Title of Research: Comparative Study on District Disaster
Management Contingency Plan of Bhutan and Local
Disaster Risk Reduction Plan of Japan

Mr. Tshering Nima
District Disaster Management Officer, Bhutan
VR- 2019B

Acknowledgements
I would like to extend my sincere gratitude and appreciation to the Asian Disaster Reduction Center (ADRC),
Kobe for giving me an opportunity to work as the Visiting Researcher for this particular period from 13th
January,2020 to 9th April, 2020.Which I also able to gain more knowledge on the disaster management system
around the world and particularly from Japan. I would also like to thank and pay my profound gratitude to the
Chairman of ADRC, Professor Masanori Hamada, Mr. Suzuki, Executive Director of ADRC, Mr.Arakida(Senior Researcher), Dr.Ikeda (Researcher), for guiding and helping us in any matters relating to our work
right from the beginning of the session to the end of this program. I am also grateful to all staff of ADRC for
their kind, warm hospitality and cooperation provided during entire tenure in ADRC.
Finally, I would like to express my gratitude to all the Visiting Researcher colleagues from other countries, Mr.
Beda Khanal (Nepal), Mr. Alahakoon (Sri Lanka) and Ms. Suthathip (Thailand) for rendering kind cooperationand friendly companionship during our stay in ADRC, Kobe, Japan.

Acronyms
DDM

Department of Disaster Management

DDMC

Dzongkhag Disaster Management Committee

DDMC

Dzongkhag Disaster Management Committee

DDMO

Dzongkhag Disaster Management Officer

DM

Disaster Management

DM Act, 2013

Disaster Management Act of Bhutan, 2013

DMIS

Disaster Management Information System

DT

Dzongkhag Tshogdue

DRR

Disaster Risk Reduction

DZONGDAG

Governor

GNHC

Gross National Happiness Commission

GT

GewogTshogdey

HVCA

Hazard, Vulnerability and Capacity Assessment

ICS

Incident Command System

IMT

Incident Management TeamLGKRAsLocal Government Key Result Areas

LGRR

Local Government Rules and Regulation

NASART

National Search and Rescue TeamNDMA

National Disaster Management Authority

NKRAs

National Key Result Areas

RBP

Royal Bhutan Police

SDMP

School Disaster Management Plan

Table of Contents

CHAPTER 1: INTRODUCTION ........................................................................................................ 1
1.1 Title of Research Plan ............................................................................................................................... 1
1.2 Background and Significance.................................................................................................................... 1
1.3 Specific Aims.............................................................................................................................................. 1
1.4 Proposed Research Activities: .................................................................................................................. 1
1.5 Required Information and Potential Resources...................................................................................... 1
1.6 Expected Results ....................................................................................................................................... 1

CHAPTER 2: DISASTER MANAEGMENT SYSTEM IN BHUTAN ........................................... 3
2.1 General Overview of the Country ............................................................................................................ 3
2.2 Hazard and its affect in Bhutan ................................................................................................................ 3
2.3 Regal System and Regulatory Framework............................................................................................... 4
2.4 Disaster Risk Management Plans& Institutional Framework in Bhutan ............................................... 5
2.5 National Level for DRR .............................................................................................................................. 6
2.6 National Budget Plan for Response & Relief, Disaster Management Activities & Recovery &Reconstruction ............................................................................................................................................... 7
2.7 Contingency Plan –National level ......................................................................................................... 8

CHAPTER-3: DZONGKHAG DISASTER MANAGEMENT PLANS (Local Government).....10
3.1 Objectives ................................................................................................................................................10
3.2 Dzongkhag Disaster Management Committees ...................................................................................10
3.3 DRR Plans in Dzongkhag .........................................................................................................................11
3.4 Dzongkhag, Thromdeand Gewog level Response Plan .......................................................................11

CHAPTER 4: CASE STUDY OF DAGANA DISTRICT DISASTER MANAGEMENT ..........12
4.1 Dagana Dzongkhag profile......................................................................................................................12
4.2 Dagana Dzongkhag DisasterManagement Plan ....................................................................................15

4.3 Disasisk Profile of DaganaDzongkhag ....................................................................................................15
4.4 Contingency Plan.....................................................................................................................................25

CHAPTER 5: DISASTER MANAGEMENT SYSTEM IN JAPAN .............................................32
5.1 Brief background .....................................................................................................................................32
5.2 Disasters in Japan ....................................................................................................................................33
5.3 Disaster Management Laws and Systems .............................................................................................34
5.4 Disaster Management Plans...................................................................................................................37
5.5 Communications, Early Warning Systems and Hazard maps...............................................................38
5.6 Local Disaster Risk Reduction Plan: Hyogo Prefecture & Kobe City –Case study of Disaster Safe
Welfare Communities (BOKOMI) .................................................................................................................40

CHAPTER 6: KEY FINDINGS AND GAPS ..................................................................................42
CHAPTER 7. CONCLUSION...........................................................................................................44
RECOMENDATIONS .......................................................................................................................45
REFERENCES ...................................................................................................................................46

CHAPTER 1: INTRODUCTION
1.1 Title of Research Plan
Comparative Study on District Disaster Management and Contingency Plan of Bhutan and Local Disaster
Risk Reduction Plan of Japan.
1.2 Background and SignificanceBhutan’s Visions to have: “Safe, Resilient and Happy Bhutan” and a Mission: To deliver effective
coordination and facilitating services with competence in disaster management and to enable government andother stakeholders attain disaster resilience and GNH. Our country being in the Eastern Himalayan region in arugged terrain landscapes frequently affected by natural disasters such as Earthquake, windstorm, structuraland forest fires, landslides, flash floods/floods, hailstorm, thunder/lightning, and GLOF. These natural
phenomena are really affected the developmental activities and socio-economic of the country. There is no
separate Act or plan developed for Disaster Management for carrying out the Disaster Risk Reduction
activities in the National, Dzongkhag, Municipal and Gewogs. However, disaster risk reduction activities were
included in the 12th Five Year plan under NKRA-6 and LGKRA-9 which is on carbon neutral, climate anddisaster resilient development enhanced. The Department of Disaster Management under the Ministry of Homeand Cultural has initiated for the development of the District and Thromde Disaster Management Contingency
Plan involving various relevant stakeholders. Therefore, to mitigate, manage and respond the disaster risks inthe country, to have a proper coordinated Disaster Management Plan for National, Districts, Thromdes andGewogs is important in this 21 st Century to be safe and happy.
1.3 Specific Aims
The main aims and objectives are to study and learn on the Disaster Risk Reduction Planning System ofJapan and to understand the better experiences on the response and preparedness level in National, Prefectureand Local/Municipal level as well as to learn on how the disaster plans were implemented before, during andafter the disasters happen. Further, to integrate the activities from Japan to my District plan in times of review
and to know on lessons learned from the disasters for future development and community preparedness.
1.4 Proposed Research Activities:
To study DRM plan at all levels, Community involvement for DRR activities, capacity building of the
responsible participants, how to improve the District Disaster management plan and develop the community
disaster management plan as well as private sector and to learn on stockpiles systems.
1.5 Required Information and Potential Resources






Overview of the Disaster Management in Japan
Disaster Management Plan of Japan (Central, Prefecture and Local Government level)
Community Participation and response in Disaster Management
Preparedness, drills and exercises conducted in the Community
Communication Plan at Local Government

1.6 Expected Results
Japan is considered one of the greatest countries in the world in terms of preparedness and responding todisaster and as well as for recovery and reconstruction following build back better strategy focusing futuredisaster risk reductions. Whatever, we have learned from Japan on any disasters and Disaster Management

1Plans can be applied in developing similar disaster management plans in the country especially developing
community plan in my District involving the community residents through awareness on DRR which will begreat outcome of this course.

2

CHAPTER 2: DISASTER MANAEGMENT SYSTEM IN BHUTAN
2.1 General Overview of the Country
Bhutan is situated in the Eastern Himalayas covering an area of 38, 394 sq. km. It is most recovered byforests and rugged photography with altitudes ranging from 150 meters in the south to 7500 meters in the
North above the sea level. A prominent geophysical feature of Bhutan is its glaciers covering about 10% of thetotal surface area bringing a significant amount of freshwater resources to its rivers. Deep and narrow valleys
with concentrated populations are carved into the mountain ranges by Bhutan’s rivers that are continuously
nurtured by both glacial melts and the monsoons. Forests are the most dominant land cover, making up 72 %as mandated in our Constitution. Bhutan’s climate is as varied as its altitudes and has a larger influence fromthe Indian monsoons. Temperatures vary according to elevation with cool temperate climate in the central
regions, hot and humid towards the South, severe winters, and cool summers in the northernmost regions.
There are 20 Dzongkhags,15 Dungkhags, 205 Gewogs, 4 Dzongkhag Thromdes ,10Yenlagthromdes and 1044
Chiwogs with a population of 779666.00(PHCB-2017)
2.2 Hazard and its affect in Bhutan
Bhutan is prone and vulnerable to many natural disasters like earthquakes, windstorms, floods/flash floods,
landslides, GLOF, forest and structural fires etc. Every year due to such disasters many public structures andcritical structures like roads, bridges, school facilities, irrigation channel and drinking water sources, urban andrural homes and agriculture crops were damaged causing loss of lives and properties as well. The past datashows that earthquake magnitude 6.1with epicentre in Mongar in 2009 and magnitude of 6.9 with epicentre in
the Sikkim in 2011 claimed 12 and 1 lives, respectively. Many rural homes and public infrastructures weredamaged which incurred estimated loss of 2501(million). Likewise, the Cyclone Ailain 2009 has affected thewhole of Bhutan taking 12 lives and causing losses of more than Nu. 700 million worth. On October 7, 1994,
due to breached of the LuggyeTsho(lake) caused a disastrous flood wave along its path downstream claiming
22 human lives and causing damage to infrastructures and properties. Again, on June 24, 2012, the fourhundred-year-old Wangduephodrang Dzong was razed down to the ground by a fire causing huge damage andloss to Bhutan in terms of its rich cultural heritage. Fire incidences on human settlements and forests arecommon during the dry seasons. Bhutan losses and average of 10,000 acres of forest cover to forest fireannually. Likewise, human wildlife conflict such as elephants, monkeys and wild boar is a common issue allover the country which affects the livelihood of the rural as they destroy the hardly cultivated crops within anight and also threatens the life of the human beings. Floods /flash floods also destroy the cultivated crops
during the monsoon seasons due to flow of rainwater from the uphill’s and stagnations in the plain areas.
Moreover, windstorm is a major threat affecting the rural village’s home due to poor construction practices,
timely maintenance and lack of preparedness for the windstorm season like fixing of the temporary roofs andfasten the end of the roofs of the four corners of the house, also causes major damages to the public
infrastructures too.

