BHUTAN CRISIS PREPAREDNESS GAP ANALYSIS TECHNICAL REPORT This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and con- clusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such bound- aries. Nothing herein shall constitute or be considered to be a limitation upon or waiver of the privileges and immunities of The World Bank, all of which are specifically reserved. 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All queries on rights and licenses should be addressed to World Bank Publications, The World Bank Group, 1818 H Street NW, Washington, DC 20433, USA; email: pubrights@worldbank.org. Cover photo: © Mussi Katz. Layout and design: ULTRA Designs, Inc. Editors: Susi Victor, Priya Susan Thomas, and Tabrez Altaf Ahmed ACKNOWLEDGEMENTS The World Bank team includes Naho Shibuya (Task Team Leader and Senior Disaster Risk Management Specialist, ISARF), Dechen Tshering (Disaster Risk Management Specialist Consultant), Khyati Rathore (Climate Change Consultant), Pema (Disaster Risk Management Consultant), and Balaji Singh Chowhan (Disaster Risk Management Consultant). The team is grateful for extensive inputs provided by Joachim Vandercasteelen (Economist, SSAA1), Phillippe George Leite (Senior Social Protection Economist, HLCSP), Ashiq Aziz (Senior Human Development Specialist, HSASP), and Mamata Ghimire (Economist, HSAHP). The team thanks the following World Bank colleagues for extensive consultations: Joachim Vandercasteelen (Agriculture Economist, SSAA1), Ashiq Aziz (Senior Human Development Specialist, HSASP), Sangeeta Carol Pinto (Senior Operations Officer, LCC3C), Sheu Salau (Senior Agriculture Economist, SSAA1), Mamata Ghimire (Economist, HSAHP), Sunil Kumar Khosla (Lead Energy Specialist, ISAE1), Kristoffer Welsien (Senior Water Supply and Sanitation Specialist, SSAW1), Alvin Etang Ndip (Senior Economist, ESAPV), Savinay Grover (Senior Financial Management Specialist, ESAG1), Md. Kamruzzaman (Senior Procurement Specialist, ESARU), Luis Alton (Senior Financial Sector Specialist, EFNRF), Shruti Vijayakumar (Senior Transport Specialist, ISAT1), Md. Mokaddesul Hoque (Transport Specialist, ISAT1), Ingrid Bjerke (Senior Education Specialist, HSAE2), and T. M. Asaduzzaman (Senior Education Specialist, HSAE2). The team gratefully acknowledges the support and guidance provided by Abdoulaye Seck (Country Director, SACBB), Abhas K. Jha (Practice Manager, ISARF), Adama Coulibaly (Resident Representative, SACBT), Dorji Drakpa (Team Assistant, SACBT), Marie Florence Elvie (Program Assistant, ISARF), Angela Chisha Mazimba (Consultant, GTFS1), Ruvimbo Muchenje (Consultant, GTFS1), Sara Karimbhoy (ET Consultant, GTFS1), and Bianca Adam (Senior Financial Sector Specialist, EFNRF). The team is grateful for valuable comments and feedback from the following peer reviewers: Makiko Watanabe (Program Leader, SAEDR), Jyoti Maya Pandey (Senior Social Protection Specialist, HSASP), Andre L. Carletto (Senior Health Economist, HAWH3), Zacharey Austin Carmichael (Senior Agriculture Economist, SAGGL), and Hanane Ahmed (Senior Agriculture Economist, SAEA3). The team is grateful for the Royal Government of Bhutan, Civil Society Organization, and the private sector entities for extensive consultations (see Annex 3). The team thanks the following development partners for consultations: Mr. Krishna Subba (Chief Program Officer, Japan International Cooperation Agency (JICA)), Ms. Sachiko Mano (Representative, JICA), Ms. Dechen Yangzom (Emergency Preparedness Response Officer, World Food Programme (WFP)), Mr. Binai Lama (Head, Food System and Resilience, WFP), Mr. Declan F. Magee (Economist, Asian Development Bank), Mr. Chadho Tenzin (Assistant Representative (Programme), Food and Agriculture Organization Country Office Bhutan), Mr. Alper Aras (Economist, United Nations Office for Disaster Risk Reduction), Mr. Khurshid Alam (Deputy Resident Representative, United Nations Development Programme (UNDP)), and Mr. Sangay Chophel (Program Management Specialist, UNDP). This report was prepared with financial support from the Global Facility for Disaster Reduction and Recovery. i TABLE OF CONTENTS ACKNOWLEDGEMENTS_______________________________________________________________________________________________ i ACRONYMS AND ABBREVIATIONS___________________________________________________________________________________ iii EXECUTIVE SUMMARY________________________________________________________________________________________________ v 1. BHUTAN: COUNTRY RISK PROFILE_________________________________________________________________________________ 1 2. FINDINGS FROM THE CPGA COUNTRY ASSESSMENT____________________________________________________________ 7 Legal and Institutional Foundations – Aggregated Score: 2.0 (Basic)____________________________________________ 9 Understanding and Monitoring Risks - Aggregated Score: 2.0 (Basic)__________________________________________ 13 Financial Preparedness - Aggregated Score: 2.3 (Basic)________________________________________________________ 17 Primary Response - Aggregated Score: 1.8 (Nascent)___________________________________________________________ 23 Public Health Systems_________________________________________________________________________________________ 23 Critical Infrastructure and Services____________________________________________________________________________ 26 Civil Protection and Emergency Management Systems_______________________________________________________ 30 Social and Livelihood Support - Aggregated Score: 0.8 (Unmet)________________________________________________ 34 Coverage and Scalability of Social Protection_________________________________________________________________ 35 Food Security and Livelihoods_________________________________________________________________________________ 36 Continued Access to Education_______________________________________________________________________________ 40 Crisis-Induced Displacement__________________________________________________________________________________ 42 APPENDICES___________________________________________________________________________________________________________ 45 Appendix 1: Summary of Characteristics Associated with Each Maturity Level in the CPGA___________________ 46 Appendix 2: CPGA Data Collection Process______________________________________________________________________ 47 Appendix 3: List of Stakeholders Consulted______________________________________________________________________ 48 Appendix 4: Detailed Entry Points________________________________________________________________________________ 51 ii ACRONYMS AND ABBREVIATIONS AAL Average Annual Loss DRM Disaster Risk Management ACCESS Accelerating Transport and Trade DRR Disaster Risk Reduction Connectivity in Eastern South Asia DSS Decision Support System ADB Asian Development Bank e-GP Electronic Government Procurement ADSS Agromet Decision Support System EiE Education in Emergency ATC Applied Technology Council EOC Emergency Operation Center BCP Business Continuity Plan EWS Early Warning System BCTA Bhutan Construction and Transport Authority FAO Food and Agriculture Organization BPCL Bhutan Power Corporation Limited FCBL Food Corporation of Bhutan Limited BPPRP Bhutan Pandemic Preparedness and FCS Fragile and Conflict-Affected Situations Response Plan FMS Fiber Monitoring System Cat DDO Catastrophe Deferred Drawdown Option FNS Food and Nutrition Security CBDRM Community-Based Disaster Risk Management FYP Five-Year Plan CBFFMG Community-Based Forest Fire Management Group GDC Government Data Center CDD Communicable Diseases Division GDP Gross Domestic Product CPGA Crisis Preparedness Gap Analysis GHS Global Health Security CSA Climate Smart Agriculture GIS Geographic Information System CSI Cottage and Small Industry GLOF Glacial Lake Outburst Flood DAMC Department of Agricultural Marketing and GNHC Gross National Happiness Commission Cooperatives GP Global Practice DDMC Dzongkhag Disaster Management Committee GPS Global Positioning System DGM Department of Geology and Mines HEDCP Health Emergency and Disaster Contingency DGRK Druk Gyalpo’s Relief Kidu Plan DLGDM Department of Local Government and HF High Frequency Disaster Management HQ Headquarters DM Disaster Management HR Human Resources DMC Disaster Management Committee IAFFCG Inter-Agency Forest Fire Coordination Group DMCP Disaster Management and Contingency Plan ICIMOD International Centre for Integrated Mountain DoA Department of Agriculture Development DoAT Department of Air Transport ICS Incident Command System DoFPS Department of Forests and Park Services ICT Information and Communication Technology DoID Department of Infrastructure Development ICTO Information and Communication Technology Officer DoPH Department of Public Health IDA International Development Association DoST Department of Surface Transport IHR International Health Regulations DPF Development Policy Financing ILO International Labour Organization DRCP Disaster Response and Coordination Process IMT Incident Management Team iii IMTF Inter-ministerial Task Force PDNA Post-Disaster Damage and Needs Assessment IVS International Valuation Standards PFM Public Financial Management JEE Joint External Evaluation PRR Procurement Rules and Regulations JICA Japan International Cooperation Agency R&D Research and Development ISPS Interoperable Social Protection System R&R Rules and Regulation LEO Low Earth Orbit RAA Royal Audit Authority LMS Learning Management System RBP Royal Bhutan Police M&E Monitoring and Evaluation RCC Reinforced Cement Concrete MoAL Ministry of Agriculture and Livestock RCCE Risk Communication and Community MoENR Ministry of Energy and Natural Resources Engagement MoESD Ministry of Education and Skills Development RCDC Royal Centre for Disease Control MoF Ministry of Finance RCP Representative Concentration Pathway MoH Ministry of Health RCSC Royal Civil Service Commission MoHA Ministry of Home Affairs RGoB Royal Government of Bhutan MoICE Ministry of Industry, Commerce and RICBL Royal Insurance Corporation of Bhutan Employment Limited MoIT Ministry of Infrastructure and Transport RUB Royal University of Bhutan MoU Memorandum of Understanding SAR Search and Rescue NAP National Adaptation Plan SOP Standard Operating Procedure NCD Noncommunicable Disease SPAR States Parties Self-Assessment Annual NCHM National Center for Hydrology and Reporting Meteorology SSB Single Sideband NDMA National Disaster Management Authority T&D Transmission and Distribution NDMCP National Disaster Management and TSP Telecom Service Provider Contingency Plan UN United Nations NDRCC National Disaster Response Coordination Committee UNDP United Nations Development Programme NEOC National Emergency Operation Center UNDRR United Nations Office for Disaster Risk Reduction NES National Emergency Services UNESCAP United Nations Economic and Social NIPPRP National Influenza Pandemic Preparedness Commission for Asia and the Pacific and Response Plan VSAT Very Small Aperture Terminal NLCS National Land Commission Secretariat WASH Water, Sanitation, and Hygiene NPRP National Preparedness and Response Plan WFP World Food Programme NRW Nonrevenue Water WHO World Health Organization NSDI National Spatial Data Infrastructure WMO World Meteorological Organization O&M Operations and Maintenance iv EXECUTIVE SUMMARY v 5 Photo: ©Andrew Peacock | istock.com 1. Crisis preparedness requires a comprehensive and or attempt to predict how a country might fare in cross-sectoral approach to risk management with the event of a crisis. It focuses on identifying entry targeted interventions across a range of different points for targeted technical and financial support sectors. While the scope and effectiveness of pre- to strengthen crisis preparedness across its five paredness activities are heavily dependent on con- components. text—including exposure to hazards and the nature of underlying drivers of vulnerability—there are some 3. The CPGA builds on and supplements a range of elements of preparedness that are generally consid- sector- and crisis-specific diagnostic tools. It does ered relevant in most country contexts. not replace or duplicate the in-depth assessments. Rather, it offers users a holistic, high-level perspec- 2. To provide a holistic assessment of preparedness, tive of key country systems that contribute to crisis the Crisis Preparedness Gap Analysis (CPGA) iso-1 preparedness for different types of shocks and across lates five core components of crisis preparedness. sectors. These sector-specific diagnostics constitute These include Legal and Institutional Foundations, the starting point of the CPGA in countries where they Understanding and Monitoring of Risks, Financial exists, with inputs and guiding questions in the CPGA Preparedness, Primary Response, and Social and matched directly with those used in the established Livelihood Support. Components correspond to sectoral framework. In countries where other diag- foundational elements of crisis preparedness con- nostic tools have yet to be deployed, the CPGA can sistent with the World Bank’s mandate, building on serve as an entry point for country teams to conduct sector-specific frameworks and operational engage- more in-depth analyses. ments in this space. Each component is further broken down into subcomponents and indicators, resulting in 4. This Technical Report presents gaps and oppor- a three-tiered system with ‘maturity levels’ assigned tunities to strengthen the capacity of the Royal to each (see Table 3). Levels of maturity range from Government of Bhutan (RGoB) to prepare for crisis unmet (essentially little to nothing has been done to events in an effective and timely manner. It accom- actively promote crisis preparedness) to advanced panies the CPGA Bhutan Briefing Note, providing fur- (typically reflecting a regional leader in crisis pre- ther details on findings and entry points across the paredness, with a comprehensive and multi-sectoral five components of crisis preparedness. The note is approach with significant resources and capacity). intended to inform policymakers to integrate crisis The framework does not evaluate past performance preparedness across different sectors. OVERVIEW OF CROSS-SECTORAL CHALLENGES IN PROMOTING CRISIS PREPAREDNESS 5. The country’s small population size and a recent overseas since 2015. This has led to a significant surge in emigration is amplifying the challenges in shortage of human resources and a brain drain includ- the enforcement and implementation of existing ing the mass resignation of mid-level professionals crisis preparedness-related policies and plans due across public and private sectors in the country with to human resource shortage across sectors includ- a population of approximately 735,600 as of 2017, ing disaster risk management (DRM), infrastructure, amplifying the existing shortage of technical capacity hydrometeorology, finance, and agriculture. The State for crisis preparedness and response across sectors of the Nation Report 2024 states that around 64,000 and from the national to local levels. Bhutanese or 9 percent of the population have moved Crisis Risk Preparedness Analysis, World Bank, https://thedocs.worldbank.org/en/doc/f20312bad480bafdd7d87e4c249 1 82f74-0090082023/related/CPGA-overview.pdf. vi 6. While Bhutan has coped relatively well with fre- the Ministry of Home Affairs (MoHA) has formulated quent and less severe disasters, the country is not the National Disaster Management and Contingency prepared for more severe disasters such as earth- Plan (NDMCP) in 2023, adopting a whole-of-govern- quakes and glacial lake outburst floods (GLOFs). ment approach, not all the sectoral government agen- The RGoB has been responding to frequent and local- cies have prepared their detailed DMCPs. In addition, ized disasters such as landslides and floods during there is a critical need to allocate adequate budget to the monsoon season in an ad hoc and reactive man- implement the DMCPs and put in place a monitoring ner due to a lack of Standard Operating Procedures and evaluation (M&E) mechanism. (SOPs), challenges in coordination, and limited sim- ulation exercises to test the response plans. With 8. The country’s high dependence on small-scale highly scattered population in remote areas and rela- external aid, without adequate budgets allocated tively dense population in urban centres, Bhutan has from the Ministry of Finance (MoF) for the DRM coped relatively well with less severe disasters which sector, has led to a piecemeal approach leading to are more frequent in remote areas. ad hoc implementation of activities and difficulty in sustaining efforts. Across sectors and government 7. Due to the lack of nationwide multi-hazard risk levels, Bhutan faces fiscal constraints and a lack of information and fiscal constraints, evidence-based adequate infrastructure and systems for crisis pre- crisis preparedness and response plans have paredness and response. Inadequately equipped not been prepared and implemented across sec- and capacitated early warning systems (EWSs) for tors and government levels. At present, the RGoB’s weather and hazards, including disease outbreaks, capacity for scientific risk assessments is constrained adversely affect the timely dissemination of critical by limited data, technical capacity, financing, and sec- information. Additionally, the lack of a geographic toral coordination as well as unclarity in the roles and information system (GIS)-based asset management responsibilities of government agencies in generating system for critical infrastructure such as transport, and regularly updating risk information. Furthermore, water, and energy makes it challenging to prioritize there is no systematic registry of vulnerable popu- risk-based operations and maintenance (O&M) and lations. The Disaster Management and Contingency resource allocation during crises. Lastly, the limited Plans (DMCPs) of the 20 dzongkhags (districts) and 4 capacity of the Emergency Operation Centers (EOCs) thromdes (municipalities) are not informed by scien- at all government levels adds to the overall challenges tific risk assessments, and DRM measures are not tar- faced by Bhutan in its efforts to enhance crisis pre- geted for specific needs of vulnerable groups. While paredness and response capabilities. KEY ENTRY POINTS FOR STRENGTHENING THE COUNTRY’S CRISIS PREPAREDNESS 9. The Bhutan CPGA underscores the critical need for resources, Bhutan can significantly enhance its crisis a multifaceted approach to enhance the country’s preparedness, building a more resilient nation capa- resilience and readiness in facing crises. It iden- ble of effectively responding to and recovering from tifies strategic entry points and recommendations various crises. Table 1 presents a list of entry points across five core components and cross-sectoral chal- for strengthening crisis preparedness in Bhutan, along lenges as summarized in Table 1 to bolster Bhutan’s with timeline—short-term (S, under 12 months), medi- disaster management (DM) and response capabilities. um-term (M, 1–2 years), and long-term (L, 3–5 years). Implementing these comprehensive recommenda- Notably, some of the activities recommended here tions requires concerted efforts from the government, are already being initiated. Detailed entry points are civil society, and international partners. By fostering provided in Annex D. cross-sectoral collaboration and allocating adequate vii Table 1. Summary of Entry Points and Timelines SUMMARY OF ENTRY POINTS TIMELINE Legal and Institutional Foundations Amend and enforce the DM Act and the DM R&R, and allocate adequate budget to address the implementation bottlenecks and define the scope more explicitly to include climate change impacts Medium Term and disease outbreaks and be read as all-encompassing except for the specifically excluded ones. The amendments could include the following (ongoing): • Department of Local Governance and Disaster Management (DLGDM) to define the conditions for activating NDMA and DMCs to enable an objective activation. • DLGDM to redefine Type I–III disasters to incorporate the scale of loss and damage to make an objective declaration. • DLGDM and MOF to link the declaration of Type I–III disasters with the level of financial and technical assistance from the central government to the affected local governments. • DLGDM to propose to NDMA to mandate the adoption of NDRCC and DRCP for all hazard types, including disease outbreaks. • DLGDM to review and amend the DM R&R to elaborate provisions on the clauses in the DM Act, with clear definition of responsibilities and processes. • MOF to allocate dedicated resources for implementation of priority activities in the NDMCP Understanding Risks RISK ASSESSMENTS Strengthen a more integrated approach to risk assessments, bringing together different sectors and hazard types to improve the utilization of assessments in planning and response (ongoing): Medium Term • DLGDM to develop a geospatial DSS. • DLGDM to develop Risk Information Guidelines and NLCS to amend the Geo-Information Policy 2018 to define the roles and responsibilities of relevant government agencies in generating and maintaining risk information including data standards and sharing protocols. RISK MONITORING AND EARLY WARNINGS The National Center for Hydrology and Meteorology (NCHM) to build its capacity for medium-term weather forecasting (ongoing), impact-based forecasting, flood forecasting, and sector-specific Long services, including the establishment of the new NCHM HQ, National Weather, and Flood Warning Term Centre to modernize the equipment. Formulate the Hydromet Act and its R&R. The Department of Forests and Park Services (DoFPS) to develop a near real-time forest fire surveillance system that integrates a forest fire danger rating system, a forest fire simulation/ Long prediction model, and a forest fire monitoring system, which is currently hosted by ICIMOD, leveraging Term satellite technologies. The Ministry of Health (MoH) to strengthen monitoring of communicable and vector-borne diseases through enhanced technical and human resources capacity of the National Disease Surveillance and Medium Term Epidemiology Unit of RCDC and expanding training for health care professionals. The Department of Geology and Mines (DGM) and Department of Surface Transport (DoST) to enhance seismic and landslide hazard mapping (ongoing) and pilot a landslide EWS in critical Long landslide hot spots. Term viii Table 1. Summary of Entry Points and Timelines (cont.) SUMMARY OF ENTRY POINTS TIMELINE Financial Preparedness CRISIS RISK FINANCING MoF and DLGDM to develop a Disaster Risk Financing and Insurance Strategy for risk retention and transfer mechanisms to reduce the financial impact of disasters, including health emergencies. Short Term • Revise the Operational Guidelines for Disaster Financing 2017 for more transparent and efficient budget allocation and utilization for DM, including clear procedures for accessing and deploying the General Reserves in emergencies. • Access a contingent line of credit through the Second Cat DDO under preparation, including a Climate Resilient Debt Clause (CRDC), which offers countries in an eligible event the option of deferring principal and/or interest repayments for up to two years. • Consider establishing a dedicated contingency fund for health emergency management. • Consider a sovereign risk transfer mechanism such as a Cat Bond and accessing international markets (for example, Green Bonds) in the long term after exhausting the use of concessional funding from International Development Association (IDA) and other donors and upon confirmation of its fiscal viability. • Pilot crop and livestock insurance schemes (ongoing). MoF and NLCS to improve property and land valuation profession and services for accurate disaster Medium- risk insurance (ongoing): Long Term • Establish the Property Valuation Division in the MoF. • Establish national valuation standards adhering to IVS and designate an agency as a regulatory body for property valuation. • Provide access to an educational program on valuation at postgraduate diploma and master’s levels. • Establish professional standards, code of conduct, accreditation, and oversight for valuation profession. PUBLIC FINANCIAL MANAGEMENT (PFM) MoF to conduct a comprehensive assessment of the public procurement system for emergencies using the internationally recognized Methodology for Assessing Procurement Systems tool Primary Response PUBLIC HEALTH SYSTEMS Strengthen emergency public health services through the following: Short- • MoH to update the HEDCP to streamline, integrate, and incorporate lessons learned from the Medium Term COVID-19 response and the BPPRP (ongoing). • MoH to strengthen diagnostic capabilities to cater to emerging needs such as health pandemics, including climate-induced health threats. • MoH to develop an HR management plan for health care workforce, including retention strategies. CRITICAL INFRASTRUCTURE AND SERVICES Strengthen the legal and regulatory foundations for mandating a resilient built environment Medium- (ongoing): Long Term • RGoB to formulate the National Construction and Surface Transport Act and its R&R to enforce strict quality standards and mandate the resilience of critical infrastructure services, including timely emergency preparedness and response planning. • MoIT to revise the Building Code 2018 to strengthen the regulatory framework for ensuring the resilience and safety of all buildings in the country. • MoENR to formulate the National Energy Policy and revise the Hydropower Dam Design Guidelines to promote integrated dam safety and geohazard management of hydropower plants. ix Table 1. Summary of Entry Points and Timelines (cont.) SUMMARY OF ENTRY POINTS TIMELINE RGoB to develop geographic information system (GIS) based asset management systems for critical infrastructure to enable risk-based O&M planning and ensure service continuity, leveraging the Long NSDI and the Multi-hazard Risk DSS that are under development. Integrate resilience into the proposed Term RAMS under the ACCESS project. MoIT to develop and implement a retrofitting investment plan for critical buildings and infrastructure based on detailed multi-hazard vulnerability assessments. Long Term • Prioritize infrastructure assets built before the introduction of the new seismic codes in the early 2000s, including 315 schools. • Enhance the resilience and efficiency in water infrastructure, focusing on NRW losses through strategic investments and capacity-building measures. MOIT to conduct a freight network vulnerability assessment to determine the critical freight network and identify a suitable adaptation and resilience approach for critical assets. Short Term GovTech to conduct a comprehensive assessment focusing on digital connectivity resilience and Medium- recovery as well as data infrastructure resilience and recovery options, with a particular emphasis Long on exploring technical options for diversifying network infrastructure, including considerations for Term alternative technologies such as Low Earth Orbit (LEO) satellite technology, among others, to enhance international connectivity beyond existing links through India and strengthen domestic connectivity. DoAT to improve emergency preparedness and flight safety of PIA: Medium • DoAT to continue with GARD program and strengthen the Aircraft Accident and Incident Investigation Term Unit, and develop the National Airport Infrastructure