The Middle Path NATIONAL ENVIRONMENT STRATEGY 2020

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༅ ལ ། ། ་ རྒྱ དཔ མ ལ ་讣 ་辡 ལས ན་འབྲུག་པ་ཕ일གས་ National Environment Commission Royal Government of Bhutan The Middle Path

This document has been prepared by the National Environment Commission.

The Middle Path NATIONAL ENVIRONMENT STRATEGY 2020

National Environment Commission Royal Government of Bhutan

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“We must always be One nation with One vision in our convictions and efforts. When we hand over our country to our children, we should not only hand over a secure and sovereign country but an environmentally rich country.”

His Majesty The King

5 བར་ལམ། རྒྱལ་蝼ངས་ མཐའ་སྐོར་གནས་鮟ངས་ ཐབས་བྱུས། ༢༠༢༠

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“Bhutan must follow the middle path development, that is development that recognizes the need to develop our economy, to progress technically, medically and scientifically while still maintaining ourich r cultural heritage and our traditional values, as well as preserving our natural resource base.

Throughout the centuries, the Bhutanese have treasured their natural environment and have looked upon it as the source of all life. This traditional reverence for nature has delivered us into the twentieth century with our environment still richly intact. We wish to continue living in harmony with nature and to pass on the rich heritage to our future generations”

His Majesty, The 4th King Jigme Singye Wangchuck

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CONTENTS

FOREWORD 9

INTRODUCTION 13

CHAPTER 1: OVERARCHING POLICY FRAMEWORK 16

CHAPTER 2: LAND 26 Strategic Objective 1: Plan for balanced land use 33 Strategic Objective 2: Enhance disaster preparedness and response 35 Strategic Objective 3: Combat land degradation 37 Strategic Objective 4: Promote environmentally friendly and climate-resilient 39 roads and infrastructure Strategic Objective 5: Make agriculture sustainable and the climate-resilient 41 Strategic Objective 6: Manage mineral extraction sustainably 45 Strategic Objective 7: Ensure green, sustainable settlements 47 Strategic Objective 8: Strengthen waste prevention and management 49

CHAPTER 3: AIR 56 Strategic Objective 9: Remain carbon neutral 61 Strategic Objective 10: Improve ambient air quality 63 Strategic Objective 11: Promote low-emission transport 65 Strategic Objective 12: Adopt cleaner technology 67 Strategic Objective 13: Develop the renewable energy sector 69 Strategic Objective 14: Improve energy efficiency 71 Strategic Objective 15: Reduce household air pollution 73 Strategic Objective 16: Provide early warning for windstorms 75

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CHAPTER 4: WATER 80 Strategic Objective 17: Institutionalize and implement integrated water 86 resource management Strategic Objective 18: Prevent freshwater pollution 88 Strategic Objective 19: Improve access to safe drinking water and sanitation 90 Strategic Objective 20: Prevent damage from flood disasters 92 Strategic Objective 21: Ensure sustainable development of hydropower 94 Strategic Objective 22: Ensure efficient use of water resources6 9

CHAPTER 5: LIFE 102 Strategic Objective 23: Sustainably manage human-wildlife conflict 110 Strategic Objective 24: Support sustainable forest management 112 Strategic Objective 25: Conserve Bhutan’s biodiversity 115 Strategic Objective 26: Sustain the protected areas network 117 Strategic Objective 27: Promote sustainable tourism 119 Strategic Objective 28: Prevent and combat poaching, illegalharvest and trade 121 Strategic Objective 29: Prevent spread of alien invasive species 123 Strategic Objective 30: Preserve diversity of crops and livestock 125 Strategic Objective 31: Share benefits of genetic diversity 127

CHAPTER 6: WAY FORWARD: ENABLING FACTORS 132

CONCLUSION AND MONITORING PROGRESS 152

ANNEXES 153

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10 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 MAP OF BHUTAN

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“It is better to have milk and cheese many times, than beef just once.” – traditional Bhutanese proverb –

12 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 INTRODUCTION

This document is aligned with all of the relevant Background to the new Strategy environmental policy, legislation and regulations The precursor to this New National Environment existing in Bhutan, integrated into a new National Strategy, the 1998 document The Middle Path, Environment Strategy (NES) 2020-2030. The was crafted at the dawn of the st 21 century new Strategy balances conservation with when, after centuries of self-imposed isolation, development, and enhances implementation and the Kingdom of Bhutan emerged into the 20th operationalization of the existing legislation in all century with an extensive forest cover and a spheres of government, down to the local level. The largely intact natural resource base. Aware of the Strategy is intended to guide implementation of problems that uncontrolled economic progress the relevant policy and legislation in an integrated can cause, the Royal Government of Bhutan and strategic fashion, through articulating a set has chosen the “middle path” of sustainable of Strategic Objectives. This introduction sets development, in order to raise the living out the Vision and Mission for the New National standards of the present population without Environment Strategy, and provides a short compromising the country’s cultural integrity, introduction summarizing the developments in historical heritage or the quality of life for Bhutan and globally since the time of the 1998 future generations. Sustainable development is Strategy, and presenting the context, rational particularly important for a country like Bhutan, and mandate for the new National Environment with its fragile mountain ecosystems, susceptible Strategy. Chapter 1, which follows, sets out the to the impacts of a changing climate, and high overarching policy framework and international level of biodiversity. commitments in more detail. Since the first NES, the milieu for environmental Vision conservation in Bhutan has evolved significantly. The vision of this New Environment Strategy Environment is increasingly seen and is, “A healthy and sustainable environment for approached as an issue that cuts across a wide present and future generations in pursuit of range of development sectors. Concomitantly, Gross National Happiness”, in line with the vision the institutional purview of environmental of the National Environment Commission, and management has expanded beyond the Bhutan 2020: A Vision for Peace, Prosperity and traditional domains of a few agencies. Many Happiness. new policies and legislations have come into being during this period to address emerging Mission environmental issues, including those relating To conserve and protect environment through to changing consumption patterns and waste, the National Environment Commission as an and the impact of climate change in intensifying independent apex body on all matters relating to natural disasters. environment to regulate environmental impacts and promote sustainable environment.

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Through Royal decree and guidance, the also localized the 2030 Agenda for Sustainable political system has changed from absolute Development and is advancing progress on the monarchy to constitutional monarchy in 2008, Sustainable Development Goals (SDGs) as part ushering in democratic governance. The central of its pursuit of Gross National Happiness. government is run by a cabinet of ministers chosen from elected parliamentarians and the As shown in the 12th Five Year Plan, 2018-2023, local governments are run by community leaders Bhutan has managed to bring down incidence elected by the local constituencies. of both income and multi-dimensional poverty as a result of broad-based and targeted poverty The population has grown at 3.1 percent per reduction programmes and policies implemented annum in the 1990s, slowing to 1.8 percent per over successive plans. The national poverty rate annum in the recent years1. The demographic has been reduced from 23.2% in 2007 to 8.2% landscape has changed significantly as a result in 2017. In the same period, rural poverty was of migration from rural to urban areas and from brought down to 11.9% from 30.9 %, and the eastern to western region. Urbanization is taking proportion of urban poor was reduced from 2% place at a rapid pace – Bhutan’s urban population to 0.7%. Incidence of subsistence poverty or increased from 30.9% to 37.8 % of the population extreme poverty stood at just 1.5% in 20173. between 2005 and 20172. Thimphu, the capital These achievements mean that Bhutan has city and the largest urban centre, is home to nearly ended extreme poverty within the living nearly half of the country’s urban population and memory of a generation. is experiencing new challenges associated with rapid growth in vehicular traffic and consumption Despite multiple development challenges, of packaged products. Bhutan has made steady progress in graduating from Least Developed Country (LDC) status, Over the recent years, Bhutan has become an already meeting two of the three criteria (GNI increasingly active partner in international and per capita and the Human Asset Index) and is due regional efforts of environmentally sustainable to graduate in 2023. The Economic Vulnerability development. It is a party to all the United Index (EVI) reflects ongoing challenges around Nations Conventions that emanated at the dependence on a single dominant export, in United Nations Conference on Environment the form of hydropower, and slow progress in and Development (UNCED) 1992, namely diversifying the economy and broadening the tax the Convention on Biological Diversity (CBD), revenue base, making the country vulnerable to United Nations Framework Convention economic shocks. Pressures for industrial growth on Climate Change (UNFCCC), and United to sustain development gains and meet the needs Nations Convention to Combat Desertification of a growing urban population have increased (UNCCD). In addition, it is a party to many substantially over the past two decades, with other international environmental treaties associated challenges of air and water pollution, and constituent instruments (see below). This land degradation, and waste generation, and a includes the 10-Year Framework of Programmes need for stringent development controls. on Sustainable Consumption and Production, whose inter-governmental board is composed Rapid demographic changes and urbanization of 10 countries including Bhutan. Bhutan has are placing both direct and indirect pressures

1Population and Housing Census Bureau, 2017 2PHCB, 2017

14 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 on natural resources. Large tracts of forest In the new millennium, the concept of areas are either lost to fires or cleared in sustainable development has been increasingly pursuing socio-economic development through absorbed by the GNH architecture, which roads, infrastructures, mining and quarrying. has been elaborated further and embedded Developmental activities not only lead to loss in institutions and administrative bodies of forest areas, but they also trigger habitat throughout Bhutan (see “Conceptual design and fragmentation and degradation, impacting goals” and “Implementation process”). In parallel, negatively on biodiversity and often aggravating the NES has continued to guide economic human-wildlife conflicts. Bhutan is part of the activity that has an environmental impact. While Eastern Himalayan region—an area where the Bhutan is recognised as a leader in sustainable impacts of climate change are often more severe development and environmental stewardship, than anywhere else in the world. The region’s management of co-benefits and trade-offs, along glaciers have been melting at alarming rates and with balancing of conservation and development, experiencing increasingly intense rainstorms continues to be a challenge. that activate damaging floods and landslides.

312th Five Year Plan, 2018-2023

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Chapter 1: OVERARCHING POLICY FRAMEWORK

The overarching framework for this New Bhutan 2020: A Vision for Peace, National Environmental Strategy is provided Prosperity and Happiness by a number of key national policies, as well as Published in 1999, Bhutan 2020: A Vision for global commitments in terms of Multilateral Peace, Prosperity and Happiness confirmed Environmental Agreements. The key overarching Gross National Happiness as Bhutan’s central documents are outlined in this chapter, with development concept and clarified its goals as specific policies, laws and regulations discussed follows: “Gross National Happiness does not in the chapters which follow. regard economic growth as being unimportant. On the contrary, it is an important means for The Constitution of the Kingdom of achieving higher ends. The challenge is one Bhutan, 2008 of finding the balance between material and The Constitution requires the Government non-material dimensions of development”. to secure ecologically balanced sustainable The document translates this vision into five development, while promoting justifiable objectives: human development; culture and economic and social development, and ensure heritage; balanced and equitable development; a safe and healthy environment. Article 5 of the governance; and environmental conservation. Constitution defines the government’s duty to Targets defined for each of these five objectives maintain a minimum of 60% of forest cover for have been decisive in the development of all time. Article 5 also vests the government, the subsequent five-year plans, including12 th the parliament, and every Bhutanese citizen with Five Year Plan, 2018-2023. the right and responsibility for environmental conservation and stipulates several provisions The 2020 Vision for Our Environment reads as to ensure that development does not take place follows: “In 2020, 60 percent of our nation will at the cost of the natural environment, which still be forested and we will be unique among includes: the community of nations for the proportion • Every Bhutanese is a trustee of the Kingdom’s of our territory that we have freely chosen natural resources and environment for to set aside and designate as national parks, the benefit of the present and future nature reserves and other protected areas. Our generations and it is the fundamental duty of approach to environmental conservation will not every citizen to contribute to the protection be a static one. It will be given a dynamic and of the natural environment, conservation of development-oriented interpretation in which the rich biodiversity and prevention of all natural resources are not only seen as something forms of ecological degradation, through to be preserved but also as a development asset the adoption and support of environment that can, with care and wisdom, contribute to friendly practices and policies. the process of sustainable social and economic • The Royal Government shall: protect, development. This interpretation will have conserve and improve the pristine been given to our rich biodiversity that, two environment and safeguard the biodiversity decades hence, will have provided the basis of the country; prevent pollution and for new economic activities that will not only ecological degradation; secure ecologically provide an important source of export revenues balanced sustainable development; and and high quality employment but also place ensure a safe and healthy environment. our nation in the vanguard of technological advances for the benefit of humankind. This

18 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 interpretation will have been accompanied environmental conservation and sustainability by the full institutionalization of capacities to cannot be achieved in isolation. Recognizing undertake systematic and detailed assessments this inter-linkage, the Royal Government of of the environmental and social impacts of Bhutan has increasingly come to approach development projects. Such assessments will environmental conservation as a cross- have become a routine and indispensable part of cutting development theme with stress on decision-making on development, not only at the mainstreaming environmental issues in various national but at the Dzongkhag and Gewog levels development plans and programs at central, also. Two decades from now, yak herders will still sectoral and local levels. Policies are subject to a form part of our population. We will take pride systematic review with regard to their impact on in such occupations, representing as they do a all sustainability issues and on human well-being. tangible example of the unique relationships that have evolved between people and nature in our In measuring progress towards Gross National Himalayan Kingdom as well as of the wisdom Happiness, a GNH index is used, comprising nine accumulated over centuries concerning the domains as shown in the diagram which follows. sustainability of human activities in a fragile and These domains are further underpinned by 38 often inhospitable environment”. sub-indices, 33 indicators and 124 variables, which form the basis of the GNH social survey. Gross National Happiness Anchored by far-sighted leadership and stable The Middle Path – National Environmental political order, the country has pursued a Strategy for Bhutan, 1998 development path that is based on the Bhutanese Published in 1998 under the title The “ Middle belief and premise that true development takes Path – National Environmental Strategy for Bhutan”, place when social, economic, spiritual and the original NES placed Bhutan’s development environmental well-being occur side by side to concept expressly in the context of sustainable complement and reinforce each other. “Gross development. The Middle Path document National Happiness” (GNH) is the term that has articulated the Bhutanese context and concept come to manifest this distinctive development of sustainable development and identified three philosophy, following His Majesty the Fourth main economic avenues for such development: King’s famous statement of wisdom “Gross • hydropower development based on National Happiness is more important than integrated watershed management; Gross Domestic Product”, first articulated in the • agricultural development based on 1970s. sustainable land management practices; • and industrial development based on Initially anchoring the Bhutan 2020 Vision, the effective pollution control measures and concept of Gross National Happiness was further environmental legislation. developed, and is now based on the following four pillars: The Middle Path also examined a number of areas • Equitable socio-economic development of special importance for environmentally and • Conservation of the environment culturally responsive economic development. • Preservation and promotion of culture These focus areas included tourism, roads, • Promotion of good governance financing mechanisms for sustainable development, public health, urbanization, gender The GNH development objective of and natural resource management, environmental

19 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 impact assessments, and population. Finally, it National Environment Protection Act, outlined five key cross-sectoral needs that the 2007 country must effectively address to integrate It establishes the role of the National Environment environmental considerations into economic Commission (NEC) and other competent development planning and policymaking. These authorities, including those at the Dzongkhag needs pertained to information systems and level, as well as the Environmental Tribunal. As research, institutional development and popular a cross-ministerial independent decision-making participation, policies and legislation, training body, the NEC has a mandate to monitor ambient and education, and monitoring, evaluation and air and water quality and land use changes, enforcement. with procedures for environmental inspections, verification, enforcement, and penalties, must

The nine domains of Gross National Happiness

Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

- Family vitality - Education Community - Safety Education attainment - Reciprocity trust Vitality - Dzongkha language - Social support - Folk & historical - Socialization literacy HAPPINESS - Kindship density

- Dialect use - Traditional sport - Income - Community Festival - Housing - Artisan Skill - Food security -Value transmission - Hardship - Basic percept Living Culture - Governance Standards performance - Ecological degradation - Freedom - Ecological knowledge - Institutional Trust - Afforestation

Environmental Governance Diversity

20 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 operate an environmental information system Economic Development Policy, 2016 and produce a regular status report on the The Economic Development Policy, 2016 is clear in environmental conditions in the country. its intent to ensure the growth and development of a green and sustainable economy. The vision Principles in the NEPA include the fundamental of the policy is “A green and self-reliant economy right to a safe and healthy environment, sustained by a knowledge-based society guided intergenerational justice, the precautionary by the philosophy of GNH”. principle, a “Principle of 3Rs” (minimizing impact and reducing, reusing and recycling materials), the The strategies outlined in the policy are informed “polluter pays” principle, freedom of information by the need for environmental sustainability, and and access to justice for any individual whose include imperatives to: right to a safe and healthy environment has been • Diversify the economic base with minimal affected or is likely to be affected. An array of ecological footprint; financial instruments is foreseen by the NEPA, • Harness and add value to natural resources including fiscal incentives for environmental in a sustainable manner; protection and compliance, tax incentives, • Promote Bhutan as an organic brand; and reductions in customs and other duties for the • Reduce dependency on fossil fuel. importation of environmentally friendly and energy-efficient technologies; charging levies Five Year Planning cycle and fees for utilization of natural resources; and Since 1961, Bhutan has followed a five-year mechanisms for valuation of and compensation planning cycle that articulates the socio-economic for natural resources. development priorities and programmes to

National Key Result Areas in the 12th Five Year Plan 2018-2023

21 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 be implemented over that period. Early plans ensuring synergy between these agendas. The focused on development of basic infrastructure 17 National Key Result Areas in the Plan find aimed at reducing Bhutan’s physical isolation close alignment with the SDGs, and assessments and building transportation links and improving have revealed a high level of integration of the internal communications. With each successive SDGs with Bhutan’s national plans. Plan, the level of investment has increased. Along with it the development priorities have also In 2009, Bhutan made a voluntary commitment evolved from building up basic infrastructure to to remain carbon neutral, building on the investment in services, achieving economic self- constitutional imperative to retain 60% forest reliance and has been accompanied by greater cover in perpetuity, at the 15th Conference decentralization of powers and authorities. of Parties to the United Nations Framework Convention on Climate Change (UNFCCC);

The 12th Five Year Plan, 2018-2023 has and the commitment was reiterated in our first identified 17 National Key Result AreasNationally for Determined Contribution (NDC), 2015 development (shown above), emphasizingtowards the Paris Agreement. In addition to this building economic resilience and productivehigh-profile commitment, which has drawn the capacity, and addressing last mile challengesattention to of the world, Bhutan is a party to all the reduce poverty and inequality. At the same majortime, multilateral environmental agreements, environmental sustainability is an importantincluding the following: theme running throughout the Plan, including• UN Convention on Biological Diversity (CBD), several environmental indicators, discussed in August 1995 Chapters 2, 3, 4 and 5, and again in the• UNSection Framework Convention on Climate on Conclusions and Monitoring Progress. Change (UNFCCC), August 1995 • Convention for International Trade in International commitments Endangered Species (CITES), August 2002 Bhutan is committed to localizing and • Vienna Convention for the Protection of the implementing the 2030 Agenda for Sustainable Ozone Layer, April 2004 Development, developed through the United • UN Convention to Combat Desertification Nations, with its Sustainable Development (UNCCD), August 2003 Goals (SDGs) taking forward a universal agenda • International Plant Protection Convention, of sustainable development over the period June 1994 2015 to 2030. The SDGs resonate strongly with • UN Convention on the Law of Sea, December the concept and principles of Gross National 1982 Happiness and reinforce the objective of • RAMSAR Convention on Wetlands, January 2012 environmentally sustainable development. • South Asian Wildlife Enforcement Network (SAWEN), January 2010 The Royal Government of Bhutan has prioritized three of the SDGs which can act as accelerators In addition, the Royal Government of Bhutan for implementation of the entire agenda – these has engaged in the 10-Year Framework of are SDG 1 on Eradicating Poverty, SDG 13 on Programmes on Sustainable Consumption and Climate Action, and SDG 15 on Life on Land. The Production, of which implementation is the first Twelfth Five Year Plan, 2018 – 2030 was seen as target of SDG12, as one of the ten members of an opportunity to address national development its inter-governmental board, representing the goals within the framework of the 2030 Agenda, whole Asian region, together with Japan.

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Several government agencies are responsible for ensuring that Bhutan meets these international obligations, with some of the key ones shown in the table elow:b

Lead Multilateral Environment Agreements Agency

UNFCCC UNCBD UNCCD Ramsar Vienna Nagoya Basel Male’

NEC + + + + +

MoAF + +

NBC +

NSC +

MFA +

MoF +

MoLHR +

Cross-cutting principles consumption and production, focusing on, A number of cross-cutting principles inform Agriculture, Food, Construction, Tourism and Bhutan’s architecture of policies, laws and Public administration sectors. This builds on regulations, and are discussed in relation to the principle of sustainable production and particular strategic objectives in Chapters 2 consumption set out in the Consumer Protection (Land), 3 (Air), 4 (Water) and 5 (Life). These cross- Act of Bhutan, 2012 to minimize environmental cutting principles include the following: impacts (see Strategic Objectives 5, 6, 7, 8, 14 and 22). This allows for economic development Cultural valuation and integration that follows a resource-efficient approach and In accordance with Gross National Happiness encourages a circular economy (see Chapter 2). architecture, policies, and priorities, Bhutan continues to place a strong emphasis on Low carbon development maintaining tangible and intangible elements of Bhutan’s policies for maintaining forest cover living cultural heritage alongside environmental have enabled the country to become carbon management strategies. This approach works negative (see Chapter 3) and are accompanied to fully value and integrate diverse cultural by a strategy for reducing greenhouse gas perspectives to make implemented policies and emissions from the construction, transport and best practices/solutions/tools of development industrial sectors. The approach of low-carbon culturally relevant to local communities. development set out in the National Strategy and Action Plan for Low Carbon Development, Sustainable consumption and production 2012, which outlines options to manage Bhutan is working with international partners emissions from energy-intensive industries, crop to develop a national action plan on sustainable production, livestock raising, municipal solid

23 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 waste, road transport, and residential sectors, including in implementation of environmental and is gradually becoming entrenched across the policies and programs. policy sphere. Poverty and environment mainstreaming Gender-responsive development With support from international partners, Accompanying rapid economic development, efforts have been made to address poverty Bhutan has greatly reduced gaps in gender reduction in environmental programs, and to equality. The Draft Gender Equality Policy, 2017 bring environmental sustainability into social envisions a society where substantive equality protection, job creation and other programs is practiced providing equal opportunities for aimed at addressing poverty and inequality. women and men to achieve their full potential This approach of programs mainstreaming and benefit equitably from the social, economic poverty and environment is being integrated and political development in the country. The into government’s planning and budgeting approach of gender-responsive development procedures, which translates to more green works to address gender equality and women’s economy initiatives that promote sustainable empowerment all spheres of development, development.

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Chapter 2: LAND

Bhutan is a landlocked country of 38,394 Challenges related to land use km2 in the Eastern Himalayas, between Chi- Bhutan is a small country, with much of the na to the north and India to the south, east terrain mountainous and unsuitable for devel- and west. Bhutan’s stark variation in altitude, opment. The topographical conditions mean ranging from 100 metres above sea level to that 31% of agricultural land is located on steep more than 7,000 metres, provides the country slopes of 50% or more. There is competing pres- with high micro-climatic variation, a range of sure on land available in river valleys and less agro-ecological systems, and a wealth of biodi- steep slopes from expanding infrastructure, versity. Though agriculture remains the sector urban development and agriculture. By 2018, employing the highest percentage of popula- forest cover accounted for 71% of Bhutan’s to- tion of the country (56.76%)1, hydropower and tal surface area3 – well over the Constitutional tourism are the major revenue earners of the requirement of a minimum of 60% forest cover. country. All of these sectors rely heavily on Currently under 3% of the total land area is uti- the natural resource base and on sustainable lized for agriculture4, with pressure to increase utilization of land. While Bhutan is committed this, since agriculture supports the food security to upholding the Constitutional requirement and livelihoods of around 57%5 of Bhutan’s pop- to keep a minimum of 60% of total land area ulation, and generates around 17.4% of GDP6. under forest cover for all times, we must also make optimal use of land for socio-economic With the fertility rate now at 1.7%, Bhutan’s pop- development purposes to maximize Gross Na- ulation of 735,5537 is growing much more slowly tional Happiness. than in the past, but the current population size, with advancing economic development, places The environment in Bhutan is one of the most pressure for conversion of both forests and ara- pristine in Asia – with clean air, water and pri- ble land. The country’s Gross Domestic Product meval forest. However, with increasing rural to per capita has been steadily increasing over the urban migration, growing population density in past two decades8, with graduation to the status the towns and cities, rapid increases in imports of a middle-income country due in 2023. Rural of cars, and rising demand for fuel wood, roads communities are seeing a trend of conversion of and building construction, the future may see irrigated wetland (Chuzhing) to dryland (Kamzh- many negative effects on environmental assets. ing) agriculture, in some cases as a result of lack Bhutan is also highly vulnerable to the impacts of irrigation water, and in other cases due to re- of climate change, with prolonged dry winters strictions on long term investment in wetland9, already resulting in localized water shortag- contributing to growing rice imports10. Other es and exacerbated incidents of forest fires2, fertile land is under pressure from infrastructure unprecedented rainfall causing landslides and development, including farm roads, electricity flash floods, glacial melting and resultant glacial transmission/distribution lines, mines and quar- lake outburst floods (GLOF), and the potential ries, industries and urbanization11. outbreak of new pests and diseases. All of these challenges call for an integrated approach to Between 2009 and 2015, a total of 2,739 ha of land use planning and sustainable land manage- state land was leased out for agricultural, mining ment that strives to meet multiple socio-eco- and industrial projects involving entrepreneurs nomic and environmental goals, within the and corporates12. This trend has continued, ne- framework of the Constitution and guided by cessitating more systematic planning for alloca- the four pillars of Gross National Happiness. tion of limited land resources. With increasing This section explores a series of land-related development pressure there is also a need to challenges, to which the National Environment ensure that the social and environmental im- Strategy responds. pacts of planned developments are taken into

28 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 consideration, and negative impacts avoided or Challenges related to land degradation mitigated. Encroachment on state land through Because of its rugged topography and altitude, illegal conversion of forest to farmland, transfer Bhutan has limited resources of productive land. of plots and development of settlements poses Areas of accessible, arable land with fertile soils a challenge13, along with the absence of a clear are a precious resource for national food securi- definition of encroachment or complete invento- ty, and rural communities’ economic prosperity ry of state land. and well-being. In recent decades, various types of land degradation have increased, as popu- Challenges related to disaster impacts lation increases and development proceeds. Bhutan’s location near the heart of the Himalayas Surveys show that water-induced degradation means that its ecosystems are fragile, vulnerable – specifically gullies, landslides, ravine forma- to earthquakes, and to erosion along the steep tion and local flooding – is most prominent and mountain slopes descending rapidly into narrow devastating, and is being worsened by changing river valleys14. These natural vulnerabilities are rainfall patterns. In-situ chemical degradation worsened in the context of climate change, with includes depletion of soil organic matter and IPCC projections anticipating that Bhutan will nutrient mining, or soil contamination through experience an annual increase of rainfall by up over-application of chemical fertilizers and pes- to 500mm to 600mm, as well as a temperature ticides. In-situ physical degradation, such as top- increase of up to 3.5OC by 206515. While data are soil capping and subsoil compaction, is also sig- limited, an increase in the frequency and mag- nificant. Other challenges include the absence of nitude of extreme weather events has already a comprehensive national soil map with informa- been observed in recent years. Flash floods and tion on crop suitability and potential, resulting in landslides triggered by heavy rains, exacerbated non-optimal utilization of land. incidents of forest fire due to prolonged spells of dry weather, and hailstorms and windstorms, In many parts of the country with dryland farm- have become more frequent and devastating, ing on steep mountain slopes, topsoil erosion is taking a huge toll on the economy as well as en- resulting in declining soil productivity, affecting vironmental resources16. crop growth and yield. Direct factors causing degradation include overgrazing, unsustainable Glacial lake outburst floods (GLOFs) are an in- agricultural practices and poor irrigation system creasing risk as glaciers melt, and localized chang- management, forest fires, excessive forest use, es in rainfall patterns are increasing droughts in industrial activities, urbanization and infrastruc- some areas during the dry season. Bhutan saw a ture development (especially road construction), number of significant water-induced disasters in unsustainable mining, and poor management of the last 25 years. Six major events stand out: the solid waste. Indirect factors relate to population 1994 Lugye glacial lake outburst flood, the 2000 growth and structure, poverty, climate change, monsoon floods in Phuentsholing, the 2004 east- and policy and institutional issues. Poverty17 and ern Bhutan monsoon floods, the 2009 floods in- land degradation are inextricably linked – poorer duced by Cyclone Aila, the 2015 Lemthang Lake communities are directly dependent on a wide outburst flood, and the 2016 southern Bhutan range of ecosystem services for their livelihoods, monsoon floods. For a least developed country and usually bear the brunt of land degradation. like Bhutan with a small economy, population and land area, disasters of such proportion are Challenges related to infrastructure very severe in terms of their direct and immedi- Bhutan’s road network includes 18,395km of ate impacts, as well as the potential negation of highways, feeder and farm roads, complement- development progress accrued over many years. ed by protection walls, bridges, tunnels, trails and border infrastructure, means that 92% of

29 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 households now live within 30 minutes’ walking distance from the nearest road head18. For most rural communities, a single road or bridge provides a lifeline to markets and social services, but one which is vulnerable to damage. Road networks and other public infrastructure such as irrigation channels, drainage systems, power lines, hydroelectric facilities and government services are highly vulnerable to damage by earthquake, and by flash floods and landslides. Every year during monsoon season, landslides forces multiple road closures on east west highways and north south highways disrupting communications, travel and trade, and causing substantial economic loss. In the past 15 years, such disasters have increased in frequency and impact19, with increased rainfall, unpredictable timing and more intense extreme events, re- © Karma Tshering, NEC quiring huge expense for restoration works.

