COUNTRY REPORT: BHUTAN

Tashi Wangchuk
Disaster Management Officer
Samdrup Jongkhar District Administration
Visiting Researcher (FY2017A)
Asian Disaster Reduction Center
Kobe, Hyogo, Japan
August –November 2017

Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC member countries.
The views expressed in the report do not necessarily reflect the views of the ADRC. The boundaries
and names shown and the designations used on the maps in the report also do not imply official
endorsement or acceptance by the ADRC.

iTable of Contents
Disclaimer................................................................................................................................................ i
Table of Contents ................................................................................................................................... ii
List of Figures........................................................................................................................................ iv
List of Tables ......................................................................................................................................... iv
List of Abbreviations ............................................................................................................................... v
List of Glossary of Terms ....................................................................................................................... v
1.

General Information ........................................................................................................................ 1

2.

Natural Hazards in Bhutan ............................................................................................................. 2

3.

2.1

Natural Hazards Likely to Affect the Country ............................................................................... 2

2.2

Recent Major Disasters ................................................................................................................. 4

2.2.1

Earthquake ............................................................................................................................ 4

2.2.2

Windstorm ............................................................................................................................ 5

2.2.3

Glacial Lake Outburst Floods (GLOF)..................................................................................... 6

2.2.4

Flash Floods ........................................................................................................................... 7

2.2.5

Landslides .............................................................................................................................. 8

2.2.6

Forest Fires ............................................................................................................................ 9

2.2.7

Structure Fires ....................................................................................................................... 9

2.2.8

Pest and Disease Outbreaks................................................................................................ 10

2.2.9

Drought ............................................................................................................................... 10

Disaster Management System in Bhutan..................................................................................... 10

3.1

Administrative System in Bhutan ................................................................................................ 10

3.2

Legal System and Framework ..................................................................................................... 11

3.3

Structure of Disaster Management ............................................................................................ 12

3.3.1

National Platform for Disaster Risk Reduction ................................................................... 12

3.3.2

National Organizations for Disaster Risk Reduction ........................................................... 12

3.3.3

Local Organizations for Disaster Risk Reduction ................................................................. 13

4.

Disaster Management Strategy, Policy and Plan ........................................................................ 14

5.

Budget Size on National Level ..................................................................................................... 14

5.1

Response and Relief Expenditure ............................................................................................... 15

5.2

Budget for National Disaster Management Activities ................................................................ 15

5.3

Budget for Department of Disaster Management ...................................................................... 15

5.4

Recovery and Re-construction .................................................................................................... 16

ii

6.

Progress of the Implementation of Hyogo Framework for Action (HFA) ..................................... 23

6.1

Strategic Outcome for Goal 1 ..................................................................................................... 23

6.2

Strategic Outcome for Goal 2 ..................................................................................................... 24

6.3

Strategic Outcome for Goal 3 ..................................................................................................... 24

7. Incident Command System in Bhutan…………………………………………………………………………………………17-21

8. Recent Major Projects on Disaster Risk Reduction ......................................................................... 25
9.

Asian Disaster Reduction Center Counterpart ............................................................................. 26

10. References ................................................................................................................................... 27iii

List of Figures
Figure 1: Location Map of Bhutan.......................................................................................................... 2
Figure 2: 2009 Earthquake damage………………………………………………………………………….7
Figure 3: 2013 windstorm damage ........................................................................................................ 3
Figure 4 : Glacier Lake Out-Burst Flood (GLOF)…………………………………………………………...7
Figure 5: Flash Flood ............................................................................................................................. 3
Figure 6: Forest Fire…………………………………………………………………………………………..7
Figure 7: Mongar Town Fire................................................................................................................... 3
Figure 8 : Landslides…………………………………………………………………………………………..8
Figure 9: Artificial dam formation ........................................................................................................... 4
Figure 10: BHU and Rural home roof damage by windstorm ............................................................... 6
Figure 11: GLOF of 1994…………………………………………………………………………………….12
Figure 12: Throthomi lake site after lake mitigation ............................................................................... 8
Figure 15: Outline of Disaster Management Institution in Bhutan ....................................................... 11
Figure 16: National Organization for DRR ........................................................................................... 13
Figure 17: Local Organization for DRR................................................................................................ 14

List of Tables
Table 1: List of recent earthquakes that have affected Bhutan (DDM, 2014) ....................................... 4
Table 2 : Recent Windstorm Disaster (DDM, 2014) .............................................................................. 5
Table 3 : List of GLOF and Flash flood disaster events (DDM, 2014) .................................................. 7
Table 4 : List of Landslide events in Bhutan (DDM, 2014) .................................................................... 8
Table 5 : Forest Fire Incidences 2016 ................................................................................................... 9
Table 6 : List of Structure fires in Bhutan .............................................................................................. 9
Table 7: Progress in Laws and Framework in Bhutan......................................................................... 11
Table 8: Annual Budget of DDM .......................................................................................................... 15
Table 9: Source of Funds for NRRP 2011(2009 Earthquake) ............................................................. 16
Table 10: Source of fund for the NRRP 2012 (2011 Earthquake)....................................................... 17
Table 11: List of recent major project on DRR in Bhutan .................................................................... 25iv

List of Abbreviations
ADRC
Asian Disaster Reduction Center
BHU
Basic Health Unit
CBDRMCommunity Based Disaster Risk Management
DDMC
Dzongkhag Disaster Management Committee
DDM
Department of Disaster Management
DES
Department of Engineering Services
DoC
Department of Culture
DGM
Department of Geology and MinesDMSPFDisaster Management Strategic Policy Framework
DRR
Disaster Risk Reduction
DSE
Department of School Education
ECR
Extended Classroom
GNHC
Gross National Happiness Commission
GLOF
Glacial Lake Outburst Flood
IMTF
Inter-Ministerial Task Force
MoAF
Ministry of Agriculture and Forests
MoE
Ministry of Eduction
MoEA
Ministry of Economic Affairs
MoH
Ministry of Health
MoHCA
Ministry of Home and Cultural Affairs
MoWHS
Ministry of Works and Human Settlement
NDMA
National Disaster Management Authority
NFP
Non Formal Education
NIPPP
National Influenza Pandemic Preparedness PlanNKRA
National Key Result Areas
NRRP
National Recovery and Reconstruction Plan
ORC
Outreach Clinic
PHRD
Japan Policy and Human Resource Development
RBP
Royal Bhutan Police
RNR
Renewable Natural Resources

