National Disaster Risk Management Framework

REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Reducing Disaster Risks for a Safe and Happy Bhutan

Disaster Management Division Department of Local Governance Ministry of Home & Cultural Affairs Royal Government of Bhutan

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Published by Disaster Management Division Department of Local Governance Ministry of Home and Cultural Affairs Thimphu, Bhutan

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

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His Majesty the King Jigme Singye Wangchuck

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

ROYAL GOVERNMENT OF BHUTAN REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

TABLE OF CONTENTS

List of Acronyms ...... 3 ACRONYMS, ABBREVIATIONS & BHUTANESE TERMS ...... 3

CHAPTER 1 ...... 5 Introduction ...... 5

CHAPTER 2 ...... 8 Situation Analysis: Disaster Management Scenario in Bhutan ...... 8 2.1 Disaster Hazards in Bhutan...... 8 2.1.1 Hazards ...... 8 2.1.2 Underlying Vulnerabilities ...... 22 2.2 Existing Institutional and Legislative Arrangements for Disaster Risk Management ...... 24 2.2.1 Institutional Arrangements...... 24 2.2.2 Legislative arrangements ...... 25 2.3 Recent Developments ...... 26 2.4 Key Challenges and Opportunities for Disaster Risk Management in Bhutan ... 27 2.4.1 Challenges ...... 28 2.4.2 Opportunities ...... 28 2.5 Proposed Institutional Framework ...... 29 2.5.1 At the national level ...... 29 2.5.2 At the Dzongkhag level ...... 31 2.5.3 At the Dungkhag, Gewog and Thromde levels ...... 31 2.6 Proposed Response Mechanisms...... 31 2.7 Financial Arrangements...... 32 a) Disaster Mitigation, Prevention and Preparedness Budget...... 32 b) His Majesty’s Relief Fund ...... 32 c) Major Disaster Fund (Emergency) ...... 33

CHAPTER 3 ...... 34 Disaster Risk Management Framework (DRM) for Bhutan ...... 34 3.1 DRM Framework ...... 34 3.1.1 Key objectives ...... 34 3.1.2 Scope of the DRM Framework ...... 34 3.1.3 The consultative process ...... 35

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

3.2 Institutional, legislative and policy frameworks...... 35 3.3 Hazard, Vulnerability and Risk Assessment ...... 38 3.4 Disaster Management System ...... 40 3.5 Early Warning Systems (EWS) ...... 40 3.6 Disaster Preparedness Plans ...... 43 3.7 Mitigation and Integration of Disaster Risk Management in Development Sectors ...... 45 3.8 Public Awareness and Education ...... 47 3.9 Capacity Development ...... 48 3.10 Communication and Transportation ...... 50

Integrating cultural heritage into disaster planning ...... 53

CHAPTER 4 ...... 55 Implementation Arrangements ...... 55 Annex 1: Institutional Profiles ...... 56 1. DEPARTMENT OF GEOLOGY AND MINES (DGM) ...... 56 2. NATIONAL ENVIRONMENT COMMISSION (NEC) ...... 58 3. DEPARTMENT OF ENERGY (DoE) ...... 60 4. MINISTRY OF AGRICULTURE (MoA) ...... 63 5. STANDARDS & QUALITY CONTROL AUTHORITY (SQCA) ...... 65 6. DEPARTMENT OF ROADS (DoR) ...... 68 7. DEPARTMENT OF URBAN DEVELOPMENT AND ENGINEERING SERVICES 69 8. DEPARTMENT OF MEDICAL SERVICES (DMS) ...... 71 9. DEPARTMENT OF BUDGET & ACCOUNTS (DBA) ...... 72 10. BHUTAN TELECOM LTD. (BTLtd)...... 72 11. ROYAL BHUTAN POLICE (RBP) ...... 73

Annexure 2: ...... 74 Disaster Management Plan- Phuentsholing City Corporation...... 74

Annexure 3: ...... 76 ORGANOGRAM A: INSTITUTIONAL MECHANISM AT THE CENTRE ...... 76 ORGANOGRAM B: INSTITUTIONAL MECHANISM AT THE DZONGKHAGS, DUNGKHAGS, THROMDES & GEWOGS ...... 78 ORGANOGRAM C: IMPLEMENTATION MECHANISM ...... 80 ORGANOGRAM D: RESPONSE MECHANISM...... 81

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

3 List of Acronyms

ACRONYMS, ABBREVIATIONS & BHUTANESE TERMS

CITES Convention on International Trade on Endangered Species CWC Centre for Water Commission DDMC Dzongkhag Disaster Management Committee DEOC Dzongkhag Emergency Operation Centre DFID Department for International Development DOE Department of Energy DGM Department of Geology and Mines DLG Department of Local Governance DMP Disaster Management Plan DYT Dzongkhag Yargye Tshogdue ECoP Environmental Code of Practice EFRC Environmental Friendly Road Construction ESF Emergency Support Function EWS Early Warning System GDMC Gewog Disaster Management Committee GHG Greenhouse gas GIS Geographical Information System GLOF Glacial Lake Outburst Flood GNH Gross National Happiness GPS Global Positioning System GYT Gewog Yargye Tshogchung DRM Disaster Risk Management HKH Hindu Kush Himalayan ICIMOD International Center for Integrated Mountain Development INSARAG International Search & Rescue Advisory Group JGE Joint Group of Experts LDCs Least Developed Countries NAPA National Adaptation Program of Action NCDM National Committee for Disaster Management NDRM National Disaster Risk Management NEC National Environment Commission NEIC National Earthquake Information Centre NEOC National Emergency Operations Centre NESB National Environment Strategy of Bhutan NSB National Statistical Bureau RAP Rural Access Project RUB Royal University of Bhutan SAARC South Asian Association for Regional Cooperation SITREP Situation Report SQCA Standards and Quality Control Authority TDMC Thromde Disaster Management Committee TAC Technical Advisory Team UNDP United Nations Development Programme UNFCCC United Nations Framework Convention on Climate Change UNICEF United Nations Children’s Fund UTEP University of Texas at El Paso WCDR World Conference on Disaster Reduction WFP World Food Programme WMO World Metrological Organization

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BHUTANESE TERMS

Dzong Fortress or Monastery Dzongchung Small Dzong Dzongkhag District Dzongkhag Yargye Tshogdue District Development Committee Gewog Administrative Block consisting of a number of villages under a Dungkhag or a District Gewog Yargye Tshogchung Block Development Committee Dungkhag Sub-division Thromde City or township

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN CHAPTER 1 5 Introduction

A disaster is a natural or man-made event Acknowledging the umbilical cord between that negatively affects life, property, livelihood development and disasters, the RGOB is in or industry often resulting in permanent the process of mainstreaming disaster risk changes to human societies, ecosystems reduction concerns in all development and environment (www.answers.com). In the activities and in all walks of socio-economic international context disasters mean a life. It emanates from the conviction that serious disruption of the functioning of a development cannot be sustainable unless community or a society causing widespread disaster risk management is inbuilt into it and human, material, economic or environmental informs all aspects of planning and losses which exceed the ability of the affected development process. For this, the Royal community or society to cope using its own Government is adopting a multi-disciplinary resources (www.adrc.or.jp). In the context of and multi-sectoral strategy to ensure that Bhutan any man-made or natural calamity every sector can contribute towards that adversely affects life, livelihood, and promoting disaster-resilience in accordance property of even a single person or a family with its own mandate, capacity, expertise and will be considered a disaster. strength. Hence, the Framework seeks to ensure that all developmental activities align Under the visionary leadership of His Majesty themselves in a way to reduce the risk of the King, the Royal Government of Bhutan disasters. (RGOB) has set the goal of achieving Gross National Happiness through all-round socio- Adoption of a disaster risk management economic development as a priority national framework assumes importance due to objective. In view of the geo-physical location emerging trends pointing towards climate of the country in one of the most seismically change and global warming at an alarming active regions of the world and the peculiar rate. The potential threat from some of the geo-climatic conditions affecting the existing hazards viz. Glacial Lake Outburst landmass and its people, the RGOB Floods (GLOFs), flash floods, landslides, recognizes the national priority of forest fires etc. is likely to exacerbate. At the safeguarding the painstakingly built same time, the rapid pace of urbanization developmental gains, the socio-economic as witnessed during the past two decades is infrastructure, the fragile eco-system and the causing larger concentration of people and lives, livelihoods, property and community resultant economic activity in hazard-prone assets of the people from the vagaries of the areas further compounding the risk. destructive forces of nature. The Government has recognized the importance The devastating disasters in the South Asian of developing a comprehensive disaster risk and South-East Asian region and in other reduction strategy for minimizing the impact parts of the world in the recent past with their of both natural and man-made catastrophes. calamitous impacts on the human population

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

and the national economies have underlined administration and among the common the significance of integrating disaster risk people. The key objectives of the Framework 6 reduction concerns in all walks of Bhutan’s are as under:- national and socio-economic life. The Royal Government of Bhutan has been keenly ➻ To promote a disaster risk following the emerging initiatives and management approach instead of an strategies at the international level and ad hoc reactive approach to dealing actively participated in the deliberations and with disasters; processes of the World Conference on Disaster Reduction (WCDR) held in Kobe, ➻ To recognize the respective roles of Japan in January, 2005 and has been different organizations in disaster risk consciously working towards devising an management and provide all appropriate national disaster risk possible support to their work within management framework to secure and the national framework for disaster safeguard the lives and livelihoods of the risk management; and people and its national development assets. It is striving to establish synergies of action ➻ To establish linkages between and convergence of approaches between disaster risk management and the various administrative structures and other ongoing activities in different Ministries/agencies. Closely observing and development sectors. drawing upon the international perspectives and the best practices, the Royal The steps envisaged to be taken by the Government has formulated the National Government emanate from the vision Disaster Risk Management Framework to enumerated in ‘Bhutan 2020: A Vision for specifically address the vulnerability and risk Peace, Prosperity and Happiness’ and profile of the country vis-à-vis natural translated into the National Disaster Risk disasters within the peculiar context of the Management Framework dovetailed towards needs and aspirations of the people of achievement of the objectives enshrined Bhutan and to achieve the national therein and covering all aspects of disaster development objectives outlined in ‘Bhutan management. The expected inputs, areas of 2020: A Vision for Peace, Prosperity and intervention and Ministries/agencies to be Happiness”. involved at the National, Dzongkhag, Dungkhag, Thromde and Gewog levels have In light of the approach outlined above, the been identified and listed in the Framework. Royal Government of Bhutan is making A concerted effort would be made to make systematic efforts to move towards adopting the processes introduced under the a strategy of holistic disaster management Framework sustainable and community and/ involving and encompassing every or local government driven. It is hoped that administrative wing as well as the common this Framework would provide a common people to inculcate a mindset of disaster strategy under-pinning all actions and prevention, mitigation and preparedness in activities of various participating Ministries, the pre-disaster phase while at the same time agencies and stakeholders and would serve developing speedy and effective disaster as a roadmap for initiating well-coordinated, response capabilities at all levels of organized and synchronous disaster risk

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN management activities to move towards a The Framework has been drawn up through disaster-resilient nation through optimum a wide-ranging consultative process across 7 utilization of the existing resources and different sectors and institutions involving institutions. identification of their strengths, resources and capacities. It also comes at a time when The Framework broadly seeks to put the the process of formulation of the forthcoming vision into effect through the following 10th Five-Year Plan (2008-2013) is also likely initiatives: to commence shortly and it is hoped that the agenda of disaster risk management a) Institutional, legislative and policy highlighted in the Framework would find due frameworks reflection in the formulation of development b) Hazard, vulnerability and risk as- proposals for the coming years. The sessment Framework embodies a vision and is hence c) Early warning systems thematic in character and outline driven by d) Disaster preparedness plans an understanding of the emerging challenges e) Disaster management system ahead and would need to be converted into f) Mitigation and integration of disas- sectoral work plans, strategies, policies and ter risk reduction in development instruments to achieve its desired outcome sectors for the overall well-being of our people and g) Public awareness and education sustainability of the development process in h) Capacity development Bhutan. i) Communication and transportation

2nd Consultative Workshop in Thimphu in Feb. 2006

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8 CHAPTER 2

Situation Analysis: Disaster Management Scenario in Bhutan

2.1 Disaster Hazards in Bhutan in the rainy season. Most occur in the eastern and southern foothill belt where the terrain 2.1.1 Hazards is steep and rocks underlying the soil cover are highly fractured, allowing easy seepage A hazard can be defined as a phenomenon of water. Contributing factors are the that may adversely affect human life, undercutting of slopes by high-energy rivers property, activity or the environment to the and streams during a period of heavy rainfall. extent of causing a disaster. Bhutan is prone Landslides can also be caused by the to multiple natural hazards that pose varying tremors of an earthquake, as witnessed in degrees of risk to the lives and livelihoods of the aftermath of the 1980, 1988, and 2003 its 634,972 inhabitants. The country lies in earthquakes. In particular, the urban areas one of the most seismically active zones of experience secondary affects of landslides the world, GLOFs pose a serious hazard risk due to the importance of road infrastructure in the country, and flash floods and landslides for the dispatch of vital goods. Farmers on pose an annual threat to human lives, steep slopes and foothills of the south and properties and livelihoods - especially in the the eastern region of the country in particular southern and eastern parts of the country. are regularly affected by the hazard. Forest fires, mainly in the dry winter months cause significant disruption of activity and Fires on forest and human settlements present a serious threat to the environment Given the rugged and steep topography with and livelihoods of local inhabitants. According thick ground fuels and erratic wind to some estimations climate change conditions, Bhutan is prone to frequent forest processes will increase these hazard risks fires. In the last decade, there have been through significant impacts on Bhutan’s severe forest fire outbreaks in many parts of mountainous ecosystem in the near future. the country. The risk of fire outbreaks is In the past, communities in Bhutan have also generally exacerbated in the dry winter been affected by minor outbreak of pest, months (November to April). While for most epidemic diseases and drought. Presently, forest fires, the causes have been traced to the influenza pandemic poses a heightened human behavior (burning of agricultural risk. debris, carelessness and short circuit transmissions), the impact on the natural Landslides environment and on local inhabitants’ Landslide events are closely linked with sources of livelihood is significant. A total of 803 forest fires damaging an area of flooding events, and are also recurrent 309,181.9 acres were recorded by the Social phenomena in Bhutan. Slopes in the country are highly susceptible to landslides especially Forestry Services Division, Ministry of Agriculture (MoA), over the period 1992 to

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

A landslide destroy agriculture land in eastern Bhutan

Massive landslides cut off road communication between Thimphu and Phuentsholing during rainy season.

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Forest fire above Trashigang Town. Settlements that lie near the forested region often face threat from fire (Kuensel)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

2004. Based on the records, Thimphu 2005, 7 shops were burnt down in Chamkhar Dzongkhag in the western region has the town in Bumthang causing heavy loss to 11 highest number of incidents (115) followed property. Heavy use of wood in traditional by Mongar (105), Trashigang (90), and buildings, dzongs, monasteries and other Samdrup Jongkhar (85) in the eastern structures of historical significance make region. These incidents have had a them highly suceptible to fire accidents. devastating impact on the environment and the livelihoods of communities. They also The forest fire that broke out from Dangme- pose a persistent threat to houses, Gamrichu confluence in Bartsam Gewog in infrastructure, human life, livestock and wild Trashigang Dzongkhag on 27 March, 2006 life. Incidents of fires on houses and other spread across the villages of Galing, Bartsam settlements are also increasing both in the and Bidung and damaged thousands of rural areas as well as in the towns. acres of forests, destroyed five houses in Bidung Gewog. The fire also killed 2 people In 2002, 25 houses in Yangthang village in and injured another. The villagers, civil Haa were completely razed down by fire. servants, foresters and armed forces fought Although there were no human casualties it the fire for 5 long days till it was brought under caused heavy loss to property. In December control. Reports of similar isolated incidents 2005, 5 houses were burnt down in Zhapong continue to flow in from various districts in village, in Trashiyangtse and in November the country.

25 traditional houses in Yangthang village in Haa were completely burnt down by fire in 2002.

