National Integrated Water Resources Management Plan 2016: National Environment Commission Royal Government of Bhutan
National Integrated Water Resources Management Plan 2016: National Environment Commission Royal Government of Bhutan
National Integrated Water Resources Management Plan 2016: National Environment Commission Royal Government of Bhutan
Supported by:
EGIS France
Royal Society for the Protection of Nature and
Bhutan Water Partnership
BHU-8623 EGIS/ RSPN/ BhWP
DISCLAIMER
International boundaries shown on maps are not necessarily authoritative.
i
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
FOREWORD
For the Royal Government and the people of Bhutan, water is one of the most important natural resources. It
provides livelihood, it is vital to developing the economy, and it sustains the natural environment. Under the
ise a d fa sighted leade ship of ou Mo a h, o i ed ith ou people s e e e e a d espe t fo atu e,
we have treasured water and we have been blessed with an abundant natural supply.
At the scale of river basins and even districts, there appears to be no pressing water scarcity. But this is an
average picture, and it does not reflect large seasonal variations and differences in water availability at the local
level. Even as large amounts of water are flowing in the deep gorges, it is generally inaccessible for many
dispersed communities living on the mountain slopes. They can only access water from small springs and rivulets.
There is also increasing pressure on the quantity and quality of our water resources due to rapid socio-economic
development, the effects of which are further exacerbated by climate change. Concern over the availability of
water for drinking and agriculture is growing as many spring water sources are drying up, and there is minimal
flow in winter for hydropower generation.
Therefore, it is important that all stakeholders understand the common issues and take a coordinated approach
to a agi g Bhuta s ate esou es. The eed fo su h an approach was recognized by the Water Act of 2011
and the Water Regulation of 2014. The 11th FYP mandated the NEC Secretariat to prepare a National Integrated
Water Resource Management Plan (NIWRMP).
The overall goal of the Plan is to establish the framework and priorities for the implementation of integrated
water resources management in Bhutan. The Plan presented here is based on a comprehensive assessment of
the current situation and future prospects in light of growing water demands and the threat from climate
change. The Plan establishes the principles and mechanisms under which agencies involved in the water sector,
together with river basin stakeholders, can coordinate their respective plans and activities, as well as collectively
monitor progress toward attainment of IWRM objectives.
Therefore, the Plan serves as a foundation for water resource stakeholders to work together to achieve a
o o goal of e su i g Bhuta s ate se u it . Wate se u it , as e plai ed i the Pla , is the apa it to
provide sufficient and sustainable quantity and quality of water for all types of water needs and services, and to
protect people from water-related disasters. Indicators of water security have been formulated for five key
dimensions of water security: rural household water security, urban water security, economic water security,
environmental water security, and security from adverse effects of climate change and natural disasters. These
indicators are to be used as a means to coordinate agency plans, and to assess progress in achieving the
objectives of IWRM.
We are confident that the management principles and mechanisms established through this Plan will serve as a
rallying point, and be used as practical guide for our collective endeavor toward water security. We hope that
the key result areas and performance indicators for water security that have been formulated here will be taken
on board by the Gross National Happiness Commission, and that these become integrated into the national and
local planning and budgeting processes under the current 11th five-year plan and in the subsequent FYPs.
Yeshey Dorji
Minister In-charge and Vice Chairman
National Environment Commission
ii
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
ACKNOWLEGEMENT
In compliance with the Water Act and the 11th FYP, the Water Resources Coordination Division (WRCD), and
the National Environment Commission Secretariat is pleased to present the National Integrated Water
Resources Management Plan. It is the result of concerted efforts by different parties. Without their contribution
this document would not have materialized.
WRCD likes to thank particularly the Asian Development Bank and Japan Fund for Poverty Reduction for the
financial and technical support extended to the Integrated Water Resources Management (IWRM) program
being pursued in Bhutan. Special thanks go to the National Environment Commission for guidance and approval
of the plan, and the Ministry of Finance for facilitating the technical assistance from the Asian Development
Bank.
WRCD is greatly indebted to the Technical Advisory Committee that was established to guide the development
of the IWRM program and elaboration of the National Integrated Water Resources Management Plan
(NIWRMP). The Technical Advisory Committee consisted of representatives from the following agencies: Map
Production Division, National Land Commission; Department of Public Health, Ministry of Health; Renewable
Natural Resources Engineering Division, Department of Agriculture, Ministry of Agriculture and Forestry;
Watershed Management Division, Ministry of Agriculture and Forestry; Gross National Happiness Commission;
Water and Sanitation Division, Ministry of Works and Human Settlements; Department of Disaster Management,
Ministry of Housing and Cultural Affairs; Department of Local Governance, Ministry of Housing and Cultural
Affairs; Flood Engineering Management Division, Ministry of Works and Human Settlement; Climate Change
Division, National Environment Committee; Bhutan Chamber of Commerce and Industries; Department of
Hydropower and Power Systems; Department of Hydro-Met Services; Department of Geology and Mines,
Ministry of Economic Affairs; Tarayana Foundation; Royal Society for the Protection of Nature.
WRCD is also grateful to the Technical Assistance team of EGIS (France) in joint venture with the Royal Society
for the Protection of Nature and the Bhutan Water Partnership, who has put a lot of effort into the realization
of the NIWRMP.
iii
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
Acronyms
iv
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
v
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
GLOSSARY
2. Optimizing supply
3. Managing demand
5. Establishing policy
6. Inter-sectoral approach
IWRM pillars The three IWRM pillars relate to: (i) enabling environment (suitable policies,
strategies, and legislation); (ii) capable institutional framework; and (iii)
management instruments.
1
Global Water Partnership: http://www.gwp.org/The-Challenge/What-is-IWRM/
vi
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
Each spiral describes the cycle of (1) recognizing and identifying the issues at
stake; (2) conceptualizing the mitigating strategies; (3) coordination and
planning of activities; (4) implementing, monitoring and evaluation. Each cycle
typically takes about 5 years, and thus corresponds well with the five-year
planning practice of the GNHC in Bhutan. Conclusions from the evaluation of
previous round of activities will lead to renewal or adjustment of plans in the
next cycle.
• Or:
A river basin is the portion of land drained by a river and its tributaries. It
encompasses the entire land surface dissected and drained by many streams
and creeks that flow downhill into one another, and eventually into the river
and exiting the area at one point, see figure below.
2 https://docs.google.com/a/universitywatersectorpartnership.org
vii
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
•
• Schematic presentation of a river basin
The Dublin principles for IWRM strategies are based on the four principles formulated at a water
IWRM conference in Dublin in 1992 (referred to as the Dublin Principles of IWRM) and
presented to world leaders at the World Summit in Rio de Janeiro in 1992.
The four principles are: (i) water is finite and vulnerable resource; (ii) need for
a participatory approach in water management; (iii) the role of women is
stressed; and (iv) water has social and economic value. Later, a fifth principle
was added: i teg atio of the th ee E s: e o o i effi ie – social equity
– environmental sustainability.
Water availability The hydrologic capacity of a water source (surface water body, groundwater,
municipal water) to sustain additional water demands after considering other
current water uses and water conditions (GEMI, 2012).4
In the context of this NIWRMP, the water availability in an area has been
determined as runoff generated from rainfall within the concerned area
augmented with the inflow from upstream areas after deducting consumption.
Hydrological water Any water entering a system (via precipitation), must be transferred into either
balance evaporation, surface runoff (eventually reaching the channel and leaving in the
form of river discharge), or stored in the ground as groundwater and on the
3 UN-Water: http://www.unwater.org/topics/water-security/en
4 http://www.iadclexicon.org/water-availability/
viii
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
Water accounting The systematic study of the current status and future trends in water supply,
demand, accessibility and use within a given spatial domain.6
Wetlands "Wetland" is a generic term for all the different kinds of wet habitats--implying
that it is land that is wet for some period of time, but not necessarily
permanently wet.7
There are various definitions which usually highlight three aspects: (i) the
hydrological regime (depth of flooding or soil saturation; (ii) the type of plant
growth (hydrophytes); and (iii) soil development (hydric soils). Not all definitions
include deep permanent lakes and/or glaciers.