3

Figure 1. Seismic Hazards map in Bhutan

2.3 Regal System and Regulatory Framework
The Department of Disaster Management the then the division functioning under the Ministry of Home andCultural Affairs formulated the guidelines for National Disaster Risk Management framework in 2006 which
was later covered by the enactment of Disaster Management Act in 2013.Earlier there was no guidelines
developed as Bhutan experiences minimal disasters annually and followed compensation systems by the
insurance company for those affected ones. The Disaster Management Act, 2013 is the main document forgoverning the disaster related issues in Bhutan supported by the DM rules and Regulations, 2014. The main
purpose of the DM Act is to establish and strengthen institutional capacity for disaster management,
mainstreaming disaster risk reduction, an integrated and coordinated disaster management focusing local
community. The Earthquake which occurred in 2009 at Mongar and 2011 in Sikkim, which destroyed many
government and private structures as well as human lives drives for the need of DM Act.
The Article 8 of the Constitution of Bhutan states that it is fundamental responsibilities of all the people toprovide help, to the greatest possible extent, to victims of accidents and in times of natural calamities. Disasterbeing unpredictable, the Mother of All Laws mentioned clearly on the importance of disaster risk reductions.

4Major Disaster Events
1994

2009

2011

Legal System and Framework in Bhutan

Glacial Lake Outburst Flood (GLOF)

Narang Earthquake, Eastern Bhutan(M6.1)

2006

National Disaster Risk Management Framework(NDRMF)2007

In the process of Drafting DM Act started

2009

Given the importance of DM Act

2013

DM Act 2013 Enacted

Sikkim Earthquake (M6.9)

DisasterManagement
Framework (DMSPF).

Strategic

Policy2014
DM Rules and Regulation
Figure 2. Evolution of Disaster Laws and Framework in Bhutan

2.4 Disaster Risk Management Plans& Institutional Framework in Bhutan
The Department of Disaster Management in Bhutan which is the only institution for coordinating thedisaster related responsibilities was formed only during 2008 under the Ministry of Home and Cultural Affairs
and initiated drafting of DM Act, 2013 which was later enacted by the parliament in 2013. In the following
year DDM also developed DM rules and Regulations in accordance with the Act to implement for disaster risk
reductions. This is one of the Legal bases established for managing disaster of the country. As covered in theAct, the National Disaster Management Authority is the highest decision-making body in terms of disaster inthe country and DDM functions as the Secretariat to the NDMA. The Disaster Management Institutions areformed as below.

5Figure 3. Organogram of Disaster Management

2.5 National Level for DRR
As mentioned above, in Bhutan, National Disaster Management Authority (NDMA) is a highest decisionmaking body on disaster management. The NDMA is responsible for approving - national DM strategies,
policies; the national DM and Contingency Plan; vulnerability and hazard zonation maps; structural and nonstructural measures, national standards, guidelines, and procedures. The NDMA is also responsible forallocation of DM related funds; directing agencies to mainstream disaster risk reduction into their development
plans, policies, programs, and projects; and ensuring the establishment of an Inter-Ministerial Task Force.
In addition, the NDMA has the power to direct any agency including private sector on disaster management;
establish/commission research, develop and provide training in the field of disaster management; direct the
Department of Disaster Management, Dzongkhag Disaster Management Committees and agencies including
the private sector as may be necessary for the effective implementation of the Act; or perform such otherfunction as may be prescribed under the Act or any law.
Bhutan’s five years plan is prepared by the Gross National Happiness Commission in consultation with
relevant Ministries, Autonomous Agencies, Thromdes, Dzongkhags and Local government. Currently theplans prepared by the DDM and approved by the NDMA submits to the GNHC for inclusion in the overall

6plans of the country. Bhutan has included SDGs targets like Carbon Neutral, Climate & Disaster Resilient
Development enhanced under National Key Result Areas(NKRA-6) of the total 17 NKRAs and LGKRAs-9
out of 10 LGKRAs of the Dzongkhag & Gewogs in the Twelfth Five years plan. Which will be implemented
by the respective Ministry, Dzongkhags, Thromdes and local governments.
The Department of Disaster Management (DDM) serves 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 disastermanagement in the country and also 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.
Likewise, the constitution of the Inter-Ministerial Task Force (IMTF) is mandated by Clause 49 of the DM
Act 2013. The IMTF comprises of technical experts from relevant agencies and will consist of such number ofmembers as prescribed 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 thesetup of critical disaster management facilities. The Ministry of Education, Ministry of Health and Ministry ofAgriculture has developed their own DM and contingency plan and other agencies also in line for developing
the plans.

2.6 National Budget Plan for Response & Relief, Disaster Management Activities & Recovery &Reconstruction
As per the DM Act, 2013, there are three different financial arrangement mechanisms;Response and Relief
Expenditure, Budget for National Disaster Management Activities and Recovery and Re-construction. In 2017,
the Department of Disaster management and Department of National Budget formulated an operationalguideline for disaster financing in the country as follows: Response and Relief Activities: As Response and Relief activities need to be carried out right after thedisasters, the budget shall be used from the concerned Districts or Agencies and need to submit to the
DDM within 10 days for Disaster Type I &II and 21 for the Disaster Type III.
 Immediate Restoration of essential public infrastructure and service center: for restoring the critical
public infrastructure like schools, hospitals, rural water supply, roads and Bridges concerned agencies
should submit the detail estimates of the affected by any disaster within 45 days to DNB for the
Budget. The said budget will be provided from the General Reserve Fund for the Disaster.
 Recovery and Reconstruction Activities: Since it’s required through assessment for the reconstruction
after 45 days all the disaster activities of the public infrastructure should be processed though annual
plan budget.
The above three financial plan is developed for the public infrastructures damaged and utilize during thedisaster response and not covered private structures. However, disaster affected to the private houses in Bhutan
will be paid by the Insurance Company as per their category and damage assessment report. The Agriculture7

Ministry is in the process of developing the compensation criteria for damaged of the crops by natural disasters
and wild animals in collaboration with the Insurance Companies.
2.7 Contingency Plan –National level
The Department of Disaster Management has developed uniform National Disaster Response system in the
country-(National, District, Thromdes, and Local Governments) following the concept of Incident Command
System practiced in many other countries which was directed to implement since 2017 by the Chairperson of
the NDMA. The ICS system focused on multi-agency coordination’s and organization of onsite response inmanaging the different level of responses required. It is normally structured to facilitate activities in five major
functional areas: Command, Operations, Planning, logistics, finance and administration. In addition, theorganization can contract orexpand based on the needs of the incident/ disasters. In case of Bhutan, during thedisaster type III which affects the whole National, The National Emergency Operations Center (NEOC) shouldbe operationalized by forming the “National Disaster Response Coordination Committee” (NDRCC) tosupport the onsite IMTs at the dzongkhag levels and other levels. Volunteers like De-Suups, Bhutan Red-Cross,
RBA and other NGOs needs for supporting the disasters will be deployed from the National level.
Actually, ICS is a temporary onsite management hierarchy with standardized procedures for managing
incidents/disasters of any 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, bothnatural and manmade, as well as planned events. It is suitable for the civil administration for all types ofincident/disaster response and can be used by all levels of government - National, Dzongkhag, Thromde,
Dungkhag, and Gewogs, as well as private-sector and non-governmental organizations. There are five levels of
ICS concept instituted in Bhutan:
1.
2.
3.
4.
5.

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

The Department of Disaster Management with the financial support from the World Bank Developed
Disaster Management Information System (DMIS) for keeping record of disaster data and for efficient
response. It comprises of five modules 1. Pre-crisis data 2. Disaster Assessment 3. Report Generation 4. Risk
mapping and 5. DRR Activities/Project. This is also part of the DRR response mechanism developed for theimmediate response and support during the disaster. This was developed in 2018 and now the Districts
Disaster Management officers all over the 20 District updating the data to the system.
Likewise, to tackle the problem of the Communication in the National level is the responsibilities of the
Ministry of Information and Communication. They required to set up necessary communication facilities allover the country so that the people will not be affected to communicate during the times of disaster,
communication include –Connectivity of Mobile phone& telephone lines, TV and Radio etc. Currently VSAT
has been set up in all 20 Dzongkhags and Dungkhags. The similar set up also going on for the Gewogs. The
Department of Disaster Management in collaboration with the Arm Forces of the country setting up the VHFbase to cover all the Digital-VHF handsets procured in the country to overcome the communication problem
during disasters.