Plan. • NCHM to enhance aviation met services and establish a Quality Management System in compliance with the International Civil Aviation Organization requirements. CIVIL PROTECTION AND EMERGENCY MANAGEMENT SYSTEM Strengthen emergency response systems across all sectors, with clear action plans and resource allocation. Medium Term • DLGDM to facilitate RBP and Desuups to strengthen SAR equipment, develop SOPs for its timely mobilization, and train the responders to build their capacity especially for severe and high-altitude disasters. • DLGDM to improve coordination for delivery of emergency services between health service providers and emergency responders such as RBP SAR teams, emergency medical responders, and Desuups to deliver essential services efficiently to the affected communities. • DLGDM, in coordination with local governments, to establish and operationalize EOCs at all government levels and institutionalize the ICS. • DLGDM to enhance community-based preparedness and response initiatives, including local training and engagement programs to build resilience. Social and Livelihood Support COVERAGE AND SCALABILITY OF SOCIAL PROTECTION x Table 1. Summary of Entry Points and Timelines (cont.) SUMMARY OF ENTRY POINTS TIMELINE Improve social protection coverage and strengthen governance with well-established data and information. Long Term • The Cabinet Secretariat in collaboration with Ministry of Industry, Commerce and Employment (MoICE) and other relevant ministries to formulate the Social Protection Policy, Social Protection Act, and Social Protection R&R to protect, prevent and promote resilience and mitigate vulnerabilities in order to promote economic growth of those population and mitigate the worst effects of a disaster on socially and economically vulnerable households. • The Cabinet Secretariat in collaboration with the MoICE to develop an expanded data system strategy that contains information on population pre and post shock and relies on an ISPS Medium Term encompassing interoperable and dynamic social registries and interoperable beneficiary registries, benefiting from robust National Identification Systems. FOOD SECURITY AND LIVELIHOODS The Ministry of Agriculture and Livestock (MoAL) to develop its DMCP and finalize the Agri-Food Sector Strategy 2030 as strategies for improving food security and sustainable livelihoods, Medium Term particularly in disaster-prone areas, to reduce the impact on the most vulnerable. • Finalize the Agri-Food Sector Strategy 2030 to guide the implementation of the FNS Policy 2023 and sectoral programs in the 13th FYP. • Develop adequate storage and distribution infrastructure and facilities and capacity building of MoAL and FCBL. • Review the supply chain of food import, export, and internal consumption during emergencies and use the to-be-developed national farm registry to identify and track vulnerable farm population. • Enhance resilience in agricultural systems at the farm level with the operationalization of agromet advisories to manage risks from extreme weather conditions, pests, and diseases. • Promote investment in modern technologies, improved agronomic knowledge, climate-smart agriculture, market information systems and animal and plant health systems would further strengthen agricultural resilience at farm level and sustainable value addition throughout the agrifood value chain. • Assess the need and feasibility of an early warning system for food and nutrition security, seeking guidance of the World Bank’s expertise in establishing high frequency food and nutrition security risk monitoring The MoAL to finalize the Agriculture Bill to simplify some of the legal and regulatory issues to the modernization and resilience building in the agricultural sector. Medium Term MoAL to de-risk the agrifood sector by reviewing and assessing the potential and cost- effectiveness of national agricultural insurance products Long Term • Based on the ongoing pilots to introduce index-based insurance in Bhutan, assess its potential and cost-effectiveness of national agricultural insurance products in the longer term. In the short term, consider alternative risk mitigation measures such as financial incentives to invest in climate smart agriculture technologies and build farmers financial literacy. CONTINUED ACCESS TO EDUCATION The Ministry of Education and Skills Development (MoESD) to review and update existing DMCPs for the education sector addressing multi-hazard risks. Short Term • Sustain and expand the use of technology in delivering school education curriculum and services in times of crisis. xi Table 1. Summary of Entry Points and Timelines (cont.) SUMMARY OF ENTRY POINTS TIMELINE CRISIS-INDUCED DISPLACEMENT RGoB to develop a policy and strengthen governance structure for providing financial support on housing reconstruction in case of protracted displacement, raise public awareness about GLOF EWS Short Term and the location of temporary relocation zones, and develop a system for recording and tracking crisis- induced displacement. Cross-Sectoral Challenges Improve cross-cutting aspects to enhance preparedness and response. Medium- • Strengthen coordination and collaboration among all stakeholders involved in DM, including Long Term government agencies, civil society, development partners, and the private sector. • DLGDM to strengthen M&E mechanisms to assess the effectiveness of preparedness and response measures planned and implemented by local governments and sectoral agencies, with clear key performance indicators and regular reporting. • RGoB to enhance mechanisms for information sharing and public communication, ensuring that risk information and warnings are disseminated effectively and reach all population segments. xii 1. BHUTAN: COUNTRY RISK PROFILE 1 5 Photo: ©RachelKramer | istock.com 1. The following country risk profile contextualizes the Crisis Preparedness Gap Analysis (CPGA). It draws on insights from national risk assessments and information from relevant multi-hazard risk repositories. Table 2. Summary Statistics Related to Key Risks and Vulnerabilities in Bhutan Natural hazards2 River flood High risk Urban flood High risk Landslide High risk Extreme heat High risk Wildfire High risk Earthquake Medium risk Water scarcity Medium risk Cyclone Low risk Food Value of food imports in total merchandise exports (2019–2021 average)3 24 percent Prevalence of insufficient, poor, and borderline food consumption score 29.14 percent (percent of population) (World Food Programme [WFP])4 Percentage of children under 5 years of age who are stunted5 22.7 percent Share of the population who cannot afford a healthy diet (percent) (World 7.5 percent Bank)6 Health Current expenditure on health, as a percentage of gross domestic product 4 percent (GDP)7 Physicians density (per 10,000 people)8 5.6 Nursing and midwifery personnel density (per 10,000 people)9 22.1 Malaria incidence (per 1,000 people at risk)10 0.01 Macro-fiscal11 GDP US$2.77 billion GDP growth rate 4.4 percent Central government debt, total (percent of GDP) 111 percent 2 ThinkHazard! 2020. Bhutan. https://www.thinkhazard.org/en/report/31-bhutan. 3 Food and Agriculture Organization (FAO): Suite of Food Security Indicators. https://www.fao.org/faostat/en/#data/FS. 4 Global Food and Nutrition Security Dashboard. https://www.gafs.info/ country-profiles/?state=Advice&country=BTN&indicator=FCSP. 5 FAO: Suite of Food Security Indicators. https://www.fao.org/faostat/en/#data/FS. 6 Global Food and Nutrition Security Dashboard. https://www.gafs.info/ country-profiles/?state=Advice&country=BTN&indicator=FCSP. 7 World Health Organization (WHO) Global Health Expenditure database. https://apps.who.int/nha/database. 8 WHO. 2021. “Density of Doctors (per 10,000 people) - Bhutan.” https://data.who.int/indicators/i/217795A. 9 WHO. 2021. “Nursing and Midwifery Personnel Density (per 10,000 Population) – Bhutan.” https://data.who.int/ indicators/i/5C8435F. 10 WHO. 2021. “Malaria Cases - Bhutan.” https://data.who.int/indicators/i/442CEA8. 11 World Bank Group. 2024. Data Bank. Country indicators. https://data.worldbank.org/country/bhutan. 2 Table 2. Summary Statistics Related to Key Risks and Vulnerabilities in Bhutan Socioeconomic Poverty rate12 12.4 percent vulnerability Human Development Index rank13 127/191 Human Capital Index score 14 0.66 Population covered by at least one social protection benefit (2020)15 8.8 percent Vulnerable persons covered by social assistance (2020)16 5 percent Fragility, conflict. and Fragile and conflict-affected situations (FCS) status Not on FCS list violence17181920 2122 23 2. Bhutan is exposed to floods, landslides, cloud- form of ice and changes in precipitation and flow pat- bursts, windstorms, cyclones, river erosion, terns, causing more floods and droughts. The risk of earthquakes, glacial lake outburst flood (GLOF), potential disasters induced by GLOF is pronounced, wildfire, and droughts. Between 1992 and 2021, as the country is home to 700 glaciers and 567 glacial around 87,900 people were affected and approxi- lakes, of which 17 are expected to pose medium to mately 320 died due to natural disasters. Projected 18 high risks (Figure 1). Bhutan is exposed to an earth- increases in heavy precipitation increase the risk of quake of more than 8 on the Richter scale. In 2009 flooding and impact runoff, erosion, and river dis- and 2011, two high-magnitude earthquakes caused charge rates. Most of the country’s infrastructure is damage and loss of US$52.6 million20 (4.3 percent located along drainage basins that are highly vulner- of GDP) and US$24.5 million21 (1.4 percent of GDP), able to flooding caused by heavy monsoon rains and respectively. A study estimates 9,000 fatalities with glacial melt. The urban areas in the south are vul- 10,000 serious injuries and 40,000 people displaced nerable to extreme heat. Risks of local dry spells are throughout the country in the worst-case seismic expected to increase for large parts of the country, scenario.22 More than 7,000 ha of forest were burnt while extreme rainfall events would heighten flood every year during 1994–2020.23 Both flame length and and landslide risks. 19 Climate change is expected to rate of fire spread will increase as climate becomes affect water resources through loss of storage in the more extreme (Figure 2). 12 World Bank. 2023. “Poverty Mapping in Bhutan, Small Area Estimation: Gewog and Town Level Results 2023.” 13 UNDP (United Nations Development Programme). 2021. https://hdr.undp.org/data-center/specific-country-data#/countries/ BTN. 14 Ibid. 15 ILO (International Labour Organization). 2020. https://www.social-protection.org/gimi/WSPDB.action?id=19 16 Ibid. 17 World Bank. 2022. “Classification of Fragile and Conflict-Affected Situations.” https://www.worldbank.org/en/topic/ fragilityconflictviolence/brief/harmonized-list-of-fragile-situations. 18 Emergency Events Database (EM-DAT), Centre for Research on the Epidemiology of Disasters (CRED)/University of Louvain (UCLouvain), Brussels, Belgium. https://www.emdat.be. 19 Assessment of Climate Risks on Water Resources for the National Adaptation Plan (NAP) in Bhutan (2021). 20 RGoB, World Bank, and UN (United Nations). 2009. Bhutan Earthquake September 21, 2009: Joint Rapid Assessment for Recovery, Reconstruction and Risk Reduction. 21 RGoB, World Bank, and UN. 2011. Bhutan Earthquake September 18, 2011: Joint Rapid Assessment for Recovery, Reconstruction and Risk Reduction. 22 Newcastle University, Durham University, and WFP. 2020. “Bhutan Earthquake Impact Planning (EquIP).” 23 National Forest Inventory 2023. 3 Figure 1. Distribution of Glacial Lakes in Bhutan Source: NCHM (National Center for Hydrology and Meteorology). 2021. Bhutan Glacial Lake Inventory. Figure 2. Predicted Flame Length and ‘Rate of Spread’ under Representative Concentration Pathway (RCP) 4.5 and 8.5 2.0 7.5 Rate of spread (m/min) Flame length (m) 1.5 5.0 1.0 2.5 0.5 0.0 RCP 4.5 RCP 4.5 RCP 4.5 RCP 8.5 RCP 8.5 RCP 8.5 short mid long short mid long RCP 4.5 RCP 4.5 RCP 4.5 RCP 8.5 RCP 8.5 RCP 8.5 short mid long short mid long Blue pine Broadleaf <2000m Broadleaf >2000m Chir pine Fir Mixed Confider Source: NEC (National Evaluation Capacity)/UNDP. 2021. Assessment of Climate Risks on Forests and Biodiversity for NAP Formulation Process in Bhutan. 3. Bhutan’s economy is highly dependent on cli- Bhutan’s economy is shaped by hydropower develop- mate-sensitive sectors such as agriculture and ment including the sale of electricity to India. While its hydropower. Half of the country’s workforce is in abundant water resources created ideal conditions for agriculture, which is highly vulnerable given its con- hydropower development, the sector is also vulner- centration in rain-fed dryland and wetland farming. able to climate change, including changes in rainfall The rainfall in October 2021 affected 17 dzongkhags patterns, melting glaciers, and increasing occurrence (districts) and resulted in significant crop loss. of weather events. 4 4. Climate change can reduce the income of the poor- population with safe, healthy, diverse, and nutritious est 40 percent by more than 6.5 percent by 2030. 24 food, especially in terms of low consumption of veg- Rapid economic growth has substantially reduced etables and fruit. Even before COVID-19, there were poverty over the last two decades, but vulnerability to significant variations in food and nutrition security poverty and spatial inequality remains high. Bhutan’s across different districts in Bhutan. The most recent economy grew at an average annual rate of 7.2 percent household census data indicates that only 2.9 percent between 2000 and 2019, and its per capita income of Bhutanese people experienced food shortages in increased threefold in purchasing power parity terms 2017, but certain districts such as Dagana (60 percent), over the same period. As a result, extreme poverty Sarpang (40 percent), and Gasa (28 percent) have was nearly eliminated by 2022. In 2022, the poverty high levels of undernourished individuals. Bhutanese rate for Bhutan was 12.4 percent; however, poverty is are experiencing the triple burden of malnutrition, not evenly distributed across areas: while the poverty including undernutrition, overnutrition, and micronu- rate reaches 17.5 percent in rural areas, it plummets to trient deficiencies. While the prevalence of children 4.2 percent in urban areas (Figure 3). The COVID-19 25 under 5 years who are subject to stunting decreased pandemic disrupted economic activity and affected from 34 percent to 23 percent between 2010 and production, livelihoods, and worker earnings, resulting 2015, it still remains high compared to global stan- in a higher poverty incidence. While national inequality dards. Stunting impairs cognitive and physical growth is lower than the regional average in the South Asia and predisposing the child to metabolic diseases later Region, spatial inequality across districts remains an in life. It is estimated that 34.95 percent of children issue.26 6–59 months of age and 43.8 percent of women of reproductive age are anemic or iron deficient.27 The 5. Bhutan faces significant risks with poor nutrition high level of malnutrition is linked to inadequate diver- and malnutrition, in addition to food insecurity. The sity in food consumption, such as overconsumption of country is facing a growing challenge in providing its cereals and processed foods and underconsumption Figure 3. Poverty incidence by area (percentage) 20.0 17.5 15.0 12.4 10.0 5.0 4.2 0.0 0.7 0.4 0.0 Urban Rural Bhutan Poverty Food Poverty Source: World Bank 24 Jafino, B. A., B. Walsh, J. Rozenberg, and S. Hallegatte. 2020. “Revised Estimates of the Impact of Climate Change on Extreme Poverty by 2030.” Policy Research Working Paper WPS 9417, World Bank, Washington, DC. 25 World Bank. 2023. “Poverty Mapping in Bhutan, Small Area Estimation: Gewog and Town Level Results 2023.” 26 The Gini index that measures inequality is recorded at 0.29 in 2022 in Bhutan. 27 National Nutrition Survey, 2015. 5 of fruits, vegetables, and plant proteins. These poor faces risks of increased geographical range and inci- dietary habits reflect the lack of knowledge and skills dences of vector-borne diseases, particularly malaria among most Bhutanese in adopting improved nutri- and dengue, and waterborne diseases due to drying tion practices. up of water sources or contamination from flooding.30 Climate conditions are projected to become signifi- 6. The poor food and nutrition security is related to the cantly more favorable for transmitting the most vir- weak fundamentals of the Bhutan’s agrifood sys- ulent infectious, vector-borne, and tropical disease tem and a heavy dependence on the import of food outbreaks, including the emergence and reemer- items. The agriculture sector in Bhutan faces various gence of different bacterial and viral diseases. The challenges including labor shortage, feminization of porous border in the south and proximity to livestock agriculture and aging farming population, human-wild- and wildlife increases the risks of pandemics trig- life conflict, fallow land and land fragmentation, low gered by zoonoses. Bhutan is also facing a demo- usage of modern agriculture and livestock inputs and graphic transition with a significantly aging population technologies, predominantly subsistence farming, and a changing disease burden with a sharp increase weak value chain and marketing logistics, poor private in noncommunicable diseases (NCDs). sector engagement, climate change, inadequate bios- ecurity, loss of valuable traditional crops and native 8. Bhutan’s exposure to multiple weather- and animal genetic resources, and increasing soil loss. 28 water-induced disasters and earthquakes In addition, climate change and disaster impacts and increases the compound risks, which pandemics inadequate pre-harvest and post-harvest measures can amplify. For example, the regional offices of the result in high proportions of food losses and waste. Department of Surface Transport (DoST) under the Changes in precipitation patterns further stress bio- Ministry of Infrastructure and Transport (MoIT) faced diversity, making them more vulnerable to diseases severe challenges in clearing roadblocks during the and pests. 29 With no safety nets such as crop insur- monsoon when movement restrictions were at their ance, the farmers face a significant risk of losing their peak during the COVID-19 lockdowns in 2021. The income and food security. As a result, the country DoST’s field officers had to seek approval from the relies heavily on the import of basic staples and food Incident Commanders of respective districts, delay- items from India. The import volume and value of the ing the road restoration works. In addition, while the key imported commodities and cereals increased from Building Code and Building Regulation include struc- 124,898 tons in 2013 to 210,267 tons in 2017. tural fire safety and protection provisions, these are not rigorously implemented, and no clear guidelines 7. Bhutan is highly vulnerable to health emergencies, exist for rural buildings. This could trigger widespread precipitated by climate variability and change. It structural fires in case of a major earthquake. 28 RGoB. 2023. Food and Nutrition Security Policy of Bhutan 2023. 29 World Bank and Asian Development Bank (ADB) Climate Risk Country Profile: Bhutan (2021). 30 National Environment Commission. 2021. “Assessment of Climate Risks on Health for NAP Formulation Process in Bhutan.” 6 2. FINDINGS FROM THE CPGA COUNTRY ASSESSMENT 7 5 Photo: ©Augustine Fernandes | istock.com Figure 4. Crisis Preparedness Maturity Levels for Components and Subcomponents of the CPGA in Bhutan Lega ort l & In u pp inducted Crisis cement Legislative fra stit d S p la plans mewo uti oo on d dis &p rk,s ue uc. 4 ol tr tin Advanced icie at elih Con ss to ed s egic al Fo Liv & cc e u y a G rit s ov & cu od e nd nce 3 Good al liv d se ho at and rn ci a i io el So o Fo ns nstituti SP ility & 2 Basic lab ge i of sca vera on Co 1 Nasce nt n 0 Unme Civil protectio t Risk assessment & EMS Crisis Understanding Preparedness Maturity Levels onse ture struc Resp Pri ical infra &M r y o ma R it ea mon nito i Cr sk rly ito ms e rin a ste rn ng g in an sy ri gs d R lth isk ea s h ic bl Pu nt me Cr age risk isis n l ma fina ncia ncing Public fina Fina ncial Preparedness 9. Findings from the CPGA shed light on the barriers nascent, basic, good, and advanced (see Appendix 1). and opportunities for promoting crisis prepared- A description of steps taken in data collection can be ness in Bhutan. Insights are based on information found in Appendix 2. gathered from a desk review and extensive inter- views with sector experts across a range of relevant 10. The findings from the CPGA are expected to stakeholders from Bhutan and the World Bank Global facilitate a dialogue between the RGoB and the Practices (GPs) (see Appendix 3 for a list of stakehold- World Bank in utilizing the World Bank’s Crisis ers consulted). Below, we present technical insights Preparedness and Response Toolkit. The toolkit is from the CPGA exercise in Bhutan—both with regard aimed at helping developing countries to better pre- to cross-cutting and sector-specific issues—that pare for and respond to crisis through more flexible complete those provided in the Bhutan CPGA Briefing funding reallocation from World Bank projects, sub- Note. The CPGA categorizes the maturity levels of the stantially scaled up access to contingent resources five preparedness components and their subcompo- and immediate crisis response financing, expanded nents by evaluating the number and variety of positive catastrophe risk transfer solutions, and climate-resil- responses to the relevant guiding questions: unmet, ient debt clauses for small states during a crisis. 8 LEGAL AND INSTITUTIONAL FOUNDATIONS – AGGREGATED SCORE: 2.0 (BASIC) COMPONENT SUBCOMPONENT INDICATOR MATURITY LEVEL 1. LEGAL AND 1.1 Legislative frameworks, 1.1.1 Dedicated crisis preparedness INSTITUTIONAL strategic plans and policies laws and regulations are in place and BASIC FOUNDATIONS well enforced, with preparedness plans mainstreamed into policy frameworks 1.2 Governance and 1.2.1 Governance and institutional institutions arrangements are in place, with defined BASIC mandates, roles and responsibilities 1.2.2 Preparedness activities are coordinated across sectors and levels BASIC within government and external stakeholders 11. The RGoB has put in place the Disaster Management enforcement, awareness across sectors and gov- (DM) Act of 2013 and its Rules and Regulation (R&R) ernment levels, and political leadership: of 2014 as the overarching legal and regulatory foundation for disaster risk management (DRM) in • Declaration of Type I–III disasters. The DM Act the country. The DM Act 2013 emphasizes both ex includes the provision to declare a Type III (nation- ante and ex post activities, expressed as functions al-level) public emergency or calamity by the Druk and mandates of the institutions to be set up at vari- Gyalpo (His Majesty) on the written advice of the ous levels in the government. It emphasizes the role of Prime Minister. It also includes the provision to the National Disaster Management Authority (NDMA), declare Type I (thromde and gewog level) and II the highest decision-making body for DM chaired by (dzongkhag level) disaster by the Chairperson of the Prime Minister, in approving hazard and vulner- the Dzongkhag Disaster Management Committee ability maps and guidelines and Standard Operating (DDMC) upon approval by the NDMA. However, Procedures (SOPs) for DM and directing agencies to Type I–III disasters have never been declared due mainstream disaster risk reduction (DRR) and allocate to the lack of awareness, enforcement of the act, resources. The Inter-ministerial Task Force (IMTF) is clear evaluation criteria for the degree of a disas- responsible for reviewing hazard zonation and vul- ter, and SOPs. nerability maps; DRR and DM activities; and national standards, guidelines, and SOPs for DM. In addition, • NDMA and DMCs at the local levels. The NDMA the Ministry of Home Affairs (MoHA) has approved the and DMCs though central to DM are not system- DM R&R 2014 for the establishment of governance and atically activated when there is a disaster event. institutional mechanism and the implementation of Instead, the NDMA is activated by decision of the DRM in the country. The act mandates the establish- Prime Minister and the local DMCs by decision ment of Disaster Management Committees (DMCs) at of the local government heads. The NDMA met the dzongkhag (district) level and DM Subcommittees about three times during the beginning of COVID- at the thromde (municipality), gewog (a group of vil- 19 pandemic but later was not the main deci- lages), and dungkhag (subdistrict) levels. sion-making body and was not active. As they are not activated as per the act to manage floods 12. However, the Royal Government of Bhutan (RGoB) and landslides during the monsoon season, there has not implemented the following mechanisms are limited opportunities for the NDMA and local defined in the act and R&R due to the lack of DMCs to test, review, and improve their functions 9 and emergency communication protocols, in the • IMTF. The first meeting of the IMTF was held absence of regular training and disaster simula- in 2018. However, it has not held any meetings tions. This poses a significant concern to their since then to fulfill its roles and responsibilities in capacity to effectively respond to severe disas- the absence of SOPs and clear leadership from ters such as earthquake and GLOFs. the MoHA in convening the IMTF regularly. Figure 5. Bhutan’s Institutional Structure for DRM National disaster management authority Chairperson: Prime Minister Ministry of Home Affairs Vice Chairperson: Minister of Home Affairs Affairs Department of Local Governance and Notified agencies and private Disaster Management sector Member Secretary: Head of Department National Emergency Inter-Ministerial Disaster Operation Center Task Force Management Unit Dzongkhag Disaster Management Committee Dzongkhag Disaster Management Officer Dzongkhag Emergency Operation Center Thromde Disaster Gewog Disaster Management Dungkhag Disaster Management Subcommittee Subcommittee Management Subcommittee 10 13. The National Disaster Response Coordination the government is provided based on the Amended Committee (NDRCC), approved in 2017, stands Operational Guidelines for Disaster Financing 2017. ready to be activated by the RGoB in the event of However, some agencies expressed that declaring a Type III disasters. The NDMA approved the Disaster disaster would be beneficial to garner support from Response and Coordination Process (DRCP) including the central government and development partners in a the NDRCC via a Government Order in 2017 to ensure timely manner and make more systematic emergency effective and efficient emergency response. The DRCP response. As disasters have never been declared, the defines structures, roles, responsibilities, and coordi- functionality and operationality of the plans and insti- nation of response across national and dzongkhag tutions in place have not been tested. levels based on the Incident Command System (ICS). Further, the DRCP defines the roles and responsibili- 16. In addition, the DLGDM under the MoHA is yet to be ties of the NDRCC, which is activated during a Type III fully empowered with adequate technical staff and disaster, and the Incident Management Team (IMT),31 financial resources. The DLGDM is the designated which is activated during a disaster at the dzongkhag, secretariat and executive arm of the NDMA and is thromde, or gewog levels. The NDRCC has eight responsible for instituting a robust coordination plat- desks led by government secretaries and the Chief form for DRM initiatives and enhancing awareness of Police and supported by various government and and understanding about DM. However, the DLGDM nongovernment agencies. However, as Type III disas- is yet to be fully empowered with adequate techni- ters have never been declared in the past, the NDRCC cal staff as well as the National Emergency Operation has never been activated. Consequently, there is no Center (NEOC) with adequate equipment and finan- evidence from experience to understand the effec- cial resources to undertake its mandates and enforce tiveness of the NDRCC. various mechanisms related to DRM. 14. The RGoB did not activate the DRCP or the NDRCC 17. The MoHA approved the National Disaster during the COVID-19 pandemic. The Cabinet and Management and Contingency Plan (NDMCP) in the Ministry of Health (MoH) have instead established 2023, demonstrating their commitment to disas- a separate emergency management mechanism for ter preparedness and management. The DLGDM COVID-19, including the National COVID-19 Incident prepared the NDMCP with financial and technical Command Structure that is similar to the NDRCC but assistance from the World Bank, fulfilling the provi- specific to the pandemic. As COVID-19 was consid- sion of the DM Act. It adopts a whole-of-government ered only as a health emergency, a separate command approach to multi-hazard preparedness and response. system was established because health emergencies The NDMCP defines the roles and responsibilities ex were dealt separately till date. Also, the activation of ante, during, and post disaster of 35 government NDRCC depends on political leadership. agencies for the first time in the country, as well as a mechanism for coordinating interagency responses to 15. In the absence of major disasters since its enact- disasters. The plan lays out a series of priority actions ment in 2013, the lack of DM Act enforcement by sector and department, with clear targets for the has not had any material effect on the country’s next five years and means of verifying whether the emergency response and recovery. The local gov- targets have been met. In addition, it predefines a ernments have received financial and technical assis- trigger mechanism to activate the contingency plans tance from the central government during disasters in response to an extreme weather event or public regardless of the declaration of disaster. The local health emergency. It will be reviewed and updated governments have been coordinating the response regularly to ensure its effectiveness and relevance. to local disasters with support from the Department Although the NDMCP includes a priority action plan of Local Government and Disaster Management for 2023–2028, it is not costed and resourced due to (DLGDM) when needed, and financing support from funding constraints. A rostered group of ICS-qualified personnel consisting of an incident commander, command and general staff, and personnel 31 assigned to other key ICS positions. 