Wetlands are areas where water covers the soil, or is present either at or near
the surface of the soil all year or for varying periods of time during the year,
including during the growing season. Water saturation (hydrology) largely
determines how the soil develops and the types of plant and animal
communities living in and on the soil. Wetlands may support both aquatic and
terrestrial species. The prolonged presence of water creates conditions that
favour the growth of specially adapted plants (hydrophytes) and promote the
development of characteristic wetland (hydric) soils. 8
Wetlands vary widely because of regional and local differences in soils,
topography, climate, hydrology, water chemistry, vegetation and other factors,
including human disturbance.
Inland wetlands, like in Bhutan, are non-tidal and can comprise floodplains along
rivers and streams; isolated depressions surrounded by dry land along the
margins of lakes and ponds, and in other low-lying areas where the groundwater
intercepts the soil surface or where precipitation sufficiently saturates the soil
(vernal pools and bogs); marshes and wet meadows dominated by herbaceous
plants, swamps dominated by shrubs, and wooded swamps dominated by trees.
5 https://en.wikipedia.org/wiki/Water_balance
6 Godfrey, J. and K. Chalmers (editors). Water Accounting: International Approaches to Policy and Decision-making. Edward
Elgar Publishing, 2012
7 https://water.usgs.gov/nwsum/WSP2425/definitions.html
8 http://www.epa.gov/wetlands/what-wetland
ix
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
EXECUTIVE SUMMARY
The National Integrated Water Resources Management Plan (NIWRMP) has been prepared on the basis of
climatic, hydrological, and social/institutional assessments as shown in the simplified diagram below.
Climate Change
Assessment
Capacity building
Hydrological
Assessment
Physical,
institutional and Stakeholder
NIWRMP
socio-economic participation
realities
• There are reports about water shortage and scarcity at the local community level. However, at the
larger scale of the river basins (and districts), there are no pressing water problems evident at the
present time, suggesting that the issues can be addressed with improved access. The challenge is to
coordinate and integrate water management plans. This is addressed in the Water Act and
Regulations, along with the formation of River Basin Committees. The necessity of maintaining
sustainability of water utilization in the future has been elaborated further in the NIWRMP - specifying
priority steps to be taken. The NIWRMP is not a macro-economic analysis of best development
alternatives.
• However, water-related problems are felt acutely at the local level by dispersed communities living
on mountain slopes where they draw water from small (sometimes distant) sources and rivulets. Their
problems cannot be addressed at a central or even basin level, and should be addressed at the level
of villages and Gewogs. To that effect, the Gewogs should start collecting information about the
fragmented water sources: their location, type and name, utilization, quantities of abstraction, but
also their significance for religion, culture and ecology.
Climate change is expected to result in higher temperatures and more erratic and intensive rainfall during the
monsoon – when water is already plentiful. Extreme river discharges are expected to occur, calling for new
design criteria for water works, and oo fo the i e s to a oid floodi g. Co e sel , lea period flows are
expected to be lower. The storage of monsoon water is consequently an appropriate measure where possible.
Although water shortages as such have not been identified, a problem with water accessibility has been. Given
the scattered habitations and the rugged mountain terrain, the delivery of a stable water supply is inherently
costly.
Water demand for expanded irrigation may negatively affect the amount of water that is available for
hydropower generation. It has been estimated that achieving full cereal self-sufficiency could in some cases
x
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
substantially reduce the discharge of the main rivers in certain months of the year. Competition for water should
be taken into account in national food self-sufficiency and power generation policies, and include a consideration
of ecological flows.
To support water management at a smaller scale, it is essential to increase the number of weather, river flow
and groundwater monitoring stations, and spread them evenly throughout the country. This will enable the
Department of Hydro-met Services (DHMS) to make more detailed assessments of climate and water availability.
The Water Act of Bhutan 2011 and Water Regulation of Bhutan 2014 are basically sound and in harmony with
other water-related legislations. Guidelines have been prepared to supplement the Water Regulation,
particularly for the registration of Water Users Associations. There is, however, scope for fine-tuning the legal
framework.
Bhutan has five major and five minor hydrological basins. It is proposed to group them into five management
units: (i) Amochhu; (ii) Wangchhu; (iii) Punatsangchhu; (iv) Mangdechhu; and (v) Drangmechhu. The five River
Basin Committees (RBCs) overseeing these management units a e desig ed alo g the oo di atio odel ,
building as much as possible on existing institutions and keeping the regulatory and implementation mandates
where they are already. The RBCs can have committees for minor basins or catchment areas. The future will tell
us how workable this is for the RBCs.
Planning, implementation and monitoring water security is built around the concept of the Bhutan Water
Security Index, which is comprised of five key dimensions: (i) Rural household drinking water supply and
sanitation; (ii) Economic water security; (iii) Urban drinking water supply, sanitation and drainage; (iv)
Environmental water security; and (v) Resilience to disaster and climate change. Water security is expressed in
an index figure and visualized in a spider web diagram of the five key dimensions. The baseline score and
pentagram of the BWSI 2015 are shown below. The average baseline score is 3.08.
Agency coordination is structured along the key water security dimensions and indicators. It is essential that the
water security concept be incorporated in the GNHC guidelines for preparing future Five-Year Plans (FYPs),
starting with the 12th FYP.
There is an acute need to strengthen the capacity of the National Environment Commission Secretariat (NECS)
for the implementation of the Water Act and the NIWRMP. There is also an urgent need to strengthen the
Department of Agriculture (DOA) for the implementation of the National Irrigation Master Plan in the context
of achieving food self-sufficiency. The Department of Hydro-met Services (DHMS) should be strengthened and
xi
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
reoriented to become a broad service provider to other agencies in terms of weather forecasting and
hydrological assessments. Lastly, the Gewogs need support for registration and capacity building of water users
associations (WUAs) and for documenting local water sources and their uses. There is a role for non-government
organizations (NGOs) to work with government agencies in terms of awareness raising, education, resource
mobilization and implementation support. The role of the private sector in the construction of water
infrastructure and the provision of water services needs to be enhanced especially in relation to irrigation and
water supply and sanitation.
River training works and flood protection measures should be expedited in order to mitigate the expected
impacts of climate change.
It is recommended to carry out a study into the potential of groundwater utilization as a supplementary water
source, particularly during the lean season.
xii
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
Contents
EXECUTIVE SUMMARY
1 INTRODUCTION ....................................................................................................................................... 1
2.1 LOCATION................................................................................................................................................. 8
2.2 GEOGRAPHICAL FEATURES............................................................................................................................ 8
2.3 SOCIETY AND CULTURE .............................................................................................................................. 12
2.4 ECONOMY .............................................................................................................................................. 13
2.5 GOVERNANCE SYSTEM............................................................................................................................... 13
2.6 HYDROLOGICAL CHARACTERISTICS................................................................................................................ 16
xiii
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
7.1 ADOPTION OF WATER SECURITY CONCEPT FOR COORDINATION IN IWRM PLANNING AND MONITORING .................... 73
7.2 CONFIRMATION OF AGENCY ROLES IN OPERATIONALIZING THE BWSI.................................................................. 73
7.3 DELINEATION OF RIVER BASINS FOR IWRM ................................................................................................... 73
7.4 FORMATION OF SUCCESSIVE RBCS AND PREPARATION OF RBMPS ..................................................................... 74
7.5 INFORMATION GATHERING ON FRAGMENTED WATER SOURCES .......................................................................... 74
7.6 ENHANCE WATER RETENTION CAPACITY ........................................................................................................ 74
7.7 FORMALISATION AND STRENGTHENING OF WATER USERS ASSOCIATIONS ............................................................ 74
7.8 STRENGTHENING THE CAPACITY OF NECS ..................................................................................................... 75
7.9 STRENGTHENING THE CAPACITY OF THE DEPARTMENT OF AGRICULTURE.............................................................. 76
7.10 STRENGTHENING THE WEATHER AND HYDROLOGICAL MONITORING AND FORECASTING CAPACITY ............................. 78
7.11 SUPPORT GEWOG/ DISTRICT ADMINISTRATION .............................................................................................. 79
7.12 IMPLEMENT THE TRAINING PLAN ................................................................................................................. 79
7.13 IMPROVEMENT AND HARMONISATION OF THE LEGAL FRAMEWORK FOR IWRM .................................................... 79
7.14 STUDY THE POTENTIAL FOR GROUNDWATER UTILIZATION.................................................................................. 79
REFERENCES................................................................................................................................................... 81
APPENDICES................................................................................................................................................... 84
xiv
National IWRM Plan 2016
BHU-8623 EGIS/ RSPN/ BhWP
1 Introduction
1.1 Background
The Kingdom of Bhutan is endowed with abundant water resources. However, owing to rugged topography and
associated climatic variations, accessibility remains a major challenge with communities facing seasonal and
local scarcity of water. Historically, water resources have been managed through community-based traditional
institutions focusing primarily on the provision of water for drinking and irrigation. The pursuit of economic
development, a growing population, and changes in lifestyles have resulted in an increasing demand for water.