List of Glossary of Terms
Chorten
Stupa
Dzong
FortressDzongdagDistrict Administrator
Dzongkha
National Language of Bhutan
Dzongkhag
District
DungkhagSub-district
Lhakhang
TempleThromdeMunicipal
Gewog
Administrative Block consisting of a number of sub-blocks
Chiwog
Sub-Blocks consists of number of villages under an elected leader in LG.

v

1. General Information
Formal Name:
Capital:Population:
National Language:
Capital:Political System:

Kingdom of Bhutan
Thimphu
797,765 (2016) World Bank
Dzongkha
Thimphu city
King is Head of State and Government (Cabinet) is elected by the Ruling
Government for five-year term.
Currency:
Ngultrum (US: 65 Ngultrums)
Religion:
Majority Mahayana Buddhism and Hinduism, Christian minority
District (Province): 20
Sub-District:
15
Blocks:205
Sub-Blocks (Chiwog): 1044

Bhutan is largely mountainous with altitudes ranging from 100masl in the south to 7,500masl in thenorth. The country is characterized by a fragile mountainous ecosystem where high, rugged
mountains, glaciers and moraines, deep valleys and ravines and depressions earmarking
watercourses, drainage basins and waterfalls are the main physical features. The dominant
topographic features are the high Himalayas in the north with snowcapped peaks and alpine
pastures, north–south valleys and ranges forming watersheds, deep valleys created by fast-flowing
rivers, rugged foothills, and alluvial plains with broad river valleys. Valleys in western and central
Bhutan like Punakha and Wangdue Phodrang are wider with straight or concave lower slopes andsubstantial alluvial deposits. The valleys in eastern Bhutan like Lhuentse, Trashigang, andZhemgang cut deeper, and have steep convex side slopes, narrow V-shaped valley floors, andnegligible alluvium. Sarpang and Samdrup Jongkhar are in the foothills of the Himalayas with dense
deciduous forests and alluvial lowland river valleys.
The country is endowed with numerous glaciers fed rivers that are being exploited to generate
electricity. Bhutan has four seasons and the climatic condition varies with hot subtropical climate in
the south to cool winters and hot summers in central valleys and severe winters to cool summers in
the north.

1

Figure 1: Location Map of Bhutan

2. Natural Hazards in Bhutan

I.
II.
III.
IV.
V.

Earthquakes;
Floods, including flash floods andGlacial lakes outburst floods(GLOFs);Landslides;
Forest fires.

VI.
VII.
VIII.

Outbreaks of pests and epidemic
diseases;Droughts (local-level water stress);
Wind, storms, hail, lightning.

2.1 Natural Hazards Likely to Affect the Country
Bhutan is prone to many natural disaster hazards due to its location in the fragile geologicalconditions, active seismic zone as per the Indian Codes, steep terrains and variable climaticconditions with great elevation difference. These hazards include, earthquake, windstorm, forest fireor structure fire, landslides, flash flood, Glacial Lake Outburst Floods (GLOF), outbreak of pest,
epidemic diseases and drought. Bhutan being located in the fragile young Himalayan range, it issusceptible to many climatic change effects around the globe and increase in the frequency andmagnitude of above mentioned natural hazards causing the threat to the lives and property.
Even though Bhutan does not have past available climate change data, Bhutan has been
experiencing extreme climate events more frequently over the recent years. The GLOF in 1994 andwindstorm in 2011 & 2013 are the some of the recent climate change effects to the lives andproperty in the country. Also, May 2009, Cyclone Aila was one of the worst climatic disasters in
Bhutan causing huge damage to livelihood of people in the country.

2

Figure 2: 2009 Earthquake damage

Figure 3: 2013 windstorm damage

Figure 4 : Glacier Lake Out-Burst Flood (GLOF)

Figure 5: Flash Flood

Figure 6: Forest Fire

Figure 7: Mongar Town Fire3

Figure 8 : Landslides

Figure 9: Artificial dam formation

Disaster events faced by Bhutan may not appear large‐scale in comparison with disasters affecting
other countries, but such events coupled with frequent losses to recurring and seasonal hazards has
a serious impact on the assets and livelihoods of the people, and on the overall development gains
made so far by Bhutan.
In the recent years, due to the rapid urbanization and increase in the populations especially in theurban cities, natural hazards are also increasing and causing the threat to the lives and property.
Flash flood, landslides, windstorm and forest fire are some of the seasonal natural hazards. Flashflood and landslides mostly occurs during the monsoon season and forest fire occurs mostly during
the dry season. The windstorm occurs mostly during the seasonal change.
2.2 Recent Major Disasters
2.2.1 Earthquake
Bhutan experiences many natural disasters in the recent years, one of the most awaking disaster isthe 2009 earthquake followed by the 2011 Earthquake. Bhutan has been affected several times by
the past earthquakes like 1897 earthquake measuring M8.7 with the epicenter located in Shillong
Plateau, India, which affected many Dzongs in Bhutan.
Table 1: List of recent earthquakes that have affected Bhutan (DDM, 2014)
Year

2003

2006

Magnitude(Richter
Scale)
5.5

Location

Losses/ Remarks

Gunitsawa, Paro

5.8 and5.5

Epicenter near
Dewathang struck
successively between
2:04 a.m. and 2:07 a.m.

