this freedom and the
state should not interfere in religious practices and traditions, such
as the relationship between a teacher and his disciple, management of
monastic institutions, and the recognition of reincarnations.
4) EducationThe
desire of Tibetans to develop and administer their own education system
in cooperation and in coordination with the central government’s
ministry of education is supported by the principles contained in the
Constitution with regard to education. So is the aspiration to engage
in and contribute to the development of science and technology. We note
the increasing recognition in international scientific development of
the contribution which Buddhist psychology, metaphysics, cosmology and
the understanding of the mind is making to modern science.
Whereas, under Article 19 of the
Constitution the state takes on the overall responsibility to provide
education for its citizens, Article 119 recognises the principle that
“[T]he organs of self-government of the national autonomous areas
independently administer educational …. affairs in their respective
areas…” This principle is also reflected in Article 36 of the LRNA.
Since the degree of autonomy in
decision-making is unclear, the point to be emphasised is that the
Tibetan need to exercise genuine autonomy with regard to its own
nationality’s education and this is supported by the principles of the
constitution on autonomy.
As for the aspiration to engage in and
contribute to the development of scientific knowledge and technology,
the Constitution (Article 119) and the LRNA (Article 39) clearly
recognise the right of autonomous areas to develop scientific knowledge
and technology. 5) Environment ProtectionTibet
is the prime source of Asia’s great rivers. It also has the earth’s
loftiest mountains as well as the world’s most extensive and highest
plateau, rich in mineral resources, ancient forests, and many deep
valleys untouched by human disturbances. This environmental
protection practice was enhanced by the Tibetan people’s traditional
respect for all forms of life, which prohibits the harming of all
sentient beings, whether human or animal. Tibet used to be an unspoiled
wilderness sanctuary in a unique natural environment.
Today, Tibet’s traditional environment
is suffering irreparable damage. The effects of this are especially
notable on the grasslands, the croplands, the forests, the water
resources and the wildlife.
In view of this, according to Articles
45 and 66 of the LNRA, the Tibetan people should be given the right
over the environment and allow them to follow their traditional
conservation practices.
6) Utilisation of Natural ResourcesWith
respect to the protection and management of the natural environment and
the utilisation of natural resources the Constitution and the LRNA only
acknowledge a limited role for the organs of self-government of the
autonomous areas (see LRNA Articles 27, 28, 45, 66, and Article 118 of
the Constitution, which pledges that the state “shall give due
consideration to the interests of [the national autonomous areas]]”.
The LRNA recognises the importance for the autonomous areas to protect
and develop forests and grasslands (Article 27) and to “give priority
to the rational exploitation and utilization of the natural resources
that the local authorities are entitled to develop”, but only within
the limits of state plans and legal stipulations. In fact, the central
role of the State in these matters is reflected in the Constitution
(Article 9).
The principles of autonomy enunciated
in the Constitution cannot, in our view, truly lead to Tibetans
becoming masters of their own destiny if they are not sufficiently
involved in decision-making on utilisation of natural resources such as
mineral resources, waters, forests, mountains, grasslands, etc.
The ownership of land is the
foundation on which the development of natural resources, taxes and
revenues of an economy are based. Therefore, it is essential that only
the nationality of the autonomous region shall have the legal authority
to transfer or lease land, except land owned by the state. In the same
manner, the autonomous region must have the independent authority to
formulate and implement developmental plans concurrent to the state
plans.
7) Economic Development and TradeEconomic
Development in Tibet is welcome and much needed. The Tibetan people
remain one of the most economically backward regions within the PRC.
The Constitution recognises the
principle that the autonomous authorities have an important role to
play in the economic development of their areas in view of local
characteristics and needs (Article 118 of the Constitution, also
reflected in LRNA Article 25). The Constitution also recognises the
principle of autonomy in the administration and management of finances
(Article 117, and LRNA Article 32). At the same time, the Constitution
also recognises the importance of providing State funding and
assistance to the autonomous areas to accelerate development (Article
122, LRNA Article 22).
