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

Country Report
Disaster Management System

BhutanVisiting Researchers Program
Asian Disaster Reduction Center (ADRC)
Kobe, Japan
January – April, 2014

Pema ThinleyCountry Report: Disaster Management System in Bhutan

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 andnames shown and the designations used on the maps in the report also do not imply official endorsement oracceptance by the ADRC.

2Country Report: Disaster Management System in Bhutan

TABLE OF CONTENTAcronyms, Abbreviations and Glossary ........................................................................................................ 4
1.

General Information ............................................................................................................................... 52.

Natural Hazards ..................................................................................................................................... 52.1.

Natural Hazards Likely to Affect ................................................................................................... 5

2.2.

Recent Major Disasters ................................................................................................................... 6

3.

Disaster Management System ............................................................................................................... 83.1.

Administrative System.................................................................................................................... 83.2. Legal System and Framework ............................................................................................................ 83.2.

Structure of Disaster Management ................................................................................................ 93.3.1. National Platform for Disaster Risk Reduction ......................................................................... 93.3.2. National Organizations for Disaster Risk Reduction............................................................... 104.

Disaster Management Strategy, Policy and Plan ............................................................................... 115.

Budget Size at National Level ............................................................................................................. 126.

Progress of the Implementation of Hyogo Framework for Action (HFA).......................................... 13

7.

Recent Major Projects on Disaster Risk Reduction ............................................................................ 138.

ADRC Counterpart ............................................................................................................................... 14References ..................................................................................................................................................... 153

Country Report: Disaster Management System in BhutanAcronyms, Abbreviations and GlossaryADRC

Asian Disaster Reduction CenterBCPR

Bureau for Crisis Prevention and Recovery

BHU

Basic Health Unit

CIDA

Canadian International Development Agency

DIPECHO

Disaster Preparedness ECHODM

Disaster Management

DRM

Disaster Risk Management

ECHOEuropean Commission's Humanitarian Aid department

GEF

Global Environment Facility

GLOF

Glacial Lake Outburst Flood

LDCF

Least Developed Countries FundNDRMF

National Disaster Risk Management Framework

PHRD

Policy and Human Resources Development

RGoB

Royal Government of Bhutan

UNDP

United Nations Development Program

Bhutanese Terms
DungkhagSub-district

Druk Gyalpo

The King of Bhutan.

DzongFortress or Monastery

DzongdagDistrict Administrator.

Dzongkha

The National Language of Bhutan.

Dzongkhag

DistrictDzongkhag Yargay Tshogdu

District Development Council

Gewog

CountyGewog Yargay TshogchungCounty Development Committee

Gup

Head of a County.

Lhakhang

TempleRabdeysMonastic bodies in Dzongs other than Punakha and Thimphu.

ThromdeMunicipality

Thrompon

Municipal Administrator or Mayor

Zhung Dratshang

Central Monastic Body.

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Country Report: Disaster Management System in Bhutan

1. General Information
The Kingdom of Bhutan is a landlocked country, sandwiched between the two Asian giants, with Tibetan
plateau of China bordering the north and east, west and south by India. It falls in between the latitudes
26040’ and 28020’ north and longitude 88045’ and 9207’ east. It has a total area of 38,364 sq km (14,812 sqmiles). Located on the southern slopes of the eastern Himalaya; it is characterized by a unique topography
with land alleviation ranging from 150m in the southern foothills gradually rising to about 7000m towards thenorth. The country is endowed with numerous glaciers fed rivers that are being exploited to generate
electricity. The climatic condition varies with hot subtropical climate in the south to cool winters and hotsummers in central valleys and severe winters to cool summers in the north. Bhutan has a population of
7, 08,500 as of 2011 census record.
Capital: Thimphu

King: Jigme Khesar Namgyel Wangchuck

Prime minister: Tshering Tobgay

Currency: Bhutanese Ngultrum (Nu.)

