Complete Path of Rural Poverty Alleviation System in Guizhou Province Based on Empirical Investigation and Analysis of 4 Typical Counties in Guizhou Province

Wei WANG

School of Public Administration，Guizhou University，Guiyang550025，China

In recent years，Guizhou Province has made great achievements in poverty alleviation.According to statistics，the rural poor population in Guizhou Province has been reduced from 7 777 000 in 2005 to 4 180 000 in 2010，poverty incidence has dropped from 23.9%down to12.1%，and the rural per capita net income in 50 national-level poverty-stricken counties has been increased from 1 641 yuan to 3 153 yuan since the＂Eleventh Five-Year Plan＂［1］.In some counties of Guizhou Province，effective and practical local experience and mode on poverty relief and development have been developed through the combination of various external resources with local advantages.Typical examples include Qing long，Chang shun，Yinjiang and Weining.All the above places are located in the3major concentrated areas of poverty relief and development in Guizhou Province.Therefore，it is of great significance for the poverty relief and development in mountainous provinces like Guizhou Province at the new stage to summarize their results and poverty alleviation experience of promotion and application value，analyze the remaining problems and develop a complete path.On this point，our research group has conducted an in-depth research on the poverty alleviation situation of Qinglong，Changshun，Weining and Yinjiang through questionnaire survey，intensive interview and field visit etc.in May，2012.

1 Successful experience of Guizhou Province in poverty relief and development

1.1 Government leadership，financial support and administrative promotionThrough the investigation and research on the 4 counties including Qinglong，Changshun，Weining and Yinjiang，it is found that their common ground is the strong government promotion on poverty alleviation.But their development patterns and priorities are different from each other.Government leadership and financial support constitute the prerequisite for the implementation of rural anti-poverty strategy in Guizhou Province.Since 2008，Changshun County has obtained financial anti-poverty fund of65 441 000 yuan in total［2］；during2001-2011，Qinglong County has received financial anti-poverty fund of44 700 000 yuan in total.And since 2011，provincial financial allocation has been increased to 160 000 000 yuan per year for consecutive years［3］；in 2007，the pilot project of＂Entire-village Advancement＂in Shanshu Township of Yinjiang County ha sobtained national investment of34 029 000 yuan，and in 2010，the total investment for the pilot project of＂Entire-town Advancement＂in Banxi Township of Yinjiang County has reached 81 424 200 yuan［4］；and as the typical county in＂Poverty relief＆development and overcoming with late-development＂throughout the country，Weining County has obtained superior financial anti-poverty fund of 329 970 000 yuan in total［5］.From the field investigation results it can be seen that the poverty relief projects of these areas from argument，promotion to acceptance are in the charge of governmental personnel，who is responsible for providing comprehensive services including human resource，money and materials to rural poor households.Taking the project of grass planting for sheep raising in Qinglong County for example，the grass seed，fertilizer，housing，livestock and technical training of farmer households are all financed by the government；in addition，the whole development process of animal husbandry from resource allocation，organization，management to acceptance inspection and even marketing is in the charge of the meadow center under the Poverty Relief Office.So generally speaking，the poverty relief and development in Guizhou Province at present is a government-dominated development pattern with financial support and administrative promotion.This kind of government-dominated and financially supported pattern is very necessary at the present stage and has been probed to be effective by practice.Guizho Province has invested financial anti-poverty fund of totally 11 000 000 000 yuan since the＂Eleventh Five-Year Plan＂，which helps to reduce rural poor population by 3 597 000 and helps194 townships in 8 counties to reduce poverty.The rural per capita net income in 50 national-level poverty-stricken counties has been increased by 1 512 yuan with the annual growth rate of 17.7%［1］.At present，the dominant position of the government-dominated and financially supported poverty reliefand development pattern with administrative is unshakable.Because of the inferior quality of production factors in poverty-stricken areas showing a weakening trend，optimizing the combination of production factors and improving the quality of production factors on the strength of the poor areas themselves is rather time consuming and will produce little effect.As a result， poverty-stricken areas should not lay hopes on their own organizational behaviors to get rid of poverty and become better off.They must strengthen their economic functions with the help of the government and carry out planned and organized poverty alleviation actions in a reasonable scale so as to optimize the combination of production factors and develop the self development function of poor areas［6］.However，this kind of poverty reduction pattern with administrative promotion will also produce some negative effects.For instance，as the administrative organization，the government is inefficient in providing micro-level services directl0y.In addition，the most negative impact of this development pattern with administrative promotion lies in that its trangles the vigor of market participants，suppresses competition and leads to slow market growth and industrial development.Therefore，with the improvement in the self-development ability of poverty-stricken areas，the government should transform its functions and position and focus on the aspects of improving the infrastructure，establishing and perfecting the system of laws and regulations，developing market subjects and establishing an investment safeguard mechanism.