11 18. The sectoral and local Disaster Management and Additionally, it is essential to incorporate climate and Contingency Plans (DMCPs) need to be reviewed disaster resilience considerations into the develop- and updated using scientific multi-hazard risk ment of the Social Protection Policy, Social Protection information and made relevant to the institutional Act, and Social Protection R&R aimed to lessen the changes and capacities. Although all 20 dzongkhag severe impact on socially and economically vulnerable and 4 thromde administrations have prepared and households. published DMCPs with support from the DLGDM about a decade ago, they are predominantly pre- 20. The DLGDM is planning to incorporate lessons pared based on qualitative disaster risk assessments, learned from COVID-19 and past disasters by including visual and consultative assessments and amending the DM Act 2013 and DM R&R, with tech- historical information rather than quantitative assess- nical and financial assistance from the World Bank. ment. The plans need to be updated based on up-to- The amendments to the Act shall define the condi- date climate and disaster risk information with a tions for activating the NDMA and DMCs, revisit the stronger emphasis on ex ante measures. Furthermore, definition of Type I–III disasters to incorporate the key sectors such as telecommunication, power, and scale of loss and damage, link the declaration of Type water supply do not have sectoral DMCPs in place. In I–III disasters with the level of financial and techni- addition, these DMCPs have yet to be implemented cal assistance from the central government to the due to resource and capacity constraints. In addition, affected local governments, and mandate the adop- there is no mechanism to monitor and evaluate the tion of National Disaster Response and Coordination implementation. Process for all hazards. Other recommendations involve incorporating provisions on enhancing under- 19. Although there is a general consideration of vul- standing of risk with focus on data, hazard assess- nerable groups in the legislation and policy frame- ments, climate change projections and scenario works, these documents do not address the specific building, risk and vulnerability assessments for cur- impacts on these groups. While the need to empha- rent and future hazard profiles, sectoral applications size vulnerable populations is considered in the DM (land-use planning, agriculture, water, and so on), and Act, the NDMCP and local DMCPs do not specify the enhanced coordination between public health and impacts of key hazards on these groups. The DLGDM DM. In the R&R, it is recommended to define protocols is planning to conduct a nationwide socioeconomic for sharing risk information, details on how agencies vulnerability assessment through a World Bank- (including the private sector) are identified to be noti- supported project on Strengthening Risk Information fied and what the notification process entails, clarity for Disaster Resilience to better understand the on non-state actors’ involvement, M&E of DMCPs, and impacts of key hazards on the vulnerable groups and process of rehabilitation. inform provision of targeted support to these groups. 12 SUMMARY OF ENTRY POINTS TIMELINE Legal and Institutional Foundations Amend and enforce the DM Act and the DM R&R, and allocate adequate budget to address the implementation bottlenecks and define the scope more explicitly to include climate change impacts Medium Term and disease outbreaks and be read as all-encompassing except for the specifically excluded ones. The amendments could include the following (ongoing): • DLGDM to define the conditions for activating NDMA and DMCs to enable an objective activation. • DLGDM to redefine Type I–III disasters to incorporate the scale of loss and damage to make an objective declaration. • DLGDM and MOF to link the declaration of Type I–III disasters with the level of financial and technical assistance from the central government to the affected local governments. • DLGDM to propose to NDMA to mandate the adoption of NDRCC and DRCP for all hazard types, including disease outbreaks. • DLGDM to review and amend the DM R&R to elaborate provisions on the clauses in the DM Act, with clear definition of responsibilities and processes. • MOF to allocate dedicated resources for implementation of priority activities in the NDMCP UNDERSTANDING AND MONITORING RISKS - AGGREGATED SCORE: 2.0 (BASIC) COMPONENT SUBCOMPONENT INDICATOR MATURITY LEVEL 2. UNDERSTANDING & 2.1 Risk assessment 2.1.1 National cross-sectoral and sector- MONITORING RISKS specific risk assessments have been carried BASIC out, using current and historical datasets 2.1.2 Government is able to identify vulnerable people without discrimination BASIC 2.2 Risk monitoring and early 2.2.1 Government has the capacity to warnings monitor and analyze active threats in real- BASIC time to inform national and subnational- level decision-making 2.2.2 Risk information is communicated in accessible and relevant formats to all BASIC relevant groups Risk Assessments, Monitoring, and Early forests and biodiversity, health, and water resources Warnings was conducted. There are ongoing hazard mapping and risk assessments for floods, landslides, and earth- 21. While nationwide impact-based risk assessments quake. However, the quantification of disaster risk has are limited, sectoral and subnational risk assess- not been conducted, and risk information is available ments for specific purposes have been conducted. for some areas but not nationwide. Data sets are As part of preparing the National Adaptation Plan generally spatially fragmented and with inconsistent (NAP), an assessment of climate risks on agriculture, methodological approaches, leading to duplication of 13 efforts and limited potential for future use and inte- 24. The country’s efforts to develop a landslide inven- gration. Although some risk assessments for specific tory are ongoing, but landslide risk assessments purposes have been conducted, no agency has yet are significantly limited, and there is no landslide conducted a truly probabilistic risk assessment for EWS in place. The DGM conducts landslide haz- earthquakes or floods across a range of infrastructure ard mapping while the DoST under the MoIT has classes and economic sectors. Therefore, prioritiza- just embarked on landslide risk assessments along tion of investments even based on deterministic sce- national highways. The DGM is mandated to develop narios is limited. an inventory of landslides nationwide and conduct susceptibility mapping. There is an urgent need to 22. While the need for disaster risk assessments is conduct landslide deformation mapping and continue well recognized, the roles and responsibilities of refining susceptibility maps. However, the DGM is government agencies for risk assessments are not constrained with both technical capacity and finan- clearly defined. Risk assessment is a relatively new cial resources. Although the DGM is mandated to map concept in Bhutan. Past and ongoing engagements landslide hazards across the country and the DoST demonstrate that relevant agencies are willing to col- is mandated to conduct landslide risk assessments laborate and share information but lack procedures along road corridors, there is no official collaboration and tools to facilitate data sharing. The DLGDM plans mechanism to share information between the two to develop Risk Information Guidelines under the departments. At present, this collaboration is being Strengthening Risk Information for Resilience Project pursued through the Technical Working Group for (P175081), which will specify the roles and responsi- multi-hazard risk assessment established under the bilities of agencies involved in generating risk infor- World Bank-financed Strengthening Risk Information mation, standards for multi-hazard risk assessment, for Resilience project. and protocols for information sharing. The guide- lines will be integrated into the planned revision of 25. As the designated ‘Hydromet Hazard Early Warning the Geo-Information Policy and the development of Service Provider’, the NCHM provides qualitative Geo-Information R&R planned by the National Land extreme weather advisories and flood and GLOF Commission Secretariat (NLCS) under the 13th Five- early warning but no lightning warning. It currently Year Plan (FYP). produces qualitative weather forecasts for three days ahead. These forecasts are prepared at the district 23. While the Department of Geology and Mines (DGM) level and therefore adequately represent local areas, under the Ministry of Energy and Natural Resources especially higher elevations and remote areas where (MoENR) is responsible for seismic monitoring of there is difficulty in locating, installing, and maintain- the country, there is no earthquake early warning ing stations. Based on a qualitative analysis, flood system (EWS) in place. There are 14 earthquake warning stations are located mainly along major rivers, source monitoring stations and 221 earthquake inten- and the network is sparse in smaller rivers. The NCHM sity meters across the country. All the information does not operate a lightning detection network, and from these stations is received at the central monitor- it does not subscribe to lightning data services from ing system for seismic activities hosted at the DGM, a service provider. There are no global atmospheric which was established in 2016. The department faces watch stations operating in Bhutan. challenges in maintaining the source monitoring sta- tions, especially in the southern parts of the coun- 26. Since the GLOF EWS is currently based on flood try due to the lack of dedicated funding and human detection and issues warnings as a result of an resources. Similar maintenance challenges also per- outburst, NCHM is planning to integrate flood fore- sist for intensity meters which are in the gewog and casting into the EWS to gain more lead time. The dzongkhag offices, as these get damaged frequently NCHM carries out an annual program of monitoring in areas prone to lightning. As a result, there is disrup- the snow and glaciers including glacier mass bal- tion in data transfer to the central monitoring system. ance calculation for three benchmark glaciers32 and 32 Thana glacier at the source of Chamkharchhu, Ganjula glacier at the source of Phochhu, and Shodug glacier at the source of Thimphuchhu. 14 bathymetry surveys of glacial lakes at the source of have been unsuccessful. For instance, the installation Chamkhar Chhu and Lunana regions every two years of surveillance cameras in the Thimphu District was or whenever it is needed. Comprehensive, real-time, discontinued due to expensive technical maintenance and routine monitoring of snow and glaciers is not and financial challenges. The DoFPS has partnered currently conducted by the NCHM due to the lim- with the International Centre for Integrated Mountain ited human capacity with only three glaciologists Development (ICIMOD) to utilize a forest fire monitor- and an inadequate budget. The GLOF EWS along the ing system33 that provides automatic email alerts to Punatsangchu and Chamkhar-Mangde basins does responsible officers and responders. Additionally, an not use any models for quantification but relies mostly online portal system is used to provide information on on measured water levels using automatic instru- forest fire incidents and statistics, utilizing satellite ments and telemetry. The NCHM aims to extend the data and a coordinate system. However, the effec- GLOF/rainstorm flood EWS to all river basins. tiveness and reliability of this system remain ques- tionable due to frequent technical glitches and its 27. All 80 automatic weather station installations are main server being based in Nepal. There is a need to prone to frequent interruptions of service mainly establish a robust forest fire monitoring system lever- due to challenges in communication and network aging remote sensing and cutting-edge technologies connectivity. These challenges make identifying and based on research on fuel load data in Bhutan. alternative communication channels a necessity, Additionally, surveillance of wildlife is inadequate or especially for flood EWS. absent, despite the heightened risk of spillovers. 28. The NCHM does not conduct regional climate 30. The National Disease Surveillance and Epidemiology research or operational climate forecasting due to Unit of the Royal Centre for Disease Control (RCDC) limited capacity and resources. Seasonal forecasts under the MoH monitors and notifies the spread are issued for the summer and winter monsoons, of diseases/syndromes; however, capacity con- based on the consensus statement from the South straints persist. The National Early Warning Alert and Asian Seasonal Climate Outlook Forums. The NCHM Response Surveillance System is a web-based sys- provides climate information services, including tem that incorporates real-time mobile SMS reporting, monthly and annual climate monitoring reports, sea- enabling the detection and monitoring of public health sonal forecasts, and annual statistical information and events with rapid response capabilities at all levels. analysis of the climate extremes. In addition, as man- The unit’s capacity extends to providing epidemiolog- dated by the Climate Change Policy, the NCHM has ical support to stakeholders in disease surveillance been working on the climate projections for Bhutan and outbreak investigations, monitoring trends in noti- and monitors climate change and climate variabil- fiable diseases and health threats, analyzing and dis- ity. However, no regional climate downscaling and seminating surveillance and outbreak data, assessing regional or subregional climate research is conducted and offering recommendations on event reports, and by the center. Similarly, no operational climate fore- training health care professionals in National Notifiable casting (for example, monthly and seasonal) services Diseases outbreak investigations. Ongoing activities exist due to insufficient capacity and resources. include Indicator-Based National Notifiable Disease Surveillance, Immediate Reportable National Notifiable 29. There is no forest fire monitoring and EWS in place Disease Surveillance, and Event-Based Surveillance. due to limited technical capacity and financial con- Indicator-based surveillance involves periodic report- straints. The Forest and Nature Conservation R&R of ing, while event-based surveillance involves ad hoc 2023 mandates the Department of Forests and Park reporting. Although a communicable disease monitor- Services (DoFPS) under the MoENR to prevent and ing and warning system is in place, the RCDC faces protect forests from fire including provisions on early a lack of adequate human and technical resources. detection of fires. Despite several initiatives to estab- Furthermore, for new diseases and due to capacity lish a forest fire monitoring system in Bhutan, they constraints for certain diagnostic tests, Bhutan needs https://geoapps.icimod.org/BhutanForestFire/. 33 15 to send samples to neighboring countries. For zoo- on hazards, exposure, and vulnerability. While some notic disease, the Veterinary Information System is in information regarding risk in various sectors such as place for risk monitoring; however, there is a lack of health, roads, floods, and earthquakes is available, systematic reporting for effective surveillance. this information is not systematic or standardized. As a result, there is no platform for sector-specific risk 31. Screening processes at the entry points to the assessments that is linked to national risk assess- country are put in place when there is a need, such ment. In consequence, these risk assessments do not as during the COVID-19 pandemic; however, there provide a thorough understanding of the geographical is an opportunity to establish a formal cross-border distribution of risk in the country. The development of information sharing mechanism. During the COVID- a multi-hazard risk decision support system (DSS) and 19 pandemic, health officials were stationed at all the a nationwide multi-hazard risk assessment focused on entry points to the country, including airports and land earthquakes, floods, and landslides along highways points to screen people when entering the country. is being conducted under the World Bank-financed The districts in the southern border face a high risk Strengthening Risk Information for Resilience project. from vector-borne diseases, both from within as well The DSS under development will provide a common as from neighboring states in India. India and Bhutan platform for all risk assessments and is expected to have informal mechanisms for sharing information improve the coordination and exchange of relevant on the detection of vector-borne diseases. For pre- risk data sets among agencies for risk-informed deci- ventive measures such as spraying to be effective, sion-making. In addition, it is expected to revamp collaboration at borders needs to be formalized and and integrate the Disaster Management Information strengthened for the benefit of both sides. System, which was developed by the DLGDM but not operationalized yet due to its poor user interface and 32. Although Bhutan has a monitoring system for mal- lack of scalability and connectivity with other systems. nutrition, there is no EWS for food security in place. The MoH regularly collects incidence and prevalence 34. Comprehensive risk communication on various of malnutrition, including stunting among children hazards is limited mainly due to the scarcity of reli- under 5 years and anemia among women of repro- able risk assessments and lack of targeted commu- ductive age in Bhutan. National-level surveys, for nication. Although some kinds of risk communication instance, National Nutrition Surveys, also provide about earthquakes, GLOFs, and floods are conducted information on nutritional status. The NDMCP man- by the DLGDM and NCHM, there is no location-spe- dates the Department of Agriculture (DoA) under cific and targeted risk communication. There are the Ministry of Agriculture and Livestock (MoAL) to EWSs in the form of advisories for the public regard- develop systematic baseline and pre-crisis food secu- ing extreme weather events. However, the warnings rity information for conducting regular food security tend to be more scientific than simple and actionable monitoring, needs assessment, and rapid food secu- for the public with expected impacts. Risk information rity assessments for food assistance. However, these is usually disseminated through television, mainly in are not in place yet. Dzongkha and English. People in rural areas typically prefer and understand better in local dialect, which is 33. There is presently no robust, ‘fit-for-purpose’ limited. In addition, there is no consolidated national online portal for intra-government and public shar- risk communication system where people can look for ing of up-to-date geospatial data and information alerts and warnings. 16 SUMMARY OF ENTRY POINTS TIMELINE Understanding Risks RISK ASSESSMENTS Strengthen a more integrated approach to risk assessments, bringing together different sectors and hazard types to improve the utilization of assessments in planning and response (ongoing): Medium Term • DLGDM to develop a geospatial DSS. • DLGDM to develop Risk Information Guidelines and NLCS to amend the Geo-Information Policy 2018 to define the roles and responsibilities of relevant government agencies in generating and maintaining risk information including data standards and sharing protocols. RISK MONITORING AND EARLY WARNINGS NCHM to build its capacity for medium-term weather forecasting (ongoing), impact-based forecasting, flood forecasting, and sector-specific services, including the establishment of the new NCHM HQ, Long National Weather, and Flood Warning Centre to modernize the equipment. Formulate the Hydromet Act Term and its R&R. DoFPS to develop a near real-time forest fire surveillance system that integrates a forest fire danger Long rating system, a forest fire simulation/prediction model, and a forest fire monitoring system, which is Term currently hosted by ICIMOD, leveraging satellite technologies. MoH to strengthen monitoring of communicable and vector-borne diseases through enhanced Medium technical and human resources capacity of the National Disease Surveillance and Epidemiology Unit of Term RCDC and expanding training for health care professionals. DGM and DoST to enhance seismic and landslide hazard mapping (ongoing) and pilot a landslide EWS in critical landslide hot spots. Long Term FINANCIAL PREPAREDNESS - AGGREGATED SCORE: 2.3 (BASIC) COMPONENT SUBCOMPONENT INDICATOR MATURITY LEVEL 3. FINANCIAL 3.1 Crisis risk financing 3.1.1 Government has put in place a dedicated PREPAREDNESS strategy for the delivery of crisis and disaster risk NASCENT financing 3.1.2 Government has access to a range of sovereign NASCENT financing instruments 3.1.3 Government ensures an enabling environment BASIC for insurance and other risk finance instruments 3.2 Public Financial 3.2.1 Government has put in place crisis-related ADVANCED Management budget execution rules and procedures 3.2.2 Anti-corruption mechanisms are in place to ensure transparency, efficiency, and accountability in ADVANCED the provision of emergency services and financing at national and sub-national levels 3.2.3 Coordination and close engagement takes place with international development and humanitarian BASIC stakeholders, including the management of post-crisis inflow of resources 17 35. The country’s estimated average annual loss (AAL) emergency reliefs. Figure 4 presents the financial from disasters (droughts, floods, earthquakes, instruments currently available in Bhutan. and biological) is US$169.3 million (approximately 6.9 percent of current GDP).34 In 2009 and 2011, 38. In accordance with the Operational Guidelines for two strong earthquakes caused damage and loss of Disaster Financing 2017, the General Reserve funds US$52.6 million 35 (4.3 percent of GDP) and US$24.5 are used for financing (a) emergency response and million 36 (1.4 percent of GDP), respectively. In terms of relief, (b) immediate restoration of essential public AAL as a percentage of GDP under current, moderate infrastructure and services, and (c) recovery and (RCP 4.5), and worst-case (RCP 8.5) climate change reconstruction. For immediate restoration of essential scenarios, Bhutan is one of the most vulnerable coun- public infrastructure and service centers (for example, tries in the region.37 schools, hospitals, gewog offices, rural water supply schemes, bridges, and highways) to continue provid- 36. Bhutan has a legislation in place for financing emer- ing undisrupted services to the community, the DMCs gency response, restoration, and reconstruction as must assess, verify, and submit detailed damage a risk retention measure. The Public Finance Act of report along with work plan, cost estimate, and picto- 2007 allows the MoF to authorize the use of public rial evidence to the MoF within 45 days of the disaster funds for urgent needs during an emergency. In line event. Upon review, the budget is allocated from the with the Public Finance Act and DM Act, the MoF sets General Reserve for Disaster Relief to the respective aside a General Reserve within the annual budgets. agency. The cumulative total expenditure on disaster The DM Act directs the DMCs to allocate funds to relief between FY20 and FY23 was BTN 4.96 billion be used for disaster response and relief aligned to (US$60.1 million) with an average annual expenditure the guidelines provided by the NDMA. The act gives of BTN 1.2 billion (US$14.5 million),38 which represents authority to the NDMA to approve the reimburse- an increase of more than 15-fold compared to FY15– ment of the expenses incurred by the DDMCs toward 19, mainly due to COVID-19. The cumulative expen- disaster response, recovery, and rehabilitation. It also diture on monsoon restoration works between FY20 provides for a separate budget for capacity-building and FY23 was BTN 755.9 million (US$9.2 million) with activities of the DLGDM, establishing critical facilities an average annual expenditure of BTN 189 million and purchase of equipment or for any other activ- (US$2.3 million). Regarding financing for recovery and ity which could strengthen disaster preparedness in reconstruction activities, the RGoB agencies conduct Bhutan. a damage assessment, and the budget requirement for the recovery and reconstruction shall align with 37. Bhutan’s crisis risk financing is limited to the the normal planning and annual budgeting process. General Reserves as a risk retention measure, Although this guideline was already in place when and there is currently no risk transfer mechanism the COVID-19 pandemic started, there was confu- in place. There is no comprehensive disaster risk sion among government agencies about resource financing strategy or policy for mitigating the finan- mobilization and access to funds. Furthermore, the cial impact of different types of disasters occurring guidelines lack procedures to request funds from at different frequency and with different degrees of development partners, hindering efficient resource severity. The country has been mainly using General mobilization during an emergency. Reserves for regular monsoon restoration works and 34 Economic and Social Commission for Asia and the Pacific (ESCAP), Risk and Resilience Portal, https://rrp.unescap.org/ country-profile/btn 35 RGoB, World Bank, and UN. 2009. Bhutan Earthquake September 21, 2009: Joint Rapid Assessment for Recovery, Reconstruction and Risk Reduction. 