Official Language: Dzongkha
Government: Unitary state, Constitutional monarchy, Parliamentary system

Figure 1. Bhutan Map

2. Natural Hazards
2.1. Natural Hazards Likely to AffectBhutan, like the rest of the world, has not been spared by the fury of natural hazards and is susceptible tomany kind of it. Geo-physically, Bhutan is located in one of the most seismically active zones in the world.
Considering the location and as proven by the past seismic activities, earthquake is the most imminenthazards in Bhutan. As a result of global warming, Glacier Lake Outburst Flood (GLOF) poses another risk to
the people of Bhutan. Given the past trends, the threat from GLOF is more imminent than ever due to therapid increase in earth’s temperature from global warming and rapid unprecedented retreat of glaciers.

5Country Report: Disaster Management System in Bhutan

Other hazards such as landslides, flash flood, windstorms and fires also sweep across the country causing
significant losses to the properties and lives of people. These seasonal hazards also affect the livelihoods ofthe people especially in rural Bhutan where subsistence farming is prominent. In this regard, thegovernment is mainstreaming disaster risk reduction strategies in all the developmental activities and in all
walk of socio economic life in the country.

Figure 2. Disasters in Bhutan
2.2. Recent Major Disasters
Recent earthquakes
DateLocation

Magnitude

Impact/damage in Bhutan

21 Sept. 2009

Narang, Mongar

6.1

12 people killed and approximately 7,290 people

District
18 Sept. 2011

Sikkim, India

were left without adequate shelter.
6.9

Loss of one life due to landslide, 14 injuries andstructural damages worth of Nu 1,197.63 million.

*Location: - Location of the epicentre*Magnitude: - Magnitude on the Richter scale

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Country Report: Disaster Management System in Bhutan

Figure 3. The Epicenters of the recent two earthquakes in BhutanRecent fire disastersYear

Affected areas

Impact8 Oct 2010

Wamrong, Trashigang

14 houses were raised down.

26 Oct 2010

Chamkhar Town,

55 structures were destroyed. 64 families (267 people) left

Bumthang

homeless and 2 people lost their lives.

Chamkhar Town,

18 houses were raised down, affecting 36 families (107Bumthangindividuals)

Chamkhar Town,

30 houses were completely burnt down and 3 houses wereBumthangpartially burnt down affecting 56 families (173 individuals)

Wangduephodrang

Complete loss of the most historic fortress in country along withDzong

some of its artifacts. All district administration office properties,

18 Feb 2011

27 May 201124 June 2012

records and documents were destroyed.

Recent floods/flash floods
DateCauses

May 2009

Cyclone Aila

Affected areas

Impact17 districts

Damages estimated at Nu719 million. 12 lives lost andwere affected.

the accompanying strong winds left a trail ofwidespread damages.

June 4,2013

Incessant6 Gewogs ofSeveral acres of land were filled with debris and sand;Heavy Rain

Punakhasome of them were washed away. One Culvert bridge

for the pastDistrict

was washed away. One main Irrigation channel has

few days

7

been damaged and two in-take irrigation channel

Country Report: Disaster Management System in Bhutan

Recent Windstorm
Date
15 December 2013

Affected areas

Impact13 Dzongkhags

Damage to 979 private houses, 12 schools, 50

53 Gewogs

lhakhangs/nunneries/ monasteries, 3 Gewog Office & 8

1 Town (Haa District)

BHUs/ORCs

3. Disaster Management System
3.1. Administrative System
In order to secure synergies of action and confluence of strategies and resources for implementation ofdisaster risk management agenda in the country, it is essential that a well-defined structure/mechanism isput in place at all administrative levels. As per the Disaster Management Act of Bhutan 2013, the disastermanagement institutions are set up as follows;

Figure 4. Disaster Management Institutional setup
3.2. Legal System and Framework
No policies or guidelines related to disaster risk management were in place prior to 2006 till the Royal
Government of Bhutan adopted the National Disaster Risk Management Framework (NDRMF) in 2006.
However, with increasing occurrence of disasters across the country, a strong need arose to ensure
systematic Disaster Risk Management approach and provide responses as required. This need led to theenactment of the Disaster Management Act of Bhutan 2013 on the 18th of March, 2013.