8

Hazard Maps for earthquake has been carried out by DGM (Department of Geology and Mines) and they have
set up earthquake intensity meter in all Dzongkhags and setting up going on in the gewogs. They also
responsible for carrying out scientific studies on GLOF and landslides. The Department of Engineering
services under the MOWHS is responsible for developing the Hazard maps for floods and mandated forplanning on the disaster risk prevention and mitigation works in the country including the DRR activities
which they did in few locations in the country. Floods/Flash Floods and landslides are common, mostly insouthern and eastern parts of the country during the summer seasons. Likewise, DHS carryout out plans toconstruction, safety and disasters as well as prepare human settlement policies and strategies. Weather
warnings and advisories were carried out by the NCHM. (National Center for Hydrology and Meteorology) incenter after collecting the data from the different stations around country. They also provide river level status
and forecast of the weather condition for 3 days ahead and share information to relevant agencies andbroadcast in the National TV, BBS.
Bhutan has formed National Level Search and Rescue (NASART) team for quick responding and rescue thevictims involving diverse participants but however it could not function well due to the members having dual
assignments and works. Therefore, now the government has plan to set up in tie with the RBP having separate
training Centre. This could be one of the plans of DRR governance.

9CHAPTER-3: DZONGKHAG DISASTER MANAGEMENT PLANS (Local Government)

3.1 Objectives
The Department of Disaster Management has initiated to develop District Disaster Management Plan andThromde Disaster Management Plan after coming out with the pilot Disaster Management Plan in Paro
Dzongkhag in 2015, which was found to be very important and necessary to have such plan in all Districts inorder to identify hazard and risks in the Dzongkhag and respond to any kind of disaster. So far, 8 Districts outof 20 Districts has been developed District Disaster Management and Contingency plan and other remaining
12 Districts completed final draft and ready for the approval from District Disaster Management Committee(DDMC). Likewise, Four Major Thromdes Thimphu, Phuentsholing, Gelephu and Samdrupjongkhag also
developed their Thromde Disaster Management and Contingency plan. The Disaster Management andContingency Plan for the Dzongkhag is prepared, as mandated by Disaster Management Act 2013. All Districtplans should be endorsed by the Dzongkhag Disaster Management Committee (DDMC) and serve as a
document for reference by all relevant stakeholders – different Dzongkhag Sectors and Gewog Administrations- for implementation of prioritized disaster risk reduction and preparedness activities through mainstreaming.
The objectives of the Dzongkhag Disaster Management and Contingency Plan are:
 To ensure mainstreaming and facilitation for implementation of disaster risk reduction andpreparedness activities in Dzongkhag;
 To ensure required capacities are developed for risk reduction, mitigation, preparedness and response;
 To increase awareness on disaster risks, risk reduction and preparedness measures in the Dzongkhag;
 To establish coordination mechanism and standard operating procedures for emergency response andrelief operations.
 To ensure safety of community, reduce loss to property; protect critical infrastructure, andenvironment and continuity of essential services.
3.2 Dzongkhag Disaster Management Committees
Dzongkhag Disaster Management and Contingency Plans to be rolled out, 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 (Governor). Most of the Dzongkhags hasformed the DDMC as per the instruction of NDMA and DDM. The lowest level of the DRR organizationcommittees are Thromde committees, Dungkhag committees and Gewog committees. The main function of the
DDMC as per the DM Act 2013 are: preparing and implementing the Dzongkhag Disaster Management andContingency Plan; monitoring and evaluating measures for prevention, mitigation, preparedness, response andcapacity 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 theenforcement of 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; report on the progress of
implementation of the Disaster Management and Contingency Plan; direct Dungkhag, Thromde and Gewog

10

Disaster Management subcommittees, if any; and perform such other functions as prescribed under the Act by
the NDMA.
3.3 DRR Plans in Dzongkhag
The main document of the DRR plan is the 12th Five Year Plan of the respective Dzongkhags. The DRR
activities has been included in the LGKRA-9 of the Dzongkhags and Gewogs plan under -Carbon neutral,climate and disaster resilient development enhanced. Every year under this plan target Dzongkhags propose
budget for the DRR activities in all the Dzongkhags,T hromdes and Gewogs after approval from the
GewogTshogde, Thromde Tshogde and Dzongkhag Tshogdu. Upon final discussion and approval from theParliament, Dzongkhags and Gewogs carried out the prioritised DRR plans within the financial year likeawareness program, mitigation works such as construction of river embankments, irrigation channels andmaintenance etc. The sector concerned propose DRR budgets according to the plans like Agriculture, livestock,engineer, environment, disasters, and gewogs. Dzongkhags are not allowed to propose for the reserve fund forthe disasters, its reserved in the Central Budget.
The Construction of public infrastructures and private houses under the districts were monitored by the
Dzongkhag Engineering cell and local governments respectively, as they approve the drawings and designs
after verifications.
3.4 Dzongkhag, Thromdeand Gewog level Response Plan
Like in the central level, Incident management Teams at Dzongkhag and Dungkhag and Gewogs has been
established with the direction from the DDM, all Incident Team Members has been assigned their
responsibilities in all the Dzongkhags, Thromdes, Dungkhags and Gewogs. The formation of the response
team was coordinated by DDM after consultation with the various stakeholders like, LG leaders, Governor,
sector heads and regional heads. Due to the human resources shortages many ICS positions were clubbed thatone person involving in two tasks assigned systems.
Dzongkhag Disaster contingency Plans has been developed and assigned with responsibilities but found in
implementing the plan facing various problems like budget constraints, human resource shortages andcoordination among the different agencies in practically as well as lack of technical capacity. So to curb such
issues the government should look into providing full time DDMO as per the ACT to look after the disasters
and should provide separate disaster budget for the Dzongkhags and Gewogsto manage any disasters instead of
keeping at the center level like in Japan.

11CHAPTER 4: CASE STUDY OF DAGANA DISTRICT DISASTER MANAGEMENT
4.1 Dagana Dzongkhag profile
Dagana Dzongkhag is geographically located at the South-Central part of the country. The elevation ranges
from 200 to 4720 meters above sea level covering an area of 1722.57Sq. Km. The Dzongkhag shares its borderwith Thimphu and Chukha Dzongkhag to the west, Wangduephodrang to the north, Tsirang Dzongkhag to theEast and India to the South.The Dzongkhag has a mixed ethnicity comprising of Ngalops, Sharchops,
Khengpas and Lhotshampas. The Dzongkhag consists of one Dungkhagand 14 Gewogs. 230 KM away fromthe Capital of Bhutan, Thimphu.
The Dzongkhag Administration, similar to the administrative setup in other Dzongkhags, isheaded by the
Dzongdag with various sectors representing line Ministries working under the Dzongkhag’s administrative
jurisdiction. The Dzongdag and the Dzongkhag Administration work in close collaboration with the elected
local bodies – the Dzongkhag Tshogdu and the GewogTshogde. The other institutions in the Dzongkhag are
the Dzongkhag’s Judicial system headed by the Drangpon and DagaRabdey by the Lam Neten.
The Dzongkhag has two major climatic conditions. Summer is usually hot and wet while winter months are
dry and cold. Heavy rain falls are expected in the month of June-August which leads to abundant water flow
causing minor floods in the plain area. Cold winter starts from October till February. The temperature ranges
from 20-37 degree Celsius. The main source of income of the Dzongkhag is Agriculture and livestock farming.
The Dzongkhag has a fertile land and a suitable climate for agricultural production, making it one of the major
producers of mandarin and cardamom in the country. All the gewogs are connected by farm road andtelecommunication networks, and electricity except for few far flung areas.
The total population of Dagana Dzongkhag is around 24,247(PHCB, 2017) with 7346 households. With acrude birth rate of 13.7%, a death rate of 8.0% and a natural population growth rate of 1.8%, the population is
projected to 43,915 in 2030.

12Figure 4. Dagana Dzongkhag Map

13

Table 1. Key Demographics

Area
Gewog

(Sq.
Km.)