The role of government in the management of water has increased over the years, but it is still constrained by
weak coordination and regulatory mechanisms characterized by government agencies pursuing their own
sectoral objectives. Over the course of eleven five-year plans, water for hydropower development, though non-
consumptive, has received increasing focus with seemingly less priority given to irrigation, industrial and
environmental water demand. With increasing consumptive demand, competition for water is emerging. The
impact of climate change on water availability is a concern for drinking water supply, agricultural production as
well as hydropower generation.
Recognizing that increasing pressure on the quality and quantity of water resources under rapid socio-economic
development may further be exacerbated with threats from a changing climate, the Water Act of Bhutan 2011
was enacted to protect the environment and human health and to enhance the quality of lives through more
secured access to adequate, safe and affordable water. The Act identifies integrated water resources
management (IWRM) as the approach to be followed to ensure that water resources are protected, conserved
and/or managed in an economically efficient, socially equitable and environmentally sustainable manner. For
this, the Act requires the National Environment Commission Secretariat (NECS), in consultation with competent
authorities, to 'prepare and periodically update a National Integrated Water Resources Management Plan
(NIWRMP) for the conservation, development and management of water resources'. The Act requires the NEC
and competent authorities to take account the approved plan in all water-related decisions and that the plan be
mainstreamed into national policies, plans and programs.
In taking forward the Royal Government's drive for a more comprehensive management of water resources, the
NECS has initiated the preparation of the NIWRMP under the ADB-funded technical assistance 'Adapting to
climate change through Integrated Water Resources Management' and with the guidance of a Technical
Advisory Committee (TAC) comprising representatives from the competent Authorities. The time horizon for this
plan is 2030.
At the United Nations Sustainable Development Summit held on 25 September 2015, world leaders adopted the
2030 Agenda for Sustainable Development. This 2030 agenda includes a set of 17 Sustainable Development
Goals (SDGs) to be achieved by 2030. Goal 6 addresses water concerns and serves as a foundation for the water
security objectives that underpin the establishment of IWRM in Bhutan. Specifically, the SDG water-related
targets set for attainment by 2030 are:
• improve water quality by reducing pollution, eliminating dumping and minimizing release of
hazardous chemicals and materials, halving the proportion of untreated wastewater and substantially
increasing recycling and safe reuse
• substantially increase water-use efficiency across all sectors and ensure sustainable withdrawals and
supply of freshwater to address water scarcity
• protect and restore water-related ecosystems
• expand international cooperation and capacity-building support in water and sanitation-related
activities and programs.
▪ to assess the current situation and future prospects of water resources in the light of a changing
climate
▪ to formulate the principles and framework within which players in the water sector can plan,
implement and monitor water resources management in a coordinated manner
▪ to propose priority interventions and tools for integrated water resources management in the
country.
NIWRMP is not a macro-economic analysis of best development alternatives, but rather an elaboration of the
water security development framework, assessment of driving issues, intervention strategies, institutional roles
and performance management system.
1.4 Methodology
The methodology followed in formulating the NIWRMP may be summarized in terms of the following roadmap
comprised of three main components as presented in Figure 1.
Situation assessment
This entailed assessment of national water resources through two sources of information. First, climate and river
basin modelling was performed to generate information on present and future states of climate and hydrology.
Hydrological basins were identified and water availability and water demand for each of the basins were
analysed. Secondly, information on water issues was generated through surveys and existing studies. This not
only allowed a comprehensive understanding of the current situation with regard to water availability and
accessibility, but also the prospects of water resources in the future.
IWRM requires coordinated and concerted efforts on the part of stakeholders to plan, implement and monitor
progress. For this, a comprehensive review of policies, Acts, rules and regulations as well as existing institutional
arrangements for planning and budgeting system was carried out. In addition, institutional experts performed
stakeholder analysis, identified capacity gaps and entry points for planning, implementing and monitoring IWRM
and assessed the organizational structure of the Water Resources Coordination Division of NECS, Department
of Agriculture, and Department of Hydro-Meteorological Services. These are the three most important
institutional players in initiating implementation of the water security agenda, and in the case of NECS, in
coordinating the roles of various other agencies. In working towards a coordination framework and performance
monitoring system, the ADB's Asian Water Development Outlook was reviewed and adapted to formulate the
Bhutan Water Security Index.
Based on the outcomes of the processes outlined above, interventions were formulated on the basis of priority
issues and challenges. These interventions are presented in the form of Key Result Areas (KRAs) to concur with
the process and terminology adopted by GNHCS in formulating plans. The approach was taken with the
expectation that the interventions will feed into the GNHC guidelines for the preparation of the next FYP.
In support of the proposed mechanisms and interventions, an online Bhutan Water Security Information system
comprising i) Bhutan Water Security Index System, ii) Interactive Web-based GIS9, iii) Water Balance and iv)
thematic maps has been developed to provide a basis upon which the NECS can constantly refine and improve
over time.
9
For details on the GIS database, refer to the standalone supporting documents entitled: (i) GIS Software Installation User
Manual and (ii) Interactive Web GIS User's Manual.
3
Consultation process
Considering that the NIWRMP is a national cross cutting document, constant efforts were made to solicit input
and guidance from stakeholders. In the early stages of preparing the NIWRMP, a Technical Advisory Committee
(TAC) comprised of representatives from concerned government and non-governmental agencies and
competent authorities was established with the purpose of stakeholder coordination with respect to IWRM, and
to guide the elaboration of the NIWRMP.10 Feedback and guidance were sought through the inception workshop,
interim progress review and regular TAC meetings. The draft final plan was presented to stakeholders in four
regional and one national consultation meetings. The final plan incorporates the feedbacks and comments from
these consultations.
Moreover, the draft NIWRMP was posted on the NEC website for public review for one month before
finalisation.
The overall logic and linkages in the formulation of the plan may be best understood in the context of the
diagram presented in figure 2 below.
10 The Technical Advisory Committee consisted of representatives from the following agencies: Map Production Division,
National Land Commission; Department of Public Health, Ministry of Health; Department of Hydropower and Power Systems;
Renewable Natural Resources Engineering Division, Department of Agriculture, Ministry of Agriculture and Forestry;
Department of Hydro-Met Services; Watershed Management Division, Ministry of Agriculture and Forestry; Gross National
Happiness Commission; Water and Sanitation Division, Ministry of Works and Human Settlements; Department of Disaster
Management, Ministry of Home and Cultural Affairs; Department of Local Governance, Ministry of Home and Cultural Affairs;
Flood Engineering Management Division, Ministry of Works and Human Settlement; Climate Change Division, National
Environment Committee; Bhutan Chamber of Commerce and Industries; Department of Geology and Mines, Ministry of
Economic Affairs; Tarayana Foundation; and the Royal Society for Protection of Nature.
