图为尊者达赖喇嘛特使在达兰萨拉召开记者会（朱瑞拍摄。）
尊者达赖喇嘛特使与北京第八次会谈，谈的是什么？
11月10日，中共统战部副部长朱维群在新闻发布会上说，达赖喇嘛特使到北京的主要目的是“向我们提交了一份《为全体藏民获得真正自治的备忘录》”，然后说“尽管‘备忘录’故意使用大量晦涩不清的语言，但可以清楚地看出，你们并没有放弃一贯的分裂主义主张。”
11月16日，尊者达赖喇嘛特使在达兰萨拉召开记者会，介绍藏中第八次会谈状况，并且公开了这份备忘录，实则名为《全体西藏民族实现名符其实自治的建议》。
那么，我在这里把这份备忘录的中文译本转载于此，看看是谁在强词夺理。
《全体西藏民族实现名符其实自治的建议》
第一、介绍
2002 年与中华人民共和国中央政府恢复对话以后，十四世达赖喇嘛的代表与中央政府代表之间多次进行了会谈，其间，我方详细阐释了西藏人民的真实愿望。以互利为基 础的中间道路之精神是，西藏民族在不违背中华人民共和国宪法宗旨的情况下，得到名副其实的民族自治地位。这也是基于藏汉民族眼前和长远的利益。我们明确做 出了不寻求独立或分裂的承诺，并设法通过名符其实的民族自治来解决西藏问题。这完全符合中华人民共和国宪法中有关自治的条款。而且保护和发展西藏民族的特 性与形式，不仅对整个人类，对藏汉民族尤为有利。
2008年7月1至2日举行的第七次会谈期间，中共政协副主席。中央统战部部长杜青林先 生表达了希望达赖喇嘛对西藏的稳定和发展提出建议或意见的呼吁；中央统战部常务副部长朱维群也表示希望听到藏人所寻求的自治的标准或形式，以及在不违背中 华人民共和国宪法的情况下，我方对地方区域自治的看法。因此，本建议详细阐释了我们对名符其实自治的立场， 以及根据我们对中华人民共和国宪法的理解，若能确实执行，可以满足西藏人民特别利益要求的立场。达赖喇嘛也相信，在中华人民共和国的框架下，如果实行名符 其实的自治，则西藏人民的基本需求应可以得到满足。中华人民共和国是一个多民族的国家，和别的国家一样，通过赋予各少数民族自治的权利来解决民族问题。中 华人民共和国宪法有关自治的基本原则和目的，与西藏人民的需求和愿望是相符的。民族区域自治的目的是在抛弃大汉族主义和地方民族主义的前提下，避免民族压 迫和民族分裂，通过赋予各民族当家作主的权利，以保障各少数民族的特性和文化。
根据我们的理解，宪法有关自治的原则，可以在一定程度上满 足藏人的需求。宪法在一些相关问题上，对相关国家机关在自治问题上赋予了特别解决或实施的权利，要实现基于西藏特性而实施的名符其实的自治，施行上述各项 特殊权利是必须的。在施行过程中，为了与西藏民族的需求和特性相适宜，可能需要对某些自治条款重新进行研究和调正。如果双方真的具有诚意，则目前的所有问 题都可以通过宪法规定的自治原则得到解决。如此，则国家的统一稳定，藏民族与其他各民族间的和谐亲密关系等均可实现。
第二、尊重西藏民族的同一性
抛开现行的行政区划，所有藏人做为同一的民族，统一聚居的现实必须得到尊重。这不仅符合宪法有关民族区域自治的宗旨，目的和基本原则，而且也是实现民族平等的基础。
不论语言，文化，佛教传统或是独特的风俗习惯等，西藏民族具有同一的民族属性是不争的事实。西藏民族不仅具有共同的历史，而且不论其政治或行政区域如何地分合，其宗教，文化，教育，语言，生活习惯，地理环境等始终都是统一的。
以地理环境而言，所有藏人都聚居在高原地带。由于西藏民族几千年来一直居住在西藏高原，因此西藏民族也是西藏高原的原住民族。根据宪法有关民族区域自治的原则，事实上藏人做为一个民族世代居住在整个西藏高原。
基于上述事实，中华人民共和国也承认西藏民族是55个少数民族中的一个民族。
第三、藏人的真实期望