1.2 Developing special leading industries on the basis of local resource endowmentThrough investigation and comparison it has been found that，in addition to government leadership and financial support，successful poverty alleviation in the above 4 places is mainly based on local resource endowment and the development of special leading industries according to local conditions.For instance，Chang shun County has developed the practice of karst stereoscopic agriculture relying on its unique green-shelledegg chicken resources with an objective understanding of its disadvantages in scarce land resources.In Yinjiang County，Hejialiangzi in Shanshu Township is at a disadvantage in development due to its extremely remote location.However，Yinjiang County has tried to develop tea industry in this area relying on its low latitude，high altitude，original ecology and sufficient sunshine and rain.In this way，disadvantages have been turned into advantages，and highend tea with excellent quality has been produced.Qinglong County has high mountains，abrupt slopes and deep valleys with very serious stony desertification，which creates extremely adverse conditions for agricultural production.But in the mean time，Qinglong County also has the advantage of warm and humid climate，which is suitable for the growth of various kinds of high-quality forage.In 2001，Qinglong County adjusted its industrial structure with the support of National Poverty Relief Office.The traditional agriculture oriented structure has been transformed into ecological animal husbandry oriented development pattern with＂grass planting for sheep raising＂developed simultaneously.In addition，returning farmland to grassland has been applied.Since the transformation of Qinglong County，sheep stock has been increased to 420 000 now from 2 600 in 2000.The total sales of commercial sheep exceed 500 000，and over 12 000 farmer households have gained support in sheep raising.The annual per capital income of farmers in the project area has been increased from 630 yuan to 5 900 yuan.And more than 75%of them have got rid of poverty and become better off［3］.For the mountainous rural areas represented by Guizhou Province，poverty alleviation should be carried out on the basis of local resource endowment with importance attached to special planting industry and breeding industry.Besides，agricultural transformation and upgrade should be achieved in the process of poverty alleviation.

1.3 Empowering farmers and respecting the dominant role of themThe long-standing poverty problems of farmers in our country are caused by our current development strategy，social policy and weak rural construction ability.That is to say，the farmers are deprived of their due development rights.Farmers do not have the development right and self-management right for longterm，which is bound to result in long-standing hidden trouble in the solving of rural poverty problems in China［7］.In the4 counties investigated，their successful poverty alleviation is largely ascribed to the＂farmer empowerment＂to a certain extent.In the questionnaire survey，75%of the respondents have chosen the answer＂Yes，a long-term mechanism of mass participation have been formed＂for the question＂Have you mobilized the mass to participate in the implementation of poverty relief policy extensively？＂According to the information obtained by the research group，the development right of farmers should be fully respected in the first place.Farmers should have the right to deicide whether to participate in the project，how to participate and how much to invest on their own.For example，Qinglong County has applied 4 patterns as for the benefit distribution between the meadow center and farmer households in the development of ecological animal husbandry with grass planting for sheep raising，and the farmer house-holds can choose any of the patter.With the sheep flock grown to a certain size，the farmer households may choose to stay in the meadow center or achieve independent development freely.For the farmer households choosing independent development，the center will be responsible for vaccine injection in spring and fall free of charge each year.In addition，the center will replace the stock ram every 8months and will be responsible for the sales of commercial sheep.The center will extract10%of the profit as the fee for technical service，and the remaining 90%belongs to farmers［3］.Secondly，the self-management right of farmers should be fully respected.While implementing the anti-poverty project of＂developing stereoscopic eco-agriculture continuously＂，Chang shun County has established the＂management committee of village groups＂to empower farmers and guide the masses to participate in the setting-up，evaluation，implementation，acceptance and management of the anti-poverty project，which fully stimulates the sense of ownership of the masses［2］.Therefore，it is of crucial importance for successful project launching to respect the dominant role of farmer households.