4
Vision
Gives an
aspirational Policy
description of
longer-term goals. The basic principles
Legal framework
by which the
government is Water and water-
NIWRMP
guided related legislation
that is used to Outlines a
govern framework for RBMP
coordinated
Plan for achieving
approach to IWRM
the protection,
with a defined role Five Year Plans
improvement and
for stakeholders
sustainable use of Articulate the
the water outcomes and
environment in the outputs to be
river basin achieved over the
concerned period
BWSI
Describes the
degree of water
security achieved or
pursued in five key
dimensions
Stakeholders are to be kept informed of the IW‘M s p og ess alo g the IW‘M spi al, a d of the a ti ities that
various stakeholders are contributing to attain the IWRM objectives at each iteration of the cycle. It is also
important to keep stakeholders aware of the larger picture in which their individual roles are set and are
coordinated through the national IWRM plan and the river basin management plans.
Chapter 1 is an introduction to the plan. It provides background information, defines goal and objectives of the
plan and describes the methodology adopted in formulating the plan.
Chapter 2 describes the main characteristics of Bhutan, its location in the eastern Himalayan mountain range,
physical features, society and culture, economy, governance structure and the hydrological context.
Chapter 3 gives an overview of water and water-related issues in the country. Issues identified in this chapter
relate not only to the current situation but also include future prospects especially in terms of climate change
and associated impacts on hydrology. The plan does not elaborate on commonly known issues such as drinking
water supply, glacial lake outburst floods, and landslides. The current policy and management approach to these
issues is sound and should be continued by the concerned agencies. Development of irrigated agriculture is
addressed separately in the National Irrigation Master Plan, 2016. Given its relevance for water management,
the main conclusions have been incorporated in the NIWRMP. Other issues such as institutional coordination,
water availability per district, and identification of water-scarce and flood-prone areas, to mention a few, have
been studied in greater depth for the NIWRMP. Details are provided in standalone supporting documents, while
the results and main conclusions are briefly presented in the NIWRMP.
Chapter 4 provides an overview of the governance framework. It begins with IWRM as understood in the global
context, and a description of how water management approaches have evolved. An overview then follows of
IWRM pillar 1: policies and legal instruments that are binding on government and non-governmental agencies
to contribute to integrated water resources management in the country. It elaborates the Water Policy of 2008,
Water Act of 2011, Water Regulations of 2014 and other water-related legal instruments.
This is followed by a review of IWRM pillar 2: the institutional framework and stakeholder analysis, and IWRM
pillar 3: tools used in IWRM. The chapter continues with a training needs assessment, and ends by presenting a
framework for inter-agency coordination.
Chapter 5 introduces the Bhutan Water Security Index (BWSI), a system for planning and monitoring the status
of water resources at the basin and sub-basin/district-level scale and their related services towards water
security. Adapted from the Asian Water Development Outlook (ADB, 2013), the BWSI comprises five dimensions,
each with a set of indicators. The chapter proposes the BWSI dimensions and the indicators as handy lenses
through which policy makers and leaders can visualize the status of water security at the national level. But they
can also zoom into each dimension and indicator to assess the performance of specific sectors. It is also the basis
for inter-agency coordination.
Chapter 6 focuses on the management framework for implementing IWRM at the basin level. The Chapter
explains the delineation of basin-scale management units, the proposed role of River Basin Committees and
their composition and specific functions, and the arrangements for formulating river basin management plans
that incorporate stakeholder participation.
Finally, chapter 7 contains the priorities that need to be pursued within the IWRM framework set forth in the
earlier chapters.
2 Country Context
This chapter describes some main characteristics of Bhutan that are relevant to water management.
2.1 Location
The Kingdom of Bhutan is situated in the eastern region of the Himalayan mountain range, between 88°E and
93°E longitudes and 26°N and 29°N latitudes. It is a landlocked country bordered to the north by (the Tibetan
Autonomous Region of) China and to the south by India with the states of Sikkim in the west, West Bengal in the
south and Arunachal Pradesh in the east, see Figure 4.
Covering an area of 38,394 km2, Bhutan is located in one of world's most rugged and fragile mountain ranges.
Extreme altitudinal variations ranging from 97 meters (m) in the south to over 7,500 meters above sea level
(m.a.s.l) in the north make Bhutan one of the most ecologically diverse places. Seventy-two percent of Bhutan
is covered by forest, and about 7.5% by snow and glaciers. Only about 3% of the total area is arable land. The
remaining area is covered by water bodies, shrubs, meadows and other land use types. The country is also known
for its rich natural water resources with a network of east-west flowing tributaries and major north-south rivers
flowing through deep gorges and narrow valleys and ultimately draining into the plains of India and discharging
into the Brahmaputra river. Over 90% of the land area has slopes exceeding 25%, which promotes runoff and
erosion while making access to and management of water resources a costly affair.
Climate
Bhutan may be broadly divided into three geographic areas and corresponding climatic zones. They are the
southern foothills, inner Himalayas and higher Himalayas. The southern foothills, only 20 km wide, rise from 100
to 1,500 m.a.s.l. The climate is hot and humid in the southern foothills, with temperatures ranging from 15 to
300C throughout the year and precipitation ranges between 2,500 and 5,550 millimetres (mm) per year. The
inner Himalayas, which rise to 3,000 m, constitute, with their broad valleys, the economic and cultural heartland
of the Kingdom.
The central inner Himalayas are characterized by a cool temperate climate with an annual average precipitation
of 1,000 mm. The higher Himalayas constitute the northernmost and highest mountain ranges with elevations
up to 7,550 m. These northern regions, under perpetual snow, are sparsely populated and have an alpine climate
with average annual precipitation of 400 mm.
The temperature varies significantly over the country, with some higher Himalayan regions always below the
freezing point throughout the year. Precipitation also varies significantly due to high topographic variability.
Basically there are four seasons: pre-monsoon (March-May), monsoon (June-September), post-monsoon
(October-November) and cold dry winter (December-February). July has the highest precipitation followed by
August. About 80% of rainfall occurs from June to September. Precipitation remains low during the winter
season and gradually increases from March. The mean monthly precipitation sum for two representative
meteorological stations, located at Druyagang and Phobjikha, for the period 1990-2009 is shown in Figure 5.
Climate change has been assessed during the preparation of the NIWRMP. The temperature is expected to rise,
and more so in the north of the country. Increased snow and glacial melt will have an impact on river discharge.
The temperature and its change over time are presented for RCP 4.5 in Figure 6.11 Higher temperatures will also
11 Representative Concentration Pathways (RCPs) were developed by the IPCC and are identified by their total radiative
forcing, measured in watts per square meter (W/m2) in year 2100 relative to 1750. Radiative forcing is defined as the
difference of the solar energy absorbed by the Earth and the energy radiated back to space. Essentially, these scenarios
describe the degree to which greenhouse gas emissions are actively mitigated, stabilized, or increased. RCP 4.5 is a
sta ilizatio s e a io he ei total adiati e fo i g is sta ilized efo e th ough a a ge of te h ologies and
strategies for reducing GHG emissions.
9
increase forest and crop water demand through greater evapotranspiration, which in turn would reduce the
river flows.12
The rainfall shows an increasing trend, as displayed in Figure 7 for RCP 4.5.
3,500
3,000
2,500
2,000
1,500
1,000
500
0
1970 1980 1990 2000 2010 2020 2030 2040 2050 2060 2070 2080 2090 2100
12 Refer to supporting standalone document entitled: Hydro-meteorological projections for Bhutan based on CMIP5
scenarios.
10
As can be seen in Figure 8, rainfall is projected to increase, particularly in the south of the country and during
the monsoon period when water is already abundant.
Agro-ecological zones
Such altitude variations lead to very diverse climatic conditions and varied vegetation ranging from warm broad-
leaf forest in the south to cool temperate coniferous forest in the inner Himalayas and alpine shrubs and
meadows in the higher Himalayas. The geographical and climatic diversity is best illustrated by the six agro-
ecological zones described in Table 1 and shown in Figure 9.