西藏民族有它独特的历史，文化，宗教和传统风俗习惯，这一切也是人类文明宝贵的一部分。西藏民族希望保存祖先留下的这些宝贵遗产，并根据二十一世纪的需求，弘扬和发展这些宗教与文化遗产。
如 果做为多民族之中华人民共和国的一员而共处，则西藏民族将会从国家的经济与科学发展中得到巨大利益，我们希望在这一发展过程中尽己一份力，共同协力配合。 同时，西藏民族也希望西藏民族的特性，民族文化和精神得以保存和延续；希望西藏民族自古以来世代居住之脆弱的高原生态环境能够得到保护。
对西藏民族特殊性的承认是一直的，这一点在十七条协议，以及历届中华人民共和国领导人的讲话或政策中都有明确的表现。确定西藏民族的自治地位和自治形式等都是基于这一点的。宪法也确定了根据少数民族的不同特性和需求而予宽容对待的基本原则。
达 赖喇嘛有关在中华人民共和国的框架下，解决西藏问题的立场是明确坚定的。达赖喇嘛所秉持的立场，与邓小平先生所重申“只要不谈西藏独立，其他问题都可以协 商解决“的精神是完全符合的。我们尊重中华人民共和国的领土统一，同时也希望中央政府承认和尊重西藏民族在中华人民共和国的范围内实行同一的，名符其实之 民族区域自治的权利。这是化解彼此矛盾的基础，也是中华人民共和国各民族间实现团结，和谐与稳定的近因。
西藏民族的特性之发展要顺应全球，尤其是国内的发展；同时，经济，社会和政治的发展，必须要尊重和爱护西藏民族自己的特点。要实现这一切，就必须要承认西藏人民的自治权利，而且其实施要符合藏人自己的需求，特性和重点，并涵盖所有西藏民族聚居的地区。
由于保护西藏的民族文化和特性，只能靠藏人自己，其他任谁也没有办法达成。因此，西藏人民要在自我帮助，自我发展和自我治理与中央政府或各省区对西藏的帮助指导之间掌握平衡，这是极为重要的。
第四、藏人的基本需求及自主管理
[1] 语文
语 文是表现民族本质的最重要的特征。藏语不仅是藏族互相沟通的语言，而且也是我们书写文章，历史，佛学教义或科学技术等知识的唯一语言文字。藏语文是一个与 梵文相媲美的文字，具有很高的表达能力，从梵文翻译的内容，不论词意，藏语文是唯一可以还原梵文的语言文字，因此，藏语文不仅是世界上音译最多和最好的文 字，而且也被一些学者推崇为著作最丰富和数量最多的文字。
宪法第四条规定，各民族都有使用和发展自己语言文字的自由，从而保障了使用各自语言文字的权利。西藏民族在使用和发展自己语言文字中，藏语文是首要的，必须要得到尊重。各藏族自治地区的语言文字也应以藏文文为主。
这 一观点在宪法第一百二十一条中有明确宽泛的认可：“民族自治地方的自治机关在执行职务时，依照本民族自治地方自治条列的规定，使用当地通用的一种或者几种 语言文字”。在《民族区域自治法》第十条里也规定：“民族自治地方的自治机关保障本地方各民族都有使用和发展自己的语言文字的自由”。
《民族区域自治法》第三十六条也明确规定；“民族自治地方的自治机关根据国家的教育方针，依照法律规定，决定本地方的教育规划，各级各类学校的设置，教学内容，教学用语和招生办法等规则”。这一条款认同了在藏族地区使用藏语文教学的观点。
[2] 文化
实 行民族区域自治的根本目的是为了保护少数民族的文化，因此中华人民共和国宪法第二十二条，四十七条，八十九条，以及民族区域自治法第三十八条等都规定了有 关保护文化的条款。西藏的文化与藏人的宗教，传统，语言和特性等有着极为密切的连系，现今的西藏文化在各方面都面临着极大的困难。生活在多民族的中华人民 共和国领域内的西藏民族，要依照宪法所保障的权利，保护自己民族的独特文化。
[3] 宗教