No.
of
Hous
ehold
s

Population

Male

FemaleHealth Facilities

Hospit
al

BH
U

OR
C

Schools

HSS/
CS

1

Dorona107.69

231

398

336

1

1

2

Drukjeygang

54

565

1180

1296

1

3

1

3

Gesarling

36.81

219

853

724

2

1

4

Goshi

22.14

384

1183

1248

5

Kana

193.11

510

1241

1229

6

Karmaling

4046

267

695

535

7

Khibesa

95.92

298

580

617

8

Lajab

210

202

371

9

Lhamoidzingk
ha

103

540

10

Nichula138.9711

Tshangkha

12

1

MSS

LS
S

PS

EC
R/E
CC
D

1
1

3
1

1

1

2

2

2

3

1

1

1

3

2

3

389

1

3

1

1365

1319

1

1

152

235

192

9060.9

405

849

838

Tashiding

39.53

355

841

13

Tsendagang

95.84

456

14

Tseza

210

175

2

2

1

1

2

1
1

2

3

1

838

3

2

1200

1147

2

1313

1235

1

2

1
1

1

BHU – Basic Health Unit; ORC – Out Reach Clinic; HSS – Higher Secondary School; MSS – Middle
Secondary School; LSS – Lower Secondary School; PS – Primary School; ECR – Extended Classrooms

14

1

2
1

1

3

1

2

4.2 Dagana Dzongkhag DisasterManagement Plan
Dagana Dzongkhag formed the Dzongkhag level Dzongkhag Disaster Management Committee (DDMC)as
mandated by the DM Act of Bhutan, 2013 as follows:
a)
b)
c)
d)
e)
f)
g)
h)
i)

Dzongdag, Chairperson (ex-officio)
Dzongrab, Co-opted Member
Dzongkhag Welfare Officer, member
Chairperson of Dzongkhag Tshogdu (DT), member
Gups of all Gewogs, member
ThromdeThuemi, member
Superintendent of Police/Officer-in-Charge, RBP, Dagana, member
Drungchen, DagaRabdey, member
Dzongkhag Disaster Management Officer, Member Secretary

The DDMC is mandated to meet at least twice a year and to frame rules and regulations concerning the
conduct of its meeting. The DDMC members endorsed the Dagana Dzongkhag Disaster Management andContingency Plan on 15/08/2018 after through discussion for implementing the mandates of the DDMC andcarry out DRR activities by including in the Annual District plan and proposing the Budget for implementation.
Awareness program on disaster and mitigation works were discussed and conducts drills in collaboration withthe other agencies.
The DDMC also constituted a subcommittee at the Dungkhag, Thromde or Gewog level to assist the DDMC in
the performance of its functions under the DM Act of Bhutan 2013.
4.3 Disasisk Profile of DaganaDzongkhag
Dagana Dzongkhag has experienced several disasters over the last 20 years, the most devastating being the
September 18, 2011 Sikkim earthquake of M 6.7, which caused widespread damages to rural homes andgovernment infrastructure. The other major and recurrent hazard has been windstorms causing extensive
damages to roofs of houses and government infrastructure. The Hazard Vulnerability and Capacity Assessment(HVCA) process carried out for the Gewogs also identified other hazards such as – forest fire, structural fire,
flood, landslides, thunderstorms and pests and diseases. TheHVCA assessment of Dagana Dzongkhag, as per
consultations with the community is as follows:15

Table 2. Hazard Assessment

S/N

1.

ProbabilityofOccurrence

History of
Past
Disaster

HazardWind Storm

Structural Fire

Wintermonth(DecemberMarch)MediumApril 2011
April 2014
May 2015

321 HHs affected

Landslides

Flash Flood

JuneSeptember
month

High

2016,2017

Dzongkhag Road,
Farmroad,
irrigation
channel,pvt
land
affected.

Structural Fire

Forest fire

During
WinterSeasonMedium

2017

2.

3

When it
could
occur

SecondaryHazardImpact1 house affected.

4.

Forest Fire

Structural fire

WinterseasonMedium2016

300 acres affected.

5Lightning and StructuralThunderfire/forest fire

Summerseasonmedium2018

Earthquake

Landslide,
Structure Fire

AnytimeHigh

2009, 2011

Electric lines shortcircuitedandwindowglassesbroken.
More than 136
HHs affected.

Flood

Landslides

June
Augustmedium

1995

6
7

to

16

Damaged crops andcultivatable land.

Table 3. Vulnerability Assessment
S/N

HazardElement at risk

Why they are at risk

1Wind Storm

Structure and crops

2

Landslides

3

Structural Fire

1. Houses(Tsendagang)
2. Twohouseholds(Tsendagang
Village)
People and property(Lhamoizingkha,
Dagapela,Sunkosh andDagana Town)

1. Temporary Roofing
2.Lackofproperanchorage
3.LackofLunggo(windtopassthrough)
1. Sinking Area
2. Landslide
prone
area

4

Forest Fire

HousesEnvironment

5Lightning
Thunderand People and property

6

Earthquake

7

Flood

and

1. Traditional houses
2.
Dzong
and
Lhakhangs
Lhamoizingkha
andSunkosh satellite town

17

How will they beaffected
1. Roofing will be blown
off.
2.
Structurescollapsed.
3.Livelost/injury

Properties and lives will
be lost.
Orange orchard

1. Poor wiring, old andclustered structures
2. use of butter lamp,
heaters and firewood
3. Carelessness while
using fire.
1. Carelessness whileburning debris
2. Dry season

1. Property
2. Live

Working in paddy fieldandpoorelectric
wiring.
1. Traditional houses
are not constructed asper Standards and codes
Settlement
near
Sunkosh River.

Propertyandhuman live.

1. Properties and lives
will be lost.

affect1.Collapse/
cracked2. Live lost/ injury
Damaged property and
Human live will beaffected.

Table 4. Capacity Assessment

S/N

Economic
capacity

HazardPhysical capacity

1

Wind Storm

Most of houses havewind tie.

2

Landslides

3

Structural fires

4

Forest Fire

5

Flood

JCB (1)
Plantation/
landmanagement
Water source andcatchment
area
protection

6

EarthquakeOpenspacesin HouseDzongkhag and all Insurance, Life
gewogs.
insurance.

Fireextinguishers
and fire hydrant in
Dzong area andoffices, schools andlhakhangs.
Excavators/ JCB
Fire line

House
Insurance, life
insurance
Land
Exchange
Insurance(houseandlife)

Social/Institutional
capacity

Environment
capacity

DDMC (IMT)Fire Fighting Unit
Community
SAR team
Desuups
Schools (students)
Forest personnel
Desuupsandcommunity
RBP and RBA in
Lhamoizingkha
Desuups
IMT members

Hospital and BHUs
Schools
Cooperatives

Overall, in all the Gewogs there are certain capacities and some level of awareness on prevailing hazards
and some knowledge on the measures to take to reduce risk before and during disasters.According to the aboverisks assessments following are summary of capacity needs in Dzongkhag:
Risk Reduction and Mitigation
There is need to build capacities in the Dzongkhag engineering cell and Dzongkhag DM Officer to lead both
structural and non-structural mitigation activities in the communities, schools, health facilities, etc. Rural
homes, school structures, health facilities and cultural structures have been particularly vulnerable in pastearthquake events. Therefore, vulnerability assessment of old andimportant/ public structures is important todetermine strengthening needs or replacement decisions. In terms of earthquake, and also other hazards, thereis need to strengthen the construction quality monitoring system to ensure constructions adhere to standards
and building codes.

18

Landslide is also a priority hazard for Dagana and there is need to build capacities in the Dzongkhag to raiseawareness in the community on ways of land management and carrying out mitigation in structures such as
roads, schools, lhakhangs, etc. that suffer from recurrent landslide damage.
Community groups such as community forest groups and system of having Re-suups, Me-suups, Chu-suups,
etc. need to be encouraged. Also there is still need to raise awareness within the Dzongkhag and in thecommunities on key messages for risk reduction and preparedness.
Dzongkhag and gewog is carrying out the mitigation works for disaster risk reduction but lack of fund to
mitigate all is a major problem.
Preparedness
For preparedness there is need to ensure early warning capacities for heavy rainfall, thunderstorms,
avalanches, hailstorms, and other such extreme weather conditions and have systems in place to provide theearly warning/ advisory to the affected communities in time. Capacities also need to be built in terms of raisingcommunity awareness on risks and family preparedness. Similarly preparedness capacities need to be
developed in important public institutions such as schools and health facilities. Community awarenessconducted but could not cover all institutions due to budget constraints.
Response
In terms of response, capacities for - Search and Rescue, First Aid, conducting various assessments (rapid,
damage, safety etc.) need to be built at various level. There is also need to support and organize volunteers forresponse and coordinate with existing volunteer organizations such as Desuups. For effective response,Standard Operating Procedures(SOPs) need to be developed for each Gewog. Simulations and drills should be
carried out to test and practice the procedure. At the Dzongkhag level, EOC should beestablished along withrelated Standard Operating Procedures (SOPs).
Incident Management team formed in the Dzongkhag for response as measures and EOC has been identified
in the Dzongkhag and Gewogs but need to relook and place equipments required. The following action plans
has been developed for enhancing disaster risk reductions in the local governments covering the activities likemeeting of DDMC,awareness and Education,preparedness and response as well as construction in the districts.
In order to implement all the plans are very difficult owing to budget constraint and lack of technical capacity
and human resource constraints as well poor participation of qualified contractors.

19

Table 5. Disaster Management Action Plan (2018 – 2022) Dagana Dzongkhag
Priority Area

Key Activities

DDMC
Meetings as
per the DM Act
of Bhutan 2013

Conduct DDMC meetings bi-annual as
per the DM Act of Bhutan 2013
(to review the DM and Contingency
plan, assess implementation of theactivities and dissemination of plan)

DDMC

DDMO

DDMC

To be clubbed with
0.100
DT Meetings and also
conducted in Gewog
Centres

1.1 Raise awareness on top priority
hazards – Landslide, earthquake,windstorm and fire

All 14 Gewogs,
Dratshang, Monasteries
Schools
Business Community

DDMC

Gewog
Administration
DDM
RBP

2018-2020

0.200

1.2 Distribute posters with key
messages on risk reduction and disaster
preparedness prepared by the DDM

Both to urban and rural
public

DDMO

DDMC
DDM
Gewog Adm.
Relevant sectors

2018-2021

0.060

1.3 Encourage contractors toincorporate risk reduction features in
the farm road, irrigation and otherinfrastructural development projects

Both rural and urban
communities

DE, Gups,
DDMO

DDM
Gewog Adm.
DDMC

2019– 2020

0.100

1.4 Dzongkhag observes International
disaster day and Annual school
preparedness drill day

Schools, communities,
Rabdey, Business
community

DDMO

DDMC,
DDM,
Gewog Adm.
MoE
Dratshang

1.5 Raise awareness on family
preparedness

All Gewogs
Communities

DDMO/G
AOs

1. AwarenessandEducation

TargetLead
Agency/Pe
rson

20

Supporting
agencies

DDM, Gewog
Adm.