8Country Report: Disaster Management System in Bhutan

The Article 8(6) of the Constitution of The Kingdom of Bhutan (2008) provides that it is the responsibility ofevery Bhutanese to provide help to victims of accidents and in times of natural calamities. The Article 33 (2)of the Constitution, dealing with emergency, gives the authority to His Majesty the King of Bhutan to“proclaim that a public emergency or calamity, which threatens or affects the nation as a whole or part
thereof, exists in which case the Government may take measures derogating from the provisions of thisConstitution to the extent strictly required by the exigencies of the situation”.
The Environmental Acts and Policies, the Mines and Minerals Management Act, the Bhutan Water Act andPolicy, the Land Act, the Local Government Act and the Bhutan Building Rules indirectly support disastermanagement system in the Country. The Royal Bhutan Police Act has provisions for the RBP to provide
help in the times of disasters. Similarly, the other branches of the Armed Forces must take part as and when
they are called upon to do so. The Gewog Yargay Tshogchung (GYT) and Dzongkhag Yargay Tshogdu(DYT) Chathrims also state that the GYT has the administrative powers and functions to organize relief
measures during natural disasters/emergencies and the DYT to mobilize voluntary actions in times ofnatural catastrophes and emergencies.
The Constitution also includes an article on environment, reaffirming the country’s commitment tosustainable development. Elements supportive of and addressing disaster risk management concerns,
even though in an elementary form, can be found in some of the Acts/ Rules and Regulations of different
sectors.
3.2. Structure of Disaster Management
3.3.1. National Platform for Disaster Risk Reduction
The Disaster Management Act of Bhutan 2013 governs the establishment of National Disaster
Management Authority (NDMA) as the highest decision making body on disaster management in Bhutan.
The NDMA shall be chaired by the Prime Minister & the Minister of Home and Cultural Affairs shall be theex-officio Vice Chairperson. Other members include the Finance Minister, the Secretaries of all Ministries,
Dasho Zimpon from the office of Gyalpoi Zimpon, the head of National Environment Commission, thesecretary of Gross National Happiness Commission, the Head of the Department of Disaster Management ,who shall be the Member secretary and such other member as may be co-opted in accordance with theDisaster Management Act of Bhutan 2013.
The National Disaster Management Authority shall be responsible for the following functions:
1.

Approve the Disaster Management Strategic Policy Framework;

2.

Approve the National Disaster Management and Contingency Plan;

3.

Approve hazard zonation and vulnerability map;

4.

Approve structural and non-structural measures and direct its implementation;

5.

Approve national standard, guideline and standard operating procedure for effective disastermanagement including but not limited to objective assessment tool.

6.

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Recommend allocation of fund for the purpose of recovery and reconstruction;

Country Report: Disaster Management System in Bhutan

7.

Direct agencies to mainstream disaster risk reduction into their development plans, policies,programmes and projects;

8.

Allocate resources from the National Disaster Management Budget; and9.

Ensure the establishment of an Inter-Ministerial Task Force.

The national Disaster Management Authority has constituted an inter-ministerial Task Force comprising oftechnical experts from relevant Agencies and other members as it may prescribe based on requirement. It
shall review hazard zonation maps, vulnerability maps, structural and non-structural measures, national
standard guidelines, standard operating procedures for disaster risk reduction and management. It will also
provide technical assistance in the preparation of Disaster Management and Contingency Plan and advice
relevant agency in setting up Critical Disaster Management Facilities.
3.3.2. National Organizations for Disaster Risk Reduction
The department of Disaster Management under the Ministry of Home and Cultural Affairs serve as thesecretariat and executive arm to the National Disaster Management Authority. It functions as the main
Coordinating Agency for disaster management in the country. The secretariat or department prepares
national plan in coordination with relevant agencies, formulate national standard, and develop guidelines
and standard operating procedures for disaster management in the Country. It also ensures that publiceducation, awareness and capacity building on disaster management are carried out effectively.