宗 教涉及西藏的根本问题，佛教与我们的本质有着密切的联系。我们虽然认同政教制度的分离是很重要的，但不能因此侵犯信徒的自由和宗教实践。对西藏人民而言， 如果没有信仰自由和思想自由，则其他的个人或集体自由都是无法想象的。宪法强调和保障了宗教信仰与宗教活动的自由。宪法第三十六条明确保障了公民的宗教信 仰自由和权利，规定“任何国家机关，社会团体和各人不得强制公民信仰宗教或者不信仰宗教，不得歧视信仰宗教的公民和不信仰宗教的公民” 。
将 宪法的上述条款，以国际通用的标准去阐释的话，信仰或实践的方式也包含在宗教自由的范围内，这些自由包括根据宗教传统管理寺院，研习和实践教法，根据宗教 制度确定入寺僧侣的人数和年龄，以及自由从事讲经说法等宗教仪式和活动。因此，对一般的宗教活动，包括师徒关系，寺院管理，转世灵童的认证等事务，政府都 不应进行干涉。
[4] 教育
西藏人民希望通过与中央教育部们的合作，制定属于西藏自 己的教育制度和自主进行管理的愿望，在宪法的相关规定和精神中得到支持。西藏人民同样也希望参与科学技术的发展。在科学发展的过程中，我们同时也可以看到 佛教的心理学，哲学和宇宙学等方面所发挥的作用正在越来越多地获得国际社会的认同。
宪法第十九条规定，国家要保障公民享有义务教育。宪法第一百一十九条规定“民族自治地方的自治机关自主的管理本地方的教育事业……”。民族区域自治法第三十六条里也有类似的规定。
有关决策方面，由于自治的权限不明确，因此需要强调的是，对藏民族的教育必须要施行名符其实的自治，这一点也得到了宪法有关自治原则的支持。
有关藏人希望参与科技发展的愿望，在宪法（第一百一十九条）和民族区域自治法（第三十九条）中，对民族自治地方参与发展科学技术的权利做了明确的认定。
[5] 环境保护
西藏是亚洲诸多河流的源头，也是世界的屋脊，地大物博，拥有丰富的矿产和森林等资源。西藏民族的环保传统是基于不分人类或动物，敬重一切生命而不予伤害之理念所产生，因此西藏特殊的环境得到保护，没有遭到污染。
目前，西藏的生态环境正在遭到难于恢复的破坏，这一点从西藏的草地，农田，森林，水源以及野生动物所受到的影响中可见一斑。因此，根据民族区域自治法第四十五条和六十六条之规定，依照西藏过去的环保观念和传统，应赋予西藏制定环保政策以及进行管理的权利。
[6] 有关自然资源的使用
宪 法和民族区域自治法都认可自治地方的自治机构，在保护和管理自然生态环境与自然资源方面的责任（民族区域自治法第二十七条，二十八条，四十五条，六十六 条，宪法第一百一十八条亦规定要照顾民族自治地方的利益）。民族区域自治法确认“民族自治地方的自治机关保护，建设草原和森林”（第二十七条），规定 “对可以由本地方开发的自然资源，优先合理开发利用”（第二十八条）。
土地所有权是利用自然资源，增加税务和收入以提升经济的基础。因此在自治地区，所有不属于国家的土地，应赋予自治民族依法独享出租或交易等的权利，此点极为重要。同时，在符合国家发展规划的情况下，自治地方应具有自行制定或推展发展计划的权利。
[7] 经济发展和贸易
发展西藏地区的经济是必要的。在中华人民共和国的范围内，西藏属于经济最落后的地区之一。
宪 法确认民族自治机关根据地方的特点和需要，制定经济建设的方针。（ 宪法第一百一十八条，民族区域自治法二十五条）。也确认民族自治地方的自治机关有管理地方财政的自治权（宪法第一百一十七条，民族区域自治法第三十二 条）。并规定，国家从财政，物资，技术等方面帮助各少数民族加速发展经济建设和文化建设事业（宪法第一百二十二条，民族区域自治法第二十二条）。
同样，民族区域自治法第三十二条里也规定，类似西藏这样与其他国家接壤的自治地方，可以展开对外经济贸易活动或边界贸易。对于与其他国家有着文化，宗教，民族和经济等共同特性的西藏人民而言，这一点尤为重要。
中央和各省的帮助虽然可以暂时获益，但如果西藏人不能自食其力而需要依赖别人生存时，这将会是巨大的灾难。因此，促使西藏人经济自立也是实行自治的重要目的之一。