36 RGoB, World Bank, and UN. 2011. Bhutan Earthquake September 18, 2011: Joint Rapid Assessment for Recovery, Reconstruction and Risk Reduction. 37 UNESCAP (United Nations Economic and Social Commission for Asia and the Pacific). 2021. Asia Pacific Disaster Report. 38 Data received from the MoF on August 15, 2023. 18 Figure 6. Overview of Disaster Risk Financing Instruments in Bhutan Low frequency/ Risk transfer No sovereign Risk transfer high high No insurance of public assets, (e.g., cat bond, reinsurance) except Hydro power plants No contingent credit line Limited post disaster credit (Cat DDO in 2020) Risk retention High frequency/ Low severity Limited government reserves and funds dedicated to disasters Emergency funding Reconstruction financing Photo: ©Andrew Peacock | istock.com 19 39. The Bhutanese health care system, predominantly 42. Although Bhutan issued its first sovereign domes- government driven, is likely to face challenges to tic bond during the COVID-19 pandemic, non-con- ensuring adequate financing for emerging health cessional financing from international markets may care challenges. It is grounded in the principles of not be a fiscally and financially viable option for the Universal Health Coverage. However, concerns have country in the short term. Following the approval of arisen regarding the system’s sustainability due to the the R&R for Issuance of Government Bonds, Bhutan escalating costs of health care, rising public expec- issued a three-year sovereign domestic bond of tations, and the emergence of more complex and US$41 million in 2020 with technical assistance from expensive NCDs. The RGoB has already seen the the UNESCAP. However, the funds were not directly decline in preparedness-related allocation from 70 used for COVID-19 response. The MoF is preparing percent in FY21 to 60 percent in FY23. This is likely a Sustainable Financing Framework and green tax- the result of various factors, including slow economic onomy for issuing sovereign Green Bonds in interna- growth following the COVID-19 pandemic. To address tional markets. However, an inaugural 10-year bond in these challenges, there is a pressing need to diversify US dollar would cost at least 7 percent per year which health care financing sources, with a gradual integra- is significantly higher than the cost of concessional tion of the private sector. financing provided by multilateral development banks. In addition, any international bond issuance requires a 40. The MoH is finalizing a health emergency financ- sovereign rating by at least one credit agency with a ing strategy and aiming to establish a dedicated recurrent annual fee. Until market-based instruments contingency fund for health emergency manage- are financially and fiscally viable, the RGoB may priori- ment upon approval from the MoF. The MoH has tize other risk transfer mechanisms such as insurance been awarded the Pandemic Fund Grant in January to minimize the financial impact of a less-frequent and 2024, which will be implemented by the WHO and the severe disaster event. FAO. The grant aims to strengthen preparedness and response through improved surveillance and early 43. Only 18 percent of households have insured their warning, laboratory systems, human resources, and properties and assets, while no public buildings workforce toward the preparedness and response and infrastructure, except hydropower plants, are agenda. The MoH plans to allocate US$20,000 from insured. The insurance business in Bhutan derives the Pandemic Fund as seed money to supplement the its legislative framework from the Financial Services proposed contingency fund. Act 2011 and detailed in the R&R for Insurance and Reinsurance Companies and the R&R for Licensing 41. Bhutan had access to a contingent line of credit of Insurance Companies in Bhutan 2018. Except the for initial COVID-19 emergency response in 2020 hydropower plants constructed and operated by the and is preparing the second Catastrophe Deferred Druk Green Power Corporation, critical infrastructure Drawdown Option (Cat DDO). The Development such as hospitals, schools, roads, bridges, airports, Policy Financing with a Cat DDO, which closed in June government offices, and fire departments are not 2023, provided the RGoB access to immediate liquid- insured. The WFP is planning to pilot index-based ity amounting to US$15 million and a grant financing crop insurance in four districts during 2024–2029. of approximately US$1 million from the Pandemic The insurance industry conducts awareness-rais- Emergency Financing Facility in response to the ini- ing programs on insurance benefits; however, public tial COVID-19 outbreaks. The World Bank is cur- acceptance has been limited. rently preparing the Climate and Disaster Resilience Development Policy Credit with a Cat DDO of US$40 44. The government has implemented a subsidy pro- million to strengthen the technical and institutional gram to promote rural house insurance. The Rural capacity of the RGoB in managing climate and disas- House Insurance Scheme provides protection to rural ter risks. homes against possible risks from fire, flood, land- slides, rainfall, windstorms, hailstorms, lightning, and earthquake. The insured’s share ranges from BTN 20 100/year for Category IV39 homeowners to BTN 975/ and Regulation in 2021. The PRR 2020 was issued year for Category I40 homeowners, which is 0.04 to address emergency needs and expedite the imple- percent to 0.35 percent of the average rural house- mentation of the COVID-19 emergency response. The hold income, respectively. For both rural and urban Simplified PRR, applicable to all public procurement, buildings, purchasing insurance is a requirement for has streamlined processes, including reduced the obtaining loan for construction. time for advertising and increased the thresholds for the use of simplified procurement methods. 45. While R&R for Insurance and Reinsurance Companies requires the valuation of assets in 48. The PRR 2023 allows for direct contracting or single accordance with the Bhutan Accounting Standards, source selection for contracts of any value during land and property valuation in the country is not emergencies. It authorizes exceptions to follow rou- based on international valuation standards (IVS). tine procurement procedures during an emergency. The core challenge for valuation is the poor real prop- It also allows the use of UN Agencies’ rates during erty market transparency. Land transaction prices emergencies. In addition, as per the DM Act 2013, are commonly underdeclared, and land leases are during an emergency, the NDMA may direct the use of not registered in a public record. There are no reli- emergency procurement upon the prior approval from able sources available for verifying market values. The the MoF to ensure a direct and least time-consuming public sector and financial institutions’ valuations are method to procure goods and services and exempt interlinked and circulate same valuation by and large, specific supply of goods and services from the stan- and both are based on poor data. The building valua- dard procurement procedure specified in the PRR. tion practices perform better but may not reflect ade- There are registered specialized disaster supplies, quately the locational impacts to building values. Also, and several agencies have Financing Agreements it is exceptional that there is no regulated valuation with these suppliers. profession in the country, and standards and methods applied to private sector commercial valuation vary. 49. The DM Act mandates the concerned agency to Such a weak valuation infrastructure has negative submit the accounts of the response and relief impacts to financial system resilience and insurances. expenditure to the MoF as per the Financial R&R. There is a clear line of accountability within an agency 46. Bhutan’s public procurement is being modernized for any emergency procurement, reinforced with an through the Electronic Government Procurement annual post-audit by the Royal Audit Authority (RAA). (e-GP) system. As part of continued reforms over The RAA conducts financial audits at two tiers: the the years, Phase 2 of the e-GP system was launched consolidated annual financial statements of the RGoB in 2020, supporting government-wide procurement at the national level and at the individual agency level. through an online platform. Government agencies are The report contains the result of the audit of the gov- already using the e-GP system, facilitating the pro- ernment’s annual financial statements and recom- curement during the COVID-19 pandemic. Further mendations to improve the economy, efficiency, and enhancements have been developed in Phase 3. effectiveness of the government. The latest RAA audit report is unqualified, and the RAA also conducts the 47. The government introduced flexibilities in the financial audits of the donor-assisted projects and Procurement Rules and Regulations (PRR) in March performance audits. 2020 and issued Simplified Procurement Rules Modern houses with reinforced cement concrete (RCC) walls and RCC roof structures. 39 Traditional houses with stone masonry walls and wooden roof. 40 21 SUMMARY OF ENTRY POINTS TIMELINE Financial Preparedness CRISIS RISK FINANCING • MoF and DLGDM to develop a Disaster Risk Financing and Insurance Strategy for risk retention and transfer mechanisms to reduce the financial impact of disasters, including health emergencies. Short Term • Revise the Operational Guidelines for Disaster Financing 2017 for more transparent and efficient budget allocation and utilization for DM, including clear procedures for accessing and deploying the General Reserves in emergencies. • Access a contingent line of credit through the Second Cat DDO under preparation, including a Climate Resilient Debt Clause (CRDC), which offers countries in an eligible event the option of deferring principal and/or interest repayments for up to two years. • Consider establishing a dedicated contingency fund for health emergency management. • Consider a sovereign risk transfer mechanism such as a Cat Bond and accessing international markets (for example, Green Bonds) in the long term after exhausting the use of concessional funding from International Development Association (IDA) and other donors and upon confirmation of its fiscal viability. • Pilot crop and livestock insurance schemes (ongoing). MoF and NLCS to improve property and land valuation profession and services for accurate Medium- disaster risk insurance (ongoing): Long Term • Establish the Property Valuation Division in the MoF. • Establish national valuation standards adhering to IVS and designate an agency as a regulatory body for property valuation. • Provide access to an educational program on valuation at postgraduate diploma and master’s levels. • Establish professional standards, code of conduct, accreditation, and oversight for valuation profession. PUBLIC FINANCIAL MANAGEMENT MoF to conduct a comprehensive assessment of the public procurement system for emergencies Short- using the internationally recognized Methodology for Assessing Procurement Systems tool. Medium Term Photo: ©wanderluster | istock.com 22 PRIMARY RESPONSE - AGGREGATED SCORE: 1.8 (NASCENT) COMPONENT SUBCOMPONENT INDICATOR MATURITY LEVEL 4. Primary 4.1 Public health 4.1.1 The public health system has the capacity and response systems resources to respond to key health threats and to function BASIC fully during crises 4.1.2 Government has capacity to detect and carry out surveillance of emergent and ongoing health threats in BASIC real time 4.2 Critical 4.2.1 Government maintains an inventory of critical assets infrastructure and infrastructure NASCENT 4.2.2 Systems are in place to ensure infrastructure operation, maintenance, and post-incident response BASIC across infrastructure types 4.3 Civil protection 4.3.1 Emergency management legislation and related and Emergency policy instruments exist, allowing the emergency BASIC Management management services to function at the national and sub- Systems national levels 4.3.2 Emergency service systems are well resourced, maintained, and sufficient in responding to major threats BASIC Public Health Systems (surveillance, health emergency management, health services provision, and zoonotic diseases) but needs 50. The 2021 Global Health Security (GHS) Index gave to strengthen the remaining, including financing, Bhutan an overall score of 39.8, ranking the coun- infection prevention and control, risk communica- try at 78 of 195 participating countries and second tion and community engagement (RCCE), human in the region after India. The country carried out a resources, and laboratories. Joint External Evaluation (JEE) to assess its technical core capacities to detect, assess, notify, and respond 51. The National Health Policy 2012 mandates the under the International Health Regulations (IHR) 2005 development and resourcing of national emergency in 2017. The JEE IHR assessment concluded that the preparedness and response plans for all levels RGoB’s commitment to building and maintaining core of health facilities for rapid and effective response capacities to address major public health events is during emergencies, disasters, epidemics, and out- evident.41 The GHS Index concluded that Bhutan has breaks. The DM Act 2013 mandates the MoH as room for improvements in the prevention, detection, responsible for delivering medical services, especially and response pillars. As per the 2023 IHR States “during and after the occurrence of natural and man- Parties Self-Assessment Annual Reporting (SPAR) on made disasters and emergencies.” The act prescribed the status of IHR capacity, Bhutan scored an average the development of a Health Emergency and Disaster of 63 percent in comparison to the regional average42 Contingency Plan (HEDCP) 2016, which defined insti- of 68 percent and the global average of 66 percent tutional mechanisms, roles and responsibilities, and in 2023.43 Bhutan scored exceptionally well (scores SOPs for the response, management of human and 80 percent or above) in 4 out of 15 IHR capacities financial resources, coordination, and communication 41 https://ghsindex.org/country/bhutan/. 42 WHO South-East Asia Region. Countries include Indonesia, Bangladesh, Myanmar, Maldives, Thailand, Sri Lanka, Bhutan, India, Nepal, and Timor-Leste. 43 WHO. 2023. Electronic IHR States Parties Self-Assessment Annual Reporting Tool. https://extranet.who.int/e-spar/#capacity-score. 23 in anticipation of a health emergency. The draft 13th • Communicable Diseases Division (CDD) respon- FYP commits to the accessibility and affordability sible for (a) infectious disease programs, (b) of essential medical items at all times. The Bhutan surveillance and epidemiology critical for man- National Action Plan for Health Security (2018–23), agement of zoonotic diseases and compliance the Bhutan One Health Strategic Plan (2018–23), and with the IHR following a One Health Approach, (c) the National Action Plan for Anti-microbial Resistance vector-borne and climate-sensitive diseases, and (2018–22) support preparedness from an integrated (d) vaccine-preventable diseases; animal-human-environment health perspective. • Health Promotion Division responsible for health education and advocacy; 52. The RGoB prepared the National Preparedness • Non-Communicable Diseases Division responsi- and Response Plan (NPRP) for Outbreak of ble for (a) lifestyle-related disease program, (b) Novel Coronavirus and the Bhutan Pandemic nutrition, (c) family health program, and (d) occu- Preparedness and Response Plan (BPPRP) 2020. pational health program; and The NPRP was developed to detect, control and • The RCDC which is elevated to the national ref- prevent, respond to, investigate, and recover from erence laboratory and oversees the Center for a COVID-19 outbreak in the country. It is aligned to Emerging Infectious Disease and the Food, Drug the HEDCP 2016. The comprehensive BPPRP 2020 and Environment Center. and its SOPs were developed as a whole-of-govern- ment measure for preparedness and response to a 54. Bhutan has a national laboratory system that is pandemic, updating the National Influenza Pandemic capable of detecting most priority diseases and Preparedness Plan 2011 for human health with the conducting core tests and has provisions for sam- learnings from the H1N1 2009 response. The MoH, in ple referral for tests not currently available in the coordination with the DLGDM and local governments, country. Bhutan operates three national laboratories, conducted simulations and mock drill exercises in namely the RCDC, the National Centre for Animal line with the BPPRP and related SOPs during the Health, and the National Food Testing Lab. While all COVID-19 pandemic, which were a results indicator national reference labs engage in external quality of the first Cat DDO. Although the roles of most of the assessment, this practice is neither obligatory nor agencies identified in the BPPRP are similar to that of strictly enforced.44 Additionally, there are identified the NDRCC, there is no mention of the NDRCC in the disease-specific international reference laboratories, BPPRP. While the lead agency may change depending and a referral system is in place for tests unavailable on the type of crisis, establishing different institutional within the country, supported by SOPs and memoran- systems for different disasters may hinder coordina- dums of understanding (MoUs). tion in the future. 55. The RGoB has implemented mechanisms to miti- 53. The Department of Public Health (DoPH) has been gate epidemic risks arising from the convergence reorganized to consolidate its mandate and to of animals, humans, and the environment; however, promote a people-centric, gender-sensitive, resil- there are limitations in human resources capac- ient, and sustainable health system in line with ity and collaboration with the environment sector. the IHR. The COVID-19 pandemic highlighted the The One Health Strategic Plan establishes a formal weaknesses of the health system, including the frag- framework for information and technology exchange mented approach to addressing health emergencies. between the human and animal health sectors. Its pri- Catalyzed by the Civil Service Reform Act 2022, the mary objective is the early detection of zoonotic dis- institutional transformation includes the establish- eases, facilitating rapid response and mitigation. To ment of oversee this initiative, the Inter-Ministerial Committee of One Health was established in 2019, with alternat- ing leadership from the Secretaries of the Ministries 44 Joint external evaluation of IHR core capacities of the Kingdom of Bhutan (2017), https://www.who.int/publications/i/item/ WHO-WHE-CPI-REP-2018.7. 24 of Health and Agriculture and Livestock. Although the under the Health Emergency Management Committee. One Health Secretariat Office has been established, However, due to the shortage in the health care work- the Secretariat is yet to be fully functional due to force, there is a need to strengthen human resources capacity issues, especially around human resources. capacity to conduct RCCE effectively, particularly While the Department of Environment and Climate during health emergencies. Change is involved, there are limitations in collabo- ration at the operational level within the environment 58. Despite an efficient health emergency response sector. While the Inter-Ministerial Committee of One service center, challenges persist for adequate pro- Health facilitates coordination across the three sec- vision due to constrained capacity and resources, tors, the data systems are not integrated to facilitate including a shortage of trained personnel, inadequate effective information sharing. Through support from equipment, and financial constraints. Bhutan’s Health the Pandemic Fund, the RGoB aims to strengthen the Help Center operates a vital toll-free service. This effectiveness of the surveillance systems by making central hub manages three critical applications: the the parallel systems in animal, human, and environ- Health Emergency Response Center System, AVAYA mental health interoperable. - Call Center, and Vehicles Tracking System, which employs global positioning system (GPS) to moni- 56. Bhutan’s Health Systems Transformation Note 2022 tor ambulance locations for nationwide emergency highlights human resources challenges for health responses. Despite its efficiency, the health care care service delivery, encompassing both quantity system faces significant challenges, including lim- and skill levels, including a shortage of specialized ited hospital capacity, inadequate equipment, and a and highly specialized health care professionals and shortage of trained personnel. There is also a press- general practitioners exacerbated by the emigra- ing need for a review of emergency health facilities’ tion trends in the country. The Human Resources for design and layout, given the shortage of equipment Health Master Plan (2013–2023) projects a require- and the aging ambulance fleet. Most of the ambu- ment for more than 10,000 staff members, as opposed lance fleet will require replacement in the near future; to 4,000 current staff. During COVID-19, the health however, financial constraints pose a significant chal- system faced severe challenges with a shortage of lenge. The single helicopter for emergency air ser- medical staff. Students from the medical university vice, provided by Druk Air through an MoU with the were on-boarded to support; however, efficient deliv- MoH, sometimes faces availability issues. To address ery of emergency services was challenging as they these systemic issues, an urgent assessment of refer- were new to the system. Prioritizing the development ral and district hospital capacity and integration into and retention of the remaining health care work- DMCPs is required. Additionally, systematic coordi- force is critical, especially in the context of ongoing nation between emergency medical responders and emigration trends. To address this gap, the Health other emergency response teams, such as search and Transformation Note has identified the need to for- rescue (SAR) teams and Desuups,45 is lacking, as are mulate a National Strategic Plan for Human Resources SOPs for rapid response teams, highlighting the need for Health. for improved coordination in the country’s emergency health care system. Further, heavy reliance on imports 57. Especially, technical capacity and human resources for medical equipment, coupled with the absence of for RCCE need to be strengthened. Mechanisms for in-country maintenance service providers, results in the coordination of RCCE functions and resources, delays in health care services when machines require including plans, SOPs, and formal government repair or maintenance. arrangements, are developed and being implemented at the national level. RCCE is integrated into the 59. Further, the suboptimal patient referral system HEDCP 2016, the Risk Communication Guideline for has elevated concerns regarding service quality, the Health Sector was published in 2019, and a core increased wait times, and heightened societal bur- team on Media & Risk Communication was established den, particularly during crises. The Health System Guardians of Peace or a volunteer group. 45 25 Transformation Note highlights that despite the abun- with ADB’s assistance, which may include redundant dance of anecdotal evidence of diverse patient chal- road networks. For critical infrastructure such as hos- lenges encountered during visits to referral hospitals, pitals, the energy backup system is insufficient as it there is an absence of a disaggregated patient record depends on diesel generators, which may not last for repository specifically for those referred to such facili- more than three hours. ties. Additionally, there is a lack of a systematic mech- anism designed to guarantee the timely provision of 62. Furthermore, there is a need to revise the 2018 appropriate treatment for referred patients. The inad- Building Code to strengthen the resilience of all equacies in the patient referral system exacerbate engineered buildings in the country against the vulnerabilities in crisis preparedness and response, as potential damage from fire, floods, landslides, and efficient and timely referrals are essential for effec- earthquakes. The current building code of Bhutan tively managing surges in health care demand during directly adopts the relevant Indian Standards from the emergencies. National Building Code of India, which are not tailored to the unique geophysical conditions and seismic risks Critical Infrastructure and Services of Bhutan. In line with the Building Regulation, revised in 2023 with technical assistance from the World 60. While an inventory of most of critical infrastruc- Bank, the code should be updated based on proba- tures46 is maintained by responsible government bilistic seismic hazard assessment and mapping and agencies, it does not function as a risk-based asset a detailed energy and water use model in the build- management system. Although the MoIT and local ing sector to promote a low-carbon and resilient built governments maintain inventories of infrastructure in environment in urban areas. Excel format, they are not used for risk-based oper- ations and maintenance (O&M) or for emergency 63. The MoIT plans to formulate the Construction and preparedness, response, and restoration. Sectoral Transport Act to enforce strict quality standards inventories lack comprehensiveness across the asset and ensure the resilience of critical infrastructure life cycle as they fail to capture infrastructure and services. Critical measures such as licensing engi- asset values, replacement costs, current conditions, neers and applying a construction quality compliance and maintenance history. Thus, there is a pressing mechanism by the Bhutan Construction and Transport need to introduce a life cycle cost approach for infra- Authority across all civil works in Bhutan cannot be structures and develop a risk-informed asset man- mandated without legislation in place. Therefore, the agement system for each critical infrastructure sector. country urgently needs to formulate the act as well as With support from Japan International Cooperation its R&R to establish the legal and regulatory founda- Agency (JICA), the NLCS is developing the National tions toward a green and resilient built environment. Spatial Data Infrastructure (NSDI), which could be uti- lized to map critical infrastructure assets. Transport 61. There are no backup systems for critical infra- 64. Bhutan’s roads,47 the primary mode of inland trans- structure in place. The NDMCP 2023 emphasizes port, are highly vulnerable to landslides and floods, the importance of ensuring the continuity of key pub- leaving many parts of the country disconnected lic services through various funding mechanisms. At during the monsoon. Many far-flung communities are present, there are no adequate backup infrastructure challenged with accessibility due to damaged roads systems in place, and there is no alternative source of disrupting transportation and limiting their access to water and energy or an alternative mode of transpor- health care, education, and economic opportunities. tation in the country. For the road infrastructure, the The only international airport that connects Bhutan DoST is preparing a Road Infrastructure Master Plan with neighboring countries beyond India is known to 46 Critical infrastructure typically refers to energy, transport, water, information and communication technology (ICT), and health. 