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Epidemic, pests and diseases Despite the high risk of earthquakes Communities in Bhutan have been affected occurring in the region, there is little by way 12 by outbreak of pest and epidemic diseases of ‘official’ historical records tracking in the past. Malaria has largely affected the earthquakes and consolidating the relevant southern belt, with a recent dengue outbreak data. Records suggest that while four great in September 2004 in municipal areas in this earthquakes of magnitude exceeding 8 on region. However, the recent influenza the Richter scale occurred during 1897, pandemic in the region has been a cause of 1905, 1934 and 1950, another 10 concern for Bhutan. Bhutan’s contact with the earthquakes exceeding magnitude 7.5 have outside world has increased with the occurred in the Himalayan belt during the convenience of both air and surface travel past 100 years. In recent years, Thimphu, to the countries of the region. Bhutan’s Paro and Phuentsholing have witnessed the porous border with India and frequent effects of three significant earthquakes. The exchange of poultry products heighten the earthquake of 1980 (6.1 on Richter scale), risk of infections in the eventuality that India with its epicenter in Sikkim (India), had is affected by the pandemic. In response, the caused several cracks in buildings in National Influenza Pandemic Plan for Avian Thimphu, Phuentsholing, Gelephu, Samdrup Flu has been prepared by the Department Jongkhar and Trashigang. There were also of Livestock, Ministry of Agriculture, to reports of some damages caused to houses facilitate clinical surveillance and testing of in the villages. Also, in its aftermath, the animals/ birds with symptoms. The plan has Phuentsholing – Thimphu national highway been submitted to the DLG, Ministry of Home was blocked by landslides caused by the and Cultural Affairs for incorporation in the tremor. The earthquakes of 1988 (6.6 on national DRM strategy plan to facilitate Richter scale) and 2003 (5.5 on Richter national and international coordination in this scale) with epicenters in the Indo-Nepal respect. border and Bhutan respectively, also caused similar damages to human settlements, Bhutan is also the roosting ground for a large institutional buildings (including schools, number of black necked cranes and other hospitals, Dzongs etc.) and highways. wild birds that migrate to Bhutan from across its borders. They can be potential carriers of The most recent earthquakes that struck Avian flu into the country. eastern Bhutan in the early hours (2:04 am and 2:07 am) of 24th February, 2006 are a Earthquakes reminder of Bhutan’s vulnerability to such Geo-physically, Bhutan is located in one of disaster. The earthquakes, each measuring the most seismically active zones in the 5.8 and 5.5 on the Richter scale were third world. Although a detailed and in a row to hit Bhutan in less than two weeks. comprehensive seismic zonation of Bhutan The first tremor was located about 33 is unavailable, its proximity to the north- kilometers beneath the eastern surface, near eastern parts of India, which is in the ‘most Dewothang in Samdrup Jongkhar. The active’ seismic Zone V (according to Bureau second tremor was located between of Indian Standards), indicates that the Samdrup Jongkhar and the border of Assam, majority of Bhutan is either in Zone IV or V. India. Although the tremors which lasted for

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN five to six seconds were of moderate in 1957, 1960 and most recently in 1994. All intensity, damages were caused to the of these have taken place in the Pho Chu 13 Dzongs and Lhakhangs in the eastern sub-basin. There is virtually no written record Dzongkhags of Trashigang, Lhuentse, of the 1957 and 1960 GLOFs. The 1994 Pemagatshel and Samdrup Jongkhar. The GLOF, which was caused by partial burst of walls and timber structures of Trashigang Lugge Tsho in eastern Lunana, damaged and Lhuentse Dzongs were affected more than 1,700 acres of agricultural and requiring major repairs. pasture lands and a dozen houses, washed away five water mills and 16 yaks, and Glacial Lake Outburst Floods (GLOF) destroyed 6 tonnes of food grains. Apart from GLOFs are among the most serious natural recurrence of GLOFs in the past Pho Chu hazard potentials in the country. Due to the sub-basin is a very critical area for GLOF effects of global warming, glaciers in the impact mitigation in the future because it Himalayas are shrinking rapidly, thus hosts one-third of the 24 potentially possibly accelerating glacial retreat in this dangerous lakes in the country. Future region. According to a recent study threats are likely to encompass regions that conducted by the Department of Geology fall within the Chamkar Chu basin, the and Mines (DGM) in collaboration with Mangde Chu basin, Kuri Chu basin, Mo Chu ICIMOD, there are 2,674 glacial lakes in basin, and Pho Chu basin. Overall, GLOFs Bhutan, of which 562 are associated with regularly threaten the lives and livelihoods glaciers. The study has identified 24 glacial of people living in the valleys and low lying lakes as ‘potentially dangerous lakes’ that river plains. Also susceptible to damage are could pose a GLOF threat in the near future. industrial infrastructures such as hydropower GLOF has taken place in Bhutan in the past projects and low lying bridges along the rivers.

Punakha Dzong (1637) is surrounded by flood water during the flash flooding caused by outburst of Luggi tsho in 1994

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Map indicating potentially dangerous lakes (DGM)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Map of Bhutan with indication of the Five Major GLOF areas (UNDP-Thimphu)

Glacial Lakes in Lunana (DGM)

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Luggi Tsho glacial lake two weeks after the flood of 7 October 1994 (DGM)

1994 December 25 1999 January 3

Raphsteng Lake and glacier tongue of Thorthormi glacier - Bhutan (DGM)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Logs and other debris float down the river below the Wangdi Dzong during the October 1994 flooding (Helvetas)

Impact of 1994 flood on one of the oldest temples in front of Punakha Dzong

(Flash) Floods Landslides and (flash) floods are recurrent regions of Bhutan, which have intensively phenomena in Bhutan causing extensive dissected terrains with deeply eroded, steep damages during the monsoon season (June and closely spaced gullies, gorges and river to September). They have been observed to valleys, often experience floods caused by follow a cyclic pattern of 2 to 4 years with heavy rainfall. Most flood events are flash the eastern region being particularly floods, which are local floods of great volume vulnerable. The eastern and southern foothill and short duration.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

The most recent record of flash floods can 9 people, washed away 29 houses and 26 be traced to the heavy rains (2000 mm) in houses had collapsed, 107 houses were 18 the areas of Phuntsholing and Pasakha, partially damaged. A total area of 664 acres along with some southern towns where more of wet and dry farm lands were destroyed. than 200 people lost their properties. In 2004, Hundreds of tonnes of maize, paddy and flashfloods affected six eastern Dzongkhags, potatoes were lost and about 2000 orange of which Trashigang, Trashiyangtse and trees were washed away affecting about Samdrup Jongkhar were the most affected 1437 households. Taking into consideration areas with damages to property and the small population size and limited arable livestock. The 2004 monsoon floods that land, the loss was enormous. occurred in the six eastern Dzongkhags killed

Phuentsholing experienced one of the worst flooding caused by Doteng chu in August , 2000

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

The portion of road washed away by flash flooding in Lungtenzampa, Trashigang in 1994 (DoR)

A partially damaged house in Lungtenzampa, Trashigang after the 2004 monsoon flood (Kuensel)

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Damages caused by flash flooding during rainy season in Trashigang town in 1994

Natural dam formations and dam bursts numerous properties of cultural, social and Due to Bhutan’s steep terrain, narrow river historical significance. gorges, unstable physical structures, and increasing incidences of landslides during Windstorms/snowstorms/hail storms/ monsoon have led to artificial dam and lake droughts formation on the rivers. In September 2003, Due to global climate changes recent climatic there was a dam formation due to rock slide variations around the world have been highly on the Tsatichhu, a tributary of Kurichu. An unpredictable. This has also resulted in estimated volume of 33 million m3 was extreme natural events such as dry weather, formed within 0.3 Km2 of the size of dam excessive rains and other devastating natural body. In May 2004 the dam began to fail calamities such as typhoons, floods and leading to dam burst on 10th July 2004 droughts etc that have affected many people causing downstream environmental impacts. around the world. Similarly Bhutan is also The Kurichu Hydropower Corporation witnessing extreme variations in its climate authorities, however, were able to open the and weather patterns. The winter of 2005- reservoir gates in time to avoid major 2006 had experienced unusually dry winter destruction to the dam and other casualties. with no rain and snow. The majority of Such hazards will continue to prevail in Bhutanese communities must rely on timely Bhutan’s rivers placing many of the rainfall as priorities of land and water have hydropower plants, farmlands, human to be adjusted on it. Regular precipitation and settlements, social infrastructures and timely farming practice determines the

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

An artifical lake formed by landslide on the Tsatichu, a tributary of Kurichu river in 2003

The Kurichu Hydropower dam and reservoir located on the downstream of the Tsatichu artificial lake livelihood of our communities. Although the vulnerability and the capacity to cope with Bhutan has not experienced large scale such natural hazards necessitates policies, destructions due to windstorms, snow and scientific interventions and good decision hailstorms and droughts, education and making by the authorities concerned. awareness among the communities that are Strategies that address immediate, medium likely to be affected must be brought about. and long term must be in place to address The complexity of the factors that determine these issues.

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2.1.2 Underlying Vulnerabilities memory has bred certain complacency among the people at large. 22 Bhutan is exposed to a range of natural hazards but it is the underlying vulnerabilities Rapid urbanization: In recent decades, that intervene in the translation of this there has been a spurt of urbanization in physical exposure to hazards into disaster Bhutan and more often than not, this growth risks. A complex interplay of social, economic has been unplanned and haphazard. For and cultural factors determines these example, the population of the capital city vulnerabilities and is increasing the impacts Thimphu has increased five times in the past of hazard events over the years. twenty years and an urban earthquake is likely to have a far more devastating impact Some of the underlying vulnerabilities in today than a few years ago. The increasing Bhutan population and other demographic changes especially in the two largest urban centres Unsafe construction practices: Lack of such as Thimphu, Phuentsholing and other incorporation of adequate disaster risk emerging townships of Paro, Wangdue, reduction elements in construction renders Punakha, Gelephu, Gedu, Chimalakha, the physical infrastructure in both the public Samdrup Jongkhar, Tala, Mongar, as well as the private domain susceptible to Gyalpoizhing and Ranjung have redefined hazards. In addition, there is insufficient the hazard and risk profile in the country. technical expertise among engineers, architects, masons and other building Pressure on land and settlements: A vast artisans on disaster-resistant construction majority of the people is dependent on agri- practices. The fact that there has not been a culture and forestry products for livelihood major disaster in the country in recent which in turn requires more and more areas

A crowded weekend market day in Kuru town in Punakha. Located on the banks of Puna Tsangchu Khuru is vulnerable to GLOF flash flooding. (KD)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Thimphu is one of the most populated and fastest growing urban towns in Bhutan (Kezang DD) to be brought under cultivation and denud- Lack of awareness: At the general level, ing of hill slopes rendering them vulnerable there is an inadequate incorporation of di- to landslides, mudslides and flash floods saster risk reduction concerns in the plan- during the rainy season. The problem is fur- ning and development process especially in ther compounded by the geo-physical struc- the private sector and at the community level. ture of the area. So far, the process of sitting The overall lack of awareness that something of habitations has not been taking into ac- can be done to reduce the risk further com- count their vulnerability to hazards. For ex- pounds the scenario. ample, the development of townships does not consider whether the area is prone to Environmental degradation: The pressure landslides or flash flooding at the inception exerted by increasing population on the stage thereby necessitating larger amounts environment is leading to its rapid of resources at a subsequent stage to re- degradation and denuding of hills threatening duce the risk to inhabited areas. the human settlements downstream as well as the national infrastructural assets viz. Socio-economic factors: The socio-eco- dams, hydro-electric plants, road and nomic conditions are perforce compelling the communication network etc. which are the common people to adopt livelihood patterns lifeline of the national economy. which tend to cast an adverse impact and Environmental degradation is leading to a vest the country with a high vulnerability pro- high rate of siltation in the dams and file. People settle in hazard-prone areas such reservoirs, necessitating timely interventions as steep slopes or flood-prone river beds in before the situation becomes precarious. search of sources of sustenance and are exposed to a high degree of risk.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Insufficient enforcement of building by- such as response mechanisms are laws: There is an insufficient and slack established to oversee major disasters. 24 enforcement of building by-laws and codes in the urban areas due to lack of expertise In the past Bhutan has been able to respond and trained human resources to enforce the to disasters quite effectively through optimum same. The compliance among the common harnessing of the resources in spite of the people is also low due to lack of awareness non existant integrated disaster risk and general apathy to disaster risk management mechanism. Although, over the management issues. years, the response mechanism has been found to be quite robust and effective to meet Lack of preparedness planning: There is the exigencies of the situation, yet the a general lack of disaster preparedness and constraints remain in terms of adequate response planning not only at the institutional arrangements with capacity for administrative level but also at the community meeting the challenges of natural disasters. level with the result that the capacity to mitigate the impact of disasters and to The establishment of the Ministry of Home generally respond to them in a speedy and and Cultural Affairs (MoHCA) as the nodal effective manner is also non-existent. agency by the Royal Government of Bhutan is an important step in the overall framework 2.2 Existing Institutional and for disaster management in Bhutan primarily Legislative Arrangements for because the country’s administrative units Disaster Risk Management like the Dzongkhags, Dungkhags and the Gewog administrations fall under the 2.2.1 Institutional Arrangements administrative functioning of the Ministry. Furthermore the Ministry facilitates the pursuance and implementation of national We believe that Bhutan has not suffered from policies and interests by local governments any major disasters due to the blessings of the protective deities of the country. A few in the overall interest of promoting good governance in the country. Therefore the disasters which were caused due to fire, Ministry is well set to ensure that the flooding and landslides have been attended to personally by His Majesty the King. His programmes are planned well and implemented with a greater degree of Majesty the King has been deeply involved efficiency and effectiveness. The Ministry has in the welfare and rehabilitation of affected communities and even down to individuals a well established line of communication and coordination with Dzongkhags and other where ever there has been accidents and administrative units in times of emergency. natural disasters like house fire, destruction of homes and farmlands by flash floods and In view of this the Royal Government of Bhutan has designated the Ministry of Home landslides, loss of crops to pests or bad and Cultural Affairs as the nodal agency for harvests due to failure of crops, or vehicular accidents involving public transports. disaster management in the country. Although such informal arrangements have As the coordinating agency, the Ministry will worked well for small scale disasters it is important that the institutional arrangements assume responsibilities that have larger policy implications and also coordinate

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN emergency responses. However, the MoHCA Police Act has provisions for the RBP to will refrain from interfering in the ongoing risk provide help in times of disasters. Similarly 25 reduction and preventive activities that are the other branches of the Armed Forces must being initiated by the various government, take part as and when they are called upon public and private sectors especially where to do so. The Gewog Yargay Tshogchung technical and professional expertise are (GYT) and Dzongkhag Yargay Tshogdu involved. Disaster management is a multi- (DYT) Chathrims also state that the GYT has sectoral and multi-disciplinary responsibility the administrative powers and functions to that ensures that every sector can contribute organize relief measures during natural towards promoting disaster resilience within disasters/ emergencies and the DYT to its own mandate, capacity, expertise and mobilize voluntary actions in times of natural strength. catastrophes and emergencies.

While MoHCA will be the focal agency at the As far as the legislative mechanism is national level, the Dzongkhags, Dungkhags, concerned, while there is no legislation/Act Gewogs and the Thromdes (Municipalities) that specifically addresses disaster risk at their respective levels will be given the management, elements supportive of and responsibility to implement disaster risk addressing disaster risk management management activities. The DLG, MoHCA concerns albeit in an elementary form can has also been entrusted to directly coordinate be found in some Acts/ Rules and disaster management programmes and Regulations existing in various sectors. Past activities at the Dzongkhags and in other legislations from the environmental and administrative units. building sectors in particular, need to be reviewed and analyzed in view of the key - A detailed profile of sectoral initiatives in components of the emerging National DRM disaster management/ response activities Framework so that avoidable overlaps/ anchored by these (and other) institutions in conflicts with existing policies and rules and Bhutan is listed in Annex 1 [‘Institutional regulations may be obviated. The objective Profiles’]. will be to integrate these existing regulations with the National DRM Framework, thus 2.2.2 Legislative arrangements establishing disaster risk management as a cross-cutting, multi-sectoral development Although no laws, statutes or any other legal priority. Some of the legal enactments are framework dealing specifically with disaster mentioned below: management exist, Article 8(6) of the Draft Constitution of the Kingdom of Bhutan ➻ Environment Assessment Act, provides that it is the responsibility of every (2002), along with a series of other Bhutanese to provide help to victims of instruments pertaining to the accidents and in times of natural calamities. environment, guide development The Environmental Acts and Policies, the project components through the Mines and Minerals Management Act, the process of acquiring environmental Bhutan Water Policy, the Land Act and the clearance. The process is aimed at Bhutan Building Rules indirectly support mitigating and preventing the disaster management. The Royal Bhutan undesirable impacts of