[8] 民众的卫生
宪 法规定政府赋有为民众提供卫生和医疗服务的责任（宪法第21条）。宪法第一百一十九条里也认定这是自治地方的责任，民族区域自治法第四十条里也认定，民族 自治地方的自治机关，自主解决本地方的医疗卫生事业的发展规划，发展现代医药和民族传统医药。依照上述条款的宗旨，民族自治机关必须要具有满足所有藏人卫 生需求的条件和能力。同样要具备依照传统将藏医和天文历法加以实施和发展的能力。
[9] 公共安全
解决关系民众安全问题之工作人员或安全人员中，拥有了解和尊重地方传统和风俗习惯的人员是极为重要的。
自治和全权管理自己事务的主要责任之一是，管理民众的内部秩序，以及自治地方的安全。宪法第一百二十条和民族区域自治法第二十四条规定；“民族自治地方的自治机关依照国家的军事制度和当地的实际需求，经国务院批准，可以组织本地方维护社会治安的公安部队“。
[10] 管理外来移民方法的制度
民 族区域自治和自主管理自身事务的根本目的，是为了保障少数民族的特性，文化和语言，以及落实当家作主的权利。允许甚至鼓励汉族或其他民族人口向少数民族地 区的大规模迁移，从根本上违背了民族区域自治的目的和理念。由于人口迁移所带来的人口结构变化，将使藏汉民族的团结或统一无从谈起，取而代之的是西藏的民 族特性和独特文化的日渐灭亡，藏民族也会消失在汉民族当中。同样的，汉族或其他民族大量迁移到西藏各地，将会从根本上改变施行民族区域自治的基本构成要 件，因为“少数民族聚居”区域实行自治的宪法之基本要件由于人口移民而被根本改变或遭到漠视。如果不阻止这类的大规模移民，则西藏民族终将难于聚族而居， 从而失去宪法有关民族区域自治的权利。这种做法完全践踏了宪法有关民族问题的精神原则。
中国曾经严格控制内部的人口迁徙和居留，但民族自治机构管理“外来”移民的权力却极为有限。我们认为，为了尊重自治的原则和理念，给予各自治机关对中华人民共和国其他地区的人民在西藏居留，定居，工作或其他经济活动自主制定相关法规的权利是极为重要的。
我们并没有将定居西藏或长期留居西藏的其他民族成员驱走的想法。我们所担心的仅仅是，鼓励以汉族为主的其他民族成员大量移居西藏的结果，将会改变现有的西藏社会结构，西藏民族因此成为少数而被边缘化，脆弱的西藏自然生态环境遭到无可挽回的破坏。
[11] 与其他国家在文化，教育，科学，宗教等领域的交流
在有关自治的内涵中，民族区域自治法第四十二条还规定，在文化，艺术，教育，科技，卫生，体育，宗教，环境，经济等方面，与中华人民共和国境内各民族或各省市自治区的交流固然重要，同时，自治地区还有与其他国家进行交流的权利。
第五、对在中华人民共和国内的西藏人要进行统一的管理
基 于西藏人民的上述基本需求，通过实施民族区域自治，保护和发展西藏的民族特性，文化以及佛教传统，并在寻求发展的过程中，现今被中华人民共和国赋予自治地 位的所有藏族地区，需要纳入统一的自治管理范围内。现今的行政区域划分，将西藏人分散在中华人民共和国的自治区和许多省份当中，从而造成藏人被分散割裂， 各个地区发展不平衡，同时也严重削弱了保护和弘扬民族特性，文化与佛教传统的力量。这一政策不但没有尊重西藏民族的统一性，反而进行民族分裂，对西藏民族 的统一性制造障碍，践踏了民族自治的精神。在新疆和蒙古等主要的少数民族地区，大部分人民都包含在各自的自治区域内，而聚居的西藏民族却被划并不同的省 区，仿佛在对待不同的民族 。
将目前分散在各种自治地区的所有藏人统一在一个自治体系下，不仅符合宪法第四条的相关规定和精神，而且民族 区域自治法第二条也规定：“各少数民族聚集的地方施行区域自治”。民族区域自治法的序言中也记载：“民族区域自治制度是由中国共产党为了解决民族问题而制 订基本政策。民族区域自治是在国家的统一领导下，各少数民族聚集的地方实行区域自治，设立自治机关，行使自治权。实行民族区域自治，体现了国家充分尊重和 保护各少数民族管理本民族内部事务权利的精神，体现了国家坚持实行各民族平等，团结和共同繁荣的原则”。