Road construction using heavy machinery and high-yielding crop varieties and livestock breed- cutting of steep slopes is environmentally chal- ing, and apply both traditional knowledge and lenging, considering the topography and fragile modern techniques to improve production. At geological conditions. Farm roads built at mini- the same time, unsustainable farming practices mal cost are often poorly engineered with little are continued in pockets, including imbalanced or no maintenance, and lack basic structures and prolonged use of inorganic fertilizers, paddy such as proper drainage and breast/retaining farming on steep terrain without adequate soil walls. This frequently causes land degradation and water conservation, burning of crop resi- around and below the road, and visual scarring dues, failure to use cover crops, and tseri shifting of the landscape. Unplanned construction of cultivation without a long enough fallow cycle farm roads can also have a negative impact on for soil replenishment. Construction of earthen cultural and spiritual landscapes in some places, irrigation canals in places where the soil is highly for example, where roads accidentally intersect erodible, and poor maintenance of irrigation sys- historically important ritual sites. tems, as well as poor construction of farm roads, can cause erosion and downward movement of slopes. Large herds of livestock are important for Challenges related to agricultural land social standing, but can lead to overgrazing and Bhutan’s improving agricultural productivity in degradation, especially where extensive grazing recent decades has contributed significantly to is practised, allowing livestock into the forest. achieving the goal of food self-sufficiency at household and gewog level, and also at nation- Other sustainability challenges include land al level20. In some areas this has been achieved fragmentation, and shortage of suitable through modernizing agriculture, intensifying agricultural land. Some arable land has been production and expanding commercial produc- lost to urbanization, with other areas suffering tion, for example, egg. In other areas, subsis- from land degradation and low soil fertility. In tence and small-scale farmers21 have received many areas there is an increase in the area of government support on irrigation systems, land left fallow and unproductive, and also the

30 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 area converted from wetland rice production human health and local livelihoods such as to dryland agriculture22. Contributing causes agricultural production. There is frequently poor include a shortage of labour and a lack of implementation of existing policies and laws sufficient irrigation, sometimes as result of to address these issues, e.g. lack of spraying drying up of water sources. This is worsened to suppress dust, no restoration of vegetation by climate change impacts on rainfall patterns after closure, and dumping of valuable topsoil. – the late arrival of monsoons can lead to Stringent laws, strategies and regulations are in drought and crop failure in some districts, place for mitigation during planning, operation while intense concentrated rainfall can destroy and post-operation phases. However, these crops and erode farmlands elsewhere. Other tools have not been effectively enforced due to challenges include destruction of crops by wild lack of inter-agency coordination, ambiguous animals, outbreaks of pests and disease, and the institutional mechanisms for enforcement, widespread shortage of farm labour23, as many and inadequate technical capacity within the men seek work in towns and cities. mining companies, and even within government, in terms of capacity to monitor and provide Challenges related to mining technical guidance. Minerals are an important component of the natural resource endowment of the Kingdom of Challenges related to urban growth Bhutan, and were highlighted as a key area for Urbanization in Bhutan has taken place at a rapid sustainable growth in the 1998 document, The pace in recent decades, with both seasonal and Middle Path. At the same time, the exploitation of long-term migration from rural to urban areas, this resource has to be managed to enable human and from eastern to western regions. In 2002 well-being, protection of the environment, and it was estimated that the urban population preservation of the Kingdom’s precious religious comprised only 15% of the total population. and cultural heritage. Bhutan’s mining and By 2017, this number had increased to 37.8%, minerals industry has experienced steady growth with more than half of the urban population in recent years 24. Between 2004 and 2016, there concentrated in Thimphu and Phuentsholing26. were 65 quarries and 37 mines in operation In addition to the four major urban centres, or nationally, covering an area of 812 hectares and Class A Thromdes, a wide number of Dzongkhag 1,255 hectares respectively 25 – with mostly open Thromdes and Yenlag Thromdes (satellite towns) cast operations producing limestone, coal, iron have been demarcated and approved. Often, ore, graphite, talc, gypsum, quartzite, granite, towns have expanded before thorough urban marble, slate and dolomite. planning could take place, leading to inadequate infrastructure, land speculation, unplanned Uncontrolled stone quarries and surface and illegal development, land degradation and collection of stones, boulders and sand in some pressure on surrounding forests, and exposure areas is causing landslides, erosion of hillsides to disaster risks. and riverbanks, and air pollution through dust. Even legal open cast mining causes With rural-urban migration has come a break- irreversible changes to the natural landscape, down in the social safety net that traditionally with serious impacts on local communities and ensured a communally constructed home for the ecosystems on which they depend. Impacts all. Most urban centres and in the larger towns, include, land disturbance and fissure from lack of proper infrastructure, shortage of afford- drilling, blasting, excavation and site clearance, able housing, high rental costs and poor facilities destruction of natural vegetation, sedimentation for drainage, sanitation and waste disposal and and contamination of waters, noise pollution, drinking water are major concern. Dense urban and air pollution – with dust particles affecting living also creates environmental challenges such

31 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 as air and water pollution, congestion of traf- waste is an emerging issue and health workers fic and buildings, noise pollution from vehicles, are promoting simple pits for the proper disposal construction work and commercial activities. of waste. Waste collection systems have been Despite some investment in urban parks many established in most urban centres, but landfills urban communities lack safe, well-lit footpaths, are poorly managed, and wastewater systems and clean green spaces for social engagement, are inadequate, with many leaking septic tanks. recreation and sports. Although positive urban With rapid growth in consumption of imported, planning policies and regulations are in place, non-biodegradable goods, there is an increasing there are inadequate human and financial re- litter and dumping problem, something unknown sources in place for monitoring and enforcement in traditional Bhutanese society. Policies are in mechanisms, and lack of public awareness and place to promote recycling, but there are few support. proper waste segregation systems at source, and no treatment of greywater for reuse. Apart Challenges related to waste from Pasakha, industrial areas lack dedicated Waste management is a growing challenge industrial waste sites. There are still no regular for Bhutan, as in most developing economies, and widespread measures in place to monitor and threatening to have negative impacts on water, control pollutant emission and effluent leaching, air and soil quality, as well as quality of life. leading to contamination of land and water, and Increased population growth, economic activities aesthetic dilapidation of the landscape. Medical and urbanization with changing consumption waste and electronic or “e”-waste pose special patterns generates growing quantities of solid challenges, due to lack of capacity, facilities and waste, as well as liquid effluent and air pollution. resources. The total quantity of solid waste generated from across the whole country was estimated at about Based on existing policy, legislation, rules and 861.36 tons per week in 201827. Despite several regulations and guidelines, Bhutan’s National policy advances, there is a lack of coordinated Environment Strategy has the following land- planning across institutions for integrated waste related Strategic Objectives: management, and a shortage of human and • Strategic Objective 1: Plan for balanced land use financial resources to implement and enforce • Strategic Objective 2: Enhance disaster legislation. preparedness and response • Strategic Objective 3: Combat land Until recently, there has also been chronic degradation under-resourcing of infrastructure for waste • Strategic Objective 4: Promote management. This includes rural areas, where environmentally friendly roads and infrastructure • Strategic Objective 5: Make agriculture sustainable and climate-resilient • Strategic Objective 6: Manage mineral extraction wisely • Strategic Objective 7: Ensure green, sustainable settlements • Strategic Objective 8: Manage waste responsibly.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 1: PLAN FOR BALANCED LAND USE

Document focus Competent authorities Establishes the National Land The Land Act of Bhutan Commission, and regulates ownership 2007 and use of land for socio- economic National Land Commission; development and environmental well- Ministry of Economic Affairs; being Ministry of Agriculture and Forests; Ministry of Works and Sets rules and regulations for the Land Lease Rules and Human Settlements, Thromde leasing of State Reserve Forest Land Regulations, 2018 Administrations for mining, hydropower, commercial agriculture etc. National Land Use Zoning exercise will enable Zoning Implementation establishment of a harmonized national Guidelines 2018 land use and governance system National Land Commission, Gross National Happiness National Geo- Institutes institutional and legal Commission Information Policy, framework for reliable geo-information, 2018 accessibility and sharing mechanisms Guideline for Establishment of industrial parks Department of Industry, development of and estates for cluster of industries, Ministry of Economic Affairs industrial land maximizing land use

Lease out state land strategically Strengthen environmental impact assessment With growing pressure on scarce land resources Bhutan introduced Environmental Impact As- and the need to guide economic development to sessment (EIA) into the decision-making process avoid any harmful effect of people’s well-being for land use change and new development in the and happiness, Bhutan is placing concerted ef- 2000s, through the Environment Assessment Act, forts on improving the system both for leasing 2000, and Regulation for Environmental Clearance out state land. This includes issuing Land Use of Projects, 2016. Under this legislation, project Certificates (LUC) to allocate State land to un- developers are mandated to conduct an Environ- employed youth to create job opportunities in mental Assessment, often broadened nowadays farming and agri-processing. Great emphasis is to a socio-economic and environmental assess- placed on forward planning to enhance prudent ment, and sometimes a wider Strategic Environ- utilization and sustainable management, limited mental Assessment (SEA) in terms of the Strate- land resources, and valuable cultural landscapes. gic Environmental Assessment Regulation, 2002. Bhutan’s Land Lease Rules and Regulations, 2018 Where necessary, an Environmental and Social guide the leasing of State Reserve Forest Land at Management Framework (ESMF) is put in place Dzongkhag and Thromde levels, for mining, com- to guide development so that risks of negative mercial agriculture, business activities, tsamdro impacts are mitigated. Action for stricter adher- (pastureland), sokshing (tree groves reserved for ence to the legislation will enable the application collection of leaves), and civil society organiza- of the mitigation hierarchy, in which negative tions. social and environmental effects are avoided if

33 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 possible, mitigated where unavoidable, and reha- Corridors, Agriculture Land, Industrial Areas, Hu- bilitation measures put in place. man Settlements and Heritage Sites will be revali- dated and delineated. Establish land use and governance system Bhutan has issued National Land Use Zoning Im- Ensure optimum utilization of arable land plementation Guidelines, 2018 to enable estab- One goal of the new national land use and gov- lishment of a harmonized national land use and ernance system is to ensure optimal utilization of governance system for integrated socio-econom- land, based on analysis of needs and suitability. ic development. The guidelines acknowledge the Given the small percentage of the country that urgent need to assess the present and future has accessible, arable land with fertile soils, and needs of land by evaluating its capability to meet the Constitutional imperative to maintain 60% the competing demand for its uses, striving to forest cover, it is vital to ensure that all land suit- bring about the desired socio-economic and enable for agriculture is intensively and sustainably vironmental well-being of our citizenry, as well as utilized for that purpose. Systematic land gov- preserving our cultural landscapes. This includes ernance, combined with support to farmers on planning for equity in service delivery and eco- improved inputs, will enable sustainable inten- nomic development across rural and urban areas sification of agriculture on already transformed to slow the rate or urbanization. Actions include a land, allowing for intensive and multiple use National Land Use Zoning exercise that will foster where appropriate, and preventing land from coordination among implementing agencies and lying fallow (except where practised deliberate- consolidate stakeholder collaboration, providing ly to restore productivity). Action to undertake a scientific basis for good land governance and land reclamation can also be practised where ap- an agreed spatial vision of the country’s overall propriate, bearing in mind the need for resilience development. Existing National Parks, Biological against climate change impacts.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 2: ENHANCE DISASTER PREPAREDNESS AND RESPONSE

Document focus Competent authorities Disaster Management Strengthens institutions for Department of Disaster Act of Bhutan, 2013 mainstreaming risk reduction, and Management, Department of coordinated disaster management Local Governance, Ministry with community participation of Home and Cultural Affairs; Disaster Management Establishes coordination and National Centre for Hydrology Rules and Regulations, facilitation mechanisms for and Meteorology; Ministry 2014 international teams during response of Finance; National Disaster and relief operations Management Authority; National Disaster Risk Provides guidance on Disaster Risk Environment Commission; Management Strategy: Management, roles for agencies and National Land Commission; “Safe, Resilient and stakeholders and links to Climate Ministry of Economic Affairs Happy Bhutan”, 2017 Change Adaptation and sustainable development

Plan for disaster risk management ples, strategies and priorities to guide programs As a signatory to the UN Framework Convention for risk prevention and reduction, preparedness on Climate Change and the Sendai Framework and emergency response, and post-disaster refor Disaster Risk Reduction, Bhutan has put in covery and reconstruction measures. It is for- place a number of policies to manage disaster mulated with long term perspective, provides risk, even as it increases with climate change. guidance for the development of medium-term Bhutan’s Disaster Risk Management Strategy, disaster management plans at all levels of gov- 2017 is formulated in terms of the Disaster Man- ernment, and is well aligned with the four Priority agement Act of Bhutan, 2013 and is guided by the Actions of the Sendai Framework, 2015 – 2030. Five Year Planning process, providing the princi-

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Adapt to climate change impacts VHF, and planning logistics for emergency med- Building on Bhutan’s National Adaptation Pro- ical, food and water supplies. A five-year program of Action, 2006, (updated in 2012), the gram implemented by the Ministry of Home and country’s Nationally Determined Contribution, Cultural Affairs on “Enhancement of disaster 2015 through the UNFCCC outlines the coun- risk reduction and management” will strength- try’s plan for adapting to the anticipated impacts en disaster preparedness, response and recov- of climate change. This includes improvement of ery capacity. A key action involves establishing the hydrometeorological network and weath- Emergency Operation Centres at national and er and flood forecasting to adequate temporal dzongkhag levels, with trained Disaster Man- and spatial scales. It also aims to strengthen agement Committees and contingency plans in resilience to climate change-intensified hazards place. A network of well-equipped and trained through the following actions: i) improved moni- first responders and teams for search and rescue toring and detection of hydromet extremes using will be supported by emergency medical services remote sensing and satellite-based technologies; and protocols for public health management in ii) continual assessment of potentially dangerous time of disaster. glacial lakes and improvement of early warning systems for outburst flooding; iii) a monitoring, Issue early warnings to vulnerable assessment and warning system for flash floods communities and landslides; iv) forest fire and windstorm risk As part of Bhutan’s adaptation to anticipated assessment and management; v) Strengthen impacts of climate change, with increased in- the resilience of road, public infrastucture and tensity and frequency of disasters, a network human settlement from natural disaster vi) im- of real-time automated weather monitoring and proved emergency medical services and public forecasting stations is being established. This health management for disaster response; and will feed into a system for disseminating extreme vii) enhancing disaster preparedness and re- weather warnings, especially flash flood, gla- sponse at national and local levels. cial lake outburst flooding (GLOF) and landslide risks. Public awareness will be promoted, with Strengthen disaster preparedness and emergency preparedness plans for communities response likely to be affected, including evacuation where In terms of the Disaster Risk Management Strate- necessary. In addition, a five-year program is be- gy, 2017 the Royal Government of Bhutan is run- ing implemented through the National Centre ning a series of capacity building interventions for Hydrology and Meteorology on “Hydrology, with a range of government agencies, including cryosphere and water resources information and issuing warnings and evacuating communities, early warning services”, taking action to strength- conducting search and rescue operations, en- en institutional capacity including infrastructure suring emergency communications at dzongkhag for regular monitoring, risk assessment and early and gewog levels through satellite phone and warning system of natural disaster.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 3: COMBAT LAND DEGRADATION

Document focus Competent authorities National Action Aims to prevent and mitigate land Ministry of Agriculture and

Program (NAP) degradation and its impacts through Forests - National Soil Services to Combat Land Sustainable Land Management (SLM) Centre, Department of Degradation, 2014 to protect and maintain landscape’s Agriculture, Department of Forest economic, ecological and aesthetic & Park Services, Department of values Livestock; Ministry of Works and Bhutan - Land LDN National Voluntary Target and Human Settlements - Department Degradation Neutrality Strategy aims to operationalize the of Roads, Department of Human National Report, 2015 National Action Program (NAP) to Settlement; National Environment combat land degradation, focusing Commission; Dzongkhag and on five sites Gewog administrations; National Agriculture Land Aims to provide a uniform, focused Land Commission Secretariat; Development and standardized approach towards Ministry of Economic Affairs Guideline, 2017 agriculture land development - Department of Geology and to address issues that confront Mines, Department of Renewable sustainable agriculture production Energy, Department of Industry; such as land degradation, fallowing Ministry of Home and Cultural of land etc. Affairs - Department of Disaster Management

Because of the cross-cutting nature of both land tection Act 2007, Land Act of Bhutan 2007, and degradation and sustainable land management, Waste Prevention and Management Act 2009. a number of policies are relevant in Bhutan’s efforts to combat land degradation, in addition to Plan for Land Degradation Neutrality those listed in the table above. Relevant policies As a signatory to the United Nations Conven- include: the Agriculture Land Development Guide- tion to Combat Desertification (UNCCD) from lines 2017, Farm Road Guidelines 2013, National 2003, Bhutan is committed to the target of Land Forest Policy 2009, National Food and Nutrition Degradation Neutrality – a global commitment Security Policy 2014, National Environment Strat- to halt and reverse land degradation by 2030, egy 1998, Bhutan Water Policy 2007, National Ur- which means in practice that agricultural, forest banization Strategy 2008, and Bhutan Sustainable and wetlands need to be restored at least as fast Hydropower Development Policy 2008. Relevant as they are being degraded or lost. Following a laws include: the Forest and Nature Conservation 2010 version, Bhutan’s National Action Program Act 1995, Mines and Mineral Management Act (NAP) to Combat Land Degradation, 2014 was re- 1995, Environmental Assessment Act 2000, Road aligned with UNCCD’s 10-year Strategy (2008- Act of Bhutan 2014, National Environmental Pro- 2018). Bhutan’s Land Degradation Neutrality Na-

37 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 tional Report, 2015 sets specific numerical and plemented as a regular program of the National time-bound LDN Targets relating to Sustainable Soil Service Centre, with guidelines on best prac- Land Management (SLM) measures, and targets tices of SLM, farm roads and land development. on reforestation with both native and commer- International partnerships through the UNCCD cial species, promotion of wood substitute prod- are enabling pilot activities to be carried out ucts, improvement of pastures and livestock in five highly vulnerable and/or degraded agri- breeds, protection of wetlands and reclamation cultural and forest sites – establishing contour of severely degraded areas. Key actions include hedgerows and stone bunds, and stabilizing gul- mapping and monitoring of land degradation, lies through construction of check dams, planta- and digital mapping of soil organic carbon stocks. tion of bamboos and fast-growing pioneer native species such as Alnus nepalensis. Such activities Reduce land degradation are challenging, especially in remote areas and The National Action Program sets out a multifac- communities with labour shortages, but are vital eted strategy involving all the role-players listed to maintaining slope stability and productivity of above, in maximizing the availability of produc- land and forest resources. tive croplands, floodplains and forest resources. This is being achieved through: i) conservation, Restore degraded landscapes rehabilitation and sustainable use of forest re- Bhutan’s National Forest Policy, 2010 prioritiz- sources to maintain well-functioning landscapes es restoration and the reclamation of degraded and watersheds; ii) development and promotion lands with reforestation and watershed devel- of sustainable agricultural practices that en- opment programs, including through the estab- hance livelihoods whilst maintaining productivity lishment of plantations (timber and tree crops), and stability of agricultural lands; iii) integration enrichment planting, and support for communi- of environmental management measures in de- ty and private forestry. Eight new management velopment activities that pose significant risks plans have been prepared for degraded water- of land degradation; iv) strengthening of sys- sheds, and assessments were completed as- temic and institutional capacity to combat land sessment of 120 watersheds within sub-basins. degradation; and v) information, advocacy and Several plantation activities have been carried education to create increased policy and public out by the Department of Forests and Park Ser- support for sustainable land management. vices and Green Bhutan Project, involving reforestation with native tree species, including the Practice sustainable land management Himalayan Cypress, national tree of Bhutan, and A key element of sustainable land management other conifers, willows, poplars and oaks. Ac- (SLM) in Bhutan involves preventing erosion of tions are being undertaken to do bioengineering topsoil and loss of fertility on steeply sloping works to restore and stabilize slopes adjacent to land, through careful land development including highways that have been identified as vulnerable constructing terraces for crops. SLM is now im- to extreme events intensified by climate change.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 4: PROMOTE ENVIRONMENTALLY FRIENDLY ROADS AND INFRASTRUCTURE

Document focus Competent authorities Road Act of the Sets standards for road Department of Roads (DoR), Kingdom of Bhutan, construction and maintenance Department of Engineering 2013 Services (DES), Ministry of Road Rules and Updates standards and clearly Works and Human Settlement; Regulations of the defines roles and responsibilities Department of Geology and Mines, Kingdom of Bhutan, of the governmental bodies at Ministry of Economic Affairs; 2016 and road users in relation to road Dzongkhag, Thromde and Gewog network Administrations Disaster Risk Incudes revised building standards Department of Disaster Management Strategy: to reflect current and updated state Management, Department of Local 2017 of hazard and risk information, for Governance, Ministry of Home and roads, bridges and protection walls Cultural Affairs, National Disaster Management Authority

Climate-proof transport infrastructure time by not having to repair or rebuild repeated- Bhutan’s National Adaptation Program of Action, ly following the monsoon28. A database for road 2006 (updated in 2012) highlighted the impor- slope failure along PNH1 (Thimphu-Trashigang) tance of highway and road protection against and PNH4 (Gelephu-Trongsa) has been devel- hazards intensified by climate change – including oped and a key action is to update the existing conducting landslide assessments, establishing hazard zonation of the entire road network, early warning systems, and strengthening the through a Geo-Hazard Risk Assessment and Re- Geotechnical Unit in the Department of Roads. silient Asset Management plan. Bhutan’s Nationally Determined Contribution, 2015 through the UN Framework Convention Construct environmentally friendly roads on Climate Change (UNFCCC) commits the Over the past two decades, Bhutan has made country to climate proofing transport infrastruc- progress on environmentally friendly road con- ture against landslides and flash floods. More struction – planning the alignment of new roads resilient construction techniques are needed carefully to avoid areas of ecological sensitivity, for new roads and bridges, and when rebuilding as well as cultural heritage sites; and minimizing after damage, and existing infrastructure can the destabilization of slopes by: avoiding full cuts be reinforced in high risk areas. Although such wherever possible, using excavators rather than techniques increase the cost of road building, bulldozers and limiting blasting or using con- substantial savings may be made over a period of trolled blasting techniques, adding log or boul-

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scoping for any potential negative impact on cultural and spiritual landscapes or historically important ritual sites. Sufficient resources must be available for measures to avoid erosion during construction, and to undertake rehabilitation and bioengineering afterwards – to prevent erosion and landslides that could occur if heavy rains follow construction while slopes remain bare. In addition, Gewog and Dzongkhag administration budgeting must take into account the basic structures needed for a useable and beneficial

© Karma Tshering, NEC road following environment friendly techniques. An important action is conducting capacity de- der barriers to control excavated material rolling velopment on environmentally friendly and cli- downhill during construction, managing water mate smart construction with communities and flow carefully, stabilizing slopes with retaining Gewog officials. structures, and undertaking bio-engineering for revegetation with retained topsoil. In stretches of road that have been damaged by flash floods, erosion and landslides, repairs have been done using new techniques. Action is needed to enhance planning and budgeting for road construction to utilize these best practice techniques.

Plan farm roads better Farm roads are critical for connectivity, access to markets and delivery of services to rural communities. Government is working to ensure better compliance with the Farm Road Guidelines, 2013 carrying out proper surveys and needs assessments before construction begins, including © Karma C. Nyedrup, NEC

40 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020

Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 5: MAKE AGRICULTURE SUSTAINABLE AND CLIMATE-RESILIENT

Document focus Competent authorities Livestock Act of Bhutan, Regulates livestock breeding, health Department of Livestock, 2001 and production to enhance their Department of Agriculture, productivity and prevent diseases Ministry of Agriculture and Pesticide Act, 2000 Encourages organic agriculture and Forests integrated pest management with a centralized system that controls and limits the import, sale and use of pesticides National Adaptation Highlights vulnerability of Policy and Planning Division, Program of Action, 2006, agriculture to climate change and Ministry of Agriculture and updated in 2012 prioritizes rainwater harvesting and Forests weather forecasting Food and Nutrition Aims to enable a conducive Ministry of Agriculture and Security Policy, 2014 environment for a healthy Forests – Department of population through physical, Livestock, Department of economic and social access to safe Agriculture; Ministry of Health; and adequate nutritious food Department of Trade, Ministry of Economic Affairs National Irrigation Presents a 15-year action plan for Irrigation Division, Department Master Plan, 2016 development of climate-adaptive of Agriculture, Ministry of irrigation systems for food security Agriculture and Forests and rural incomes National Framework Provides the guiding principles for Ministry of Agriculture and for Organic Farming in promoting organic agriculture as a Forests Bhutan, 2007 sustainable agriculture practice

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Important guidance to the sustainable manage- liable weather and seasonal climate forecasts; as ment of the agriculture sector is provided by well as agro-met, aviation and weather warning the above-mentioned policies and laws, as well services, critical for farming households’ capacity as the Seeds Act of Bhutan, 2000; the Livestock to adapt to climate change. Sector Development Policy, 2012 (Working Doc- ument); Livestock Rules and Regulations, 2017; Provide adequate irrigation Co-operative (Amendment) Act of Bhutan, 2009; The National Irrigation Master Plan, 2016 pres- Food Act of Bhutan, 2005; Land Act of Bhutan, ents a 15-year action plan and roadmap for the 2007; Biosafety Act of Bhutan, 2015; Water Act of development of climate adaptive irrigation sys- Bhutan, 2011; National Irrigation Policy, 2012; Re- tems and irrigated agriculture in the country, to newable Natural Resources (RNR) Research Policy, help attain the broad agriculture sector goals of 2012 and the Water Regulations of Bhutan, 2014. food and nutrition security and enhanced rural incomes, despite anticipated climate change Protect agriculture against climate change impacts on seasonal water availability. The En- Bhutan’s Food and Nutrition Security Policy, 2014 gineering Division in the Department of Agricul- acknowledges that climate change is likely to ture will support Dzongkhags and Water User have a serious effect on food production, with Associations to expand existing community slow onset changes in mean temperatures and managed irrigation systems across 64,000 acres precipitation patterns expected to affect yields, of land nationally over this period, and bring and crop losses resulting from more frequent 19,000 acres of land under assured irrigation, and intense extreme weather events. The Na- with crops suitable for each of five irrigation tional Action Plan to Combat Land Degradation, zones promoted. Key actions include support to 2014 addresses strengthening sustainable man- repair damaged and leaking canals, and provid- agement practices in agriculture. The National ing new water supply to the existing Chuzhing Adaptation Program of Action, 2006 (updated in to help prevent their conversion to Kamzhing. 2012) sets out adaptation actions including: in- These actions will be complemented by aware- troducing crop and livestock varieties with great- ness and education on preserving irrigation wa- er resilience to drought and extreme tempera- ter, and field inspections to assess and verify tures; improving terracing and contour bunding, planned conversions. promoting agro-forestry to reduce soil erosion and run-off on steep slopes; and upgrading stor- Improve farm productivity age facilities to store surplus grains as insurance Despite an increase in investment, Bhutan faces against crop loss or bad yields. A five-year pro- several challenges for agricultural development, gram being implemented by the Ministry of Agri- including low agricultural productivity. A key in- culture and Forests on “Climate smart and disas- tervention to address this is promoting and sub- ter-resilient development” aims to formulate and sidizing farm mechanization, along with provi- implement climate change responsive policies in sion of inputs like expanded irrigation, improved agriculture and farming, promoting green climate seeds and climate-smart technology – encourag- technologies for management of pests, diseases ing cultivation of fallow land and intensification and disaster in the agriculture sector. A five-year on existing cropland. Crop rotation and mixed program to be implemented by the National cropping are supported through agricultural ex- Centre for Hydrology and Metrology (NCHM) tension services, to address nutrient depletion on “Weather and climate services for building and restore soil fertility, especially in eastern climate resilience” includes action to develop re- parts of the country where shifting cultivation

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(norbugang/dechenling) can no longer be prac- resilient to changes in climatic conditions. Cul- tised. Compost making is encouraged, along with tivation of fodder crops is important to provide traditional use of leaf litter and manure. Govern- the source of nutrients for stall feeding. Bhu- ment is also taking action to engage youth in tan’s Nationally Determined Contribution, 2015, commercial farming, and investigating financial through the UNFCCC reiterates a commitment incentives to farmers to enhance production and to resilient livestock farming, improvement of productivity, stabilize prices and expand exports. breeds and livestock insurance schemes, as well Where appropriate, support will be given to pro- as biogas production with stall feeding. It also tected agriculture, e.g. greenhouse and tunnel highlights the importance of agroforestry and farming, and promoting climate-resilient crops silvopastoral approaches for fodder production, to tolerate heat and drought conditions. as well as organic farming, conservation agriculture and sustainable land management practices. Reduce open grazing of livestock In terms of the Livestock Sector Development Promote organic farming Policy, 2012 (Draft working paper), the Ministry Guided by the National Framework for Organic of Agriculture and Forests is promoting more Farming in Bhutan, 2007, recent decades have sustainable climate-smart agriculture and live- seen a growing movement for the country’s ag- stock farming. Farmers are encouraged to con- riculture sector to become wholly organic, and trol livestock more closely, to prevent or reduce thus able to access niche export markets in Asia open grazing along verges and in the forest, and and worldwide. An estimated 70% of produce is to practise supplementary stall feedings. Reduc- already grown without chemical fertilizers or pes- tion of herd sizes to remove unproductive cattle, ticides, making the shift potentially achievable. sheep and goats is also promoted, along with Others believe that a more appropriate strate- breeding of improved livestock varieties that are gy involves an emphasis on natural production

43 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 with limited application of fertilizers/pesticides. pletely through strictly enforcing the Pesticide Bhutan’s Renewable Natural Resource Marketing Act. In some parts of the country, chemical fertil- Policy, 2017 encourages organic food producers izer use has increased in recent years, especially to adopt “Made in Bhutan” and “Grown in Bhu- to grow cash crops like apples and potatoes, and tan” labelling, to export their produce to regional partly as a response to concerns about future and international markets. A five-year Organic climate change impacts on yields. This has en- Flagship Program led by the Ministry of Agricul- hanced productivity, but in some areas has led to ture and Forests aims to commercialize organic indiscriminate use, with resulting contamination production of 12 commodities – providing ac- of soil and water resources. In support of sustain- cess to bio-inputs and organic seeds for 33,0000 able and organic farming, Dzongkhag govern- farm households, developing an organic value ments are supporting the capacity development chain and market system, and developing and of cottage industries to supply bio-fertilizers to operationalizing organic certification systems29. supplement household manure, and bio-chemi- Government is taking action to promote the en- cals based on traditional pest control knowledge. gagement of youth in commercial and organic Research is also ongoing on surveillance of and farming, through an Implementation Manual for means to combat shifts in pests and diseases an- Land Use Certificate Program. ticipated with climate change. Through Bhutan’s participation in global initiatives for Sustainable Maximize use of sustainable inputs Consumption and Production (SCP), actions are Since the removal of the pesticide subsidy two being taken to develop institutional and techni- decades ago, and the banning of several hazard- cal capacity for applying a circular economy ap- ous chemicals from the market for environmental proach in the agriculture sector, maximizing use reasons, there has been a decline in use of pes- of crop residues and manure for biogas slurry, for ticides. The use of glyphosate and other illegal fuel as well as fertilizers. chemicals to kill weeds must be stopped com-

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 6: MANAGE MINERAL EXTRACTION WISELY

Document focus Competent authorities Mines and Minerals Ensures the exploitation of mineral Department of Geology and Management Act of the resources in a manner compatible Mines, Ministry of Economic kingdom of Bhutan, 1995 with the social and economic policies Affairs; Ministry of Works and of country Human Settlement; Ministry of Mines and minerals Sets out procedures to enable the Health; Ministry of Labour and Management Regulation implementation of the act, including Human Resources 2002 environmental regulations Economic Development Recognizes mining as one of five key Policy, 2010 economic sectors with major impact and growth potential Mineral Development Includes standards on environmental Department of Geology and Policy, 2017 protection, and provides for Mines, Ministry of Economic environmental assessments, Affairs; new Mining Regulatory management and mitigation plans Authority

Strengthen protection and regulation regime The Mineral Development Policy, 2017 affirms that Government will strengthen the enforcement of mining and environmental laws to give consideration to sustainable development and intergenerational equity. The various stages of mineral development – from exploration, mining and production, to mine closure and reclamation – are to be based on sound, scientific and engineering principles, following a risk-informed approach. This involves strengthening the environmental protection and regulatory regime, and © Karma Tshering, NEC streamlining relevant agencies, departments and organizations for effective coordination. Existing Capacity is required for concentrated mines and legislation recommends Strategic Environmental quarries, to control proliferation of mines be- Assessment for new or updated public-private yond the environmental bearing capacity of a partnerships before a licence can be issued. A given area. These assessments include a properly Cumulative Impact Assessment and Carrying designed Mine Plan and Environmental Manage-

45 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 ment and Mitigation Plan. Action is needed to Increase value addition to minerals ensure that sufficient resources are maintained In line with the principle of value addition in the in the Environmental Reclamation Fund to imple- Minerals Development Policy, 2017, the Royal ment the Mine Closure and Reclamation Plan at Government of Bhutan is working to promote the end of each mining lifecycle. minerals processing industries and value addition to mineral resources. This will optimize min- Plan sustainably for the sector ing revenue, reduce the need for imports, devel- As the country moves to implement the Miner- op knowledge and skills in the mining industry, al Development Policy, 2017 future decisions on and broaden the employment base. In addition, exploitation of resources will be guided by the in line with the principle of a circular economy needs of Gross National Happiness, including contained in the National Waste Management balancing revenue generation and economic Strategy, 2019, minerals processing methods can development with human health and well-be- be improved, enabling beneficiation, blending ing. In addition, the Constitutional imperative and utilization of low-grade ore, and recovery of to maintain 60% forest cover effectively places additional minerals. The mining sector is a poten- limits on where mining and quarrying can take tial focus area for Bhutan’s participation in global place. Following the guidelines in the policy, initiatives aiming to strengthen the country’s in- detailed geological assessment and mapping of stitutional and technical capacity for Sustainable mineral resources covering the entire country Consumption and Production (SCP), and actions at a more detailed scale will continue. Based on can be taken to conduct mining life cycle analy- this geo-scientific information and cost-benefit ses and identify opportunities for investment in analysis (with social, economic and environmen- recycling and beneficiation. tal parameters), a long-term national spatial plan can be developed for sustainable mining development, integrating the principles and practices of inter-generational equity and value-addition.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 7: ENSURE GREEN, SUSTAINABLE SETTLEMENTS

Document focus Competent authorities Guideline for Planning Provides guidelines for urban and and Development of rural settlements using best practices Human Settlements in Ministry of Works & Human in planning and construction for Urban and Rural Areas Settlement: Policy and Planning environmental conservation, climate of Bhutan to Minimize Division, Department of Human change resilience and poverty Environmental Impacts, Settlement, Department of reduction 2013 Engineering Services; Gross Guides the orderly development National Happiness Commission; of human settlements, providing National Land Commission standards for National, Regional Secretariat; National Commission and Local Plans, protecting the for Women and Children; Spatial Planning environment and cultural identity, National Housing Development Standards, 2017 providing for public amenities Corporation Limited; Department and green species, planning of Local Governance, Ministry infrastructural networks and of Home and Cultural Affairs; sustainable use of resources and Department of Youth and Sports, space Ministry of Education; Thimphu Aims to ensure regionally balanced Municipality; Thimphu District; and integrated development and Ministry of Agriculture and establish a roadmap for developing Forests, National Environment National Human rural and urban settlements, Commission, National Statistical Settlements Strategy, acknowledging the resource inputs Bureau 2017 needed – land, water, energy, food and building materials, and the impacts on land, air and water To provide a framework for planning and development of environmentally National Human PPD, DHS, DES, MoWHS; MoAF; sustainable, culturally and Settlement Policy 2019 NEC; MoHCA and LGs economically vibrant and disaster resilent human settlement

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Promote regionally balanced development development; (vi) potential supply of water and Building on the Bhutan National Urbanization electricity to support the development and the Strategy, 2008 it was necessary to update and related costs; and (vii) demographic projections provide clear policies on urbanization and urban to assess the expected development of settle- specific legislation – through the National Human ments. A five-year local government program on Settlement Policy 2019, and Draft Spatial Planning livability and human settlement development in- Act, and the Spatial Planning Standards, 2017 and cludes actions to improve urban amenities and National Human Settlements Strategy, 2017. The infrastructures such as roads, footpaths, drain- human settlements policy and the Guideline for age, drinking water and public transport, guided Planning and Development of Human Settlements in by proper settlement plans with improved waste Urban and Rural Areas of Bhutan to Minimize Envi- and pollution management systems. ronmental Impacts, 2013 call for establishing more small urban developments across the country in Make cities climate-smart areas with growth potential. Balanced economic Bhutan’s Nationally Determined Contribution, development will be promoted through prepara- 2015 highlights the country’s commitment to tion of nationwide settlement plans with- equi promotion of climate-smart cities. Adaptation to table resource allocation, including provision of climate change involves improving stormwater electricity and telecommunication facilities. Such management and sewer systems to cope with planning will aim to prevent unplanned settlement intense monsoons. Mitigation of greenhouse gas growth and loss of valuable land for cultivation. emissions involves integration of low emission strategies in urban and rural settlements through Plan settlements within carrying capacity green buildings, energy efficiency and sustainable Bhutan is committed to ensuring hierarchical construction methods, and strengthening munic- land-use planning covering economic, social, ipal waste management, as well as tree planting environment aspects in the planning and devel- in residential and industrial areas of cities. Sus- opment of human settlements, from comprehen- tainable construction is also an important theme sive valley spatial planning to Local Area Plan of Bhutan’s participation in global initiatives for and Neighbourhood nodes. The country’s Spatial Sustainable Consumption and Production (SCP), Planning Standards, 2017 provide guidelines for aiming to strengthen the country’s institution- how spatial plans should assess and take into ac- al and technical capacity to design, implement count the carrying capacity of the planning area, and monitor science-based policy instruments including: (i) natural resources (protected areas, for SCP. Three key programs of the Ministry of water bodies, mountains, etc.) to be protected Works and Human Settlements involve actions i) from urban growth; (ii) cultural sites and land- to pursue green growth in construction industry; scapes to avoid excessive development pres- and ii) to enhance sustainability of human settle- sure; (iii) agricultural potential to be preserved; ments; and iii) to improve and maintain climate (iv) land available for development; (v) available resilience of road network. infrastructural networks and plans for future

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 8: MANAGE WASTE RESPONSIBLY

Document focus Competent authorities National Environment Sets the overarching legal framework Protection Act, 2007 for environmental protection and management Aims to promote reduction, reuse, Waste Prevention and Ministry of Works and recycling and safe disposal of solid, Management Act, 2009 Human Settlement, National liquid and gaseous wastes Environment Commission, Identifies roles in waste management Ministry of Economic system including monitoring, Waste Prevention and Affairs, Thimphu and collection, segregation, treatment, Management Regulations, Phuentsholing Thromdes, storage, transportation, reduction, 2012 and Amendment, Ministry of Health, Ministry reuse, recycling and safe disposal; 2016 of Education, Ministry of levying fees, charges and fines and Agriculture and Forests, preventing illegal waste Department of Revenue Provides guidance on segregation, and Customs, Department Guideline for Disposal of storage, transport, disposal of of National Properties, Pharmaceutical Waste, hazardous and non-hazardous Ministry of Finance, Ministry 2014 medical waste of and Information and Communication: Tourism Integrated Solid Waste Sets short, medium and long Council of Bhutan; Office of Management Strategy, term targets for three Rs and the Armed Forces; Thromde, 2014 improvement of disposal sites Dzongkhag and Gewog Deals with all waste streams, Administrations providing eight strategic tools for National Waste sound management of waste, with Management Strategy, targets at different timescales, and 2019 addressing barriers to coordination and implementation

Build capacity for integrated waste and budget, lack of technical capacity of Throm- management des, Dzongkhags and implementing/collaborating Building on the earlier National Strategy and Action agencies, and lack of awareness and cooperation Plan, Integrated Solid Waste Management, 2007 of the general public. The Strategy reaffirms the and the National Integrated Solid Waste Manage- overall strategic goal to promote and move -con ment Strategy, 2014, Bhutan has developed the tinuously towards “Zero Waste Bhutan by 2030” National Waste Management Strategy, 2019, at- – through partnerships involving the public,- in tempting to address the barriers to implementa- dustry, civil society organizations, government tion of these plans – including poor inter-institu- authorities at local and sectoral levels, - munici tional coordination, limited number of personnel palities, and development partners. Detailed and

49 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 achievable short term targets are set out for a five-year period, in the context of major long-term objectives around reducing and recovering waste, and improving service delivery, aligned with government’s five-year program on “Strengthening waste prevention and management”, with actions being implemented through the National Environ- ment Commission Secretariat.