Table 1: Six agro-ecological zones in Bhutan
Agro-ecological zones Altitude (m) Area (ha) Area (%)
Wet subtropical 100-600 214,918 5.6
Humid subtropical 600-1200 392,700 10.3
Dry subtropical 1200-1800 503,465 13.1
Warm temperate 1800-2600 714,554 18.6
Cool temperate 2600-3600 917,155 23.9
Alpine 3600-7500 1,096,618 28.6
Total 3,839,409 100.0
Source: Bhutan RNR statistics 2015
11
The majority of the population practice Buddhism followed by a smaller section of Hindus and Christians.
Buddhist reverence for living beings and beliefs in local deities contribute immensely to preservation and
protection of nature and natural resources. Both urban and rural communities maintain strong links with
ancestral traditions, culture, and religious beliefs that promote respect for nature. Today, Bhutan strongly
pursues the preservation of these cultural heritages – in which water plays a major role.
Bhutan is a welfare state with free education, health services and agricultural subsidies. The population is
expected to grow from 745,000 to some 886,500 by 2030.14 Although the average registered household size is
about 4.6, most of the family members explore livelihood opportunities in urban areas. About 30% of the
population resides in urban areas and this is expected to reach 50% by 2020. Some 13% of the population lives
in Thimphu alone. Given the difficulties of farming on the mountain slopes, more of the educated younger
generation migrate to urban areas in search of employment, leaving behind the older members of the family.
Migration from rural areas has resulted in a decline in the agriculture work force and has translated into rapid
urbanization, unemployment and associated social issues. Half of the population is under 22 years old. The Child
(under 5-years old) Mortality Rate is 6.16%.
2.4 Economy
The GDP per capita in 2013 was Nu 142,983.67 (US$ 2,300).15 The average economic growth over the last five
years (2009-2013) was 6.7%, but slowed down to 2.07% in the last year, mainly due to negative growth in
manufacturing, services and construction. Conversely the positive growth in hotels and restaurants, electricity
and water supply, trade, and business services accounted for the net growth of the GDP. (In dollars the GDP
declined by 2.31% to $ 1,781.5 million, or US$ 2,440 per capita.) The World Bank has classified Bhutan as a lower
middle-income country. Bhuta s e o o is ased p i a il o ag i ultu e a d fo est , p o idi g li elihoods
for about 69% of its population. Agriculture mainly consists of subsistence farming and animal husbandry. The
share in GDP for key sub-sectors related to water is given in Table 2.
The country has embarked on increasing investments in hydropower development for export to India. With over
2000 MW of hydropower generation capacity and another few thousand megawatts of hydropower under
construction, the country's economy is commonly regarded as hydropower driven. High-value low-impact
tourism is also a major source of foreign currency earnings. Industries are mainly small-scale cottage based, but
there are breweries, mines, and a chip board industry.
Through the bilateral India-Bhutan hydropower cooperation agreement, most of the hydropower investments
come from India and is made available in the mixed grant-loan mode.16 Bhuta s foreign debt with India for
hydropower has surpassed the value of its GDP. Hydropower-driven economic development, urbanization, and
a lack of investment in agriculture have made Bhutan dependent on cereal imports. Improving food self-
sufficiency through agricultural development and irrigation is a key water-related objective of the Royal
Government of Bhutan (RGOB).
vested in the Lhengye Zhungtshog which consists of ministers headed by the Prime Minister. The legislative
power is vested in the parliament which consists of the Druk Gyalpo, the National Council (upper house) and the
National Assembly (lower house).
The Royal Government of Bhutan has 10 ministries which work to bring the goal of Gross National Happiness
closer to reality. The ten Ministries are:
Under the Cabinet there is –among others- the Gross National Happiness Commission (GNHC) for planning, and
the National Environment Commission as a regulatory body. Both have their own Secretariat. The ministries
have representation in the dzongkhags.
Bhutan is divided in 20 Dzongkhags (districts): Bumthang, Chukha, Dagana, Gasa, Ha, Lhuentse, Monggar, Paro,
Pema Gatshel, Punakha, Samdrup Jongkhar, Samtse, Sarpang, Thimphu, Trashigang, Trashiyangtse, Trongsa,
Tsirang, Wangdue Phodrang, and Zhemgang. The Dzongkhags are sub-divided into Gewogs, the smallest
administrative unit, of which there are 205 in total.
A brief description of the role of functionaries of local government is given in table 3 below.
14
Dzongkhag Tshogdu This serves as the District Assembly and Dzongkhag Administration
comprises the Gup and Mangmi as the two
elected representatives from each Gewog; one Dzongkhag Administration: Dzongkhag
elected representative to represent the Administration is headed by the
Dzongkhag Thromde, and another elected Dzongdag (district governor). Dzongkhag
representative to represent the other smaller Administrations are staffed by civil
towns. The Chairman of the Dzongkhag Tshogdu servants working under different
is elected from among the elected Gups. development sectors.
15
Bhutan has an extensive river system that is generally distinguished by main rivers flowing north to south, with
tributaries flowing in an east-westerly direction. The main rivers are Amochhu, Wangchhu, Punatsangchhu and
Manas. The latter covers about half the country and is made-up of Mangdechhu and Drangmechhu. These two
large rivers converge into one river just before crossing the Indian border. For purposes of management,
Mangdechhu and Drangmechhu shall be considered as two separate basins; see Figure 10.
As can be seen, Amochhu and Drangmechhu originate in China. There are smaller rivers, namely Jaldakha,
Aiechhu, Nyere-Amari, Jomori/Dhansari, and Merak-Sakteng.
The boundaries of the hydrological basins and district administrative units are shown in Figure 11. The map
shows that one district can be located in two hydrological basins. For example, Chukha and Haa districts are
located in Amochhu as well as Wangchhu basins. Trashigang district is located in Drangmechhu and Nyere-Amari
basins.
Most of the river discharge is fed by rainfall, supplemented by an estimated 2-12% glacial melt and another 2%
from snow melt.18 The combined outflow of the rivers is estimated at 70,576 million m 3, or 2,238 m3/s. This
17
For additio al i fo atio a d aps o Bhuta s h d ologi al ha a te isti s, efe to the sta dalo e supporting
document entitled: National Atlas of River Basins and Water Infrastructure in Bhutan.
18 Ministry of Water Resources, Government of India, Brahmaputra Basin, 2014.
http://www.indiawris.nrsc.gov.in/Publications/BasinReports/Brahamaputra%20Basin.pdf
16
corresponds to a flow of 109,000 m3 per capita per year, the highest in the region. Table 4 presents an overview
of the outflow of the main rivers.
The national water balance is composed of the water balances per basin. Water balances have been assessed
for the month of May when irrigation demand is high for paddy transplantation and the monsoon rainfall is just
starting up. 80% dependable flow (occurring at least in 4 out of 5 years) and consumptive demand in the month
of May have been assessed. The results are given in Table 5 where it can be seen that the additional total water
17
demand in 2030 takes only a few percent of the 80% dependable amount of water available, with Amochhu and
Punatsangchhu the highest at 3.7% during the month of May. The 80% dependable flow is the quantity which is
available 80% of the time, or during 4 out of every 5 years, on average.
Table 5: 80% Dependable water balances for the month of May 2030 19
Drangme Mangde Nyere- Punatsang Wang
Aiechhu Amochhu National
chhu chhu Amari chhu chhu
Runoff
(MCM) 194.1 250.0 653.0 404.8 126.9 493.1 246.0 2,367.9
Add’l
Demand 0.3 9.3 10.0 4.9 1.8 18.4 4.9 49.7
(MCM)
Balance
(MCM) 193.8 240.7 642.0 399.9 125.1 474.7 241.1 2,318.2
Add’l
Demand 1.3 3.7 1.5 1.2 1.4 3.7 2.0 2.1
ratio (%)
The Falkenmark Water Stress Indicator, which was developed by the Swedish water expert Falkenmark in 1989,
is one of the most commonly used indicators for renewable water resource availability.