Timeline

Budgetestimate(Nu. in M)

0.25
Annually

2019-2020

0.200

1.6 Conduct awareness programs on
insurance benefits and encourage
families to insure their property
against various hazards

All Gewogs
Communities

DDMO/
GAOs

Insurancecompanies,
DDM,
Gewog Adm.

2019 – 2020

(club with
other
awareness
activities)

2. Enhance risk 2.1 Conduct training on good
reduction
construction practices
andMitigation
2.2 Carry out vulnerability assessmentof old/ existing government buildings –schools, health facilities, culturalbuildings, office buildings

Engineers, carpenters,
Masons and houseowners

DDMO/
DE

DDM,
DES, MoWHS

2020 -2021

0.100

Engineers

DDMO/DE

DDM,
DES, MoWHS,
MoE,
Gewog Adm.
Dratshang

2020-2021

2.00

2.3 Implement structural mitigation
measures or replacement as pervulnerability assessment
recommendations on a prioritized basis

Mitigation for priority
structures

DE/
DDMO

DDM,
DES, MoWHS,
MoE,
Gewog Adm.
Dratshang2022 onwards

Based onassessment

2.4Institute construction quality control
and monitoring mechanism formaterials and adherence to standards
and designs

Engineering Division

DE/
DDMO

DES, MoWHS,
DDM
Other relevant
sectors

2019

0.200

2.5Implement mitigation measures on aprioritized basis in the Gewogs as per
HVCA:- Fire safety training in Nichula andDorona gewog- Landslide mitigation in

Gewogs, Respective
Sectors.

Gewogs/Sectorheads/DDMO

DDM,
GNHC, MoF,
concern
ed sectors

2019– 2020

Based onidentified
priority
mitigation
activity21

Lajab&Tashiding.
- Encourage anchorage of roofs andother mitigation for Windstorm
inDorona, Goshi and Tsendagang
Gewog
2.6 Training of Engineers, Sector heads
and GAOs on Rapid Damage
Assessment skills

Engineers, Sector heads
and GAOs

DE/DDMO

DES, MoWHS,
DDM, DDMC

2018-2019

0.150

2.7 Refresher course for the Dzongkhag
SAR TeamDzongkhag SAR team,
RBP

DDMO

DDM, RBP

2019-2022

0.300

2.8 Hands on training on use of firefighting equipment

DDMC/Lhakhang caretakers/BusinessCommunity andCommunities

DDMO

RBP
DDM
Dratshang
Relevant sectors

2019-2020

0.300

2.9 Form and train gewog SAR teams

GewogsDzongkhag
and Gewog
Administra
tion

DDM

2020-2022

1.650

2.10 Procure additional VHF sets

Dzongkhags/ Gewogs

DDMO

Dzongkhag/
Gewog
Administration

2018-2020

0.300

2.12 Ensure fire preparedness measures
is put in place in the BOD in the
Dagapela town

BOD

DDMO

DDMC
RBP

2018-201922

3. Enhance
preparedness,
response, andrecovery levels

3.1 Establish Dzongkhag Emergency
Operation Center

Dzongkhag

DDMO

DDMC, DDM
NDMA,
Relevant sectors

2018-2022

0.200 (forfurnishingonly)

3.2 Raise awareness and sensitize on
Dagana Dzongkhag DM andContingency plan other response
measuresDzongkhag, Gewog,
Dratshang, RBP, RBA,
Judiciary, Regional
Offices, Desuups,
Communities

DDMO

DDM

2018-2019

0.300

3.3 Stockpile materials required for
emergency response and immediate
recovery at strategic locations

Dzongkhag

DDMC

DDM,MoF,
relevant sectors

2018-2020

0.500

3.4 Establish and institute prearrangements for emergency
procurement and requirements

Dzongkhag

Procureme
nt Officer
DDMO/
Finance
Officer

DDMC, DDM,
MoF

2018-2019

0.200

3.5 Coordinate with Dagachhu Hydro
Project to establish Flood early warningfor low lying gewogs

Dzongkhag

DDMC

DDM, DHMS,
Dagachhu
Project, RBP,
Gewog Adm.

2019

1.500

3.6 Identify Evacuation sites for various
hazards (keeping in mind the needs ofpeople with disabilities, women,children and elderly)

Community and Offices

DDMC,
Gewog
Administra
tions

DDM, relevant
sectors

201823

3.7 sensitize, conduct mock drill/
simulation on Dzongkhag DM andContingency plan

Dzongkhag, Drungkhag
Administration, Gewog
Administration
Dratshang, RBP, RBA,
Judiciary, Regional
Offices, De-Suung,Business andCommunities

DDMC

DDM

2018-2022

0.500

3.8 Procure additional SAR equipment

Gewog Administration

Dzongkhag/ Gewog
Administra
tion

DDM

2019

3.000

3.9 Establish community based early
warning system for floods and landslide
including monitoring and reporting
systemDzongkhag

DDMC/
Dzongkhag
and Gewog
Adm

DDM, DHMS,
DGM, RBP,

2018

0.500

3.10 Identify Dzongkhag Disaster
Assessment Team for various hazards

Dzongkhag and gewogs

DDMO

DDM

2018

24

4.4 Contingency Plan

Information Flow Mechanism
The Contingency Plan for responding to the disaster is very important to save the human life and properties bymanaging well like human and financial resources, coordination and communication procedures and being
aware of the technical and logistical response. In case of disaster type I,II& III follows the above SOP
developed for decision making and response. If the disaster situation is not under the coping capacity of
Dzongkhag and Thromde( type I & II ) they report to the NDMA where NEOC activated and takes decision for
the assistance and beyond the control of the NDMA has provision for seeking the international assistancethrough coordinated by the RGOB.

25

Type I

Type II

Type III

DEOC/ TEOC Activated& NEOC Alerted

NEOC activatedConduct Emergency
DDMC/ TDMC/ GDMC
Meeting

DDM reports to
NDMA

Conduct NDMA
emergency meeting

Contingency plan
activated

Rapid assessment &Dzongkhag/ Thromde/
Dungkhag/ Gewog IMT
deployedIf situation is undercontrol by DDMC/
TDMC, situation report
generated andsubmitted to NEOC/
DDM

If situation
deteriorates, NDMA
takes decision for
Intl. AssistanceRegional/Intl.
disaster response

If situation
deteriorates& is nolonger under coping
capacity of DDMC/
TDMCContingency plans
activated.
Rapid assessment
carried out

If situation is undercontrol by RGoB,
situation reports
generated

Figure 5. Information Flow Chart

In case of the isolated local incident, which does not have a widespread effect on people and property and canbe managed within the normal operations of the agencies concerned, and such incident shall not require
emergency procurement and funding. For isolated local incidents, such as fire affecting single house orwindstorm blowing off roof of one structure in a locality, and cases which do not qualify under Disaster Types
I - III of the Disaster Management Act of Bhutan 2013. The concerned victims reports to the Gewog
Administration and the Gewog Administration submits the report to the Dzongkhag and the Insurancecompany for assessment and claim. The Dzongkhag Administration liaise with the Insurance company for26earlier payment to the victims. The Dzongkhag and Gewog provides immediate relief and response to thevictims.

4.Dzongkhag provides relief
assistance as per directives of the
DDMC and the government.

Dzongkhag
Administration
Insurance company

3.Dzongkhag and Insurance Company
verify damage and insurance company
disburses claims.
2.Gewog Administration verifies andsubmits report to Dzongkhag andinsurance company
1.Victims report about incident toGewog Administration

Gewog
Administration

Affected Family/
Individual

Figure 6. Standard procedure for isolated local incidents

Data Collection Method
As soon as the gewog receives the information of any incident within the locality, the concerned Gewog
Administration reports to the Dzongkhag with brief incident information and the same information shared by
the Dzongkhag to relevant authorities through various means of social media groups created for the fast
information like emails,telegrams,phones etc. DDMO of the Dzongkhag submits Initial disaster reports using
recently developed DMIS within 24 hours and PDNA within 72 hours. The DMIS system has been developed
recently in order to have the proper record of data related disaster for future reference and research purposes.
This data collection system is for all types of disaster in Bhutan.IDA can be submitted through mobile apps
even when offline.
Incident Management Team at Gewog level
In all the 14 Gewogs, the Gewog Incident Response Management Team has been establish with Gup as the
Incident Commander, monitored by Dzongdag and Dungpa as detailed below. Due to the lack of sufficient
officers at the Gewog level, the Logistics and Finance functions will be undertaken by the same officer
especially in Type I disasters. In case the disaster becomes Type II but still limited to geography of the affected
Gewog then the IMT from the Dungkhag / Dzongkhag will assume command with the support of the IMT at
the Gewog for managing the smooth functioning of the response in the gewogs.

27

Dzongkhag / Dungkhag
Commander: Dzongdag/
DungpaIncident Commander: Gup

Public Information / Liaison:
Gup

Logistics/ Finance
Section: Accountant

Operation /Planning
Section: Gewog
SAR and Evacuation
Group: RBP, whereavailable or Mangmi
Medical Services Group:
Relief and Shelter Group:
Agriculture Extension Staff
Coordination with Schools:
Livestock Ext. Staff

Figure 7. Incident Management Team at Gewog level

Incident Management Team at Dungkhag level
The Dungkhag Incident Response Management Team is led by Dungpa and monitored by Dzongdag. Due toa shortage of human resources and smaller scale of response, Operations and Planning section combined in to asingle section and Finance and Logistics alsocombined in to a single section. However, when the scale ofresponse escalates to Type II then the Dzongkhag takes the charge like in the Gewogs.