Promote sustainable production and consumption The new emphasis on a fourth “R” – Responsibil- © Karma Tshering, NEC ity, as well as Reduce, Reuse and Recycle – ties in with Bhutan’s participation in global initiatives for tary landfills can be designed to maximize opportu- Sustainable Consumption and Production (SCP)30. nities for circular economy activities that generate The National Waste Management Strategy, 2019 revenue, e.g. from compost and methane gas, and points out that the traditional linear development from recycling of electrotonic or “e”-waste com- model of “take, make, consume and dispose” gen- ponents, including valuable metals. Key actions in erates unsustainable volumes of waste. The alter- large towns include making available waste bins for native involves the concept of a circular economy, sorting and segregating, with improved collection in which products are traded in closed loops or and sorting services, and accompanying public ad- ‘cycles’, aiming to retain as much value as possible, vocacy and awareness. by allowing for the long life, optimal reuse, refur- bishment, remanufacturing and recycling of prod- Minimize greenhouse gas emissions from ucts, parts and materials. Innovative examples of waste this are emerging with involvement of the private Reducing, reusing, recovering and recycling mu- sector and volunteers, e.g. PET (Polyethylene nicipal waste are also effective and high impact terephthalate) bottle collection by schools linked means of reducing greenhouse gas (GHG) emis- with recycling industries, establishment of a plant sions, as outlined in Bhutan’s Nationally Deter- for recycling plastic waste as road surfacing mate- mined Contribution, 2015. Waste is one of the rial, and replacement of plastic used for wrapping sectors that is used in determining the country’s Erica nut and leaf. emissions for the National Communication of Green House Gas Emission Report. Methane gas Improve municipal waste management emitted from landfill sites as a result of anaerobic Effective management of solid waste streams in organic waste decay, is a major source of man- the urban centres (especially Thimphu and Phuent- made methane, and is 23 times more potent at sholing) is amongst the most pressing challenges trapping heat in the atmosphere than carbon di- the country faces, with 40 tonnes of solid waste oxide. Waste gas from landfills can also be recov- produced in Thimphu per day in 201831. New sani- ered for production of energy and connection tary landfills need to be established in towns where to the national grid for electricity distribution, they are lacking, and existing open dump landfills through well designed operations. In addition, must be rehabilitated into sanitary landfills with the when discarded materials are recycled, in a cir- necessary environmental measures in place. Strict cular economy approach, they provide industries enforcement of the Waste Prevention and Manage- with an alternate source of raw materials, result- ment Act, 2009 will prevent illegal dumping, and ing in lower demand for virgin materials whose leaching and contamination by effluent from -land extraction, transport, and processing would be a fills. Integrated systems with segregation and -sani major source of emissions.

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Implementation Plan

Collaborating Key Performance Lead agency Enablers agency Indicators Areas feasible for human settlement, SO1: Plan for ecological areas, MoAF, MoEA, balanced land GNHC & National Land use agricultural areas MoWHS, NEC, use NLC zoning project identified & zoned. MoHCA Tangible historical and cultural sites zoned and mapped • Disaster related data and information system • Financing for disaster management plans Disaster NCHM and response SO2: Enhance management and MOEA • 12th FYP (establishing disaster contingency plan MoHCA MOWHS search and rescue preparedness in place at national, LGs center, emergency and response local and agency Mo F operation center) level • Disaster management and contingency planning guideline • Guidelines for disaster financing • UNCCDs land National degradation neutrality SO3: Soil Service project • Area covered Dzongkhags, Combat land Centre • Agriculture land • No of SLMP LG, DDM degradation (DoA, development carried out MoAF) guideline 2017 • World Soils Day • Development of guideline for Design, construction and • National highways maintenance of SO4: Promote will be improved Climate resilient environmentally using Environment DGM, MoEA; roads; friendly and DoR, Friendly Road RSTA, MoIC; • Length of Road climate-resilient MoWHS Construction Foreign Aid as Improved as roads and techniques and Climate Resilient infrastructure climate proof Road; technology • Initiate slope stabilization process on National Highways;

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• Climate Smart Dzongkhags, Agriculture in Bhutan: • No of MoAF Regional Country Profile technologies SO5: Make Department and Central • 12 FYP Document generated and agriculture of Programme, • National Organic adopted sustainable and Agriculture (ARDCs, Central Flagship Program • Functional climate-resilient Department Programs, • Agriculture Research agromet decision of Livestock RLDCs, RDTC), Strategy (2018-2028) support system CNR, NCHM • Roadmap for Agromet Services in Bhutan • Revenue • Economic generation SO6: Manage Department LGs, DoFPS, Development Policy • Employment mineral of Geology NRDCL, Mining 2010 generation extraction and Mines Companies • Mineral Development • Social and sustainably Policy 2017 environmental safeguards Existing National Human Settlement Policy 2019 Legislations/Guidelines. • Spatial Planning • Prepared, Standards Bill Reviewed and SO7: Ensure MoWHS. • Guideline for Planning Facilitated the green, Department NLCS. and Development of preparation of sustainable of Human Respective Human Settlements settlement plans settlements Settlement Dzongkhag to minimize (addressing Administrations Environmental Impact. environmental • Strategic Program for issues.) Climate Resilience SPCR. • Comprehensive National Development Plan (CNDP) for Bhutan 2030.

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• Bhutan Building Rules 2018. • Spatial Plans and Development Control Regulations. FYP Activities. • Preparation and facilitation of spatial plans at all level; valley, regional, structural and local area plans. • Awareness and coordination • programs on issues, principles and legislations pertaining to human settlement. • Compliance and development review of settlement plans and its implementation. MoWHS MoH MoEA, • Generation of DoI waste reduced DoT • Waste Prevention • Segregation a MoAF and Management Act source improved DoFPS 2009 • Recycling of waste DoL • Waste Prevention enhanced DoA and Management • Collection services MoF Regulation 2012 and improved SO8: DNP 2016 (Amendment) • Treatment facility Strengthen DRC Regulation improved waste MoIC • Integrated Solid • Linked to annual prevention and DITT Waste Management workplan management RSTA Strategy 2014 • Capacity Dzongkhag • National Waste developed Administration Management Strategy • Disposed waste in Gewog 2019 environmentally Administration sound manner Thromde • PPP DRA • EPR established BNCA CSO Media Houses Armed Forces

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Endnotes increasing demand for rice over time. 1 https://www.statista.com, “Employment by 11 National Environment Commission, 2016State economic sector in Bhutan” of the Environment report 2 Department of Forest and Park Services, Forest 12 National Land Commission, 2016 Facts and Figures 2018 – in 2017-2018, 37 forest 13 Karma Choden Tshering, 2018. Exploring fire incidences in 12 dzongkhags destroyed more the nature of encroachment of state land in the than 16,000 acres of state forest reserve Kingdom of Bhutan (MSc Thesis submitted to 3 Department of Forest and Park Services, the Faculty of Geo-Information Science and Ministry of Agriculture and Forests, Forest Facts Earth Observation of the University of Twente, and Figures 2018 Netherlands) 4 The percentage of total national land area 14 45% of the country has an elevation of over that was under cultivation in 2016 was 2.75 %, 3,000 metres as per the Land Use and Land Cover of Bhutan 15 Fifth Assessment Report (AR5) of the 2016 assessment published by the Ministry of Intergovernmental Panel on Climate Change Agriculture and Forests (IPCC), published in 2014 5 Labour Force Survey, 2018 16 The total economic damage to the country 6 National Statistics Bureau,Bhutan at a glance from Cyclone Aila in 2009 alone was estimated 2018; 12th Five Year Plan, 2018-2023 at around US$ 15 million 7 Reports of Population and Housing Census of 17 An estimated 8.2% of the country’s total Bhutan (PHCB) 2017 - The 2017 PHCB national population were still below the national poverty report and the reports for the 20 dzongkhag can line (< Nu 2195.95 per person per month) in be accessed from www.nsb.gov.bt 2017, according to statistics from the Population 8 Reaching USD 2,277 per annum by 2018 – and Housing Census Bureau, 2017 Gross National Happiness Commission, 2018. 18 Population and Housing Census Bureau, 2017 Bhutan: Towards Sustainable Graduation through Census: The network of roads have expanded Economic Diversification & Resilience and about 92 percent of the households in 9 These reasons were widely reported in the four the country are within 30 minutes of walking regional workshops held in Wangduephodrang, distance from the nearest motor road, which is Bumthang, Phuentsholing and Trashigang, an increase from 63 percent in 2005 with all 20 Dzongkhags represented, as part of 19 The climate-related disasters of the six eastern the formulation of the National Environment Dzongkhags in 2004 witnessed major loss of Strategy – see report on Revision of the National lives, damage to homes, crops and pasture land, Environment Strategy of Bhutan, National and significant damage to infrastructure such as Stakeholder and the Task Force Member Workshop irrigation channels, power transmission facilities, (16-17 October, 2019) bridges, farm and feeder roads 10 According to Renewable Natural Resources 20 Food security is defined as being able to statistics from the Ministry of Agriculture and meet consumption needs, particularly for staple Forests, rice constitutes the major proportion of food crops, from own production rather than food commodities imported, with an increasing by buying. During the 12 months preceding trend from 68,235 metric tonne (MT) in 2012 the 2017 census reference day, only 6.2 % of to 87,671 MT in 2016, indicating that domestic households experienced food insufficiency or supply has not been able to keep pace with the not enough food to feed all household members

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(2017 PHCB national report). 27 12th Five Year Plan, 2018-2023 21 Among the regular Bhutanese households 28 The EFRC project in Bhutan estimated that (158,513), 60.4 percent reported that they own EFRC roads cost 15-25 percent higher than land. About 73 percent of households in rural conventional roads during the construction areas own land compared to urban areas (38.7 phase. However, the additional costs would be percent). nullified within 7-9 years due to low maintenance 22 These trends were widely reported in the four costs and over the long-term, EFRC roads would regional workshops held in Wangduephodrang, be much cheaper than conventional roads. The Bumthang, Phuentsholing and Trashigang, EFRC project estimated the cost of EFRC roads with all 20 Dzongkhags represented, as part of at around US$ 60,000 per km. the formulation of the National Environment 29 The program will target the organic production Strategy – see report on Revision of the National of eight selected commodities for export and Environment Strategy of Bhutan, National four for domestic consumption. The program Stakeholder and the Task Force Member Workshop aims to produce approximately 254,000 metric (16-17 October, 2019) tonnes of bio-inputs within five years. It aims 23 In the 2017 census, 53% of farm households to generate approximately 1,500 new jobs reported a shortage of labour (members (2017 and engage around 33,000 farmers across the PHCB national report). country - 12th Five Year Plan, 2018-2023. 24 The 12th Five Year Plan indicates that by 2019, 30 These initiatives aim to strengthen institutional base metals and articles form 31% of all Bhutan’s and technical capacity to design, implement and exports to India, with mineral products a further monitor science-based policy instruments for 11% of exports. SCP 25 12th Five Year Plan, 2018-2023 31 Quoted in 12th Five Year Plan, 2018-2023. 26 Population and Housing Census Bureau, 2017 Census

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Chapter 3: AIR

The environment in Bhutan is one of the most energy-consuming sectors in Bhutan3 are the pristine in Asia – with clean air and water, vast building (residential, institutional and commer- areas of primeval forest, and quality of life for all cial), industry (especially cement, ferro-alloy and at the centre of our philosophy of Gross National carbide industries) and transport sectors4. Over Happiness. As a carbon-negative country, Bhu- the last two decades, the construction sector in tan is also considered a world leader, maintain- Bhutan, along with the hydropower sector, has ing greenhouse gas emissions significantly lower witnessed exponential growth5, but modern than the carbon sequestration capacity of the constructions continue to be largely ill-suited country’s forests. Nevertheless, challenges are for the local environment. The lack of relevant on the horizon as urbanization and economic de- smart designs, construction methods, and ma- velopment gather pace, with pockets of serious terials has created a current building stock with air pollution emerging, and growing greenhouse sub-standard indoor quality of life, as homes are gas emissions. uncomfortably cold during winter months, particularly at higher elevations. Such poor-quality Challenges related to emissions homes drive up energy consumption, leading to significant economic, environmental, and social costs.

Reliance on hydropower Currently, almost all of Bhutan’s electricity requirements are met by hydropower resources. Hydropower electricity, while renewable, is not without environmental and social consequences. Dams and reservoirs are known to emit methane, a contributing greenhouse gas, and it will be important to consider these externalities when © Karma Tshering, NEC looking to the future of sustainable and envi- Bhutan is fuelled by renewable hydropower ronmentally conscious energy production in the electricity, is home to a relatively small popu- country. In addition, hydropower generation po- lation, and has a nascent industrial sector. As a tential could be compromised by shifts in hydro- result, GHG emissions have remained relatively logical regimes with a changing climate, includ- low. The Constitutional requirement to maintain ing glacial melting and unpredictable monsoons. Bhutan’s forest cover1 above 60% will maintain Although electricity access is now near-univer- this massive carbon sink, sequestering more car- sal, rural dwellers remain reliant on fuelwood to bon than is emitted, and allowing the country to meet some of their energy needs, placing pres- remain carbon negative. Nevertheless, emissions sure on forest resources. There are also periods have been growing in the transport and industry in the winter, when river flow is low, when Bhu- sectors, contributing both to rising GHG emis- tan has to import electricity from India to meet sions, and to increasing air pollution. national requirements. Without development of other resources, such as solar and wind energy, Inefficient energy use and micro-hydropower, meeting primary energy One contributing factor to greenhouse gas emis- requirements may remain challenging. sions is inefficient use of energy, in the form of electricity, fossil fuels and biomass. In 2018 Bhu- Worsening ambient air quality tan imported close to USD 108 million worth of Air pollution is an emerging national issue that fossil fuel, that accounted for more than 67% of will have implications on human as well as envi- the earnings from hydropower export2. The top ronmental health in Bhutan. The annual average

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level of PM10 (particulate matter with a diameter for cooking and heating (including kerosene) has of 2.5-10 micrometres or μm) has been increas- been termed “household air pollution (HAP)”. ing in Thimphu, and its levels have since 2009 Women and children generally spend more time consistently been higher than the standards indoors and are exposed to HAP daily, causing set by the World Health Organization (WHO)6. respiratory disease, lung cancer and heart dis- th During the dry winter season, the PM10 level in ease. According to the 12 Five Year Plan, fuel the capital routinely exceeds the allowable limits wood still accounts for 21 % of total household of the national standard of 60 micrograms per cu- energy consumption in Bhutan9. Although elec- bic metre (µg/m3). There is a deteriorating trend trification is near universal, studies have shown in the level of PM10 over time, in Thimphu and that electrified houses use only 25% less fire- 10 other industrial areas, as well as the level of PM2.5 wood than non-electrified houses . Interven- (fine particulate matter with a diameter of under tions are needed to reduce exposure to HAP. 2.5μm), which is even more harmful for health7. A global study found that localized air quality in Expanding transport sector Pasakha, with its smoky ferrosilicon and steel Major sources of air pollutants are passenger cars factories, was around 150 µg/m3 of fine particle and heavy-duty vehicles, including diesel-pow- emissions8 – higher than the notoriously smoggy ered trucks and buses. A 2015 study showed climates of Delhi and Cairo. that heavy-duty vehicles were responsible for at least 70% of local pollutants and nearly 60% Air pollution in Bhutan is caused by: exhaust of GHGs in the country11. The Road Safety and emissions from diesel and petrol vehicles, in- Transport Authority recorded 103,814 vehicles dustrial emissions, inorganic chemical and min- in the country (52% of them in Thimphu) as of ing processing, wind-blown dust from unpaved June 30 2019, with vehicle ownership increasing roads, quarries and construction sites, forest at 15% per annum over the past few years12. An fires, burning of household and farm waste, open Asian Development Bank report suggests that fires at construction sites and roadside wood- emissions levels are likely to triple by 2030, if fired heating of bitumen in open pans for road no action is taken, causing severe air pollution paving, and wood-burning stoves used for cook- posing risks to people’s health and environment, ing and heating. There is also trans-boundary air as well as a massive increase in carbon dioxide 13 pollution, with significant atmospheric brown (CO2) emissions . Traffic congestion in also ris- haze in winter in Pasakha and the southern ing in Thimphu and Phuentsholing, causing loss border areas. While there are strong laws and of time and productivity, as well as resulting in policies related to pollution-causing activities, air and noise pollution and traffic accidents. Ef- their implementation has been a major challenge forts to widen roads and increase parking spac- in-country, whilst trans-boundary pollution has es have provided only limited relief. The lack of not been tackled. an efficient and comprehensive public transport systems encourages more people to use pri- Indoor air pollution vate transport, contributing to air pollution and The worst air pollution levels occur in the indoor greenhouse gas emissions. environment in Bhutan’s rural areas. As in many developing countries, rural communities rely on Impacts of “dirty” industry unprocessed biomass fuels (wood, cattle dung The other major sector causing both GHG emis- and crop residues) as the primary energy source sions and air pollution, and impacting on the for cooking and heating. When these solid fuels natural environment through other forms of pol- are burned in traditional stoves, high concentra- lution and resource extraction, is the growing tions of harmful smoke and particles are gen- industrial sector14. Many of Bhutan’s industries erated. Air pollution emanating from fuels used depend on extraction of raw materials, such as

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© Dorji Phuntsho, NEC wood, stone and minerals, from the natural en- Challenges of climate change vironment. Industrial activities also contribute to In addition to the growing risk of forest fires (dis- land degradation, through dumping of industrial cussed above), landslides and floods (discussed in waste, discharge of harmful effluents, and con- Chapter 2), Bhutan has witnessed more frequent version of forest and agricultural lands for de- and widespread windstorms and rainstorms in the velopment of industrial estates. Energy intensive recent past – believed to be triggered by climate industries, the Cement, Ferrosilicon and Calcium change. Extreme weather events such as excessive carbide industries, emit a huge amount of car- precipitation and drought have impacted liveli- bon due to the use of fossil fuels in the manufac- hoods in the past, while windstorms have affect- turing process, contributing to air pollution and ed almost all dzongkhags – blowing off roofs and greenhouse gas emissions. damaging both public infrastructure and traditional houses in the villages. In 2009 Cyclone Aila, which Although legislation requires new industries to originated in the Bay of Bengal, affected 17 dis- use only new and state-of-the-art machinery and tricts and reported 12 lives lost with an estimated technology, and ambient air quality standards are damage of Nu. 719 million. A severe windstorm in in place, this is not applied retroactively to older 2011 affected 17 districts and led to the loss of a facilities which are often using obsolete technol- life and damage to 2,424 houses, 57 schools, 77 ogy. The country’s industrial development plan lhakhangs, 4 block offices, 21 health centres, and envisages completing a network of industrial 6 agricultural centres. A windstorm destroyed over parks and special economic zones. Along with 60 residential and public structures in Mongar and industrial development, there will be associated Trashigang in March 201915. Poorer households challenges of solid and liquid waste generation, tend to be affected worse, having less solid con- effluents, sludge, air pollution, noise and fugitive struction. The Royal Government of Bhutan views emissions. There is also a need for better occupa- windstorm as an emerging high-risk hazard, giv- tional health surveillance systems that focus on en its intensity and frequency in recent years and accident and disease prevention, and procedures the estimated damages and losses incurred in the for assessing factors that affect workers’ health. housing and agriculture sector.

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Based on existing policy, legislation, rules and • Strategic Objective #12: Adopt cleaner regulations and guidelines, Bhutan’s National En- technology vironment Strategy has the following air-related • Strategic Objective #13: Develop renewable Strategic Objectives: energy sector • Strategic Objective #14: Improve energy • Strategic Objective #9: Remain carbon efficiency neutral • Strategic Objective #15: Reduce household • Strategic Objective #10: Improve ambient air pollution air quality • Strategic Objective #16: Provide early warn- • Strategic Objective #11: Promote low-emis- ing for windstorms sion transport

Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 9: REMAIN CARBON NEUTRAL

Document focus Competent authorities Outlines options to manage emissions National Strategy and from energy-intensive industries, crop Action Plan for Low Carbon production, livestock raising, municipal Development, 2012 solid waste, road transport, and residential sectors National Environment (Intended) Nationally Sets out an inclusive approach to climate- Commission, Ministry of Determined Contribution, friendly investments and a diversified Economic Affairs 2015 green energy mix that will deliver a carbon-neutral development framework

Maintain forest carbon sink more carbon than we emit – and to maintain The Constitution of Bhutan commits the country our country’s status as a net sink for Green to maintaining a minimum of 60% of the total land House Gasses” for all times. The commitment surface under forest cover for all time, making an was reiterated in our first Nationally Determined important contribution towards global mitigation Contribution (NDC), 2015 towards the Paris of climate change. Subsequently in 2009, at the Agreement, and the country has subsequently 15th Conference of Parties to the UN Framework exceeded this target to become carbon negative, Convention on Climate Change (UNFCCC) in emitting less carbon-dioxide equivalent than it Copenhagen, Bhutan issued a declaration titled, stores. This is largely due to huge areas of forest Declaration of the Kingdom of Bhutan - The Land cover, low levels of industrial growth and high of Gross National Happiness to Save our Planet, share of energy requirements met by non-fossil wherein we committed to “keep absorbing fuel-based hydropower. Continuing actions

61 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 include reporting to the UNFCCC on national This builds on theNational Strategy and Action emissions (in tonnes of CO2 equivalent) against Plan for Low Carbon Development, 2012, which national sequestration (709 million tonnes of sets out sectoral measures to manage emissions CO2 equivalent in 201816). from the following economic sectors: (i) energy- intensive industries, (ii) crop production and Plan low-carbon sectoral development livestock raising, (iii) municipal solid waste, (iv) According to the Economic Development Policy, road transport, and (v) residential. This was taken 2016, Bhutan’s commitment to remain carbon further in the Emission Reduction Road Map and neutral contributes to developing the “Brand Strategy, 2015 which calls for mitigation actions Bhutan” theme, capitalizing on the opportunities in each sector. Specific actions for methane arising from global trends towards low emissions include : in the agriculture sector, emission development, while at the same time introducing improved cattle breeds and paddy “leapfrogging” towards global best practices cultivation methods; and in the waste sector, in key sectors of the economy. Bhutan’s draft introducing mechanisms to collect and store climate change policy takes a sectoral approach methane gas at landfill sites. Other sectors to managing emissions of greenhouse gases such (industry and transport) are discussed below. as carbon dioxide, methane and nitrous oxide.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 10: IMPROVE AMBIENT AIR QUALITY

Document focus Competent authorities National Environment Sets the overarching legal National Environment Protection Act, 2007 framework for environmental Commission, Ministry of protection and management Health, Ministry of Economic Sets out roles of levels of Affairs, Ministry of Agriculture government, and requirements and Forests: Department of Forest Fire Rule, 2012 for maintaining fire lines around Forest and Park Services, Social infrastructure, permits for burning Forestry Division, Territorial agricultural debris, and safety Division; Royal Bhutan Police; measures for economic activities Ministry of Works and Human Waste Prevention and Identifies roles for managing Settlements, Dzongkhag, Management Regulations, waste, including reducing burning Thromde and Gewog 2012 and revisions, 2016 of waste causing air pollution Administrations

Address causes of pollution sion tests, and promotion of electric vehicles In general, the ambient air quality in Bhutan has and better public transport also aims to reduce been considered excellent and clean. Neverthe- air pollution. Other measures include promotion less, this trend is changing with urbanization and of smokeless stoves and subsidized electrici- industrial development, particularly in the main ty, especially for domestic consumption. A new cities and industrial areas. The National Environ- national climate change policy (in draft form in ment Protection Act, 2007 (NEPA) sets the legal 2019) will also highlight actions to address many framework for environmental protection and of the causes of air pollution. management in Bhutan, with a number of laws addressing the causes of air pollution – such Reduce pollution from fires as the Environmental Assessment Act, 2000 (for Fires are a significant contributor to air pollution control of development activities, including fac- in the dry season – with wood-burning stoves tories, construction and blacktopping),Waste used for heating as well as cooking in the winter, Prevention and Management Act, 2009 (for man- and fires at construction sites. Burning of house- agement of wastes and construction debris, pre- hold and farm waste can get out of control, caus- vention of illegal solid waste burning),Forest Fire ing major forest fires. According to the Depart- Rule, 2012 (to prevent uncontrolled fires), Nation- ment of Forest and Park Services, 239 incidents al Human Settlements Strategy, 2017 (to enhance of forest fires affecting 19,231 hectares were green spaces and reduce dust), and Local Gov- reported between 2008-13. 2018 witnessed a ernment Act of Bhutan, 2009 (for activities within total of 39 fire incidents with highest number municipal boundaries and local jurisdictions). All detected in Wangdue Phodrang Dzongkhag, and vehicles are required to undergo annual emis- largest area burnt in Mongar Dzongkhag (1,199

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© Karma Tshering, NEC ha)17. Bhutan’s holistic and integrated forest sensitive targets are in place like hospitals, fire management strategy includes controlled schools, and sensitive ecosystems). Continued fire use where appropriate, with advocacy and expansion and strengthening of the monitoring awareness to inform citizens on how to avoid ac- and data management system is critical, includ- cidentally starting forest fires, and how to burn ing improved monitoring of health impacts. This agricultural residues and other waste safely. Ac- includes monitoring three sizes of particulate tions include strong enforcement of penalties for matter – coarse, or PM10 (diameter of 2.5-10 mi- illegal burning of waste and for causing forest crometres or μm), fine or PM2.5 (diameter of 0.1- fires. 2.5 μm) and ultra-fine, or PM0.1 (diameter of less

than 0.1 μm). Specific PM10 targets for Thimphu Improve air quality monitoring and Pasakha have been included in the 12th Five Year Plan, 2018-2023, Automatic stations to monitor air quality are be- aiming to keep the PM10 ing installed at strategic locations in the country level below 60 micrograms/m2 for Thimphu and to ensure that emissions and discharges from in- 120 micrograms/m2 for Pasakha. Actions are dustries comply with the national environmental needed to set or revise environmental standards standards. Ambient air quality standards are as- for other pollutants, and to monitor both point- sessed from three areas – industrial area, mixed source and fugitive emissions more comprehen- area (where residential, commercial or both sively nationwide, with at least one station per activities take place), and sensitive area (where Dzongkhag.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 11: PROMOTE LOW-EMISSION TRANSPORT

Document focus Competent authorities National Strategy and Demonstrates potential Ministry of Health; Ministry of Works Action Plan for Low for emission reductions in and Human Settlement; Ministry Carbon Development, transport sector with multiple of Economic Affairs; Ministry of 2012 cumulative benefits Information & Communication: Bhutan’s Economic Sets out policies for Road Safety and Transport Development Policy, development of low carbon Authority; Dzongkhag, and Thromde 2016 transport sector in the Administrations country

Monitor environmental impact of Improve public transport transport sector Improving public transport can help reduce air Bhutan’s Draft National Transport Policy, 2017 pollution and GHG emissions in two ways – builds on the Bhutan Transport 2040 Integrated through reducing the need for private cars, and Strategic Vision, 201318 and sets out a vision to through introducing new, cleaner vehicles, e.g. provide the entire population with a safe, reli- electric buses. In committing to improving pub- able, affordable, convenient, cost-effective, and lic transport, the Draft National Transport Policy, environment-friendly transport system. The 2017 builds on Bhutan’s Economic Development transport sector is the biggest single contribu- Policy, 2016 which highlights the need for clean, tor to both air pollution in cities, and to national safe, affordable and reliable mass transporta- greenhouse gas emissions in Bhutan. The major tion. Starting with the major cities, the policy sources of air pollutants are passenger cars and promotes efficient bus services or other mass heavy-duty vehicles including diesel-powered, transit systems, and associated interventions large and medium sized trucks and buses. The to reduce congestion and vehicular emission. National Strategy and Action Plan for Low Carbon The policy commits to exploring electric/hybrid Development, 2012 refers to the huge potential public transport systems in major urban centres, of the transport sector for greenhouse gas emis- cooperating with the private sector. Thimphu sion reductions, and Bhutan’sNationally Deter- and Phuntsholing Thromdes have improved bus mined Contribution towards the Paris Agreement, stops, rehabilitated sidewalks and constructed 2015, sets out the country’s approaches to pro- footbridges. International partnerships will have moting a low-carbon transport system. Sectoral enabled the cities to procure electric buses, con- emissions can be reduced through introducing vert taxis to electric taxis and establish quick- cleaner vehicles and fuel, through replacing pri- charging stations, and actions are needed to ex- vate cars with public transport, and enforcing ve- pand these initiatives on urgent basis. hicle emissions standards. Actions include ongoing improvement of urban air quality monitoring systems, and GHG emissions tracking.