47 Bhutan has over 18,000 km of motorable roads of various categories out of which about 2,800 km are national highways, 2,000 km are dzongkhag (district) roads, and over 11,000 km are farm roads. 26 be one of the most dangerous airports in the world, and resilience approach for critical assets. The making accessibility to Bhutan limited as there are assessment will inform key actions necessary to only a few pilots certified to land at the airport under ensure that the specific links and nodes within the visual meteorological flying conditions because of the freight network can rebound quickly in the event of difficult terrain and capacity of the airport. Although hazards (with specific attention to food supply and there are three domestic airports, domestic flight trade). operations are commonly affected by severe weather conditions, posing challenges in terms of access and 67. Although the DoST receives routine, periodic, and reliability. Hence, it is critical to strengthen the resil- monsoon restoration funds from the MoF as part ience of the airports in the country while planning for of the annual budget scheme, these funds do not future expansion of the aviation network. meet its entire financial requirements, necessitat- ing prioritization of O&M works based on budget 65. The DoST under the MoIT is conducting a landslide availability. In the 12th FYP, the DoST received a bud- risk assessment along national highways and plan- get for routine repair and maintenance of the roads ning to develop a road asset management system. It based on the category of road48 and approximately maintains a registry of primary and secondary national BTN 180 million for monsoon restoration. With bud- highways overseen by itself, while urban roads fall get constraints, the DoST’s regional offices prioritize under thromdes’ jurisdiction, and district roads are repair and maintenance works for road segments managed by respective districts. However, districts that are critical for maintaining traffic flow, using the do not have the capacity to maintain road registry. inhouse manpower and equipment. As the priority is Recognizing the necessity for a consolidated data to keep the roads accessible for transportation, the repository system covering all road infrastructure, dis- quality and design specifications of the roads may be cussions are ongoing to establish a centralized data- compromised. base and a road asset management system (RAMS) under the proposed Accelerating Transport and Trade 68. The DoST is piloting contracting of private contrac- Connectivity in Eastern South Asia (ACCESS) – Bhutan tors for routine restoration and immediate emer- project. The aim is to incorporate road and bridge con- gency construction and restoration of roads and ditions across all road categories, facilitating stream- bridges. For the first time in FY24, it has contracted lined data management and cohesive infrastructure the restoration work to a private contractor, covering planning and maintenance efforts. Further, it would one district (Dagana). The contractor will carry out be useful to incorporate resilience aspects into the all restoration works based on a work order from the proposed RAMS, for example, by including a network DoST. vulnerability assessment for the critical road corridors in Bhutan. Under the Strengthening Risk Information 69. Furthermore, the DoST is developing a road-sec- for Resilience Project, the DoST is mapping landslide tor-specific DMCP and considering developing a hot spots along the national highways and conduct- Road Development Fund. It has prepared a road-sec- ing landslide risk assessments in selected pilot areas. tor-specific DMCP and submitted a draft to the DLGDM The data sets are being incorporated into the Master for review. A review of the Road Sector Master Plan Plan for National Highways Connectivity, which is (2007–2027) underscores the critical need to estab- being formulated with assistance from the ADB. It is lish a Road Development Fund. However, there is recommended to pilot a landslide EWS along the pri- uncertainty in securing the necessary funding, espe- ority road networks based on the findings of the risk cially if it relies on the government reserve funds. assessment. 70. Bhutan’s only international airport, Paro 66. The MoIT could further conduct a freight network International Airport (PIA), faces operation and vulnerability assessment to determine the critical capacity limitations due to the airport’s geo- freight network and identify a suitable adaptation graphical characteristics and operation window 48 BTN 115,000/km for primary national roads, BTN 109,000/km for secondary national roads, and BTN 44,000/km for gewog roads 27 as flights operate under the Visually Flight Route. 40 and 60 percent of the NRW. Losses in revenue Furthermore, there are only 15 or 16 certified pilots affect funding for essential maintenance, repairs, and who can operate flights due to the dangerous geo- replacements. The physical losses, such as leakages, graphical characteristics of the airport. To improve may increase to drastic levels if thromdes move from the emergency preparedness capacity of the PIA, a the current intermittent supply to the planned full sup- Get Airport Ready for Disaster (GARD) program was ply (24 hours per day) without first addressing NRW. conducted by UNDP and WFP at PIA in December The Department of Infrastructure Development under 2023. Furthermore, there is a need to enhance avia- the MoIT manages a Water and Sanitation Information tion meteorological services for flight safety and effi- System; however, the assets are not geo-referenced, ciency of flight operations and monitoring aerodrome and the system is not used for risk-based O&M and weather conditions. Although human resource for business continuity planning. emergency preparedness is limited, including that for emergency helicopter services, it has been manage- Energy able to-date due to the size of the past disasters and there is no formal cooperation framework with other 72. Incorporating integrated geohazard assessment countries such as India. into the planning process through the revision of the Guidelines for Development of Hydropower Water Supply Projects is essential to ensure the resilience of hydropower systems. The current design guide- 71. Although with the highest per capita availability of lines emphasize the importance of detailed project water in the world, Bhutan still faces drinking and reports preparation that includes robust environmen- irrigation water shortages, which would be exacer- tal and social impact assessments, technical feasi- bated by climate change.49 Risks of local dry spells bility studies, and economic and financial viability at gewog level are expected to increase under cli- analyses. The Department of Energy mandates the mate change for large parts in the country, leading to Druk Green Power Corporation, which is responsible the drying of water sources that are already clearly for the design, construction, and O&M of all hydro- visible to date. Climate change exacerbates exist- power plants in Bhutan, adhere to guidelines aimed at ing challenges in drinking and irrigation water supply increasing the resilience of hydropower plants against especially during the winter season by causing more threats such as GLOFs, with the overarching goal of unpredictable rainfall, higher temperatures, and pro- protecting infrastructure amid climate change and longed droughts. These issues compound ongoing encouraging sustainable development. While these problems such as inefficient water resource manage- guidelines are directed toward safeguarding against ment, limited access to water, a lack of skilled work- climate-related threats, the planned revision to the ers, and insufficient water infrastructure. Constraints guidelines will incorporate comprehensive risk man- at the local government level include (a) inadequate agement strategies that address multi-hazard sce- technical capacities, leading to reliance on central narios, including earthquakes, floods, cloudbursts, agencies for technical support; (b) lack of adequate and landslides, which may be exacerbated by climate finances; and (c) the low water tariffs that do not cover change. The planned revision would also offer detailed operational cost recovery of water supply provision.50 SOPs for emergency preparedness and response to A nonrevenue water (NRW) assessment for Thimphu, ensure dam safety. Improving these aspects is crucial Gelephu, and Phuentsholing Thromdes conducted by for supporting the resilience of hydropower projects the World Bank in 2021 shows extreme NRW losses, in the context of climate change. ranging between 1,230 and 1,900 L of average water loss per house connection per day. The financial losses 73. The Bhutan Power Corporation Limited (BPCL) are a major component of NRW, ranging between has prepared a DMCP 2023–2028 and recognizes 49 Department of Water and UNDP. 2023. Assessment of Climate Risks on Water Resources for the National Adaptation Plan (NAP) in Bhutan. 50 World Bank. 2023. Bhutan Water Status Assessment Report. 28 the urgent need to conduct a seismic vulnerability Orbit [LEO]); resilience; and reliability of Bhutan’s assessment and retrofitting of transmission and internet connectivity. distribution (T&D) lines in Thimphu. It explicitly out- lines the role of the BPCL in identifying, assessing, 75. Bhutan’s critical government data and services and addressing emerging threats to critical T&D infra- remain vulnerable to natural disasters. There is a structure to ensure its resilience against existing and government data center (GDC) in the Thimphu Tech emerging risks, including climate change. The BPCL Park that stores all critical government data and a is responsible for providing technical advice on the backup data center in Bumthang; however, the secu- rehabilitation of T&D infrastructure, carrying out dam- rity and disaster recovery capabilities are extremely age assessments, prioritizing energy supply for critical weak. There is a need to strengthen the data infra- public facilities (for example, EOC and hospitals), and structure, under energy-efficient principles, to ensure preparing a post-disaster recovery/reconstruction minimal service interruptions and data loss in the event plan. During COVID-19, the BPCL prepared a contin- of natural disasters and other exogenous shocks. The gency plan for power supply reliability, which incor- proposed ACCESS project aims to enhance the GDC porates business continuity planning aspects. There and strengthen its disaster recovery capabilities, and is a need to conduct an exposure and vulnerability the RGoB is exploring additional options to strengthen assessment, a system and service impact assessment data infrastructure resilience. for scenario earthquakes, and recommendations for resilience-building actions. 76. GovTech plans to update the SOP for Telecommunication Services during Disasters Telecommunication and Digital Connectivity 2019 based on lessons learned from COVID-19, with technical assistance from the World Bank. The SOP 74. At present, both Bhutan’s internet gateways come mandates telecom service providers (TSPs), internet through the same Mumbai-Siliguri link, with no service providers, and BPCL to develop business con- redundancy in case of disruption; therefore, a third tinuity plans (BCPs) for disaster; however, there are gateway providing redundancy is essential for no such BCPs in place. It also mandates the TSPs to Bhutan’s internet connection robustness. Bhutan’s provide disaster response task force for immediately internet connectivity relies on connectivity in Siliguri, providing emergency communication and restoration India, making it a cause of concern as any issue in of communication services in affected areas. Initial the Siliguri region could disrupt connection within review findings include the need to assess the High Bhutan. Bhutan currently has two international inter- Frequency (HF)/ Single Sideband (SSB) network. In net gateways—one from Phuntsholing and the other parallel to this HF/SSB network, another radio com- from Gelephu. Both Phuentsholing and Gelephu inter- munication network, called Digital Mobile Radio TIER net gateways fall under the same Mumbai-Siliguri link, III (trunked) simulcast, should be set up for the whole which, if disrupted, will lead to a failure of internet country with a proper national frequency plan to be services in Bhutan. Bhutan faced severe internet con- shared with all the public agencies taking part in DM. nectivity issues due to damaged links in India during Also, a thorough review of the ICS to incorporate Cyclone Amphan, which damaged several power the necessary emergency management services is and internet cables in Kolkata. Even in 2023, Bhutan needed. Apart from the DM communications network, faced similar issues due to damaged links in India. there is a fault-finding system in the optical fiber net- Discussions have advanced for establishing the third work, called fiber monitoring system (FMS), operated international internet gateway connecting Gelephu, by BPCL; however, FMS and other systems defined Bhutan, to Agartala, India, and extending to Comilla, in the SOP have not been tested for major disasters. Bangladesh-Kuakata, Singapore, which is expected to provide a redundant international internet connectiv- 77. The network distribution system requires the intro- ity. However, further work is needed to assess tech- duction of redundancy to prepare for Type III disas- nical and policy options to improve redundancy, both ters. Within Bhutan, the internal transmission network cross-border and domestic (for example, alternative boasts redundancy to withstand small-scale disas- routes and new technologies, including Low Earth ters. In the current practice for a localized disaster, 29 mobile services may only be disrupted, and in such from the Ministry of Education and Skills Development cases, cellular units mounted on mobile trucks can (MoESD), there are approximately 569 schools be deployed to the affected areas. Bhutan Telecom across the country. Within these schools’ premises, maintains landline telephone lines and prioritizes there are approximately 3,500 buildings with a vari- maintaining the mobile network for voice and SMS ety of structural types including reinforced concrete, during emergencies. masonry, and light gauge steel-framed structures, among others. Notably, around 720 of these buildings 78. In addition, 81 out of 205 gewogs are provided with in 315 schools were constructed before the 2000s. the very small aperture terminal (VSAT)51 facilities Therefore, it is imperative to conduct structural vul- to strengthen emergency communication during nerability assessments to determine the structures disasters especially to remote locations. To ensure that require retrofitting for enhanced safety and all weather communication especially in remote loca- resilience. Such assessments shall focus on ensuring tions, it is recommended to undertake a feasibility that the buildings can withstand medium-level earth- study to identify different options such as satellite quakes and facilitate safe student evacuation during phones and VSAT. These measures should be supple- large seismic events. These assessments must also mented by nonstructural measures such as formation consider the risk of floods, wildfires, landslides, rock of communication services groups and their response falls, and GLOFs. Concurrently, the escalating disas- plans, incorporated into the planned revision of the ters driven by climate change highlight the necessity SOP for Telecommunication Services during Disasters for climate-resilient schools, especially in high-alti- 2019. tude regions prone to extreme weather. Addressing this requires a dual approach: constructing new Health Infrastructure schools with resilient designs and technologies to counter adverse seismic and climatic conditions and 79. There is an urgent need to conduct a detailed struc- comprehensively retrofitting, replacing, or relocating tural vulnerability assessment of hospitals and old or vulnerable school buildings with seismic and invest in retrofitting, especially those built before climate-resilient designs. This two-pronged strategy the introduction of the current seismic codes in is crucial to adapt to the challenges of climate change early 2000s. The Department of Clinical Services and and maintain uninterrupted education for all. National Emergency Services (NES) recognize that it is imperative to reassess the infrastructure planning Civil Protection and Emergency aspects in alignment with the operational functioning Management Systems needs of the emergency services provided. Although a vulnerability assessment of the national referral hos- 81. The absence of well-equipped national and local pital was conducted, the structural retrofitting mea- EOCs hinders the functioning and operation of cri- sures have not been implemented due to the lack of sis management. Although the DLGDM has desig- funding. Considering the financial constraints, it is nated an office space to be used as the NEOC with important to prioritize selected hospitals for retrofit- some equipment, it is far from adequate. There are ting and rehabilitation works, based on strategic loca- significant gaps related to ICT infrastructure, human tions and mapping carried out by the NES. resources, and the technical capacity of the DLGDM in operating the existing and required equipment. The Education DLGDM has prioritized the establishment of the NEOC infrastructure in the 13th FYP and secured a land for 80. More than half of the schools in the country urgently this purpose. Once established, the NEOC will serve require multi-hazard vulnerability assessments and as the command-and-control center and play a major retrofitting of vulnerable structures to protect chil- role in providing a central coordination point for emer- dren as they were constructed before the new seis- gency response and humanitarian assistance. Except mic codes were introduced. According to recent data Punakha Dzongkhag and Phuentsholing Thromde, all A two-way ground station that transmits and receives data from satellites, 51 30 local governments do not have EOCs but have des- maintenance and procurement of the consumables ignated an office space to be used as EOC when and tools. needed. There is a significant need to train the local government officials to operationalize the local EOCs. 84. While the NDRCC endorsed by the NDMA adopts the ICS, there is still a need to institutionalize it through 82. The government emergency services do not pos- capacity building. The RGoB has established IMT at sess specialized equipment and staff necessary the dzongkhag level. For systematic implementation to respond to severe disasters, especially in high of the ICS, there is an urgent need to train govern- altitudes and other situations where advanced SAR ment officials and responders on the ICS. is required. Some of the staff of the Royal Bhutan Police (RBP) and Desuung52 are trained in basic SAR. 85. Multiple emergency helplines could hinder prompt Desuung does not have any equipment and depends emergency services. Bhutan has different emer- on the equipment owned by other agencies. RBP has gency numbers for medical, fire, police, and electric- some basic SAR equipment, while the DoST under the ity. While each of these is well established and used MoIT has equipment for clearing roadblocks along by the public, having multiple helplines sometimes national highways in the event of a landslide with a leads to longer response times and inefficient coordi- track record of clearing roadblocks within a few days. nation between different emergency services, as one During the consultations, a need for more special- incident usually requires more than one emergency ized equipment was identified, including equipment service (for example, fire and medical services). A for rubble clearance, advanced scaffolding equip- technical assessment to understand the feasibility of ment, life detector, thermal imaging camera, diamond setting up a single emergency helpline, including the chainsaw, inflatable lighting tower, cordless hammer potential system overload, is recommended. drill, and high-altitude SAR equipment. There is a need for training for operating the existing and advanced 86. The absence of standard post-disaster damage and equipment including communications. Also, basic needs assessment (PDNA) methodologies and pro- level of emergency response capacity at local com- tocols poses a significant challenge to timely and munities is limited. effective disaster response and recovery efforts. Although the DLGDM is responsible for coordination 83. Although the DRCP defines the roles and responsi- as per the DM Act, local governments often lead and bility for the deployment and maintenance of SAR coordinate with line agencies with support from the equipment, it has not been operationalized in the DLGDM to conduct post-disaster damage assess- absence of SOPs. The NDRCC comprises eight func- ments. Except in the aftermath of the earthquakes in tional desks for planning, SAR, medical services, logis- 2009 and 2011, no formal PDNAs have been prepared tics, information, communication, transportation, and for the past disasters. There are no clear SOPs and international assistance. The lead agency for SAR is roles and responsibilities of key government agencies responsible for maintaining an inventory of SAR teams, such as the DLGDM, NCHM, and MoIT in PDNAs. This firefighters, and available equipment and conducting results in duplication of efforts, which was observed regular drills to handle and maintain SAR equipment. during the damage assessment of the Lhuntshe floods It is also responsible for maintaining a roster of SAR in July 2023. Furthermore, there is a need to establish for timely deployment. However, capabilities for quick a centralized database that enables quick access to deployment would also depend on the availability of reliable data and build capacity of relevant agencies trained responders, SOPs for timely procurement and for PDNAs. mobilization of equipment, and continuous training to operate the equipment. In addition, there is a need 87. A field manual titled ‘Post-Earthquake Safety to ensure budgetary allocations and plans for timely Evaluation of Buildings’ was developed by the 52 Desuung, meaning ’Guardians of Peace’, is an Integrated Training Program that fosters active citizenship and community engage- ment by instilling values of volunteerism, integrity, and civic responsibility among participants, contributing to their personal devel- opment and their role in nation-building efforts. 