Water availability of 1,700m³/capita/year is defined as the threshold above which water shortage occurs only
irregularly or locally. Below this level, water scarcity occurs with different levels of severity. Below
1,000m³/capita/year water scarcity is a limitation to economic development and human well-being, and below
500m³/capita/year water availability becomes a major constraint.
Note, however, that only the renewable water resources within the country are considered in this indicator, i.e.,
there is no account of water flows or transfers from outside the country. Moreover, the water availability per
person is calculated as an annual average and thus neglects water shortages in dry seasons or in certain regions
within a country. Nonetheless, it is a useful overall indicator for comparing water resource endowments across
countries. The map in Figure 12 shows a comparison of Falkenmark indicator values for areas covering Bhutan
and its neighbouring countries.20
19
Relevant hydrological information has been put together in a database and GIS called Bhutan Water Security Information
System. It is accessible online through the portal of NEC, and contains the following menu options: (i) Bhutan Water Security
Index; (ii) Web-GIS; (iii) Water balances; and (iv) Thematic maps.
20 Abracosa, R. Regional Economics of Climate Change in South Asia Part II - Adaptation and Impact Assessment, Sectoral
Assessment Report on Water Resources. Asian Development Bank R-PATA 7423, 2012 (unpublished).
18
2026-2035
Baseline 1991-2000
(Projected under RSES scenario A1B)
Figure 12: Falkenmark index of water availability (renewable water resource in cubic meters per capita)
According to Landsat satellite image analysis, Bhutan had 885 Clean Glaciers, and 50 Debris Covered Glaciers
covering an area of 642 and 16.1 km2 respectively.21 This is a out .6% of Bhuta s total land area as shown in
Figure 13. It has also been determined that the glaciers range from 4,050 to 7,230 m.a.s.l with an area of 362
km2 in the Punatsangchhu basin (466 glaciers); 33 km2 in the Wangchhu basin (58 glaciers); 180 km2 in
Mangdechhu basin (287 glaciers); and 781 km2 in Drangmechhu basin (124 glaciers). The largest glacier in Bhutan
with an area of 36 km2 is in the Punatsangchhu basin.
Glaciers are good indicators of climate change as they react to temperature and precipitation changes and
provide direct visual evidence. Glaciers change in terms of their thickness, area and tail end - features which are
directly proportional to the change in atmosphere around them. Melting glaciers are also important sources of
freshwater.
Glacial lakes
When glaciers melt they form water bodies which later become glacial lakes. Glacial lakes can pose a serious
threat to downstream communities as they have the potential to burst and create massive flooding. See Section
3.9.
21
Bajracharya et al. 2014. The status and decadal change of glaciers in Bhutan from the 1980s to 2010 based on satellite
data. Samjwal Ratna Bajracharya, Sudan Bikash Maharjan, and Finu Shrestha. Annals of Glaciology 55(66) 2014 doi:
10.3189/2014AoG66A125.
19
Wetlands
Wetlands are ecologically critical water resources. Besides the glaciers and glacial lakes mentioned above, they
consist of lakes, high-altitude peat lands, marshes, peat bogs, fens, mid-altitude lakes, springs, streams and
rivers. A study in 2010 prepared an inventory of wetlands as given in Table 6.22
In the absence of a detailed wetlands inventory, information on wetlands in Bhutan is scanty and incomplete.
Apart from being an important freshwater resource - for domestic use, agriculture and sustainable economic
development - wetlands are recognized to provide fundamental ecosystem services. Functional wetlands
support a high level of biological productivity and diversity, provide habitats for flora and fauna, including rare
and threatened communities and species, maintain local and regional hydrological regimes, remove pollutants,
act as storage for rain/flood water and support human activities and values. Wetlands are also integral
transitional ecosystems that are vital for the sustainable functioning and maintenance of the broader ecosystem
health of the entire watershed.
Bhutan's water resources are under mounting pressure from ever-increasing demand accelerated by a growing
population and economy. Striking a balance between development and conservation has always been the
cornerstone of Bhutan's gradual and steady growth into the 21st century. Though Bhutan is well recognized for
22
Sherub et al. (2010). Inventory of High Altitute Wetlands in Bhutan. Thimphu: Sherub., Norbu, N., Wangdi, N. and Lhendup,
P. Ugyen Wangchuk Institute for Conservation and Environment and WWF Bhutan.
20
its conservation policies and its strong commitment to the promotion of Gross National Happiness, there are
mounting challenges evolving with development. In the past, strong cultural and traditional ethos among the
Bhutanese and the lack of modern development technology (such as for drainage and dredging) inadvertently
protected the water resources.
However, in modern day Bhutan the challenges have evolved. For example, significant wetlands (large wetland
areas of more than 50 ha) in and around growing towns and cities are being lost or increasingly fragmented. This
has led to complaints about the available quality and quantity of drinking water.
Recognizing the importance of wetlands, Bhutan has joined the Ramsar Convention as its 161st Contracting Party
in 2012. Since then, Bhutan has designated three Ramsar sites - Bumdeling in Eastern Bhutan, Khotakha and
Phobji-Gangtey in central Bhutan. The Department of Forests and Park Services collaborates closely with the
Convention in promoting the wise use of these wetlands.
Reservoirs
There are a number of reservoirs that have been constructed on the main rivers or their main tributaries; these
were built for the purpose of flood attenuation to prevent damage to hydropower infrastructure. Most of the
hydropower plants are run-of-the-river type. The live storage of these barrage-type reservoirs is modest, mostly
to buffer diurnal flow variation and to trap sediments. There are existing plans to build reservoir-type
hydropower stations in Amochhu, Bunakha and Sankosh. These reservoirs will be large in order to equalize the
seasonal variations of the river discharge.
Groundwater
Very little is known about groundwater in Bhutan. Given the steep terrain and deeply incised valleys, it is
generally believed that there is no real groundwater aquifer to mention, although subsurface flow through fluvial
deposits is believed to occur. The somewhat wider and flatter valleys of, for example, Paro, Punakha, Thimphu
and particularly Samtse, Phuentsholing, Sarpang and Samdrup Jongkhar bordering the plains in India may well
have groundwater reserves that could be exploited. Indeed, groundwater is being tapped in these areas on an
individual basis but the government is generally reluctant to develop groundwater as a resource as long as the
sustainability of its use has not been assessed.
21
3 Water-related issues
This chapter gives an overview of water-related issues identified through surveys of water issues at Gewog levels
and technical assessments of climate and water resources. Details are provided in the standalone documents
supporting the plan, while the results and main conclusions are briefly presented in the following sections.
The current level of coordination is not adequate to fulfil the requirements of the Water Act and its regulations.
Water-related agencies pursue their own agendas and priorities for the use and management of water. Defined
mechanisms need to be put in place to coordinate and enhance cooperation among water-related
agencies/authorities and other environmental organizations. Efforts have been made by the government to
foster coordination through the establishment of a water board comprised of director-level officials from various
agencies. However, the board does not meet regularly and it is not clear how it fits within the overall
coordination role and mandated functions of the NECS.
The NECS is in the process of strengthening its role of coordinating water resource management as per the
provisions of the Water Policy, Water Act and Regulations. The Water Resources Coordination Division (WRCD)
is the entity within the NECS that is responsible for implementing the Water Act. The NIWRMP addresses this
NEC priority to strengthen the overall institutional arrangement and capacity building of players in the water
sector to plan, implement and monitor water management in a coordinated matter. Chapter 7 is dedicated to
this priority.
The climate of Bhutan is distinctly seasonal, with monsoon rains occurring between April and October. Other
months of the year have low or no precipitation. Given the rugged terrain, there is a high proportion of runoff
into small streams and rivulets. These discharge into tributaries and rivers that are characterised by steep
gradients and narrow stream beds that have very little storage. As a result, surface water is quickly evacuated
from the river basins. Whatever water is available during the lean winter season is the result of subsurface base
flow – and this is marginal. Furthermore, access to water stored in mountain lakes is very difficult.