Few landslides along highways
Minor damages in building Paro, Haa
and Thimphu reported.
Around 126 houses suffered minor
damages

4

21,
Sept.
2009

6.1

18
Sept.
2011

6.9

4 Jan
2016

6.7

local time.
Narang, Mongar

Greater Sikkim Area,
mostly affecting Haa,
Paro, Samtse andChukhha Dzongkhags in
Bhutan.
Manipur Earthquake

12 live lost, damaged 4950 households,
45 BHUs, 117 schools, over 800 cultural
heritage buildings; 29 RNR offices and
26 Gup’s office Total estimated loss ofNu. 2501.00 million (US$ 42.00million)
Loss of one life due to landslides and 14
injuries. 6977 rural home damaged, 36
schools, 22 hospitals, 286 heritage sites,
monasteries, 27 RNR centers.

Affected 221 homes partial, 228
Minors, 13 schools, nine temples, twobasic health units, a dzong, and a
gewog
and
RenewalNaturalResources office each. About 80
percent of the damages were reported
in Trashiyangtse, Trashigang, Mongar
andPemagatshel.
Easternpart
affected the most.

2.2.2 Windstorm
Windstorms have become more frequent and widespread disasters in recent years in Bhutan. The
2011, 2013, and 2014 windstorms have affected majority of the districts in Bhutan (refer Table 2).
Information on past windstorm damages reveal that the roofs of traditional Bhutanese houses are
particularly vulnerable to windstorms given the nature of construction practices in traditional
Bhutanese buildings.
The recent windstorm disaster affected mostly the rural homes in Bhutan and affecting the livelihoodof the people.
Table 2 : Recent Windstorm Disaster

Year
1

April
2011

2

MarchApril,
2012
July
2013
Sept.

3
4

Dzongkhags/Areas
affected
17 dzongkhags affected

Damages

Zhemgang, Wangdue,
Punakha, Haa

2424 rural homes roof damaged, 77 lhakhangs,
4 chortens, 57 schools/NFE centers, 21
BHU/ORC, 6 RNR offices, 4 Gups office and 3
RBP buildings
221 rural homes roof damaged, 10 lhakhangs
and 4 schools, 1 RNR office

Sarpang

4 homes roof are affected

Zhemgang

22 rural homes roof damaged, 1 RNR office, 1

5

2013
5

Dec
2013

6

March
2014

7

May
2014
April
2015

8

9

25 Feb2016

Bumthang, Chukhha,
Dagana, Gasa, Haa,
Lhuentse, Paro, Punakha,
Samtse, Trashigang,
T/Yangtse, Thimphu,
Wangdue
Dagana, Mongar,
S/Jongkhar, Sarpang,
Trashigang, Zhemgang
Samtse Dzongkhag

ECR affected and less 100 acres of maize field
are affected1012 rural homes roof damaged, 12 schools/ECRS, 58 cultural heritage sites, 3 local govt.
offices and 8 BHUs/ORCs affected

102 rural homes roof damaged, 2 schools and4 lhakhangs affected

106 homes, 20 government structures areaffected
Dagana,Tsirang,Chukha,
972 Structures, 5 cattle, crops damaged, 3Sarpang,
persons injured. Community temples and govt
Samtse,Phuntsholing,Pema structures damaged.
Gatshel and Samdrup
Jongkhar
Punakha
37 Houses and several govt government
structures are affected

Figure 10: BHU and Rural home roof damage by windstorm
2.2.3 Glacial Lake Outburst Floods (GLOF)
The most recent GLOF disaster event is 1994 GLOF, triggered by the outburst of Luggye Tsho in
Lunana caused massive damages downstream in the Punakha-Wangdue valleys and claimed 21
lives. A study conducted by the Department of Geology and Mines (DGM) in collaboration withICIMOD identified 2,674 glacial lakes in Bhutan alone, of which 562 are associated with glaciers.

6

2.2.4 Flash Floods
One of the most recent climate change effect disaster is 2009 Cyclone Aila precipitated floods, which
affected the whole of Bhutan taking 12 lives and causing losses of more than Nu. 700 million. Mostof the flash flood occurs during the monsoon season (refer table 3).
Table 3 : List of GLOF and Flash flood disaster events (DDM, 2014)

1

Year
1994

OriginEastern
Lunana (burstof Lugye Tsho)

Affected Areas
PunakhaWangdue valley

2

2000

Heavy rains(Flood)3

2004

Heavy rainfall(Flood)

4

May
2009

5

June 42013

6

August2016

Cyclone Aila
brought
unprecedented
rainfall andflooding to thecountry.
Flash floodcaused by
Jichuronchu(tributary of MoChu) due toheavy rainfall.
caused by
Heavy
MonsoonPhuentsholing,
Pasakha andother southerncitiesSix easterndzongkhags,
Trashigang,
Trashiyangtse
andSamdrupjonkhar
being the mostaffected ones.
17 districts wereaffected.

Impact21 lives lost, 91 households affected, 12houses damaged, 5 water mills washedaway, 816 acres of dry land.
965 acres affected by sand and silt,
damage to livestock and stored grains
and materials, 4 bridges washed away, 2chortens destroyed, 1 temple in Tsojug
badly damaged.
49 lives lost, Damages to factory
infrastructure in Pasakha,

9 lives lost, 29 houses completely
washed away, 26 houses collapsed and
107 houses partially damaged; 161 acresof wetland and 503 acres of dry land
washed away; 39 irrigation channels
damaged

12 live lost, estimated damages losses ofNu. 719 million

5 villages in
Kabisa gewog,
Punakha affectedOver 14 acres of agricultural land filledwith debris

125 family
displaced 4people lost lives

Southern Bhutan affected most drainedhuge national budget for reconstruction
and restoration.