31 Applied Technology Council (ATC) in collaboration and effective response capabilities in the event of dis- with the MoIT; however, this manual is not endorsed ruptions to infrastructure in case of high-magnitude by the NDMA. An ATC-20-1 Bhutan Field Manual for disasters. Post-Earthquake Safety Evaluation of Buildings was published in 2014, and engineers from all districts, 90. The Forest and Nature Conservation R&R of 2023 thromdes, and agencies were trained to use this man- mandates the coordination between the DoFPS, ual accordingly. However, since this manual is not the Inter-Agency Forest Fire Coordination Group endorsed by the NDMA, there is no institutionalization (IAFFCG), and Community-Based Forest Fire of deploying engineers for post-earthquake safety Management Group (CBFFMG) for the prevention evaluation. Furthermore, no refresher training courses and suppression of forest fire. The revised R&R have been provided for this purpose. Therefore, there introduced a new fine and compensation system for is a critical need to build the capacity of the infrastruc- offenses related to forest fires expanding its scope ture engineers and develop SOPs to deploy qualified to State Land (not only State Reserved Forest Land) engineers from the public and private sectors to con- and setting the fine and restoration costs based on duct this assessment. the magnitude of the damage rather than a fixed amount. The IAFFCG and CBFFMG are responsible for 88. Although Bhutan is a member country, it has never immediately activating forest fire suppression, upon activated the International Charter on Space and receipt of the information of forest fire, in coordination Major Disasters to access satellite data for a rapid with the DoFPS. There are SOPs established for the post-disaster damage assessment. The charter IAFFCG, which have proven effective in coordinating is a worldwide collaboration, through which satellite responses during forest fire incidents. Similarly, there data are made available free of charge to help with exists a management plan for CBFFMG to guide its disaster relief and emergency response efforts. By response to forest fires. Both forest fire managers combining Earth observation assets from different and firefighters receive comprehensive training on fire space agencies, the RGoB could receive satellite data behavior, suppression strategies, and the utilization of of affected areas within a matter of hours or days, advanced equipment and fire analytics tools through depending on the type of the disaster and available capacity development programs. However, there is a satellite resources. A clear SOP for activating the shortage of firefighting equipment. charter needs to be in place in coordination between the DLGDM, NCHM, GovTech, and other relevant 91. Due to the challenges posed by geographical government agencies such as the MoIT. remoteness and limited accessibility, it is critical for Bhutan to enhance community-based disaster 89. Bhutan currently lacks established humanitarian risk management (CBDRM). The dzongkhag DMCPs staging areas nationwide. While the country has are developed using the CBDRM approach involving faced only moderate levels of disasters thus far, most the local leaders and district officers. However, there of its critical infrastructure has remained intact, ensur- is a need to engage local communities in formulating ing continuity of mobility and accessibility. However, these plans and conducting training and simulations to prepare for future disasters, Bhutan should conduct to strengthen CBDRM. a needs assessment to determine strategic locations for humanitarian staging areas, ensuring readiness 32 SUMMARY OF ENTRY POINTS TIMELINE Primary Response PUBLIC HEALTH SYSTEMS Strengthen emergency public health services through the following: Short- • MoH to update the HEDCP to streamline, integrate, and incorporate lessons learned from the Medium Term COVID-19 response and the BPPRP (ongoing). • MoH to strengthen diagnostic capabilities to cater to emerging needs such as health pandemics, including climate-induced health threats. • MoH to develop an HR management plan for health care workforce, including retention strategies. CRITICAL INFRASTRUCTURE AND SERVICES Strengthen the legal and regulatory foundations for mandating a resilient built environment Medium- (ongoing). Long Term • RGoB to formulate the National Construction and Surface Transport Act and its R&R to enforce strict quality standards and mandate the resilience of critical infrastructure services, including timely emergency preparedness and response planning. • MoIT to revise the Building Code 2018 to strengthen the regulatory framework for ensuring the resilience and safety of all buildings in the country. • MoENR to formulate the National Energy Policy and revise the Hydropower Dam Design Guidelines to promote integrated dam safety and geohazard management of hydropower plants. RGoB to develop geographic information system (GIS) based asset management systems for critical infrastructure to enable risk-based O&M planning and ensure service continuity, leveraging the Long NSDI and the Multi-hazard Risk DSS that are under development. Integrate resilience into the proposed Term RAMS under the ACCESS project. MoIT to develop and implement a retrofitting investment plan for critical buildings and infrastructure based on detailed multi-hazard vulnerability assessments. Long Term • Prioritize infrastructure assets built before the introduction of the new seismic codes in the early 2000s, including 315 schools. • Enhance the resilience and efficiency in water infrastructure, focusing on NRW losses through strategic investments and capacity-building measures. MOIT to conduct a freight network vulnerability assessment to determine the critical freight network and identify a suitable adaptation and resilience approach for critical assets. Short Term GovTech to conduct a comprehensive assessment focusing on digital connectivity resilience and Medium- recovery as well as data infrastructure resilience and recovery options, with a particular emphasis Long on exploring technical options such as LEO satellite technology to enhance international connectivity Term beyond existing links through India. DoAT to improve emergency preparedness and flight safety of PIA: Medium • DoAT to continue with GARD program and strengthen the Aircraft Accident and Incident Investigation Term Unit, and develop the National Airport Infrastructure Plan. • NCHM to enhance aviation met services and establish a Quality Management System in compliance with the International Civil Aviation Organization requirements. 33 SUMMARY OF ENTRY POINTS TIMELINE CIVIL PROTECTION AND EMERGENCY MANAGEMENT SYSTEM Strengthen emergency response systems across all sectors, with clear action plans and resource allocation. Medium Term • DLGDM to facilitate RBP and Desuups to strengthen SAR equipment, develop SOPs for its timely mobilization, and train the responders to build their capacity especially for severe and high-altitude disasters. • DLGDM to improve coordination for delivery of emergency services between health service providers and emergency responders such as RBP SAR teams, emergency medical responders, and Desuups to deliver essential services efficiently to the affected communities. • DLGDM, in coordination with local governments, to establish and operationalize EOCs at all government levels and institutionalize the ICS. • DLGDM to enhance community-based preparedness and response initiatives, including local training and engagement programs to build resilience. SOCIAL AND LIVELIHOOD SUPPORT - AGGREGATED SCORE: 0.8 (UNMET) COMPONENT SUBCOMPONENT INDICATOR MATURITY LEVEL 5. Social and 5.1 Coverage and 5.1.1 An adaptive social protection policy or strategy livelihood support scalability of social is in place with adequate financial commitments, protection clearly defined roles and responsibilities, and UNMET coordination between social protectionand DRM for crisis response. 5.1.2 Social protection programs and systems are in place, with adaptive design features to scale up UNMET and/or out timely and effectively during and after crisis events. 5.2 Food security and 5.2.1 The government has the capacity to safeguard livelihoods the availability of food through comprehensive UNMET policies/plans alongside effective monitoring and forecasting of food-related outcomes. 5.2.2 The government has the capacity to ensure access to food supplies through the BASIC operationalization of policies and coordination mechanisms. 5.3 Continued access to 5.3.1. Educational resources, infrastructure, and education learning outcomes are safeguarded during crises. BASIC 5.4 Crisis-induced 5.4.1 The needs of existing and newly internally displacement displaced populations are taken into consideration UNMET in planning and responses. 5.4.2 Refugees and asylum-seekers are included in crisis preparedness plans and responses. UNMET 34 Coverage and Scalability of Social programs for those needing treatment in India with Protection a subsistence allowance. The agriculture sector’s Highland Development Program has been rolled out 92. Social protection efforts in the country are frag- to protect and develop the livelihood of the high- mented and have low coverage, with limited capac- landers. Social insurance is primarily provided by the ity to respond to crises. Despite having several National Pension and Provident Fund, covering 20 noncontributory cash or in-kind transfer programs percent of the labor force.54 Labor market programs across all sectors in Bhutan, programs are small and promote skills development, entrepreneurship, and not designed to build resilience of the poor and vul- internships, benefiting various groups, including the nerable households or respond to shocks. The major- youth, rural residents, and differently abled individu- ity of social protection program expenditure goes to als. The Startup and Cottage and Small Industry (CSI) free health and education accounts. Excluding the Development Program supports startups and existing budget allocated to free health and education pro- CSIs and the youth. General subsidy programs include grams, social protection programs in Bhutan account subsidies for liquified petroleum gas (cooking fuel) for only 0.7 percent of the aggregate GDP, of which and electricity for vulnerable groups, with subsidies 0.4 percent is for social insurance (contributory targeted at rural and highland communities, benefit- pensions scheme and social security), 0.2 percent ing thousands of households. These programs aim to for social assistance, and the remaining 0.1 percent enhance social protection in Bhutan. for labor market programs.53 Due to fragmenta- tion, Bhutan needs a comprehensive National Social 94. Nevertheless, where the system fails, the people are Protection Policy for all, and the most significant chal- protected by the Kidu program under His Majesty’s lenge is coordinating social protection efforts. The Secretariat. The Kidu program helps in issues related ministries/agencies overseeing the various social pro- to land, education, health, and most recently income tection programs have to enhance programs manage- support for those affected by shocks. During the pan- ment data systems to support the multiple programs, demic, a National Resilience Fund was set up in 2020 as today program specific system cannot provide through the Druk Gyalpo’s Relief Kidu (DGRK) under immediate understanding of key monitoring indicators the Kidu program to provide income support and loan such as number of beneficiaries and level and fre- interest payment support for the most affected popu- quency of benefits, and most data systems are not lation.55 The RGoB promptly secured food stocks and interoperable. provided direct cash transfers to the affected popula- tion through the DGRK. 93. Bhutan has made significant strides in reducing poverty rates and implementing social protec- 95. The adaptability of social protection programs in tion measures across sectors, although its formal Bhutan is extremely low due to the lack of an inte- social protection system is still in its early stages. grated social protection registry, even though Notable initiatives in social assistance include con- all existing programs have individual databases. stitutional mandates for universal access to primary Currently, during shock responses, agencies and pro- education and equal access to tertiary education grams use civil registry (citizenship identity card), indi- based on merit. The National School Feed Program vidual program registries, and databases or conduct provides free meals to students; the Central School ad hoc registration. However, an integrated social Program offers uniforms, stationery, and meals to protection registry does not exist. Most social pro- boarding students; and the Early Childhood Care and tection programs have their own databases. During Development Centers support early childhood edu- the pandemic, the DGRK used ad hoc registration. All cation. In the health care sector, basic services are databases use the National Citizenship ID number as accessible to all citizens, with specialized referral a primary number for identification/registration. 53 ADB. 2019. “The Social Protection Indicator for Asia: Assessing Progress.” 54 NPPF. Annual Report 2019–2020. 55 https://royalkidu.bt/. 35 96. The National Social Protection Policy for all relies agriculture is challenged with labor shortage, fallow on an interoperable social protection system (ISPS) land and land fragmentation, human-wildlife conflict, built through the integration of data systems such subsistence farming, weak value chain and market- as National ID system, Civil Registration and an ing logistics, and poor private sector engagement, Integrated Social Protection Registry, allowing aggravated by climate change and natural disasters quick response during shocks. This system would (extreme weather events, floods, and landslides), soil also use other administrative databases to increase erosion, and pests and diseases. In addition, food transparency and governance, real time monitor- safety risks in food nutrition security and food trade ing and coordination, and delivery of benefits. The causing illness due to contaminated food is one the large coverage of banks system and connectivity most widespread health problems and an important also allows enhancing payment systems through pro- cause of reduced economic productivity. These chal- vision of direct electronic payments to individuals lenges pose issues on food availability, access, safety, bank accounts, hence generating financial inclusion and stability and require a significant increase in the in terms of usage of smartphones and applications quantity and quality of agricultural products, ensuring designed for better service provision for all. access to safe, healthy, and nutritious food. 97. There is also a critical need to integrate climate and 99. The importance of food security is underpinned in disaster resilience principles into the planned Social the Food Act 2005 and further elaborated in the Protection Policy, Social Protection Act, and Social Food and Nutrition Security (FNS) Policy 2023. The Protection R&R to mitigate the worst effects of a purpose of the Food Act is to protect human health and disaster on socially and economically vulnerable to regulate and facilitate the import, export, and trade households. By clearly outlining roles and objectives, of food in the country. During an emergency such as the planned National Social Protection Policy shall food shortage or a foodborne disease outbreak, the support the streamlining of social protection programs Food Act authorizes the National Food Quality and by addressing systemic fragmentation to ensure Safety Commission to identify the organizations or coherence in programming, financing, and service units responsible for acting, specify the actions to delivery, as well as clear institutional responsibilities. be taken, coordinate a national response, and keep The incorporation of the climate and disaster resil- records. The FNS Policy focuses on enhancing the ience principles in the supported by a reliable social production of high-value agricultural and livestock protection registry, enables a rapid response during products; enhancing the country’s self-sufficiency in disasters. The system would also promote greater selected essential food items; and strengthening the financial inclusion as any cash transfer provided to value chain, marketing, certification, and exports. The the population would happen through electronic dis- NDMCP designates the Food Corporation of Bhutan bursements and bank accounts using technology and Limited (FCBL) and the MoAL under the logistics process as mentioned above. The planned policy shall desk, with the core mandate to coordinate the supply include provisions for post-disaster assistance to of food, water, and equipment required for incident affected households and individuals. In addition, the operations and relief. policy shall address specific challenges that women face in accessing and receiving social support and While Bhutan has a conducive policy environment to 100. benefits by promoting greater financial inclusion and stimulate investment in ensuring food and nutrition the use of electronic disbursements. security, the country needs improved institutional capacity to implement policy into action. While the Food Security and Livelihoods RGoB approved the Food and Nutrition Security pol- icy in 2023 which outlined the major institutional and 98. By 2034, the agriculture sector will have to feed regulatory reforms needed to achieve improved nutri- about 837,300 people; however, several challenges tion outcomes, its effective implementation will be hamper Bhutan’s agrifood system to respond to guided by the Agri-Food Sector Strategy 2030 and growing domestic and export demand. Bhutan’s Agriculture Bill which are under ongoing review and drive toward food self-sufficiency and commercial expected to be finalized once the 13FYP is approved. 36 The sectoral objectives for the MoAL are ambitious at 21.2 percent. Only about 1 in 10 Bhutanese chil- in the FNS Policy 2023 and 13th FYP, and hence, its dren receives adequate mix of nutrients every day.59 Policy and Planning Department will need technical Malnutrition in children has been a long-standing support and institutional strengthening to effectively problem in Bhutan, resulting in stunting and leaving implement the proposed policy reforms. This includes children vulnerable to the triple burden of malnutri- setting up a robust monitoring and evaluation system tion: undernutrition, hidden hunger, and overweight. as well as clarifying the roles and responsibilities of To address these challenges, concerted efforts are the different stakeholders at the central and local under way including supply of fortified rice and oil levels. since 2015 to boarding schools. These have helped reduce diseases related to malnutrition. 101. The MoAL and the FCBL are the designated agencies for leading food security efforts under the Logistics Recognizing the high production risks in Bhutan, 103. Desk of the NDRCC in the NDMCP. The FCBL was operationalizing the agrometeorological (agromet) established in 1974 under a royal charter to centrally advisory services is one of the main priorities in the procure and distribute essential food items across the FNS Policy and the NAP. Bhutan’s high vulnerabil- country. It was later incorporated as a state-owned ity to various climate-related natural hazards, which enterprise under the Companies Act in 1992. The are exacerbated by climate change and the growing FCBL is mandated to always maintain national food impacts of pests and diseases, is a major concern for reserves, trade in essential food and fast-moving the productivity of the agriculture sector and mainly commodity goods, facilitate the export of agriculture for the production of high-value export crops such as produce, and support school feeding program in all the citrus and cardamon. The research and development dzongkhags. Currently, it operates through one cen- (R&D) on pest and disease prevention, management, tral warehouse located in Phuentsholing; four regional and monitoring and surveillance is underfunded and warehouses in Thimphu, Phuentsholing, Gelephu, and needs to be strengthened to address these issues. Samdrup Jongkhar; and 23 district warehouses in The DoA is currently working on operationalizing the all dzongkhags, except Gasa, to distribute food and Agromet Decision Support System (ADSS) under the essential items across the country.56 The MoAL relies World Bank-financed Strengthening Risk Information on FCBL as the corporate arm of the ministry to main- for Resilience project. The ADSS is expected to tain the food reserve required at strategic locations enable delivering agromet advisories such as when to and provides adequate support to enable FCBL to plan, when to apply fertilizers, when to irrigate, and carry out that function. FCBL is expected to procure so on in a timely manner to help farmers make farm- and store three basic food items (8,600 MT of rice, level decisions. The ADSS will also include a pests and 860 MT of oil, and 33 MT of pulses [dal]) sufficient diseases panel. At present, the advisories are being for three months to meet emergencies. The Bhutan piloted using the 3-day weather forecast issued by Food and Drug Authority also published a hygiene and the NCHM. The aim is to produce advisories based safety guideline for food handlers and food business on 5–7-day weather forecasts from the NCHM. At operators during the COVID-19 pandemic.57 present, challenges include issuing agromet advisory at the right time and right place through a multichan- There is improvement in the nutrition in school 102. nel dissemination mechanism due to limited technical feeding programs resulting in a decline in peripheral capacity and manpower. neuropathy and glossitis outbreaks in schools.58 The issue of FNS is spread across all sections of the Investment in improved resource management, 104. society. The results from the National Nutrition Survey area and crop-specific farm advisory and cli- 2015 show that child stunting prevalence still stands mate smart agriculture (CSA) technologies will 56 Food Corporation of Bhutan Limited. 2022. Annual Report. 57 https://www.bafra.gov.bt/wp-content/uploads/2022/08/Guideline-for-Safety-and-Hygiene-of-Food-Handlers-FBOS-2020.pdf. 58 https://kuenselonline.com/enhancing-nutrition-and-food-security-in-bhutan/. 59 https://kuenselonline.com/nutrition-education-critically-important/. 37 strengthen the resilience of agricultural systems credit risk in agribusiness and offer tailored agri-fi- at the farm level. Under the World Bank-financed nance products to farmers and SMEs. Innovations in Food Security and Agriculture Productivity Project, a post-harvest service delivery for value addition, such review of the challenges and opportunities in Bhutan’s as an integrated cold chain and air-freight export of agrifood systems identified the following actions to fresh or processed organic products, would encour- increase the resilience of farmers. First, investment in age investments from (international) aggregators and proper resource management (water, land, soil) would processors in sustainable value addition. Setting up counter the degradation of natural resources and public-private dialogue to identify suitable post-har- declines in productivity for fruit orchards and spice vest solutions could be used as entry points to orga- plantations. Examples include training to improve nize investment forums to generate interest from farmers’ knowledge and capacity of pruning tech- private players active in aggregation, processing, and niques, tree rejuvenation, and drip-irrigation to atten- export. uate alternative bearing of fruit plantations in core production zones. Second, better access to hybrid 106. One particular challenge of Bhutan’s mountainous seeds and improved farming practices such as higher and natural production systems is the high risk in seed replacement through extension services and agricultural production and finding suitable solu- awareness campaigns would promote the adoption of tions to attract more investment for resilience improved and high-yielding varieties adapted to the building. The level of credit to the agricultural sec- impacts of climate change by providing. These tech- tor is below 5 percent of the bank’s outstanding loan nologies will help to improve productivity, reduce pro- portfolio. This reflects the inherently risky nature of duction costs, overcome pest and disease issues and agricultural production in Bhutan because of the small emerging problems associated with climate change. production areas, seasonal rainfall, and human-wild- Third, by upgrading and digitizing public extension life conflict. As a result, interest rates for commercial and marketing information with soil fertility, pest inci- agricultural loans are above 12 percent, and because dence, and natural hazard information, the system can of their low financial literacy, farmers and agro-entre- provide area and crop-specific recommendations and preneurs are reluctant to seek finance and invest in advisories for risk management. Present investment quality upgrading and resilience building. In addition, plans for locally developed and scientifically-vetted farmers face large losses from natural disasters or CSA packages to investors can bring in public and pri- conflict from wildlife. While some initial pilots are ongo- vate finance for resilience building ing on crop insurance in Bhutan, the insurance (and financial market) for smallholder farmers is nascent 105. In addition, investment in animal and plant health in Bhutan, and mostly focused on compensation of and market information systems would build resil- losses.60 The effectiveness of an index-based insur- ience and sustainable value addition throughout ance remains to be seen given the small landholding, the agrifood system. By professionalizing existing fragmented farms, and large incidence of covariate informal farmer coordination into marketing-oriented shocks in Bhutan. However, if the early pilots prove institutions, collective action can promote resilient to be successful, an index-based crop insurance is production systems through product quality upgrad- a potential tool to address resilience in the longer ing and collaborative selling. Providing institutional term. In the shorter term, the country should consider strengthening support for improved governance, alternative financial incentives to promote resilience market linkages, and enhanced service access would building by offering concessional financing for invest- empower farmers to bargain better and be more ments in climate smart agriculture and improve farmer responsive to the market. Similarly, improving exist- financial and business skills to apply for and manage ing market information systems with market research agricultural finance. and trade regulations could empower farmers to make informed decisions. Over time, digital systems allow 107. Bhutan’s agricultural imports are dominated by financial institutions to analyze better financial and trade with India,61 increasing its dependency on 60 There are currently discussions ongoing in the National Council to introduce a national compensation policy for human-wildlife con- flicts and crop damages caused by natural calamities 61 FAO and the World Bank. 2012. “Bhutan Agricultural Sector Review.” 38 trade with external trade partners. This makes food items bought at a high price had to be sold in Bhutan vulnerable to export trade bans, such as the the market at a significant discount. Also, as private recent one on basmati rice and red onions imposed vendors managed to bring in food items, FCBL had by India. In such cases, after prices initially surge, challenges in selling its stock in a timely manner as Bhutan needs to apply for an exemption to meet its the market did not have the capacity to consume all demand. Bhutan’s high dependence on imported the goods purchased. Therefore, a significant amount foods was escalated during the lockdowns imposed of food, mainly rice and oil, was lost to infestation during the lean season as a response to the COVID-19 and damages. The Competition & Consumer Affairs pandemic. While the food prices increased drastically Authority was responsible for monitoring the market in town areas, the farmers in rural areas struggled to prices in line with its mandate. The authority mon- find markets and transport goods. Due to movement itored the price of the essential items in the mar- restrictions, FCBL struggled to export cabbage, pota- ket. The Department of Agricultural Marketing and toes, and ginger.62 Even after borders were opened, Cooperatives (DAMC) under the MoAL was monitor- transportation cost became very high, causing logis- ing and controlling the prices of fruits and vegetables, tical disruptions, adversely affecting the import of as there was no standard pricing for these food items. food items, resulting in a shortage. The government For fruits and vegetables imported from India, price responded by providing land and inputs to promote fixation was done jointly by the DAMC and FCBL. agricultural production. 