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Tighten vehicle emission controls Use legal and fiscal instruments All vehicles are required to undergo annual emis- Using legal and fiscal incentives to promote sion tests, but this has rarely led to non-compli- cleaner technology – both low-carbon vehicles ant vehicles being taken off the road. The Bhu- and cleaner fuels – is highlighted in the Bhutan tan Transport 2040 Integrated Strategic Vision, Transport 2040 Integrated Strategic Vision, 2013. 2013 highlights the importance of tighter vehicle Hybrid, plug-in hybrid, and electric cars emit emission standards and enforcement to reduce low CO2 throughout their lifespan, compared to air pollutants. In line with this strategy the NEC diesel and gasoline powered vehicles. Actions with international technical and financial sup- include providing incentives for and reducing port developed a policy brief19 recommending an taxes on low-carbon vehicles. In addition to the increase from the current Euro 2 emission stan- earlier ban on import of used cars, duties have dard to Euro 4, and eventually Euro 6, in line with recently been increased on import of vehicles, India’s standards. Improvements to the vehicle restrictions have been placed on the introduction emission inspection system would ensure that of new taxis. Import of low-sulphur fuels is also vehicles on the road remain compliant with the highlighted. Bhutan has already renegotiated original emission standards for which they were with India on the sulphur content of imported certified. Actions include strengthening Bhutan’s fuel. Further actions could include issuing a vehicle inspection system, and improving testing regulation that requires all fuels imported from procedures. This will encourage regular vehicle India to comply with the originating country’s maintenance, and to identifying high emitters, fuel standards, continuing testing fuel quality obliging them to carry out repairs that would to help ensure compliance, and upgrading fuel restore the vehicles’ capacity to conform to the quality testing procedures. standards.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 12: ADOPT CLEANER TECHNOLOGY

Document focus Competent authorities Environmental Assessment National Environment Legislation, regulations and Act, 2000 Commission; Ministry of guidelines for environmental Regulation on Environmental Economic Affairs: Departments assessment, including sectoral Clearance of Projects, 2002 of Energy, Geology and Mines, guidelines for Forestry, Industry, and Trade; Ministry of Hydropower, Mines, Tourism, Works and Human Settlement, Sector Environmental Highways and Roads, Ministry of Agriculture and Assessment Guidelines Transmission Lines, Urban Forests; and Dzongkhag Development, Industry environmental committees General Rules and Regulations on Occupational Health Sets out specific regulations Ministry of Labour and Human and Safety in Construction, that aim to assure safe and Resources Manufacturing, Mining and healthy working conditions Service Industries, 2006

Enforce requirement for environmental and Management Regulation, 2012, stipulates spe- approvals cific procedures for the management of medical, Bhutan has a comprehensive approach to re- municipal, industrial, and electronic waste. Regu- quiring EIAs and clearances for a wide range of lar annual compliance monitoring of industries is economic activities related to tourism, urban de- being carried out, however, fines for infringement velopment, hydropower, transmission lines, for- remain relatively low, and actions are needed to estry, mines, industrial projects, and highways and strengthen enforcement. roads. These address impacts on air quality, as well Promote investment in clean technology as solid and liquid waste and impacts on resource The Nationally Determined Contribution, 2015, in extraction. Full EIAs are required for hydropower terms of the Paris Agreement, commits Bhutan projects, projects within protected areas and cul- to promote a green and self-reliant economy tural heritage sites, large-scale mines and quarries, towards carbon neutral and sustainable devel- and mega projects (e.g. high-tension transmission opment through: (i) improvement of manufac- lines, industrial estates, national highways). The turing processes through investments in cleaner Regulation for Environmental Clearance of Projects, technology, energy efficiency and environmen- 2016 defines in detail the responsibilities and tal management; (ii) promoting industrial estate procedures for the implementation of theEnviron - development and management in line with effi- mental Assessment Act, 2000, concerning the issu- cient, clean and green objectives (iii) enhancing ance and enforcement of environmental clearanc - and strengthening the environmental compli- es for individual projects. The Waste Prevention ance monitoring system; and (iv) promoting in-

67 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 vestment in new industries at higher levels in the tion, and recycling. The Office of Consumer Pro- value chain, including green industries and ser- tection encourages sustainable consumption by vices. International partnerships have enabled disseminating information on the environmental demonstration projects in cleaner, more efficient impacts of consumer goods industry. In terms of brick kiln technology, and actions include ongo- the Act, consumers have a responsibility to con- ing investigations into fiscal incentives for clean sider the impact of their consumption patterns technology and environmental management. A on the environment, in order to help to main- five-year program through the Royal University tain the ecological balance. This in turn means of Bhutan, sets out to “Enhance research, inno- an obligation by industry to disclose the impacts vation and scholarship” through improvement in of their products’ manufacture, use and disposal, research infrastructure, facilities and services, in order to support informed consumer choices. and a new national policy on science, technology Manufacturers and suppliers must also disclose and innovation. information on the expected lifespan of goods, and must make good on their “implied guaran- Encourage sustainable consumption tee” to provide for repair of goods and supply of Bhutan’s Consumer Protection Act of Bhutan, spare parts – important in avoiding unnecessary 2012, sets out the rights and responsibilities of production and consumption, with concomitant consumers in relation to sustainable consump- resource use and pollution impacts. Actions be- tion, placing positive pressure on industry to ing taken involve international partnerships on improve their environmental performance – in Sustainable Consumption and Production, and relation to emissions and air pollution, energy activities to promote consumer awareness and consumption, as well as effluent and water pollu- education across Bhutan.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 13: DEVELOP RENEWABLE ENERGY SECTOR

Document focus Competent authorities Recognized need to move beyond Bhutan Sustainable dependence on renewable Hydropower development Ministry of Economic Affairs hydropower to a mix of renewable Policy, 2008 energy sources Recognized need for an alternative Economic Development renewable energy policy to promote Ministry of Economic Affairs Policy, 2010 RE resources Identified long-term and short-term Ministry of Economic Affairs: Bhutan Renewable Energy objectives to broaden the energy Department of Renewable Policy, 2011 mix by harnessing clean renewable Energy energy sources Sets out plan to promote small-scale Ministry of Economic Affairs: Alternative Renewable solar and hydropower, including off- Department of Renewable Energy Policy, 2013 grid systems Energy

Diversify renewable sector With rising demand for electricity and Bhutan’s reliance on hydropower generation, the Depart- ment of Renewable Energy aims to broaden the energy supply mix by exploring other forms of clean and renewable energy sources. This will supplement hydropower generation, which is vulnerable to climate change impacts, and address the electricity shortage regularly faced during the dry season. Bhutan’s Alternative Re- newable Energy Policy, 2013 aims to promote alternative sources including solar power plants (photovoltaic and thermal), small-scale hydro- power20, geothermal plants, wind turbines and windmills, biomass and biogas plants. Bhutan has established a preliminary minimum goal of © Karma Tshering, NEC

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20 megawatts (MW) of renewable energy prod- rolled out in some dzongkhags, but this is done uct by 2025, through a mix of renewable ener- cautiously, mindful of the noise impact on neigh- gy technologies21. Actions include conducting bouring communities’ happiness and well-being. research and development with an objective to Alternative fuels for cooking stoves are also be- make the technologies appropriate, affordable ing trialled with communities, including use of and cost-competitive in future. biomass from cattle waste, and smokeless stoves using pellets made from wood waste. A key on- Ensure energy access for remote commu- going action is to develop Decentralised Distrib- nities uted Generation (DDG) projects22 for provision The development of off-grid systems to reach of energy-based services to remote and dis- remote mountain communities has been prior- persed villages, which are not electrified or not itized in a number of five-year plans, including connected to the grid, through solar thermal, so- training for communities in installation and re- lar photovoltaic and other stand-alone systems. pair of such systems. Wind turbines are being

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 14: IMPROVE ENERGY EFFICIENCY

Document focus Competent authorities helps govern demand side of National Energy energy management and guides Department of Renewable Efficiency & implementation of energy efficiency Energy, Ministry of Economic Conservation Policy, and conservation measures in Affairs; National Environmental 2019 building, industry, transport and Commission, National Housing household appliances Development Corporation Limited, sets out interventions required to Dzongkhag, Thromde and Gewog Energy Efficiency achieve national energy-saving Administrations Roadmap, 2018 targets in building appliance and industry sectors

Increase efficiency to reduce emissions country’s energy-saving target of 0.206 million As per Bhutan’s Nationally Determined Contribu- tons of oil equivalent for 15 years25. Interven- tion (NDC), 2015 towards the Paris Agreement, tions are organized sector-wise and over three the country intends to remain carbon neutral, time horizons; short term (0-5 years), medium not only through maintaining current levels of term (6-10 years) and long term (>10 years) for forest cover, but also through pursuing low-emis- three sectors: building sector, appliance sector, sion development pathways across energy-con- and industry sector (production and manufac- suming sectors – through promotion of energy turing). Detailed actions are outlined for each of demand side management. The importance of these energy-consuming sectors, based on rec-

Energy Efficiency and Conservation (EE&C) mea- ommendations from several studies26 to guide sures is reflected in theNational Energy Efficiency implementation of the EE&C Policy and inte- & Conservation Policy, 2017 (formally launched in gration into the five year planning cycle. Actions 2019), which aims to save at least 155 kilowatts include carrying out energy audits of energy-in- of electricity in a year, and reduce imports of fos- tensive industries, to examine where and how sil fuels23. Bhutan’s Energy Efficiency Roadmap, energy consumption can be reduced with mar- 2018, developed by the Department of Renew- ginal or moderate financial investments; and an able Energy, establishes the impact of energy Energy Endowment to provide low interest loans efficiency on country’s GHG emissions, in line for energy-efficient construction and industry. with the country’s NDC targets, with about 0.59

Million tCO2e emission reduction potential from Promote sustainable construction implementation of EE&C measures24. To achieve a future where a majority of buildings, towns, and cities in Bhutan are energy-efficient, Achieve sectoral targets for savings the Royal Government of Bhutan aims to kick- The Energy Efficiency Roadmap, 2018 elaborates start a Sustainable Building Initiative, bringing the key interventions required to achieve the stakeholders together in a centre for innovation,

71 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 advocacy and capacity building. An energy audit and knowledge-sharing mechanisms, and, in- will be carried out on all major public buildings, novation and technology. Enhancement will be followed by a retrofitting plan, and the National encouraged throughout the construction supply Housing Development Corporation and Minis- chain, with updated information on construction tries will be encouraged to use green designs and and insulation technologies, best practices, ma- insulation materials for the new towns. Actions terials, and suppliers. include the development of capacity, networks

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 15: REDUCE HOUSEHOLD AIR POLLUTION

Document focus Competent authorities National Sets the overarching legal Ministry of Health; Department Environment framework for environmental of Renewable Energy; Ministry Protection Act, 2007 protection and management of Economic Affairs; National Environment Commission; Ministry of Agriculture and Forests; Dzongkhag, Thromde and Gewog Administrations

Implement pollution abatement Roll out improved cookstoves Bhutan’s rural communities rely on coal and Through an international partnership, the unprocessed biomass fuels (wood, cattle Departments of Renewable Energy and Forests dung and crop residues) as the primary energy and Park Services are implementing a sustainable source for cooking and heating. When these rural biomass program to roll out energy- solid fuels are burned in traditional stoves, efficient cookstoves. Dzongkhag and Gewog high concentrations of harmful smoke and level awareness efforts are using networks of particles are generated, termed “household air non-formal educators and women entrepreneurs pollution” (HAP). One study in Bhutan found to train households – who construct their own household air with a concentration of ultra-fine stoves, with the government subsidizing the particles (particulate matter or PM of less than metal components. Improved stoves produce 0.1 μm), during cooking time – comparable to less smoke and have proper chimneys, reducing typical concentrations from traffic inside road levels of indoor pollution significantly. Actions tunnels27. Women and children generally spend are being taken to replicate these and similar more time indoors and are exposed to HAP technologies across Bhutan. daily, causing respiratory disease, lung cancer and heart disease. The National Environment Switch to cleaner fuels Commission’s policy objectives include ensuring Actions also include the Royal Government of that adequate pollution abatement techniques Bhutan subsidy for liquid petroleum gas (LPG), and environmental management systems are and actions to promote LPG as a cleaner option in place. Indoor air pollution is currently not than firewood and other solid fuels. Bhutan specifically regulated by law in Bhutan, but imports 700 metric tonnes of LPG from India technologies are being disseminated to reduce every month and provides this at a subsidized this problem. rate. In 2019 this was augmented by a further of

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1,000 metric tonnes of non-subsidized LPG, but uptake of this has been limited, while shortages of subsidized gas have been experienced28. The growing demand for subsidized gas, especially in larger towns, indicates a growing adoption of this technology for household use. However, challenges of accessibility and affordability remain, and in rural communities, shifting to clean fuels as a primary energy source will remain a challenge – given the prevalence of customary intensive cooking practices, such as liquor distillation and cattle feed preparation.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 16: PROVIDE EARLY WARNING FOR WINDSTORMS

Document focus Competent authorities Disaster Management Act Strengthens institutions for Disaster Management of Bhutan, 2013 mainstreaming risk reduction, and Office, Department of Local coordinated disaster management Governance, Ministry of with community participation Home and Cultural Affairs; Disaster Risk Management Provides guidance on Disaster Risk Royal Insurance Corporation Strategy: “Safe, Resilient Management, roles for agencies and of Bhutan; National and Happy Bhutan”, 2015 stakeholders and links to Climate Environment Commission, Change Adaptation and sustainable Ministry of Economic Affairs development

Manage increased windstorm risk livestock. Thousands of households in more than 20 districts of the country have been affected by windstorm damage over the past decade29. The Bhutan Disaster Risk Management Status Review, 2014 was carried, concluded that it is imperative that this emerging high-risk hazard is included in future multi-hazard risk assessments and mapping, making resources available to carry out technical research and plotting of windstorm events. A five-year program through the Minis- try of Works and Human Settlements seeks to “Pursue green growth in construction sector”, by improving the quality of infrastructure and promoting green and disaster-resilient construction technologies by professionalising the construction sector.

© Dorji Phuntsho, NEC Respond to windstorm disasters Bhutan’s Disaster Management Strategy allows Windstorms are amongst the set of natural di- for responses to windstorm damage – providing sasters that are anticipated to become more fre- those affected with tents for temporary shelter, quent and severe as a result of climate change. and assistance with rebuilding homes and Gewog Windstorms are already common in Bhutan, structures. Immediate post-disaster relief efforts resulting in injury by fallen trees and blown-off are provided through Dzongkhag Disaster Offic- roofs, uprooting of power cables, damage to es and sometimes through the deployment of homes and other buildings, and loss of crops and the armed forces, supported by Dee-suups (mili-

75 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 tia volunteers). The Royal Government of Bhutan cludes warnings that extreme weather is antic- provides compensation for windstorm damage ipated, including impending windstorms. Public through the Royal Insurance Corporation of Bhu- awareness will be promoted, with emergency tan30, to enable destroyed or damaged homes to preparedness plans for communities likely to be rebuilt. Actions to build stronger structures in be affected, including evacuation where neces- areas prone to windstorms could lower compen- sary. A five-year program is being implemented sation claims resulting from damage, and reduce through the National Centre for Hydrology and overall costs in the long term. Meteorology on “Hydrology, cryosphere and water resources information and early warning ser- Provide early warning of storms vices”, aiming to strengthen institutional capacity A network of real-time automated weather mon- including, infrastructure for regular monitoring, itoring and forecasting stations is being estab- risk assessment and an early warning system, to lished, as part of Bhutan’s adaptation to antici- minimize the impacts of natural disasters intensi- pated impacts of climate change, with increased fied by climate change. intensity and frequency of disasters. This in-

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Implementation Plan

Strategic Objectives Lead Collaborating Agencies Agency SO9: Remain carbon neutral NEC MoAF, MoIC, MoWHS, MoH, MoEA, ABI, BCCI, AWBI, LGs, MoE SO10: Improve ambient air quality NEC MoEA, ABI, BCCI, MoH, Industries under DHI SO11: Promote low-emission NEC & MoIC LGs, MoE transport SO12: Adopt cleaner technology NEC MoEA, ABI, BCCI, MoIC, MoH, Industries under DHI, MoE SO13: Develop the renewable energy MoEA NEC sector SO14: Improve energy efficiency MoHCA & NCHM NEC, LGs MoEA MoWHS, TCB, LGs, NEC SO15: Reduce household air pollution MOE and NEC MOWHS, LGs, MOH

SO16: Provide early warning for MoHCA & NCHM NEC, LGs windstorms

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Endnotes transport sector could reach 660,000 tons of carbon dioxide equivalent (tCO2 e) in 2030 - 1 Forests capture and store large amounts of Asian Development Bank, 2017.Bhutan Vehicle carbon, as well as helping regulate the climate, Emission Reduction Road Map and Strategy, 2017– and maintaining forest cover is vital for the 2025 Himalayan region and the world. 14 Between 2006-12, the number of forest- 2 “Bhutan launches national policy for energy based industries increased from 470 to 954 and efficiency, conservation” - www.xinhuanet.com the mineral based industries increased from 91 to 236 in the country – www.xinhuanet.com 3 In 2014, the country consumed around 650,220 15 Tonnes of Oil Equivalent (ToE) of energy – DNR, www.kuenselonline.com 2017 16 Forest Resources Management Division, 2018. 4 As per government record, the building sectorNational Forest Inventory Report Stocktaking in Bhutan contributed 42% of the total energyNation’s Forest Resources Volume II Department consumption in 2014, while the industry sectorof Forest and Park Services, Ministry of consumed 37%. The transport sector consumed Agriculture and Forests, Royal Government 19% of the total energy – of Bhutan - According to the National Forest Inventory, Bhutan’s forests currently store 709 Bhutan EDD 2015, Bhutan Building Energy million tonnes of carbon in the form of biomass Efficiency, Industry Audit Report, Appliances Audit carbon and soil organic carbon. Report, Technical Specifications for Energy Efficient Appliances 17 Department of Forest and Park Services, 2018 Forest Facts and Figures 5 As of 2017, the construction sector employed 18 Asian Development Bank, 2013. Bhutan over 3,866 contractors, generated 15.87% of Transport 2040 Integrated Strategic Vision Bhutan’s GDP, and employed 3.2% of the labour 19 force – DNR, 2017 ADB 2019 policy brief “Bhutan Vehicle 6 World Health Organization, 2016, Global UrbanEmission Reduction Road Map and Strategy, Ambient Air Pollution Database 2017–2025” 20 7 WHO, 2016 Defined as hydropower projects up to 25 MW. 21 8 WHO, 2016 Ministry of Economic Affairs, 2013.Alternative Renewable Energy Policy. This includes electricity 9 Gross National Happiness Commission,th 12 generation a) Solar – 5 MW, b) Wind – 5 MW, Five Year Plan 2018-2013, page 51 and c) Biomass – 5 MW; and energy generation 10 Department of Energy. 2005. Bhutan Energy a) Biomass Energy System - 3 MW equivalent, Data Directory 2005. Thimphu: Ministry of and b) Solar Thermal System - 3 MW equivalent Economic Affairs, Royal Government of Bhutan 22 In terms of the policy, such projects qualify for 11 ADB 2019 policy brief “Bhutan Vehicle an additional five years income tax holiday – for Emission Reduction Road Map and Strategy, project developers, manufacturers and system 2017–2025”- according to the Road Safety integrators of RE projects established in the and Transport Authority in June 2015, HDVs remote areas of the Kingdom as notified by the accounted for 73% of the total number of vehicles NA based on poverty levels and other strategic in the country based on and were responsible for reasons about 70% to 90% of local pollutants and nearly 23 Department of Renewable Energy, Ministry of 60% of GHGs in the country. Economic Affairs, 2017.National Energy Efficiency 12 Road Safety and Transport Authority, www. & Conservation Policy rsta.gov.bt 24 Department of Renewable Energy, Ministry 13 Based on current trends of vehicle acquisition of Economic Affairs, 2018. Energy Efficiency and fuel import standards, and without any Roadmap policy interventions, vehicle inventory in the 25 Department of Renewable Energy, Ministry country could increase to 180,000 units by of Economic Affairs, 2018. Energy Efficiency 2030. With this, emissions from the domestic Roadmap

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26 Bhutan EDD 2015, Bhutan Building Energy Efficiency, Industry Audit Report, Appliances Audit Report, Technical Specifications for Energy Efficient Appliances 27 Wangchuk, Tenzin et al., 2015. “Children’s personal exposure to air pollution in rural villages in Bhutan”. Environmental Research 140: 691-698 28 Response by Minister of Economic Affairs, Loknath Sharma, to question in the National Assembly on 14 June 201p, www.theBhutanese. bt 29 www.kuenselonline.com 30 RICBL compensates up to a maximum Nu 30,000 per household. www.kuenselonline.com

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Chapter 4: WATER

Bhutan has an abundance of water resources of increasing concern that population growth and good quality – from snow, glaciers, rivers, lakes, fast urbanization are outpacing the installation streams, springs, wetlands, rainwater, soil mois- of sewerage treatment and solid waste collec- ture and groundwater. Water has shaped the tion, threatening the water quality, especially in traditions and culture of the Bhutanese people, areas downstream of towns and cities. Localized with centuries of communal water sharing and pollution of rivers, lakes and groundwater occurs collective management practices. Water is im- from municipal wastewater, improper disposal portant in traditional spiritual cleansing and rit- of waste, discharge of industrial effluents, min- ual ceremonies, and the dwelling places of dei- ing and road construction. Increasing sediment ties are often associated with water bodies1. The loads in the rivers and streams, as a result of de- country’s rich freshwater resource provides the velopmental activities, is impacting negatively on foundation for life and for all economic activi- aquatic biodiversity3. The impact of agro-chemi- ty, including the country’s four major economic cals and fertilizers are on land and water resourc- drivers of agriculture, hydropower, tourism and es has not been systematically assessed. small-scale industry, as well as for therapeutic and religious purposes. Agriculture – which con- Though some major towns in Bhutan have sew- sumes over 90% of water resources – employs erage treatment plants, other small towns and over half our population and contributes over rural household use individual septic tanks and 15% of the country’s GDP. The energy sector in pit toilets to treat sewage. Less than 20% of to- Bhutan, comprised almost wholly of hydropow- tal households in Thimphu4 are connected to the er, accounts for a fifth of the nation’s GDP and, sewer system and the rest rely on individual sep- almost the same share of all revenue earned2. tic tanks emptied by a vacuum tanker. Domes- tic sewage, uncontrolled seepage, or overflows Although, Bhutan has high per capita water avail- from septic tanks are some of the main sources ability in theory, the mountainous terrain and of water pollution. Thimphu’s sewer system is deep gorges restrict water harvesting to small connected directly into the river, and leachate river tributaries, streams, springs and aquifers. from the waste landfill in Memelakha also seeps These sources are vulnerable to seasonal vari- into the Olarong Chhu. In addition to sewage ations in precipitation, exacerbated by climate (black water), discharging grey water directly change, and disturbances from human activities into the stormwater drains is also of concern, as such as grazing, extraction of forest resources, it pollutes the river downstream, and stormwa- and mining and quarrying. Changes in the hy- drological cycle, such as lower winter flows in streams and intense monsoons, may cause both flooding and localized water shortages, and affect irrigation and drinking water as well as hydropower generation. Increasing urbanization and population pressures in cities have also started affecting water quality, with growing concerns about water pollution. This section explores these water-related challenges, to which the National Environment Strategy responds.

Challenges related to water quality National Environment Commission surveys and monitoring indicate that Bhutan’s water resources are healthy at the macro level, but there is an © Karma Tshering, NEC

82 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 ter is not treated. Plastic waste in rivers is also increasing, as consumption patterns change and waste management services battle to keep up with growing urban populations. In towns where there are large concentrations of automobile workshops, the discharge of waste oil and other effluents is a significant source of water pollution.

Over 97% of Bhutanese people have access to improved drinking water, but water quality is not always safe for drinking. A civil society water quality monitoring program started in 2017 found that key rivers in Bhutan contained significant levels of E. Coli bacteria. Water with any © Dorji Phuntsho, NEC amount of E. Coli bacteria (a direct indication estimate that by 2100, South Asian countries, in- of faecal contamination) is considered unsafe cluding Bhutan, will experience a 5% decrease in to drink. Unclean water has been traced to nu- rainfall during the dry season6. According to the merous diseases, such as cholera, fluorosis and National Irrigation Master Plan, 2016, of the total typhoid fever. Diarrhoea, a preventable disease, 105,682 acres of cultivated land, 64,248 acres is one of the most common diseases that many still depends on the rain-fed traditional irrigation Bhutanese suffer from every year, with drinking system7. Use of bore-wells is increasing, and the water quality a key contributing factor. Accord- valleys of Paro, Punakha, Thimphu, Wangdue, ing to Royal Centre for Disease Control, of 5,740 and areas bordering the plains of India may have samples that were tested in 2016 for thermo tol- significant groundwater reserves, but these must erant coliform only 44.3% were found to be safe be accessed cautiously to avoid risk of over ex- for human consumption5. Before 2016, water traction, contamination and land subsidence. providers had no obligations to conduct water testing and treatment. Now there is a system in Bhutan has made considerable progress in terms place, but ongoing challenges are experienced in of coverage for both rural and urban water sup- terms of human resources, equipment, funding ply and sanitation in the last three decades8. and institutional linkages. However, the functionality of the water supply infrastructure in both rural and urban areas Challenges related to water availability and needs improvement. In rural areas, the scattered infrastructure nature of settlements means water treatment Despite high overall water availability per capita, plants are not practical, and infrastructure is Bhutan is confronted with localized and season- limited to water pipes, intake structures, water al water shortages for drinking and agricultural storage tanks and taps. According to the 2017 purposes, which pose an obstacle to develop- census, only about 81% of housing units have ment. Drinking as well as irrigation water short- reliable water supply during the critical hours of age is a growing challenge, especially during the the day (morning, noon and evening), and about dry winter months. Much water for domestic use 1.6% of households still need to travel for at and small-scale irrigation comes from springs least 30 minutes to the nearest water source9. and aquifers. In some areas these sub-surface Drying up of water sources has been reported in sources have dried up because of increasing sur- 19 communities, comprising 336 households10. face run off, caused by ecological degradation, Rural sanitation facilities consist predominantly and by changing monsoon patterns. Scientists of pit toilets, followed by pour flush toilet and

83 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 others. Urban sanitation relies on septic tanks, many without a soakpit, discharging effluent directly into the environment.

Challenges related to climate-intensified disasters Bhutan’s vulnerability to water-induced disasters is well known. The country’s mountainous terrain makes for rapid surface runoff, and the rivers, running through deep gorges and ra- vines, receive huge volumes of water during © Dorji Phuntsho, NEC the summer monsoon. As the climate changes, with more frequent cloudbursts, flash floods are This was followed by Dig Tsho GLOF in 1998, and likely to become increasingly common11. Serious western Zyndan GLOF in 2008. A major GLOF flood events in recent years include the 2000 event occurred in 2015 with the collapse of the monsoon floods in Phuentsholing, which closed Lemthang Tsho, a source of the Mochu river, the highway to Thimphu for nearly a month, the which also affected water supply to agricultural 2004 eastern Bhutan monsoon floods, the 2009 communities in the valley. floods induced by Cyclone Aila, and the 2016 southern Bhutan monsoon floods, in which Sar- Challenges related to hydropower pang town was completely washed away. Floods The hydropower sector is the backbone of the also cause loss of soil fertility – with erosion Bhutanese economy, catering to 72% of industri- of topsoil, landslides and formation of rills and al energy needs and 34.3% of residential energy gullies, as well as seepage of nutrients from wa- needs14. Hydropower is also the nation’s biggest terlogged fields. The landslide on the Tsatichu source of revenue, enabling the great strides River in 2003 demonstrated the vulnerability of of recent decades in improving service delivery the hydropower sector, creating a new lake that and living standards. The rugged mountainous could pose dangers to the downstream Kurichu terrain, swift-flowing rivers fed by the many gla- Hydropower station. ciers and glacial lakes and monsoon rains, and well-preserved watersheds have blessed the As mean temperatures increase with climate country with tremendous hydropower resourc- change, Bhutan’s 677 glaciers are melting and es – with an estimated total potential of 30,000 retreating12, leaving behind growing reservoirs MW from 70 river-based sites and six reservoirs, of water which can burst, releasing millions of with about 24,000 MW of this being technical- cubic metres of water in flash floods, with land- ly feasible. Hydropower provides a clean and slides, siltation of rivers, and damage to hydro- renewable source of energy that helps Bhutan power infrastructure13. These events of Glacial retain low levels of emission of greenhouse gas- Lake Outburst Flooding (GLOF) have increased es. According to the 12th Five Year Plan, 2018- in frequency in the last 50 years. There were 21 2023, Bhutan’s economy remains undiversified, GLOF events recorded in Bhutan over the past and over-reliant on the hydropower sector, with 200 years, with five events in the last 40 years. a 30% share of the economy15. The most catastrophic event was in 1994, when Luggye Tsho (Lake) in eastern Lunana burst, gen- The hydropower sector is also vulnerable to cli- erating floodwaters of 2 metres in height over a mate change, with the most significant climate distance of 200 km. The flood resulted in 20 lives risk coming from glacial lake outburst flooding being lost, yaks and food grain washed away, and which can cause catastrophic failures of dams damage to houses, watermills, bridges and fields. and hydropower infrastructure. With rapid melt-

84 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 ing of glaciers, river flows are likely to change, undermining the very basis on which the hydropower projects are being planned. Other major risks include unpredictable rainfall patterns, since all the current hydropower schemes do not have any storage capacity, the power generation fluctuates according to the seasonal and daily variation of discharge in rivers. Flow can also be impeded by increased sediment load in rivers as a result of landslides and flash floods triggered by heavy rains, decreasing the expected output and economic life of hydropower plants. Low river flows in the dry winter at the same time when there is surge in electricity usage for space heating, create seasonal electricity deficiencies and push government to import electricity.

Hydropower construction causes irreversible change to the natural landscape, and negative social and environmental impacts are caused by muck and debris, drilling and blasting. At present, hydropower plants are concentrated in the mid- © Karma Tshering, NEC dle to lower parts of the basins and are primarily ‘run-off-the-river’ schemes, but many have some tainably, following an integrated water resource storage and long tunnels, diverting a significant management approach, is essential for balancing part of the river’s flow out of the river channel, the needs of conservation with those of devel- and putting aquatic ecosystems under severe opment. stress. Submergence due to pondage or reservoirs, flow alterations, blockage of fish migra- Based on existing policy, legislation, rules and tion paths due to dams, rivers drying up below regulations and guidelines, Bhutan’s National En- dams as water is diverted, impacts of tunnelling vironment Strategy has the following water-re- on natural springs, debris disposal, impacts of lated Strategic Objectives: operating turbines for generating peaking pow- • Strategic Objective 17: Institutionalize and er which will lead to extreme flow and water implement integrated water resource man- level fluctuations – all these are likely to impact agement aquatic ecosystems badly. Massive expansion of • Strategic Objective 18: Prevent freshwater hydropower would destroy the pristine river val- pollution leys, the rich biodiversity and the beauty of the • Strategic Objective 19: Improve access to region on which tourism depends. safe drinking water and sanitation • Strategic Objective 20: Prevent damage from Historically, the multiple institutions governing flood disasters water use in Bhutan have had weak functional • Strategic Objective 21: Ensure sustainable linkages at policy, planning and programming development of hydropower levels, leading to duplication of efforts, weak co- • Strategic Objective 22: Ensure efficient use ordination and dispersed accountability. Devel- of water resources. oping capacity to manage water resources sus-

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 17: INSTITUTIONALIZE AND IMPLEMENT INTEGRATED WATER RESOURCE MANAGEMENT

Document focus Competent authorities Ensures that water is available in National Environment Water Policy, 2003 abundance to pursue socioeconomic Commission; Ministry development of Works and Human Enshrines concept of integrated Settlement; Ministry water resources management, and of Health; Ministry of Water Act of Bhutan, 2011 prioritizes management of water Agriculture and Forests; for drinking and sanitation, then for Ministry of Home and agriculture and hydro energy Cultural Affairs; Ministry of National IntegratedWater Establishes framework and Economic Affairs Ministry of Resource Management Plan, priorities for implementation Education; Bhutan Electricity 2016 of integrated water resources Authority; Dzongkhag Water management Management Committees

Strengthen and capacitate IWRM institutions Improve integrated service delivery Bhutan’s 2020 Vision states that the effective Improvement in integrated water resource man- management of watersheds must be considered agement and service delivery should be based a key component of our efforts to place the na- on regular stakeholder consultations and coordi- tion’s development on a sustainable path, since nation meetings, aiming to integrate programs, water is a precious natural resource and a heri- plans and policies of all sectors dealing with tage important to all aspects of social, economic water. The National Integrated Water Resource and environmental wellbeing. A key goal of the Management Plan, 2016 promotes inter-agen- Water Act of Bhutan, 2011 is to create the condi- cy coordination for development, management, tions for a shift from a fragmented approach to conservation and efficient use of water resourc- an integrated approach for the management of es, including surface and groundwater resources. water resources, with decentralized water gover- Integration and consolidation of the water sup- nance. As per the Act, River Basin Management ply and distribution network should also lessen Committees and Water Users’ Associations are instances of illegal tapping, water connection to be formed to ensure implementation of water bypassing water meter, and diversion of water plans and promote local capacity development supply16. Agencies are collaborating on tracking and water security. WUAs can take actions to the Bhutan Water Security Index (NECS to take enhance water availability for household use, the lead in integrating water information system wetland paddy and irrigating vegetables, resolve lying with various agencies in order to have one disputes and ensure equitable distribution. integrated water information system at national

86 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 level to avoid duplication of resources) – a sys- proofing water distribution systems; and (iv) in- tem for planning and monitoring the status of tegrated watershed and wetland management. the water resources at basin and sub-basin/dis- As part of NAPA implementation, plans include trict-level scale. Key actions include the devel- undertaking comprehensive surveys of water opment of Integrated River Basin Management resources, building of scenarios, and study of Plans, such as those which have been developed indigenous and emerging interventions, to make for Wang Chhu and Kulong Chhu, for all basins. the case for scaling-up adaptation. This includes Payments for Ecosystem Services can also be up- action to undertake site-specific studies on po- scaled, building on successful cases, e.g. where tential for sustainable groundwater extraction, a water association and hotel operators provide allowing for recharge and avoiding negative im- payments to a group of households managing an pacts on the water table. In implementing the upstream watershed17. National Land Use Zoning Implementation Guide- lines, 2018, efforts will be made to protect and Manage water resources for a changing preserve watersheds, wetlands and forest eco- climate systems that are important for adaptation. Two Bhutan’s Nationally Determined Contribution relevant five -year programs implemented by the (NDC), 2015 highlights the country’s commit- Ministry of Agriculture and Forests are: “Climate ment to increase resilience to the impacts of cli- smart and disaster resilient development”, to ex- mate change on water security through Integrat- plore alternative water sources for continuous ed Water Resource Management approaches, drinking and irrigation water; and “Sustainable including (i) water resource monitoring, assess- natural resource management and utilisation”, ment and mapping; (ii) adoption and diffusion of to undertake effective management of wetlands new, innovative and appropriate technologies and watersheds for reliable water supply. for water harvesting and efficient use; (iii) climate

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 18: PREVENT FRESHWATER POLLUTION

Document focus Competent authorities Water Act of Aims to protect water resources of National Centre for Hydrology and Bhutan, 2011 Bhutan and manage them efficiently Meteorology; Environment Unit, and sustainably Department of Industries, Ministry Water Regulation of Regulates effluent wastewater/ of Economic Affairs; Royal Centre for Bhutan, 2014 discharge, to minimize pollution and Disease Control; Ministry of Health: ensure quality Department of Public Health, Water Quality Includes ambient water quality Public Health Engineering, National Standards, 2018 criteria, industrial effluent discharge Environment Commission; Ministry standards and standards for of Works and Human Settlement; sewerage effluent National Water Reference Laboratory; Dzongkhag, Thromde and Gewog Administrations

Strengthen enforcement of effluent Improve sewerage treatment facilities discharge standards The Water Quality Standards, 2018 clarifies the In order to improve the quality of water in roles and responsibilities of Thromdes/Munici- Bhutan’s rivers, Government is committed to palities in conducting monitoring of effluent dis- strengthen enforcement of the effluent dis- charged from their sewage treatment plants, to charge standards contained in the Water Regu- ensure that discharges are within the prescribed lation of Bhutan, 2014. These standards were standards. Government continues to expand and further developed in the Water Quality Stan- improve the coverage of sewerage treatment fa- dards, 2018, which includes updated industrial cilities, especially in urban areas, where this is an effluent discharge standards and clarifies that urgent need. In terms of the National Integrated the Environment Unit, Department of Industries, Water Resource Management Plan, 2016, every Ministry of Economic Affairs should conduct Thromde and Dzongkhag Administration should monitoring for listed projects, and ensure efflu- prepare an Integrated Water Use Management ent discharge standards are complied with the Plan based on demographic projections for the industries, and that the National Environment next decade, to ensure efficient water supply and Commission Secretariat should conduct verifi- effluent disposal, including drainage systems, in cation monitoring of effluent discharges, and in- its jurisdiction. This should include actions for vestigative monitoring in case of deterioration of treatment of leachate from waste landfill sites, as the water quality. This includes taking actions to per the Waste Prevention and Management Regu- enforce the requirement for car-wash facilities to lations, 2012. International partnerships are also establish effluent treatment plants. enabling the piloting of an energy-saving small-

88 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 scale sewage system and low-cost wastewater Intensify urban clean-up campaigns treatment plant in Thimphu. Under the leadership of the Her Majesty The Gyaltsuen Jetsun Pema Wangchuck, Clean Bhu- Monitor drinking water quality tan campaigns have been conducted in towns To comply with government policies, legislation and villages, with 20 clean-up programs along and rules according to the Water Act of Bhutan, the four rivers of Thimphu Chhu, Paro Chhu, 2011, and the Water Regulation of Bhutan, 2014, Punakha Chhu (Po Chhu/Mo Chhu) and Chuba the Ministry of Health was mandated to monitor Chhu stream in Thimphu, and awareness is grow- drinking water quality in urban and rural areas, ing about the need to recycle plastic packaging. coordinated by the Royal Centre for Disease The National Environment Commission has also Control. The Bhutan Drinking Water Quality Stan- initiated a campaign, “My waste, my responsi- dard was adopted in 2016 by the National En- bility” which was launched by Her Majesty The vironment Commission to protect public health Gyaltsuen in June 2019, through which Bhutan and improve water quality, setting safe con- will observe on the second day of every month a centrations of drinking water parameters, and “Zero Waste hour” to achieve its vision of a Zero supporting quality management (e.g. sampling, Waste Society by 2030. testing, reporting and documentation) by all service providers. An Urban Drinking Water Quality Monitoring System ensures monthly testing by district laboratories from 34 reporting centres including hospitals and basic health units, and a Rural Drinking Water Quality Monitoring System undertakes bi-annual testing in the wet and dry seasons. According to the latest Annual Drinking Water Quality Report18, and key actions include training health-workers to monitor rural drinking water quality and enter data into an online water quality and monitoring information system. © Karma Tshering, NEC