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developmental activities on the specific Acts, guidelines, rules and country’s environment. regulations and other developmental 26 schemes need to be reviewed from the ➻ Bhutan Water Policy (2003), perspective of mainstreaming disaster risk underlines the need to “develop a management concerns therein. An Inter- national adaptation strategy for Ministerial Committee or an Inter-Agency climate change, including a national Task Force may need to be constituted to flood management and mitigation analyze the existing legal instruments and strategy” (section 35) and stresses recommend appropriate measures to the importance of an integrated streamline the same in the light of the NDRM approach in water resources Framework. management in general and in monitoring, early warning and It would thus be apparent that elements of a mitigation measures in relation to national disaster risk management system GLOFs in particular. do exist within the administrative machinery. However, the need for a properly coordinated ➻ Bhutan Building Rules (2002) deal approach and well-delineated action plan with the process of grant of building covering all sectors under a uniform national permits and Building Code of Bhutan framework, with various agencies (2003) lays down a set of minimum implementing their mandates with their standards for the construction of sector-specific work plans, has been felt and public works buildings and housing the Government realizes the need to promote settlements. a more pro-active approach to managing disaster risks rather than a reactive approach With regard to risk transfer mechanisms, at concentrating only on managing their present, the Royal Insurance Corporation of aftermath. Bhutan (RICB) provides risk insurance facility to every household [permanent and semi- 2.3 Recent Developments permanent houses at differential premium] in the rural areas mandatorily and fire In order to give an impetus to initiation of insurance is extended to the urban disaster risk management activities in the households in cases where the houses are country and to draw a National Disaster Risk constructed with assistance from the financial Management Framework in a consultative institutions. However, it would be appropriate and interactive process, the Department of to develop national risk transfer mechanisms Local Governance had recently organized covering large-scale natural disasters as well two consultations with active participation of as the small individual/personal disasters too all concerned sectors and stakeholders. The in keeping with the Royal Government’s first consultation was held in Phuentsholing endeavors to secure Gross National on 22-23 November, 2005 and the other in Happiness for its citizens and to cover the Thimphu on 23rd February, 2006. The inputs risk posed to the community at large. and the presentations made by the participating sectors helped identify the In view of the proposed National Disaster needs and assess the gaps in disaster risk Risk Management Framework, these sector- management. The consultation process led

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN to the formulation of the first draft of the actual works would be known only after the Framework which was shared with the preparatory works are completed. 27 participating Ministries/agencies for their review and comments and has now been In addition, some of the Ministries/ sectoral drawn up for adoption. agencies are implementing or have completed implementation of certain projects In between, a study tour to India was with institutions/organizations in the region organized for Bhutanese officials and other viz. Asian Disaster Preparedness Centre stakeholders in the month of January, 2006 (ADPC), International Centre for Integrated during which they were familiarized with the Mountain Development (ICIMOD), systems, institutions and mechanisms International Search & Rescue Advisory developed for disaster risk management in Group (INSARAG), Centre for Water that country. Commission (CWC) etc. and the sufficient experience and learning has already been It may also be noted that recently the South garnered from these interactions. Asian Association for Regional Cooperation (SAARC) has included disaster management The Royal Government of Bhutan has also as one of the thematic areas for cooperation initiated the process of consultation with the and exchange among the countries of the international humanitarian organizations region and a SAARC Centre for Excellence such as the United Nations Development in Disaster Management is also proposed to Programme (UNDP), World Food be set up in Delhi. As a member of the Programme (WFP), Food and Agriculture SAARC the role of the Royal Government of Organization (FAO), World Health Bhutan is expected to increase in the area Organization (WHO) and United Nations of disaster management especially that Children’s Fund (UNICEF) with a view to relates to trans-boundary disaster issues. A learn from the international experience, joint group of experts on flood management perspective and best practices evolved in has been formed between the Royal different countries and in countries facing Government of Bhutan and the Government disaster risk management challenges similar of India to discuss and assess the probable to Bhutan and has sought to contextualize causes and effects of the recurring floods and them in conformity with the needs, erosion in the southern foothills of Bhutan challenges, opportunities and aspirations of adjoining the plains of India and recommend the people. to both Governments, appropriate and mutually acceptable remedial measures. 2.4 Key Challenges and Opportunities for Disaster Risk The first meeting of the Joint Group of Management in Bhutan Experts (JGE) was held in Thimphu/ Phuntsholing from 1-5 November, 2004.The Institutionalization and mainstreaming of meeting decided on a set of flood mitigatory disaster risk management agenda in the studies to be done by both Bhutanese and national and socio-economic life of any Indian experts. The fund for conducting the country is beset with its own challenges and meeting has been projected in the budget obstacles while at the same time affording for the fiscal year 2005-2006. The fund for unique opportunities. Some of the key

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challenges and opportunities can be Competing development priorities: A enumerated as follows:- developing country like Bhutan has its own 28 sectoral developmental priorities and intra- 2.4.1 Challenges sector development plans accord priority to building and expanding sector-specific Lack of Resources: The government systems services and infrastructure without with regard to disaster risk management are mainstreaming disaster risk reduction still at an evolution stage and as such there elements. The health, education, is a lesser degree of understanding of issues infrastructure etc. are some of the sectors connected therewith leading to inadequate where greater priority is given to creating allocation of resources for initiating holistic assets viz. hospitals, schools etc. without disaster risk management activities in the paying adequate attention to their ability to country. The government would be required withstand natural hazards. Hence, it is a to mobilize resources from across the critical challenge to intertwine disaster risk national sectors or forge partnerships with management concerns while determining international organizations for disaster risk developmental priorities. management. In this context, it necessitates building on existing resources, strengths and Multi-sectoral coordination: It has also been initiatives. Therefore, it is important that experienced that different wings of the efforts to build disaster risk management Government and agencies have undertaken capacities in the country take a pragmatic, independent disaster management initiatives low-cost approach and build on the work of pertaining to their sectors. However, these other sectors to the maximum extent have not been properly coordinated leading possible. to duplication/overlap of efforts. A properly coordinated mechanism would have led to Low to moderate technical capacity: Effective confluence of competence, expertise and disaster risk management requires synthesis resources to achieve optimum results. In of technical as well as organizational order to pave the way for a well-coordinated capacities across a range of sectors. While and well-devised national strategy for holistic Bhutan has a fairly elaborate organizational risk reduction, the Department of Local structure connecting national, intermediate Governance, MoHCA has been designated (Dzongkhags and Dungkhags) and the local as the co-coordinating agency for Disaster levels (Gewogs and Thromdes) that have Management. Under this coordination proved to be very effective in responding to arrangement it is hoped that the disjointed disaster events, technical capacities in areas and disparate efforts that exist today among such as meteorology, climatology, the various sectors will be reduced. geophysics, seismology, geotechnical engineering and earthquake engineering is 2.4.2 Opportunities fairly limited. The administrative system is fairly strong but it has low technical capacity. His Majesty the King has already laid a firm There is also a need to develop capacities foundation of a strong civil and public at the Dzongkhag, Dungkhags, Thromdes administrative system that offers and Gewogs for basic disaster risk opportunities for many new development management work. initiatives. Today government, public and

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN private sectors have adequate technical, Multi-stakeholder approach: The social, managerial know-how and capacity to meet economic and cultural strands in the country 29 challenges in disaster management. Since indicate a strong mindset of inter- the sectoral initiatives are still isolated from dependence and cohesive social system. each other concerted effort should now be The traditional way of life coupled with strong made towards an integrated multi-stake religious moorings validate a multi- holder approach. stakeholder approach. The Constitution of the country also seeks to inculcate a spirit of Plethora of existing initiatives: A number of mutual assistance in times of need and initiatives and activities are underway with natural disaster. Moreover, there are a various Ministries/agencies which though number of national and international specific to their respective sectors have the organizations which are implementing potential to address disaster risk projects in partnership with Government management issues. These existing agencies and have developed mutual programmes can be built upon and disaster confidence and mechanisms to jointly risk management concerns interwoven into address the concerns and share them. For example, some hazard zonation experiences. These processes can be built work has been done by the Department of upon to implement successful and wide- Geology and Mines which can be further ranging partnerships across a whole range expanded and applied for risk mitigation. of actors at the national and local level Similarly, other initiatives under National including technical experts, institutions of Adaptation Plan of Action (NAPA), GLOF learning and excellence, corporate sector, mitigation, early warning systems etc. can academia, community leaders, media and also contribute towards this end. The need other significant players in the national and is to synthesize and consolidate these socio-economic life of the country. currently disparate and disjointed activities under one mechanism to strengthen the The Royal Government of Bhutan is striving disaster management capabilities in the to convert the challenges into an opportunity country. to usher in a disaster-resilient and safer nation through the implementation of the Sound civil administration system: The civil National Disaster Risk Management administration system in the country is very Framework. strong and extensive and some core personnel in each sector have undergone 2.5 Proposed Institutional Framework training within and outside the country and their expertise can be harnessed for 2.5.1 At the national level developing wholesome capacities in the countries. Similarly, the administrative In order to secure synergies of action and structures at Dzongkhag, Dungkhag, Gewog confluence of strategies and resources for and Municipality levels are also quite well implementation of disaster risk management delineated and linkages can easily be agenda in the country, it is essential that a established through proper coordination to well-defined structure/mechanism is put in mainstream risk management concerns. place at all administrative levels. An

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underlying principle of an effective the Secretariat to the Committee. The administrative structure is that different Committee shall supervise/assess various 30 administrative rungs reflect the national disaster risk reduction initiatives/ projects and vision and objectives to achieve commonality oversee the effectiveness of response of approaches, harmonization of efforts and mechanism. It shall approve different sectoral effective harnessing of national capabilities risk management and response and resources. strengthening proposals/schemes and give directions to line Ministries/agencies for With His Majesty the King at the apex level, mobilizing resources, manpower and the Cabinet with the Prime Minister as the expertise and take such suitable steps as Chairperson shall be the highest decision- may be deemed necessary. It shall provide making body. It shall take a holistic view of regular inputs to the Cabinet as required by the disaster management scenario in the it or during a situation of a national country and shall lay down appropriate emergency. It shall cause for requisite steps institutional, legislative and policy to be taken at national, Dzongkhag, mechanisms addressing an entire gamut of Dungkhag, Gewog and/or Thromde level to issues relating to disaster prevention, meet the exigencies of a situation as may mitigation, preparedness and response. The be deemed necessary by it in the event of a Cabinet shall set-up the requisite funding disaster and shall meet regularly to review mechanism for disaster risk management. It the relief operations and extend all possible shall decide the corpus for the National assistance to the affected areas. Disaster Mitigation, Prevention and Preparedness Budget to finance hazard- The Department of Local Governance, specific risk mitigation projects/schemes and Ministry of Home and Cultural Affairs shall to strengthen the response capabilities at all be nodal Department for coordinating the administrative levels, including the national disaster risk mitigation, response, community, and for providing succor to the relief and rescue endeavors. It shall affected people through appropriate relief, formulate schemes/programmes for recovery, rehabilitation and reconstruction incorporating disaster risk reduction efforts in the aftermath of any disaster. The measures in the development process as Cabinet shall report to His Majesty the King also in the public domain. Through the for directions. National Emergency Operations Centre (NEOC), it shall maintain continuous disaster The National Committee for Disaster surveillance, tracking and ensure real-time Management (NCDM) shall be the highest warning dissemination to the Dzongkhags, executive body chaired by a Cabinet Minister Dungkhags, Gewogs and Thromdes likely to on a rotational basis for a period of one year. be impacted by an impending disaster and The Secretaries of the Ministries including shall keep the NCDM and the Cabinet representatives of Dratshang Lhentshog and informed regularly about the gravity of the the Armed Forces shall be the members of situation. It shall also be mandated to the Committee. The Home Minister shall be requisition resources, manpower and the vice Chairperson. The Department of assistance from other Ministries/agencies in Local Governance (DLG) shall function as an emergency situation, shall give directions

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN to the local administrations and shall closely modalities for the Gewogs lying within the monitor the entire process of disaster peripheries of designated Thromdes may 31 response including recovery and need to be taken into consideration reconstruction. 2.6 Proposed Response Mechanisms 2.5.2 At the Dzongkhag level The institutional arrangements proposed At the Dzongkhag level, a Dzongkhag above shall also continue to discharge their Disaster Management Committee (DDMC) responsibilities in both the pre-disaster phase shall be constituted under the Chairmanship [by conceptualizing, formulating, approving of the Dzongda. The Dzongkhag DMC shall and supervising implementation of national implement cross-sectoral risk reduction and sectoral disaster risk management initiatives at the Dzongkhag level and measures] as also in the post-disaster develop capacities to respond to disasters situation [to address speedily the relief, in their respective areas. It shall also maintain rehabilitation, reconstruction and recovery and manage a Dzongkhag Disaster needs of the affected populace and the Management Fund to raise resource for the region]. activities aimed at risk reduction and set-up a Dzongkhag Emergency Operations Centre In the eventuality of a disaster of national (DEOC). It shall maintain continuous contact proportions or a situation where the localized with the National EOC and disseminate disaster is of such magnitude that it is beyond information to the Dungkhags, Gewogs and the coping capacity of one or more Thromdes in case of an emergency. A Dzongkhags, the Cabinet shall cause such SITREP (Situation Report) shall be regularly steps to be taken to effectively respond to sent to DLG/NEOC during a crisis situation. the situation and shall continuously monitor The Dzongkhag DMC shall assess the the response endeavor. The National requirements, mobilize/summon resources Committee on Disaster Management and manpower to respond to a disaster and (NCDM) shall cause to mobilize the requisite extend all assistance to the Dungkhags, assistance to the affected areas and give Gewogs and Thromdes within its jurisdiction. directions/advisories to the central ministries/ agencies as also to the Dzongkhags, 2.5.3 At the Dungkhag, Gewog and Dungkhags, Gewogs, Thromdes and the Thromde levels Armed Forces to summon their resources and take necessary steps to meet the Similarly, City/Thromde Disaster exigency. Where appropriate the services of Management Committee (TDMC) and the NGOs should be called in. Gewog Disaster Management Committee (GDMC) shall be constituted to discharge a The National Emergency Operations Centre similar set of responsibility for their respective (NEOC) shall be the hub for maintaining a areas. The two municipal areas of Thimphu constant vigil on the emerging disaster and Phuentsholing shall have independent situation and coordination of response disaster management plans in operation. endeavors. It shall maintain regular contact However disaster management linkage with Dzongkhag Emergency Operation

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Centres (DEOCs) and assess their financial support to disaster risk requirements and provide regular situation management activities at the Dzongkhag, 32 reports to the NCDM and the Cabinet. Dungkhag, Gewog and Thromde levels.

At the Dzongkhag level, the Dzongkhag EOC a) Disaster Mitigation, Prevention and and the Dzongkhag Disaster Management Preparedness Budget Committees shall have the responsibility of It is proposed that the Royal supervising the disaster response and shall Government of Bhutan shall constitute report on a regular basis to the National EOC a national budget designated as the or DLG about the requirements and needs Disaster Mitigation, Prevention and in the affected areas and extend such Preparedness budget. It shall be assistance as shall be required by the coordinated by the Ministry of Home Dungkhags, Gewogs and the Thromdes. and Cultural Affairs and the programmes/ activities/ sectoral At the National, Dzongkhag, Geog and initiatives addressing disaster Thromde levels inter-sectoral co-operation management concerns approved by and co-ordination shall be sought to ensure the National Committee for Disaster effective management in times of disasters. Management shall receive appropriate The Royal Government of Bhutan is disbursement from the budget. The confident that the institutional arrangements budget shall finance hazard-specific being set-up at different administrative levels risk mitigation projects/schemes/ shall go a long way in streamlining and programmes formulated at the coordinating the initiatives and efforts being national level. It shall also extend made by various constituents of the suitable financial assistance for such administration and shall lead to a programmes/schemes undertaken at synchronous, harmonious and efficacious the Dzongkhag, Dungkhag, Gewog functioning of disaster risk management and Thromde levels. Every Ministry/ mechanism and shall substantially contribute agency of the Government shall towards strengthening the disaster response review its developmental guidelines capacities across the country in a systematic and activities and formulate and steady manner over the coming years. components for addressing disaster These institutional mechanisms shall help risk reduction elements therein and achieve a vision of creating a disaster- make suitable allocations from their resilient nation. regular annual budget.