2 Remaining problems in poverty relief and development of Guizhou Province

2.1 Acute imbalance between supply and demand of agricultural technologiesThrough the investigation for Shandong Province，Wang Weiran［8］has found that the government's bringing science and technology to the countryside has the greatest impact on the access and application of agricultural science and technology by farmers as compared with the supplying subjects such as agricultural colleges，scientific research institutions，cooperatives，industry associations and enterprises.The frequency of bringing science and technology to the countryside by the government is positively correlated with the farmers'access and application of science and technology.That is to say，a low frequency will result in little understanding of science and technology and a low utilization rate.The government plays the decisive role in the promotion of rural science and technology.Seen from the investigation of the research group，sending agricultural technicians down to the countryside is necessary for both fruit tree planting and special cultivation.It's better to＂assign a resident technician every village＂.But the current situation is that short-term and temporary agricultural technology trainings still exist.In grass root sat vill age-level，agricultural technology is almost in blank when farmers come up against breeding problems.The staff of Poverty Relief Office in Weining County also points out that some farmers do not know the technologies on the plantation，pruning，grafting，pest control and tree management of walnut trees due to inadequate technology promotion and technology services in the development process of walnut industry，which results in low-grade walnut products and low output and benefit.

2.2 Lack of autonomy for primary-levelanti-poverty organizationsAs the basic-level leadership of the government，the Party and government offices of poverty-stricken areas play an important role in poverty alleviation and are responsible for the main tasks of poverty alleviation，including the promoting the infrastructure construction of poverty-stricken areas vigorously，improving the living conditions of local farmers，accelerating the development of social security programs in poverty-stricken areas，and encouraging local financial services to support the development of poverty alleviation.Zhan Lin et al.［8］have found through metrical study that the efficiency of basic-level government，especially the county-level government，has a great impacton the service efficiency of rural poverty alleviation funds.That is because the county-level anti-poverty organizations have a certain extent of theory accomplishment and are most familiar with the resource endowment conditions of various places across the county.Therefore，it is very necessary to empower county-levelanti-poverty organizations to use funds and arrange projects.But the survey found that in the functional division of poverty alleviation system，the central and provincial-level organizations are mainly responsible for decision making，while the organizations below the levels of city and county are responsible for executing the decisions with very few autonomous rights，presenting obvious passiveness.

2.3 Lack of regulatory mechanism for the allocation of welfare projects such as subsistence allowancesIn 2012，Chinese Academy of Social Sciences conducted a survey in 5 provinces and cities including Anhui Province and Fujian Province，which shows that60%of the households receiving subsistence allowances investigated are not poor households，and nearly80%of poor households have not enjoyed subsistence allowances［10］.It is also found in the survey that village cadre shave great power in resource allocation.When a series of poverty alleviation projects are carried out in a village，it is unavoidable that village cadres allocate poverty relief resources according to human relationship to some extent，as most villagers have similar economic conditions and the rural area is such an acquaintance society.This will breed discontent among villagers.However，this has become a widespread phenomenon.In addition，the research group also finds that national poverty alleviation projects at the new stage are becoming the center of controversy between cadres and masses and among villagers.In the investigation，some cadres in towns and villages have reflected their dilemma.On the one hand，the equal distribution of poverty alleviation funds is of little effect.Once this phenomenon is concentrated in some villages，they will find it difficult to carry out the work.For example，in the execution of some work task，the villages who haven't received the poverty alleviation allowances will be resistant to the work.Therefore，no matter for general poverty alleviation projectsor subsistence allowances，it has become a problem that can not be ignored as for how to establish an institutionalized distribution mechanism and ensure its proper implementation.