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 19: IMPROVE ACCESS TO SAFE DRINKING WATER AND SANITATION

Document focus Competent authorities Water Policy, 2003 Ensures that water is available National Environment Commission; in abundance to pursue Ministry of Health; Ministry of socioeconomic development Works and Human Settlements; National Establishes framework and Department of Forest and Park Integrated Water priorities for implementation Services, Ministry of Agriculture and Resource Management of integrated water resources Forests – Department of Agriculture; Plan, 2016 management Dzongkhag, Thromde and Gewog Administrations

Rejuvenate rural water sources Promote climate-resilient water The Royal Government of Bhutan has identi- harvesting, storage and distribution fied lake and spring revival and watershed man- Partnerships with CSOs/NGOs and donors have agement as a priority in the 12th Five Year Plan, made possible the construction of climate-resil- 2018-2023, with activities being undertaken ient water harvesting, storage and distribution by the Watershed Management Division of the systems in several Dzongkhags. At Gewog lev- Department of Forest and Park Services. This el, Water User Associations are taking action to aims to improve availability and accessibility of improve water supply – introducing rainwater water, making communities more resilient to climate change. In some areas, areas around dried up lakes and springs have been revegetated with native species, or springs have been fenced off to protect against trampling by livestock, allowing them to recover. Actions are being taken to ex- periment with recharging spring-sheds through digging trenches and ponds to trap water in the monsoon and allow it to percolate into the ground. Preservation of traditional water sources can go along with maintaining cultural practices such as installation of Lubum at water sources. © Dorji Phuntsho, NEC

90 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 harvesting, renovating old irrigation channels, of Works and Human Settlements on “Water, and constructing new storage and distribution Sanitation and Hygiene (WASH)”, aiming to pro- systems. Members contribute to collective sav- vide access to 24x7 safe drinking water to both ings to protect water sources and maintain water rural and urban households, to develop, monitor distribution systems, increasing water availabil- and evaluate water safety plans in both rural and ity for household uses, livestock and rice culti- urban areas. Actions will include improved wa- vation, improving hygiene and sanitation, and ter quality testing and surveillance, and support freeing up time for women and children. Water to Gewogs and water user associations to con- conservation actions are being combined with struct new water supply schemes, rehabilitate soil conservation to prevent erosion and en- existing schemes and protect water sources. The hance soil fertility, with Dzongkhag agricultural program will also ensure adequate irrigation wa- extension support to understand crop water and ter, with the area of (Chhuzhing terraced paddy nutrient requirements. Bore-well use also needs fields) monitored as a Key Performance Indica- to be investigated through scientific studies to tor in the 12th Five Year Plan. A five-year “Local assess where groundwater can be extracted sus- Government program on community health en- tainably. hancement and water security” will resource the provision of safe drinking water and pour flush Expand water and sanitation facilities toilets for the poorest households. By the end The Royal Government of Bhutan is committed of the Plan period, it is expected that all house- to continuing the expansion of water and sanita- holds should have access to improved sanitation, tion facilities in urban and rural areas throughout as per the Key Performance Indicator. In order to the country, as set out in the Draft National San- ensure efficiency and reliability of water supply, itation & Hygiene Policy, 2019. A five-year pro- creation of an agency for water supply services is gram, 2018-2023, implemented by the Ministry being explored.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 20: PREVENT DAMAGE FROM FLOOD DISASTERS

Document focus Competent authorities Sets out anticipated increased National Adaptation National Environment Commission; risk of GLOF events from global Program of Action, 2006 Department of Geology and Mines, warming, and key adaptation (updated in 2012) Ministry of Economic Affairs strategies and priorities Strengthens institutions for mainstreaming risk reduction, National Disaster Management Authority National Centre for Disaster Management and coordinated disaster Hydrology and Meteorology; Act of Bhutan, 2013 management with community participation Department of Hydro Met Services, Ministry of Home and Cultural Affairs – Department of Disaster Establishes coordination and Management; National Weather Disaster Management facilitation mechanisms for Forecast and Flood Warning Centre; Rules and Regulations, international teams Ministry of Works and Human 2014 during response and relief Settlement – Flood Engineering operations Management Division; Department Provides guidance on Disaster of Medical Services, Ministry of Risk Management, roles for Disaster Risk Health; Disaster Management Office, agencies and stakeholders Management Strategy, Department of Local Governance; and links to Climate Change 2017 Ministry of Economic Affairs National Adaptation and sustainable Environment Commission development

Integrated approach to flood risk ments, including agricultural fields. Key actions management by the Division include carrying out flood risk as- Building on the Disaster Management Act of Bhu- sessment studies and implementing innovative tan, 2013, the Disaster Risk Management Strat- construction technologies, including protecting egy, 2017 includes composite risk assessment riverbanks with gabions, reinforced cement con- reports and hazard maps for Bhutan, with an crete walls, Articulating Block Mattresses etc. A integrated and coordinated approach to flood five-year program through the Ministry of Home control and management. The Flood Engineer- and Cultural Affairs on “Enhancement of disaster ing and Management Division under the De- risk reduction and management” will strengthen partment of Engineering Services is responsible disaster preparedness, response and recovery for planning, designing and implementing flood capacity. protection structures along flood-prone settle-

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Extend flooding early warning systems Manage risks of glacial lakes In terms of the Disaster Risk Management Strat- Important activities to adapt to GLOF threats egy, 2017, Government is developing flood ear- highlighted in the National Adaptation Program of ly warning systems along high-risk rivers, and Action, 2006 (updated in 2012) were: (i) instal- building a robust national network of weather lation of early warning systems with associated stations. Donor support has enabled capaci- awareness raising (especially Punakha-Wangdi ty building with staff of the National Weather Valley); (ii) hazard zoning to prevent develop- Forecast and Flood Warning Centre to provide ment of infrastructure in red zones (especially weather and climate advisories. Most weather Chamkar Chhu basin); and (iii) assessment of stations have been automated to provide near GLOF threats for hydropower projects. Current real-time information, and prediction models strategic priorities include strengthening the are being tested in high-risk river basins. The monitoring of potentially dangerous glacial lakes National Centre for Hydrology and Meteorology and instituting a network of GLOF early warning now has a 24/7 monitoring system in place, with systems covering all river basins and sub-basins staff trained in satellite rainfall estimation meth- at risk, building on the experience and capacity ods and flood prediction. Actions is being taken accrued from the development of pilot GLOF to establish flood forecasting and early warning early warning system in Puna Tsang Chhu. An- systems with vulnerable communities, based on other vital action is the development of GLOF disaster management plans that include fore- hazard mapping and zonation for all vulnerable casting, prevention, evacuation and mitigating river basins and sub-basins followed by sensi- measures. tization with local communities, and establishment of early warning systems. Prevent landslides from floodwaters Recent years have seen increasing investment in Artificially lower glacial lake levels the area of disaster risk reduction, with support Cooperating with a number of partners, the Roy- from international partners, including landslide al Government of Bhutan has worked to lower prevention work through slope stabilization and the level of water in high risk glacial lakes, includ- bioengineering, and constructing environmen- ing the Thorthormi Tsho and Raphstreng Tsho, to tally friendly roads, bridges and other infrastruc- mitigate the immediate threat posed by these ture. Hazard mapping for landslides and stabili- lakes outburst to the population in the Puna- sation works are being carried out in flood-prone kha-Wangdi and Chamkar valleys in central Bhu- areas, using a combination of state-of-the art tan. This is being done through controlled drain- engineering solutions such as soil nailing and age – lowering the level of the lakes by bringing shot-creting, gabions walls, sand-bag check workers and equipment to great altitudes to ex- dams and bioengineering techniques. With cavate an artificial spillway, digging with shovels flood and landslide protections in place, during to widening the existing outlet channel. This re- the heavy monsoon season, communities can quires detailed geographical and geological sur- rest assured their lands are safe. Integrated riv- veys, an evacuation plan in case the lake collaps- er basin management and water user structures’ es, a sound engineering plan and an extensive disaster management plans also include action system of training and evaluation. A five-year on watershed management – conserving forest program through the National Centre for Hy- cover, protecting riverbanks, and revegetating drology and Meteorology (NHCM) on “Hydrolo- bare slopes. gy, cryosphere and water resources information and early warning services” will strengthen infrastructure for regular monitoring, risk assessment and risk-reduction interventions.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 21: ENSURE SUSTAINABLE DEVELOPMENT OF HYDROPOWER

Document focus Competent authorities Strategic Environmental Guidelines for environmental impact Assessment Regulation, 2002 assessment Bhutan Sustainable National Environment Provides framework for sustainable Hydropower Development Commission, Ministry expansion of the hydropower sector Policy, 2008 of Health, Ministry of Water Regulation of Bhutan, Ensure minimum environmental Economic Affairs, Ministry 2014 flow to be maintained in rivers with of Agriculture and Forests, hydropower projects Ministry of Works and Economic Development Aims at accelerating the sustainable Human Settlements, Policy, 2016 growth of the large hydropower sector Dzongkhag, Thromde and National Integrated Water Establishes framework and priorities Gewog Administrations Resource Management Plan for implementation of integratedwater 2016 resources management

Expand current hydropower capacity proaches are included in the National Integrated Bhutan’s Economic Development Policy, 2016 is Water Resource Management Plan, 2016 and in aimed at accelerating the sustainable growth of the Integrated River Basin Management Plans the large hydropower sector as a source of clean being rolled out. Action needs to be taken to renewable energy. There are six fully commis- give effect to provisions in the Forest and Nature sioned hydropower projects with a total installed Conservation Rules and Regulations, 2017 for a capacity of 2,326 MW in operation. This is lessplough-back mechanism of 1% of royalties from than 10% of the potential, and as per the policy,hydropower development, to offset the impacts Bhutan aims to achieve a minimum power gen- and undertake watershed management activi- eration of 5,000 MW by 2022. Three new plantsties. are at various stages of construction. Future hydropower plans incorporating storage reservoirs Promote alternative renewable energy (at Bunakha, Sankosh, and Amochhu) may help The Alternative Renewable Energy Policy, 2013 stabilize and optimize electricity production. aims to promote alternate energy sources to diversify the energy base and enhance ener- Protect and manage upstream watersheds gy security, also using solar, wind biogas and There is an acknowledgement in the Water Act small-scale hydropower, and developing off-grid of Bhutan, 2011 of the need to protect and electricity systems to reach remote mountain manage the watersheds upstream of all hydro- communities. By 2014 a start had been made, power plants. Watershed-based adaptation ap- with 10 low-impact micro-hydropower and 13

94 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 mini-hydropower operations, contributing 8.8 Ensure environmental flows in rivers MW of electricity. Action is being taken to feed There is increasing awareness on the impor- in the experience being gained from develop- tance of ensuring environmental flows in the ment of non-hydro renewable energy sources rivers, even after construction of hydropower into the Power System Master Plan – 2040, cur- projects. The minimum environmental flows for rently under development. watercourses, set by the National Environmental Commission, were increased in the Water Regula- Carry out cumulative impact assessments tion of Bhutan, 2014 from 10% to at least 30% of Strategic Environmental Assessments are pro- the lean season flow, and are set out in the Final vided for in terms of the Economic Development Draft E-Flow Guidelines, 2019, with training pro- Policy, 2016 for all new or revised Hydropower vided to hydropower developers. This will deter- Public Private Partnerships, and a cumulative mine the necessary quantity, timing, and quality Impact Assessment was undertaken for multiple of water flow required to sustain freshwater and operations in the Kuri-Gongri basin in 2017. In estuarine ecosystems, human livelihoods and terms of theEnvironmental Assessment Act, 2000, well-being dependent on these ecosystems. A and the Strategic Environmental Assessment Reg- five-year program on “Strengthening water secu- ulation, 2002, detailed monitoring should be rity and enhancing management”, implemented undertaken of social and environmental impacts by the NEC Secretariat, will take acrtion to en- and mitigation measures, with reporting on the hance monitoring of environmental flow of major success of actions taken for rehabilitation and rivers. restoration.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 22: ENSURE EFFICIENT USE OF WATER RESOURCES

Document focus Competent authorities Water Act of Bhutan, 2011 Aims to ensure that the water National Environment resources are protected, conserved Commission, Ministry of and/or managed in an economically Health, Ministry of Economic efficient, socially equitable and Affairs, Ministry of Agriculture environmentally sustainable manner and Forests, Ministry of Works National Integrated Water Establishes framework and and Human Settlements, Resource Management priorities for implementation Dzongkhag, Thromde and Plan (NIWRMP), 2016 of integrated water resources Gewog Administrations management

Manage water demand channels to reduce conveyance losses; replacing The Water Act of Bhutan, 2011, aims to ensure surface (basin or furrow) irrigation with sprinklers that the water resources are protected, con- or drip systems; and mixing plant residues in soil served and/or managed in an economically ef- to improve water-holding capacity. Gewogs can ficient, socially equitable and environmentally also increase the number and volume of water sustainable manner; the mandate of the National retention structures such as check dams and Environment Commission includes the promo- rainwater tanks, and utilize groundwater through tion of water-friendly and water-efficient tech- sinking bore-wells, where studies show this can nologies. Managing demand for water is also one be done sustainably without lowering the water of the components of an IWRM approach, as table. In terms of the Plan, the Ministry of Agri- set out in the National Integrated Water Resource culture and Forests has responsibility to design Management Plan, 2016. This includes planned irrigation water conveyance infrastructure to op- actions to adopt cost recovery policies, utilize timize water use efficiency, and will take action water-efficient technologies, and establish de- to disseminate information through Dzongkhag centralized water management authorities at all Engineer and Agriculture Sectors (Note: There levels. are no positions/ offices at Dzongkhag Irrigation and currently irrigation activities are overlooked Adopt water-saving technologies by engineers and the agriculture sector). The National Integrated Water Resource Manage- ment Plan, 2016 also highlights technologies re- Raise community awareness lated to higher water use efficiency in agriculture: Water User Associations, are mandated by the use of mulch or plastic sheets to reduce evapo- Water Regulation of Bhutan, 2014, to take neces- ration; better irrigation scheduling to prevent sary measures to ensure efficient use of water by over-irrigation; better puddling of paddy fields members, and to mediate in any conflicts over to reduce seepage losses; piped / lined supply water access and use. River Basin Management

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Committees are charged with promoting and able consumption and production patterns has rewarding positive behavioural changes toward become vital. In Bhutan’s farming areas, mod- efficient water use and protection/maintenance ern technologies and methods can be used to of water sources. In terms of the Plan, the Minis- minimize water lost through seepage, e.g. lining try of Health is mandated to identify and provide irrigation channels. The scarcity of safe drinking incentives or subsidies for water saving schemes water in and around populated areas has caused or better wastewater management in rural ar- the government to invest considerable sums of eas. Civil society also plays an important role in in water storage and distribution systems, not demand management and raising awareness on all of which are efficient, and sometimes large water-saving technologies. Actions are being amounts of water go to waste through poor taken by Thromde administrations to improve management and maintenance. A draft policy on metering, water pricing and infrastructure main- Sustainable Production and Consumption will tenance. Surveys have shown that households include addressing the issue of water-efficien- in Thimphu are willing to pay significantly more cy, based on the vision in the Bhutan Water Act, than the current low monthly charge for water 2011 that water resources should be managed and sanitation, and the revenue generated can in an economically efficient, socially equitable, be used for improving and maintaining water and environmentally sustainable manner. Chang- supply and sewage networks19. es in water-use efficiency over time can also be achieved through governance and financial Efficiency in water resource use mechanisms, taking action on water budgeting, Globally, many economies are heavily dependent governance structure and practices, non-reve- on natural resource use and extraction, and use nue water rates and water tariffs. water resources wastefully. Achieving sustain-

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Implementation Plan

Strategic Objective Lead Collaborators Key Performance Indicators Agency SO17: Institutionalize NEC NEC, NCHM, Strengthen IWRM: & implement IWRM LGs, MoAF • Management plan, process and implementation All Ministries, • Water user associations Autonomous • Stakeholder consultation and agencies, LGs, participation Thromdes Improvement in service delivery: • Stakeholder consultations • Coordination meetings Integration of programs, plans and policies of other sectors dealing with water SO18: Prevent Freshwater Pollution SO19: Improve access MoH NEC, MoWHS, • Proportion of population using safely to safe drinking water LGs managed drinking water services & sanitation • Proportion of population using safely managed sanitation services, including a hand-washing facility with soap and water • Proportion of wastewater safely treated: 1. Number of wastewater treatment plants 2. Households connected to sewerage system SO20: Prevent DDM MoWHS, • Number of deaths, missing persons and damage from flood NCHM, LGs, directly affected persons attributed to disasters MoAF disasters per 100,000 population • Direct economic loss in relation to global GDP, damage to critical infrastructure and number of disruptions to basic services, attributed to disasters Other key indicators: 1. Vulnerability assessment 2. Early warning system in place 3. Awareness 4. Disaster risk reduction plan 5. Agro meteorology services provided

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SO21: Ensure MoEA NCHM, LGs. • Number of detailed feasibility study and sustainable DoFPS implementation in line with Hydropower development of Development Masterplan Hydropower Other key indicators: 1. Strategic Environment Assessment carried out for the hydropower sector 2. Detailed consultation and integration of other sector’s plans and policies in the river basin 3. Upstream down stream linkages 4. Hydrogeology assessments and the impact of hydropower development on the landscape, focus on water and wetlands. SO22: Ensure MoWHS Thromdes, LGs Change in water-use efficiency over time efficient use of water 1. Water budgeting resources 2. Governance structure and practices 3. Water saving mechanisms in place 4. NRW rates 5. Water tariff

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Endnotes 12 30-40 metres per year for those covered with 1 Asian Development Bank (2016) Water: Secur- debris and 8-10 metres per year for glaciers free ing Bhutan’s Future of debris - ICIMOD 2017. Studies show that be- 2 WWF (2016). Water in Bhutan’s Economy: Im- tween 1980 and 2010, glacial lakes in Bhutan portance to Partners increased by 8.7%, while the glaciers shrank by 3 Ministry of Agriculture and Forests Royal Gov- 22%. ernment of Bhutan (2014). National Biodiversity 13 Surveys have concluded that up to 25 of Bhu- Strategies and Action Plan (NBSAP) tan’s glacial lakes are at risk of a serious flood- 4 According to Thimphu City Cooperation, quot- ing event like this occurring, posing grave risk to ed in 12th Five Year Plan, 2018-2023 communities living in the downstream valleys. 5 Royal Centre for Disease Control, Ministry of 14 According to the Bhutan Energy Efficiency Base- Health (2016) line Study (2012) 6 The Fifth Assessment Report (AR5) of the Inter- 15 If hydropower construction is included. The governmental Panel on Climate Change (IPCC) 12th Five Year Plan, 2018-2023 also notes that 7 Ministry of Agriculture and Forests (2016). Na- close to 85% of Bhutan’s trade is with India, con- tional Irrigation Master Plan sisting mainly of hydropower. 8 According to the 12th Five Year Plan, 2018- 16 Irregularities reported in Royal Audit Authority, 2023, 92% of households in Bhutan now have 2018 Annual Audit Report access to improved sanitation facilities. 17 For example, see Namey-Nichu PES Agree- 9 Royal Government of Bhutan,2017 Census, ment - https://snv.org/update/third-pes-agree- quoted in 12th Five Year Plan, 2018-2023 ment-bhutan 10 A Ministry of Health assessment showed that 18 Royal Centre for Disease Control, Ministry of 69 communities with 946 households have no Health (2018), Drinking Water Quality Report water source, while and a further 48 communi- 19 According to Thimphu City Cooperation, quot- ties with 888 households have an inadequate ed in 12th Five Year Plan, 2018-2023. water source. 11 The Fifth Assessment Report of the Intergovern- mental Panel on Climate Change estimates that by 2100, South Asian countries, including Bhutan, will experience an 11% overall increase in rainfall during the wet season.

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Chapter 5: LIFE

In Bhutan’s rich tradition of Mahayana Bud- vation in human well-being, guided by the en- dhism, nature is seen as a living system of which lightened leadership of our beloved Monarchs people form a part. As Article 5 of the Consti- and the state religion of Buddhism that teach- tution makes clear, every Bhutanese person is es respect for all life forms and their interde- considered a trustee of the Kingdom’s natural pendence. This has ensured the emergence of resources and environment. Bhutan is a global Bhutan in the 21st century with its biodiversity leader in conservation practices, with over 51% largely intact in comparison to the global trends of its land under protected areas and biological of loss of diversity of genes, species and ecosys- corridors1, and 71% of its land under forest cov- tems3. At the same time, growing population and er. This was made possible by the farsighted vi- development pressures are placing some strain sion and leadership of Bhutan’s monarchs, and on the balance between people and nature. 4 the Constitutional commitment to keep 60% of This section explores these challenges, to which land under forest cover in perpetuity. Bhutan’s the National Environment Strategy responds. progressive policies towards forest conservation and management are reflected in a strong Challenges relating to human-wildlife national enabling environment, and a number of conflict international commitments and multilateral envi- Bhutan has inherited diverse and rich ecosys- ronmental agreements (see Chapter 1). tems and wildlife, but conservation efforts have not come without a price. Every year, our farm- Geographically, Bhutan forms the part of the ers are losing significant amounts of crops and Eastern Himalayan Biodiversity Hotspot with 23 livestock to wildlife depredation, as the interface important bird areas, 8 ecoregions, important between humans and wild animals increases. plant areas, and wetland areas with 3 Ramsar Bhutan cannot resort to any dramatic population sites. Forest is the dominant ecosystem in Bhu- reduction of the major wild predators, as many of tan, including subtropical, warm broad-leaved, them are globally threatened species5. Predators cool broad-leaved, evergreen oak, spruce, hem- like tiger and leopard also occur at the top of the lock, blue pine, chir pine and fir forest types and food chains in many ecosystems and help control juniper-rhododendron and dry alpine scrub. The populations of herbivores that consume crops. aquatic ecosystems of Bhutan consist mainly of major and minor rivers, lakes, marshlands and hot Human-wildlife conflict (HWC) causes social dis- springs. Bhutan records more than 5,500 native harmony and is a major constraint to agricultural species of vascular plants, 145 of which are found sustainability and food security6. For instance, only in Bhutan, including 469 species of wild or- 24.6% of farmers surveyed in 2010 mentioned chid, 46 different species of rhododendrons, and this conflict as a constraint in technology adop- over 300 species of medicinal plants. More than tion, agricultural productivity and road infra- 200 species of mammals are identified, of which structure7. The loss of crops, livestock, and even 27 are globally threatened, including the snow leopard and red panda. Furthermore, Bhutan has recorded 740 species of birds, of which 18 are globally threatened, including the black-necked crane2. A wide range of ecosystem goods and services are also derived from natural resources – such as carbon sequestration, water provision, climate regulation, nature-based livelihoods etc.

Bhutan has always recognized and upheld the significance and role of environmental conser- © Dorji Phuntsho, NEC

104 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 human lives imposes social and economic costs that jeopardize livelihoods, exacerbate poverty, and can lead to retaliation against conservation programs. By 2008, annual crop loss ranged from 0.3 to 18% of total household income8. On average farmers spend about two months per year guarding their livestock and crops from wildlife. Guarding, which is mostly done at night, causes additional expenses, hardship, stress and loss of sleep. Strategies have been put in place to balance the needs of rural farming communities with those of the wildlife with whom they live in close proximity, but these strategies need more resources for implementation. © Dorji Phuntsho, NEC

In addition, further research is needed to un- of “right of cleared way” for power transmission derstand the causes of particular human-wild- lines and road construction. life conflicts. Some contact may simply be the result of a growing human population Forest degradation is also a serious concern – and a well-maintained protected area estate. as the forest is thinned through, livestock graz- However, indications are that in some areas, ing beyond the Tsamdro, and illegal logging or clearing of forest for infrastructure causes over-extraction of timber and firewood, habitats the loss of wildlife habitats and disrupts animal are destroyed, exposed slopes become vulnera- behaviour, forcing wild animals into human set- ble to landslides and erosion, and the degraded tlements in search of food that is easily accessible. forest becomes more vulnerable to fire. Bhutan’s Increased degradation of forested areas can lead per capita fuel wood consumption is one of the to a loss in wildlife habitat and increase the en- highest in the world, since it remains the dom- croachment of wild animals into village farms inant source of energy for cooking and heating and cattle sheds9. Although development activ- in rural areas13. The demand for timber for con- ities can improve living conditions in rural com- struction is also growing to supply construction munities, they may also be exacerbating existing activities for urban centres, industrial areas, hy- human-wildlife conflicts10. dropower plants, and public infrastructure. Much of these needs are illegally supplied from forests Challenges of forest loss and degradation outside of the designated Forest Management Forest clearing also opens up areas for exploita- Units (FMUs). Many FMUs lack well formulated tion which were inaccessible before, resulting in resource management plans, and some do not habitat fragmentation and loss of biodiversity11. fulfil their harvesting potential14. Almost all the forest area in Bhutan is held under public administration, with over half of the Besides timber and fuel wood, a wide array of forest area designated as protected areas and non-wood forest products are extracted from the remainder of the area as “state reserve for- the forest to generate additional income through est” which includes several management regimes sale and processing in cottage industries15. In such as “forest management units”, “community many places, because of over exploitation, some forests” and “local forests”12. With the rapid pace species of medicinal plants, ferns, bamboo, and of socio-economic development, there is pres- cane, which used to be collected in abundance, sure on State Reserve Forest land to be convert- are also becoming increasingly rare, as is the lu- ed for infrastructure development in the form crative Cordyceps fungus.

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Challenges related to biodiversity loss tan’s mountainous terrain makes fire-fighting As per the 2019 United Nations report on the difficult, and there is often little access to water. global biodiversity crisis16, species extinctions are occurring at a faster rate than ever before Aquatic biodiversity is also under threat, as in human history. Natural habitat is under pres- freshwater habitats are disturbed by hydropow- sure as a result of rapid urbanization, expansion er dams, dredging of sand from riverbeds, road of industry, crop and grazing lands. Main threats construction, mining along rivers, and the intro- to Bhutan’s biodiversity include land conversion, duction of alien fish species poses a threat to habitat fragmentation, unsustainable harvesting, indigenous fish. The impact of hydropower on illegal logging, river pollution by effluent and freshwater species and birds has been highlight- sewage, climate change and human-wildlife con- ed as a particular threat, for example, the site flict. The poaching of Bengal tigers, bears, leop- of the Punatsangchhu hydropower project was ards, musk dear, wild boar, porcupine, python, one of the habitats of the endangered White and pheasants presents serious challenges to Bellied Heron, of which it is estimated there are the species’ well-being and survival, and retalia- only 200 birds remaining globally. Dams lead tory killings against damage-causing animals may to obstruction of fish migration within feeding, continue if human-wildlife conflict is not brought spawning and refugee habitats17, and flushing to under control. clean sediments can devastate downstream flora and fauna. Even hydropower schemes with- Increasingly frequent forest fires also pose a out dams result in much lower water levels and threat to Bhutan’s terrestrial fauna and flora. increased sediment in rivers, posing a threat to Forest fires are more frequent during the long fish, amphibians and freshwater invertebrates. dry spells of winter and may be exacerbated by changing climate patterns with increased strong Climate change is expected to have significant winds. It is estimated that over 10,000 acres of effects on Bhutan’s biodiversity. Although this forest cover is lost to fire on average every year, area is not yet well researched, increases in with some forest fires raging out of control for temperature and changing rainfall patterns are days, or even weeks. Catastrophic forest fires expected to cause shifts in species ranges – as leave behind ecological devastation, threaten animals move to new habitats, and plants shift to wildlife habitats, damage roads, and destroy hy- higher elevations to escape warming trends. In- dropower infrastructure, undermining national creased temperatures and changing rainfall pat- conservation and developmental efforts. Bhu- terns may also allow for new invasions by alien species that are well adapted to the new climatic conditions, including pests and micro-organisms that cause disease.

Challenges for protected areas In keeping with the country’s rich biological diversity, the Royal Government of Bhutan has established a comprehensive system of protected areas covering 19,751 km2 or 42.7% percent of the country’s total surface area18. This includes five national parks, four wildlife sanctuaries, and one strict nature reserve, with representational samples of all natural ecosystems found in the country. To facilitate movement of wildlife and © Dorji Phuntsho, NEC contiguity of habitats, biological corridors cover-

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icy of ‘high-value, low-volume’ tourism in order to control the type and quantity of tourism, and its impact on the culture and environment. Since 1987 climbing of Bhutan’s sacred mountains has also been banned, preventing the kind of ecological degradation and pollution seen on busy climbing routes in other Himalayan countries. The policy of imposing a Minimum Daily Package rate of US$ 200 to 250-per-person-per-night has suc- © Dorji Phuntsho, NEC ceeded in providing a source of government income for education, health and building tourism ing a total area of more than 3,300 km2 have been and transport infrastructure, while at the same mapped, linking the protected areas – with a total time making tourism in Bhutan an exclusive and area of 51.44% covered by protected areas (PAs) distinctive experience. But, growth of the sector and biological corridors together. In most PAs, has come with a number of challenges, as visitor boundaries have not been clearly demarcated numbers increase, and the high value compo- and zoned. This can lead to ad hoc planning and nent decreases, as a percentage of total tourism development of infrastructure, and difficulties in spend20. curbing encroachment and land use conversion. The biological corridors also lack boundary de- Bhutan received a total of 274,097 visitors in marcation as well as conservation management 2018, more than 200,000 of whom were region- plans, posing difficulties in protecting them from al tourists21, who are not subject to the minimum encroachment by human activities. There is a daily spending requirements, can stay in budget need to assess whether these routes need to be accommodation, and are not required to employ resized, relocated or better aligned. guides. This helps to provide year-round occupan- cy in hotels, but causes overcrowding at popular The other major challenge until recently has been sites in the more heavily visited region from Paro the lack of a sustainable financing mechanism to to Bumthang. In addition to social impacts, this operate protected areas at the highest standard can cause environmental degradation – as con- with enhanced management effectiveness. With centrations of visitors put pressure on fragile eco- the Bhutan for Life initiative in place, ongoing ef- systems and cause an increase in waste and litter. forts are essential to ensure long-term financial Bhutan is revising its tourism policy, but needs im- sustainability of the protected area network, as proved coordination between all sectors involved. Bhutan moves towards Middle Income Country As new tourism products are developed, it is vital status from 2023, with anticipated loss of some to ensure that their environmental impact does sources of international donor funding. not increase, for example, more vehicles contributing to air pollution, or opening up of sport fish- Challenges of tourism impacts ing, posing a threat to endangered species. Tourism is a major source of employment in Bhutan, and the country’s biggest hard-currency Challenges related to illegal extraction of earner, bringing in USD 85.4 million in revenue natural resources in 2018, second only to hydropower19. Bhutan’s In terms of legislation, no hunting, fishing or main tourism attractions are its traditional cul- timber extraction is allowed from the vast area ture and way of life, its religious festivals, histor- covered by the nation’s five national parks, ic monuments and its pristine environment. Our four wildlife sanctuaries, and one strict nature tourism policy since the start of the industry in the reserve. Forest offences recorded by the De- 1970s has reflected these concerns, with a pol- partment of Forests and Park Services in 2017

107 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 included illegal removal of timber and firewood; worst known invasive species. These are com- illegal extraction of sand, soil and boulders; ille- monly found in pastures, roadsides, distrubed gal harvesting of cordyceps and other non-wood areas, barren lands and human settlement areas, forest products; poaching of wildlife; and illegal e.g. Ageratina adenophora, commonly known as fishing. Enforcement of the legislation has be- crofton weed or sticky snakeroot25, Lantana ca- come a growing challenge in recent decades, as mara, Mikania micrantha and Chromolaena odo- illegal logging has increased, with valuable hard- rata. Critically, new insects and pathogens are wood timber such asSidha , Legerstremia perviflo- introduced via exotic plants, becoming pests in ra, Tita chap Michelia champaka, Lali, Laidor, Prali, agriculture. Oxi and Sal, smuggled out in trucks and hand- carts across the border with India22. Well-armed Biological invasions are also occurring in Bhu- illegal logging syndicates from across the border tan’s lakes and rivers, as species of carp and oth- have allegedly been masterminded by foreign er fish, first introduced for their food value, are nationals, but supported by local labour of villag- now out-competing native fish and are consid- ers who lack alternative income opportunities. ered to be the second leading cause of species extinction, after habitat destruction. Examples A high-profile case in 2012 in which officials are brown trout, Mozambique tilapia, and African of the Forest Protection and Surveillance Unit sharptooth catfish – which has already colonized tracked down and apprehended three long-time major rivers and water bodies in India, destroy- poachers in connection with the illegal trafficking native fish stock; and has invaded wetlands, ing of tiger and leopard parts, put the spotlight where it preys on small terrestrial birds, aquatic on the country’s vulnerability. The discovery of birds and turtles. Although research is increasing, confiscated pelt, bones, and tiger parts revealed at present there is no comprehensive inventory that a total of 17 adult tigers had been lost from and assessment of invasive alien species (IAS) Bhutan and bordering areas of India over the pe- and their impacts in Bhutan, and coordinated riod 2012-2017, mostly to poaching23. The Glob- system for management and control. al Tiger Centre has identified poaching hotspots in and around the Jigme Singye Wangchuck and Challenges in preserving agro-biodiversity Royal Manas National Parks, and along the po- and genetic resources rous border with India. Poaching of other ani- Bhutan is rich in agro-biodiversity, having more mals, such as bears, musk dear, wild boar, porcu- than 100 species of crops that are indigenous pine, python and pheasants also occur regularly, to the country26. At present, the documentation posing threats to some species’ survival. and conservation of the local diversity of cultivated plants and domesticated animals are still Challenges related to invasive alien species ongoing, focusing on ex-situ and on farm con- Worldwide, exotic plants and animals intro- servation. Nevertheless, the lack of adequate hu- duced to countries from outside – both delib- man, technical and financial capacities still pose erately through trade and accidentally through a huge challenge. Current trends of rural-urban travel – are having a negative effect on native migration, depletion in farm labour, human-wild- species and their ecosystems, often spreading life conflict, access to new crop varieties and live- out of control. In Bhutan, invasive plant species stock breeds, and monetization of farm economy are affecting crop yields in some areas and using are additional factors that contribute to the loss up scarce water resources in others. Of the 300 of agro-biodiversity if timely steps to conserve exotic plant species introduced to Bhutan, in- them are not taken. cluding ornamental plants, fodder species, crops, fruits and vegetables, some 36 species have been Since the Convention on Biological Diversity en- found to be invasive24 including six of the world’s tered into force in 1993, users of genetic resourc-

108 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 es have in theory been obliged to get permission • Strategic Objective 25: Conserve Bhutan’s before collecting biological resources and using biodiversity traditional knowledge, to agree on the terms for • Strategic Objective 26: Sustain the protected exchange, and to share benefits fairly with local areas network providers and countries27. To give effect to this, • Strategic Objective 27: Promote sustainable Bhutan ratified the Nagoya Protocol in 2013 and tourism while the policy and regulatory framework for • Strategic Objective 28: Prevent and combat the implementation of the Access and Benefit poaching, illegal harvest and trade Sharing (ABS) regime has been established, chal- • Strategic Objective 29: Prevent spread of lenges still remain in terms of lack of adequate alien invasive species human and technical resources to keep abreast • Strategic Objective 30: Preserve diversity of of developments in the world of science and crops and livestock technology related to genetic resources. • Strategic Objective 31: Share benefits of ge- • Strategic Objective 23: Sustainably manage netic diversity human-wildlife conflict • Strategic Objective 24: Support sustainable forest management

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 23: SUSTAINABLY MANAGE HUMAN-WILDLIFE CONFLICT

Relevant guidance Competent authorities Bhutan National Human- Outlines strategies to reduce Ministry of Agriculture and Wildlife Conflicts Strategy, human-wildlife conflict to a Forests – Department of 2008 manageable level, enhance Agriculture, Department of farmers’ livelihoods, and offset Livestock, losses from wildlife damages Nature Conservation Division, Human-Wildlife Conflict Proposes multi-faceted actions Department of Forest and Park SAFE Strategy: Nine to make an area safe for people, Services, Department of Policy Gewogs of Bhutan, 2016 assets, wildlife and habitat and Planning Division

Implement strategy to manage conflict Improve understanding through research Bhutan’s National Human Wildlife Conflicts Strat- The Bhutan for Life milestone dedicated to egy, 2008 addresses human-wildlife conflict reducing human-wildlife conflict includes a through a comprehensive consideration of so- commitment to understanding its causes in cial, economic and ecological factors to achieve more depth, and assessing and mapping HWC lasting solutions. Cross-cutting action plans are hotspots nationwide. This builds on the work outlined to (i) protect crops and livestock, (ii) done for the National Human Wildlife Conflicts compensate losses, (iii) develop crop/livestock Strategy, 2008 which investigated the need for insurance schemes, (iv) offer suggestions for specific and differentiated strategies for conflict alternative livelihoods to offset losses, and (v) between rural communities and carnivores, wild to educate and create awareness programs for pigs, ungulates, elephants and primates. Exam- wildlife conservation and human-wildlife con- ples include, initiating regulated hunting by tour- flicts. Under the Bhutan for Life Program there is ists to control wild pig populations where appro- a specific milestone dedicated to reducing HWC priate, cultivating molasses grass around crops as a result of adoption of appropriate policies, to repel primates, or improving compensation for technologies and systems, targeting to benefit livestock predation by tigers, leopards, and snow 80% of households living in and near protected leopards. Key actions include continued moni- areas from reduced HWC by 2022. Actions in- toring of HWC incidents and their impacts, and clude updating the strategy every five years, and mapping by the Department of Forest and Park proposing amendments for relevant policies, in- Services of hotspot areas for each species, which cluding innovative responses such as alternative will help in targeting of management measures. crops, rainwater harvesting, habitat enrichment and biological barriers.