2.7 Financial Arrangements b) His Majesty’s Relief Fund Over the years His Majesty the King It is essential for the success of the national has been personally attending to the and sectoral initiatives for disaster risk welfare of the affected individuals and management and response capability families in the times of disasters. His strengthening that appropriate funding Majesty’s relief grants to the affected mechanisms to support and sustain the families are given in the form of ration, activities are also created. The envisaged building materials and in some cases funding mechanism shall also provide cash to enable them to reconstruct

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN their homes. At present, except for His c) Major Disaster Fund (Emergency) Majesty’s personal intervention there The Royal Government will also 33 is no regular fund to provide timely and institute a Major Disaster Fund to adequate relief and rehabilitation to finance response and relief operations individuals and families affected. in the country in the event of a major disaster in the country and its In view of increasing incidences of immediate aftermath. The corpus of disasters that occur in the country and the fund will be decided by the Cabinet in particular those that affect poor and and coordinated by the Ministry of vulnerable rural communities whose Home & Cultural Affairs in association response capabilities are minimal, a with Ministry of Finance. Approval for regular fund need to be established. the release shall be sought from His The Royal Government of Bhutan has Majesty the King. The fund will be therefore instituted “His Majesty’s used for immediate relief; restoration Relief Fund”. The Fund shall be of essential infrastructure; and administered by the Department of restoration of public assets in the Local Governance, Ministry of Home social sector. and Cultural Affairs. The corpus of the Fund shall be determined by the The MoHCA shall seek funds from Ministry of Home and Cultural Affairs. international agencies through the The resources under the Fund shall Cabinet. Private and public sectors will be utilized to complement and also be involved if need for such strengthen disaster response systems support arises in times of major and capabilities at various disasters. administrative levels and for mounting a speedy, timely and efficacious In case of a major disaster, the disaster response and to address affected Dzongkhag will submit a relief, rehabilitation, recovery and detailed report of the disaster to the reconstruction needs of the affected Ministry of Home & Cultural Affairs areas and people. Utilization of this along with estimates of damages. The fund must be approved by His Majesty MoHCA will then form a central the King. This fund shall be mobilized investigating team with the Director through voluntary contribution made General, DLG as the team leader. The by the private sectors, civil societies, central team shall go to the affected NGOs, supplemented by annual place, assess the damages and budget of the government. recommend to the Cabinet for release of fund.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK CHAPTER 3 34 Disaster Risk Management Framework (DRM) for Bhutan

3.1 Disaster Risk Management ad hoc reactive approach to dealing Framework with disasters;

The Royal Government of Bhutan recognizes ➻ To recognize the respective roles of the need for promoting a risk management different organizations in disaster risk approach to dealing with disasters rather management and provide all than only a reactive approach that deals with possible support to their work within the aftermath of disasters in an ad hoc the national framework for disaster manner. In this context, Disaster Risk risk management; and Management has been defined as the “systematic process of using administrative ➻ To establish linkages between decisions, organizational and operational disaster risk management and the skills and capacities to implement policies, other ongoing activities in different strategies and coping capacities of development sectors. communities to lessen the impacts of natural hazards and related environmental and 3.1.2 Scope of the DRM Framework technological disasters. This comprises all forms of activities, including structural and This Framework includes all the elements of non-structural measures to avoid a risk management framework including: (prevention) or to limit (mitigation and establishing the context; risk identification; preparedness) adverse effects of hazards” risk analysis; risk evaluation; risk [International Strategy for Disaster Reduction communication; risk reduction (through both (ISDR) Secretariat, 2004]. anticipatory and compensatory means) and continuous monitoring and evaluation. The While primary responsibility of formulating a Framework covers these elements of DRM framework lies with the government, disaster risk management through the its effective implementation will require active following distinct but inter-related participation of all stakeholders including components: communities, volunteers, religious organizations, local governments, academia ➻ Institutional, legislative and policy and scientific and technical institutions. frameworks ➻ Hazard, vulnerability and risk as- 3.1.1 Key objectives sessments ➻ Disaster management system As mentioned in Chapter 1, the key ➻ Early warning systems objectives of this framework are: ➻ Disaster preparedness plans ➻ Mitigation & integration of disaster ➻ To promote a disaster risk risk reduction in development sectors management approach instead of an ➻ Public awareness and education

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

➻ Capacity development a ‘National Consultative Workshop on ➻ Communication and transportation Instituting an Integrated Disaster Risk 35 Management Strategy’ was held in The Framework outlines all the key outcomes November 2005 in Phuentsholing, which that need to be achieved under each of the provided a forum to review the overall components and indicative activities that disaster management context in Bhutan and need to be carried out to achieve these assess the existing gaps and potential outcomes over the short, medium and long opportunities for integrating local and term. However, as the implementation of this national response and risk reduction Framework commences, detailed strategies. As a follow up to the November programmes will have to be developed 2005 workshop a draft Framework was covering all the components. In this respect, developed and shared with all stakeholders. this framework presents the ‘breadth’ of Another consultative meeting held in actions that need to be undertaken over the February 2006 provided feedback on the next ten years but does not cover the ‘depth’ draft Framework. of analysis and programming that needs to be undertaken to carry out these activities. Simultaneously, various other processes This will be done by the respective lead have contributed to this Framework such as institutions for each of the components when the study tour of Bhutanese officials to the implementation begins. selected institutions in India in January 2006.

3.1.3 The consultative process The Components of the Framework:

These components have been developed 3.2 Institutional, legislative and policy through a consultative process and have frameworks drawn upon key ‘good practices’ in disaster risk management from around Asia. The The objective of this component is to design process began with a national consultative and implement an appropriate institutional workshop organized in the run up to the and legislative framework for disaster risk World Conference on Disaster Reduction management in Bhutan. This will help define (held in Kobe, January 2005), which the mandates and inter-relationships of produced a report on status of disaster risk respective organizations across sectors as management in the country. Subsequently, well as across different administrative levels.

The National Consultative Workshop in Phuentsholing in Nov. 2005

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Appropriate financial arrangements to meet as recovery, rehabilitation). Adequate the various disaster risk management needs investments will have to be made in capacity 36 (disaster risk reduction, disaster response building at different levels to ensure the and local level risk reduction) of the country effectiveness of this component. There are will be designed under this component. potential synergies with other development Under this component, the government will activities such as the ongoing efforts to build also begin to articulate its policies on different capacities of the local governments and aspects of disaster risk management (such decentralization.

School children ready for morning assembly in Kangpara Primary School. School safety should be made an integral part of disaster management . (KD)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Component 1: Institutional, Legislative and Policy Frameworks 37 To establish an appropriate institutional and legislative framework defining the mandates and inter-relationships of various organizations across sectors and administrative levels.

Expected Outputs Activities/Areas of Intervention Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors with 3-5 yrs (M) supporting institutions 6-10 yrs (L)

1.1 Institutional Framework

Coordination mechanisms Establish following key mechanisms: established at the national level Cabinet with Prime Minister as chair. (S)

National Committee on Disaster Management (S) DLG, MoHCA (the highest executive body Chaired by the relevant Ministries/ Minister, MoHCA to oversee disaster risk Sectors management activities)

DLG within the MoHCA to coordinate (S) and facilitate disaster mitigation and preparedness as well as disaster response activities across different sectors/Ministries and at Dzongkhag, Dungkhag, Gewog and Thromde levels

Coordination mechanisms Establish Disaster Management Committees (S) DLG, MoHCA established at the at Dzongkhag, Dungkhag, Gewog and Dzongkhags, Dzongkhag, Gewog and/or Thromde levels responsible for implementing Dungkhags, Gewogs Thromde levels disaster risk management initiatives at and Thromdes different levels

1.2 Legislative and Policy Framework

National Disaster Risk Constitute a Working Group of legal (S) DLG, MoHCA and Management Act practitioners, policy makers (with organizations concerned technical support from disaster risk (Legislative agencies) management experts) to draft the bill.

Submit the draft to the Cabinet for (S) consideration and approval of the same in the national assembly.

Enunciation of a National Constitute a working group to start (S) DLG, MoHCA, in Disaster Management Policy articulation of Government’s policy consultation with other on different aspects of disaster relevant Ministries/ management viz. guidelines for sectors including relief, recovery, rehabilitation, Planning Commission enforcement of codes etc. for prioritizing the activities.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

1.3 Capacity Building of National Focal Institution

38 Capacities of the national Conduct needs assessment and formulate (L) MoHCA in focal institutions (MoHCA, a targeted capacity building programmes consultation with DLG) strengthened sectors concerned. Develop skills, provide equipment and systems in the relevant departments

Training of human resources

1.4 Financial Arrangements

His Majesty’s Relief Fund Develop guidelines for the utilization of His (S) DLG, MoHCA, established Majesty’s Relief Fund to strengthen response Ministry of Finance, capabilities at national, Dzongkhag and Private and Public other administrative levels. sectors

National Disaster Develop guidelines for financing local level (S) DLG, MoHCA, Mitigation and Preparedness disaster mitigation and preparedness Ministry of Finance Budget projects/ schemes and Dzongkhags.

Propose corpus at the national, Dzongkhag and other administrative levels for the approval of the Cabinet.

Emergency Fund for Work out financial modalities (S) DLG, MoHCA, major disasters Ministry of Finance, Private and Public Sectors

Risk Transfer Mechanisms Constitute a working group involving (S) DLG, MoHCA, the Royal Insurance Corporation of Ministry of Finance, Bhutan (RICB) Royal Insurance Review and analyze the existing Corporation of Bhutan risk transfer and insurance mechanisms & concerned sectors. Although property insurance exists, compensation of valuable properties lost due to disaster must be made mandatory through a insurance scheme

3.3 Hazard, Vulnerability and Risk Assessment resources. This component will synthesize existing information on hazards, The objective of this component is to improve vulnerabilities and risks that is available with access to synthesized information on different organizations in such a form that it disaster risks for policy and decision makers can be utilized for decision making for across different sectors and administrative disaster risk management. At the same it levels. In the absence of such information, will identify critical gaps in existing policy and decision makers have to make information and work towards filling those disaster risk management decisions (such gaps in a prioritized manner. Under this as where to invest in risk control measures, component a geo-referenced disaster where to locate emergency response assets, database will be set up that will capture where to locate critical facilities), in an ad- disaster impacts at the Gewog level in order hoc or at best intuitive manner, which may to track existing and emerging patterns of not make the most optimal use of scarce disaster risk.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Component 2: Hazard, Vulnerability and Risk Assessment 39 To identify the probability of occurrence of various hazards in a specified future time period, as well as the intensity and area of impacts.

Outputs Activities Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors with 3-5 yrs (M) supporting institutions 6-10 yrs (L)

2.1 Hazard Atlas

First version of a multi-hazard Compile existing hazard maps from different (M) DLG (MoHCA), DGM, atlas of Bhutan produced sources for each district of the country (MTI), and Dept. of Survey (MoA) Using the best available technical information and expert judgment determine hazard risk for each hazard for each district (if possible smaller administrative levels) Produce the first version of an easily understandable and usable hazard atlas in print as well as digital format Compile maps related to settlements, population density, land use etc. and to the extent possible prepare overlays with the hazard maps

2.2 Hazard zonation for all major hydro-meteorological and geological hazards

Hazard maps for all hazards Identify gaps in existing hazard maps for (M) DLG (MoHCA), (landslides, floods, GLOFS, different hazards in terms of coverage DGM (MTI), and NEC earthquakes, forest fires) as well as quality (appropriate scale for developed further in a use in decision making, presentation etc.) prioritized manner Prioritize areas for hazard based on exposure in terms of human settlements, critical infrastructure and other assets Prepare a multi-year plan for hazard mapping based on the above Constitute suitable implementation teams and begin hazard mapping

2.3 Disaster databases

A geo-referenced national Define key disaster types to be captured (M) DLG (MoHCA) database of all disaster in the national disaster database events captured at Gewog level and their Identify and evaluate key disaster data impacts established sources for building a historical dataset

Train relevant staff at the MoHCA in a methodology to develop disaster datasets Build historical dataset from archival sources, and institutionalize a system for prospective data collection and analysis

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

2.4 Multi-hazard maps for human settlements

40 Multi-hazard maps developed Review plans for new settlements as well (M) DLG (MoHCA) as an input to the as expansion of new settlements development of new townships and Constitute a multi-sectoral working group MoWHS expansion of the to develop multi-hazard maps for these existing ones new settlements

Develop multi-hazard maps at an DoE (MTI) appropriate scale for the use of urban planners and developers.

2.5 Seismic Zonation Maps

Seismic hazard maps Develop initial seismic hazard maps based on (M) DGM (MTI) developed for Bhutan existing scientific information from national and international sources and empirical evidence

Set up permanent Drawing upon the experience of pilot seismic seismic monitoring networks established earlier, establish a network for the country permanent seismic (telemetred) network

Establish a seismic monitoring cell in DGM and train staff to regularly analyze the data received from the seismic network and progressively enhance the understanding of seismic hazard in the country

3.4 Disaster Risk Management System preparedness and response systems are built into all government, public, private, The National Disaster Risk Management corporate sectors, NGOs and civil societies Framework envisages the development of a by incorporating plans, adequate financial holistic approach designed to manage arrangements and a set of practical disasters in more proactive basis involving measures in their development plans. various sectors, it is felt that a strong disaster management system should be put in place so that the sectors will be fully accountable 3.5 Early Warning Systems (EWS) in the long run. Plans, programmes and procedures relating to disasters must be The objective of this component is to work institutionalized. DRM system should be an towards development of a coherent, end-to- intergral part of sustainable development end EWS that has both broad spatial planning at different levels of administrations coverage (covering all vulnerable areas) and and rural development plans. Further steps a broad multi-hazard focus to reduce risk should be taken to integrate undertstanding from all natural hazard events. The promotion of natural hazards with local knowledge and of community-based and people-centered traditional beliefs. This will ensure timely and approaches to disaster risk management will coordinated actions at all spheres of be part and parcel of this process. Various administrative levels and at the communities agencies in Bhutan are organized according during a major disaster. The MoHCA as a to specialized tasks for different hazards, with coordinating agency shall see that the relatively little information sharing or disaster, mitigation, prevention, partnerships with other agencies. It is these

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN gaps that this component seeks to address level support activities will also be designed by bringing together all concerned agencies. to integrate with regional and international It will begin to establish a policy dialogue so early warning system development efforts. 41 that appropriate standards for end-to-end early warning systems are developed, A local approach to EWS also needs the implemented and institutionalized at the direct participation of those who are likely to national level. This will have linkage with be exposed to such hazards. Involvement Communication and Transportation of local communities in all stages of EWS components that will address issues related will reinforce public understanding of the to the lack of communication lines/ networks whole range of risks they face thus and especially their unavailability during strengthening the desired preparedness times of emergency. The local and national actions and warning response.

Local people are the main actors in risk reduction and disasters response. Village women in Bumdelling participate in the construction of embankment to protect their farm land from river flooding. (KUENSEL)

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Component 3: Early Warning Systems 42 To generate advance warnings and thus improve capacity of decision-makers to take required action prior to the occurrence of a disaster

Outputs Activities Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors with 3-5 yrs (M) supporting institutions 6-10 yrs (L)

3.1 Design and implementation of end-to-end GLOF/ Flood Early Warning Systems in some of the vulnerable flood basins

End-to-end early warning Identify the river basins most vulnerable to (M) DLG (MoHCA), DGM, systems for GLOF/ Floods flash floods and GLOF DoE (MTI) and other established in the most Taking stock of existing capacities, design an related sectors. vulnerable river basins end-to-end early warning system for these river basins including monitoring, warning formulation, warning dissemination and local response mechanisms to warning systems

In a prioritized manner, strengthen different components of early warning systems in these river basins

3.2 GLOF monitoring

GLOF Monitoring systems Identify the most vulnerable glacial lakes. (M) DLG (MoHCA), DGM Web enabled databases Install systems for monitoring the water levels (MTI), DoE (MTI) and and capacity for voice in these lakes and the risk of their outburst other related sectors. and data traffic established Link the GLOF Monitoring system with the overall early warning systems for flash floods and GLOFs in respective river basins

3.3 Landslides monitoring

Landslide monitoring Identify sites that are most vulnerable to (M) DLG (MoHCA), DoA systems established in the landslides and have significant potential (MoA), DGM, DoE (MTI) most vulnerable locations for causing damage downstream (e.g. and other related sectors. impact on human settlements, infrastructure, formation of artificial dams)Install systems for monitoring the water levels in these lakes and the risk of their outburst Link the GLOF Monitoring system with the overall early warning systems for flash floods and GLOFs in respective river basins

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

3.4 Training of local administrative officials

Officials at Dzongkhag Develop training modules on issues (M) DLG (MoHCA), DGM, 43 and other levels of related to Early warning dissemination and DoE (MTI) and other administration trained on response related sectors. issues related to Early Deliver these training programmes Warning systems to the local administration officials

3.5 Strengthening Meteorological services

Meteorological services Review the earlier assessments of the (M) DLG (MoHCA), MoA, strengthened meteorological services and draw up a plan DoE (MTI) and related for better coordination between the sectors. meteorological capacities at the Ministry of Agriculture and Dept. of Energy as well as overall enhancement of their capacities in a prioritized manner

3.6 Improving hydrological observation network

Hydrological observation Identify the most flood vulnerable river basins (M) DLG (MoHCA), DoE network strengthened in the country and assess the current (MTI) and related sectors. hydrological observation network in these river basins Strengthen this hydrological network in a prioritized manner over a period of 4 years

3.7 Information flows and coordination mechanisms

Information network and Streamline information flows and coordination (M) DLG, MoHCA, DoE, coordination mechanism mechanism to ensure effective vertical and DGM (MTI) and strengthened horizontal linkages across all stakeholders related sectors. involved in EWS.