110. Through the MoAL and FCBL, the government made Cold storage facilities in the country are reported 108. essential food items available for the public during to be underutilized by farmers in some districts the COVID-19 pandemic with the support of the while others find them sufficient. Such facilities Dzongkhag Administration and Desuung volunteers in Wangduephodrang, Trashigang, and Sarpang, and private wholesalers. The MoAL was responsible equipped with a capacity of 300 MT each, are for food and essential supplies during COVID-19 as reported to be underutilized due to the preference by per the National Influenza Pandemic Preparedness farmers to transport their produce to markets directly, and Response Plan (NIPPRP). During normal times, their unawareness of the benefits of cold storage, and FCBL does not keep the full amount of reserve as unaffordability of storage fees. Mainly traders use cold private vendors also keep large quantities of these storages for export and dairy products.63 However, items. As FCBL only caters to 15 percent for rice and as farmers and other agribusinesses become more oil and 20 percent for pulses during normal times, it aware of the benefits of cold storage, these issues are keeps less during normal times considering the prac- likely to subside. For example, farmers in Khaling in tical challenges related to damage and infestations. Trashigang find the cold storage highly useful, as they While stocks are maintained based on demand during can store perishable vegetables to be used during off normal times, FCBL steps up during emergencies seasons.64 such as pandemics. During the COVID-19 pandemic, although international borders were closed, trade of During COVID-19, controlling the price of food items 109. essential food items was continued to be facilitated was critical to making food accessible and afford- by relevant government, private, and corporate agen- able. During the pandemic, there was a significant cies. In addition to the FCBL facilities, the district gov- price escalation at the source for food items as India ernments and the Desuung volunteers supported the was also going through COVID-19-related impacts distribution of food items at the local levels. Private on food distribution. Regardless of price, the FCBL wholesalers supported in distribution efficiently. had to purchase a significant amount of food items to cater to the public needs. However, as COVID-19 111. Although domestic food production was enhanced subsided, and market prices slightly normalized, the during COVID-19, which contributed to increasing 62 https://kuenselonline.com/bhutans-food-security-status-exposed/. 63 https://thebhutanese.bt/underutilization-of-new-cold-storage-facilities-in-wangdue-and-sarpang/. 64 https://kuenselonline.com/cold-storage-facility-in-khaling-to-help-farmers/. 39 food sufficiency, the increase in production and 113. Although there is no registry to identify crisis-af- price stimuli led to the dumping of excess output fected and vulnerable population, there is a well-es- on local markets. In summer, when borders were still tablished administration system from the national closed, the increase in production and price stimuli to village levels. The DM officers are responsible for led to the dumping of excess output on local mar- identifying the persons affected by disasters and pro- kets. Therefore, there is a need to review the supply viding the required relief. During COVID-19, task forces chain of food import, export, and internal consump- were put in place to facilitate access to food items tion during emergencies, including pandemics. An for vulnerable population. For efficiency during future agriculture stimulus plan with a total budget of BTN emergencies, it is recommended to put in place a reg- 944 million was initiated to strengthen food secu- istry of vulnerable population. Nonetheless, given the rity through domestic production, creating employ- high levels of stunting and anemia, the lack of an early ment and income opportunities during COVID-19. 65 warning system for food and nutrition security poses This made the agricultural sector remarkably resilient a significant crisis risk to the country. Bhutan should during the pandemic, demonstrating growth, in con- therefore assess the feasibility and effectiveness of trast to the shrinking industry and services sectors. a dedicated monitoring and early warning system for Measures including distribution of 594 prefabricated food and nutrition security. The government could greenhouses to farmers, rehabilitation of 2,070 acres seek the support of the World Bank, which has devel- of land through sustainable land management, and oped strong expertise in establishing high frequency machine hiring services to 6,450 households cov- food and nutrition security risk monitoring. ering 14,785.97 acres resulted in achieving 84 per- cent self-sufficiency in vegetable production in the Continued Access to Education country. 66 114. Although the NDMCP outlines the critical role of 112. Lessons from the COVID-19 pandemic highlight the MoESD in ensuring education service conti- the need to enhance FCBL’s logistics and financial nuity before, during, and after disasters, lessons capacity and improve the coordination of supply from COVID-19 highlight the need for a data- responses. The RGoB requested FCBL to increase driven approach. Although the MoESD’s Education its food reserve from 3 months to 6 months and the EOC coordinates disaster response, logistical chal- number of essential items from 3 to 21 with one-time lenges persist such as changes in focal personnel, funding support from the RGoB. This resulted in the transportation hurdles, limited supplies, and delayed need for higher storage capacity. It used multipur- resources. Lessons from COVID-19 highlight the need pose halls and school auditoriums as storage facili- for improved situational analysis via real-time data ties to cater to the increased need for essential food collection, monitoring, and evaluation. This data- supply during COVID-19. The plan is to build a 1,300 driven approach will inform effective responses with MT capacity warehouse in Nganglam, 1,300 MT in locally tailored strategies, technology utilization, and Wangduephodrang, and 3,000 MT in Thimphu and targeted interventions to address dropout rates, expand the outlets in Lhuentse and Trashiyangtse by learning outcomes, and other issues. about 300–500 MT capacity. There is support from the WFP in this area and some budget allocated by 115. Although the MoESD, all schools, public colleges, RGoB; however, funding is not adequate to construct and private colleges have prepared DMCPs in these warehouses. Although District DMCPs were in 2016 as per the DM Act of 2013, the plans need place, there were coordination issues on the ground to be updated to address multi-hazard risks. The during COVID-19, highlighting the need for FCBL to MoESD prepared a DMCP in 2016 and integrated the put in place a DMCP with SOP for emergency oper- National Action Plan for School Earthquake Safety ations. FCBL also highlighted the need for an annual 2013, which was prepared following the 2009 and budget for implementing the DMCP. 2011 earthquakes that damaged a significant number of schools, with estimated losses of about BTN 735 https://kuenselonline.com/bhutans-food-security-status-exposed/. 65 https://businessbhutan.bt/bhutan-achieves-84-self-sufficiency-in-vegetable-production/. 66 40 million (approximately US$8.8 million). The MoESD and students while ensuring continuity in the learn- regulates all public and private schools, and disaster ing environment. The response plan was crafted fol- preparedness plans and programs are addressed in lowing government protocols. The university swiftly the DMCPs. There is an SOP as part of the DMCP of transitioned to online teaching via Moodle (Virtual the MoESD that covers the procurement of food and Learning Environment) and various other applications. the arrangement of water, sanitation, and hygiene To facilitate students during this transition, financial (WASH) facilities during emergencies. However, the support, especially for data charges, was provided current DMCPs primarily focus on earthquake hazards by the university. However, challenges persisted due and thus require updating to include other poten- to limited internet connectivity or access, particularly tial hazards, including disease outbreaks, floods, in remote areas, and the occasional lack of access landslides, and GLOF. The school DMCP needs to to devices such as computers or smartphones. The align with the DMCP of the MoESD and Nutrition in colleges have in place online infrastructure such Emergencies Program led by the MoH, as the WASH in as Moodle-based learning management system schools and institutions are critical investments in the (LMS) and online cloud file storage and sharing for well-being and education of the children. However, dissemination. securing financial resources for implementing the DMCPs remains a challenge. 118. The MoESD introduced the Sherig LMS as a lesson learned from COVID-19. The LMS is a web-based, 116. The MoESD and the Royal Education Council, with device-independent system designed to facilitate support from volunteer teachers, media, and the learning anytime and anywhere developed by the United Nations Children’s Fund, have developed MoESD as part of the Digital Flagship Programme. The and implemented an Education in Emergency (EiE) MoESD aims to enhance the ICT literacy for students, plan67 during the COVID-19 crisis. Phase I focused on teachers, education officers, and other supporting advocacy and awareness, development of EiE curric- staff to operationalize the LMS while diversifying ulum, development of guidelines for teachers, scaling the means of education (for example, broadcasting up of WASH practices, and provision of psychoso- through television) and providing a set of self-learn- cial support. The school curriculum was adapted into ing materials for those without internet access, which five key stages, from which 440 video lessons were is 14 percent of the population.68 developed within one and a half months and broad- cast through Bhutan Broadcasting Service. Teachers 119. Lessons learned from the COVID-19 pandemic and students used social media for interaction. The underscore the importance of a comprehensive MoESD also developed and provided self-instruc- approach to ensure continued learning for children, tional materials and radio lessons to support 17,000 particularly those with disabilities and hard-to- children in remote areas without television or reliable reach children,69 focusing on teacher support, mod- internet facilities. These initiatives aimed to provide ified curriculum, and diverse delivery mechanisms. education and psychosocial support to individuals While most children can be reached through a range and families affected by COVID-19, addressing issues of measures, specific targeting is required for those such as stress, fear, relationships, and few cases of who have not participated in any learning. Despite domestic violence and suicide attempts. efforts to address hard-to-reach children, there was a lack of support for children with disabilities. Inclusion 117. During the COVID-19 pandemic, the Royal of organizations working with people with disabilities University of Bhutan (RUB) developed and imple- in the development of school DMCPs and consulta- mented the Response Plan for COVID-19 to safe- tion with parents of children with disabilities could guard the safety and well-being of university staff enhance effectiveness in meeting their needs. 67 Education in Emergency (EiE) during COVID-19 Report, April 2021, Education Monitoring Division, Department of School Education, MoESD. 68 International Telecommunication Union (ITU) World Telecommunication/ICT Indicators Database. 69 Bhutan Case Study: Situation Analysis on the Effects of and Responses to COVID-19 on Education Sector in Asia. 41 Although disasters can significantly disrupt edu- 120. from Lugge Tsho located in eastern Lunana marked cation and increase dropout rates, especially for Bhutan’s first major GLOF event, affecting 91 house- out-of-school children, these are not addressed holds, out of which 12 houses were damaged,73 and 17 in the education sector’s DMCPs. The MoESD lives74 were lost along the Punakha-Wangdue valley. acknowledges the challenges associated with out- The floods in 2000 displaced more than 1,000 peo- of-school children and has planned strategic inter- ple and destroyed key roads between Bhutan and ventions to address them.70 A study on enrollment India. In 2009, Cyclone Aila affected approximately and retention strategies in Bhutan71 by the MoESD 65,000 people, and 12 lives were lost, followed by an indicates that inaccessibility due to distance, pov- earthquake in the same year.75 The most significant erty, inadequate facilities, shortage of teachers, and displacement occurred due to the 2011 earthquake, unemployment, among other factors, exacerbates displacing 20,000 people.76 The other notable inci- the issue of dropouts from education. Following the dents include a storm displacing about 2,900 people study and research, several plans and programs in 2015 and flash flood and landslides in the south- have been developed, such as strengthening the ern region in 2016, displacing 640 people. Cyclone current Continuing Education Programme, develop- Amphan of 2020 displaced about 84 people while a ing and deploying a network of School Management landslide displaced 36 people in 2020. In such cases, Committees, and enhancing the system for monitor- affected people are relocated to safer places where ing out-of-school children. However, the DMCPs of temporary camps are set up with provisions of food, the MoESD and schools/institutions do not explicitly water, and sanitation facilities. address this pertinent issue of out-of-school children. Although local governments have designated tem- 123. 121. The ongoing emigration severely affects the avail- porary relocation zones as precautionary mea- ability of teachers in the country, posing a signif- sures against potential GLOF events, these are icant risk to the continuity of quality education not formally documented in their DMCPs. The local during a crisis. According to the Annual Education governments are responsible for coordinating settle- Statistics 202372, the teacher attrition rate averaged ment activities and ensuring essential service delivery 3.8 percent, totaling 371 teachers who left the public among newly displaced communities with technical, school system. Reasons for departure include volun- financial, and relief assistance from the central gov- tary resignation, superannuation, and contract expi- ernment. The local communities are not made aware ration, with the highest number of resignations being of the temporary relocation zones. In addition, aware- voluntary. Notably, there was a significant increase in ness-raising programs on evacuation have been teacher resignations from 7.7 percent in 2022 to 15.5 limited. percent in 2023. To address the critical shortage of qualified teachers, the MoESD is rehiring experienced 124. The NDMCP and local DMCPs do not recognize and and qualified educators who had previously resigned. make specific provisions for catering to protracted Crisis-Induced Displacement displacement and the conditions of displaced pop- ulations, including special needs and vulnerabili- 122. Internal displacement is not a prevailing issue for ties, place and conditions of living, and the potential Bhutan; however, community displacements had unequal treatment or access to assistance opportuni- occurred in the past due to earthquake, floods, and ties that may derive from those conditions. There is no GLOF. The 1994 GLOF incident due to the partial burst legislative provision for the government to construct 70 GNHC (Gross National Happiness Commission). 2016. Bhutan Vulnerability Baseline Assessment. 71 http://www.education.gov.bt/wp-content/uploads/2021/09/Bhutan_Enrolment_retention_strategies.pdf. 72 http://www.education.gov.bt/wp-content/uploads/2023/11/AES-2023_Final.pdf 73 https://lib.icimod.org/record/21972/files/c_attachment_130_1055.pdf. 74 NCHM. Compendium of Climate and Hydrological Extremes in Bhutan since 1968 from Kuensel. nchm.gov.bt. 75 UNDP. 2010. Bhutan Recovery and Reconstruction Project Progress Report 2010. 76 Internal Displacement Monitoring Center (accessed February 16, 2024), https://data.humdata.org/dataset/idmc-idp-data-btn. 42 temporary housing or provide financial assistance for on the affected community due to recurrent flood protracted displacement. disaster in the southern part of the country, there is no standardized template for documenting displace- 125. There is no standardized system to record and ment related to disasters. Data collection and main- monitor crisis-induced displacement at the country tenance occur at the local government level, with the level. Although there is a practice for collecting data central agency relying on this information. SUMMARY OF ENTRY POINTS TIMELINE Social and Livelihood Support COVERAGE AND SCALABILITY OF SOCIAL PROTECTION Improve social protection coverage and strengthen governance with well-established data and information. Long Term • The Cabinet Secretariat in collaboration with Ministry of Industry, Commerce and Employment (MoICE) and other relevant ministries to formulate the Social Protection Policy, Social Protection Act, and Social Protection R&R to protect, prevent and promote resilience and mitigate vulnerabilities in order to promote economic growth of those population and mitigate the worst effects of a disaster on socially and economically vulnerable households. • The Cabinet Secretariat in collaboration with the MoICE to develop an expanded data system strategy that contains information on population pre and post shock and relies on an ISPS encompassing Medium Term interoperable and dynamic social registries and interoperable beneficiary registries, benefiting from robust National Identification Systems. FOOD SECURITY AND LIVELIHOODS MoAL to develop its DMCP and finalize the Agri-Food Sector Strategy 2030 as strategies for improving food security and sustainable livelihoods, particularly in disaster-prone areas, to reduce the Medium Term impact on the most vulnerable. • Finalize the Agri-Food Sector Strategy 2030 to guide the implementation of the FNS Policy 2023 and sectoral programs in the 13th FYP. • Develop adequate storage and distribution infrastructure and facilities and capacity building of MoAL and FCBL. • Review the supply chain of food import, export, and internal consumption during emergencies and use the to-be-developed national farm registry to identify and track vulnerable farm population. • Enhance resilience in agricultural systems at the farm level with the operationalization of agromet advisories to manage risks from extreme weather conditions, pests, and diseases. • Promote investment in modern technologies, improved agronomic knowledge, climate-smart agriculture, market information systems and animal and plant health systems would further strengthen agricultural resilience at farm level and sustainable value addition throughout the agrifood value chain. • Assess the need and feasibility of an early warning system for food and nutrition security, seeking guidance of the World Bank’s expertise in establishing high frequency food and nutrition security risk monitoring The MoAL to finalize the Agriculture Bill to simplify some of the legal and regulatory issues to the modernization and resilience building in the agricultural sector. Medium Term MoAL to de-risk the agrifood sector by reviewing and assessing the potential and cost-effectiveness of national agricultural insurance products Long Term Based on the ongoing pilots to introduce index-based insurance in Bhutan, assess its potential and cost- effectiveness of national agricultural insurance products in the longer term. In the short term, consider alternative risk mitigation measures such as financial incentives to invest in climate smart agriculture technologies and build farmers financial literacy. 43 SUMMARY OF ENTRY POINTS TIMELINE CONTINUED ACCESS TO EDUCATION MoESD to review and update existing DMCPs for education sector addressing multi-hazard risks. Sustain and expand the use of technology in delivering school education curriculum and services in times Short Term of crisis. CRISIS-INDUCED DISPLACEMENT RGoB to develop a policy and strengthen governance structure for providing financial support on housing reconstruction in case of protracted displacement, raise public awareness about GLOF EWS Short Term and the location of temporary relocation zones, and develop a system for recording and tracking crisis- induced displacement. Photo: ©Andrew Peacock | istock.com 44 APPENDICES 45 5 Photo: ©mtcurado | istock.com APPENDIX 1: SUMMARY OF CHARACTERISTICS ASSOCIATED WITH EACH MATURITY LEVEL IN THE CPGA MATURITY LEVEL KEY CHARACTERISTICS • Comprehensive efforts have been made to promote preparedness with few gaps. ADVANCED • Preparedness is prioritized and mainstreamed in key government documents and plans. • A (relatively) advanced plan, system, or institution is in place. While it may still have some shortfalls, it covers all planning and operational aspects needed to ensure holistic uptake of preparedness activities. • Clear and dedicated efforts related to preparedness have been promoted. Solid gains have been made, though efforts to promote preparedness may not be fully comprehensive. GOOD • Balance of priorities still favor response. • Has well-thought-through and dedicated plans, systems, or institutions in place. Most areas are well resourced and have decent capacity, though not across the board. • Decent efforts have been made to promote preparedness, with a vision laid out in relevant policy or planning documents. Progress in implementation may be uneven or disjointed. BASIC • Priority is still often given to ex post response over preparedness. • Has a plan, system, or institution in place. However, it may face shortfalls in capacity or resourcing. Design features are often good, though inadequate to have meaningful effect. • Some (or minimal) efforts have been made to promote ex ante preparedness, though typically with little ability to follow through. NASCENT • Ex post relief and response are typically the focus of government intervention. • May have a plan, system, or institution in place though it does not address crisis preparedness as a priority. System suffers from resource and capacity constraints, resulting in limited implementation/ operationalization. • Nothing (or very little) has been done to address aspects of preparedness or the country has little to no UNMET ability to promote preparedness activities. • No plans, systems, or institutions in place and little to no ability to follow through/operationalize. Note: For full details on distinctions between maturity levels and grading criteria, see CPGA Approach Note. 46 APPENDIX 2: CPGA DATA COLLECTION PROCESS In the first stage of the assessment, a targeted search of gray and academic literature as well as websites of inter- national and other organizations focused on Bhutan’s crisis preparedness was conducted. The review of gray and published literature focused specifically on the five pillars of crisis preparedness as defined within the CPGA: legal and institutional foundations, understanding and monitoring of risks, financial preparedness, primary response systems, and social and livelihood support. Findings from the desk-based review were supplemented by qualitative data gathered through consultations with relevant agencies in Bhutan including government, corporate, and private entities and World Bank task teams and experts who hold critical engagements in the five areas of crisis preparedness. Consultations were conducted through semi-structured interviews, based on high-level questions followed by section-specific questions. The World Bank team consulted with the Ministries of (a) Education and Skills Development, (b) Industry Commerce and Employment, (c) Infrastructure and Transport, (d)Agriculture and Livestock, (e) Home Affairs, (f) Energy and Natural Resources, (g) Health, and (h) Finance and other autonomous agencies including the GovTech, NCHM, RUB, RBP, Royal Bhutan Army, Gyalsuung, Desuung, Druk Green Power Corporation, BPCL, Tashi InfoComm Limited, Bhutan Telecom Limited, and Royal Insurance Corporation of Bhutan Limited (RICBL). Key GPs/themes have included Agriculture; Education; Environment and Natural Resources; Finance, Competitiveness and Innovation; Fragility, Conflict, and Violence; Health, Nutrition and Population; Poverty; Social Protection and Jobs; and Urban, Disaster Risk, Resilience and Land. The inputs received during consultations and interviews were integrated into the framework, and preexisting infor- mation was revised based on the resulting insights. Consultations were an important methodological addition to the overall process, as they provided key insights into preparedness issues that were not addressed by the secondary liter- ature reviewed. For a full set of methodological guidelines, refer to the CPGA Approach Note. 47 APPENDIX 3: LIST OF STAKEHOLDERS CONSULTED NR NAME DESIGNATION DIVISION/DEPT ORGANIZATION 1 Mr. Dorji Wangchuk Chief Program Officer School Liaison and Coordination MoESD Division/Department of School 2 Ms. Pema Wangmo Assistant Program Officer Education 3 Ms. Kinzang Dechen Assistant Program Officer 4 Mr. Thuenzang Deputy Executive Engineer Division of Telecom and Space GovTech Choephel 5 Mr. Thakur Timsina Assistant Information and Communication Technology Officer (ICTO) 6 Mr. Migmar Tshering Assistant ICTO 7 Mr. Sonam Dorji Assistant ICTO Digital Surface Transformation 8 Mr. Tashi Loday Assistant Finance Officer Finance and Investment Druk Green Department Power Corporation 9 Ms. Sonam Pelden Senior Environment Officer Druk Green Consultancy Limited 10 Mr. Suman Pradhan Specialist Department of Labor MoICE 11 Mr. Karma Dupchu Director Department of Infrastructure MoIT Development (DoID) 12 Ms. Tshering Choden Executive Engineer Water and Sanitation Division/DoID 13 Mr. Tandin Dorji Executive Architect Sustainable Resilient Building Division/Department of Human Settlement 14 Ms. Bhawana Chhetri Chief Urban Planner Geomatics/Logistics/Department of Human Settlement 15 Mr. Jigme Wangdi Deputy Executive Engineer Specialized Engineering and Innotech Division/Department of Infrastructure Development 16 Mr. Karchung Executive Engineer DoST 17 Ms. Sonam Lhamo Engineer 18 Ms. Gyem Lham Assistant Airport Manager Airport Management Division/ Department of Air Transport (DoAT) 19 Mr. Nado Rinchen Sr. Administration Officer Airport Management Division, DoAT MoIT 20 Mr. Sonam Phuntsho Safety Manager Airport Management Division, DoAT MoIT 48 NR NAME DESIGNATION DIVISION/DEPT ORGANIZATION 21 Mr. Dorji Khandu Head Airport Emergency and Security MoIT Division, DoAT 22 Ms. Chencho Om Airport Emergency and Airport Emergency and Security MoIT Security Officer Division, DoAT 23 Mr. Samten Dorji Deputy Chief Flight Safety Flight Safety Division/Bhutan Civil MoIT Officer Aviation Authority (BCAA) 24 Mr. Sangay Wangdi Chief Air Navigation Service Division, Bhutan Civil Aviation Authority (BCAA) 25 Mr. Karma Gayley Air Navigation Service Officer Air Navigation Service Division, BCAA 26 Mr. Karma Phuntsho Assistant Engineer Regulatory and Complaince Division /Bhutan Construction and Transport Authority (BCTA) 27 Ms. Nima Lhamu Engineer Safety Standard Division /BCTA 28 Mr. Pema Rabgay Deputy Chief Program Officer Policy and Planning Division 29 Mr. Leki Choda Program Officer Policy and Planning Division MoAL 30 Mr. Ngawang Senior Agriculture Officer DOA 31 Mr. Wangdi Tshering Superintendent of Police , Special Police Branch RBP Lieutenant Colonel 32 Mr. Tshering Dakpa Colonel Fire and Rescue Service Division 33 Mr. Dechen Dorji Lieutenant Colonel Army HQ Royal Bhutan Army 34 Mr. Yeshey Gjamtsho Officer-in-Charge Army Disaster Response Cell 35 Mr. Sonam Dorji Lieutenant Colonel National Service Core Working Gyalsung Group 36 Mr. Lodey Tshering Lieutenant Colonel 37 Mr. Ngedup Tshering Desuup Desuung HQ 38 Mr. Ugyen Fire Focal/Desuup 39 Mr. Dophu Deputy Chief ICTO Demography and Information MoHA Division, Department of Civil Registration and Census (DCRC) 40 Mr. Nidup Tshering Electrical Engineer Department of Culture and Dzongkha Development 41 Ms. Karma Tshering Registrar Office of the Vice Chancellor RUB 42 Mr. Pema Dorji Senior Student Service Officer Sydent Service Division 