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Create safe environment for communities damage-causing animals away from settlements. The Human-Wildlife Conflict SAFE Strategy: Nine Also important are maintaining boundary de- Gewogs of Bhutan, 2016 took community pro- marcation of protected areas, and discouraging tection measures forward in nine Gewogs that people from entering forests for purposes of are particularly vulnerable to poverty and losses illegal activities. These actions form part of the from wildlife. The approach intends to create a strengthening of the wildlife management sys- safe environment both for people and their as- tem by the Department of Forest and Park Ser- sets, and for wildlife and their habitats – in a land- vices. scape for their harmonious co-existence, as well as improved monitoring. This includes actions for: Strengthen community-based crop and “Safe Person” e.g. response teams, compensation livestock compensation schemes, alternative livelihoods and income di- A human-wildlife endowment fund, led by the versification; “Safe Assets” e.g. fencing to reduce Ministry of Agriculture and Forests, has been es- crop loss, watch towers and search lights for tablished as a compensation scheme for loss of guarding. There is a need to expand fencing initia- crops and livestock to damage-causing animals. tives nationwide, with Dzongkhags encouraging The fund acknowledges the livelihood and food Gewogs to employ best practices – such as plastic insecurity impacts of crop and livestock loss, recycled poles instead of wood, and solar power sometimes causing hunger or nutritional defi- for electric fencing, including alarm systems and ciencies, loss of cash income, increased debt and emission of sounds that mimic predator dynamics aggravation of pre-existing poverty. The central to keep them at bay. endowment fund replaces the concept of an insurance scheme, as implemented previously Manage wildlife habitat through disbursements to Gewogs Environment In terms of the Human-Wildlife Conflict SAFE Conservation Committees. The intention is for Strategy there is also a need for interventions the fund to be a sustainable financing mecha- for “Safe Habitat” e.g. community forest patrols, nism – targeting the investment of USD 35 mil- habitat enrichment with fodder, fruit trees, wa- lion of capital, so that compensation payments ter holes and salt licks; and “Safe Wildlife” e.g. can be made from the interest in perpetuity. The research on hotspot areas and species, prevent human-wildlife endowment fund will be extend- of illegal killing and poaching, and developing ed as a milestone of the Bhutan for Life initiative positive linkages through ecotourism. Managing and is one of its thematic funding areas, to en- wildlife habitat effectively, and supplementing sure that the compensation schemes are sustain- their food sources, can be helpful in keeping able and can meet all farmers’ needs.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 24: SUPPORT SUSTAINABLE FOREST MANAGEMENT

Relevant guidance Competent authorities National Forest Policy, Sets framework for forest conservation 2011 and scientific management, including forest utilization Forest and Nature Provides for protection and sustainable use Conservation Act, of forests, wildlife and natural resources 1995 Ministry of Agriculture and Rules on Biological Provide for the conservation and Forests: Division of Policy Corridors, 2006 management of biological corridors linking and Planning, Department protected areas for safe movement of of Forests and Park wildlife Services, Watershed Forest Fire Rule, 2012 Sets out responsibilities for maintaining fire Management Division; lines, permits for burning agricultural debris, Ugyen Wangchuck and safety measures for economic activities Institute for Conservation and Environment; Forest and Nature Provides detailed rules to guide Dzongkhag, Thromde and Conservation Rules implementation of the Forest and Nature Gewog Administrations and Regulations, 2006 Conservation Act and update 2017

Framework for Prescribes the basic sustainable harvesting management and and management of 60 potiential NWFPs marketing of NWFPs 2011

Maintain forest for climate adaptation and wood at a large scale. Strict implementation and mitigation monitoring of Forest and Nature Conservation Act, Bhutan’s first Nationally Determined Contribution 1995 also involves preventing illegal encroach- 2015 towards the Paris Agreement reconfirms ment of forests for unplanned settlements or Government’s commitment to sustainable forest agriculture, including Tseri (shifting cultivation) management, integrated forest fire management, practices. Since 2013, Bhutan is also committed rehabilitation of degraded and barren forest to REDD+ (Reducing Emissions from Deforesta- lands, conducting periodic inventories of forest tion and Forest Degradation28). This involves cover and condition, and reducing timber use by developing Bhutan’s National REDD+ Strategy promoting viable alternatives to timber and fuel and Implementation Framework, including the

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National Forest Monitoring System, its Measure- Bhutan’s holistic and integrated forest fire man- ment, Reporting and Verification function, the agement strategy, supported by the Forest Fire Forest Reference Emission Level and the Safe- Rule, 2012, includes controlled fire use where guard Information System. Bhutan has devel- appropriate. The Rule sets out the roles of differ- oped a National Forest Monitoring Action Plan ent levels of government, and required measures and completed its first full National Forest Inven- for preventing unplanned fires –maintaining tory, to be repeated every five years. fire lines around infrastructure, issuing permits for burning agricultural debris, and maintaining Promote climate-smart forest safety measures for economic activities. Key ac- management tions include capacity development for forestry The National Forest Policy, 2011 defines the officials on investigating how fires started, so overarching goal of sustainable management that penalties can be imposed on culprits. In ad- of forest resources and biodiversity. The Forest dition to enforcement, Bhutan’s strategy empha- and Nature Conservation Rules and Regulations, sizes ongoing advocacy and awareness to inform 2017 cover general aspects of managing State citizens on how to avoid accidentally starting Reserved Forest Land (SRFL) and prescriptions forest fires (young children, picnickers, smokers for Forest Management Units, Community For- and electrical short circuit are among the top ests, Protected Areas and watersheds. Actions causes), and demonstrates how to burn agricul- needed are to: (i) integrate climate change into tural residues and other waste safely. Actions forest management planning to foster adapta- also include strengthening capacity of forest fire tion to changing climatic conditions; (ii) adopt management committees at Dzongkhag and Ge- proactive, forward-looking forest management wog levels, supplying firefighting and protection approaches, e.g. anticipating increased fires equipment and technical training at the field lev- through prescribed burns; (iii) adopt active cli- el. Training, education, awareness, resource and mate-smart management options such as setting organizational needs repeatedly emerge as prior- aside conservation refugia, assisting regenera- ity issues and will be key to successful manage- tion, and promoting mixed species planting for ment of forest fires in Bhutan. enhanced resilience; and (iv) include long term planning tools such as species distribution mod- Strengthen social forestry els, scenario-based approaches to recognize un- The movement towards community forests certainty and dynamic change in the climate and started with the enactment of the Forest and their impacts on forest ecosystems. Nature Conservation Act, 1995, which encouraged public participation in forest management Reduce forest fire by handing over portions of forest land to communities, based on approved management plans, and also encouraged private forestry. Bhutan’s people-centred approach to forest management was set out in detail in theNational Strategy for Community Forests: The Way Ahead, 2009–2019. Today Bhutan has 781 Community Forests, covering an area of 92,165 hectares, and ben- efiting 32,402 households29, and there is a need to strengthen and extend the system further. Actions by Dzongkhag Forestry Offices to capacitate community forest structures can help enable effective management measures for © Karma C. Nyedrup, NEC sustainability and climate change, ensure eq-

113 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 uitable distribution of resources, promote new Encourage sustainable harvesting income-generating activities, and facilitate new Besides timber and fuel wood, a wide array of partnerships for Payments for Ecosystems Ser- non-wood forest products (NWFP) are extract- vices (PES) agreements where possible. ed from the forest to generate additional income through sale and processing in cottage industries. Promote Payments for Ecosystem Services These include medicinal and aromatic plants, ed- Payment for Environment Services (PES) initia- ible mushrooms, ferns, wild greens; bamboo and tive started in Bhutan with a feasibility study cane for local handicrafts; bark and pulp for tradi- in 2009. In 2010, the Watershed Management tional paper-making; honey and beeswax, resins, Division (WMD) was able to establish the first sticklac and cordyceps, animal fodder; and leaf PES site in the country at Mongar between Yak- litter for farmyard manure production collected pagang Community Forest Management Group from Sokshing (owned by the state but used by (CFMG) and Mongar municipality. The first con- the people). Over-exploitation of some forest tractual period was signed for three years, and products has made them increasingly scarce. expired in December 2014, it was further re- Currently only 5,564 households are involved in viewed and revised for another five-year term 148 Non-Wood Forest Product groups31, there is till 2019, with a revised fee structure in 2015. a need to strengthen and grow such groups with Another PES scheme on water source conserva- the support of the Dzongkhag Forestry Offic- tion was established 2015 at Pasakha under Ch- es. Actions needed include prevention of illegal hukha Dzongkhag between Burkhey watershed exploitation, e.g. of Cordyceps, enhance imple- community and the five industrial companies mentation of guidelines for sustainable manage- based in Pasakha. The third PES site on water ment and promote value addition of NWFPs. The source conservation was established at Namay capacity of NWFP groups can be strengthened Nichu under Paro Dzongkhag between CFMG to develop sustainable harvesting management members and the water users (four hoteliers and plans, specifying locations for rotational harvest- a water user association). WMD has developed ing, and time periods for intermittent harvesting, and distributed the PES framework and field promote awareness and conduct monitoring. A guide to all the relevant stakeholders including five-year program being carried out by the Min- Dzongkhag administrations for action to upscale istry of Agriculture and Forestry on “Sustainable PES programs in the country30. natural resources management and utilisation” aims to support this process.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 25: CONSERVE BHUTAN’S BIODIVERSITY

Relevant guidance Competent authorities Sets framework for environmental National Environment protection and management Ministry of Agriculture and Protection Act, 2007 including protection of forests, Forests; National Environment biodiversity, and ecosystem integrity Commission; Ugyen National Biodiversity Proposes a series of biodiversity Wangchuck Institute for Strategy and Action Plan, conservation objectives and Conservation and Environment 2014 associated actions Upgrades to a felony of the fourth Ministry of Home and Cultural Penal Code Act of Bhutan, degree the offence of “risking the Affairs, Attorney General of 2004, amended in 2011 protected species” – Bhutan Prevent misappropriation of Biodivesity Act of Bhutan biological resources and ensure fair 2003 and NBC, Ministry of Agriculture and equitable sharing of benefits Forest and Nature and Forests arising from access to biological Conservation Act 1995 resources

Implement biodiversity strategies and vation status; (xiii) indigenous agro-biodiversity; actions (xiv) identification of ecosystem services; (xv) As a signatory to the UN Convention on Biolog- rehabilitation of degraded ecosystems; (xvi) ac- ical Diversity since 1995, as well as the Ramsar cess and benefit sharing; (xvii) NBSAP guidance; Conventions on Wetlands and CITES, Bhutan has (xviii) documentation of traditional knowledge; in place a National Biodiversity Strategy and Action (xix) science-based technologies; and (xx) fund Plan, 2014. The NBSAP sets out National Targets mobilization. Bhutan’s 6th National Report to the for: (i) public awareness of biodiversity values; CBD32 identifies significant progress in many of (ii) integration into development planning; (iii) these areas, as well as outstanding challenges in- harmful incentives reform and introduction of cluding the need for more comprehensive data positive incentives; (iv) sustainable production collection, monitoring and research. and consumption; (v) habitat mapping and trend monitoring; (vi) baseline on aquatic biodiversi- Protect terrestrial ecosystems ty; (vii) sustainable agriculture and forestry; (viii) The most significant outcome achieved as a reduction of pollution including agro-chemicals; result of NBSAP implementation is the mainte- (ix) invasive alien species management; (x) adap- nance and management of a macro-level natural tation to climate impacts; (xi) strengthening pro- landscape of protected areas (42.7% of country) tected area system; (xii) information on conser- consolidated through biological corridors (8.6%).

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This estate encompasses a continuum of rep- al Environment Commission, to enhance moni- resentational samples of all major ecosystems toring of the environmental flow of major rivers. found in the country, ranging from the tropical/ Other conservation actions are being prioritized subtropical grasslands and forests in the south- by the Ministry of Agriculture and Forests to ern foothills, to temperate forests in the central bring new wetland areas under protection, since mountains and valleys, to alpine meadows and these are important habitats for birds, fish and scree in the northern mountains. Effective man- amphibians, and also vital for protecting the de- agement and sustainable financing of the pro- livery of ecosystem services to communities in a tected areas network is the goal of the Bhutan changing climate. for Life initiative, which also has milestones dedicated towards species conservation. In managing Conserve threatened species the protected areas network, it will be important Parallel to the country’s major investment in to better understand the likely impacts of climate protected areas, Bhutan has engaged in several change on biodiversity, including the potential conservation programs targeting particular vul- habitat shifts of particular flora and fauna, e.g. nerable species and their habitats. Many such vegetation moving to higher elevation. Actions programs are being carried out with support to protect and maintain intact habitats that in- from civil society – for example, a program to clude climate refugia will be a challenge for the conserve the endangered Golden mahseer fish decades ahead. species, considered sacred in Bhutanese culture. A Tiger Action Plan was launched in 2017, Maintain freshwater habitats to enhance conservation, mitigate conflict, and In addition to the terrestrial network, it will also reduce poaching, as well as, an Elephant Conser- be vital to protect aquatic and riverine eco-sys- vation Action Plan in 2018, working to maintain tems through implementation of environmental a viable population of elephants in an improved impact assessments, and restricting diversion of habitat, with reduced human-elephant conflict. water courses. Studies are underway to identi- Bhutan is yet to carry out a national-level evalua- fy a free-flowing river to be declared and pro- tion of the conservation status of all its biodiver- tected for all times, to ensure conservation of sity, but surveys have been carried out nation- aquatic biodiversity, raise awareness and serve wide of key species – tiger, snow leopard, takin, as a baseline for research. This will be support- red panda, golden langur, elephant and small ed by a five-year program from 2018-2023 on cats. Monitoring of the national tiger population “Strengthening water security and enhancing is seen as a key indicator of ecosystem health, management” being implemented by the Nation- and is measured in the five-year planning cycle.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 26: SUSTAIN THE PROTECTED AREAS NETWORK

Relevant guidance Competent authorities Forest and Nature Provides for protection and Ministry of Agriculture and Conservation Act, 1995 sustainable use of forests, wildlife Forests; National Environment and natural resources Commission; Dzongkhag and National Biodiversity Proposes a series of biodiversity Thromde Administrations Strategy and Action conservation objectives and Plan, 2014 associated actions including on protected area management

Implement Bhutan for Life versity conservation, and increases Bhutan’s resilience to effects of climate change. The funds will be used to implement conservation actions in Bhutan’s protected areas and biological corridors for the next 14 years, with national funding progressively taking over towards the end of this period.

Diversify conservation finance In the context of Bhutan’s graduation by 2023 from Least Developed Country to Middle Income The Bhutan for Life (BFL) initiative was formal- Country status, certain funding sources will no ly launched in 2017 as an innovative funding longer be available to the country, and there will mechanism for long-term, sustainable financing be a need for a diversified approach to sustaining of the country’s Protected Areas network, es- conservation finance. Efforts are underway to tablished by the Royal Government of Bhutan in help define and quantify Bhutan’s current invest- partnership with the WWF. The initiative raised ment in biodiversity conservation and combat- USD 43 million in transition funding, through ing climate change; identify its financial needs government, private and multilateral donors33, to and gaps through national assessments; and secure the maintenance of the protected areas identify resource mobilization challenges and estate in perpetuity, through a Project Finance opportunities, including potential new revenue for Permanence Model. Bhutan for Life has over- streams. This involves expanding the traditional all four goals, 16 milestones and over 80 activi- boundaries of development finance to consider ties to be achieved by the end of 14 years. The private sectors and other partners, in line with overall goal is to ensure a robust network of pro- the blended finance vision of the 2030 Agenda tected areas and biological corridors in Bhutan for Sustainable Development34. The country’s that contributes to human wellbeing and biodi- national conservation trust fund also continues

117 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 to build up its endowment (tripled from the ini- Conserve transboundary and cultural tial investment of USD 21 million) and finances landscapes many conservation initiatives with communities. In order to ensure that the mosaic of conservation space in the eastern Himalayas is maintained Improve management effectiveness through transboundary conservation mecha- Management plans of five of the ten protected nisms, the Kanchanjunga Landscape Conserva- areas were recently revised and NBSAP targets tion Development Initiative (India, Bhutan and integrated into the revised plans. Based on new Nepal) and the Transboundary Manas Conser- zonation guidelines, these protected areas (PAs) vation Area (Bhutan and India) have been initi- were also demarcated and zoned for effective ated, in collaboration with civil society partners. management. A new tool, the Bhutan METT+ Bhutan is also working to protect its cultural (Management Effectiveness Tracking Tool) was landscapes, since the Constitution provides that devised and used for all the ten of the protect- the state shall endeavour to preserve, protect ed areas and the Royal Botanical Park between and promote the cultural heritage of the coun- 2016 and 2018, culminating in a Bhutan State try including monuments, places and objects of of Park report. The Bhutan METT + is now being artistic or historic interest, dzongs, lhakhangs, mainstreamed into the PA management plans goendeys, ten-sum, nyes, and language among and will be conducted every five years to track others. A cultural landscape is generally defined progress. The overall results show that protect- as “a geographic area, including both cultural, ed areas in Bhutan are well managed; but their natural resources and the wildlife or domestic effectiveness is limited both by a low level of re- animals therein, associated with a historic event, sources (both financial and appropriate technical activity, or person or exhibiting other cultural or resources) and by gaps in the monitoring and re- aesthetic values.” Actions are needed to resource search data. Actions are needed to address these these landscape-wide and transboundary initia- gaps in order to understand the impact of con- tives, and to promote public awareness on their servation measures, react to changing conditions importance. and to adapt management to improve efficiency and effectiveness.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 27: PROMOTE SUSTAINABLE TOURISM

Relevant guidance Competent authorities Sets framework for environmental National Environment protection and management Ministry of Economic Affairs; Protection Act, 2007 including protection of forests, Ministry of Trade and Industry biodiversity, and ecosystem integrity – Department of Tourism; Sets out approach of ‘high value, low Tourism Council of Bhutan, Economic impact’ tourism, promoting tourism as an Ministry of Agriculture and Development Policy, important growth sector – throughout the Forests; National Environment 2016 country, all year round, and as a means to Commission, Dzongkhag diversify the rural economy Administrations Tourism Rules and Guides licensing of tourism operators, visa Regulations, 2017 applications and setting of daily fees

Grow sector within carrying capacity cific studies to be carried out – like the Carrying The Final Draft Tourism Policy of the Kingdom of capacity study for Gantey-Phobjikha and Haa. Bhutan, 2019 reaffirms the guiding principles underpinning Bhutan’s vision for sustainable Diversify and spread tourism offering tourism – consistency with Gross National Hap- In terms of the Final Draft Tourism Policy, 2019 piness, and the “High value, Low volume” tour- there is an active focus on diversifying tourism ism approach. As visitor numbers have grown,35 products and offerings, encouraging the spread entry fees have been imposed at popular mon- of tourists geographically beyond the hotspots uments and heritage sites, and consideration is in the west and north. The policy highlights the being given to capping regional visitor numbers, potential for; nature-based adventure activities; with advance e-permits for visitors arriving by local cuisines, arts and crafts, traditional medi- road and extension of sustainable development cine; wellness, spiritual and conference tourism; fees to all. In the new policy, the importance of as well as Bhutan as a unique filming location. promoting regional and seasonal spread is high- A five-year program from 2018-2023 sets aside lighted, with equitable growth and benefit shar- significant funds for a Sustainable Tourism De- ing. A commitment is made to ensure that visitor velopment Flagship Program, including adven- numbers remain within the carrying capacity of ture sports, highland festivals, rock-climbing, our physical, socio-cultural and natural environ- birdwatching, and heritage tours in the east and ment. The Tourism Council of Bhutan is charged central regions. As part of the new plan, recre- with assessing the absorptive carrying capacity ational fishing of golden and chocolate mah- at national, dzongkhag and site level – of infra- seer, banned since the 1970s, is expected to be structure, culture, environment and services. An introduced soon, on a catch-and-release basis important action is for more detailed area-spe- and under strict guidelines.

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Enhance livelihoods through ecotourism Promote sustainable consumption The Final Draft Tourism Policy, 2019 mandates International partnerships have enabled the de- the Tourism Council of Bhutan to enhance and velopment of green hotel guidelines, compliant promote ecotourism development, promoting with the Global Sustainable Tourism Council nature-based travel through investment facil- guidelines and adapted to the Bhutanese con- itation, enabling frameworks, capacities and text. This encourages sustainable consumption benefit sharing mechanisms. The Bhutan Nation- and production, for example reducing water use al Eco-Tourism Strategy, 2001 is being updated or encouraging wastewater treatment. In 2018, through the Bhutan for Life program, as are the the National Environment Commission invit- existing Guidelines for Planning and Management ed hotels to apply to be part of the pilot phase for Eco Tourism Development in the Protected Ar- for testing the guidelines. The tourism Flagship eas Network of Bhutan, in a new document being Program also includes a specific component on developed by the Nature Conservation Division, waste management, allied to tourism across the Department of Forest and Park Services. Under country. The Flagship Program will undertake fo- Bhutan for Life, a specific milestone is dedicated cused end-to-end activities in five strategically to enhancing communities’ livelihoods through placed Dzongkhags for accelerated tourism de- ecotourism and programs to manage the sus- velopment, aiming to create 15,000 additional tainable harvesting and processing of non-wood jobs, whilst controlling environmental impact. forest products (NFWPs). By the end of the Bhu- Implementation will be led by the Tourism Coun- tan For Life period, the target is that 80% of the cil of Bhutan in collaboration with local govern- households living in and around Protected Areas ment, the Ministry of Economic Affairs and the should have increased access to nature-based private sector. employment and income-generating opportunities through ecotourism and NWFP.

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 28: PREVENT AND COMBAT POACHING, ILLEGAL HARVEST AND TRADE

Relevant guidance Competent authorities Establishes risking of the protected Attorney General of Bhutan; Penal Code of Bhutan, species as an offence punishable by Ministry of Home and Cultural 2004, amended in 2011 law, amended to be a fourth-degree Affairs felony Forest and Nature Provides detailed rules to guide Conservation Rules and implementation of the Forest and Regulations, 2006 and Ministry of Agriculture and Nature Conservation Act update 2017 Forests; National Environment Proposes a series of biodiversity Commission; Dzongkhag and National Biodiversity conservation objectives and Thromde Administrations Strategy and Action Plan, associated actions including against 2014 illegal logging and wildlife trafficking

Prevent illegal hunting and fishing 20 arrests in 201838, indicating a possible de- The Penal Code of Bhutan, 2004 establishes that crease, although many more incidents go unde- it is unlawful to hunt, destroy, capture, collect, tected. A Draft National Zero Poaching Strategy transact or deal in the sale of any animal or plant was developed with civil society in 2017, bring- species or its parts, in a manner that poses a risk ing stakeholders together to strengthen enforce- to the species’ survival36. In terms of the Forest ment and minimize poaching and illegal traffick- and Nature Conservation Rules, 2006 (revised in ing across borders through six pillars of action 2017), no extraction of natural resources is al- – assessment, technology, capacity, communi- lowed from inside protected area boundaries. ty, prosecution and cooperation. This includes There were 25 arrests of poachers in 201737, and imposing heavy fines on convicted offenders, promoting public awareness39 and discouraging any kind of support to the illegal wildlife supply chain. It also includes action to complete the process of mapping poaching hotspots for targeted enforcement efforts.

Prevent illegal extraction from forests Forest offences recorded by the Department of Forests and Park Services in 2018 included 924 arrests following illegal removal of timber40.

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Enforcement of the legislation has become a Life initiative, ranger training and SMART (Spatial growing challenge in recent decades, not just Monitoring and Reporting Tool) patrolling are key preventing illegal extraction for household fuel actions being rolled out across all Bhutan’s pro- and construction, but combating organized ille- tected areas. Rangers learn tactical skills such as gal logging of valuable hardwood timber species, apprehension and detaining of suspects correct- that are smuggled across the border with India41. ly and legally, as well as, recognising and identi- Although the country has only 1,392 foresters fying signs and evidence of illegal or restricted on the ground42, the government is committed activities in the field. to strengthening enforcement capacity in the protected areas estate through the Bhutan for Enhance international cooperation Life program. Enforcement includes active mon- At international level, Bhutan has been a signato- itoring of protected areas for signs of illegal re- ry to the Convention on International Trade in En- moval of timber and construction material like dangered Species of Wild Fauna and Flora (CITES) rocks and sand, illegal harvesting of non-wood since 2002. Poaching and illegal wildlife trade forest products, wildlife poaching, and illegal are the most serious and immediate threats to fishing. Apprehended suspects are being prose- Asia’s many charismatic and iconic species, such cuted wherever possible, and penalties imposed as tiger, rhino and elephants. Recent studies have when convictions are achieved, with public de- shown that illegal wildlife trade is one of the top- bate occurring about whether such fines should five most lucrative illicit economies globally and be increased. Areas where logging has occurred is valued around $23 billion per year43. Bhutan is are also being targeted for reforestation activi- home to an estimated 103 adult breeding tigers, ties carried out by Green Bhutan Corporation and forms the critical linkage for connectivity Limited. and gene flow between tiger populations in the Indian subcontinent with the Indo-Chinese tiger. Develop ranger capacity A key action is the continued strengthening of Until recent years, rangers in Bhutan’s protect- international cooperation through regular Border ed areas were unable to stop illegal loggers and District Coordination Meetings between Bhutan poachers, who were often better equipped and and India, with synchronized patrolling to pro- resourced than the rangers. Ranger numbers mote the cross-border anti-poaching program were insufficient as they lacked equipment and and curb timber smuggling as well as wildlife budgets for frequent patrols and patrolling at trafficking. The 12th Five Year Plan, 2018-2023 night. They were mostly not formally or system- sets as a target that the number of tigers remains atically trained for their challenging and danger- stable or increases by the end of the plan period. ous work. With the expansion of the Bhutan for

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 29: PREVENT SPREAD OF ALIEN INVASIVE SPECIES

Relevant guidance Competent authorities Enacted to prevent the introduction Plant Quarantine Act of of existing pests, and restrict spread National Biodiversity Centre; Bhutan, 1993 of new pests or eradicate them Bhutan Agriculture and Food Regulates the import and export Regulatory Authority; Ministry of agriculture seeds to prevent of Agriculture and Forests: Seeds Act, 2000 introduction of undesirable plants Department of Policy and and disease Planning, Department of Forest National Biodiversity Proposes a series of biodiversity and Park Services; Dzongkhag Strategy and Action conservation actions including on Administrations Plan, 2014 invasive alien species

Strengthen management system Improve plant quarantine Bhutan’s National Biodiversity Strategy and A number of existing rules, regulations and Action Plan, 2014 includes a target that invasive control measures can be used to manage invasive alien fauna and flora species that cause harm species. Introduction of new species of plants to Bhutan’s indigenous ecosystems should be and crops is governed by the Plant Quarantine systematically identified. The pathways through Act of Bhutan, 1993 which was enacted to: (i) which they are introduced should be identified prevent the introduction of pests not already and prioritized, priority species controlled or present or widespread in the country; (ii) control eradicated, and measures put in place to prevent those pests already present by restricting their their introduction and establishment. Invasive spread and by endeavouring to eradicate them; Alien Species (IAS) is a crosscutting issue with (iii) provide facilities for services for import no lead agency, and most control measures of plants and plant products; and (iv) extend are reactive – for example, when there is an cooperation in the prevention or movement of outbreak of pests. Following a number of surveys, pests in international trade and traffic.Seeds The inventory lists are now being maintained by the Act, 2000 regulates the import and export of National Biodiversity Centre, and regulations agriculture seeds and prevents introduction of are being developed for prevention and control unwanted plants and diseases. It also promotes on spread of invasive alien species. Priority the seed industry with the aim to enhance rural actions include defining clear institutional income and livelihood. Bhutan’sBiosafety Act, responsibilities and measures for control and/or 2015, aims to protect the rich domestic and wild eradication of prioritized IAS and development biodiversity of Bhutan, promote the nation’s of technical capacity. food and nutrition security and safeguard the

123 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 animals and human health. Action is needed to impact on water usage and respiratory health, strengthen the enforcement of all of these laws, and over 4,000 trees have been felled. In the as part of a systematic approach to managing early 2000s, eucalyptus trees in the country IAS. were felled for similar reasons, and only a few are left in the country today. Notifications to cut Clear harmful exotic trees invasive tree species are issued to Dzongkhags, The Bhutan Agriculture and Food Regulatory and the Department of Forest and Park Services Authority monitors the import of non-native provides support to replace felled exotic species tree species. A start has made in Thimphu on with seedlings of native species. Action can be clearing three tree species – Populus, Thuja, and taken to identify Gewogs where exotic trees Cupressus macrocarpa, which were previously may be contributing to the drying up of lakes planted on barren landscapes and near humanand springs, and implement programs for their settlements, but have become invasive. Theseeradication and replacement. species are now considered to have a negative

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 30: PRESERVE DIVERSITY OF CROPS AND LIVESTOCK

Relevant guidance Competent authorities Promotes the seed industry with the Seeds Act, 2000 aim to enhance rural incomes and livelihoods National Biodiversity Centre; Regulates livestock breeding, health Bhutan Agriculture and Food Livestock Act of and production to enhance their Regulatory Authority; Ministry Bhutan, 2001 productivity and prevent diseases of Agriculture and Forests; National Biodiversity Proposes a series of biodiversity Dzongkhag Administrations Strategy and Action conservation actions including on Plan, 2014 agro-biodiversity

Strengthen management framework Promote gene banking Bhutan’s wide range of indigenous cultivated Bhutan is committed to preserving its traditional plants and domesticated animals provides us with agricultural biodiversity of crops and livestock, varieties that are drought- and pest-resistant or “agro-biodiversity”. In terms of the National in different situations, which may become Biodiversity Strategy and Action Plan, 2014, increasingly important as climatic conditions strategies have been developed for minimizing change. The National Biodiversity Centre has genetic erosion and safeguarding genetic so far recorded 384 landraces of rice, 105 of diversity, including the initiation of Wild Seed maize, 36 of wheat, 10 of sweet buckwheat, banking. The National Biodiversity Centre 11 of bitter buckwheat, 32 of barley, 22 of has conserved over 50 species of traditional amaranth and 36 of millet. In terms of Crop Wild crop germplasm and the five species of Relatives (varieties of these crops, growing wild native livestock in its genebank. The National in nature), around 230 species belonging to 120 Biodiversity Centre developed a National Cereal genera in 51 families are expected to occur in Conservation Strategic Action Plan, 2016 Bhutan44. The country also has a variety of native to promote conservation and cultivation of livestock breeds, for example the endangered traditional cereal crops and has conserved a total Nublang cattle. Action needs to be taken to of 2700 accessions. The National Biodiversity develop technical and institutional capacities, Centre has initiated DNA a collection of to improve documentation and conservation native livestock species, e.g. Nublang cattle, of agrobiodiversity, and to strengthen the yak and poultry, and developed a protocal, in policy and legal framework for agrobiodiversity collaboration with Department of Livestock for conservation. embryo banking. In addition, a total of 10,638

125 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 doses of animal germplasm of traditional animal increased resilience. In order to promote in-situ genetic resources were added in the national conservation of plant genetic resources, the animal gene bank45. Action is needed to extend main constraint is the lack of adequate financial this work to include additional collection of resources to implement interventions such as genetic material. building capacity of farmers and implementing innovative incentive measures to motivate and Promote in situ conservation maximize the livelihood opportunities of farming As well as ex-situ conservation of genetic communities. material in laboratories and gene banks, it is On-farm initiatives in animal genetic resources important to preserve diversity on-farm and was started in 2007 and focuses on native in the wild, for example, preserving “crop wild species of livestock, especially those that relatives” of commonly farmed species. On- are threatened. In order to promote in-situ farm conservation of crop genetic resources, conservation, support is needed in terms of was started in 2001 and is being implemented developing and establishing nucleus farms and in several Dzongkhags, focusing on building the providing sustainable incentives to farmers capacity of farmers for improved livelihoods and keeping native breeds of livestock

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Psychological well-being

Time Use - Emotional balance Health - Spirituality - General psychological stress - Health status - Sleeping hours - Health knowledge - Walking hours -Barrier to Health

Environmental Governance Diversity

STRATEGIC OBJECTIVE 31: SHARE BENEFITS OF GENETIC DIVERSITY

Relevant guidance Competent authorities Provides for the conservation and Biodiversity Act of sustainable utilization of biological Bhutan, 2003 resources and associated traditional knowledge National Biodiversity Proposes a series of biodiversity National Biodiversity Centre; Strategy and Action Plan, conservation actions including on Ministry of Agriculture and 2014 Access and Benefit Sharing Forests Bhutan Agriculture and Food Regulatory Authority Sets out Bhutan’s implementation Access and Benefit of the Nagoya Protocol on access to Sharing Policy of Bhutan, and sharing of benefits derived from 2017 genetic resources

Strengthen institutional framework to increase awareness and understanding of the Bhutan ratified the Nagoya Protocol on Access complex issues involved in accessing genetic to Genetic Resources and the Fair and Equitable resources and sharing benefits derived from Sharing of Benefits Arising from their Utilization in such use. 2013. The Access and Benefit Sharing (ABS) Policy of Bhutan, 2015 was tested as an interim policy Tap benefits from biodiscovery from 2015-2017, and was formally adopted as As a biodiverse country with far-sighted a national policy in June 2017. Following this, leadership, with ABS legislation in place, there have been several initiatives, including Bhutan has potential to tap significant benefits setting up an institutional arrangement for from biodiscovery research – engaging local ABS regimes, and monitoring protocols. A draft Biodiversity Bill to implement the ABS Policy is in place, along with Regulations. The framework for this was laid with the Biodiversity Act of Bhutan, 2003, which explicitly protects traditional rights over traditional knowledge associated with biological resources. In terms of the National Biodiversity Strategy and Action Plan, 2014, the country is committed to establishing legislative, administrative and institutional frameworks on Access and Benefit Sharing. Action is needed

127 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 communities and companies in creating a officinalis (Himalayan gooseberry) and Sapindus niche for nature-based products in national rarak (soapnut tree) for the production of anti- and international markets. This will build on ageing cream and a natural handmade soap. the model of three successful tripartite ABS This access is on mutually agreed terms and agreements already concluded. For example, conditions, including a 5% share of the gross in 2019 an agreement was reached between ex-factory profit annually that will go to the state-owned enterprise Menjong Sorig community from the sale of these products, with Pharmaceuticals Corporation Limited, the the NBC maintaining oversight. The community National Biodiversity Centre (NBC) and the also receive harvesting tools, sustainable Namther Menrig Tshogpa – a community- harvesting capacity building and a premium price based group in Langthel Gewog under Trongsa for the raw materials. Action is need to upscale Dzongkhag. In terms of the agreement, the by unlocking similar opportunities where the company has been granted access to Emblica potential for ABS exists.