3.6 Disaster Preparedness Plans plans to be applied following a disaster are The objective of disaster preparedness also crucial. planning is to minimize the adverse effects of a hazard through adequate preparedness Disaster preparedness planning at all and response planning to ensure timely and administrative levels is essential to ensure coordinated action at administrative and proper assigning of roles and responsibilities community levels to meet the exigencies and conduct of mock-drills to test the efficacy arising out of a natural catastrophe. of the plan. It also requires systematically Preparedness involves development and building capacities for immediate response regular testing of warning systems (linked to and recovery across all levels. The plans multi-hazard EW Systems) and plans for clearly define the roles of concerned evacuation or other measures to be taken agencies in order to avoid mismanagement, during a disaster alert period. It also involves overlaps and gaps and emphasize education and training of officials, coordination of all sectoral agencies, intervention teams and communities. sensitizing the media and ensuring Establishment of policies, standards, development of relevant information organizational arrangements and operational mechanisms.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Component 4: Disaster Preparedness Plans 44 To prepare multi-hazard disaster preparedness and response plans at national, Dzongkhag, Dungkhag, Gewog and Thromde levels to ensure requisite levels of preparedness and functioning of sectoral response plans

Expected Outputs Activities/Areas of Intervention Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors with 3-5 yrs (M) supporting institutions 6-10 yrs (L) 4.1: National Disaster Preparedness and Response Plan Development of disaster To conduct hazard, vulnerability and risk (S/M) DLG (MoHCA) and all preparedness and response assessment in various administrative units. other concerned plans at the national, To develop multi-hazard preparedness and Ministries/sectors and Dzongkhag, Dungkhag, response plans in a prioritized manner at district and local level Gewog and Thromde national, district and local levels to deal with administrations levels large-scale disasters in hazard-prone areas. To draw up multi-disciplinary plans in conjunction/ consultation with Ministries/ sectors/agencies entrusted with disaster risk management mandates. To establish linkages with plans at other administrative levels. Training a cadre of officers at various levels for undertaking plan preparedness. To test sectoral preparedness at regular intervals. To assign roles and responsibilities to different sectors and individuals and check preparedness levels. Sharing of plan with all relevant actors. National Emergency To design and set up a National Emergency Operations Center (NEOC) Operations Center to meet the multi-hazard (S/M) DLG (MoHCA) and operational requirements. other sectoral To constitute a multi-sectoral experts team to Ministries/agencies assess requirements of infrastructure, entrusted with disaster equipments and trained man-power. response as per To develop Emergency Support Function disaster preparedness (ESF) Plans to ensure timely and effective plan intervention by all sectoral agencies. The NEOC to build on existing capacities Training and capacity building of the staff in emergency response and protocols. To have adequate communication systems with stand-by facility and redundancy. Inventory of disaster To develop a geo-referenced web-enabled (S) DLG (MoHCA) and all response resources inventory of resources, equipments and line Ministries/ sectors/ trained man-power available at national, agencies at national, Dzongkhag, Dungkhag, Gewog and Thromde Dzongkhag, Dungkhag, levels for facilitating easier access and Gewog and Thromde mobilization during an emergency. levels To constitute a team of IT skilled professionals for developing the portal Procurement of appropriate hardware and software support.To provide training in developing and operationalizing the portal to IT professionals.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Community based Disaster To enhance community capacity in multi- (M) DLG (MoHCA), Preparedness Planning hazard risk management and preparedness in Administrations of (CBDP) vulnerable administrative units in a prioritized Dzongkhags, Dungkhags, 45 manner. Gewogs and Thromdes, To focus on building the skills and aptitude of all line Ministries/ sectors/ the community including vulnerable groups agencies especially the Capacity building and training in developing ones with Emergency disaster preparedness plans at the Support Function (ESF) community level. plans to be part of the To provide support to people to develop planning process the plans. To tap expertise from relevant organizations to facilitate the process.To rehearse preparedness planning at community levels at regular intervals to ensure sustainability of the process and to ensure updating of the plan.

3.7 Mitigation and Integration of aspects will be unbalanced and is unlikely to Disaster Risk Management in achieve its aims. Development Sectors Disaster Mitigation investment has to be seen The objective of this component is to reduce in terms of the price of protecting existing loss of life and property in the event of and future infrastructure. The spending of a potential hazard occurrences. The primary few percent extra on a new facility to build it aim is to reduce the risk of death and injury a little stronger and protect it against a future to the population. Secondary aims include threat is usually seen as prudent. The level reducing damage and economic losses to of investment that is justified to protect public sector infrastructure and reducing society, its economic activities and its built private sector losses in as far as they are environment is a matter of political decision likely to affect the community as a whole. The making, and the economics of risk. Decision objectives are likely to include encouraging making on appropriate levels of investment people to protect themselves as far as in disaster mitigation depends on how likely possible. the hazard is to occur, and what would be the impact of the hazard if it does occur. The Any mitigation strategy is likely to include a costs and benefits of alternative investment range of measures. A set of actions that strategies need to be carefully evaluated. includes engineering measures, spatial The use of a systematic framework of risk planning, and a degree of economic assessment to establish which hazards are management and community participation most likely to occur and the probable effects will be needed to bring about effective will help define the priorities of mitigation mitigation. A mitigation programme that programmes. concentrates solely on any one of these five

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Component 5: Mitigation and integration of DRR in development sectors 46 Outputs Activities Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors with 3-5 yrs (M) supporting institutions 6-10 yrs (L)

5.1 Integrating Disaster Impact Assessment into all development projects

Mechanisms (such as Review existing environmental impact (M) DLG (MoHCA), NEC, mandatory risk assessment guidelines and explore the Planning Commission, assessments) developed to possibility of either integrating disaster risk MoF and SQCA incorporate disaster risk assessment components to it or developing (MoWHS) concerns (mitigation new set of disaster risk assessment guidelines measures) in all for all new development projects development projects Appropriate budgetary allocation for ministries/ departments involved in mitigation/prevention Evolve a robust risk transfer system to mitigate losses and damages

5.2 Earthquake risk mitigation

Building codes/guidelines Review and adapt building codes of other (M) DLG (MoHCA), SQCA developed for earthquake countries to the Bhutan context (MoWHS) resistant construction Review byelaws to examine possible gaps, and review ordinances which are not being implemented

5.3 Hazard-specific (landslide, flood, GLOF, fire etc.) mitigation measures developed and implemented in vulnerable locations

Some of the most vulnerable Identify the most vulnerable locations (with (L) DLG (MoHCA), MoWHS sites identified and hazard regards to GLOF, floods and landslides) that specific mitigation measures require structural mitigation measures on an implemented urgent basis Develop detailed mitigation plans for the above

Implement the mitigation measures in a prioritized manner

5.4 Local level mitigation action plans developed and implemented

Mitigation assessments and Identify some of the most vulnerable (L) DLG (MoHCA) programmes in risk prone communities. Dzongkhags, Dungkhags, areas Locate high and moderate disaster risk sites Gewogs and MoWHS around these communities. Undertake detailed assessments to determine the most suitable and economically viable mitigation measures. Implement recommendations at the local level.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

3.8 Public Awareness and Education and sensitive to risk reduction and amounts to a wise investment for mitigating and man- 47 Building awareness among the people about aging future risks. Cross-sectoral partner- the hazards, vulnerabilities and disaster risks ships and concerted efforts at disseminat- and the steps that can be taken for mitigating the agenda of disaster management to ing the same is a sine qua non for building the younger generation through school cur- their knowledge, aptitude and skills for ef- ricula and through conduct of preparedness fective disaster risk management. Incorpo- drills at regular intervals will go a long way in ration of disaster risk management issues in inculcating a culture of disaster safety and the school, college and technical curricula risk management among people at large. will facilitate creation of a generation alive

Component 6: Public Awareness and Education

To establish partnerships with media and community organizations for dissemination of disaster risk management agenda and incorporation of the same in education curricula to promote a people-centric approach to mitigating disaster risks Expected Outputs Activities/Areas of Intervention Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors 3-5 yrs (M) with supporting 6-10 yrs (L) institutions 6.1: Generating Public Awareness Initiating a national public Formulating a national awareness generation (M) DLG (MoHCA), National awareness generation strategy media- Kuensel /BBS programme for disaster Developing public awareness generation and private newspapers/ mitigation and preparedness programmes for hazard-specific campaigns media and concerned Establishing partnerships across the spectrum institutions/sectors of print and electronic media and socio-cultural including the NGOs and religious organizations for harnessing their reach for dissemination of disaster management agenda. Constituting a working group of professionals and experts to devise the campaign. Launch of an informative website containing information on different hazards and possible mitigation, preparedness and response measures. 6.2: Incorporation of disaster management in school and college curricula Introduction of modules Constitution of a Working Group to assess the (L) DLG (MoHCA), on disaster management in school curricula and develop appropriate Curriculum Department school and college curricula disaster risk education materials in school (MoE), RUB and other curricula relevant agencies Introduction of practical trainings and conduct of mock-drills in educational institutions Development of interesting hazard-specific reading materials for children by an expert group Training of teachers Constitution of working group to assess disaster risk, education materials in tertiary institutions especially in engineering institutions.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

3.9 Capacity Development 48 Effective implementation of disaster risk cerned Ministries/sectors. The Department management necessitates development of of Local Governance shall strive to formu- an appropriate human resource with techni- late a comprehensive, prioritized multi-year cal, managerial and communication skills. training and capacity building policy for up- Training and capacity building is a continu- grading and developing the knowledge and ous process necessitating familiarization with skills of disaster management practitioners latest thought-processes and developments at various administrative levels on the basis in the field of disaster risk management. On of capacities and needs assessment. Req- the one hand, the training programmes would uisite partnerships and linkages with institu- seek to build a better understanding of di- tions of excellence and training academies saster management scenario in the country in the region as well as with international or- and on the other it shall also be ensured that ganizations would be forged to facilitate train- sector-specific training modules are available ing of disaster management professionals. to develop requisite technical skills in con-

Fire Services Division of the Royal Bhutan Police undergo fire drill in Thimphu. (KUENSEL)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Component 7: Capacity Development 49 To create a cadre of trained and skilled professionals and disaster management practitioners with requisite knowledge and capacity to initiate and implement disaster risk management programmes

Expected Outputs Activities/Areas of Intervention Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors with 3-5 yrs (M) supporting institutions 6-10 yrs (L)

7.1: Human Resource Development

Capacities and needs To conduct a systematic training needs (M) DLG (MoHCA) in due assessment carried out at assessment/ analysis for identifying the critical consultation with the national, Dzongkhag, areas, the gaps and prioritization of training relevant sectors / Dungkhag, Gewog and needs. R.C.S.C for developing Thromde levels Assess capabilities of administrative and sector-specific training technical officers for addressing disaster programmes risk management issues. To develop a national human resource plan. To develop a prioritized multi-year capacity building programme for supporting the functionality and effectiveness of the institutional and legal system.

Training of officers, cadres Draw up suitable training capsules to meet (S/M/L) DLG (MoHCA) in and agencies entrusted sector-specific training needs. consultation with sectoral with disaster mitigation, Training of Trainers (ToTs). agencies like RCSC for preparedness and response Incorporating capsules on disaster management developing suitable related activities in entry-level and refresher training programmes training programmes for government officers in all administrative units and capsules viz. police, fire, health, education, works and human settlements etc. Training of Dzongkhag, Dungkhag, Gewog and Thromde level administrative officers. Up gradation of equipments, machinery, tools and infrastructure for continuous skill development.

Forging partnerships with Developing linkages and signing MOUs with (L) DLG (MoHCA), MFA in national, regional and institutions of excellence, learning [distance] and consultation with other international institutions for training. sectoral agencies/ capacity building support Linking up with information sharing networks in Ministries the region. Exposure visits to facilitate learning from the experiences and capacities of other countries and institutions. Twinning arrangements with technical institutions/agencies.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

3.10 Communication and severely disrupted with roads getting washed 50 Transportation away or getting buried under a landslide or debris. This assumes greater importance in Communication is the first casualty in the the context of Bhutan with its hilly and rugged aftermath of a disaster. It has been terrain affording only limited access to many experienced that the traditional telecom regions and the criticality of mounting a connectivity of the affected areas becomes speedier and timely response puts a lot of largely dysfunctional and flow of timely and strain on the available modes of correct information from the affected regions transportation. It is not only critical to build is severely hampered. The absence of first- disaster-resistant road networks in the hand information constricts the disaster country but also to formulate a long-term plan managers’ ability to assess the magnitude to build alternate routes to various of the situation and leads to an avoidable Dzongkhags, Dungkhags, Gewogs and delay in launching a suitable disaster Thromdes so as to ensure adequate response. This underscores the need to connectivity at all times. design and develop multi-modal communication networks with adequate Since the villages in Bhutan are well back-up facility. connected by mule tracks a location wise (Gewog) inventory of mules, horses and yaks The transportation networks are also at times should be maintained in the Dzongkhags.

Mules are most efficient means of transportation in the remote areas. (KD)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

The potential impact of natural hazards on remote communities is generally high due to their location and distance from the road. Picture of Wama village in Mongar. (KD)

Community based disasters management assumed importance specially in remote villages. (Langdurbi Village in Zhemgang Dzongkhag) (KD)

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Component 8: Communication and Transportation 52 To develop capacities for communication with sufficient redundancy to meet the connectivity needs during a disaster and to build an adequate transportation network for speedier disaster response Expected Outputs Activities/Areas of Intervention Timeline Lead/Responsible 1-2 yrs (S) Agencies/sectors with 3-5 yrs (M) supporting institutions 6-10 yrs (L) 8.1: Disaster Communication Network Design and implementation To review current capacities and draw up a (L) DLG (MoHCA), DoR of a disaster communication plan, obtain requisite sanctions (MoWHS), MoIC, other communications network and put the communication network in place in a relevant sectoral phased manner. agencies viz. Bhutan To develop plans for inter-linking of various Telecom Ltd. DoI, administrative units with the National Emergency Armed Forces, MFA. Operations Center with a disaster fail-safe communication network. To establish telecom, wireless broadband and satellite based communication networks with sufficient redundancy in a phased manner within all administrative units. To develop standard operating procedures (SOPs) Developing protocols Protocols for dissemination of warning to (M/L) for emergency administrative units and communities. communications To establish linkages with networks in neighboring countries and institutions for communication and dissemination support. To develop systems for mass communications. 8.2: Emergency Transport Connectivity Establish better transport To develop emergency transport systems by (L) DLG (MoHCA), connectivity and taking into account in-country assets. MoIC, DoR (MoWHS), transportation To plan creating alternate routes to multi- MFA and other relevant arrangements hazard and hazard-prone areas in a agencies/ oganizations, prioritized manner. Civil Aviation and Armed To establish protocols for logistics support from Forces. neighboring countries. To establish protocols with international agencies [eg. UN Joint Logistics Center] for utilizing their logistical assets and capacities. To develop aerial modes of transportation and landing capacities. To develop appropriate mechanisms and protocols for securing international assistance in mobilizing resources and materials during a crisis situation. Traditional Modes of To maintain database of existing mechanisms (M) DLG (MoHCA) DoR communication and of communication and transportation in hilly (MoWHS), Dzongkhag, transportation and inaccessible areas in a region-specific Dungkhag, Gewog manner. Administrations and other Mapping of mule tracks and inventory of concerned agencies/ mules and horses in gewogs. sectors.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Integrating Cultural Heritage into Disaster Planning 53

Bhutan has experienced many natural disas- and response plan. Concerned authorities ters in the past. Several structures of histori- and staff must be trained in mitigation, pro- cal and cultural significance have been lost tection and recovery of the artifacts. A list of to fires, earthquakes, flash floods etc. One artifacts available and prioritization of arti- of most sacred temples, the Taktshang es- facts to be recovered along with location in tablished in the 8th century A.D by Guru case of a disaster must also be maintained. Rimpoche was completely destroyed by fire on 19 April, 1998. One of the oldest Dzongs In times of disasters, it is the usual practice in the country the Punakha Dzong has a long that emergency management commonly pri- history and recurring instances of earth- oritize and focus on humanitarian and other quakes and fires. The fire accidents of 1780, strategic concerns and cultural issues re- 1789, 1802, 1831, 1849, 1897 and 1986 ceive very little attention. Fundamentally destroyed many historical documents and some degree of awareness and education artifacts of great historic and religious sig- must be imparted to generate support for nificance. such effort. Bureaucrats and administrators should be adequately educated to initiate Similarly Jakar Dzong in Bumthang and protection and conservation of cultural prop- Drukgyel Dzong in Paro were destroyed by erties from disasters. earthquake and fire of 1897 and 1951 re- The Department of Culture, Ministry of Home spectively. By their location along the & Cultural Affairs is responsible for safe- downstream river valleys many important guarding and conservation of Bhutan’s rich structures such as the Dzongs, temples, and cultural heritage. A comprehensive inventory monasteries are at great risk. The 1994 Gla- of cultural properties should be followed by cial Lake Outburst Flow (GLOF) of the Lugge activating mitigation and protection mea- Tsho in Lunana region washed away some sures against disasters. It is essential to as- properties in Punakha and Wangdue. The sure inclusion of cultural heritage sites, struc- historic Dzongchung was partially damaged tures, and monuments as well as museums, and the Punakha Dzong itself was put at high libraries, archives and their contents into risk. strategies that address mitigation, relief and preparedness at the national and local lev- Many of the past disasters that have struck els. Non-structural mitigation measures is an Bhutan have been of less destructive nature important step in safeguarding many impor- in terms of human casualty and loss of prop- tant artifacts located in the Dzongs, muse- erties. The people attribute this to their un- ums and other store houses including com- wavering faith in the country’s powerful pro- munity and privately owned monasteries and tective deities and their blessings which safe- temples. guard people and properties against such misfortunes. Fire protection plan in all vulnerable structures should be mandatory. Fire detection All Dzongs, monasteries and other buildings and response must be fast to be effective, housing arts, artifacts and other materials of such as less than 5 minutes for fire service cultural importance should have a compre- response. Water sprinkler systems as safe hensive disaster prevention, preparedness

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

and reliable fire protection in Dzongs, mon- grating cultural heritage into disaster plan- asteries, archives, libraries must be installed. ning, mitigation and relief, at local and na- 54 An important task ahead for the department tional levels in the context of regional and will be to create a national strategy for inte- international cooperation.