Bhutan's high per capita water availability thus must be considered in the light of there being much water at the
wrong time and the wrong place. The ensuing shortages can be mitigated by retaining water through watershed
conservation measures and maintaining forest and/or ground cover to intercept rainfall, hold the water and
promote infiltration. Erosion gullies which make the water run faster down the slopes should be controlled.
22
Various sites were identified for small hydropower stations in 2003.24 More recently, other sites have also been
identified for micro-hydropower stations.25 Potential sites for multi-purpose reservoirs need to be explored to
provide water for various purposes such as drinking water supply, irrigation, flood mitigation and hydropower
generation.
Preliminary studies done during the preparation of the NIWRMP found four locations that may have potential
for building reservoirs. These are in Haa, Burichhu, Yunari, and Nikachhu as shown in Figure 14. Details can be
found in the standalone report on Database and GIS.26
23 Unlike Nepal, Bhutan does not have a Terai – large areas that could be irrigated with river water regulated by reservoirs.
24 Power Systems Master Plan, MoEA, RGOB, 2003
25 Data collection survey on renewable energy in the Kingdom of Bhutan, JICA-DRE MoEA, 2013
26 ADB-CDTA Bhu-8623, 2016
23
• Falkenmark index: the amount of water available per capita per day (l/c/day)
• Water balance: the total net amount of water available in million m3 in a given time period
• The demand ratio: the percentage of water available used for future consumption
Note: *OK means that water availability is currently below the threshold for water stress with
possibility of developing water stress in the future.
The following districts are ranked in decreasing order of potential water scarcity: Thimphu-Lingshi, Zhemgang,
Haa, and Samtse.
This assessment is based on 80% dependable water generated within the districts. 28 If inflow from upstream
areas is taken into account, all districts have ample water supply when considering the additional water demand
for domestic, irrigation and industrial use until the year 2030.
27
For details on the hydrological modelling and water balance studies conducted in support of the NIWRMP preparation,
refer to the standalone supporting documents entitled: (i) Hydrological Modelling and Assessment for Bhutan and (ii) Water
Balance Calculator Users Manual.
28
80% dependable flow is the amount of water available 80% of the time. Example of 80% dependable flow for the month
of January is eight out of every ten months of January.
24
Thimphu river have piped water supply that is only operational for a few hours every other day. This shows that
the occupants of the housing block have limited access to water even though the river is flowing right past them.
Likewise, a local water source may temporarily run dry, leaving irrigated fields without a supply of water, even
while large volumes of water run down a stream slightly further away. This aspect is depicted in Figure 15.
• District-level water balances have been assessed but they have little relevance at the household or farm
level. Household or farm-level studies are possible. However, these are best undertaken on a case-by-
case basis.
• Water may be available but not accessible in the absence of investment in equipment (storage
reservoirs, pumps) and operations (diesel or electricity cost of pumping, maintenance). It is not a
problem of water shortage, but a problem of water management. This aspect is compounded by the
low-density of the rural population living in highly dispersed settlements on hill slopes.
• Managing water at the local level cannot be done from the centre. This is particularly true in Bhutan
because of its large altitudinal variations and difficult terrain.
However, one may also try to contain or reduce the demand for water in order to reduce the water stress.
Examples of demand management measures can be grouped in two categories, as given below.
25
Nevertheless, properly designed collective action systems have successfully managed common pool resources
for hundreds of years. Examples are traditional rainwater harvesting structures in Rajasthan, as well as common
grazing areas in dry parts of Africa. In Bhutan, water resources are degrading both in quality and quantity from
use and discharge of effluents into water bodies. With water as state property, institutional mechanisms to
monitor compliance and impose sanctions remain ineffective. The capacity of NECS and line agencies need to
be strengthened to establish and update water quality standards and to regularly monitor compliance. At the
local level in Bhutan, Water Users Associations can play an important role in managing water resources as a
common pool resource.
29 The justification can be found in the standalone supporting document entitled: Hydrological modelling and water resources
assessment.
26
(using GIS) is less suitable in flatter areas (like in the southern belt of the country) where flood-prone areas may
have been under-estimated.
If in the future storage dams are constructed in Bhutan to even out variability in river flows (which climate
change is projected to worsen), they need to be accompanied by measures to minimize not only their
environmental impacts but also the safety-related risks of downstream flooding. Hydropower dam operators
naturally aim to maximize power generation by keeping reservoirs full. However, if a storm is approaching, the
reservoirs have to be emptied rapidly to make room for incoming floodwater. If such sudden releases of stored
water are uncoordinated and wrongly timed, they could worsen flooding downstream. Flood level monitoring
and public warning systems, including the provision of an adequate number of river gauging stations are,
therefore, vital components of flood management.
Preventive measures to reduce vulnerability to floods include controlling built up areas along river courses,
ensuring adequate space for rivers to move naturally, and implementing river training works in priority areas.
30Inventory of Glaciers, Glacial Lakes and Glacial Lake Outburst Floods, Monitoring and Early Warning Systems in the HKH
Region (Bhutan). Pradeep K. Moool, Dorji Wangda, Samjwal R. Bajracharya, Karma Kunzang, Deo R.Gurung and Sharad P.
Joshi. ICIMOD, Kathmandu, Aug 2001.
27
Glacial lakes are classified according to their outburst risk. A zonation is done in downstream areas,
distinguishing zones of high or low risk of flood damage in case of an outburst. Human settlements and economic
development should be located in areas safe from GLOF risks.
Figure 17: Map showing glacial lakes at risk of an outburst (Mool et al., 2001)
Bhutan has made considerable progress in terms of coverage for both rural and urban water supply and
sanitation in the last two to three decades. Improving public health by reducing the incidence of water-related
illnesses through the provision of safe drinking water and improved sanitation facilities is actively being pursued.
According to a UN/WHO country report for 2014, the water supply infrastructure both in rural and urban areas
needs to be upgraded. Data from this report indicate that more than 50% of the urban population has
intermittent water supply. In rural areas only about 69% of rural water supply schemes are reportedly functional.
Delivery of water supply services in rural areas is based on source protection specified in water safety plans, but
there are no treatment systems in place. 31
31
UN Water and World Health Organization. Bhutan Sanitation, Drinking Water and Hygiene Status Overview. Global Analysis
and Assessment of Sanitation and Drinking Water. 2014 Update.
28
Rural sanitation facilities consist predominantly of pit toilets, followed by pour flush toilets and others. Except
in core areas of major cities, septic tanks are the most common sewage treatment facility in urban areas.
Although construction regulations require septic tanks to be equipped with soak pits, there are many
substandard systems leading to the discharge of effluents directly into the environment.
As far as hydropower is concerned, Bhutan has so far developed only about 1,500 MW out of the economically
feasible 24,000 MW of hydropower. The 10th and 11th FYP expressed the intention of developing over 10,000
MW hydropower potential as given in Table 8 and Figure 18.
Table 8: Hydropower projects scheduled for construction in the 10th and 11th FYP periods
Nr. Project name Capacity (MW) Construction period
1 Punatshangchhu-I 1,200 2008-2019
2 Punatshangchhu-II 1,020 2011-2018
3 Mangdechhu 720 2011-2018
4 Kholongchhu 600 2015-2022
5 Nikachhu 118 2016-2020
6 Bunakha 180 2017-2022
7 Wangchhu 570 2017-2024
8 Chamkharchhu-I 770 2017-2025
9 Sankosh 2,560 2017-2026
10 Kuri-Gongri 2,640 2018-2027
Figure 18: Map showing location of existing and planned hydropower stations
Currently, construction of the 1,200 MW Punatsangchhu phase I, the 1,020 MW Punatsangchhu phase II, and
the 720 MW Mangdechhu Hydroelectric Projects are on-going. All three projects are scheduled to be completed
by 2018-19. The construction of other projects to generate 10,000 MW hydroelectricity by 2027 is planned to
30
start during the current 11th FYP period. The construction period ranges from 8-9 years. The pipeline projects
are listed in Table 9 below. In addition, small hydro-projects shall deliver some 8,000 KW.33
The Environmental Impact Assessment (EIA) reports related to planned hydropower plants refer to a bilateral
agreement between RGOB and India signed in 2009, whereby India would buy 10,000 MW by the year 2020.