7

Figure 11: GLOF of 1994

Figure 12: Throthomi lake site after lake mitigation

2.2.5 Landslides
In the rugged mountain environment of Bhutan, landslides form an ever-present natural hazard.
Landslide events (refer table 4) are closely linked with seasonal rain, earthquake, and flooding
events.
Table 4 : List of Landslide events in Bhutan (DDM, 2014)
Year

CausesAffected Areas

Impact/Damages

2000

Seasonal
MonsoonThimphu, Chukha,
Trashigang,
Samdrupjongkhar,
Mongar, Lhuentse,
Pemagatshel,
Samtse, Tsirang,
Sarpang,
Zhemgang,
Wangduephodrang
Thimphu-Tsirang
highway

Phuentsholing – Thimphu highway severely
disrupted by numerous major landslides(Sorchen, Jumja, Chhukha);
Highways and roads between and within
districts are blocked due to landslides
Most of the feeder roads were reported as
blocked21 Aug2002

Sudden burstof sliding
mud anddebris25 April Triggered by
2005
heavy rain

Loss of 2 pre-primary school children whenthe vehicle they were travelling in to school
was buried in a sudden landslide in Tsirang.

Palamphu, MongarLhuentse highway(mudslide)Bemsisi,
Thimphu(landslide)Haa

2 buried alive, 1 injured

2 Julyn/a
A total of 7,150.9 square meters of wetland
2006
affected by the landslide.
18
September
Loss of one life due to landslides triggered by
Sept2011 Sikkim
the earthquake.
2011
earthquake
Source: Extracted from the draft CBDRM training manual82.2.6 Forest Fires
Bhutan is rich in forest coverage and around 72.5 per cent of the land is covered by forest but
Bhutan is also prone to frequent forest fires. Most of the forest fire occurs during the dry season
between November and April. The recent list of forest fires around the country refer table 5.
Table 5 : Fire Incidences in Bhutan 2016
Sl. NoDzongkhag
No of
cases
1
Bumthang
1
2
Chukha
1
3
Haa
3
6
12

Lhuentse
Mongar

6
6

18
23
30

Paro
PunakhaSamdrupjongkhar

5
7
1

31
32

Sarpang
Thimphu

1
21

53
56
59
70

Trashigang
Tsirang
Wangdue
Zhemgang

3
3
11
3
72

Area
(Acres)Forest type
4
1.5
86

Blue pine
Mixed Conifer
Blue pine & Mixed
conifer
1169 Chir Pine
3804.6 Chir Pine,Blue pine &Oak Forest
1069.56 Blue pine
911.1 Plantation & Chir Pine
45 Bamboo andbroadleaved
11 Broadleaved
1902.6 Blue pine,Mixed conifer
Grassland,Others
1644.2 Chir pine
58.00 Mixed Broad leaf
9750.94 Chir pine
600 Broadleaved & Chir pine
21057.5 Total area Burnt

2.2.7 Structure Fires
The June 2012, Wandguephodrang Dzong (fortress) fire is the most recent and devastating firedisaster in the recent history of Bhutan; we lost the very important historical monument in ourcountry. Also, the three consecutive fires in Chamkhar town in Bumthang caused huge loss toproperty. In 2016 there are two major fires such as Mongar town fire and Chamkhar town fire whichdivested huge property loss and drained government revenue. In August, FCB fire in Samdrup
Jongkhar incurred 30 Million Ngultrum and Mega store for eastern Bhutan is burned into ashes.
Table 6 : List of structure fires in Bhutan
Year

Causes2

19 April
1998
2002

4

Oct 2010

5

26 Oct2010

Electrical shortTaktsang
circuit/ butter lamps Monastery, Paro
Yangthang village,
Haa
Wamrong village,
Trashigang
Electrical shortChamkhar town,
circuitBumthang

1

Affected areas

9

ImpactMain structure of the monastery
was damaged severely in the fire.
25 rural houses burnt down.
14 houses destroyed.
2 live lost and 55 structures
destroyed affecting 64 families.

6

18 Feb2011
27 May2011-

824 June2012

Electrical shortcircuit

Wangduephodrang
Dzong, Wangdue

915 Feb201516
August2016
8 August
2017

Candle as per
news
Gas stove humanerror

Sarpang bazaar

Electric Shortcircuit

Food Supply MegaStore S/Jongkhar

7

10

11

-

Chamkhar town,
Bumthang
Chamkhar town,
Bumthang

Mongar Town

18 houses burnt down, affecting
36 families (107 individuals)
30 houses completely burnt
down, 3 houses partiallydamaged, affecting 56 families
Complete loss of the historic
fortress, along with many
artifacts;
More than 50 shops arecompletely burnt downMore than 10 Shops and More 30
Families lost properties
Worth more than 100 Million
damaged2.2.8 Pest and Disease Outbreaks
Bhutan people are susceptible to outbreaks of many diseases such as bird flu and H1N1 influenza
and pest outbreaks such as Army Worms and Giant African Land Snails due to climatic conditions of
Bhutan. Even though Bhutan do not experienced the severe outbreak of any diseases but
Government has established a national preparedness mechanism to prevent the possible outbreakof diseases or pest.
2.2.9 Drought
Even though Bhutan is located in the high Himalayan with lot of water resources but being locatedon the steep terrain, it is difficult for the framers to get access to the perennial rivers. Therefore, they
depend on the monsoon season for their paddy plantation. Most of the Bhutanese farmer depends
on subsistence farming. Therefore, timely precipitation is very important for the Bhutan farmer.
However, due to the extreme variations in climate and weather patterns as per the National
Adaptation Programme of Action (NAPA), Bhutan also suffers from the drought. Government has
implemented Climate Change and Adaptation Programs into developments in 2015. Drawn strategicplan 2015 to 2020 for five years.