西藏民族在中华人民共和国范围内享受自治权利时，如果能够统一普及到整个西藏民族地区，将有助于实现具实质意义的民族区域自治。
民族区域自治法也倾向于认为民族区域自治的边界是可以进行调整的。根据宪法有关自治的基本原则，尊重藏人统一性的愿望完全是合法合理的，为此而改变部分行政管理范围并不违背宪法精神，而且也有许多前例可循。
第六、自治的本质和架构
能否实现名符其实的自治，将依赖于上述各项自治问题以及藏人在这些问题上实施自治的程度或自治方式。因此需要考虑的是，如何才能制定和实行适合藏民族的特殊状况和基本需求的法规。
要 实现名符其实的自治，藏人还要有制定符合自己需求和特点的地方政府，政府组织，以及制度的权利。自治地方的人民代表大会，对本地方所有（涉及上述自治的） 问题有制定法规的权力，以及在自治政府各部门的实施权利和自由决定的权力，自治权利也包括在中央国家级的相关权利机关中安置代表并发挥实质作用。为了使自 治充分发挥效力，其商讨方式必须具备功效，在相互关连密切或共同利益上，中央和地方政府要建立起合作解决的途径。
实现名符其实自治的最重要条件之一是，要保障宪法和其他法律单方面取消或修改赋予各自治地方的权利和职责。也就是说，不论中央或自治地方，在未经另一方同意的情况下，不得擅自修改自治的基本条款。
有 关符合西藏实际和需求之名符其实自治的范围和特点，要根据宪法第一百一十六条（民族区域自治法第十九条）的相关规定，在自治条列中做出详细的解释，如果适 当的话可以为此另外制定法规。包括第三十一条在内的宪法相关条款中，对于类似西藏这样有着特殊地位的地区，在尊重国家的社会，经济和政治制度的情况下，规 定可以相应地适当放宽。
宪法第三章第六节也认定，民族区域自治地区具有自治政府和制定法规的权利，因此宪法第一百一十六条（民族区域自治 法第十九条）规定：“依照当地民族的政治，经济和文化的特点，制订自治条列和单行条列”的权力。同时，宪法在很多方面赋予行政自治的权利（宪法第一百一十 七到一百二十条），规定自治机关在适合地方的需求下，依照地方的实际情况，贯彻执行国家的法律。（宪法第一百一十五条）。
上述这些法律条件虽然对自治机关的决策权限造成一定的阻碍，但是宪法不仅接受了自治机关可以依照适合地方的需求制定法规和政策，而且，这些法规政策甚至可以和包括中央在内的其他机关所规定的不一致。
正如我们说明的那样，藏人的需求与宪法的自治原则大致相符合，但在真正实施过程中，目前，由于种种原因而造成许多阻碍，甚至失去效力。
实 施名符其实的自治，还需要权力分配，如中央和自治地方对一些问题的双方权责问题进行明确分配等。就目前而言，在这些方面不仅没有清楚的分配，自治地方的立 法权利也没有落实，仍遭到很大的阻碍。因此一方面宪法对于自治地方在很多问题上认定具有制定法规的特殊需求，但是另一方面根据宪法第一百一十六条的规定， 却必须要得到中华人民共和国全国人民代表大会常务委员会的批准，所以自治的原则在实施过程中多有阻碍。正式规定需要这种批准的只有自治地方的人民代表大 会，中华人民共和国内各省的人民代表大会不需要得到这样的批准，在制定地方性法规时，（非自治的）各省只要报全国人民代表大会常务委员会备案即可（宪法第 一百条）。
在真正实行自治方面，依照宪法第一百一十五条之规定，必须要遵循诸多的法规和章程，其中一些法规甚至对自治地方的自治造成很大 的阻碍，有些法规相互矛盾。因此自治的真实标准并没有明确的落实，国家上级机关单方面制定法规和章程，甚至政策的改变也是单方面决定。如果中央和地方政府 之间，对自治的标准和实施方面出现不同的看法，则缺乏为解决问题或进行沟通的足够途径，实事上并没有明确的规定，这使得地方领导的工作受到阻碍，对西藏民 族施行名符其实的自治也造成障碍。