43 Mr. Mani Gyeltshen Chief HR Department 44 Mr. Shamsher General Manager Corporate Strategy Division BPCL Pradhan 45 Ms. Ku Karma Executive Engineer 46 Mr. Kado Zangpo Director DLGDM MoHA 49 NR NAME DESIGNATION DIVISION/DEPT ORGANIZATION 47 Mr. Yang Dorji Chief Program Officer Preparedness and Response MoHA Division, DLGDM 48 Mr. Yeshi Namgyel Deputy Chief Program Officer 49 Mr. Choki Tashi Deputy Chief Program Officer 50 Mr. Thinley Norbu Chief Program Officer Risk Prevention and Reduction Division, DLGDM 51 Mr. Sonam Tshewang GIS officer 52 Ms. Tenzin Choden Senior Program Officer 53 Mr. Chimi Dorji Senior Program Officer 54 Ms. Dawa Chhoedron Chief Engineer Power System and Market MoENR Division/Department of Energy 55 Ms. Tashi Choeden Executive Engineer Energy and Strategy Division/ Department of Energy 56 Mr. Jamyang Chief Hydrology and Water Resources NCHM Phuntsho Division 57 Mr. Chimi Namgyel Senior Statistical Officer Hydrology and Water Resources Services Division 58 Ms. Sonam lhamo Principal Hydro/Meteorological Cryosphere Division Officer 59 Mr. Sangay Tshering Meteorological Officer Meteorological Service Division 60 Mr. Sherub Interim Head Bhutan Power System Operator BPCL 61 Mr. Ngawang Tenzin Senior Manager 62 Mr. Jigme Dorji Senior Engineer 63 Mr. Ugyen Tshering Senior Programme Officer Health Emergencies Programme/ MoH DoPH 64 Ms. Choki Dolkar Assistant Program Officer Health Emergencies Programme, CDD/DoPH 65 Ms. Nityam Nepal Senior Geologist Geohazard Division/DGM MoENR 66 Ms. Phuntsho Choden Geologist 67 Ms. Rinzin Wangmo Geologist 68 Ms. Kuenzang Lham Chief Planning Officer Social Cluster Division MoF Sangay Designation 69 Ms. Kezang Lhamo Chief Budget Officer Economic Cluster Division 70 Ms. Yeshey Seldon Commissioner Customs/ Department of Revenue and Customs 71 Mr. Sonam Wangchuk Deputy Collector 72 Mr. Chonga Dorji Engineer General Insurance Division RICBL 73 Mr. Binod Kumar Engineer Engineering Valuation Division Pradhan 74 Mr. Sonam Tashi Deputy General Manager Corporate Strategy Office Bhutan Telecom 75 Mr. Ganga R Sharma General Manager TashiCell 50 APPENDIX 4: DETAILED ENTRY POINTS Box 4.1. Entry Points for Legal and Institutional Framework for Crisis Preparedness The RGoB to amend the DM Act and the DM R&R to address the implementation bottlenecks and define the scope more explicitly to include climate change impacts and disease outbreaks and be read as all-encompassing except for the specifically excluded ones. • Define the conditions for activating NDMA and DMCs to enable an objective activation. • Redefine Type I–III disasters to incorporate the scale of loss and damage to make an objective declaration. • Link the declaration of Type I–III disasters with the level of financial and technical assistance from the central government to the affected local governments. • Mandate the adoption of NDRCC and DRCP for all hazard types. • Review and amend the DM R&R to elaborate provisions on the clauses in the DM Act, with clear definition of responsibilities and processes. The MoHA to update and NDMA to endorse the updated NDRCC to clarify mandates and responsibilities of agencies and institute one standard ICS for all hazard types. • Finalize the NDRCC with identification of lead agencies for each desk and obtain endorsement by the NDMA, following which, clear SOPs should be developed for each desk for efficient and effective coordination during emergencies. • Review and discuss the provisions in the DRCP and the NIPPRP to understand whether it would be beneficial to have one national coordination response document that can be customized for any kind of emergencies, including emergencies related to health and food security, or to have both these documents as they are now. • Raise awareness about the NDRCC and DRCP among the Cabinet, local governments, ministries, and other relevant agencies to ensure the implementation. The DLGDM to formulate SOPs for IMTF and revamp it based on the Civil Service Reform Act. • Revamp the IMTF with clear terms of reference based on the organizational reforms in accordance with the Civil Service Reform Act of 2022. • Develop SOPs for the operationalization of the IMTF as per the DM Act, including an M&E framework to evaluate the implementation and performance of the IMTF for improvement. The RGoB to prepare or update sectoral and local government DMCPs based on up-to-date multi-hazard risk information. • DLGDM to develop a guideline and establish a mechanism for M&E of DMCPs. • Sectoral agencies and local governments to update or develop the DMCPs based on multi-hazard risk information. • Local governments to integrate CBDRM including measures targeted toward vulnerable groups. The RGoB to strengthen technical capacity of DRM agencies with adequate financial resources to implement the DM Act and related policies and guidelines. • Key technical and scientific agencies (for example, DLGDM, NCHM, MoIT, MoH, and MoAL) relevant to DRM to conduct an HR assessment and prepare an HR plan based on the findings. • DLGDM to strengthen the capacity of DMCs through training on fundamentals of DRM and simulations based on DMCPs. 51 Box 4.2. Entry Points for Understanding and Monitoring Risks and EWS Conduct a nationwide multi-hazard risk assessment, develop a DSS, and strengthen governance on data management. • MoIT, NCHM, and DGM to build their capacity in conducting multi-hazard risk assessments with a focus on earthquake, floods, and landslides, especially on probabilistic assessments and DLGDM in conducting socioeconomic vulnerability assessments. • NLCS to amend the Geo-information Policy 2018 and DLGDM to develop Risk Information Guidelines to set geospatial and non-geospatial data standards and define the roles and responsibilities of relevant government agencies in generating and regularly updating risk information to avoid the duplication of efforts and lack of coordination and information sharing. • DLGDM to develop a DSS to share risk information and enable risk-informed planning and development in critical sectors. • DLGDM to operationalize the Disaster Management Information System, either stand-alone or interfaced with the DSS to keep (a) updated record of disasters for future reference, (b) inventory of resources to be utilized during emergency response, and (c) updated information on vulnerable population. • RGoB to institutionalize the Technical Working Group for multi-hazard risk assessment established under the Strengthening Risk Information for Resilience project to sustain coordination among relevant agencies for generating and improving risk information. Enhance the capacity of NCHM for medium-term weather forecasting, impact-based forecasting, flood forecasting, and sector-specific services. • RGoB to allocate budget to establish the new NCHM HQ, National Weather and Flood Warning Center that is crucial to modernize the observation, ICT, and forecasting infrastructure. • NCHM to develop probabilistic forecasting, impact-based forecasting, now-casting systems, sector-based forecasts, monthly and seasonal climate forecasts, and climate projection and downscaling and initiate hydrological and weather forecast verification. • NCHM to expand GLOF EWS where required and upgrade 10 stations to reduce the current time lag of more than 2 hours between the time of monitoring and when data are available on the system for warning. • NCHM to train forecasting staff to establish a solid baseline of meteorological knowledge and understanding as per the World Meteorological Organization (WMO) standard for the ‘Basic Instruction Package in Meteorology’. • NCHM to develop tailored services to meet the needs of the critical user sectors such as DM, water resources, hydropower production, and agriculture. Develop a near real-time forest fire surveillance system, leveraging satellite technologies, to identify and suppress forest fires in a timely manner. • DoFPS to establish a nationwide forest fire surveillance system leveraging satellite images by integrating a forest fire danger rating system, a forest fire simulation/prediction model, and a forest fire monitoring system which is currently hosted by ICIMOD. Enhance seismic and landslide hazard mapping and pilot a landslide EWS. • DGM to conduct land deformation mapping and refine susceptibility and inventory maps. • DGM and DoST to establish a formal data-sharing mechanism for inventory and any relevant studies on landslides. • DGM to install a dense network of seismometers and establish an earthquake EWS in collaboration with the Government of India and other Himalayan states. • DGM and DoST to pilot a comprehensive landslide EWS that can be deployed for critical landslide hot spots, incorporating real-time monitoring, event detection, data analysis, and early warning dissemination. Link the EWS to a communication infrastructure to disseminate warnings. • DLGDM to conduct regular training and drills for at-risk communities. Strengthen monitoring of communicable and vector-borne diseases. • RCDC to build its capacity in terms of both laboratory facilities and human resources. • MoH to enhance cross-border coordination with India for sharing information and mitigation measures during breakout of vector-borne diseases. 52 Box 4.2. Entry Points for Understanding and Monitoring Risks and EWS (cont.) Enhance the MoAL’s capacity to develop an EWS for food security. • MoAL to develop a systematic baseline and pre-crisis food security information for conducting regular food security monitoring, needs assessment, and rapid food security assessments for food assistance. • MoAL to conduct a feasibility study on setting up a food security information and monitoring system for early warning, learning from regional experiences such as Nepal. Enhance risk communication through the development of an online DSS to disseminate multi-hazard risk information and raise public awareness through disaster simulations based on updated local DMCPs. • DLGDM to develop a framework to foster collaboration among relevant agencies to develop an accessible platform for sharing vital risk information. • DLGDM to enhance public awareness of impending disasters with scientific data of potential impacts in the country from the socioeconomic and safety perspectives by updating local DMCPs and conducting simulations. Box 4.3. Entry Points for Financial Preparedness Develop a disaster risk financing strategy to adopt a risk-layered approach to disaster risk financing. • MoF and DLGDM to review the Operational Guidelines for Disaster Financing 2017 based on lessons learned from COVID-19 and develop relevant SOPs to streamline the procedures for accessing the General Reserves and include guidelines to access emergency funding and resources from development partners. • MoH to finalize a health emergency financing strategy and consider establishing a dedicated contingency fund for health emergency management. • MoIT to conduct a cost-benefit analysis of insuring critical public infrastructure to inform decision-making. • MoF to access a contingent line of credit through the second Cat DDO under preparation. • MoF to consider a sovereign risk transfer mechanism such as a Cat Bond and accessing international markets (for example, Green Bonds) in the long term after exhausting the use of concessional funding from IDA and other donors and upon confirmation of its fiscal viability. Conduct a comprehensive assessment of the public procurement system for emergencies. • MoF to conduct a comprehensive assessment of the public procurement system using the universally recognized Methodology for Assessing Procurement Systems tool, which aims to identify the strengths and remaining gaps and provide recommendations for reforms and effective M&E of procurement performance. Improve property and land valuation profession and services for accurate disaster risk insurance. • MoF to establish the Property Valuation Division. • MoF to establish national valuation standards adhering to IVS. • Designate MoF or NLCS as a regulatory body for property valuation. • RGoB to develop an educational program at postgraduate diploma and master’s level in partnership with a leading international academic institution. • MoF to establish professional standards, code of conduct, accreditation, and oversight for valuation profession. 53 Box 4.4. Entry Points for Primary Response Public Health Systems Strengthen pandemic preparedness and response capability considering recent pandemic and climate change impact. • MoH to review and update the HEDCP to streamline, integrate, and incorporate lessons learned from the COVID-19 response and the BPPRP. • MoH to train medical staff for managing large-scale disasters especially focusing on triage. Prioritize capacity building of the health care workforce and address issues related to the workforce shortage. • MoH to expand recruitment efforts, increase training opportunities, and implement retention strategies to ensure sufficient and skilled health care workforce. • MoF to allocate budget for training and capacity building of public health professionals, particularly in the areas of disease surveillance, outbreak investigation, and emergency response. Strengthen diagnostic capabilities to cater to emerging needs. • MoH to ensure that laboratory facilities are well equipped and staffed to handle disease diagnostics efficiently. • MoH to strengthen the national diagnostic system through enforcing third-party quality assessments. • MoH to improve the international referral system for diagnostics not available in the country through developing links with reputed international diagnostic laboratories. Improve coordination for delivery of health services during emergency. • MoH and DLGDM to strengthen coordination between health service providers and emergency responders such as RBP SAR teams, emergency medical responders, and Desuups to deliver essential health services efficiently to the affected communities. • RGoB to improve resource mobilization through improved coordination and response mechanisms between MoH and local governments and between DRM and health professionals. Finalize a health emergency financing strategy to diversify financing sources and address regional disparities. • MoF to consider establishing a dedicated health emergency fund and diversify health care financing sources, including integrating the private sector into the health care system. • MoH to address regional disparities in health care expenditure for a better and equitable resource allocation. Critical Infrastructure Strengthen the legal and regulatory foundations for a resilient built environment and adopt national standards for business continuity. • MoIT to formulate the National Construction and Surface Transport Act and its R&R to mandate strict quality standards and ensure the resilience of critical infrastructure services, including timely emergency preparedness and response planning. • MoIT to revise the Building Code 2018 to strengthen the regulatory framework for ensuring the resilience and safety of all buildings in the country. Develop GIS-based asset management systems for critical infrastructure to enable risk-based O&M planning and ensure service continuity. • MoIT to develop a GIS-based asset management system for critical infrastructure to enable risk-informed decision- making for replacement and retrofitting, risk-based O&M planning, and business continuity planning, leveraging the NSDI being developed by NLCS and the multi-hazard risk DSS being developed by DLGDM. • MoIT and BPCL to develop service continuity plans and SOPs for critical infrastructure services such as energy, water supply, and transport. Develop and allocate budgets to implement a retrofitting investment plan for critical infrastructure that were constructed before 2000s based on detailed multi-hazard vulnerability assessments. • MoIT to conduct detailed vulnerability assessment of critical infrastructure such as hospitals and schools. • MoIT to prioritize retrofitting of schools and hospitals that were built before the introduction of the current seismic codes in early 2000s employing Life Cycle Cost Analysis methods. Incorporate integrated geohazard assessment and management into hydropower planning, designs, construction, and O&M. • MoENR to formulate the National Energy Policy and revise the Hydropower Dam Design Guidelines to mandate integrated dam safety and geohazard management of hydropower plants. 54 Box 4.4. Entry Points for Primary Response (cont.) Enhance the resilience and efficiency in water infrastructure, focusing on NRW losses through strategic investments and capacity-building measures. • MoIT to prioritize investments in NRW reduction as a matter of urgency over investments in additional water production capacity. • MoIT to implement a water metering infrastructure in the distribution network for diagnostic and monitoring (bulk water meters, pressure gauges, and data network systems). • MoIT to restructure the secondary and tertiary distribution network to implement equitable water distribution. • MoF and Royal Civil Service Commission (RCSC) to allocate staff and financial resources for implementing and sustaining NRW management. • MoIT to train and develop technical capacity of local governments to reduce reliance on central agencies. Strengthen the resilience of T&D infrastructure based on a multi-hazard exposure and vulnerability assessment. • BPCL to conduct an exposure and vulnerability assessment of T&D lines, along with a system and service impact assessment for scenario earthquakes and recommendations for structural and nonstructural risk reduction measures. Enhance resilience and emergency preparedness across digital connectivity and data infrastructure. • GovTech to conduct a comprehensive assessment focusing on digital connectivity resilience and recovery, with a particular emphasis on exploring technical options such as LEO satellite technology to enhance international connectivity beyond existing links through India. • GovTech to conduct a comprehensive assessment of data infrastructure resilience and recovery options, focusing on vulnerabilities, future-plans, and technical solutions under ‘energy-efficient’ principles. • GovTech to develop plans to strengthen disaster recovery capabilities of the GDC, exploring innovative solutions like geographic split with neighboring data centers. • GovTech to explore implementation of a hybrid cloud strategy for nonsensitive data storage in public clouds, requiring a detailed analysis of cloud disaster recovery and BCPs. • GovTech to review and strengthen the existing SOPs for emergency telecommunications based on lessons learned from COVID-19. • GovTech to undertake a detailed study to assess communication-related challenges during various situations, especially in remote areas, and identify strategies to ensure all-weather communications. Civil Protection and Emergency Management Systems Strengthen SAR equipment, develop SOPs for its timely mobilization, and train the responders to build their capacity for severe and high-altitude disasters. • DLGDM to facilitate the preparation of critical life-saving equipment inventory and a gap assessment of critical equipment for collapsed structure SAR, high-altitude SAR, and structural firefighting by MoH, RBP, and Desuung; emergency communication by GovTech; and forest firefighting by MoAL. • DLGDM to facilitate the development of a framework for collaboration among the primary responders during a mega disaster including specific SOP for mobilizing and sharing of equipment among RBP, Royal Bhutan Army, and Dessung. • RGoB to strengthen capacity of first responders for SAR and firefighting. • DLGDM to facilitate the development of an SOP for deployment of equipment from different government agencies and private stakeholders along with the agreements wherever needed. Establish and operationalize EOCs at all levels and institutionalize ICS. • DLGDM to develop and implement an investment plan for strengthening EOC systems at the national, dzongkhag, and thromde levels and allocate budgets to establish and equip EOCs. • DLGDM to develop and implement an HR and capacity-building plan for various positions for operating EOCs in times of Type III disasters. • Local governments to establish IMT at the thromde and gewog levels. • DLGDM to conduct disaster simulations and regularly train government officials and responders on ICS. Standardize and institutionalize PDNA methodologies and protocols. • DLGDM to establish uniform PDNA forms and establish the SOPs defining the roles and responsibilities of local governments and line agencies. 55 Box 4.4. Entry Points for Primary Response (cont.) DLGDM to create awareness on the post-earthquake assessment procedure and train engineers and other technical personnels, both from public and private sectors. • DLGDM to establish a centralized database, preferably a cloud-based system, for data collection to enable analysis for effective disaster response. • DLGDM, NCHM, and GovTech to establish an SOP for activating the International Charter on Space and Major Disasters to access satellite data for a rapid PDNA. • Conduct a needs assessment for establishing humanitarian staging areas. • MoIT to conduct a comprehensive needs assessment to identify high-risk areas prone to disasters or humanitarian crises to identify strategic locations across the country. • MoIT to determine whether an existing structure can be used or whether there is a need to retrofit or construct a new structure. • MoAL with relevant agencies including MoIT to develop SOPs outlining the setup, management, and operation of humanitarian staging areas, including logistics, communication, security, coordination, and resource management. • MoAL with relevant agencies to develop an action plan to equip it with the necessary resources and sustainability. • DLGDM with relevant agencies including MoAL, Ministry of Foreign Affairs and External Trade, and primary responding agencies to establish partnerships between development partners, main responders, and relevant lead agencies as per the NDMCP; conduct simulations; and train personnel who will manage and operate these staging areas. Box 4.5. Entry Points for Social and Livelihood Support Expand coverage and improve scalability of social protection. • The Cabinet Secretariat and MoICE to formulate the Social Protection Policy, Social Protection Act, and Social Protection R&R to build resilience and mitigate the worst effects of a disaster on socially and economically vulnerable households. • MoICE to define clear roles and responsibilities for social protection mechanisms in the country and promote better coordination with the DLGDM. • MoICE to develop an expanded data system strategy that contains information on population pre and post shock and relies on an ISPS encompassing interoperable and dynamic social registries and interoperable beneficiary registries, benefiting from robust National Identification Systems. • In coordination with NCHM and DLGDM, MoICE to develop a GIS database of residents at the community level and, if possible, at the household level, with details of vulnerable population and their special needs. Ensure that the database is linked to existing relevant databases and a mechanism for regularly updating it. • MoICE to predefine financing sources and triggers as well as add provisions in guidelines of social protection systems to allow for the temporary scale-up of programs to respond to shocks based on ISPS. Review the food supply chain and identify vulnerabilities. • MoAL to review the supply chain of food import, export, local production, and internal consumption during emergencies. • MoAL to utilize the to-be-developed national farm registry to identify and track vulnerable farm population. Enhance food security preparedness through capacity building of MoAL and FCBL with plans, SOPs, and adequate storage and distribution infrastructure and facilities in place. • MoAL and FCBL to develop a comprehensive DMCP with a focus on coordinated food security preparedness and response. • MoAL to develop SOPs and conduct drills for the operationalization of the DMCPs. • MoAL to assess the feasibility, management roles, and responsibilities of an effective cold storage chain for preserving food supplies during emergencies, as well as the need for additional storage and distribution facilities during emergencies. • MoAL to assess the need for a dedicated financial reserve for FCBL earmarked to emergency response. • MoAL to develop an SOP for food distribution during emergencies to clearly delineate the roles and responsibilities of local governments. Enhance resilience in agricultural systems at the farm level with the operationalization of agromet advisories to manage risks from extreme weather conditions, climate change adaptation, and pests and diseases. • MoAL to operationalize the ADSS and build the capacity of the NCHM to generate medium-term weather forecasts. • MoAL to assess the feasibility to integrate the ADSS into other digital farmer support tools. 56 Box 4.5. Entry Points for Social and Livelihood Support (cont.) Review and update existing DMCPs for education sector to address multi-hazard risks. • MoESD to review and update the DMCPs for the education sector in collaboration with relevant organizations, communities, and caregivers, reflecting real-time needs assessment and data-centric approach, continued learning, diverse delivery methods, and targeted strategies for children with disabilities and hard-to-reach populations. • MoESD and schools to conduct regular tabletop exercises based on DMCPs and make necessary adjustments to ensure safety of schools. Expand the use of technology in delivering EiE. • MoESD to leverage and expand the scope of Sherig LMS, Moodle, and other open-source technologies to enhance ICT integration in the regular curriculum and broaden online learning. • MoESD to establish and/or upgrade ICT infrastructure to ensure a seamless online teaching and learning environment and bridge the digital divide in access to education. • MoESD to develop teachers’ digital literacy for online learning and integrate remote delivery (for example, mobile learning) into teacher’s training programs. • MoESD to diversify the means of providing EiE considering that 14 percent of the population has no internet access. • MoESD to train teachers to provide first response and targeted support for students facing specific challenges including mental health and disabilities. Develop a policy for providing housing reconstruction support in case of protracted displacement, raise public awareness about GLOF EWS and the location of temporary relocation zones, and develop a monitoring system for recording and tracking crisis-induced displacement. • Local governments to document the designated temporary relocation zones in local DMCPs and disseminate the information to the public. • NCHM and DLGDM to design and deliver an awareness-raising program about GLOF EWS and conduct disaster simulations to ensure timely evacuation of local communities in GLOF-prone areas. • MoHA to include a provision in the DM Act to provide financial assistance for housing reconstruction in case of protracted displacement triggered by a large-scale disaster such as earthquake and GLOF. • DLGDM to develop a Disaster Management Information System to record and monitor the displaced population. • DLGDM, in coordination with local governments, to develop SOPs for the management of crisis-induced displacement. 57