3. Disaster Management System in Bhutan
3.1 Administrative System in Bhutan
As per the DM Act 2013 Clause 7 states the establishment of the National Disaster Management
Authority (NDMA), as the highest decision making body on disaster management in Bhutan and
Department of Disaster Management, as the secretariat to the NDMA. Therefore, the Disaster
Management Institutions are formed and some will be formed soon at varies level as per the outline
below:

10

Figure 13: Outline of Disaster Management Institution in Bhutan

3.2 Legal System and Framework
Disaster management being very new discipline to the people of Bhutan and people of Bhutan could
not think of framing the laws or guidelines for the disaster management until the 2006. Even though,Bhutan has experienced few major natural disasters in the past as per the record. The first
framework of National Disaster Risk Management Framework (NDRMF) was drafted and adopted in
2006.
The 2009 Earthquake in the Eastern part of Bhutan was 1st Epoch making turning point for the
Bhutan for framing the laws for the disaster management and the process of drafting of first Disaster
Management Act started. Followed by the 2011 Sikkim Earthquake became like 2 nd Epoch making
turning point for the law maker to speed up in the drafting and approval of the DM act. Therefore, on
27th February, 2013 during its 10 session of Parliament, the first Disaster Management Act of Bhutan
was enacted.
Table 7: Progress in Laws and Framework in Bhutan

1994

2009

Major Disaster Events
Glacial Lake Outburst(GLOF)

NarangEarthquake,
Bhutan (M6.1)

Legal System and Framework in Bhutan
Flood
National Disaster Risk Management
2006 Framework (NDRMF)
Eastern 2007 In the process of Drafting DM Act started
2009 Given the importance of DM Act

2011

Sikkim Earthquake (M6.9)
2013 DM Act 2013 Enacted
Disaster Management Strategic Policy
2014 Framework (DMSPF).

11

3.3 Structure of Disaster Management
3.3.1 National Platform for Disaster Risk Reduction
At the national level for the platform for DRR, we have National Disaster Management Authority(NDMA) as a highest decision making body on disaster management in the country. The members
comprise of:
1.
2.
3.
4.
5.
6.
7.
8.
9.

The Prime Minister, as the ex-officio Chairperson;
The Minister for Home and Cultural Affairs, ex-officio Vice Chairperson;
The Finance Minister;
The Secretaries of all Ministries;
Gyalpoi Zimpon;
Head of the National Environment Commission;
President, Bhutan Chamber of Commerce and Industry;
Head, Department of Disaster Management as Member Secretary; andSuch other member as may be co-opted in accordance with rules framed under the Act.

As per the DM Act 2013, NDMA is responsible for approving - national DM strategies, policies; thenational DM and Contingency Plan; national vulnerability and hazard zonation maps; structural andnon-structural measures, standards, guidelines and procedures. The NDMA is also responsible forallocation of DM related resources; directing agencies to mainstream disaster risk reduction into theirdevelopment plans, policies, programmes and projects; and ensuring the establishment of an InterMinisterial Task Force.
In addition, the NDMA has the power to direct any agency including private sector on disastermanagement; on the establishment, develop and provide training in the field of disastermanagement.
3.3.2 National Organizations for Disaster Risk Reduction
The Department of Disaster Management (DDM) under the Ministry of Home and Cultural Affairs
serve as the Secretariat and executive arm of the NDMA as per clause 59 of the DM Act 2013. The
DDM is nodal National Coordinating Agency for disaster management in the country and the DDM is
responsible for laying down strategies, policies for disaster management; ensuring that agencies
mainstream DRR; preparing the National Plan in coordination with relevant Agencies; formulating
standards, guidelines and procedures for disaster management; developing and implementing public
education, awareness and capacity building programme; developing standard training module andcurriculum on disaster management; developing and maintaining Disaster Management Information
System; and ensuring implementation of Disaster Management and Contingency Plans.
As per the DM Act 2013, the Inter-Ministerial Task Force (IMTF) is constituted. The IMTF comprisesof technical experts from relevant agencies and will consist of such number of members asprescribed by the NDMA. The Head of the DDM is the ex-officio chairperson of the IMTF. The IMTF
is responsible for review of hazard zonation and vulnerability maps; structural and non-structural
measures; risk reduction activities; national standards, guidelines and operating procedures. The
IMTF will also provide technical assistance in the preparation of the National DM and contingency
plan and advice the setup of critical disaster management facilities.
National Disaster Management Authority (NDMA)
12Department of Disaster Management

Figure 14: National Organization for DRR

3.3.3 Local Organizations for Disaster Risk Reduction
At the local level, as per the DM Act 2013 mandates every Dzongkhag Administration to constitute a
Dzongkhag Disaster Management Committee (DDMC) under the Chairmanship of the Dzongdag.
Most of the Dzongkhags has formed the DDMC as per the instruction of NDMA. As the DM Act 2013,
the DDMC members comprise of as follows:
1.
2.
3.
4.
5.
6.
7.
8.
9.

The Dzongda, as Chairperson;
A Dzongkhag Welfare Officer from the Druk Gyalpo’s Office of People’s Welfare, if any;
Chairperson of Dzongkhag Tshogdu;
All Gups;
All Thrompons/ Thromde Thuemi;
Superintendent of Police of Officer-In-Charge, Royal Bhutan Police;
Drungchen, Zhung Dratshang or Dzongkhag Rabdey;
Dzongkhag Disaster Management Officer as Member Secretary; andSuch other member as may be co-opted in accordance with the DM Act 2013.

The lowest level of the DRR organization committees: Thromde committee, Dungkhag committee
and Gewog committee. Based on the requirement in their Dzongkhag, the Chairperson has right toconstitute within his/her administration boundary.
The main function of the DDMC as per the DM Act 2013 are: preparing and implementing theDzongkhag Disaster Management and Contingency Plan; monitoring and evaluating measures forprevention, mitigation, preparedness, response and capacity building taken up by sectors in the
Dzongkhag; ensuring establishment and functioning of Critical Disaster Management Facility;
ensuring mainstreaming of disaster risk reduction into the local development plan and programs;
ensuring compliance of approved hazard zonation and vulnerability maps; ensuring the enforcementof structural and non-structural measures; ensuring communication of hazard/disaster events to the
DDM and NDMA; ensure assessments and monitoring reports; ensure promotion of education,awareness, capacity building at dzongkhag and community level; conduct regular mock drills; reporton the progress of implementation of the Disaster Management and Contingency Plan; direct13