2.4 Absence of agriculture insurance and increased re-poverty pressureAgricultural insurance refers to the policy-oriented agricultural insurance for compensating agricultural producers for their economic losses caused by natural disasters，epidemic situations and other fortuitous accidents during crop plantation and breeding production.It is a common practice for market economy countries to support agricultural development.Our country has launched the pilot projects of agricultural insurance from 2007.But on the whole，the scope of pilot program for policy-oriented agricultural insurance is still very narrow in China，the development pattern is not yet mature，and the guarantee capability for agricultural production is relatively limited［11］.None of the 4 counties in this study has developed agricultural insurance.In the questionnaire survey，several workers have perceived the hidden re-poverty risk caused by the absence of agriculture insurance.No matter for the development of special plantation or special breeding，the natural risk，disease risk and market risk taken by farmer households are greater than ever before.A natural disaster or epidemic situation can destroy all the hard work and investments of farmer households for years.During the investigation in Shanshu Township of Yin jiang County，the research group has perceived the urgency to promote agricultural insurance.In 2008，Shanshu Township gave priority to the development of pig breeding and tea industry.Butpig breeding has encountered a great price reduction of pork in 2009 and 2010.Many breeders could not afford and went out for jobs，and only a few breeders with stronger strength are still struggling with government support.On the other hand，tea farmers have encountered icy weather in 2008 and heavy drought in 2010.Natural risk，disease risk and market risk constitute the three major risks faced by rural planting and breeding industries.Impoverished farmers are very poor themselves.It is impossible for them to resist the three major risks relying on their own strength.Beyond that，it is also impossible to rely on the investment of commercial insurance companies，as the risks are great and the farmers could not afford high insurance premium.Therefore，the government must take the responsibility to establish policy-oriented agricultural insurance companies and set up funds in the form that the central finance allocates funds，local finance provides supporting funds and farmers pay part of the amount.In this way，the farmer household suffering from natural risks，disease risks and market risks above a certain degree will be compensated so as to ensure the sustainable and stable poverty alleviation through industrial development.

2.5 Immature development of farmer specialized cooperative economy organizationsAgricultural production is the unified process of economic reproduction and natural reproduction.As the demand for agricultural products has low elasticity，agricultural industry is of high risk and low return.As a poor province，the agricultural industry of Guizhou Province is of low quality and efficiency.The small-scale farmer economy applying household contract management has restricted the agricultural scale and industry upgrading of Guizhou Province to a large extent.In order to break through the limitation，the organizational degree of farmers needs to be improved.Therefore，it has been one of the general trends to establish farmer specialized cooperative economy organizations.In the above 4 counties investigated，agriculture industrialization has begun to take shape and will be direction of agricultural development for the next step.Asa result，it is an inevitable trend that farmers will be more deeply involved in market competition.In this case，it is of particular importance to organize farmers to establish farmer specialized cooperative economy organizations.But in the mean time，it is discovered through investigation that most of the farmer specialized cooperative economy organizations in Guizhou Province at present are primary-level and informal farmer associations with inadequate operating mechanism，random internal management and insufficient credibility.This kind of organizations has extremely limited ability to lead farmers into the market.In the market-oriented economy，the practice that government sectors operate the market is not proper and needs to be changed.

2.6 Low scientific and cultural qualities of poor households and great obstruction for primary-level poverty alleviation

Low quality of population is the intrinsic factor for rural poverty，and educational difference is the primary cause for outdated ideas if farmers and low quality of population.The agricultural survey team of National Bureau of Statistics has conducted a household survey on the relationship between the education level and income of rural labor force in recent years，which indicates that the two factors are positively correlated with each other.Guizhou Province is an agricultural province，in which 70%of the population lives in rural areas.The ideology，idea，science education and educational level of rural residents have the direct bearing on the efficiency of poverty alleviation.And one big obstacle for the promotion of anti-poverty projects is that the ideology and technology of farmers couldn't keep up with the demands.This has become a prominent problem that affects agricultural structure adjustment and hinders rural economic development.Among farmers，those in the poverty-stricken areas have the lowest level of ideological and cultural qualities.Taking Southeast Guizhou Province for example，the average education years of absolute poverty families and low-income families are 5.8 years and 6.1 years respectively，which are 0.8 year and 0.5 year less than the average level throughout the province.The quantity of labor force with education level of primary school and below accounts for 63%and 60.7%respectively［12］，which will constraint poverty alleviation significantly for long-term.＂Support education first for poverty alleviation＂，which means that improving the ideological and cultural qualities of rural poor households from all aspects through various forms of training and education is the long-term mechanism to promote poverty alleviation smoothly.