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Implementation Plan

Strategic Objective Lead Agency Key Performance Indicators SO23: Sustainably Ministry of Agriculture and Forests manage human-wildlife (Department of Forest and Park Reduce HWC incidences by conflict Services, Department of Agriculture, 50% by 2030 from baseline Department of Livestock) -Percentage of forest area SO24: Support brought under community Department of Forest and Park sustainably forest forest management by 2030 Services management - No. of households engaged in couumnity forest management -Maintain or increase the SO25: Conserve Department of Forest and Park population of key focal species Bhutan’s biodiversity Services from 2019 baseline SO26: Sustainably the protected areas newtwork SO27: Promote sustainable tourism SO28: prevent and combat poaching, illegal harvest and trade -Maintain the area under SO29: Prevent spread of Department of Forest and Park protected area network (51.4%) alien invasive species Services - PA network management sustained by 2030. SO30: Preserve diversity -Eco-tourism strategy Tourism Council of Bhutan of crops and livestock developed by 2030 -Incidences of wildlife poaching SO31: Share benefits of Department of Forest and Park and illegal logging reduced by genetic diversity Services 50% by 2030

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Endnotes edible mushrooms, ferns, wild greens; bamboo 1 Department of Forest and Park Services, 2018 and cane for local handicrafts; bark and pulp for Forest Facts and Figures traditional paper-making; honey and beeswax, 2 Statistics from National Biodiversity Strategies resins, sticklac and cordyceps, animal fodder; and Action Plan 2014, 6th National Report to the and leaf litter for farmyard manure production Convention on Biological Diversity, and DoFPS, collected from Sokshing (owned by the state but 2018 Forest Facts and Figures used by the people) Department of Forest and Park Services, 2018 16 IPBES, 2019 Forest Facts and Figures Global Assessment Report on Biodiversity and 4 IPBES, 2019 Ecosystem Services Global Assessment Report on Biodiversity and 17 Only one of the existing hydropower projects, Ecosystem Services Kurichhu, has a fish ladder, enabling fish to 5 The tiger, snow leopard and dhole (Asiatic migrate downriver in their mating season wild dog) are endangered, while the common 18 MOAF, 2016 State of Parks Report leopard is vulnerable 19 Gross National Happiness Commission, 2019, 6 The Rapid Impact Assessment of Rural 12th Five Year Plan 2018-2023 Development mentioned that 35% of the 20 Up to 2012, approximately 100,000 tourists respondents who faced food shortages, 31% of visited Bhutan each year, with about half coming them cited wildlife damage to crops as one of the from the region. International arrivals have main causes (Planning Commission 2007). since grown by about 7% a year on average, and 7 Bart et al. 2010 regional arrivals have risen by roughly 25% a 8 Nature Conservation Division, Department of year, including visitors who enter by road from Forests, Ministry of Agriculture, 2008, Bhutan India. www.kuenselonline National Human-Wildlife Conflict Management 21 In 2018 a total of 274,097 foreign individuals Strategy visited Bhutan in 2018, which is an increase 9 National Environment Commission, 2016 State of 7.61% over 2017. International leisure of the Environment Report arrivals grew by 1.76% to 63,367 over 2017 10 Thinley and Lassoie, 2013, Human-Wildlife while arrivals from the regional market grew by Final Conflicts in Bhutan: Promoting Biodiversity 10.37%. Tourism Council of Bhutan, 2019, Conservation and Rural Livelihoods Draft Tourism Policy 22 11 National Environment Commission, 2016; In 2011 alone, more than 121 people were Royal Government of Bhutan, 2016b). Power apprehended crossing the border from Bhutan transmission lines (9,426 ha) were the most to India with smuggled timber in large quantities significant, followed by road construction and prosecuted 23 (5,462.04 ha) According to the Bhutan Foundation, www. 12 Sears et al., 2017, Forest ecosystem services and bhutanfound.org 24 the pillars of Bhutan’s Gross National Happiness Statistics from National Biodiversity Strategies th 13 Fuel wood is also used for industrial production, and Action Plan 2014, 6 National Report to the agro- and forestry products processing, road Convention on Biological Diversity, and DoFPS, construction, hospitals, schools, military 2018 Forest Facts and Figures 25 encampments and monasteries. This was recorded only in five dzongkhags in 14 Statistics on timber allotment can be found in 2001, but has now spread to 17 dzongkhags, Department of Forest and Park Services, 2018 according to the National Biodiversity Centre 26 Forest Facts and Figures Agro-biodiversity can be defined as the variety 15 These include medicinal and aromatic plants, and variability of animals, plants and micro-

130 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 organisms that are used directly or indirectly for 35 In 2018 a total of 274,097 foreign individuals food and agriculture, including crops, livestock, visited Bhutan in 2018 which is an increase of forestry and fisheries It comprises the diversity 7.61% over 2017. International leisure arrivals of genetic resources (varieties, breeds) and grew by 1.76% to 63,367 over 2017 while arrivals species used for food, fodder, fibre, fuel and from the regional market grew by 10.37%. Final pharmaceuticals. It also includes the diversity of Draft Tourism Policy, 2019 non-harvested species that support production 36 In a 2011 amendment to the penal code, (soil micro-organisms, predators, pollinators), risking the protected species is upgraded to a and those in the wider environment that support felony of the fourth degree agro-ecosystems (agricultural, pastoral, forest 37 Department of Forest and Park Services, Forest and aquatic) as well as the diversity of the agro- Facts and Figures 2017 ecosystems. 38 Department of Forest and Park Services, Forest 27 Globally, biodiversity tends to occur in inverse Facts and Figures 2018 proportion to technological and industrial 39 In a powerful model in of public awareness wealth. Corporates and research institutions promotion in Norbugang Gewog, Royal Manas based in technology-rich developed countries National Park rangers and international partners obtain samples of plants, microbes and animals worked with health workers and teachers to that have their origin in biodiversity-rich explain to the villagers that the tigers kept the developing countries – for research, investigation prey population in control. The monks at the and development of new products, including Dhongag Tenpailing monastery further explained pharmaceuticals, biotech products, nutritional that killing other sentient beings would invoke supplements, cosmetics, enzymes, and industrial disharmony for the community – and for their chemicals – often without any benefit accruing children’s generation and beyond. They built , to the country of origin, especially to the rural small prayer and meditation rooms to house communities who are the stewards of nature. converted poachers and were able to persuade 28 Full title of REDD+ is “Reducing Emissions 20 men to come forward and give up poaching, from Deforestation and Forest Degradation followed by a spiritual cleansing ceremony in developing countries, and the role of in which they were accepted back by the conservation, sustainable management of forest community. See www.bhutanfound.org and enhancement of forest carbon stocks”. 40 Department of Forest and Park Services, 2018 29 Statistics from Department of Forest and Park Forest Facts and Figures Services, 2018 Forest Facts and Figures 41 In 2011 alone, more than 121 people were 30 DoFPS, 2018 Forest Facts and Figures apprehended crossing the border from Bhutan 31 DoFPS, 2018 Forest Facts and Figures to India with smuggled timber in large quantities 32 Bhutan’s 6th National Report to the Convention and prosecuted on Biological Diversity 42 Department of Forest and Park Services, Forest 33 Most notably the Green Climate Fund, also Facts and Figures 2018 the Bhutan Trust Fund for Environmental 43 www.thegef.com Conservation, EU Technical Cooperation Project, 44 Report by National Biodiversity Centre GEF-LDCF, IUCN, PHPA, RDCAP, REDD+ and 45 6th National Report to the CBD WWF 34 BIOFIN Bhutan, www.biodiversityfinance.net

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Chapter 6: WAY FORWARD: ENABLING FACTORS

This document brings together all of the relevant jectives outlined in Chapters 2, 3, 4 and 5 to policy and legislation existing in Bhutan into a be effectively implemented. In addition to the Draft National Environment Strategy (NES). The above-mentioned importance of coordination Draft Strategy is aligned with the 12th Five Year and harmonization of government mandates, en- Plan for the period 2018-2023, and highlights the abling factors can be identified in relation to the relevant National Key Result Areas and indicators, following areas: to assist in tracking progress on implementing a) Address policy gaps and implementation the Strategy (see Chapter 7 for a summary). The challenges Strategy is intended to guide implementation of b) Improve monitoring, data and information the relevant policy and legislation in an integrated systems and strategic fashion, through articulating a set c) Tackle governance and enforcement chal- of Strategic Objectives – contained in themat- lenges ic chapters – Chapter 2 (Land), Chapter 3 (Air), d) Strengthen civil society partnerships 4 (Water) and 5 (Life). This chapter deals with e) Promote innovative finance and incentives cross-cutting enabling factors which are needed f) Utilize economic valuation tools for all of these Strategic Objectives to be effec- g) Develop capacity of individuals and insti- tively implemented, in line with the FYP and all tutions relevant policies, laws and regulations. h) Conduct public awareness, education and advocacy For effective implementation, there is a need i) Apply science and traditional knowledge to for improved coordination and synergies among targeted research various Ministries, Departments and agencies at National, Dzongkhag, Thromde and Gewog a) Address policy gaps and implementa- levels, in the implementation of environment-re- tion challenges lated plans and programs. Enhancing such co- In the process of conducting consultations at na- ordination is part of the role of the National tional, regional and dzongkhag level, the Nation- Environment Commission (NEC), as the highest al Environment Commission received important decision making and coordinating body on all inputs from government officials and members matters relating to the protection, conservation of civil society on areas where there may be pol- and improvement of the natural environment, icy gaps – where new policies, laws or regulation cutting across several sectors of government. need to be drafted, or new strategies, plans or Where there are currently inconsistencies be- guidelines developed to address these types of tween different policy instruments, or between challenges, related to the need: policy instruments and legal instruments, it is im- 1. for stricter standards, higher penalties and portant that these be brought to the attention of stronger enforcement capacity in many the NEC by the relevant sector of government, or cases by civil society, in order that such inconsistencies 2. for clarity where there are overlapping or can be addressed through amendments to one unclear mandates and responsibilities or more instruments, in line with the overarching 3. for stronger inter-agency cooperation for policy framework, guided by the Constitution, effective integrated policy implementation as discussed in Chapter 1. The same applies to 4. to tackle policy conflicts where these exist concerns expressed in relation to overlapping and ensure policy harmonization mandates, roles and responsibilities of different 5. to address ongoing environmental chal- government agencies. lenges which have not been effectively addressed This chapter sets out a number of enabling 6. to address new and emerging environment factors which are needed for the Strategic Ob- and climate change challenges.

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A key issue raised in all the regional workshops For this reason, a decision was taken to reflect conducted as part of the consultation process for all the new ideas and suggestions raised through this National Environmental Strategy relates to a the consultation process in this chapter, so that perception that several of Bhutan’s existing poli- they can be considered and addressed as part of cy and legal instruments are inconsistent or even the way forward. The ideas are listed below, as contradictory. There are a number of cases where raised during the consultation process, as sug- harmonization needs to be achieved – through gestions for further exploration and action: amendment of an existing policy, development of a new policy, or issuance of regulations or guide- Suggestions in LAND theme: lines that clarify and resolve apparent contradic- • Recommend amendment of Land Act to tions or tensions. Such a process of harmoniza- allow for equitable land substitute suitable tion, supported by the NEC and accompanied by for agriculture in exchange for land provid- clarification of the mandates and responsibilities ed for farm-road construction of different agencies and levels of government, • NLC in collaboration with MoAF to assess, could help achieve cohesiveness, synergy and process and approve land exchange/swap- collaboration between sectors. In particular, the ping for those land parcels affected or de- need was highlighted to improve collaboration, stroyed by natural calamities such as land- cooperation and synergies between the national slides, erosion etc. and local administration and local government. All • Recommend amendment of Land Act and of this work could form a solid basis for collabora- other relevant legislation to allow for a tion on implementation, mobilizing new resources process to determine land compensation and catalyzing actions to address gaps. values • Recommend amendment of Land Act, to The specific set of challenges and gaps identified prevent arable land lying fallow – ease re- below may reflect the views of many stakehold- striction on wetland with regards to agri- ers in society, or just of a few individuals. The culture diversification (allow any feasible issues at stake are still under discussion, and agriculture activity, such as horticulture or there may be a need for societal debate before orchard development, which is restricted they can be resolved, and agreement reached on currently) the precise nature of the interventions required. • Recommend amendment of Land Act to

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protect potential areas (wetland/paddy) major regions, for better compliance mon- • Recommend amendment of Land Act to itoring and also to provide one stop ser- improve mechanism for land leasing vices to the people. • Provide a clear legal definition of encroachment, and undertake an inventory of state Suggestions in WATER theme: land, doing ongoing monitoring using new • Conduct comprehensive study, mapping technologies, and dealing on a case by case and inventory of all groundwater resourc- basis with encroachments – regularizing es nationwide – thorough and complete settlements where justified and preventing investigations to confirm the depth, pres- new encroachments ence and sustainability of the groundwater • Investigate potential for adoption of “cli- for extraction through videographing or mate villages” by the mining sector and camera test, electrical sounding and other large industries geophysical surveys and hydrogeological • Revise building rules and regulations, in- studies cluding number of stories permissible • Establish policies to guide groundwater • Develop a comprehensive monitoring and extraction, maximizing opportunities but evaluation framework for new settlement avoiding over-extraction and other nega- plans to ensure compliance with legislation tive potential impacts – groundwater is a as well as adoption of best practices, e.g. common pool resource, therefore the rules designing for energy efficiency, resilience and regulations on who gets to extract and to earthquake and windstorm etc. how, who will monitor and regulate and • Implement an extended producer’s re- how are critical questions to be answered sponsibility approach, with a waste man- • Investigate potential to institute ground agement fund to incentivize private waste water recharge systems in the towns management entities and enable innova- • Establish indicators for monitoring irrigation through public-private partnerships tion performance, and define rule for for- • Implement new schemes to encourage 4R mation and operation of water users’ asso- waste management, including fiscal incen- ciations more clearly tives to waste collectors • Conduct national study to identify and • Conduct research to prepare for recycling analyse the mismatches between irrigation and reuse of new kinds of waste streams, and other policies and make recommenda- including growing e-waste (volume and tions to address these type) and waste from electric cars • Develop guidelines to replicate success- • Conduct an assessment and feasibility ful Payment for Ecosystem Services (PES) study of the potential for a Refuse Derived schemes, also linking to revival of water Fuel approach in cement plants sources through indigenous methods • Conduct Strategic Environment Assess- • Increase taxes on industries contributing ment for all Dzongkhags, proactively deter- to water pollution and/or increase fines for mining the carrying capacity for industrial illegal effluent discharge by these indus- activities and establishing the likely cumu- tries lative impacts of proposed developments • Investigate potential to institute a new, • Revise Mines and Mineral Policy to independent and specialized water regu- strengthen environmental assessment and lating / management authority to address compliance with legislation, including ef- water conflict and ensure equitable distri- fective post-mine rehabilitation bution and sustainable management • Consider establishment of Regional Envi- ronment Office in each of Bhutan’s four

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Suggestions in AIR theme: • Improve Wildlife Management System by • Revise policy on Liquid Petroleum Gas sub- Department of Forests and Parks to help sidy – explore likely impact of doing away improve habitat and connectivity and stop with dual system either by making all LPG encroachment into forests subsidized, or by supplying subsidized LPG • Further develop tourism policy to update only in rural areas rules and regulations on regional tourists, • Revise vehicle import tax system, with entry and exit points, considering change higher taxes to discourage import of diesel to restrict daily numbers and require ad- or other high-emission vehicles vance application for guaranteed entry • Investigate new system for subsidization of • Consider new policy on stray animals, or low- carbon emitting cars such as electric at minimum revival of nationwide spaying cars and neutering efforts, to address re-emer- • Follow recommendations to set new pro- gence of problematic population levels posed maximum vehicle emission standards – moving from 4.5% permissible b) Improve monitoring, data and informa- volume of carbon monoxide in gasoline-fu- tion systems elled vehicle to 1.5% in a transition period A number of government agencies are respon- and eventually 0.5%, and from 70 Har- sible for monitoring the implementation of pol- tridge Smoke Units for diesel-fueled vehi- icies, laws and regulations, tracking progress cles to 65 HSU in a transition period, and in relation to the current Five-Year Plan, and 50 HSU eventually reporting on Bhutan’s compliance with its in- • Make government fully responsible for ternational commitments in terms of Multilat- Vehicle Emission System, without involve- eral Environmental Agreements (See Chapter ment of private entities 1). A comprehensive Environmental Data Needs • Revision existing environmental standards Assessment was completed by the National En- for acceptable level of particulate matter in vironment Commission Secretariat in 2018, setting out all of the country’s national and interna- the air, including PM2.5 as well as PM10 • Investigate potential to develop a house- tional reporting obligations, and the institutional hold air quality standard to determine ac- framework within which reporting takes place. ceptable levels of indoor pollution that do The assessment identifies the primary users of not cause harm to human health major categories of environmental data, informa- • Investigate potential for fiscal incentives tion and statistics, and the needs and challenges such as tax holiday for industries to invest faced by user groups, and highlights gaps in data in adopting cleaner technology availability and indicator systems. • Strengthen enforcement capacity to detect and prevent open waste burning, including Inadequate data and insufficient information issuing bigger fines for infringement of law management are major constraints for the successful implementation of environmental objec- Suggestions in LIFE theme: tives and effective enforcement of environmen- • Revise Livestock Act and Policy to reflect tal legislation. An example can be seen in the development with wildlife endowment for key area of air quality monitoring. In the past, compensating stock loss to damage-caus- a shortage of automatic stations to monitor air ing animals. quality in strategic locations made it difficult to • Consider extension of compensation ensure that emissions and discharges from in- schemes to comprehensively cover crop loss dustries comply with the national environmen- as a result of windstorms and other extreme tal standards (see Chapter 3). Detailed baseline weather events intensified by disaster environmental information, with the support of

137 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 environmental standards, is needed to enable ac- • overlap of institutional mandates for data curate assessment of the level and extent of en- generation, which means that often data is vironmental pollution and environmental chang- replicated in slightly different ways es in the country. Such information is not always • a lack of advanced equipment, technical available, or parameters are inadequate. In addi- skills and manpower, sometimes lead to tion, data collection in Bhutan has only recent- inappropriate and erroneous conclusions ly started in a systematic manner, and the data and less uniformity in analysis and inter- available are not yet statistically significant to pretation make inferences on long-term trends and causes. • budget limitations for data collection/analysis and lengthy government procedures The key challenges reported in the 2018 assess- for accessing funding ment by the various user groups in obtaining and • the origin of much environmental data in using environmental data stem primarily from a specific projects, reliant on project person- lack of technical skills and equipment (according nel and therefore not able to be sustained to 89% of respondents surveyed for the report), after project end followed by manpower and budget shortages • staff turnover and inadequate succession (83%). Other reported challenges include a lack planning, affecting continuity of data gen- of clear mandates, a lack of good indicators and eration. a lack of uniformity in data collection format and storage. The observation was made that data col- The reliability of the available environmental lected for specific organisational requirements is data is a major concern as the data collected is of not readily available to the public, and there is varying quality, and thorough quality assurance insufficient stakeholder involvement, and coordi- is not always applied. Incomplete or scarce spa- nation between data generators and users. tial and temporal coverage of data adds to the concern. Lack of coordination and data sharing Specific organizational problems related to data protocol further complicate the effective use of were reported to include: environmental data in the country.

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Data suppliers and main challenges (NECS, 2018)

Data Data Type Main Challenges suppliers NECS Air and water quality, GHG emission, climate Equipment, fund and capacity Projection, industrial emission DoFPS Forest Inventory and Fuel Wood consumption Equipment, fund and capacity NLC Land-use, land use change and Geospatial data of Equipment and fund Bhutan DoI Information on new and existing industrial projects/ Equipment, fund and capacity activities, waste generation from Industries and Mines RSTA Vehicle numbers and emission standards and levels Fund and capacity DoT Petroleum imports and use data Equipment, fund and capacity MoWHS National level waste inventory and water supply data Fund and capacity for urban areas Thromdes Municipal level waste inventory and urban water Fund and capacity supply data NBC Curated species data; Citizen contributed species Equipment, fund and capacity observation data; inventory data of Plant and Animal Genetic Resources for Food and Agriculture; Gene Bank collection data; National Herbarium data NSB Economic & Social Statistics Fund and capacity NSSC Soil and Land management information Equipment, fund and capacity NCHM Water and weather data and climate scenarios Equipment, fund and capacity DoPH Health, Sanitation and rural drinking water details Equipment, fund and capacity DPA Public environmental expenditure Equipment, fund and capacity DGM Geology, earthquake and minerals inventory Equipment, fund and capacity DDM Data on environmental degradation induced disasters Equipment, fund and capacity DRE Energy Audits and data on renewable energy Equipment, fund and capacity generation DHPS Data on Hydropower energy generation and export Equipment, fund and capacity RUB Primary data on the impacts of climate change Equipment, fund and capacity RAA Reports on the effective implementation of MEAs - DRC Annual Trade Statistics; Data on Import of fuels, and - other goods and services that are relevant to the environment

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Some key data needs of government, divided by hospital, etc.) thematic area, are reported in the 2018 Environ- • Waste composition data needed to indi- mental Data Needs Assessment, including the fol- cate potential for composting and recycling lowing: • Development of an environmental database system for efficient management of Land municipal waste. • Land capability and suitability mapping to identify areas that can sustainably support Climate Change various uses such as agriculture or other • Historical, and current weather pattern development activities data of the country • Information on ecological footprint and local • GHG emissions projection ecological carrying capacity to understand • Impact assessment and address ecological degradation issues • Data on low carbon investment options • Systematic registration and evaluation of • Vulnerability assessment and adaptation present land use (including state of degra- options dation) and users • Climate change impact on hydropower. • Nature and extent of deforestation • Nature and extent of land degradation, in- Bhutan is yet to carry out a national-level evalua- cluding soil erosion and its impact on crop tion of the conservation status of its biodiversity, productivity but key species surveys have been completed for • Information on various soil parameters, in- important and threatened terrestrial species – ti- cluding soil fertility and soil organic carbon ger, snow leopard, takin, red panda, golden langur stock. and elephant and small cats. These surveys have enabled habitat mapping and the development of Air species-based conservation plans. Information on • Spatial baseline data on primary and sec- important bird areas, critical wildlife habitats and ondary air pollutants needed to assess am- distribution has been determined. The Bhutan bient air quality and its impact on human Biodiversity Portal, a consortium-based biodiver- health and environment sity information platform. attempts to document • Accurate estimation of pollution loads species level information using citizen science from different sources (industry, domestic, approach. Next steps include integrating addi- vehicles, etc.) tional interface to accommodate data on fish and aquatic biodiversity, and initiating prioritization Freshwater Biodiversity on Aquatic and invertebrates through gap analysis • Data on minimum environmental flows in of existing data. the rivers, mainly for hydropower projects • Comprehensive inventory of invasive alien The important relationship between data, mon- species (IAS) and its ecological value and itoring and management objectives can also be update the list accordingly seen in relation to forest monitoring. The 2017 • Baseline information on aquatic species report of the Ministry of Agriculture and Forest for main river system in the country with on Drivers of Deforestation and Forest Degrada- particular focus on rivers for which hydro- tion in Bhutan reported on the comprehensive power plants are planned. national forest inventory which assessed the tree stock, ecosystem health, associated biodi- Waste management versity and carbon stock, which will significant- • Data on solid waste generation categories ly contribute to decision-making and accessing needed (domestic, industrial, hazardous, resources. The Ministry is exploring ways to de-

140 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 fine further within high carbon stock/high conservation value forest – demarcating areas suitable for sustainable management, areas suitable for clearing for other land use, and areas suitable for increasing forest cover and carbon enhancement. For example, steep, ecologically sensitive areas could be dedicated to protection to conserve carbon stocks, while afforestation, reforestation and enrichment planting could be promoted in degraded and barren areas. The intensification of sustainable management for timber and forest products would be suitable in forests with higher production potential. © Karma Tshering, NEC

Another example of the link between data and Drawing together this wide-ranging group of management relates to habitat mapping. Many government agencies in the context of the new of the high-biodiversity value habitats such as Draft National Environment Strategy is the Na- primary forests, high altitude wetlands, and tional Environment Commission (NEC), whose home-range of flagship species fall within the Secretariat has led the process of wide consul- protected area system. However, some oth- tations in drafting the Strategy. The NEC was er high-biodiversity value habitats such as Im- established under the NEPA as the highest de- portant Bird Areas (IBA), Key Biodiversity Areas cision-making body on all matters relating to (KBA), and Ramsar Wetland Sites rich in crop- the environment and its management. It is a wild relatives are yet to be mapped in order to cross-ministerial independent body, chaired understand their status and to implement appro- by the Prime Minister, with four to five “high- priate conservation measures. Currently, there is est-ranking officers representing relevant minis- no concrete data to ascertain the rate of habitat tries” (generally the ministers), nominated by the loss although land use conversion and forest fire Chair, and three “eminent persons” or represen- are considered as leading factors. There is a need tatives from civil society. The secretariat is re- to map the high-value biodiversity habitats and sponsible for the implementation of policies, reg- assess the extent of degradation and fragmenta- ulations, and directives issued by the NEC and tion for appropriate interventions. for administering the provisions of the NEPA. c) Tackle governance and enforcement The NEC has the authority to designate any challenges ministry, organization, agency, or committee Because of the cross-cutting nature of environ- as a competent authority to carry out its func- ment and development issues, and the frame- tions. The responsibilities of these authorities work of Gross National Happiness as an over- can range from the development of sector-spe- arching policy objective, the mandates of many cific regulations and guidelines (which must be different government agencies are touched on approved by the NEC for formal adoption), is- by this Draft National Environment Strategy, suance of environmental clearances, monitoring each of which has a vital role to play in its imple- of compliance, imposition of penalties within a mentation. A set of relevant competent authori- specified limit, decisions to halt economic activ- ties is identified in the policy table for each Stra- ities in cases of noncompliance, and authority to tegic Objective so that the multiple role-players raise concerns with the NEC in environmentally responsible for implementation can be identified sensitive situations. at a glance.

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On environmental disputes or noncompliance, Three draft studies by the RSPN evaluated the the NEC can issue fines and/or suspend or re- detailed impacts of hydropower development, voke environmental clearances in part or whole, farm road construction, and mining and quarry- thereby halting project activities. If required, it ing activities on the environment. In particular, can also call for the establishment of an environ- the studies point to the gaps between policies mental tribunal to hear specific environmental and implementation and significant impacts of disputes. poorly executed EIAs and unresolved regulatory noncompliance. The combination of policy im- Bhutan has developed comprehensive policies, plementation gaps and broader economic devel- laws, and regulations to support the manage- opment is causing Bhutan to encounter a num- ment and sustainable use of its environment. It is ber of environmental pressures, including land also broadly recognized that the implementation degradation and loss of forest cover, threats to of these are challenging, and in a number of cas- biodiversity, degrading water quality and quanti- es, the intended outcomes are not achieved. Ac- ty, increasing waste issues, and air pollution. cording to the ADB (2014) report, the Royal So- ciety for the Protection of Nature (RSPN) stated The Government of Bhutan has undergone a that “[p]ractical issues contribute to the widen- history of decentralization reforms. In 1981 and ing gap between policy and practice.” Almost all 1991, respectively, 20 Dzongkhags and 205 Ge- violations and disputes related to environmental wogs were instituted by royal decree. The role, laws and regulations were reported to have been mandate and capacities of local governments in addressed directly by the NEC or competent Bhutan have been significantly strengthened in authorities. These related mainly to illegal use recent years, but challenges remain. A key issue of forest resources, noncompliance with mining raised in all the regional workshops conducted as and mineral regulations (e.g., lack of mine res- part of the consultation process for this National toration), poaching, and wildlife trade. Very few Environmental Strategy was the need to empow- environment-related cases been brought before er local government for more effective enforce- the courts, but this may increase in the future, ment of laws and regulations. In some cases, this given the rapid pace of development, with infra- will involve strengthening regulatory bodies at structure expansion, construction, hydropower Dzongkhag and Gewog levels, improving human development, and enhanced extraction of natu- resources and technical capacity for carrying out ral resources. regular monitoring. An example is the ban on the

142 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 use of plastic bags. This is a national policy, but • Conflicts of interest: The current delegation Gewog administrations and village Gups (lead- of responsibility for issuing environmental ers) do not have the power to enforce the ban by clearances and monitoring compliance may imposing fines. If local government is given the present a conflict of interest, given that line responsibility to implement directives from the ministries and regional authorities usually government, it must also be given the authority have a dual responsibility of managing en- to enforce. vironmental impacts of projects while also pursuing economic development goals Based on discussions held in 2014 by the Royal • Traditional hierarchies: Bhutan is a relative- Government of Bhutan with support of the Asian ly small society, which has advantages, but Development Bank with environment officers can also present challenges with respect within the government, representatives from to ensuring an arm’s-length approach be- civil society organizations, and experts in the tween private project developers and gov- environmental field, the following governance ernment authorities. The RSPN states that challenges in Bhutan’s implementation of envi- “Bhutanese society is small and closely-knit ronmental laws were outlined: wherein most of the people, especially at • Ministry coordination: Poor coordination and the bureaucracy and business levels, are collaboration between government agen- known to the other and bound by tradition- cies was noted as an important challenge al social obligations. Such relations at the in effectively developing and implementing level of the empowered and affluent often policies and laws. Efforts are underway to get in the way of official undertakings, mak- harmonize conflicting and overlapping pro- ing policy enforcement difficult.” visions under different environment-related • Limited capacity of project developers: policies and legislation to strengthen hori- Many private project developers have lit- zontal and vertical linkages among institu- tle knowledge about the potential envi- tions ronmental implications of their desired • Human and technical capacity constraints: activities. In submitting requests for envi- With the rapid pace of development, the ronmental clearance, the information they number of projects ready for environmental supply is seldom of the required technical approval has accelerated, presenting chal- and professional level. Professional EIA lenges for government environment offi- practitioners are rarely used in undertaking cers who are unable to effectively review, evaluations for small to medium-scale proj- approve, and follow up on compliance, giv- ects. The relevant ministry, the NEC, and en limited human resources. Limited tech- district environment officers are therefore nical knowledge of officials also makes it required, to the best of their ability and ca- challenging to comprehensively assess the pacity, to either reject proposals or guide impacts of prospective projects on the en- project developers in completing their vironment clearance request documents • Bureaucracy and related implications: With numerous procedures and steps required to These challenges have significant implications for begin business operations (environmental the effective implementation and enforcement clearances and others), it was reported thatof environmental policies and laws. Challenges project developers are sometimes urged torelate not only to effectively monitoring the com- bypass rules and regulations, or choose notpliance of existing projects, but also to ensuring to comply given the associated high trans-that projects receiving environmental clearance action costs and the low risk of inspectionare truly environmentally sustainable through the or remedial action by authorities conduct of a scientifically robust EIA process.