Dungkhag, Thromde and Gewog Disaster Management subcommittees, if any; and perform suchother functions as prescribed under the Act by the NDMA.
Dzongkhag Disaster Management Committee

Thromde Sub
Committee

Dungkhag Sub
Committee

Gewog Sub committee

Figure 15: Local Organization for DRR

4. Disaster Management Strategy, Policy and Plan
In 2006, the Department of Disaster Management with collaboration with relevant agencies
formulated the National Disaster Risk Management Framework (NDRMF), which was the firstguiding principle for the policy and planning disaster activities in our country. However, due to theincrease of populations and urbanization, Bhutan also faced many natural disasters in the recent
years. The 2009 and 2011 Earthquakes were the epoch making turning point which lead to the fastenactment of the Disaster Management Act of Bhutan 2013.
As per the DM Act 2013, the Department of Disaster Management formulated the following Policy
and Plans in collaboration with relevant agencies:
1) Disaster Financing Guidelines 20172) Disaster Response and Coordination Process at the National and Dzongkhag level3) Disaster Risk Management Strategy 20174) Disaster Management Strategic Policy Framework (DMSPF) 2014
5) Disaster Management Rules and Regulations
6) Disaster Management Planning and Contingency Guidelines
7) School Disaster Management Planning Guideline8) Guideline on Proper Construction Practices for Non-Engineering Buildings (Stone Masonry)9) National Action Plans for School Earthquake Safety10) National Action Plans for Earthquake Safety of Health Facilities
11) Post-Earthquake Safety Assessment Guidance Document
12) National Recovery and Reconstruction Plan for 2009 & 2011 Earthquake13) Dzongkhag Disaster Management Plan (Paro and Thimphu)

5. Budget Size on National Level
Financial Arrangement provision as per the DM Act 2013, there are four different financial
arrangement mechanisms; Response and Relief Expenditure, Budget for National Disaster
Management Activities, Budget for Department of Disaster Management, Recovery and Reconstruction.

145.1 Response and Relief Expenditure
As an emergency measure to meet the expenses for response and relief operation in the Dzongkhag,
the DDMC can use the fund from the annual budget of the Dzongkhag in accordance with theguideline formulated jointly by the National Disaster Management Authority and the Ministry of
Finance. Later, the NDMA recommend the Ministry of Finance to authorize the use of public funds to
defray expenditure incurred for response and relief operation in accordance with the Public Finance
Act of Bhutan. Till Department of Disaster Management is working on the ceiling of fund, how much
DDMC can use during the response and relief operations.
5.2 Budget for National Disaster Management Activities
This Budget is mainly for the immediate restoration of essential public infrastructure and service
centres during or after the disaster. As per the DM Act 2013, there should be a separate budget
head to be called the budget for National Disaster Management Activities and should receive
adequate budgetary allocation. This budget should be managed and operated by the Department ofDisaster Management Secretariat of National Disaster Management Authority.
5.3 Budget for Department of Disaster Management
This budget is a separate budget head for the Department of Disaster Management budget to run
the offices and to carry out the following activities:a) Capacity building;b) Establishing and maintaining Critical Disaster Management Facility including purchase of
equipment;c) Any other activity as may be required to strengthen the preparedness of the nation against
disaster.
Table 8: Annual Budget of DDM from 2012-2018
Fiscal Year

Total Amount (Million)

Remarks

2012-201334.157

USD 0.57 million

2013-2014

20.56

USD 0.34 million

2014-201535.372

USD 0.59 million

2016-201750

USD 0.77 million

2017-201898

1.51 million

155.4 Recovery and Re-construction
This budget is mainly for the recovery and reconstruction aftermath of disaster. After the disaster the
Dzongkhag Disaster Management Committee should submit the assessment of public assets andinfrastructure within its area of responsibility at the earliest with cost estimate along the with the work
programme to the Department of Disaster Management for review and submission to National
Disaster Management Authority for the approval. Then, the NDMA make recommendation to theGovernment for release of fund to the sectors concerned for the recovery and reconstruction.
The implementation of the National Recovery and Reconstruction Plan (NRRP) for the 2009
Earthquake was mostly funded through the UN agencies, donors’ agencies, support andcontributions from the friendly countries. The government also carried out the re-appropriations of
Nu. 150.320 million within the 10th FYP budget outlay. The total estimated budget requirement for
the implementation of NRRP for the 2009 earthquake was Nu. 699.117 million (USD 11.65 million)
and rest being funded through contributions received in the aftermath of the disaster as shown intable 9.
Table 9: Source of Funds for NRRP 2011(2009 Earthquake)

The total requirement for the implementation of the National Recovery and Reconstruction Plan
(NRRP-2012) is Nu. 1478.43 million which includes Nu. 67.60 million for early recovery and Nu.
82.00 million for DRR components as presented in the table 10:. This is being met through reappropriation of Nu. 515.06 million from the 10th FYP budget and the rest Nu. 963.37 million needs
to be funded by the RGoB and through the contributions received in the aftermath of the disaster toassist in recovery and reconstruction.

16

Unfortunately, we didn’t get good contributions from the international agencies for the
implementation of NRRP 2012.
Table 10: Source of fund for the NRRP 2012 (2011 Earthquake)