3 Policy recommendations for poverty relief and development in Guizhou Province

3.1 Establishing a multi-level system of sending agricultural technicians down to the countrysideSending agricultural technicians down to the countryside is an important link of poverty alleviation through agricultural industrialization.It is directly related to the quality and effect of poverty alleviation projects.Every sin-gle link of the poverty alleviation projects cannot be separated from the support of agricultural technicians.In order to ensure that agricultural technicians reside in rural areas and serve the rural areas for long-term，there is a need to establish a multi-level system for sending agricultural technicians down to the countryside.

3.1.1 Improving the convenience of agricultural technicians.Firstly，it is required to implement the program of＂one agricultural technician per village＂and recruit the college graduates specializing in agriculture to serve the countryside for a certain number of years.During this period，the technicians will enjoy the benefits for the staff of local public institutions.And upon expiration of the period，they will enjoy some preferential treatments in the application for civil servants and local public institutions.Secondly，it is required to establish an institutional，conventional and rotational residency mechanism for the agricultural technicians of local agricultural sectors，and link it up with remuneration improvement and post promotion.Thirdly，it is required to make the best of mentoring function.Select the villagers with relatively higher cultural quality and stronger receptivity to learn the theoretical knowledge and practice method on agricultural technology imparted by regular agricultural technicians.After that，these villagers will be responsible for passing on the knowledge to other villagers.

3.1.2 Establishing a linkage among agencies and form a resultant force.Agricultural technology services should not rely solely on the government.Government related departments need to communicate with agricultural research institutes，cooperative industry associations，non-governmental organizations，agricultural enterprises and farmer technical elites on the problem of sending agricultural technicians down to the countryside frequently so as to ensure scientific division of labor and overcome shortcomings by learning from the strong points of others.In this way，develop the agricultural technology service plan specific to a given area and a particular project within a certain period of time.

3.1.3 Making full use of market mechanism.It is recommended to establish specialized agricultural technology service companies to provide farmer households with services at low profit.Farmer households can select agricultural technology companies freely according to their needs.And at the end of the year，the agricultural technology companies can receive a certain amount of subsidies from the government sectors according to the frequency of service providing and the service items.The reason is that the quality of agricultural technology provided can be improved from the essence only when the farmer households'choice will affect the survival and development of agricultural technology suppliers.

3.2 Improving the autonomy of primary-level poverty alleviation organizationsFor the poverty alleviation policy system applied in China at present，the central and provincial-level poverty alleviation organizations are generally responsible for developing national and local poverty alleviation policies for a period of time and make decisions on the allocation proportion and purpose of poverty alleviation funds.And as the primary-level poverty alleviation organizations，the poverty relief offices at the city and county levels are only responsible for implementing the policies.Due to some objective conditions，it is inevitable that there exist some conflicts between the policy itself and the practice.As for the subjective question of＂As a poverty alleviation worker，what is the greatest danger do you think in the poverty-relief work of Guizhou Province at present？＂in the questionnaire survey，quite a number of respondents answer that＂some poverty alleviation policies are divorced from reality；there is a difference between project arrangement and the actual needs of poor population；not all the valuable resources for poverty alleviation are used effectively；poverty alleviation has become a mere formality with low ultimate benefits＂etc.With a certain extent of theory accomplishment，poverty alleviation organizations at the county level are most familiar with the resource endowment conditions of various places across the county.Therefore，it is very necessary to empower county-level anti-poverty organizations to use funds and arrange projects.In order to expand the autonomy of county-level poverty relief offices，the methods of progressive approach and pilot project can be applied.In the meantime，the construction of multi-level supervisory mechanism should be strengthened.

3.2.1 Progressive approach.Progressive approach means arousing the enthusiasm of county-level governments and poverty alleviation organizations by allocating10%～20% （to be adjusted according to the effect）of the funds for free domination of the county under the current allocation system of poverty alleviation funds so as to form a competitive mechanism.

3.2.2 Pilot project.Pilot project method means launching pilot projects in the cities and counties that are doing better in poverty alleviation first.And then summarize the existing problems and experience in the pilot projects，improve the pilot program and gradually and expand the scope of pilot program step by step so as to reduce the risk of uncontrolled policy.