143 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 d) Strengthen civil society partnerships of Nature, Royal University of Bhutan, SCI, SNV Civil society partnerships have been vitally im- Netherlands Development Organisation, South portant for Bhutan in piloting and testing many Asian Association of Regional Cooperation, of the new approaches outlined in this Nation- Swiss Agency for Development and Coopera- al Environment Strategy. They are also critical tion, SWITCH Asia, Taryana Foundation, TICA, agents for promoting community awareness – UN Environment Program, UNCCD Secretariat, to win public support and involvement, to im- UNDP, UNDP-managed GEF Small Grants Pro- plement policies on the ground. This includes a gram, UNESCO, University of California, USAID, range of types of civil society bodies – Bhuta- Water for Women, Waterkeeper Alliance, World nese community-based and non-governmental Bank, World Health Organization, World Meteo- organizations, international non-governmental rological Organization, World Tourism Organiza- organizations (NGOs) with a presence in Bhu- tion, WWF Bhutan, WWF International. tan, United Nations agencies, multilateral donor funds, and bilateral partnerships with other gov- e) Promote innovative finance and incen- ernments and their development agencies. tives The following alphabetical list of civil society Effective implementation of Bhutan’s environ- partners is not intended to represent a fully mental objectives depends on having sufficient comprehensive list of such partners, nor to ex- financial resources available. Funds may come clude, now or in the future, any organization or from a range of sources – public and private, capacity, but serves to provide a sense of the domestic and international, traditional and inno- broad scope of enabling institution whose sup- vative. During the country’s pinnacle policy dia- port has been and will continue to be an import- logues every two and half years, a number of inant enabling factor for implementation of envi- novative financing options have been discussed, ronmental policy: such as issuing Green Bonds, e-payments, establishing a new Climate Fund and reforming the tax Asian Development Bank, Association of Bhu- collection system. The Biodiversity Finance Ini- tanese Tour Operators, Australian Aid, Austrian tiative (BIOFIN) has identified a number of other Bilateral Assistance, Bhutan Ecological Society, opportunities, including generating further rev- Bhutan for Life, Bhutan Foundation, Bhutan enue from ecotourism to re-invest into natural Toilet Foundation, Bhutan Trust Fund for Envi- resources, exploring local level financing options, ronmental Conservation, BIOFIN, CIFOR, Clean maximising returns from forest carbon stocks, Bhutan, Climate Investment Fund, CNDP, Col- using royalties from hydropower for conserva- lege of Natural Resources, Danish International tion of watersheds, and capacity development of Development Agency, European Union, FAO, the judiciary system in applying an effective sys- GEF Least Developed Countries Fund, Glob- tem of fines and fees through a dedicated “green al Environment Facility, GEF Nagoya Protocol bench.” Implementation Fund, Government of India, Government of Republic of Korea, Green Bhu- BIOFIN’s analysis has shown that public funding tan Corporation, Green Climate Fund, Greener allocated for the Renewable Natural Resource Ways, Guide Association of Bhutan, Helvetas, (RNR) sector in the 11th Five Year Plan (2013- Hotel Association of Bhutan, ICIMOD, IFAD, 2018) was about USD 65 million, of which around International Finance Corporation, IUCN, Japan USD 16.83 million was for biodiversity related Funds-in-Trust, Japan International Cooperation activities. A tentative estimate of the total funds Agency, Joint Research Centre of the Europe- required for the implementation of the National an Commission, Karuna Foundation, Nissan Biodiversity Strategies and Action Plan (NBSAP) Japan, PPD, Radhi Natural Resources Manage- – itself just a sub-set of what is contained in the ment Group, Royal Society for the Protection (Draft) National Environment Strategy – is USD

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32.05 million – indicating a funding gap of 15.2 mental Conservation. The globally innovative USD million. The ongoing mainstreaming of envi- Bhutan for Life model, using project finance for ronmental goals into the Five Year Plan process is permanence, involves a 14-year transition peri- a positive trend that needs to be continued. Ad- od over which responsibility for PA financing is ditional resource mobilization is occurring under progressively borne by domestic sources of rev- the 12th Five-year Plan flagship programs – such enue, enabling full domestic financial responsi- as those for water, tourism, highland and organic bility by the end of the period. agriculture. Ongoing initiatives supported by international Building on Bhutan’s global commitment to car- partners include the NAPA III, REDD+ Readiness bon neutrality, and the Constitutional require- Program, the Poverty and Environment Initiative, ment to maintain at least 60% forest cover, sig- and the Sustainable Consumption and Produc- nificant resources have been mobilised towards tion (SCP) initiative through the SWITCH Asia Fa- the long-term financial sustainability of Bhutan’s cility. UN agencies such as UN Environment and system of protected areas, preserving these vi- UNDP are supporting government on a range of tal carbon sinks. Most notably, the Bhutan for projects funded through the Global Environment Life initiative, in collaboration with WWF and Facility and the Green Climate Fund including cli- other partners, has secured innovative financing mate-resilient agriculture, sustainable low-emis- of USD 43.1 million from private, bilateral and sions urban transport systems, sustainable live- multilateral funding sources, including the Green lihoods from forest and agricultural landscapes, Climate Fund and the Least Developed Coun- integrated river basin management, and reducing tries Fund of the Global Environment Facility, risk from climate-induced disasters. to permanently finance Bhutan’s protected area system. The initiative also includes domestic fi- In 2018, the Bhutan Trust Fund supported 48 nancing of USD 68 million and another USD 7 biodiversity projects worth Nu. 228 million. The million from the Bhutan Trust Fund for Environ- Bhutan Access and Benefit Sharing Fund has in-

145 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 creased from Nu. 1.6 million to 4.8 million, the are extracted on an ad-hoc basis from unman- establishment of the Endowment Fund of Crop aged forests. The Integrated Conservation and and Livestock Conservation has been approved, Development Programs is seen as a positive and the establishment of a National Climate Fund incentive, albeit with sustainability issues. Oth- is under discussion. Payments for Ecosystem er relevant policies and fiscal incentives with a Services (PES) is an innovative financing mecha- positive intent include the income tax holiday of nism that has been utilized in Bhutan in specific 5 years to farm house/homestay and 10 years contexts, and the National Payment of Environ- to businesses agriculture enterprises; tax rebate ment Services Framework (PES) of Bhutan, 2015 to industries adopting environmentally sound and PES Field Guideline have been developed to technology (EST); sales tax exemption on waste facilitate PES implementation. At the same time, management, mass transport and equipment; in addition to existing PES scheme in Yakpugang subsidies on human wildlife mitigation technol- Community Forest Management Group (CFMG), ogies; and subsidies on stall-fed high-yielding new PES sites have been established in Pasakha cattle breeds. and Namey-Nichu in Paro. f) Utilize economic valuation tools Financial incentives provided by government An important contribution to the enabling en- may influence economic activity and have an im- vironment for implementation of the (Draft) pact on the environment that may be positive, National Environment Strategy comes from the negative or neutral. The incentives provided in use and application of economic valuation tools the renewable natural resources sector (RNR) to demonstrate the value of the natural envi- are mainly targeted at realizing the goals of food ronment to human well-being, socio-economic and nutritional security, enhancement of rural development and overall Gross National Hap- livelihood and reduction of the high import de- piness. Currently, the valuation of biodiversity pendency. The impact of these subsides on bio- and ecosystem services is not carried out on a diversity, land and water resources is yet to be systematic basis, but has been carried out in the assessed. In the Forestry sector, subsidized tim- context of specific initiatives and projects – na- ber and the right to collect NWFPs are generally tional capacity building initiatives for REDD+ perceived to be harmful since these resources readiness, Payment for Environmental Services

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(PES), National Forestry Inventory, and ad hoc opment path. In this sense, the greening of our valuation of some protected areas and ecosys- system of national accounts would contribute to tem services. the quantification of Gross National Happiness.

As the nationally designated institution for co- The nation’s guiding policy document Bhutan ordinating ecosystem valuation, the Watershed 2020: A Vision for Peace, Prosperity and Happiness, Management Division (Department of Forests written in 1999, provides an important caution and Park Services, Ministry of Agriculture and – that overemphasizing a utilitarian, Western Forests) has carried out a series of studies on approach to measuring and valuing the con- biodiversity and selected ecosystem services i.e., tribution of the natural environment could risk timber, Non-Wood Forest Products, fuel wood, swallowing up our own approach to the environ- nature based tourism, water, grazing, and species ment, which has traditionally been anchored in richness. The Economics of Ecosystem and Bio- our Buddhist beliefs and values: “We not only diversity (TEEB) study for selected hydropower respected nature, we also conferred upon it a plants in the country has been completed es- living mysticism. Places were identified with tablishing three scenarios to simulate changes deities, divinities and spirits, and a large part of in ecosystem services provisioning from 2010 the landscape was mapped in such terms in our to 2030. Several valuation studies carried out in minds. We must recognize that some of the mea- the country were assessed through the imple- sures that we have taken to protect and preserve mentation of the 11th Five-year Plan, which has the environment and biodiversity may also have mid-term and terminal reviews, in the context of contributed to the erosion. The establishment implementation of the country’s National Biodi- of nature reserves and protected areas has in- versity Strategies and Action Plan (NBSAP). troduced lines of demarcation between humans and nature that formerly never existed. The in- Natural Capital Accounting or “greening” of na- troduction of rules and regulations that must be tional accounts, is a global tool that is starting respected have stripped some locations of their to be applied in Bhutan, alongside the system mysticism and prevented the communion with for tracking Gross National Happiness. Nation- nature that was once common. Our belief that we al accounts are used as the basis for calculating should manage our biodiversity and environment Gross Domestic Product, i.e. the total value of in accordance with international standards may the goods and services produced by a nation. have unwittingly contributed to a hardening of The system used in Bhutan for the calculation traditional attitudes, perceptions and values. The of GDP is based upon the methodology and further erosion of our traditional perception and practices recommended by the United Nations understanding of our place in natural systems (the 1993 System of National Accounts). While carries potentially disturbing consequences for the methodology represents a considerable im- the environment. It may be a shorter step than provement over earlier methodologies, it still we might care to imagine from seeing ourselves takes no account of the value contributed to the as part of a living world to seeing it as a source of economy by the environment and by ecological wealth and as a resource base to be exploited for services. An estimate of this value can be ar- immediate gain – a step that would undermine rived at through the compilation of environmen- the whole ethos and ethics of conservation. We tal satellite accounts, for which methodologies must be ever conscious of this danger. It can only have been developed and tested. The objective be addressed by deliberate efforts to keep alive of “greening” of Bhutan’s system of national ac- traditional attitudes and values. This establishes counts is to provide us with quantitative indica- a clear link between environmental conservation tors of the importance of the environment to our and the conservation of our cultural heritage.” economy and of the sustainability of our devel-

147 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 g) Develop capacity of individuals and sideration environment, climate and poverty institutions issues when undertaking local and central gov- Developing capacity at both individual and insti- ernment’s planning. tutional level is important to empower citizens and officials to carry out specific activities in International partnerships have also made possi- fulfilment of the National Environment Strate- ble programs to enhance the capacity of judges gy and the various policies, laws and regulations from across Bhutan to review and improve draft underpinning it. Two important constituencies rules of environmental adjudication. Programs for capacity development are unemployed youth with other countries in the region have devel- and rural women. Unemployed youth are the re- oped capacity of national and local governments cipients of government support to commercial to create an enabling legislative, financial and farming ventures – with land user rights certifi- technological environment for the introduction cates issued to them to create job opportunities and uptake of environmentally sound tech- in farming and agri-processing. Ongoing capacity nologies in the waste sector, and for achieving development is needed to ensure that sustain- their commitments on reducing greenhouse gas able businesses are established on this land. emissions. Non-formal education instructors have been trained on a new curriculum related Owing to the matrilineal inheritance practice in to renewable energy, rainwater harvesting and large parts of Bhutan, about 60% of rural women biogas, delivered through 700 learning centres and about 45% of urban women have land and across the country, as well as receiving training property titles registered in their name1. Gender on construction of fuel-efficient, cleaner cook- equality can be further promoted by giving wom- stoves. Capacity development for staff of pro- en a greater voice in the management of the land tected areas has been carried out to strengthen they own for better business opportunities, and enforcement and anti-poaching operations, in- access to an effective secondary and higher -ed cluding capacity for SMART patrolling. ucation along with skills training2. Women can be providers as well as recipients of capacity de- Aiming to empower local government at dz- velopment activities, since rural women tend to ongkhag and gewog levels, the Joint Local Gov- interact closely with the natural resource environ- ernance Support Program (JLGSP) has operated ment as users of wild plants and forest products. over the past decade. The program aims to make They are also usually the managers of home gar- finance systems effective and transparent for lo- dens, and can pass these skills on to the youth. cal government service delivery, while strengthening the central government’s policy, regula- Development of government officials’ capaci- tory, supportive and supervisory functions. Its ty through in-service training is also critical for strategy includes assisting local governments in effective policy implementation. A number of implementing block grants allocated for improv- partnerships with donors have enabled the Roy- ing local-level infrastructure and in providing al Government of Bhutan to develop capacity in public services, while offering training and ca- specific environmental sectors, such as air quality pacity development for local personnel and of- monitoring, managing human-wildlife conflict, or ficials. In this context, a Capacity Development undertaking forest inventory. Through the Pov- Grant Mechanism for local government (LoCAL) erty and Environment Initiative, programs have provides adaptation grants to local governments worked to build central and local government ca- to support climate resilient investments, such as: pacity to achieve green, inclusive development, • Infrastructure works aimed at the improve- through training provided to civil servants from ment of farm roads for enhanced climate all over the country. This has strengthened na- resilience – this involved slope stabilization tional and local level capacity to take into con- of landslide-vulnerable areas, rectification

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and improvement of the drainage system citizen’s duty to contribute to protection of the and construction of a causeway natural environment, conservation of the rich • Construction of elevated bridges to over- biodiversity and prevention of all forms of eco- come risks posed by swollen rivers and logical degradation. The integration of biodiver- streams during heavy rain events sity and environment into the Gross National • Improvement of rural water supply Happiness surveys reveals how ecological indi- schemes – this involved tapping new/ ad- ces can be used in national development para- ditional water sources, protecting water digms. The Gross National Happiness Survey, 2015 sources and their enhancement through indicates that close to 80% of the total popula- planting water-conserving species, up- tion are highly responsible (among 4 ratings - not grading water tanks to increase storage at all responsible, a little responsible, somewhat capacity, or replacement of water supply responsible, and highly responsible) towards bio- lines with climate-resilient materials diversity conservation. • Improvement of irrigation systems by reha- bilitating irrigation channels and installing Conducting advocacy and awareness efforts climate-resilient pipes to distribute irriga- around specific areas of environmental policy, tion water legislation and regulations can be essential for • Soil conservation and landslide risk mitiga- their effective implementation, and to minimize tion works, such as planting bamboo plants infringements and environmental damage. Ef- and constructing drains in landslide- prone forts to ensure knowledge and understanding of areas or farms particular policies provide the first step towards • Equipment provisions for renewable ener- ensuing both support and cooperation on pro- gy use through installation of biogas proactive environmental management efforts, and ducing plants and bio-digesters or solar compliance with environmental legislation. lamps/panels. Public environmental awareness raising starts h) Conduct public awareness, education within the context of schooling in Bhutan, with all and advocacy teachers trained to explicate Gross National Hap- Public education and awareness are vital to en- piness, as well as the related concept of “green- suring care for Bhutan’s rich natural and cultural eries” – essentially natural, intellectual, academic, heritage. According to the Constitution, every social, cultural, spiritual, aesthetic and moral val- Bhutanese is a trustee of the Kingdom’s natu- ues. Environmental education is mainstreamed ral resources and environment, for the benefit into the school curriculum from Pre-Primary to of present and future generations, and it every Higher Secondary. Environmental education is

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© Karma Tshering, NEC further supported by NGOs like the Royal Soci- part of the management of protected areas, as ety for the Protection of Nature (RSPN) which mandated by law. However, these programs are works to impart environmental knowledge and ad hoc and are mostly limited to raising aware- skills among the youth and citizens for promot- ness on environmental rules and regulations or ing positive attitudes and sustainable actions in a basic understanding of environmental chal- conserving Bhutan’s rich environmental heritage. lenges. There are also a number of ongoing en- Working in close collaboration with the Ministry vironmental education programs targeting dif- of Education, RSPN’s Environmental Education ferent sections of the population. However, an Program has developed an extensive network institutionalized mechanism is lacking to ensure of Nature Clubs, covering more than 23% of the that the public understanding of their role in en- schools and colleges in the Kingdom, and working vironmental conservation is elevated. Existing closely with the Ministry of Education. environmental education programs should be strengthened to target the general population, Beyond school level, awareness and outreach including schools, institutions, private and cor- programs are carried out in the major cities and porate sectors. at Gewog level on biodiversity conservation and environmental protection and waste manage- i) Apply science and traditional knowledge ment. Advocacy and capacity building for disaster to targeted research management are carried out through awareness Many areas of policy implementation covered raising and promotion of early warning systems. in the National Environment Strategy can be In some areas, communities are also engaged guided by targeted research, informed both by in citizen science initiatives to monitor species science and by traditional knowledge. Examples and ecosystem health. Additionally, community raised during the regional workshops conducted mobilization events continue to be promoted, as part of the consultation process for the Strat- for example, undertaking litter collection, river egy relate to the impacts of land conversion (to clean-up, tree planting etc. Public biodiversity guide potential amendments to the Land Act) information generation and access platforms are and the prevalence and causes of drying up of being enhanced, while nature clubs and youth water sources, since much discussion of this engagement initiatives continue to expand. matter is currently based on anecdotal evidence rather than accurate statistics. Currently, about 66% of the population interacts directly with protected areas, with many people For effective implementation of the National En- regularly visiting the forest for spiritual and rec- vironment Strategy, there is a need to strength- reational purposes. Environmental education is en biodiversity and environment information and

150 The Middle Path - NATIONAL ENVIRONMENT STRATEGY 2020 research, promoting evidence-based policy and Bhutanese individuals through its research grant decision-making, and adoption of sustainable program. technologies and approaches. Despite Bhutan’s unquestionable commitment to conservation In addition to a science-based approach, there is of its natural heritage, there has been a signif- political good will and government support for icant lag in terms of generating and applying an inclusive and participatory approach to the in- science-based knowledge and technologies re- tegration of traditional knowledge and custom- lated to biodiversity, nature conservation, and ary practices held by communities in biodiversity sustainable consumption and production. In the conservation and sustainable utilization. Howev- biodiversity sector, this gap has been recognized er, the process has been slow due to limited hu- since the formulation of the first Biodiversity man, technical, legal and financial resources. In Action Plan, as well as in subsequent national line with the increasing importance of traditional documents on biodiversity management. Efforts knowledge associated with genetic resources, are underway now to build collaborative initia- in the context of Bhutan’s commitment to the tives with international/regional conservation Nagoya Protocol on Access and Benefit-Sharing agencies to enhance technical expertise, knowl- (ABS), Government has initiated a program of edge, resources and funds availability to bridge work to document, protect and utilise traditional the biodiversity information gap. This could re- knowledge and customary practices of commu- sult in holistic and integrated research programs nities, relevant to biodiversity conservation and that generate information for government deci- sustainable use, supported through inventory sion-making, policy changes, awareness and ed- and documentation in all 205 gewogs completed ucation. In terms of adoption of environmentally with 716 traditional knowledge holders entered friendly technologies, there is still an overall gap in the traditional knowledge database. Over in the transfer, dissemination and adoption of 1,800 plants associated with traditional knowl- useful technologies, and there is a need to bridge edge have been collected and processed at the the gap between policy research and policy for- Bioprospecting lab for further research, scientific mulation. validation and natural product development, and four ABS agreements signed with local commu- There are several ongoing studies through uni- nities for the development of eight products uti- versities and NGOs to generate knowledge on lizing Bhutanese genetic resources and/or asso- environmental issues and biodiversity, includ- ciated traditional knowledge (see Chapter 5). ing a diverse range of topics. An example of a cross-section of current research projects could Endnotes include: population abundance and distribution 1 Kotikula, Aphichoke. 2013. Bhutan gender pol- of the endangered golden langur, the impact of icy note (English). Washington, DC: World Bank changing monsoon patterns on rice production, Group – report prepared by the World Bank in community values and perceptions of ecosys- collaboration with the National Commission for tem services of high-altitude old growth oak Women and Children (NCWC) forests, and the impacts of air pollution on chil- 2 Kotikula, Aphichoke. 2013 (World Bank and dren’s respiratory health. Many NGOs now have NCWC). knowledge-based conservation strategies, using research to professionalize conservation interventions and also to enrich Bhutan’s knowledge base on its environment, producing publications and documentaries for public consumption. The Jigme Khesar Environmental Research Fund aims to strengthen science-based research capacity of

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CONCLUSION AND MONITORING PROGRESS

Over the past year, the National Environment Chairman, local government of all Dzongkhags, Commission (NEC) Secretariat has worked with Village leaders (Gup), Community representatives, government and civil society stakeholders and Representatives from Forest Sector, Representa- partners at national, regional and local levels, tives from Agriculture Sector, Representative from to articulate a National Environment Strategy, Livestock Sector, as well as NECS staff members. based on all of Bhutan’s existing environmental Extensive comments were made on the first draft policies, laws and regulations. This work has re- Strategy document, and many additional issues ceived generous financial and technical support raised for inclusion from the sub-national perspec- from the United Nations Economic and Social tive. This enabled the production of a second draft, Commission for Asia and the Pacific (UN ESCAP), which was then workshopped in some detail at the and also financaial support from UNDP-Bhutan October Task Force meeting. Parallel sessions of and has been guided by a Task Force set up to the four technical working groups were held, refin- represent all the government agencies involved ing each chapter of the Strategy, including policy in the work of the NEC, as well as key other updates and drafting Implementation Plans. These stakeholders. The Task Force met in June and draft Implementation Plans, with potential key October 2019 and formed four technical work- indicators for each Strategic Objective which are ing groups – one to guide each of the Strategy’s shown in draft form at the end of each thematic thematic chapters on Land, Air, Water and Life. chapter in the current final draft.

The Task Force was mandated to produce a Building on this process, the current draft includes high-level strategy document, that would build a proposed outline for an overall Implementation on the 1998 National Environment Strategy, The Plan, potentially including all the 113 Sub-objec- Middle Path, reflecting new achievements, - com tives as well as the 31 Strategic Objectives, for mitments and challenges. It would also draw on consideration by the Task Force and stakehold- the draft environment policy developed in 2015, ers. The first draft of this National Environmental and would provide an overarching strategy for Strategy was developed in alignment with the 12th integrated implementation of existing national Five Year Plan, and had a limited time horizon of environmental commitments and priorities. The five years. Following the second Task Force work- new National Environment Strategy would pro- shop, held in Paro in October 2019, it was decided vide a framework for monitoring progress and to extend this to a 10-year horizon in the current was intended to be used to guide actions by -gov draft. It is intended that this Strategy be used for ernment at national, dzongkhag and gewog - lev a 10-year period from 2020 to 2030, with a full els. The Task Force would consider two options in review of the document after five years, for any terms of the time framework: a 10-year horizon necessary revisions, building on the progress as- or alignment with the Five Year Plan period. A first sessment in relation to the Implementation Plan. draft of the document was produced in August 2019, and comments and suggested edits were The table presented in Annex I has been pre- provided by the technical working groups. pared as a starting point for revising the Draft Implementation Plans developed by the Task Between the two Task Force workshops, consul- Force technical working groups into a single con- tation was also undertaken with a range of stake- sistent format, and considering the inclusion of holders at sub-national levels, with four regional the Sub-objective level as well. The table could workshops held in Wangduephodrang, Bumthang, be included in the Final Draft of the National En- Phuentsholing and Trashigang. All 20 Dzongkhags vironmental Strategy or kept as a complementa- were represented in the workshops, including the ry standalone document.

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ANNEX I: GUIDING THE MONITORING OF THE NATIONAL ENVIRONMENT STRATEGY

Strategic Objectives and Sub-Objectives Reporting Selected Baseline Target Target for Agency Indicator in 2020 for 2025 2030 LAND Strategic Objective :1 Plan for balanced land use • Lease out state land strategically • Strengthen environmental impact assessment • Establish land use and governance system • Ensure optimum utilization of arable land Strategic Objective :2 Enhance disaster preparedness and response • Plan for disaster risk management • Adapt to climate change impacts • Strengthen disaster preparedness and response • Issue early warnings to vulnerable communities Strategic Objective :3 Combat land degradation • Plan for Land Degradation Neutrality • Reduce land degradation • Practice sustainable land management • Restore degraded landscapes Strategic Objective :4 Promote environmentally friendly and climate- resilient roads and infrastructure • Climate-proof transport infrastructure • Construct environmentally friendly roads • Plan farm roads better Strategic Objective :5 Make agriculture sustainable and climate-resilient • Protect agriculture against climate change • Provide adequate irrigation • Improve farm productivity • Reduce open grazing of livestock • Promote organic farming

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Strategic Objectives and Sub-Objectives Reporting Selected Baseline Target Target for Agency Indicator in 2020 for 2025 2030 • Maximize use of sustainable inputs Strategic Objective :6 Manage mineral extraction sustainably • Strengthen protection and regulation regime • Plan sustainably for the sector • Increase value addition to minerals Strategic Objective :7 Ensure green, sustainable settlements • Promote regionally balanced development • Plan settlements within carrying capacity • Make cities climate-smart Strategic Objective :8 Strengthen waste prevention and management • Build capacity for integrated waste management • Promote sustainable production and consumption • Improve municipal waste management • Minimize greenhouse gas emissions from waste AIR Strategic Objective 9: Remain carbon neutral • Maintain forest carbon sink • Plan low-carbon sectoral development Strategic Objective 10: Improve ambient air quality • Address causes of pollution • Reduce pollution from fires • Improve air quality monitoring Strategic Objective 11: Promote low- emission transport • Monitor environmental impact of transport sector • Improve public transport • Tighten vehicle emission controls • Use legal and fiscal instruments

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Strategic Objectives and Sub-Objectives Reporting Selected Baseline Target Target for Agency Indicator in 2020 for 2025 2030 Strategic Objective 12: Adopt cleaner technology • Enforce requirement for environmental approvals • Promote investment in clean technology • Encourage sustainable consumption Strategic Objective 13: Develop renewable energy sector • Diversify renewable sector • Ensure energy access for remote communities Strategic Objective 14: Improve energy efficiency • Increase efficiency to reduce emissions • Achieve sectoral targets for savings • Promote sustainable construction Strategic Objective 15: Reduce household air pollution • Implement pollution abatement • Roll out improved cookstoves • Switch to cleaner fuels Strategic Objective 16: Provide early warning for windstorms • Manage increased windstorm risk • Respond to windstorm disasters • Provide early warning of storms WATER Strategic Objective 17: Institutionalize and implement integrated water resource management • Strengthen and capacitate IWRM institutions • Improve integrated service delivery • Manage water resources for a changing climate Strategic Objective 18: Prevent freshwater pollution • Strengthen enforcement of effluent discharge standards • Improve sewerage treatment facilities

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Strategic Objectives and Sub-Objectives Reporting Selected Baseline Target Target for Agency Indicator in 2020 for 2025 2030 • Monitor drinking water quality • Intensify urban clean-up campaigns Strategic Objective 19: Improve access to safe drinking water and sanitation • Rejuvenate rural water sources • Promote climate-resilient water harvesting, storage and distribution • Expand water and sanitation facilities Strategic Objective 20: Prevent damage from flood disasters • Integrated approach to flood risk management • Extend flooding early warning systems • Prevent landslides from floodwaters • Manage risks of glacial lakes • Artificially lower glacial lake levels Strategic Objective 21: Ensure sustainable development of hydropower • Expand current hydropower capacity • Protect and manage upstream watersheds • Promote alternative renewable energy • Carry out cumulative impact assessments • Ensure environmental flows in rivers Strategic Objective 22: Ensure efficient use of water resources • Manage water demand • Adopt water-saving technologies • Raise community awareness • Efficiency in water resource use LIFE Strategic Objective 23: Sustainably manage human-wildlife conflict • Implement strategy to manage conflict • Improve understanding through research

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Strategic Objectives and Sub-Objectives Reporting Selected Baseline Target Target for Agency Indicator in 2020 for 2025 2030 • Create safe environment for communities • Manage wildlife habitat • Strengthen community-based crop and livestock compensation Strategic Objective 24: Support sustainable forest management • Maintain forest for climate adaptation and mitigation • Promote climate-smart forest management • Reduce forest fire • Strengthen social forestry • Promote Payments for Ecosystem Services • Encourage sustainable harvesting Strategic Objective 25: Conserve Bhutan’s biodiversity • Implement biodiversity strategies and actions • Protect terrestrial ecosystems • Maintain freshwater habitats • Conserve threatened species Strategic Objective 26: Sustain the protected areas network • Implement Bhutan for Life • Diversify conservation finance • Improve management effectiveness • Conserve transboundary and cultural landscapes Strategic Objective 27: Promote sustainable tourism • Grow sector within carrying capacity • Diversify and spread tourism offering • Enhance livelihoods through ecotourism • Promote sustainable consumption Strategic Objective 28: Prevent and combat poaching, illegal harvest and trade • Prevent illegal hunting and fishing

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Strategic Objectives and Sub-Objectives Reporting Selected Baseline Target Target for Agency Indicator in 2020 for 2025 2030 • Prevent illegal extraction from forests • Develop ranger capacity • Enhance international cooperation Strategic Objective 29: Prevent spread of alien invasive species • Strengthen management system • Improve plant quarantine • Clear harmful exotic trees Strategic Objective 30: Preserve diversity of crops and livestock • Strengthen management framework • Promote gene banking • Promote in situ conservation Strategic Objective 31: Share benefits of genetic diversity • Strengthen institutional framework • Tap benefits from biodiscovery

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PROJECT MANAGEMENT TEAM Project Director: Mr. Karma Tshering, Head, Policy and Programme Services, NECS Project Support Officer: Mr. Rinchen Tshering, Deputy Chief, Policy and Programme Services, NECS

Ms. Solene Le Doze, Economic Affairs Officer, United Nations Economic and Social Commission for Asia and the Pacific (UNESCAP)

Ms. Caroline Petersen, International Expert Mr. Chukey Wangchuk, Local Expert

Mr. Karma C. Nyedrup, Environmental Specialist, NECS (Facilitator)

THEME GROUP LEADERS Land: Ms. Phub Dem, Specialist, PPD, MoAF Air: Mr. Sithar Dorji, Deputy CPO, PPD, MoIC Water: Mr. Nawaraj Chhetri, PO, UNDP Bhutan Life: Ms. Kuenzang Choden, PO, Bhutan for Life Secretariat

NATIONAL ENVIRONMENT STRATEGY TASK FORCE MEMBERS Ministry of Agriculture and Forest Sl. Name Designation Department No 1 Mr. Kuenga Namgay Chief, Feed and Fodder officer Department of Livestock 2 Ms. Sonam Choden Watershed Management Division Department of Forest and Park Services Mr. Tshering Wangchen Sr. Agriculture officer, Agriculture Department of Agriculture 3 Research and Extension division 4 Ms. Phub Dem Principal Agriculture Officer PPD Ministry of Economic Affair 5 Mr. Tashi Phuentsho Mining Engineer Department of Geology and Mines 7 Mr. Dawa Chogyel Environment Specialist Department of Industries 8 Ms. Tashi Pem Chief Electrical Engineer Department of Hydropower and Power system Ministry of Works and human settlement 9 Ms. Thinley Choden PE, WSD Department of Engineering Services 10 Mr. Karma Wangdi Gyeltshen Chief Engineer, Bridge Division Department of Roads 11 Garul Dhoj Bhujel Deputy Chief Statistical Officer PPD 12 Mr. Tshering Penjor Urban Planning Division Policy and planning Division Ministry of Home and Cultural Affairs 13 Sonam Deki Deputy Chief Program officer Department of Disaster management 14 Tenzin Department of Local Governance Ministry of Information and communication 15 Leki Choda Asst. Planning Officer Road Safety and Transport Authority 16 Mr. Sithar Dorji Deputy Chief Program officer Policy and Planning Division

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Ministry of Health 17 Mr. Chador Wangdi Sr. Program officer Department of Public Health Ministry of Education 18 Mr. Chainga Sr. Planning officer Policy and Planning Division Ministry of Labour and Human Resources 19 Mr. Kesang Jigme Chief Planning officer PPD Ministry of Finance 20 Ms. Pema Planning Officer PPD Non-Ministerial Government Agencies 21 Mr. Karma C. Nyedrup Environment Specialist NEC 22 Mr. Rinchen Tshering Ozone Program officer, Policy National Environment Commission and programming services 23 Wangdi Phuentsho Assistant Environment Officer National Environment Commission 24 Ugyen Tshomo Assistant Environment Officer National Environment missionCom 25 Sonam Dagay Environment Officer, Climate National Environment Commission Change Division 26 Yeshey Dorji Assistant Environment Officer National Environment Commission 27 Ms. Chimi Dema Assistant Planning Officer Gross National Happiness Commission 28 Ms. Dechen Eadon Deputy Chief HRO Royal Civil Service Commission 29 Mr. Dorji Pelzang Dy. Chief Survey Officer National Land Commission Secretariat 30 Mr. Tobden Deputy Chief Officer National Statistical Bureau 31 Mr. Sangay Tenzin Senior Legal officer Tourism Council of Bhutan 32 Mr. Lham Dorji Legal Officer National Commission for Women and Children 33 Lop Passang Secretary General Dratshang Lhentshok Civil Society Organizations/ Private Sector 34 Mr. Yeshi Dorji Head, Research and Planning Bhutan Chamber of Commerce and Division Industry 35 Mr. Thinley Norbu Dy CPO Civil Society Authority 36 Mr. Pema Namgyel Ghaley Programme Officer Association of Bhutanese Industries 37 Mr. Ugyen Lhundrup Chief Program Officer Bhutan Trust Fund for Environmental Conservation (BTFEC) UN 38 Mr. Nawaraj Chhetri Portfolio Analyst UNDP 39 Mr. Jigme Dorji Programme Officer UNICEF

160 We are thankful to the United Nations Economic and Social Commission for Asia and the Pacific who provided technical and financial support for the development of the Strategy and facilitated the coordinationwith all other UN agencies.

We are also thankful to UNDP-Bhutan for their financial support.

We are most grateful to the National Environment Strategy Task Force and associated members, composed of representatives of various Ministries, civil society organisations, private sector and United Nations Agencies. This includes the United Nation’s Resident Coordinator in Bhutan, as well as to the Secretariat of the 10-Year Framework of Programmes on Sustainable Consumption and Production (10YFP) and to Local Government Elected Leaders who contributed in successful development of the strategy.

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n a t o i i o s n s a i l E m nv om ironment C National Environment Commission P.O Box: 466, Thimphu : Bhutan www.nec.gov.bt