28

(Dzongkhag Commander):Incident Commander: Dungpa

Public Information / Liaison:
DungpaOperation /Planning
Section: Dungkhag

Logistics / Finance
Section: Accountant

SAR and Evacuation Group:
OC, RBP
Medical Services Group:
Doctor/ HA
Relief and Shelter Group: Land Record
Assistant
Coordination with Schools: Dungkhag
Education Officer (wherever present)

Figure 8. Incident Management Team at Dzongkhag Level
Incident Management Team at Dzongkhag Level
The Dzongkhag Incident Response Management Team has been formed with the Dzongdagas Incident
Commander in any disaster and Dzongrab as the alternate. The IC shares the information related to disasterand manage overall situations and liaise with office of the Gyalpoi Zimpon, Army, and Desuups for effective
response for supporting incase if the situation escalates and require more volunteers. Various positions in theteam is occupied by the officer’s present at the Dzongkhag level and together they will respond to a disaster ina well-coordinated manner using the resources that are available within the Dzongkhag.

29

Office of the Gyalpoi Zimpon

Incident Commander: Dzongdag
Alternative IC: Dzongrab and SP, RBP

Planning Section
Chief: Dzongkhag Planning
Officer

SAR and Evacuation Group
Chief: SP/ OC, RBP

Situation & Documentation
Unit: DDMO

Resource Tracking
Unit: Internal Auditor

Immediate Restoration
Group: Dzongkhag Engineer

Army - Desuups

Logistics Section
Chief: Procurement
Officer
Communication
Unit: ICT Officer
Transportation Unit: HR
Officer

Medical Services Group: Dz.
Health Officer
Shelter & Relief Group:
Dzongkhag Kidu Officer-

Liaison: Dzongkhag
TshogduThrizin or Dzongrab if DT
Thrizin’s own gewog is affected

Public Information: Dzongdag

Operations Section
Chief: Dzongrab-----------

Supplies& Food Unit:
DAO

Demobilization Unit:
Land Record Officer
Coordination with Schools
Unit: Dzongkhag Education

Figure 9. Mode of Communication during disaster/ threatening disaster situation

30

Finance Section:
Accounts Officer

Communication is challenging part during disaster in the locality because all lines disrupts and cannot
function affecting for the quick response. So the First line of communication is VHF handsets (RBP &Dzongkhag), alternative modes of communications are Mobile phones, Social media (WhatsApp, WeChat andTelegram groups for Dzongkhag, Dungkhag and Gewogs. BBS and radio for giving information tocommunities. Sat phone: not activated (to be used for emergencies when other modes of communication fail)only one for the Incident Commander. Gewogs are procuring VHF handsets for emergency purposes.
The DEOC is established as per Section 105 of the Disaster Management Act of Bhutan 2013 to receive
disaster alerts and warnings from responsible agencies and other sources and communicate the same to all
relevant agencies, forward reports to relevant agencies, Monitor response and relief operations, Facilitate
coordination ,Requisition resources during disaster, Other functions as may be necessary. DEOC is set up in
Dzongkhag Tshogdu hall but lack of human resource and equipment. DDMO is looking after the DEOC.
DDMC to meet in the DEOC to make critical decisions during emergencies.

31

CHAPTER 5: DISASTER MANAGEMENT SYSTEM IN JAPAN
5.1 Brief background
Japan is situated in the Circum -Pacific Mobile Belt where seismic and volcanic occurs frequently withsurface area of 138000 square kilometers and covered by more than 6800 islands of various sizes. Mt. Fuji ofJapan is one of the famous mountains of the world with 3776 M above sea level andalsohas ten major Rivers
and lakes. The total population of Japan in 2018 is 126.44M ranking 11 th largest population in the world and54.33 M private households as per the population census 2015(excluding-institutional households) and birthrates are declining and more aging populations increased in Japan as compared to 1950s,which shows changes
in the population pyramid. Japan comprises of 47 prefectures as of now.

Figure 10. Population Pyramid in JapanThe country is subject to frequent natural disasters like earthquakes, Tsunami, floods, landslides and heavy
snowfall due to the geographical, topographical and metrological conditions. There are four plates whichcollide around Japan Island and causes frequent earthquake in the areai.e. Philippine Sea plate, Eurasian plate,
Pacific plate and North American plates. Every year in Japan due to the natural disasters people’s lives andproperty has been damaged. The past data from 2004-2013 shows that ratio of earthquakes and volcano in
Japan alone was 18.5% and 7.1 % respectively then with those in the world. With the development of Disaster
Management Systems for mitigation of vulnerabilities in the area, capacity enhancement to respond, improved
technology methods for weather forecasting and upgrading the disaster information communication systems,
disaster damaged has been declined. However, the great Hanshin-Awaji earthquake,1995 and the Great East
Japan earthquake and tsunami ,2011 has affected greatly to the human lives and the public and private
infrastructures. There is also a very high probability of the occurrence of large-scaleearthquakesin the near32

future including impending possibilities ofNankai Trough Earthquake and Tokyo Inland Earthquake. As such,natural disasters remain analarming threat to the safety and securityof the country.

Figure 11. echanism of Earthquake around Japan

5.2 Disasters in Japan
Japan has many vulnerable risks due to its geographical location and climate change. Every year Japan
experiences minor as well as major disasters like Earthquake, Tsunami, Volcano, Flash floods, floods andstorms damaging properties and human lives. The past data shows that Earthquake and Tsunami damaged
many structures and affected human lives. Recent earthquake recorded in Japan was in September,2018 with
6.7 M at Hokkaido, Eastern Iburi affecting 42 human casualty and damaging many properties. As per the data
published by the Statistic Research Department, on December 16,2019 on the cost of damage caused by thenatural disaster in Japan since from 2008 -2017 was amounted to around 599 billion Japanese Yen. The highest
amount was incurred during the Great East Japan Earthquake.

33

Table 6. Major Earthquake Damage in Japan (since the Meiji Period)
Disaster
Nobi Earthquake (M8.0)
Meiji Sanriku Earthquake and Tsunami

Date/Year
October 28,1891
June 15,1896(M8.25)

Great Kanto Earth Quake (M7.9)
September 1,1923
Kita Tango Earthquake(M 7.3)
March 7,1927
Showa Sanriku Earthquake Tsunami(M 8.1)
March 3,1933
Tottori Earthquake( M 7.2)
September 10,1943
Tonankai Earthquake (M7.9)
December 7,1944
Mikawa Earthquake (M6.8)
January 13,1945
Nankai Earthquake (M 8.0)
December 21,1946
Fukui Earthquake (M 7.1)
June 28.1948
Tokachi Oki Earthquake(M8.2)
March 4,1952
Chile Earthquake and Tsunami (Mw 9.5)
May 23,1960
Niigata Earthquake (M7.5)
June 16,1964
Tokachi Oki Earthquake( M 7.9)
May 16,1968
IzaHantooki Earthquake (M 6.9)
May 9,1974
Izu-Ishima-Kinkai Earthquake (M 7.0)
January 14, 1978
Miyagi-Ken-Oki Earthquake(M7.4)
June 12,1978
Nihon-Kai-Chubu Earthquake (M7.7)
May 6,1983
Nagano-Ken-Seibu Earthquake (M 6.8)
September14,1984
Hokkaido-Nansei-Oki Earthquake (M 7.8)
July12,1993
Great Hanshin -Awaji Earthquake (M7.3)
January 17,1995
Mid Niigata Prefecture Earthquake (M 6.8)
October 23,2004
Iwate-Miyagi NairikuEarthquake (M7.2)
June 14,2008
Great East Japan Earthquake (Mw 9.0)
March 11,2011
Kumamoto Earthquake (M6.5 &7.3)
April 14&16,2016
Hokkaido Eastern Iburi Earthquake (M 6.7)
September 6,2018
Source: 2019, White Paper Disaster Management in Japan, Cabinet Office

Number of
Fatalities andMissing persons
7,273
22,000105,000
2,925
3,064
1,083
1,251
2,306
1,443
3,769
33
142
26
52
30
25
28
104
29
230
6,438
68
23
22,252273
42

5.3 Disaster Management Laws and Systems
Japan government has managed to develop many disastersrelatedactssince from 1945 after affected by the
Typhoon IDA(Makurazaki) and Nankai Earthquake in 1946. The most important part of the disaster is to
respond and provide aids to the affected people and build back better. So the Disaster Relief Act has beendeveloped and passed for managing the disasters in 1947. Accordingly, Laws were implemented by the
National, Prefecture and Local governments. On January 17,1995 the Great Hanshin -Awaji Earthquake inKobe City destroyed many critical infrastructures like roads, Bridges, Railways, Hospitals and residents set byfires where 6438 people lost their lives to disaster.Due to the immense affect with such earthquakes, Act on
Special Measures for Earthquake Disaster Counter Measures has been approved, and Earthquake retrofitting’s
measures for Buildings has adopted for the safety of the people. Likewise, the Great East Japan Earth Quake in34

2011 triggering Tsunami devastated 22252 human lives and settlements were completely destroyed. So after
experiencing such disasters, many provisions of the Laws has been amended as shown in figure below for the
preparation of the Nankai Trough Earthquake and Tokyo Inland Earthquake following the Sendai Frameworkof Build Back Better policy systems.