Similarly, Article 31 of the LRNA
recognises the competence of autonomous areas, especially those such as
Tibet, adjoining foreign countries, to conduct border trade as well as
trade with foreign countries. The recognition of these principles is
important to the Tibetan nationality given the region’s proximity to
foreign countries with which the people have cultural, religious,
ethnic and economic affinities.
The assistance rendered by the Central
Government and the provinces has temporary benefits, but in the long
run if the Tibetan people are not self-reliant and become dependent on
others it has greater harm. Therefore, an important objective of
autonomy is to make the Tibetan people economically self-reliant.
8) Public healthThe
Constitution enunciates the responsibility of the State to provide
health and medical services (Article 21). Article 119 recognises that
this is an area of responsibility of the autonomous areas. The LRNA
(Article 40) also recognises the right of organs of self-government of
the autonomous areas to “make independent decisions on plans for
developing local medical and health services and for advancing both
modern and the traditional medicine of the nationalities.”
The existing health system fails to
adequately cover the needs of the rural Tibetan population. According
to the principles of the above-mentioned laws, the regional autonomous
organs need to have the competencies and resources to cover the health
need of the entire Tibetan population. They also need the competencies
to promote the traditional Tibetan medical and astro system strictly
according to traditional practice.
9) Public SecurityIn
matters of public security it is important that the majority of
security personnel consists of members of the local nationality who
understand and respect local customs and traditions.
What is lacking in Tibetan areas is absence of decision-making authority in the hands of local Tibetan officials.
An important aspect of autonomy and
self-government is the responsibility for the internal public order and
security of the autonomous areas. The Constitution (Article 120) and
LRNA (Article 24) recognise the importance of local involvement and
authorise autonomous areas to organise their security within “the
military system of the State and practical needs and with the approval
of the State Council.”
10) Regulation on population migrationThe
fundamental objective of national regional autonomy and self-government
is the preservation of the identity, culture, language and so forth of
the minority nationality and to ensure that it is the master of its own
affairs. When applied to a particular territory in which the minority
nationality lives in a concentrated community or communities, the very
principle and purpose of national regional autonomy is disregarded if
large scale migration and settlement of the majority Han nationality
and other nationalities is encouraged and allowed. Major demographic
changes that result from such migration will have the effect of
assimilating rather than integrating the Tibetan nationality into the
Han nationality and gradually extinguishing the distinct culture and
identity of the Tibetan nationality. Also, the influx of large numbers
of Han and other nationalities into Tibetan areas will fundamentally
change the conditions necessary for the exercise of regional autonomy
since the constitutional criteria for the exercise of autonomy, namely
that the minority nationality “live in compact communities” in a
particular territory is changed and undermined by the population
movements and transfers. If such migrations and settlements continue
uncontrolled, Tibetans will no longer live in a compact community or
communities and will consequently no longer be entitled, under the
Constitution, to national regional autonomy. This would effectively
violate the very principles of the Constitution in its approach to the
nationalities issue.
There is precedent in the PRC for
restriction on the movement or residence of citizens. There is only a
very limited recognition of the right of autonomous areas to work out
measures to control “the transient population” in those areas. To us it
would be vital that the autonomous organs of self-government have the
authority to regulate the residence, settlement and employment or
economic activities of persons who wish to move to Tibetan areas from
other parts of the PRC in order to ensure respect for and the
realisation of the objectives of the principle of autonomy.
It is not our intention to expel the
non-Tibetans who have permanently settled in Tibet and have lived there
and grown up there for a considerable time. Our concern is the induced
massive movement of primarily Han but also some other nationalities
into many areas of Tibet, upsetting existing communities, marginalising
the Tibetan population there and threatening the fragile natural
environment.