3.2.3 Strengthening the construction of multi-level supervisory mechanism.Poverty alleviation funds are counted in millions，ten millions or hundred millions.The devolution of free fund utilizing right means that the free use bodies are increased in number and dispersed，which will enlarge the risks of embezzlement，corruption or power-for-money deals during the allocation process.Therefore，it is of great importance as for whether the supervisory mechanism is a sound one.That is to say，perfect the mechanisms for social supervision，supervision by public opinion and financial supervision etc.on the basis of the previous superior-subordinate supervision.Ensure that the poverty alleviation funds dominated by county-level poverty alleviation organizations are in the most effective way in the true sense，and achieve the purpose of policy design.

3.3 Standardizing the distribution for welfare projects such as subsistence allowancesThe key to standardizing the distribution system is the implementation.For instance，subsistence allowances are designed to subsidize the households with annual per capital income of below the poverty line.For the allocation prob-lem of＂subsistence allowances＂that arouses great concerns of the masses，there is another objective cause in addition to the＂human relationship＂.That is，the proportion of non-agricultural income in household income keeps increasing year by year in rural areas.What'smore，the income for this part is characterized by concealed，unstable and difficult in estimation，which further increases the subjectivity in evaluating the households enjoying the subsistence allowances.Therefore，objective estimation on the income of farmer households is the foundation for ensuring fairness in providing subsistence allowances.Most of the wage earnings for migrant workers are paid in cash.That is to say，it is still impossible to eradicate the subjectivity in evaluating the households enjoying the subsistence allowances completely.In this context，the subjective randomness of village cadres should be minimized from the following aspects：

3.3.1 Applying＂one-vote veto for violations in subsistence allowance providing＂.As subsistence allowances have become the center of controversy between cadres and masses and among villagers in rural areas，it is very necessary to take drastic measures against the rule-breaking operations of village cadres.Specific approach is that superior competent departments such as the social security offices at the township level conduct random sampling inspections regularly or irregularly in consideration of the problems reported by the masses.Once the rule-breaking operations such as obtaining subsistence allowances through human relationship are discovered，village cadres will be dismissed immediately.In addition，a notice of criticism will be circulated throughout the town and county so as to providing a warning.

3.3.2 Strengthening ideological education.Provide the education on the sense of responsibility and the understanding of mission for village cadres，carry out theoretical learning on the system of subsistence allowances，understand the purpose and significance of policies and systems，and make clear of the hazards caused by rule-breaking operations.

3.3.3 Improving the quality of rural population.Currently，the consciousness of right among farmers has been improved to a certain degree.But in the investigation，we find that many old people，women and children who are in the majority in rural areas do not know how to safeguard their own rights.For instance，many villagers have reported the unfair distribution of subsistence allowances to us.In reply，the village cadres ask them that why they didn't report the problem at that time as the list had been publicized in the village and town for 7 days with a hot line number for public complaints.When hearing this，the villagers just have nothing to say.Thus it can be seen that the ideological quality of villagers must be improved so as to bring their supervisory role into full play.They need to learn to safeguard their legal rights through formal channels.

3.4 Promoting agricultural insurance without delay

3.4.1 Striving for the support of central finance and become the pilot province of agricultural insurance.At present，agricultural insurance is generally promoted in some major agricultural provinces in the northern part.As the province with low level of agricultural development，Guizhou Province should strive to seek the opportunity and keep a foothold in two aspects，one is preventing re-poverty of farmer households caused by natural disasters and epidemic diseases，and the other is the sustainable development of poverty alleviation.

3.4.2 Government attention.The supporting fund of local finance is the precondition for central financial support.Therefore，local governments，especially the provincial governments，should attach enough importance to it.

3.4.3 Market operation.It is recommended to apply the mode of relegating businesses to commercial insurance companies with a certain amount of allowances provided by the government.At present，the profit space of urban market in China has been sharply compressed，and the competition in the property insurance market is unprecedentedly fierce.With national support and guidance，commercial insurance companies are willing to enter the agricultural insurance market.On account of the for-profitnature of commercial insurance companies，non-profit policy-oriented agricultural insurance companies should be established by the government in the long run so as to conduct product design，management and operation for agricultural insurance in a unified way and create a policy-oriented operation mode of agricultural insurance that is dominated and managed by government and applies market-featured management.