Table 7. Evolution of Disaster Management Laws and Systems Since 1945
Disaster that triggered law Disaster Management Laws
/System Introduction
1945-Typhoon IDA(Makurazaki)
1946- The Nankai Earthquake
1947- Typhoon Kathleen
1948- The Fukai Earthquake
1959- Typhoon Vera

1947 Disaster Relief Act

1961- Heavy Snows
1964- The Niigata Earthquake
1967- Torrential Rain Uetsu

1960-Soil Conservation and Flood Control Urgent Measures Act
1961- Basic Act on Disaster Management
1962- National Disaster Management Council Established
1963- Basic Plan for Disaster Risk Reduction
1962-Act on Special Financial Support to deal with Extremely
severe Disasters
Act on Special Measures for Heavy Snowfall Areas
1966- Act on Earthquake Insurance
1973- Act on Provision of Disaster Condolence grant

1949 Flood Control Act
1950 The Building Standard Act

1973- Mt. Sakurajima Eruption

Act on Development of Evacuation facilities in Areas
Surrounding Active Volcanoes(Act on Special Measures for
1976- The Seismological Society of Active Volcanoes -1978)
Japan publishes reports on a possible
1978- Act on Special Measures Concerning Countermeasures for
Tokai earthquake
Large-Scale-Earthquakes
1978- Miyagi Earthquake
1980- Act on Special Financial Measures for Urgent Earthquake
Counter Measures Improvement Projects in Areas for Intensified
Measures.
Mt. Asama Eruption

1981- Partial Amendment of order for Enforcement of the
Building Standard Laws
1995- The Great Hanshin-Awaji
Earthquake

1995- Act on Special Measures for Earthquake Disaster Counter
Measures

1999Torrential
rain
Hiroshima,TokaimuraNucleaur
Accident

Act on Promotion of the Earthquake Proof Retrofit of Buildings
partial amendment of Basic Act on Disaster Managementin351996- Act on Special Measures for the preservation Rights andInterests of the Victims of Specified Disasters
1997- Act on Promotion of Disaster Resilience Improvement in
the Densely inhabited Areas
1998- Act on Support for Reconstructing Livelihoods of Disaster
Victims
1999- Act on Special Measures Concerning Nuclear Emergency
Preparedness
2000- Torrential rain in the Tokai 2000-Act on the promotion of Sediment Disaster
Countermeasures for Sediment disaster Hazard areas
Region2001- Partial amendment of the Flood control Act
2004Torrential
rain
in 2002- Act on Special Measures for Promotion of Tohnankai andNiigata,Fukushima
Nankai Earthquake Disaster management
2003- Specified Urban River Inundation Countermeasures Act
Niigata Chuetsu Earthquake
2004- Act on Special Measures for Promotion of Disastermanagement for trench-type earthquakes in the Vicinity of theJapan and Trishima Trenches
2011- The Great East Japan 2005- Partial amendment of the flood control Act
Earthquake\Partial amendment of the Act on the Promotion of Sediment
Disaster Counter Measures in Sediment Disaster Hazard Areas
2014-Heavy Snow
Partial amendment of the Act on the Promotion of the seismic
Reinforcement and Retrofitting of the Buildings
Hiroshima Sediment Disaster2006- Partial amendment of the act on the Regulation of
Residential Land Development
Mt. Ontake Eruption
2011-Act on the Promotion of Measures for Tsunami
2016 – Kumamoto Earthquake
Act on Development of Areas resilient to Tsunami Disasters
2012- Partial amendment of Basic Act on Disaster Management
2018
Act for establishment of the Nuclear Regulation Authority
2013- Partial amendment of Basic Act on Disaster Management
Act on Reconstruction from large scale disasters
Partial amend of the act on the promotion of the seismic
Reinforcement and retrofitting of the Building
Partial amendment of Flood Control Act and River Act
Act on special measures for land and building leases in areas
affected by large scale Disasters
Act on Special measures for the promotion of Nankai TroughEarthquake Disaster Management
Act on Special Measures against Tokyo Inland earthquake
2014-partial amendment of Basic Act on Disaster Management
Partial amendment of Act on the promotion of sediment
Disaster countermeasures for Sediment Disaster Hazard Areas36

2015- Partial amendment of Act on Special Measures for Active
Volcano’s
Partial amendment of Basic Act on Disaster Management
2016- Partial amendment of Basic Act on Disaster Management
2018- Partial amendment of the Disaster Relief Act
Partial amendment of Basic Act on Disaster Management

5.4 Disaster Management Plans
In Japan, the Basic Disaster Management Plan is the Master Plan and basis for the entire disaster risk
management plan. Disaster Planning is prepared by the Central DM Council which is the apex body for thedisaster in accordance with the Disaster Counter Measures Basic Act. Ministries and public entities prepare
Disaster Management Operations Plans and implement. Likewise, the Local Prefectures and Municipalities
prepare and implement the plans by the respective DM Council all over the Japan. All the
preparations/preventions, emergency response and disaster recovery in the Local level are managed by the
Local DM Councils in collaboration with residents. The Community develop disaster prevention and response
plan which is very effective during the times disaster situations. The Disaster Plans of Japan are exemplary as
all the plans are fully implemented and also tested by conducting the drills participating from the Central to the
Local Government almost twice a year. Communities are very much aware of the disaster plans as they involvein making the plan and conduct drills and simulation coordinating with other agencies. The Plans are preparedaccording to the types of disasters like Earthquake, Floods and Tsunamis etc.

37

Figure 12. Organization of Central Disaster Management Council

5.5 Communications, Early Warning Systems and Hazard maps
Japan has developed all the hazards maps in the country which is very convenient for the construction of
mitigation works in the designated areas and this would also help to minimize the risks in the future.
Municipalities create awareness using hazard maps showing the vulnerable areas. Hazard maps are basicallydesigned for residents to understand better risks and take actions on it. Town watching is the good experiences
for identifying the risks and raise issues to the concern authority to take actions based on the findings of thetown watching.

38

Figure 13. Natural Hazard Risks in Japan

Communications is vital for collecting information and contacting during the disaster. So in this, Japan has
been practicing various means of communication like using websites, public cars, news board, publication
paper, Radio, TV, Local media FM Radio, social networks Twitter, Facebook and Lineusing during the
emergencies. All the communities are aware of it.
Japan Meteorology Agency provides all early warnings to the respective government offices and TV &radios whereby the concerned prefecture/Municipality informs the public accordingly. When an earthquake
occurs JMA after analyzing the data from the seismometer and seismic intensity meters provides warnings.
JMA has developed new alert systems for earthquakes which are found to be very technically useful. Though
earthquake can’t be predicted, such quick alert just an earthquake starts, providing valuable seconds to people
to protect themselves before strong tremors felt. This has been installed in Trains, Bus and other public places,.
Also, people receives EWS by radio, TV, and via mobile phone. For floods, JMA in Collaboration with MLIT
and Prefecture governments issues Weather warnings and advisories for the public in different types of
warnings like heavy Rain, flood/flash floods, storm etc.

39

5.6 Local Disaster Risk Reduction Plan: Hyogo Prefecture & Kobe City –Case study of Disaster Safe
Welfare Communities (BOKOMI)
Hyogo Prefecture with the population of around 5.59 m has been greatly affected by the Great HanshinAwaji Earthquake on 17 January,1995. A total of 6434 casualties and injured 43792, $100b lost and nearly
249000 houses destroyed. The reports find out that due to lack of government preparedness, coordination
among the disaster organisations were not enough. Moreover, rescue workers could not reach to the affectedindividuals in times of the need for evacuation of the victims, so in such times of disaster local community andvolunteers within the areas found to be very important as they are involved in saving the lives of the people
who has been affected by the disasters. It has also mentioned that most of the schools, public buildings andhouses were not seismic resistant, it shows that 83% were killed by the collapsed buildings and 13% by the fire
outbreak.
Hyogo prefecture government has initiated measures after the Great Hanshin-Awaji Earthquake such as
Establishment of Initial Response System - opening of Disaster Management Center,24-hour monitoring andquick response system with stand by lodgings, Phoenix Disaster Management Systems and improvement ofDisaster management capabilities by supporting Voluntary activities and school teachers as well as
development of Emergency Management bases and improvement of earthquake resistant houses and publicbuildings. Prefecture also established headquarter control room, operation room, media conference room underthe 24-hour monitoring system and sent emergency information’s to the citizens by E-mail. As a measure theyalso developed regional emergency management bases in district offices and disaster management drills has
been conducted involving various stakeholders like fire Dept.,SDF,Medical Organisations and volunteers. For
the improvement of the community the prefecture supports volunteers providing trainings and necessary
equipments. DRR museum has been developed for learnings by the national and International, retrofitting
work of the private houses for earthquake resistant introduced which is vital for the safety of all. JMA
introduced Earthquake Early Warning System as a part of preparation for Tonankai and Nankai TroughEarthquake.
Kobe City is once severely devastated by the Great Hanshin-Awaji Earthquake on January 17, 1995.The
Community experienced the loss of lives and the properties by the earthquake disaster, and through this theygained the knowledge of responding and prevention better than any other countries in the world. Kobe
Community volunteered to form Disaster Safe Welfare Community with the members including local
residentsAssociations, WomenAssociations,Business members,senior citizens and local fire brigades. Thissystem has been practicing over all the districts and even the internationals learning from them by participatingin the events organized. BOKOMI-a volunteer group also supported by the government by giving them few
amounts for conducting the programs annually for preparing and working towards disaster preventions andreductions involving the various community. Kobe City provides necessary support for giving the trainings on
the usage of the fire equipment’s and awareness. BOKOMI has a good coordination with the schools andconduct the program together as schools are identified as the evacuation center for the community during thetimes of disaster.
I was also fortunate to participate practically in one of the program conducted by the community in the
Junior High School as VR from ADRC.The Community conducts the fire drills with the support from the firebrigade, Kobe, learning on how to use the fire extinguishers to control fire, fire bucket relay participation andhow to walk out in case of the smoke covered areas. This was very informative and a part of DRR. The mostimportant take away from this event was the participation of kids and the disabled persons practically.