Inner court yard of Wangdue Phodrang Dzong. Heavy use of wood in the construction of traditional buildings make them highly susceptible to fire hazards. (KD)

The recently reconstructed Taktshang monastery. The 8th century monastery was burnt down by fire in 1998 (KUENSEL)

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

CHAPTER 4 55

Implementation Arrangements

It is considered essential to create a information management, technical experts mechanism for supervising, monitoring and etc.]. The Technical Advisory Committee shall evaluating the efficacy and proper examine the proposals relating to risk implementation of various disaster risk reduction activities submitted for funding from management programmes/schemes that a the National Disaster Mitigation, Prevention undertaken by various sectors. A project and Preparedness Budget and report its proposal formulated by any Department/ recommendations to the Inter-Ministerial Sector should be examined by the Task Force/Steering Committee for approval/ Department of Local Governance and suitable modification/rejection of the proposal forwarded to the Inter-Ministerial Task Force through the Ministry of Home and Cultural [a sub-group of the National Committee for Affairs. This will ensue objectivity in Disaster Management], constituted for a assessment and evaluation of all initiatives specific task/purpose, comprising of the and activities. officials of the Ministries of Home and Cultural Affairs and Finance. The Minister, The Disaster Management Division (DMD) Ministry of Home & Cultural Affairs shall Chair within the Department of Local Governance the deliberations of the Inter-Ministerial Task (DLG), MoHCA, shall provide guidance and Force and the Minister, Ministry of Finance direction on a regular basis for efficacious shall be the Co-Chair. execution/implementation of different initiatives. The division shall identify critical The Inter-Ministerial Task Force shall be areas, needs and gaps requiring specific assisted by an independent Technical attention and guide the programme Advisory Committee [consisting of experts implementation on a continuous basis to from different fields’ viz. earthquake ensure that the same meet their desired engineering, management, finance, objectives.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Annex 1: Institutional Profiles 56 GLOF incident on 7th October 1994 from the 1. DEPARTMENT OF GEOLOGY AND partial burst of Luggi Tsho in eastern Lunana. MINES (DGM) This flood caused extensive damage to properties along Punakha-Wangdi valley. The main roles of the Department of Geology The Dzongchung or small Dzong was partly and Mines under the Ministry of Trade and destroyed. Industry include geological mapping, exploring mineral resources, providing The study by the DGM along with the Institute engineering geological services, ensuring of Geology, University of Vienna, Austria environment friendly exploitation of economic warned of possible hazard potential of mineral resources, and carrying out scientific combination of Raphstreng and Thorthormi studies and monitoring of natural hazards like Tsho which could result in more then two Glacial Lake Outburst Flood (GLOF), times the volume of 1994 Luggi Tsho earthquakes and landslides which are outburst. If this is true then the consequences prevalent in the Himalayan environment. The can be devastating. Department also acts as a crucial link between Bhutan and the geological Some elderly people still remember the organizations of other countries for exchange flooding from GLOF in 1957, which affected of information and technology. Punakha-Wangdi valley destroying part of the Punakha Dzong that was caused by the The risk of GLOF has been a major threat in outburst of Tarina Tsho in Western Lunana. Bhutan. The glaciers in Bhutan are important water resources for hydro power generation, The Himalayan region has been categorized drinking, irrigation and other domestic uses as one of the seismically active zones in the but they are also a potential source of geo- world. During the past 100 years the region hazards such as rock fall, landslides and has witnessed four great earthquakes with flashflood if preventive and mitigation M>8 that devastated the region bringing huge measures are not in place. According to the losses and misery to millions of people. The recent study carried out by the DGM in Bhutan region on the other hand never collaboration with International Center for experienced any major events. Integrated Mountain Development (ICIMOD), Nepal, there are 667 Glaciers and 2674 Disaster Management Initiatives under- glacial lakes in Bhutan alone out of which 24 taken by DGM glacial lakes are potentially dangerous. The study was done to monitor the GLOF events Due to the enormous threat posed by the and hazards using GIS and satellite imagery glaciers and glacial lakes in Bhutan, the DGM and also to establish early warning system with organizations in other countries have so to reduce GLOF hazards on lives and far carried out numerous studies to monitor properties. the developments in the glacial lakes. They have also provided some mitigation There is no documented evidence of past measures to minimize the impacts of GLOF incidents in Bhutan except for the possible GLOF.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

In 1967, identification of potentially University of Texas at El Paso and University dangerous glacial lakes in Lunana region of Colorado to understand the earthquake 57 was carried out. The Geological Survey of and tectonic characteristic of Bhutan India carried out Aerial reconnaissance Himalayas. The collaborative Project survey of the Lunana region. The Joint DGM between DGM and UTEP resulted in training and GSI conducted the Lunana expedition of one Bhutanese student in the field of in 1986. The expedition to Lunana by Indo- earthquake and exploration geophysics and Bhutanese team to identify the causes and another one in research on neo-tectonics of effects of 1994 GLOF was conducted in Bhutan region. The collaborative work 1995. The multi-disciplinary team from between DGM and UTEP installed 5 National Environment Commission, DGM, temporary seismic network stations for one- Department of Roads and Bhutan Survey year period in January 2001 to understand conducted an expedition to Roduphu glacial the seismicity of the country for the very first lake. The mitigation measures for time. The preliminary results showed that Raphstreng Tsho were carried out in over a six month period the network recorded collaboration with the Government of India over 1600 tremors of which 642 were from 1996-1998. The Joint Japan-Bhutan regional/local events. project for Hazard Risk Assessment for GLOF was done in 1998. The Risk The Department has been carrying out Assessment of Upe Tsho and Tsokar Tsho geological risk assessment along the at the source of Chamkhar chhu in Bumthang national highway. They are preparing a was conducted by the DGM in 1999. Finally landslide hazard map for the stretches in 1999-2001 a Joint Bhutan-Austria Project already covered in their field work. On the for the risk assessment of glaciers and glacial Phuntsholing-Thimphu Highway such lakes was completed. studies were also carried out the Norwegian Geotechnical Institute. Inclinometer and The Austrian Government also assisted piezometer had been installed at Kharbandi Bhutan in monitoring and GLOF hazard slide to monitor the movement of the slide in analysis of Lunana for down stream effects collaboration with the Norwegian of Phochu. Government Fund.

Apart from the many expeditions made to The collaborative work between the DGM GLOF sources the DGM also monitor the and the University of Colorado at Boulder developments in glaciers and glacial lakes involved in understanding the tectonic and through the use of satellite images, time earthquake hazards using the GPS series data and hardcopy maps. The DGM technology capable of measuring has also done a comprehensive hazard deformation rate up to +/- 3mm. This assessment of the Lunana glacial lakes and deformation rate is the key to the size and prepared a Hazard Zonation Plan for these damages of earthquake in Bhutan. lakes in order to reduce the possible impacts Numerous GPS points were measured on lives and properties in the event of a during Oct-Nov 2003 along Thimphu- GLOF. Phuentsholing highway, Punakha-Laya, and With regard to earthquake threat in Bhutan, Bumthang-Zhemgang highway. Besides, two the DGM is working closely with the permanent GPS stations were installed at

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Royal Bhutan Institute of Technology in related problems. Phuentsholing and Thimphu to determine the 58 ➻ convergence rate. Efforts shall be made to collaborate with ICIMOD, Kathmandu and other The Department is also carrying out a project institutions that are involved in through SDS fund on the slope stability and monitoring seismic activities and environment assessment in collaboration behavior in the Himalayas. with ITC, Netherlands. In this project three batches of foresters and engineers were trained in the field of engineering geology 2. NATIONAL ENVIRONMENT especially addressing the problems of slope COMMISSION (NEC) stability and environment. The National Environment Commission in It has also been actively associated with the Bhutan is one important agency which looks foundation studies for various infrastructural after the overall legislation and legal development and also risk assessment. It framework on environment sectors in Bhutan has also been providing geotechnical advice to ensure that the socio-economic and laboratory services to both the private development is consistent with the ‘middle and public sectors. path’ of sustainable development. They have published the Environment Assessment Act The Department of Geology and Mines plans in 2000 and many other publications such for the future are: as Environment Code of Practices and sectoral guidelines on environment which ➻ Proposals have been put up to set cover a broad spectrum of developmental up a seismic network for the entire activities like roads and highways, country. hydropower plants and transmission lines and other infrastructure constructions. ➻ Seismic hazard zonation map for the Besides, the NEC also conducts research, country will be prepared and the monitoring and awareness on environment. collection of information on seismic It is also a focal point on various International activity in the country is under conventions to which Bhutan is signatory. process. Realizing the damage that can be caused ➻ Prepare land slide hazard zonation by unplanned and uncontrolled development map for the country. the Royal Government of Bhutan has taken the “middle path” of sustainable ➻ Based on regular monitoring of development, in order to raise the living glacial lakes, suggest mitigatory standards of the present population without measures and early warning compromising the country’s cultural integrity, systems for the flood prone areas. historical heritage or the quality of life for ➻ Continue to provide geotechnical future generations. Due to the strong services for infrastructure exemplary environment practices in the development and slope stability nation, environment degradation is not a among other subsurface stability major contributing factor to disasters in the

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN country although at some point of time the care of major environment degradation at the pressure of economic development may project implementation level. However the 59 prove too great to maintain the fragile impacts of climate change will be felt in ecological balance. In early 1974 the National Bhutan due to increased Green House Assembly passed a strong resolution Gases (GHG) generation around the world. mandating the country to maintain at least The financial and technological constraints 60 percent of its total area under forest cover in Bhutan are major obstacles to prepare for all times to come. itself against the consequences of climate change. At the international level Bhutan is signatory to many regional and international Although global warming and climate change conventions on environment such as the will affect all the countries, the least United Nations Framework Convention on developed countries will be affected the most Climate Change (UNFCCC), United Nations due to lack of financial and technical Convention on Biological Diversity (UNCBD), resources to adapt to climate change. As a Convention on International Trade on means to help the LDCs adapt to climate Endangered Species (CITES), World change the Conference of Parties to the Heritage Convention and Basel Convention. UNFCCC started to help the LDCs prepare its National Adaptation Program of Action With regard to climate change, Bhutan (NAPA) in its Seventh session in 2001. stands out as one of the very few countries in the world with greenhouse gas The NEC is currently working on NAPA sequestration capacity which can be credited Project which is funded by the Global to its vast forest cover, limited Environment Facility through UNDP. The industrialization and use of clean energy Project started in June 2004 and is expected sources. But global warming and climate to be completed by June 2006. During 2005, change due to increased GHG production the project carried out an assessment of the from human activities around the world possible impact of climate change on various makes Bhutan vulnerable as climate change sectors: health, agriculture, forest and may disrupt the delicate balance of the biodiversity, water and energy, infrastructure mountain ecosystem. The NEC is the focal and disasters. Subsequently, a Plan of Action agency for the United Nations Convention for Adaptation to Climate Change, prioritizing on Climate Change. The adverse effects of immediate and urgent needs was developed climate change will lead to variability in by a multi-sectoral team, coordinated by the weather patterns, and threats of glacial lake NEC. The Action Plan includes the following outburst floods. nine projects of highest priority:

➻ Disaster Management Initiatives Disaster management strategy undertaken by NEC ➻ Artificial lowering of Thorthomi Glacial The NEC has come up with many sectoral Lake (GLOF) guidelines on environment assessment, air ➻ and water quality standards and other Weather forecasting system to serve Environment Codes of Practice which take farmers and agriculture

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

➻ Landslide management and flood 4865 Million Units. The project is prevention (Pilot scheme in critical financed by the Government of India 60 areas) with a financing mix of bilateral assistance and soft loan. This project ➻ Flood protection of downstream is the largest high-head (860m) industrial and agricultural areas power plant being constructed in the region. ➻ Rainwater harvesting 2 Kurichu Hydroelectric Project ➻ GLOF hazard zoning (pilot scheme- This project was completed by 2002 Chamkhar Chu basin) with an installed capacity of 60 MW and an annual generation of 400 ➻ Installation of Early Warning System Million Units. It has started supplying on Pho Chu basin power to six Dzongkhags in eastern Bhutan and two Dzongkhags in ➻ Promoting community-based forest south-central Bhutan. Surplus power fire management and prevention is being exported to India through the 132 kV Gelephu-Salakati line. The project is financed by a combination 3. DEPARTMENT OF ENERGY (DoE) of bilateral assistance and soft loan from the Government of India. The Department of Energy within the Ministry of Trade & Industry is responsible for the 3. Basochu Hydropower Project power sector policy, planning & regulation. This project has an installed capacity In addition, the Department is also of 22.2 MW with an annual responsible for generation, distribution, generation of 105 Million Units. This transmission, investigation and project has helped to augment the implementation of various projects. The generation supply in western Bhutan hydropower sector is the engine of socio- as well as improve the reliability of economic growth in Bhutan. As of now, power supply in the region. The Bhutan exports about 75% of its electricity Austrian Government under a to India. Bhutan is endowed with a large financing mix of bilateral assistance hydropower potential of over 30,000 MW. and soft loan finances the project.

There are three major hydroelectric projects In these power projects, the government is in Bhutan: spending huge resources and the Department of Energy is well aware of the 1. Tala Hydroelectric Project threat posed by GLOF and floods. In order This project is scheduled for to cope with disasters such as GLOF and completion in the year 2005/2006 floods, the Department of Energy has taken with an installed capacity of 1020 some important measures on flood and MW and an annual generation of GLOF monitoring and early warning system.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Disaster Management Initiatives preventing major damage to the Kurichhu undertaken by DoE Project when Tsatichhu landslide dam burst 61 on 10th July, 2004. The project authorities The Hydromet Services Division under the were able to open the gates to release flood Department of Energy is responsible for waters after receiving news of the lake burst Planning and Design of Hydro-met Network over wireless from Ladrong, located opposite for collection of Hydromet data required for the lake. hydropower planning, flood and weather forecasting as well as for energy generation The Flood Warning Section (FWS) is scheduling. They collect the Hydromet data presently with the Hydro-met Services and disseminate to the end users such as Division of the Department of Energy. The the hydropower plants and other agencies. FWS till its transfer to the Department of They are also actively involved in flood Power in 2002 functioned as Hydro-met Unit warning and flood prevention measures. under the Department of Telecom. The unit was transferred when the Department of Presently the Hydromet Services Division Telecom was coporatised in January 2000 has 10 Hydrological stations and 33 rainfall and renamed as Flood Warning Section. The stations spread across the country. They also activities of the FWS are funded by the have one station in Thangza to monitor the Government of India. Its primary function is glacial lakes. to transmit river level data of the main rivers flowing to India for flood forecasting The Hydromet Services Division of the DoE purposes. The stations on various rivers are in collaboration with International Center for equipped with wireless sets and the river Integrated Mountain development (ICIMOD) information transmitted to stations of Central and World Metrological Organization (WMO) Water Commission in Cooch Bihar, held a meeting in Thimphu to establish a Jalpaiguri, Nalbari and Barpeta. flood information network in the HKH (Hindu Kush Himalayan) region. It was felt that a The flood warning activity is reviewed every regional information network among six months through the Joint Expert Team countries like India, Nepal, Bhutan, Pakistan (JET) meetings. Representatives from the and China would help them to be in a better Government of India and the Royal position to manage floods. Government meet alternatively in Bhutan and India to review the flood warning network, The various flood related activities approve budgets and address other issues coordinated/ carried out by the Department of mutual concern. The delegation from India of Energy are: is led by the Chief Engineer, Brahmaputra and Barak Basin of Central Water Flood Warning Commission while the Bhutanese delegation is led by the Director General, Department The Department of Energy through the Flood of Energy. The funds for flood warning activity Warning Section (FWS) aims to prevent including Lunana are projected yearly to the disaster by issuing timely warning for floods. Royal Government. This activity proved very beneficial by

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

GLOF Monitoring of Lunana Lakes time, the team recommended that instead of breaching the dam, the lake be monitored 62 After the 1994 GLOF in October, the Royal during the monsoon of 2004. Government had directed Bhutan Telecom to establish an early warning system at The multidisciplinary team submitted a nine Lunana. The FWS of the DoE continues with (9) point recommendations to mitigate and this function. monitor the lake. The nine point recommendations included geo-technical The Flood Warning Section has two investigation works, lowering the lake level, personnel posted in Thanza to monitor water construction of a cableway, setting up of a levels of Bey Tsho, Rapstreng Tsho, flood warning station at Ladrong and Thorthormi Tsho and Lugge Tsho. The water establishment of hydro-meteorological level of the main stream formed by the four stations. The DoE was made responsible for smaller streams flowing from the lakes is also coordinating the activities. As the works monitored daily. The operation of Thanza needed to be carried out urgently, fund was station is funded by the Royal Government. sought from the Royal Government for In case of a lake outburst, a set procedure is setting up the flood warning station, in place to warn people living downstream. construction of a cable way, setting up hydro- The charter of duties defines the meteorological stations and carrying out geo- responsibilities of the various organizations technical investigation works. The work of and individuals. lowering the lake level was entrusted to the Kurichhu Hydropower Corporation. Monitoring of glacial lakes in Bhutan is being undertaken by the Department of Geology Due to heavy rain in May, 2004, a part of the and Mines (DGM). The FWS considers dam body gave away, the approximate placement of staff for early warning purposes volume which slided was around 8 million only when the DoE is informed either by the cubic meters. With this occurrence, DGM or the Royal Government that there is personnel posted at the sites were more a need to do so. vigilant. A second wireless station was set up in Autsho to increase reliability in warning. Tsatichhu Lake Mitigation and Warning The lake volume at that time was estimated Activity at 12 million cubic meters.