Figure 5. Staffing pattern of Department of Disaster Management10Country Report: Disaster Management System in Bhutan

3.3.3. Local Organizations for Disaster Risk Reduction
At Dzongkhag level, Dzongkhag Disaster Management Committee (DDMC) is instituted with Dzongdag as
the ex-officio chairperson and Dzongkhag Disaster Management Officer as the Member-secretary. The
other members of the committee include an official from the Regional Office of His Majesty’s Representativefor People’s Welfare, chairperson of Dzongkhag Tshogdue, all Gups, all Thrompons, Officer-in-charge ofRoyal Bhutan Police, the Drungchen of the Zhung Dratshang or Dzongkhag Rabdeys and such othermembers as may be co-opted in accordance with the Disaster Management Act of Bhutan 2013. The
DDMC may constitute a subcommittee at local (Dungkhag, Gewog or Thromde) level, if it deems necessary,to assist in the performance of its functions.

4. Disaster Management Strategy, Policy and PlanFigure 6. Disaster Management Documents
Disaster Management Act of Bhutan 2013
Until early 2013, the Department followed the National Disaster Risk Management Framework (NDRMF) as
one of the main guiding principles in policy making and planning disaster programs and activities. However,this couldn’t suffice to the needs of disaster management with increasing occurrence of disaster in thecountry. The Disaster Management Act of Bhutan 2013 was enacted on the 18th of March, 2013.
DM Act of Bhutan 2013 is accessible at:- http://www.ddm.gov.bt/download/dm_act_2013.pdf
Disaster Management Planning Guideline/Contingency Planning Guideline
As per the DM Act of Bhutan 2013, Disaster Management Planning Guideline has been drafted to assist
and guide the Dzongkhags and other relevant agencies/sectors which will be finalized soon.
School Disaster Management Planning Guideline
In collaboration with the Department of School Education, a Planning guideline for the formulation of theSchool DM Plan has been developed and distributed.

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National Disaster Risk Management Strategy
National Disaster Risk Management Framework 2006 is being reviewed and revised, in line with the DM Actof Bhutan 2013 and it is still in its draft stage. This Strategy includes all the elements of a risk management
framework including: establishing the context; risk identification; risk analysis; risk evaluation; risk
communication; risk reduction (through both anticipatory and compensatory means) and continuous
monitoring and evaluation.
The Strategy outlines all the key outcomes that need to be achieved under each of the components andindicative activities that need to be carried out to achieve those outcomes over the short, medium and longterm. However, as the implementation of this Strategy commences, detailed programmes and projects need
to be developed covering all the components. In this respect, this Strategy presents the ‘breadth’ of actions
that need to be undertaken over the next ten years but does not cover the ‘depth’ of analysis andprogramming that needs to be undertaken to carry out these activities. This will be done by the respective
lead institutions for each of the components when the implementation begins.
Five year plans of Bhutan
In addition, mainstreaming disaster risk reduction is taken up as one of the important policy element fordisaster management in Bhutan. The RGoB has given high priority in mainstreaming disaster risk reduction
initiatives in all the developmental activities to develop a comprehensive disaster risk reduction strategy forthe country. Mainstreaming disaster resilience and management is highlighted as one of 16 National Key
Results Areas (NKRA) of the Royal Government of Bhutan (RGoB) for the period of 11th Five-Year Plan(FYP) (2013-2018).