40

Another good practice developed in Kobe is Iza! Kaeru Caravan! A Fun Disaster Education programs
developed for kids to learn through such fun games activity. Many kids participate in the program and learn thetechniques that require during the times of disaster. All are participating the program actively to get the cards
and gift at the end. I am fortunate to take participate and observe the fun game organized at JICA. This has
been shared with the world and many countries are organizing such programs in the schools using thetechnique learned from Japan. Bhutan has been learning in few schools but not covered in all the schools. So
the above program needs to be adopted as DRR in all schools.

Figure 13. Bhutan Learning Kaeru Caravan

Figure 14. Community Disaster Drill in Kobe, Japan41

CHAPTER 6: KEY FINDINGS AND GAPS
Based on the above, the key findings from Japan are; Bhutan and Japan shares many similarities in terms oflocations like mountains,rivers,snow,agriculture practice and occurrence of types of disasters except the
Tsunami and Volcano. The Disaster Planning System in Japan is considering for the long-term impact
anddisaster resilient, also focusing on disaster risk reduction at all levels. Learnings from the past disasters andbitter experiences collected and shared from the affected people help to improve the plans from prevention ofdisasters as well as preparedness to any kind of disasters. With the learning’s and experiences help to develop
resilient responding systems like newly developed earthquake alerts system in informing the people to prepare
from arriving the big tremors after few seconds. Early warning information technologies are set up for all kindof hazards for quick response and evacuation which will help in minimizing the casualty. In every small town,
Cities and resident’s areas, fireequipmentsare set up for the prevention of fire disasters. All kinds of hazard
mappings are done ateach municipality in Japan. Community and volunteer’s involvement in preparation anddeveloping the plansof their own areas has the good practices and even the children’s learning through fun
games of disaster education has been practiced very well as an annual event like – IZA!KaeroCaravan!Schools
across the prefectures conduct disaster drills thrice in a year in collaboration with community is one of the bestpractices. Disaster Management plan in Japanese local government focuses for preparedness for response.DRR
such as mitigation is planned at the City development plan.
Hazard Maps and Early Warning systems:
Hazard Maps of earthquake,GLOF and floods/landslides covering major lakes,rivers in the country has beenstudied,also set up with early warning systems along the downstreams like in PunaTsangchhu in Punakha andChamkharchhu in Bumthang etc.However,hazard maps identified needs to be clearly advocate to the local
leaders for inclusion of DRR activities in the plan and accordingly the local government leaders must provide
awareness to the community on such risks like settlement and construction of houses along the hazard areas
and also on early warning systems installed for quick information on evacuation to higher places. In Nepal,
hazards like earthquake, floods,landslides,GLOF, etc. occur causing devastating disasters affecting the
livelihood of the people and many casualtiesyearly. Hazard risk mapping in the few major areas has been
carried out with the support from the ADPC and OCHA for DRR in the country. Lack of awareness, no strict
follow on policies and guidelines, unplanned development activities, lack of proper land use, encroachment ofopen areas, deforestation have turned those hazards into disasters.
Education:
For the implementation of the Disaster Risk Reduction in the local government, disaster Education should also
introduce in a class room teaching for the teacher trainees so that all the teachers will able to provide DRR
information to the students when they are placed to the schools under the local government areas as well as canconduct drills. In the current situation,DRRfocal persons from the schools conduct drills once in a year. So thisgaps could be filled up if such system come up with proper study by the Ministry of Education.With this moreeducation on DRR,preparedness and response during disaster situation would enhance in the schools. Miyagi
University of Education, in Sendai provides such disaster education to the teachers linking field programs towith classroom studies on basic knowledge on natural hazards,emergency management,first aid andcommunity based DRR and diversity of DRR topics such as health,food,geology geography and psychology.

Capacity Development:42

In order to implement the local level plans for the disasters the capacity for the DDMC members,IMT
members and local leaders and administrators need to be enhanced.The Department of Disaster Management
in collaboration with the districts must provide trainings time to time and local government should also keep
their budget for capacity development annually
Awareness and Information:
The districts provide awareness to the Public on disasters but due to limited budgets unable to cover all theblocks.Providing public awareness is more useful than issuing pamphlets because of low illiteracy. Therefore,
to address such issues local government can also study of setting up local radio station to provide awarenessand information during disaster using local languages in collaboration with BBS and deploy volunteers in thestations.At the current situation,BBS only provides awareness through TV and radio in three dialect-local
government must initiate to come up such useful mechanisms in the community. Such practice system are usedin Takatori Community Center,Hyogo Prefecture in Japan, where many different foreigners settle andexperienced language problems during the time of Great Hanshin-Awaji Earthquakes.
Reinforcement of Buildings:
Local government should frame local plan to ensure the public to construct earthquake resistant houses
following the technical advice of the engineers and guidelines provided by the MoWHS for the safety of
individual residents as well as plan to conduct seismic capacity evaluation of the houses in local government
areas and then reinforcement of the private houses and public buildings should strengthened for future risks aswell as provide trainings to the local carpenter and masonry. The report shows that in Hyogo Prefecture during
the Great Hanshin –Awaji Earthquake most of the casualty mentioned were due to collapse of buildings andfire. Likewise in Nepal,2015 Earthquake ,it shows that two third of the damages causing large number ofhuman casualty were all due to old non-engineered construction and lack of reinforcement construction
practices.
Risk Transfer:
Especially during the monsoon seasons, many crops were destroyed by the flash floods and landslides as wellas the wild animals. So the Agriculture Ministry needs to come out with the level of compensations across thecountry or need to collaborate with the insurance company to insure crops by the farmers in certain period.
Moreover, currently people only insure their private houses with government subsidy. Government buildings
and religious institutions must also insure by the local government or propose in the annual budget for the
insurance.
Community Volunteer:
PBV (International NGOs) believes that,above all else,people are the key to reducing disaster risk,building
resilience and minimizing impacts of disasters. Local community volunteer need to be strengthened in all thegewogs to response during the times of disasters in the community.There are many groups formed in the
gewogs but not for disasters .So Gewog should plan to institute volunteers in the community to learn DRR anddisseminate information by themselves to the individual households. Local people should be encouraged tocome up with respond plan using local practice in times of disaster as the districts are away from the villages.
such gaps need to be put in practice.

43

CHAPTER 7. CONCLUSION
All are unquestionable when the natural disasters will occur and end. With the climate change around the globe
year by year the risk of disaster occurrence is increasing and thousands of human lives, sentient beings, thepublic infrastructures and private houses has been damaged beyond unimaginable. So in order to prevent andprotect from such natural disasters we need to study according to the type of disasters and making a reliabledisaster plan for disaster risk reduction in the country is felt very necessary and we must able to learn from theJapan on it, particularly on the build back better strategy. So need to revisit the district disaster plan to improve
the preparedness and response mechanism such as functioning of DDMC,DEOC and on responsibility of IMT
positions as well as make community to learn on the importance of response during the disasters. The systemsof disaster managements are aligned with the Sendai Framework for DRR.
Moreover, planning ahead with a proper coordination will make difference to protect lives and livelihoods
from the disasters. It would also result in faster and more effective responses, so that can help avoid losses tothe people and economy of the country. Local leaders who are elected by the people should avoid future vote’s
mindset in providing fast relief materials and differentiation of people when disaster strikes in the area rather
think of providing protection making a local disaster risk reduction plan stronger and resilient one which
would bring more impact to the community.Forming a volunteer group in the community can be a goodmechanism for response during disaster with basic support from the Districts and Gewogs like providing
search and rescue equipments and trainings to the leaders.

44

RECOMENDATIONSJapan has developed many reliable plans for the preparedness, prevention and mitigation of any kind and sizeof the future disasters, which we have learned through conference participation, field visits, practicalparticipation and presentations from various professors and research papers as well as reports published.
Bhutan has been preparing and developing many measures for the management of the disasters seeking
international help and applying in our context but at minimal level and need to work more on DRR. However,in the implementation of the local district disaster management plans and response mechanism developed
needs to be look into the following areas for further preparedness, disaster risk reduction and for build backbetter system enhanced in our country.
 Gewog plans need to be focused on disaster risk reduction areas and should give priority for disasteras well as propose certain percentage of budget annually.
 Development of Gewog disaster plan and enhance of community response plan is necessary.
 Replicate the activities like Iza! Kaeru Caravan! program in all the schools under the districts andgewogs,ECCD centers.
 Increase capacity of the DDMC members and IMT members both at Dzongkhags,Dungkhags andGewogs.
 Communication system need to be enhanced in local and community level likeusuage ofVHF handsets
and also study the earthquake early warning system of Japan for future planning but it’s too difficult todevelop and cost is too high.
 Community volunteer should be focused and need to train and support with equipments.
 Study on retrofitting system of the rural houses and training for local carpenter and masonry should be
conducted by the local governments.

45

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