11) Cultural, educational and religious exchanges with other countriesBesides
the importance of exchanges and cooperation between the Tibetan
nationality and other nationalities, provinces, and regions of the PRC
in the subject matters of autonomy, such as culture, art, education,
science, public health, sports, religion, environment, economy and so
forth, the power of autonomous areas to conduct such exchanges with
foreign countries in these areas is also recognised in the LRNA
(Article 42). V APPLICATION OF A SINGLE ADMINISTRATION FOR THE TIBETAN NATIONALITY IN THE PRC
In order for the Tibetan nationality
to develop and flourish with its distinct identity, culture and
spiritual tradition through the exercise of self-government on the
above mentioned basic Tibetan needs, the entire community, comprising
all the areas currently designated by the PRC as Tibetan autonomous
areas, should be under one single administrative entity. The current
administrative divisions, by which Tibetan communities are ruled and
administered under different provinces and regions of the PRC, foments
fragmentation, promotes unequal development, and weakens the ability of
the Tibetan nationality to protect and promote its common cultural,
spiritual and ethnic identity. Rather than respecting the integrity of
the nationality, this policy promotes its fragmentation and disregards
the spirit of autonomy. Whereas the other major minority nationalities
such as the Uighurs and Mongols govern themselves almost entirely
within their respective single autonomous regions, Tibetans remain as
if they were several minority nationalities instead of one.
Bringing all the Tibetans currently
living in designated Tibetan autonomous areas within a single
autonomous administrative unit is entirely in accordance with the
constitutional principle contained in Article 4, also reflected in the
LRNA (Article 2), that “regional autonomy is practiced in areas where
people of minority nationalities live in concentrated communities.” The
LRNA describes regional national autonomy as the “basic policy adopted
by the Communist Party of China for the solution of the national
question in China” and explains its meaning and intent in its Preface:
the minority nationalities, under
unified state leadership, practice regional autonomy in areas where
they live in concentrated communities and set up organs of
self-government for the exercise of the power of autonomy. Regional
national autonomy embodies the state’s full respect for and guarantee
of the right of the minority nationalities to administer their internal
affairs and its adherence to the principle of equality, unity and
common prosperity of all nationalities.
It is clear that the Tibetan
nationality within the PRC will be able to exercise its right to govern
itself and administer its internal affairs effectively only once it can
do so through an organ of self-government that has jurisdiction over
the Tibetan nationality as a whole.
The LRNA recognises the principle that
boundaries of national autonomous areas may need to be modified. The
need for the application of the fundamental principles of the
Constitution on regional autonomy through respect of the integrity of
the Tibetan nationality is not only totally legitimate, but the
administrative changes that may be required to achieve this in no way
violate constitutional principles. There are several precedents where
this has been actually done.
VI THE NATURE AND STRUCTURE OF THE AUTONOMY
The extent to which the right to
self-government and self-administration can be exercised on the
preceding subject matters largely determines the genuine character of
Tibetan autonomy. The task at hand is therefore to look into the manner
in which autonomy can be regulated and exercised for it to effectively
respond to the unique situation and basic needs of the Tibetan
nationality.
The exercise of genuine autonomy would
include the right of Tibetans to create their own regional government
and government institutions and processes that are best suited to their
needs and characteristics. It would require that the People’s Congress
of the autonomous region have the power to legislate on all matters
within the competencies of the region (that is the subject matters
referred to above) and that other organs of the autonomous government
have the power to execute and administer decisions autonomously.
Autonomy also entails representation and meaningful participation in
national decision-making in the Central Government. Processes for
effective consultation and close cooperation or joint decision-making
between the Central Government and the regional government on areas of
common interest also need to be in place for the autonomy to be
effective.
A crucial element of genuine autonomy
is the guarantee the Constitution or other laws provide that powers and
responsibilities allocated to the autonomous region cannot be
unilaterally abrogated or changed. This means that neither the Central
Government nor the autonomous region’s government should be able,
without the consent of the other, to change the basic features of the
autonomy.
The parameters and specifics of such
genuine autonomy for Tibet that respond to the unique needs and
conditions of the Tibetan people and region should be set out in some
detail in regulations on the exercise of autonomy, as provided for in
Article 116 of the Constitution (enacted in LRNA Article 19) or, if it
is found to be more appropriate, in a separate set of laws or
regulations adopted for that purpose. The Constitution, including
Article 31, provides the flexibility to adopt special laws to respond
to unique situations such as the Tibetan one, while respecting the
established social, economic and political system of the country.