The lake was formed on 10th September, The dam finally burst on 10th July, 2004.The 2003 after a massive landslide impounded discharge as estimated at Kurizampa was the water of Tsatichhu stream. This lake was about 6000 cubic meters per second. Only formed at the border of Lhuentse and Mongar minimal damage was done to Kurichhu Dzongkhags. To reduce the danger posed Hydropower Corporation due to timely downstream by a possible outburst, it was receipt of flood warning. commanded to be breached. To look into the possibility of breaching, a multidisciplinary To assess if the dam still posed a risk, a team team visited the site on 5-7 December, 2003. from the Department of Geology and Mines Given the volume of the dam body, the and the Department of Energy visited the site impoundment and the risk assessed at that on 29th December 2004- 1st January 2005.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

The visit has confirmed that though the risk Government should be identified for overall is reduced, there may be potential of further management of water resources. 63 floods. The Kurichhu Hydropower Corporation is working on reducing the levels of both Tsatichhu and Wabragchhu to 4. MINISTRY OF AGRICULTURE (MoA) minimize the risk. These works will be completed by April 2005. The Ministry of Agriculture plays an important role in increasing food production, raising Bhutan- India Joint Group of Experts rural income and improving the livelihood of (JGE) on Flood Management the nation’s large rural population while preserving the pristine natural environment A joint group of experts on flood management and conserving the rich natural resources of has been formed between the Royal land, water, forests, flora and fauna for future Government of Bhutan and the Government generations. The Ministry also provides of India to discuss and assess the probable crops, livestock and forestry services to the cause and effects of the recurring floods and people. erosion in the southern foothills of Bhutan adjoining the plains of India and recommend The Water and Agriculture sectors are the to both Governments, appropriate and most sensitive to climate change impacts due mutually acceptable remedial measures. to increase in volume of floods and surface runoff. The occurrence of forest fire is also a The first meeting of the JGE was held in frequent phenomenon in Bhutan where Thimphu/Phuntsholing from 1-5 November, hundreds of hectares of forested lands are 2004.The meeting decided on a set of flood destroyed and many wild animals killed. mitigatory studies to be done by both Agriculture, on which 85 % of the population Bhutanese and Indian experts. The fund for depends, is likely to suffer major losses due conducting the meeting has been projected to high temperature, severe draught and in the budget for the fiscal year 2005-2006. changes in climatic patterns. At other times The fund for actual works would be known it is the outbreak of pests and diseases. only after the preparatory works are Given the small land holdings of most completed. farmers in Bhutan and their total dependence on agricultural products, any damage to their While it is not the responsibility of the DoE crops will make life difficult for them. The high to undertake flood management, the Director biodiversity concentration in Bhutan is also General, DoE was asked to lead the team threatened by the synergistic effects of from the Royal Government for JGE. Every climate change and habitat fragmentation year floods are reported in different parts of due to rapid urbanization. Bhutan. The year 2004 saw major floods in Trashigang and Trashiyangtse. The Just in the 2004 Monsoon 350 metric tonnes Department of Energy strongly recommends of maize, 126 metric tonnes of paddy and that the Royal Government assign a body to 21 metric tonnes of potatoes were lost in the take care of flood management so that 6 eastern Dzongkhags of Bhutan due to preventive action is taken to mitigate the risk floods, flashflood and landslides although of floods, that an agency of the Royal emergency situation such as out break of

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

diseases or severe food shortages did not Irrigation channels occur in any of the affected areas. The Irrigation systems in Bhutan are relatively 64 vulnerable people in Duksum, Tashiyangtse small. They are not a cause for concern if were evacuated to a safer site and the Royal managed properly by the users. However in Government provided food and other combination with other factors such as essentials. excessive rainfall irrigation systems tend to cause considerable damage. This is Agriculture related disasters are usually compounded by the fragile geo-physical confined to local levels and nation wide conditions of the young Himalayan mountain disasters have not yet occurred in Bhutan. system. The problems are more acute along the southern belt where a combination of Disaster Management Initiatives fragile terrain and heavy rainfall create undertaken by MoA optimum conditions for natural disasters. Floods and landslides occur more frequently Crops in the foothills. When an irrigation system is When there is an outbreak of pests and damaged, the farmers try to repair it diseases in the agricultural fields, the themselves using their own resources. Department of Agriculture provides technical However, when the damage is beyond their expertise and provides measures to control means they seek government support. the outbreak. If the situation becomes worse The repairs of the damaged irrigation and if there is severe food shortages then systems are usually carried out in the the Department also provides direct food aid following year after obtaining supplementary to the affected group of people for a limited budget. The Department has also adopted duration as a temporary measure. The the National Irrigation Policy where the Dzongkhags also provide small amounts of farmers are responsible for repairs and free inputs such as seeds and fertilizers to maintenance of irrigation channels. the affected farmers. To protect the livelihood of farmers the idea of crop insurance has River bank protection been raised in the past but it has not Another important structure in agriculture is materialized till date. This is an important river bank protection. This is usually provided concern which should be taken seriously. in the valley bottoms and the southern foothills to prevent damage to the limited Forest fire agriculture land, human lives and other During a forest fire, there is no properties. It consists of gabion-crate walls comprehensive management plan to stacked on top of each other. These walls respond to fire disaster. The usual practice afford protection for several years with is that the community and government standing normal flood-level flows. However, servants help to control the situation and try during severe flooding they are damaged to save lives and properties at the most. The mainly due to toe failure. This is because the government also investigates the causes of river scours the base of the lower most crate fire and if anyone is convicted of intentionally leading to collapse of the upper layers. This setting the forest on fire he or she faces is compounded by the poor quality of wire severe punishment. materials and sub-standard workmanship.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Bank protection failure can lead to loss of cause of damage and file in a report to the life and property. Large tracts of fertile land Dzongkhag. Based on the investigation 65 along the river banks are washed away report the Dzongkhag may arrange for relief annually resulting in irreparable damage to measures if possible and report to the the lives of the affected farmers. Department of Local Governance (DLG) with Occasionally, even human lives are lost when a copy to Agriculture Ministry. The report will such events occur at night and people are contain estimates for compensation or repair caught unawares. Measures of redressal will of damaged structures. be similar to the others described above. The DLG will assess the problem and Farm roads and power-tiller tracts recommend for compensation as per Farm roads and power-tiller tracts are a government norms. The MoF shall arrange recent introduction into the Bhutanese to release funds accordingly. However in the countryside. Farm roads are built on contract event of outbreak of plant diseases and/ or and handed over to the communities. Power- small pests the Department of Agriculture will tiller tracts are constructed by the farming deploy chemicals and technical expertise to communities themselves with material and control the problem. technical support from the Dzongkhags.

Road constructions involve large amounts of 5. STANDARDS & QUALITY earth movement in mostly steep terrain. CONTROL AUTHORITY (SQCA) Fragile environment and less than standard construction quality combine to cause The Standards and Quality Control Authority damage along these roads. Although farmers under the Ministry of Works & Human are expected to carry out routine Settlement was established in 2000 with the maintenance it does not happen. Minor primary responsibility to develop standards damages are ignored which lead to larger and ensure quality in the public infrastructure problems usually resulting in wash-outs. projects. Derived from the broad government Such reports are routed through the GYT instructions, the SQCA has set its long-term from where the same route can be followed. vision as “Enabling development of technically superior quality public Reporting protocol infrastructure, cost effective in its When some form of disaster strikes any of construction and engage the state of the art the above, the farmers concerned will inform technology”. The fact that major portion of the Tshogpa, who is a GYT member for that Bhutan lies in one of the most seismically locality. The Tshogpa in turn will bring it to active zones in the world is imposing a major the attention of the Gup. The GYT will then threat to Bhutan. In order for Bhutan to submit a report to the Dzongkhag who will prevent and minimize the impacts of possible send an investigating team consisting of earthquakes, SQCA is executing a project relevant sector staff and local to assess the vulnerability of buildings in the representatives. For crop damages the country and to come up with retrofitting Extension Agent will assess the extent and recommendations.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

Disaster Management Initiatives 2. Vulnerability Assessment of 15 undertaken by SQCA critical Buildings in Thimphu valley 66 to formulate scheme for retrofitting Presently SQCA is implementing a project and strengthening of critical called “Thimphu Valley Earthquake Risk buildings. Buildings have been Management Project” funded by the UNDP selected based on their social as a preparatory assistance in the field of importance, age, shape, size, earthquake related disaster. The objectives purpose, alteration made etc. of the project are to:- 3. Document Methodology and tools for rapid vulnerability assessment of ➻ Undertake vulnerability study of some most prevalent building types Thimphu valley & draft action plan to produce tools for conducting for earthquake disaster manage- vulnerability assessment for large ment. public buildings.

➻ Carry out detailed seismic 4. Build technical in-house capacity for assessment for selected critical earthquake vulnerability assessment building in Thimphu valley and and earthquake resistant construction relevant to Bhutan. ➻ Build technical & human capacity for earthquake resistant construction. 5. Produce awareness material on the project and earthquake resistant Earthquakes do not kill people but the construction Technology and good buildings and other infrastructures do in the practices. event of an earthquake. The basic objective of the project is to assess the vulnerability of 6. Disseminate outputs related to the buildings in Thimphu Valley and propose process and product of the project recommendations and relevant retrofitting to strategic stakeholders at different techniques for those buildings that are points during the project. Similar vulnerable. projects will be carried out in the all the cities and towns in the country The project includes the following major gradually. activities: The Thimphu Valley Earthquake Risk 1. Development of an earthquake Management Project under the UNDP scenario for Thimphu valley using assistance is the first step of a long-term RADUIS Methodology which would objective of ensuring structural soundness assist to generate an earthquake risk of all the building in the country against management plan for Thimphu severe earthquake. Major tasks lie ahead for valley. achieving this objective. According to the SQCA the important activities which are necessary to be carried out are:

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

(i) Conduct seismic study and develop (ii) Review & revise code for seismic a seismic zoning map for Bhutan. structural standards, based on the 67 This has become very crucial as seismic zoning map. Bhutan presently is taken to be in seismic zone V (the severest zone) (iii) Additional technical and financial based on the regional seismic support to continue with similar information. This has considerable project of Thimphu Valley impact on design standards and the Earthquake Risk Management in cost on construction. This activity other towns & cities. may overlap with earthquake geotechnical engineering which is (iv) Technical & Human capacity building under the preview of Department of in the seismic assessment, design of Geology & Mines and may require retrofitting techniques. coordination.

It is important that lifeline buildings like hospital, school, telecommunication structures etc. meet the requirement for safety and strength so as to avoid damage to lives and properties in the event of a disaster.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

6. DEPARTMENT OF ROADS (DoR) Disaster Management Initiatives undertaken by DoR 68 The Department of Roads under the Ministry of Works & Human Settlement is responsible The Department of Roads has been for planning, execution and management of exploring the possibilities of better road all road infrastructures development in construction and road corridor planning Bhutan. So far Bhutan has only 3900 Km of techniques. Apart from the simple survey and road network. All district headquarters and construction of some permanent structures some geogs are accessible by road. to mitigate the smaller landslides, DoR has However many other geogs and villages still adopted Environment Friendly Road rely on animal and head-load transport Construction (EFRC) techniques which system. include detailed geological and environment assessment studies to reduce the negative There is an increasing need to expand road impacts of road construction on society, network in Bhutan to enhance the socio- economy and the environment. economic status of the rural communities as well as upgrade the existing road network to The EFRC technique is, in principle, the cope with increasing vehicular traffic. The translation of the environmental policy on country’s fragile terrain, high ridges and deep road sector activities as governed by the gorges, scattered settlement and low Environmental Assessment Act-2000 and the population density are some of the Environmental Code of Practice-April 2000. constraints which hinder the development of In simple terms, EFRC can be defined as road network in Bhutan. Every monsoon, the construction of roads in such a manner there are many landslides, roadblocks and that the damages caused to the socio- flashfloods in most parts of the country. economic development and the environment Roads and bridges have been washed away is minimized to the extent possible. and some damaged due to landslides and flashfloods. The Royal Government also The EFRC technique was introduced in spends millions of Ngultrum in the monsoon Bhutan in 1999 with construction of 122 km damage restoration works such as rebuilding feeder roads in 4 eastern Dzongkhags of protection walls, culverts, and drainage Zhemgang, Lhuentse, Trashigang and system and in some cases realignment of Tashiyangtse under the Rural Access Project the entire road. (RAP). The Project is funded by the World Bank, SNV and the RGoB. As a prelude to During the damage assessment of the 2004 the introduction of the EFRC technique, Monsoon carried out by the Ministry of Environmental Code of Practice (ECOP) and Agriculture in the eastern Dzongkhags, it was Bio-engineering Manual were developed. found that a total of 22 bridges have been The engineers from DoR were trained on washed away or severely damaged. Some planning, surveying and designing of roads, farm roads and feeder roads were also badly and several workshops and seminars were damaged requiring high repair cost. conducted to familiarize the concerned stake holders on the new technique of road construction.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

The RAP, on a project level, has the mandate ➻ Considerable time is required to to develop the EFRC method and to build carry out planning, geo-technical, 69 the requisite construction and maintenance social, environmental studies and capacity within DoR and other relevant survey and design. agencies such as the Ministry of Agriculture, Forestry Development Corporation Limited ➻ Limited availability of appropriate and at the Dzongkhag and at the community construction equipment and planning level. tools such as maps of desired scale, etc. During a mid-term review (MTR) of the project, some of the major findings of the Apart from introducing the EFRC technique MTR team were that the EFRC technology in road construction, a Landslide Risk was found well developed within the DoR and Assessment Project was also carried out in the project feels that DoR was competent Mongar-Trashigang road, Sunkosh-Dagana enough to adopt the new technology. This road and Chukha-Damchu road. This was a could be replicated at the national level for research project by the Scott Wilson all agencies involved in different types of road Company and the project was funded by the construction. The EFRC technique was also Department of International Development appreciated by all stakeholders including the (DFID), UK. The Project aimed at developing private sectors and the project has shown rapid, low-cost methods of landslide hazards encouraging results. and risk mapping based on the geological features, meteorological data and existing The following were identified as some of the landslides of these three locations so that main areas which require attention: there will be better landslide management and road corridor planning in future. The ➻ Higher initial investment costs – main tools used in the project were GIS, Cost-estimates of a few roads which Aerial photographs, seismic data, satellite are under construction, have shown images, land use maps and topography that the initial investment cost on maps. The Project covered a total area of road construction by EFRC method 80,000 hectares during which more than 500 is 25 to 30% higher as compared to landslide zones have been identified in these the conventional method. However, three pilot areas. in the long run, the road constructed using EFRC techniques is envisaged to be more economical owing to low 7. DEPARTMENT OF URBAN routine maintenance and recurrent DEVELOPMENT AND costs as disturbance to the geology ENGINEERING SERVICES and environment of the road alignment is minimized to the extent Rapid developmental activities and possible during the construction urbanization within the last decade has led stage. to an unprecedented boom and mushrooming of urban infrastructures, of which buildings, both commercial and