6. Implementation of ICS in Bhutan
Bhutan is vulnerable to various natural disasters such as floods, earthquakes, landslides,
forest fires, etc., hence the need for an effective strategy to lessen the impact of a disaster.
Since disasters will continue to strike unabated with and without warning, the Nation as awhole, and the Government in particular, has to plan and prepare to respond to themeffectively. The management and mitigation of the adverse consequences of these disasters
will require coordinated, prompt, and effective response systems at the National as well as
Dzongkhag levels. While many of the components of response activities are the same fordifferent types of disasters, systems need to be developed considering the multi-hazard
scenario for optimally utilizing available resources.
The Disaster Response and Coordination Process (DRCP) would be an essential part of thisstrategy and an ingredient of governance. The DRCP focuses on providing clarity about
offsite coordination at the National EOC level and the constitution of an onsite responseorganization based on the Incident Command System. The DRCP will assist and equip
various responding agencies at the National and Dzongkhag levels in organizing, responding
to, and coordinating disaster responses. Much of this document is focused on multi-agency
coordination and organization of onsite response teams using the DRCP.
The Disaster Response and Coordination Process (DRCP) establishes administrative
structures for systematic, coordinated, and effective (NEOC) operations involving multiple
national agencies and a well-organized multi-sectoral Incident Management Team. Incident
Command System (ICS) principles are utilized throughout the DRCP in order to support theorganization of onsite response activities through pre-established response-related functionalroles, ensuring there is flexibility in adapting to responder expertise and/or sectoral
jurisdiction. Implementation of the DRCP allows for greater efficiencies and more dynamic
response options from the initial on-scene responders, as well as it provides for a smoothertransition when additional personnel arrive from other agencies. Furthermore, drawing on
principles of ICS, the National Emergency Operations Center (NEOC) transitions into the17“National Disaster Response Coordination Committee” (NDRCC) during a Type III disaster tosupport the onsite IMTs at the dzongkhag levels.
Much of the onsite response organization has been designed based on some principles of
ICS, hence a brief background about ICS is provided. ICS is a temporary onsite
management hierarchy with standardized procedures for managing incidents/disasters ofany size without being hindered by jurisdictional boundaries. It is designed to enableeffective and efficient incident/disaster response by integrating a combination of facilities,
equipment, personnel, procedures, and communications within a common organizational
structure. It is used to organize response operations for a broad spectrum of emergencies,
from small to complex incidents/ disasters, both natural and manmade, as well as planned
events. It is suitable for the civil administration for all types of incident/disaster response andcan be used by all levels of government - National, Dzongkhag, Thromde, Dungkhag, andGewogs, as well as private-sector and non-governmental organizations. It is normallystructured to facilitate activities in five major functional areas: command, operations, planning,logistics, and finance and administration. In addition, the organization can contract or expand
based on the needs of the incident/ disaster. The ICS is implemented from August 2017 after
one year implemented on trial basis. The concept and idea is borrowed from US Forest
Service. The Department of Disaster Management (DDM) has worked in close partnershipwith the Office for U.S. Foreign Assistance (OFDA) / USAID and United States Forest
Service (USFS) since 2011 on implanting its own version of ICS. In partnership with the
USFS (International Programs), DDM successfully conducted various training courses at theDzongkhag and National level which included: Basic and Intermediate ICS, Integrated
Planning, and All Hazards Incident Management Team trainings. There are five levels of ICS
in Bhutan:
1.
2.
3.
4.
5.

National Level
District Level
Municipal Level
Sub-District Level
Block Level

18

Fig 16: ICS Concept Diagram

19

Figure 17. National Level ICS

20

Fig. 18 ICS District Level

Fig. 19 ICS Sub-District Level
21

Fig. 20 ICS Block Level

Fig 21. ICS Municipal Level22

7. Progress of the Implementation of Hyogo Framework for Action (HFA)
7.1 Strategic Outcome for Goal 1
The Department of Disaster Management under the Ministry of Home and Cultural Affairs isestablished in 2008 as a National Coordinating Agency for Disaster Management in the country wasan important step in Bhutan to establish an institutional structure to manage disaster risks, whichindicated a government commitment to disaster management in the country.
In 2006 National Disaster Risk Management Framework is formulated as the first guiding principle
for the policy and planning disaster activities in our country.
In February 2013, Disaster Management Act of Bhutan 2013 was enacted in the 10th Parliament
Session. The act also envisages the decentralization of authority and resources to local level.
The National Influenza Pandemic Preparedness Plan (NIPPP) for the Country was formulated tosupport integrated planning and preparedness for pandemic influenza across all sectors.
The Climate Change Council has been established to address the impacts of climate change, whichis also responsible for mitigation and adaptation measures against adverse impacts of climatechange. The National Climate Change Policy and a National Adaption Program of Action (NAPA)
has been developed.

23Conducted several education awareness, trainings and workshops among the local community andschool children to enhance knowledge and capacities on DRR, also conducted several
mainstreaming advocacy and training programs to educate on the integration of DRR intodevelopment policies and plans.
The Guidelines for Preparation of the Eleventh Five Year Plan (2013-2018), has “Improved disaster
resilience and management mainstreamed” as one of the 16 National Key Result Areas and as across-cutting theme. NKRAs are delivered by all sectors, agencies and local governments throughtheir programmes. The Royal Government of Bhutan’s Protocol for Policy Formulation also requires
mainstreaming of cross-cutting issues, including DRR, as appropriate to the policy.
National Action Plans for Earthquake Safe School and Health Facilities to provide necessary andurgent direction to the two most vulnerable sectors.
7.2 Strategic Outcome for Goal 2
National Disaster Management Authority (NDMA) is constituted as per the DM Act 2013 and chairedby Prime Minister with all government Secretaries as members, ensuring coordination andmainstreaming of DM efforts.
In the 2nd NDMA meeting, member approved the list of members for the Inter-Ministerial Task Force(IMTF) comprising of experts from various relevant line ministries and agencies responsible forproviding technical guidance to DDM, District DM Committees (DDMCs) and sectors.
DDMCs in 16 Dzongkhag is constituted as per the Executive Order from NDMA for formal
establishment of DDMCs across the country.
Disaster Information and Management System (DMIS) has been developed for collection/dissemination of information for effective and efficient response.
Disaster Management Rules and Regulations formulated as per the DM Act 2013.
National Search and Rescue Team, local level SAR teams are being formed, trained and provided
with basic equipment.
7.3 Strategic Outcome for Goal 3
Disaster Management Contingency and Planning Guidelines formulated and one Dzongkhag (Paro)
has developed the Dzongkhag Disaster Management Plan as per the DM Act 2013.
Automated Early Warning system installed along the Punatsangchhu river basin with collaboration
with Department of Hydro-Met Services and educated affected communities on risks, risk reduction
strategies. Regular drills are conducted along Punatsangchhu river basin.
The water level of potential dangerous Glacial Lake known as Thorthormi Lake located above thehead water of Punatsangchu River has been reduced by 5 meters reducing the risk of overflowing
and lake outburst.
National Search and Rescue Team comprising 20 members is established and became member of
the International Search and Rescue Group (INSARAG).
Bhutan Disaster Assessment (BDA) Tools and Standard Operating Procedures (SOPs) for postdisaster needs assessment developed.