此时，我们没有为了这些问题和实行名符其实的自治而详述藏人困难的意愿，但是为了在往后的会谈中，能够适当的解决问题而做为例子而在此提出。我们会继续学习宪法和有关法律，并在适当的时候发布我们所知道的研究结果。
第七、未来前进方法
正 如本建议的开头所述，我们相信西藏人民的需求与中华人民共和国宪法有关自治的原则相符合。我们的目的是，就如何让这些需求与中华人民共和国的架构相配合而 进行讨论。正如达赖喇嘛经常强调的那样，我们并没有任何隐藏的计划，也绝对没有在得到真正自治后，依此做为脱离中华人民共和国跳板的目的。
西 藏流亡政府象征着西藏人民的利益和西藏人民的代表，我们之间就上述问题和相关议题达成协议后，西藏流亡政府将失去存在的必要而会立即解散。事实上达赖喇嘛 已多次声明，他个人在未来将不会担任任何政治职务。在实现和解的过程中，为了得到藏人必要的支持，达赖喇嘛愿意为此竭力发挥其影响力。
以这个承诺为基础，第二步应该就本建议所提出的相关问题进行具实质意义的讨论。为此愿意就寻求共识，以及程序或时间等方面进行讨论决定。
【转载于国际西藏邮报11月16日报导】http://www.tibetpost.net/index.php?option=com_content&task=view&id=853&Itemid=1
THE 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 TIBETANS
Subject Matters of Self-government
1) Language
Language 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) Culture
The 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) Religion
Religion 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) Education
The 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 Protection
Tibet 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 Resources
With 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 Trade
Economic 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 health
The 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 Security
In 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 migration
The 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 countries
Besides 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.
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