3.5 Improving the sustainable development capacity and market competition ability of farmer specialized cooperative economy organizationsIt is recommended to establish and perfect corresponding organizations and regulations.Standardized operation is the foundation for the normalized operation，resultant force formation and sustainable development of cooperative organizations.Besides，it is required to set up the operating mechanism that combines democratic management with cooperation governance by＂able persons＂who are business-minded with a strong cohesive force.However，the cooperation governance by able persons should be combined with democratic management.Otherwise，it could lead to despotic control and corruption.At this point，cooperative organizations need to stipulate the principles and mechanisms for democratic management in the Articles of Association.Further，it is recommended to carry out effective competitive strategies and improve the competitive capacity of organizations on the basis of the industry，market and product.As a principal part of competition in the market economy，farmer's specialized cooperative organizations should have basic market awareness and develop specific competitive strategies.Furthermore，it is required to perfect the benefit distribution mechanism and risk adjustment mechanism.Firstly，we should make clear the property relations among various main bodies of the farmer's specialized cooperative organizations established with joint investment so as to prevent the excessive concentration of government support policies and cooperative surplus on the minority.If so，regular members can hardly enjoy the benefits brought by cooperative organizations in the true sense.Besides，effective risk management should be provided.For example，withdraw part of the retained profits as provision for risks and charge a certain amount of risk reserve from the community members，too.Also，we should employ industry experts，marketing specialists and risk management specialists as consultants so as to provide risk analysis，risk pre-warning，risk assessment and risk management during the process of project implementation，thus to reduce and defuse the risks［10］.

3.6 Promoting intellective poverty alleviation and improving the comprehensive quality of impoverished peopleTheodore［13］believes that the root cause of economic backwardness in poor countries lies is not the shortage of physical capital，but the lack of human capital and their inadequate attention to human capital investment.Eliminating absolute poverty comprehensively through improving population quality will cost large investments，and the poverty alleviation effect is not obvious.Along with the defects of tenure system for cadres，almost all the primary-level political organizations in the poverty-stricken areas of China has put the human capital investment oriented by educational development on the back burner.Instead，they have spent most of their efforts and poverty alleviation funds on some＂short，fair，and fast＂projects and industrialization projects.For instance，Weining Autonomous County had obtained special poverty alleviation funds of 329 970 000 yuan in total from 2009 to 2011，in which 271 460 000 yuan had been used for poverty alleviation through industrial development，accounting for82.27%of the total funding.In contrast，only 7 849 100 yuan had been used for trainings，accounting for2.38%of the total funding［5］.Because of this kind of practice，far mer shave failed to master and utilize the new production factors and organization management methods to be delivered to rural areas.In this way，they have lost the initiative and the power of domination.Under the induction of agricultural industrialization，farmers have got higher income through resource and labor outputs than that obtained from agricultural operation.They are losing their confidence in agriculture gradually［14］.Without the regulation of anti-poverty system arrangement and the traction of macro policies，this phenomenon will be sure to create negative impacts on the development of impoverished rural areas and the stable poverty alleviation of impoverished people in western China in the21st century［15］.At present，the intellective poverty alleviation and improvement in the comprehensive quality of impoverished people should be conducted from the following several aspects：

3.6.1 Increasing the degree of attention and support of local governments.Due to the difficulty in the quantitative measuring and scoring of culture，it is hard to conduct assessment and inspection.That is to say，there are no hard constraints for intellective poverty alleviation projects.Rural cultural undertakings can only be flourished with the emphasis from central，provincial to county-level governments level by level.

3.6.2 Improving the degree of participation of impoverished people in intellective poverty alleviation projects.Get the farmers educated in the artistic form of teaching through lively activities，and make them accept new thoughts and new ideas subtly.For this，the workers in related fields need to go to the countryside，contact with the farmers and explore the artistic forms desired by the farmers.

3.6.3 Enriching the content of intellective poverty alleviation and improving the ideological quality，cultural quality and skills of impoverished people comprehensively.At the present stage，it is most urgently needed and reasonable to focus on intellective poverty alleviation oriented by practical skill training.However，the main course for the poverty of farmers lies in their outdated thoughts and ideas.Therefore，after the skill training for a period of time，the content of intellective poverty alleviation should be enriched to conduct all-around，three-dimensional and long-range intellective poverty alleviation，thus to change the ideas and spiritual outlook of rural population.

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