5. Budget Size at National Level
Financial Arrangements as per the Disaster Management Act of Bhutan 2013
As per the Disaster Management Act of Bhutan 2013, following types of funding mechanisms have beenenvisaged.
Response and Relief Expenditure
The Dzongkhag Disaster Management Committee shall, as an emergency measure, meet the expenses forresponse and relief operation from the annual budget of the Dzongkhag in accordance with the guideline
formulated jointly by the National Disaster Management Authority and the Ministry of Finance.
Budget for National Disaster Management Activities
There shall be a separate budget head to be called the budget for National Disaster Management Activities
and it shall receive adequate budgetary allocation for immediate restoration of essential public
infrastructures and service centers, which will be managed by the National Disaster Management Authority.

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Country Report: Disaster Management System in Bhutan

Department of Disaster Management Budget
There shall be a separate budget head to be called the Department of Disaster Management Budget mainly
for capacity building, establishing and maintaining Critical Disaster Management Facility including purchaseof equipment and any other activity as may be required to strengthen the preparedness of the nation
against disaster.
Recovery and Re-construction
The Government will allocate the fund for purpose of recovery and reconstruction once damage
assessment of public assets and infrastructure completes.
Annual budget of the Department of Disaster Management for the the recent 5 years
Fiscal Year (July-June)

Ngultrum (million)

2010-201157.261

2011-201278.815

2012-201334.157

2013-2014

20.56

6. Progress of the Implementation of Hyogo Framework for Action (HFA)
Please refer to the following site:
http://www.preventionweb.net/files/33008_btn_NationalHFAprogress_2011-13.pdf

7. Recent Major Projects on Disaster Risk Reduction
NoTitle of the Project
Comprehensive Approach for

1Probabilistic Approach
School Based Disaster2Preparedness in Bhutan

Duration

Funding Source

Status1 yearWorld BankOngoing

11 months

DIPECHO through Save theChildren, Bhutan Country OfficeOngoingChild Centered Disaster Risk
Reduction/Disaster Preparedness

3and Response for Safe School

10 months

DIPECHO through Save theChildren, Bhutan Country OfficeCompletedProject
Upgrading Schools and Integrated
4

Disaster Education (UPSIDE)

5

3 years(JFPR), Asian Development

ProjectBank

Development of National Action

Global Fund for Disaster Risk

Plan for School and HospitalEarthquake Safety

13Japan fund for poverty reduction

1 yearReduction (GFDRR) through
GeoHazards International

Completed

CompletedCountry Report: Disaster Management System in Bhutan

Bhutan Recovery and6

Reconstruction project
National Recovery and7

Reconstrution Plan 2011
Earthqauke Recovery Support in8

Building Back better Project
PHRD Grant for Improving

9

Resilience to Seismic Risk

2 years

5 years

3 months

5 Years

UNDP-BCPR, DOA and CIDA
No external support..just few
re-appropriation from RGoB
UNDP
Government of Japan underWorld Bank as administrator

CompletedOngoing

CompletedOngoing“Reducing Climate change induced10Risk and Vulnerability from GLOF in
Punakha-Wangdue and Chamkhar

2008-2013

GEF/LDCF, UNDP

Valley”

8. ADRC Counterpart
Department of Disaster Management
Ministry of Home & Cultural Affairs
Near Motithang BOD, PO Box: 1493
Thimphu : Bhutan

Figure 7. Preparedness Program for Glacial Lake Outburst Flood

14on-goingCountry Report: Disaster Management System in Bhutan

References
About Bhutan. (2014). In Little Bhutan. Retrieved February 4, 2014, from http://www.littlebhutan.com.
DRR information of member countries. (2014). Information on Disaster Risk Reduction of the MemberCountries. Retrieved February 3, 2014, from http://www.adrc.asia/disaster/index.php.
Department of Disaster Management/Ministry of Home & Cultural Affairs. (2013, March 18). Disaster
Management Act of Bhutan 2013. Thimphu, Bhutan.
Department of Disaster Management/Ministry of Home & Cultural Affairs. (2013). National Disaster Risk
Management Strategy (Draft). Thimphu, Bhutan.
Royal Government of Bhutan. (2008, July 18). The Constitution of The Kingdom of Bhutan. Thimphu,Bhutan.

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