The Constitution in Section VI
provides for organs of self-government of national autonomous regions
and acknowledges their power to legislate. Thus Article 116 (enacted in
Article 19 of the LRNA) refers to their power to enact “separate
regulations in light of the political, economic and cultural
characteristics of the nationality or nationalities in the areas
concerned.” Similarly, the Constitution recognises the power of
autonomous administration in a number of areas (Article 117-120) as
well as the power of autonomous governments to apply flexibility in
implementing the laws and policies of the Central Government and higher
state organs to suit the conditions of the autonomous area concerned
(Article 115).
The above-mentioned legal provisions
do contain significant limitations to the decision-making authority of
the autonomous organs of government. But the Constitution nevertheless
recognises the principle that organs of self-government make laws and
policy decisions that address local needs and that these may be
different from those adopted elsewhere, including by the Central
Government.
Although the needs of the Tibetans are
broadly consistent with the principles on autonomy contained in the
Constitution, as we have shown, their realisation is impeded because of
the existence of a number of problems, which makes the implementation
of those principles today difficult or ineffective.
Implementation of genuine autonomy,
for example, requires clear divisions of powers and responsibilities
between the Central Government and the government of the autonomous
region with respect to subject matter competency. Currently there is no
such clarity and the scope of legislative powers of autonomous regions
is both uncertain and severely restricted. Thus, whereas the
Constitution intends to recognise the special need for autonomous
regions to legislate on many matters that affect them, the requirements
of Article 116 for prior approval at the highest level of the Central
Government – by the Standing Committee of National People’s Congress
(NPC) – inhibit the implementation of this principle of autonomy. In
reality, it is only autonomous regional congresses that expressly
require such approval, while the congresses of ordinary (not
autonomous) provinces of the PRC do not need prior permission and
merely report the passage of regulations to the Standing Committee of
the NPC “for the record” (Article 100).
The exercise of autonomy is further
subject to a considerable number of laws and regulations, according to
Article 115 of the Constitution. Certain laws effectively restrict the
autonomy of the autonomous region, while others are not always
consistent with one another. The result is that the exact scope of the
autonomy is unclear and is not fixed, since it is unilaterally changed
with the enactment of laws and regulations are higher levels of the
state, and even by changes in policy. There is also no adequate process
for consultation or for settling differences that arise between the
organs of the Central Government and of the regional government with
respect to the scope and exercise of autonomy. In practice, the
resulting uncertainty limits the initiative of regional authorities and
impedes the exercise of genuine autonomy by Tibetans today.
We do not at this stage wish to enter
into details regarding these and other impediments to the exercise of
genuine autonomy today by Tibetans, but mention them by way of example
so that these may be addressed in the appropriate manner in our
dialogue in the future. We will continue to study the Constitution and
other relevant legal provisions and, when appropriate, will be pleased
to provide further analysis of these issues, as we understand them.
VII THE WAY FORWARD
As stated at the beginning of this
memorandum, our intention is to explore how the needs of the Tibetan
nationality can be met within the framework of PRC since we believe
these needs are consistent with the principles of the Constitution on
autonomy. As His Holiness the Dalai Lama stated on a number of
occasions, we have no hidden agenda. We have no intention at all of
using any agreement on genuine autonomy as stepping stone for
separation from the PRC.
The objective of the Tibetan
Government in Exile is to represent the interests of the Tibetan people
and to speak on their behalf. Therefore, it will no longer be needed
and will be dissolved once an agreement is reached between us. In fact,
His Holiness has reiterated his decision not to accept any political
office in Tibet at any time in the future. His Holiness the Dalai Lama,
nevertheless, plans to use all his personal influence to ensure such an
agreement would have the legitimacy necessary to obtain the support of
the Tibetan people.
Given these strong commitments, we
propose that the next step in this process be the agreement to start
serious discussions on the points raised in this memorandum. For this
purpose we propose that we discuss and agree on a mutually agreeable
mechanism or mechanisms and a timetable to do so effectively.