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

residential, are the most prominent. Thus the With the establishment of the municipal need for a local authority to manage, regulate corporations, strict rules and systems for 70 and monitor the otherwise chaotic and enforcing the application of the various precarious approach to construction of such relevant building design and construction buildings was deemed indispensable. The codes were initiated. Seismic design codes urban centers usually consist of high are strictly adhered to while designing population density and if disaster such as fire, structures and special care and attention to earthquakes, floods and landslides occur, the details is given to structures having immense number of casualties can be very high. community services and utility such as Hospitals, fire stations, schools, radio and The Municipal Corporations thus established communication stations etc. Since Bhutan in the various cities and towns of the country can be possibly considered to fall under now play an instrumental and vital role in either of the two most highly vulnerable disaster prevention and to some extent seismic zones IV and V the municipalities disaster management. There are two major adopt the Indian Standard (IS) code provision cities in Bhutan, Thimphu and Phuentsholing. for Zone V while designing and assessing There are also many other satellite towns the buildings for approval. coming up in many other parts of the country. The approach adopted by these Depending upon the soil condition and municipalities presently, in disaster degree of vulnerability to certain kind of management is predominantly proactive in events (fire, landslides, flood, storm, nature rather than reactive. Great care is earthquake etc...) the Thimphu City taken to avoid disasters but very little effort Corporation has been categorized into zones is made to respond to disasters. which determine the type and height of a building that can be built. Prior to the establishment of these municipalities, buildings were constructed Anybody aspiring to construct a building mostly at the whims and fancies of their should submit a complete set of drawings owners. The engineering and technical illustrating the type, the details of structural aspects of the buildings were given negligible component, sewerage, plumbing and importance. The durability of the building and electrical wiring provision for the building, for more importantly the safety of the occupants scrutiny to the concerned section of the are seriously jeopardized at the cost of municipal corporation. The drawings have to economy and haste in construction. comply with the technical norms and fulfill all the structural requirements to be approved Disaster Management Initiatives for construction. A separate division known undertaken by DUDES as the Building Inspection Division functions under the municipal corporations. This The municipalities are responsible for division performs both regular and surprise ensuing that the buildings meet the sporadic inspection to the construction sites requirement for safety and strength so as to to ensure that the buildings are being avoid catastrophic damage to lives and constructed as per the approved drawings properties in the event of a disaster. and norms.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

In its attempt to safeguard the community They have formed a committee of ten against the possibilities of fire hazards the members consisting of representatives from 71 municipal corporations plan and construct key organizations likely to be involved in public foot path along the periphery and disaster management. The group have within the city to act as a fire line in an event identified hazards likely to be faced by of fire outbreak. However fire safety designs Phuntsholing like flood, storm/ cyclone, and practices, in particular are not landslide, earthquake etc. and given incorporated at present. The municipal likeliness of occurrence like high or low. corporation and the fire division of the police in association with few other organizations Similarly the Thimphu City Corporation is in are in the process of developing fire code the process of formulating a city disasters and guidelines for Bhutan. management plan. A meeting of the stakeholders was held in June 2006 to Monsoons at times can be very heavy and discuss issues related to disaster mitigation, since most of the settlements in the country prevention, preparedness and response are located along the river running through mechanisms. the valley, there is always the threat of flood and river water intrusion into the valley. The municipal corporations initiate construction 8. DEPARTMENT OF MEDICAL of river training works along the rivers likely SERVICES (DMS) to flood during monsoon. The Department of Medical Services under The Phuntsholing City Corporation (PCC) the Ministry of Health instituted the Emer- along with various organizations has devised gency Medical Services and developed an a Disaster Management Plan (DMP) for the Emergency Medical Response to deal with city so that if emergency situation arises it outbreak of diseases in times of disasters. would be able to respond quickly and Under the broad area of Emergency Medi- appropriately to minimize the loss of lives and cal Services, 244 Emergency Medical Tech- properties. The Disaster Management Plan nicians (EMTs) and about 94 hospital based includes 4 “R’s” principles. They are: personnel for trauma care from among various categories of health workers were trained ➻ Reduction of disaster through to back up the armed forces during the flush- physical strengthening of structures ing out operation of the foreign militants in and facilities December 2003.

➻ Readiness in preparing During the process various coordinators at arrangements to cope with disaster different levels and a supreme Joint Task Force at the national level were formed and ➻ Response to deal with the it still exists for activation at any time if need consequences of disaster and arises.

➻ Recovery from disasters to restore In November 2003 the policy on Emergency the city to its normal functioning. Medical Response was further refined as policy Directive on Disaster Management

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

and Internal Displacement. Their efforts will 2. Releasing fund to relevant agencies be mainly directed towards addressing all in respect of DRM through Letter of 72 types of trauma relating to both natural and Credit (LC) Account opened for the manmade disasters such as earthquakes, agencies with the Bank of Bhutan. flashfloods, land slides, road traffic accidents, occupational/ industrial injuries, blast injuries, 3. Making the agencies accountable for etc. Hospitals along the highways and fund released through reporting of Dzongkhags are being scaled up in terms of expenditures and submission of facilities for trauma care. monthly accounts.

Trauma care is an extremely important area Note: The Department of Budget & Accounts that needs to be initiated in a multi-sectoral has been bifurcated into two departments approach. Women and children who are the and functions separately as Department of most vulnerable to trauma after a disaster National Budget & the Department of Public also need to be represented. Accounts. The above functions are divided between the above.

9. DEPARTMENT OF BUDGET & ACCOUNTS (DBA) 10. BHUTAN TELECOM LTD. (BTLtd)

The Department of Budget & Accounts The Bhutan Telecom Limited (BTL) aims to (DBA), Ministry of Finance, is the central provide high quality, affordable, reliable and agency for financial management of the gov- integrated telecommunication services to ernment. The DBA has linkages with all the improve the quality of life of the people and budgetary agencies (Ministries, also facilitate internal and external trade & Dzongkhags, Gewogs, Autonomous agen- commerce. cies) in the government. ➻ Provide high quality, affordable & Mandate & functions in relation to Disas- reliable telecommunication services ter Risk Management (DRM) to the people. ➻ Enhance accessibility to telecommu- The responsibility and functions of DBA in nications and its related services in relation to DRM will be mainly on the aspects the rural areas at affordable prices. of financial management. The functions are ➻ Promote ICT (Information & Commu- as follows. nications Technology) to reduce digital divide in the country. 1. Making budget available for DRM as ➻ Provide customized services as per per the framework developed by the customer need. government (Proposals for budget for DRM should be put up by the responsible agencies).

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Areas of involvement in Disaster Risk 2. Evacuation of casualties and rescue Management: operation. 73 The BTL has the responsibilities in relation 3. Evacuation of people from the af- to disaster management: fected area if situation demands.

1. Provide reliable telecommunication 4. Safeguarding properties from pilfer- services in the Kingdom. age.

2. Formulate strategies to provide back 5. Control movement of people and traf- up services, through Satellite link, fic at the scene of disaster. and wireless network should terres- trial link be disrupted by disaster. 6. Maintaining law and order in the affected zone. 3. Assist in establishing help desk hotlines. 7. Dispatching Fire Services Teams for fire control and rescue. 4. Provide trainings for handling rescue operation communication equip- Areas of involvement in Disaster Risk ments. Management

5. Assist in drawing up plans and equip- 1. Scene security and maintenance of ment specifications for telecom re- law and order. lated equipments to set up disaster management telecommunication 2. Fire control and rescue of trapped networks in the country. persons.

3. Establishment of full- fledged fire sta- 11. ROYAL BHUTAN POLICE (RBP) tions in the districts.

The primary function of Royal Bhutan Police 4. Capacity building for disaster re- (RBP) is the prevention and detection of sponse by establishing fire and res- crime and maintaining law and order in the cue training facilities, HRD and man- country. It also provides fire and rescue ser- power, equipments and required in- vices. During a disaster the following will be frastructure. the roles and responsibilities of the RBP.

1. Security of the scene and establishing effective cordon within the disaster zone.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK Annexure 2:

74 Disaster Management Plan- Phuentsholing City Corporation

The Phuntsholing City Corporation (PCC) ➻ First aid/ immediate injury treatment along with various organizations has devised ➻ Ambulance/ Evacuation to hospital a Disaster Management Plan (DMP) for the ➻ Dealing with loss of human life/ Iden- city so that if emergency situation arises it tification of bodies would be able to respond quickly and appropriately to minimize the loss of lives and 2. Less urgent/ long term needs ➻ properties. The Disaster Management Plan Evacuation of casualties to other includes 4 “R’s” principles. They are: hospitals ➻ Water ➻ Reduction of disaster through physi- ➻ Food supplies cal strengthening of structures and ➻ Restoration of power facilities ➻ Temporary local shelters ➻ Setting up camps in safe areas for ➻ Readiness in preparing arrange- evacuated people ments to cope with disaster ➻ Evacuation of public to camps ➻ Response to deal with the conse- ➻ Welfare quences of disaster and ➻ Sanitation ➻ Health- prevention and control of dis- ➻ Recovery from disasters to restore eases the city to its normal functioning. ➻ Maintainance of law and order They have formed a committee of ten mem- Proposed Emergency Services in bers consisting of representatives from key Phuntsholing organizations likely to be involved in disas- RBP- Fire Services ter management. The group have identified RBP- Search and Rescue hazards likely to be faced by Phuntsholing RBA- Emergency Shelter like flood, storm/ cyclone, landslide, earth- Ambulance Services quake etc. and given likeliness of occurrence Hospital/ Injuries like high or low. FCB- Food Supplies Given below is the Disaster Management Plan for Phuntsholing that the Disaster Proposed Lifeline Organizations in Management Group has come up with, in Phuntsholing brief: Hospital/ Health BPC Emergency Services and Lifeline Organi- Telecom zations in Phuntsholing PCC- Water supply/ Sewage disposal DOR 1. Urgent Emergency Needs RBP- Public protection ➻ Fire Fighting Fuel supplies ➻ Rescue of casualties and people FCB- Food supplies under fallen debris MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

ALLOCATION OF RESOURCES

Organization Reports to: Liaises with: Responsible for: Equipments 75 needed

Emergency Central All Coordination and control of Walki-Talki radios, Control Government all operations safety equipments, Centre (ECC) transport facilities

RBP ECCRBP H/Q RBA • Search and Rescue Walki-Talki radios, • Law and Order safety and general • Provide Walkie-Talkie equipments for radios to all sections Search & Rescue that need them teams

RBA ECCRBA H/Q RBP • Erect tents at PSA ground Walkie-Talkie for ECC, field hospital and radios and Tents other facilities (10-12 tents) • Provide trained troops to act as stretcher bearers

Hospital ECC RSTA • First aid in the field Walki-Talki radios, • All medical treatment of First aid kits, tents casualties and beds

RSTA ECC Hospital/RBA • Ambulance services Walki-Talki radios • Transport to other hospital and Transport vehicles

DOR ECC • Clearance of all vital Walki-Talki radios roads in the city and

Dratshang- ECC Hospital • Identification and disposal Walki-Talki radios Monk Body of bodies and tents

BPC ECC · Restoration of power to Walki-Talki radios Hospital and other vital and tents services

Telecom ECC · Restoration of telephone Walki-Talki radios services and tents

City ECC · Restoration of water and Walki-Talki radios Corporation sewage disposal facilities

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

ANNEXURE 3: 76

ORGANOGRAM A: INSTITUTIONAL MECHANISM AT THE CENTRE

His Majesty’s His Majesty the King Relief Fund

Major Disaster Fund Cabinet

National Disaster National Committee on Mitigation, Prevention Disaster Management & Preparedness Fund

National Emergency MoHCA Working Group of Operations Centre Ministries/Agencies

Dzongkhags DungkhagsThromdes Gewogs

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

The Cabinet His Majesty’s Relief Fund ➻ Chairperson: Prime Minister ➻ Corpus of the fund to be decided by 77 ➻ Vice-Chairperson: Home Minister the Cabinet ➻ Ministers from all Ministries as ➻ Executed by NCDM members ➻ Administered by MoHCA, DLG ➻ To strengthen response capabilities National Disaster Mitigation, Prevention at various administrative levels. and Preparedness Fund ➻ To address speedy relief, recovery, ➻ Administered by MoHCA, DLG rehabilitation & reconstruction ➻ Corpus of the fund to be decided by the Cabinet Working Groups of Ministries concerned ➻ Executed by NCDM ➻ Every Ministry concerned may ➻ To finance hazard-specific risk constitute sector-specific working mitigation projects/schemes groups to implement various formulated at national level by initiatives/meet sector-related different sectors/Ministries response needs. ➻ Finance similar projects developed by Dzongkhags, Geogs and National Emergency Operation Centre Municipalities. ➻ Provide disaster surveillance and warning systems 24 hrs x 7 x 365 National Committee for Disaster days Management ➻ Chairperson: Ministers will function Emergency Support Function (ESF) as the chairperson on a rotational ➻ Various Line Ministries/Agencies to basis. have sectoral functional core teams’ ➻ Vice-Chairperson: Home Minister viz. Health, Transport, ➻ Secretaries from all Ministries as well Communication, Agriculture, Armed as representatives of Dratshang Forces etc. Lhentshog and Armed Forces as Members ➻ Member Secretary: Director General, DLG, MOHCA

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

ORGANOGRAM B: INSTITUTIONAL MECHANISM AT THE DZONGKHAGS, DUNGKHAGS, THROMDES & GEWOGS

Dzongkhag National EOC Administration

Dzongkhag DM Dzongkhag DM Fund Committee

Dzongkhag EOC

Dzongkhag DM Gewog DM Thromde DM Committee Committee Committee

Dzongkhag DM Team Gewog DM Team Thromde DM Team

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

Dzongkhag Disaster Management Com- Gewog Disaster Management Teams mittee (DDMC) ➻ Core teams of trained people in vari- 79 ➻ Chairperson: Dzongda ous facets of disaster response viz. ➻ Members: Representatives of line Search & Rescue, First-aid, Shelter Ministries/ sectors including NGOs, Management, Evacuation, and Com- Religious bodies, Police, Army, Fire munication etc. etc.

Dungkhag Disaster Management Commit- Dzongkhag Disaster Management Fund tee ➻ Dzongkhag level disaster manage- ➻ Chairperson: Dungpa ment activities including mitigation, ➻ Vice-Chairperson: GYT Chairman preparedness and response ➻ Members: All Gups, representatives ➻ Funding sectoral schemes of relevant sectors, Tshogpas, Mangmis, Chupons etc.

Dzongkhag Emergency Operation Centre Thromdes Disaster Management Com- (EOC) mittee ➻ Monitoring and warning dissemination ➻ It will be operational 24 hrs x 7 days ➻ Chairperson: Thrompon ➻ Members: Representatives from relevant sectors. Gewog Disaster Management Committee ➻ Chairperson: Gup ➻ Representatives of relevant sectors, Tshogpas, Mangmis, Chupons as members.

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

ORGANOGRAM C: IMPLEMENTATION MECHANISM

National Committee for Disaster Management

Inter-Ministerial Task Force

Disaster Management Technical Adivsory Division, DLG, Committee MoHCA

Inter-Ministerial Task force Technical Advisory Committee ➻ Chairperson: Minister, MoHCA ➻ To report directly to the Inter-Minis- ➻ Co-Chair: Minister, Ministry of Fi- terial Task Force nance ➻ Comprise of technical and subject or ➻ Members: Officers from other rel- hazard-specific experts to provide evant departments. expert advice to the Inter-Ministerial ➻ DLG to act as the Secretariat for the Task Force on different sectoral ini- Inter-Ministerial Task Force tiatives formulated and their desir- ability.

MINISTRY OF HOME & CULTURAL AFFAIRS REDUCING DISASTER RISKS FOR A SAFE AND HAPPY BHUTAN

ORGANOGRAM D: RESPONSE MECHANISM

The Cabinet

National Committee for Disaster Management

DLG, MoHCA

National EOC Emergency Support Functions

Dzongkhag Dungkhag Thromde Gewog EOC EOC EOC EOC

Dzongkhag Dungkhag Thromde Gewog DMC DMC DMC DMC

Dzongkhag Dungkhag Thromde Gewog DMT DMT DMT DMT

ROYAL GOVERNMENT OF BHUTAN NATIONAL DISASTER RISK MANAGEMENT FRAMEWORK

82 The Cabinet Department of Local Governance, ➻ To meet immediately in case of a di- Ministry of Home and Cultural Affairs saster of national magnitude to as- ➻ To act as the nodal Ministry or De- sess the situation, summon national partment for coordinating all disas- resources, allocate money from Ma- ters. jor Disaster Fund and if required, ➻ To coordinate national response ef- decide to seek international assis- forts during a major national disas- tance and decide on appropriate re- ter or a region/ Dzongkhag/Geog sponse measures. specific disaster; ➻ Give inputs to NCDM and the Cabi- National Committee for Disaster net about the situation; requisition Management (NCDM) required assistance, resources, ➻ To oversee/supervise the effective- manpower from other Ministries/ ness of response mechanisms, give Agencies; give directions to local directions to line Ministries/agencies, govt. authorities; decide on the quantum of relief as- ➻ Overall supervision of the situation sistance, mobilization of resources, up to recovery and reconstruction. provide regular inputs to the Cabi- net and directions to Dzongkhags, Dzongkhag DM Committee (DDMC) Dungkhags, Thromdes and Geogs ➻ To provide SITREP to DLG/ NEOC; etc. assess requirements; summon assistance; mobilize own manpower/ Thromdes Disaster Management resources; allocate Dzongkhag DM Committee Fund; extend help to Municipalities/ ➻ To oversee/supervise the effective- Gewogs; overall management etc. ness of response mechanisms.

➻ To provide local resources and support when summoned for assistance by the NCDM during emergencies.

Gewog Disaster Management Committee (GDMC) ➻ To oversee/supervise and coordinate response efforts in the gewog in the time of disasters. ➻ Provide local resouces and support to the gewog and to the dzongkhag as and when such needs arise.

MINISTRY OF HOME & CULTURAL AFFAIRS