24

8. Recent Major Projects on Disaster Risk Reduction
Table 11: List of recent major project on DRR in BhutanSl#

Name of the Project

Duration

Amount(Million)

Funding

Implementing
agencies

1

PHRD Grant for
Improving Resilience to
Seismic Risk

20132017

US$
1.2855Governmentof Japanunder WorldBank asadministrator

DDM, DoC,DES & DGM

2

3

4

5

6

7

8
9

Addressing the Risks
of Climate-induced
Disaster through2014Enhanced National
2017
and Local Capacity for
Effective Actions

DipECHO-VII projecton “School Based
DisasterPreparedness”
Institutional
Strengthening andSetting up of GLOF
Early Warning andRainstorm Flood
Forecasting in
Mangdechhu andChhamkharchhu
BasinsResponse andRecoveryPreparedness in
BhutanImproving Disaster
Management
Capacity in theKingdom of Bhutan;
Bhutan Recovery andReconstruction project
National Action Planfor School and Hospital
Earthquake Safety
Climatic Risk
management through

US$
54.54

UNDP

20132015

DIPECHOthrough Save
the Children

20142015

US$ 0.07 Mangdechhu
Hydroelectric
Project
Authority(MHPA)

20142016

US$0.26

20122014

US$ 0.40 World Bank

20092011

Jan
2014-

UNDP &UNOOSA

UNDP-BCPR
with support
from CIDA
GFDRR
US$ 0.3

25

UNDP

DDM, GNHC,MoEA,
MoWHS,MoHCA,
MoAF,
Phuentsholing Thromde,
MongarMunicipality& Tarayana
Foundation

StatusOn-going

On-going

DDM, DSE

Completed

DDM

Completed

DDM

Completed

DDM

Completed

DDM

Completedcompleted

DDM, MoH,
MoE
DDM, DES

Complete
d

10

11
12

Enhanced national,
local and communitylevel resistance
Glacial Lake Outburst
Floods (GLOF)
Project
National Recovery andReconstruction Plan2009
National Recovery andReconstruction Plan
2011

Dec.201
4
ADRC

2012

20092013

Please refer table 9

20112016

Please refer table 10

DDM, MoE

Completedcompleted
Completed9. Asian Disaster Reduction Center Counterpart
Bhutan joined as the member of ADRC in 2007 and the Department of Disaster Management under
Ministry of Home and Cultural Affairs, Royal Government of Bhutan is designated as the counterpart.
Contact Information:
Department of Disaster Management
Ministry of Home and Cultural Affairs
Post Box No. 1493
Phone: +975-2-321004, +975-2-334944
Fax: +975-2-325035.
Thimphu: Bhutan

26

10. References
ADRC. (2015). Information on disaster risk reduction of the member countries. Retrieved fromhttp://www.adrc.asia/disaster/index.php
NSB. (2014). National statistics bureau. Retrieved from www.nsb.gov.bt.
Lotay, Y. (2013). Windstorm damage assessment and prevention on traditional Bhutanese roofs.
DDM. (2010). National recovery and reconstruction plan.
DDM. (2012). National recovery and reconstruction plan
DDM. (2014). National progress report on the implementation of the hyogo framework for action(2013-2015). Retrieved fromhttp://www.preventionweb.net/files/40139_BTN_NationalHFAprogress_2013-15.pdf
DDM. (2013). Disaster management act of Bhutan.
RGoB. (2009). Joint rapid assessment for recovery, reconstruction and risk reduction. Retrieved
from http://www.ddm.gov.bt/download/Joint%20Rapid%20Assessment.pdf
ARDC. (2014). Country Report of Yeshy Lotay VR 2014.
DoFPS (2017). Forest Facts and Figures retrieved from http://www.dofps.gov.bt/wpcontent/uploads/2017/07/ForestBookletFinal.pdf

Documents Links

1. http://www.kuenselonline.com/rain-flooding-cause-more-damage-down-south/
2. http://www.kuenselonline.com/gelephu-flooded/
3. http://www.kuenselonline.com/monsoon-causes-damage-across-country/
http://www.kuenselonline.com/heavy-rains-wreak-havoc-in-south/
4. http://www.bbs.bt/news/?p=60683
5. http://www.bbs.bt/news/?p=60701
6. http://www.bbs.bt/news/?p=60668
7. http://www.bbs.bt/news/?p=60675
8. http://www.bbs.bt/news/?p=60663
9. http://www.kuenselonline.com/landslide-destroys-house-causes-roadblocks-and-power-failure-ingasa/
10. http://www.bbs.bt/news/?p=60628
11. http://www.bbs.bt/news/?p=60609
12. http:// reliefweb.int/report/bhutan/bhutan-flash-floods-situation-report-no-4-29-july-2016
13. http://www.kuenselonline.com/windstorm-damages-792-homes/ Windstorm damage April 201514. http://www.dofps.gov.bt/wp-content/uploads/2017/07/ForestBookletFinal.pdf Forest fact andFigures-Bhutan 201615. Disaster Management Act of Bhutan 2013
16. National Disaster Risk Management Framework 2006
17. National Recovery and Reconstruction Plan for 2009 Earthquake27

18. Guideline on Proper Construction Practices for Non-Engineered Buildings
19. National Action Plan for School Earthquake Safety
20. National Action Plan for Earthquake Safety of Health Facilities
21. Environmental Management Framework for Bhutan for the Improving Resilience to Seismic
Risk Project28