Whereas most of the hydropower stations in Bhutan are run-of-the-river types, some of the planned stations
are reservoir-types to flatten the hydrograph and make more efficient use of generators. The changes in
downstream water flows are not expected to have an impact on drinking water supply or irrigation. However,
large dams and reservoirs may cause a loss of agricultural land due to inundation. EIAs treat the loss of arable
land as a loss of income for farming families, for which compensation is proposed. Such potential loss of farm
land needs to be put i the o te t of ‘GOB s poli o je tive of achieving food self-sufficiency.
Hydropower uses a very large proportion of the fresh water resources of Bhutan, but it is not consumptive use.
Hence, the hydropower use of water is not included in the calculation of water balances for the NIWRMP.
Management issues relevant to hydropower development are highlighted below.
The impact of hydropower on the environment is addressed in all EIA reports that are prepared before the
construction of plants. For the run-of-the-river systems34 the impacts are local and relate mainly to land
acquisition and temporary disturbance caused by construction works. Remedial measures for negative impacts
have been proposed, but their implementation is not closely monitored. Moreover, the cumulative impacts of
hydropower plants are not being studied.
Climate change is predicted in models to cause marked changes in seasonal water availability, which could have
adverse consequences on hydropower generation. The Fourth Assessment Report of the Intergovernmental
Panel on Climate Change (IPCC) predicted that negative mass balance in Himalayan mountain regions may
eventually lead to the disappearance of glaciers with subsequent large impacts on the seasonality and volume
of stream flow. In Bhutan, where snow and ice melt from glaciers is often a significant contributor to dry season
flow, there are indications that climate change might have serious effects on the amount of snow and ice
available for glacial-fed flows. This in turn could cause reductions in dry season runoff, which could seriously
affect hydropower production as plants in Bhutan are typically run-of-river types with little or no storage.
Projected increases in monsoon rainfall due to climate change would increase the sediment load and flooding
debris in rivers, and these can also affect the operation of hydropower plants.
Environmental flows
The Water Act and Regulation prescribe that environmental flow shall be maintained in the river sections that
are by-passed by the head and tail race tunnel of hydropower plants. Such mandated environmental flow shall
be 30% of the lean period flow – unless otherwise proposed and approved in the concerned EIA. Indeed, various
EIAs apply different methodologies for assessing environmental flows. Enforcement of environmental flows is
presently weak in Bhutan. A study looking at environmental flows has started recently.35
Hydropower generation is often equated with big dams, inundated areas, and the resettlement of communities.
In Bhutan, however, all power plants are run-of-the-river systems (defined earlier). They divert water locally
from the river so that no storage reservoir is involved (i.e., only a barrage structure) and, consequently, no land
is lost to inundation. Thus, run-of-the-river systems cause relatively less environmental damage except for the
reduced flows in the river stretch between the head and tail race tunnel of the dam. The disadvantage is that
power generation fluctuates with the strongly seasonal flow of the river.
There are plans to build hydropower stations in the future (such as Bunakha and Sankosh) that incorporate
storage reservoirs to avoid seasonal fluctuation and optimize electricity production. If land is lost to inundation
due to these reservoirs, such loss would mainly be forest land, as settlements and agricultural fields are located
on hill slopes and not in the river gorges. There might only be a few exceptions when people are affected and
need to be relocated and compensated.
Hydropower generation takes place in the main rivers or main tributaries. Water is only used to drive the
turbines and then flows back to the river, so hydropower generation in its present form in Bhutan does not
actually consume water. By contrast, evaporation in irrigated agriculture does consume water that is generally
tapped from the higher order tributaries – hence upstream of the hydropower plants. Therefore, irrigation water
demand affects hydropower in Bhutan, but not the other way round.
The self-sufficiency level in paddy is presently about 50%. The amount of water needed to achieve full self-
sufficiency has been estimated and compared with the amounts of water available in the basin. The figures are
presented in table 10 below. The percentage of water used in other months is lower.
Table 10: Percentage of available water used to increase cereal production to full self-sufficiency
Basin Amochhu Wangchhu Punatsangchhu Mangdechhu Drangmechhu
% water to be used
9.4 % 3.7 % 5.5 % 1.5 % 2.8 %
for irrigation
Month January January May May May
Thus, the percentage of available basin water to be used to achieve self-sufficiency in paddy production
represents a corresponding reduction of water available for hydropower generation.
One has to bear in mind the following points:
• Peak hydropower production is unlikely to be affected by increased paddy production because rainfall
in the months of July-August largely satisfies the crop water requirements (hence little or no irrigation
water demand), and there is already more discharge in the river than used by the hydropower stations.
• Increased rainfall resulting from climate change may (partially) compensate for the reduction of the
amount of water available for hydropower generation.
35Work for the Study on Minimum Environmental Flow for Hydropower Projects in Bhutan. Funding Agency: Austrian
Development Agency. Duration: November 2015-October 2017.
32
• The use of more-efficient irrigation methods shall reduce the consumption of water for irrigation and
therefore leave more water for hydropower generation.
As can be seen, by the middle of the century (2045), the flow for a return period of 50 years may increase by
around 26% in Wangchhu, about 7% in Punatsangchhu, and up to 38% in Mangdechhu and Drangmechhu.
There also is an expected trend towards lesser river flows in winter, although no change in minimum flows.
However, it should be noted that the climate change assessments were constrained by a shortage of data.
Available data have limited spatial representation and often cover less than the minimum requirement of thirty
years of observations. Hence, the projections become less realistic when magnifying resolution from regional
into smaller areas such as districts and Gewogs.
Wangchhu
36
For detailed descriptions on the climate modelling procedure and results, refer to the standalone supporting document
entitled: Climate Modelling and Assessment for Bhutan.
33
Mangdechhu
In climate models, future decades are to have drier and warmer winter months and wetter and warmer summer
months. Under such a warming climate, river flows will become more erratic as rainfall is rapidly converted to
runoff instead of being stored as ice. In turn, a combination of steep topography and the projected increase in
summer rainfall and river flows in the coming decades pose major water-related hazards. Accelerated glacier
melting is already increasing the number and size of glacial lakes and the risk of catastrophic flooding if these
lakes are breached.
In South Asia, half of natural disaster events have been due to floods and landslides associated with extreme
weather events. Climate change is predicted to make such extreme weather events more destructive, in
particular through the intensified Asian monsoon system. The Himalayan region in particular has become even
more vulnerable to natural disasters spawned by melting glaciers, which form high-altitude lakes that can
suddenly breach and cause catastrophic flooding downstream.
37 Refer to standalone supporting document entitled: Hydrological modelling and water resources assessment
34
6000 8000
6000
mm
4000
mm
4000
2000 2000
0 0
1995 2000 2005 2010 2015 1995 2000 2005 2010 2015
year year
mm
2000 1000
1000 500
0 0
1995 2000 2005 2010 2015 1995 2000 2005 2010 2015
year year
2000
mm
1000
0
1995 2000 2005 2010 2015
year
35
Deforestation and land degradation from over-grazing by livestock contribute to soil erosion and increase the
sediment load in the rivers during high water flows. High sediment loads in water are detrimental to the turbines
in hydropower plants and increase demand on management. Many small piped water systems for domestic
water supply are also often blocked by sediment during the monsoon period.
Water quality is currently being monitored, although measurements are not systematic or regular. Water quality
standards are being reviewed and additional priority parameters are being incorporated.
Agricultural land has been under pressure with increasing population, economic development and urbanization.
Reportedly, land owners are increasingly trying to change the status of Chhuzing (Irrigated paddy land) into
dryland to grow more lucrative cash crops instead of paddy, or in order to circumvent the ban on building on
Chhuzing land. From the Statistical Yearbooks, it was reconstructed that the area of paddy land has decreased
from 62,360 acres in 2006 to 48,361 acres in 2013 (23% reduction). The area planted with maize was reduced
from 75,800 acres in 2005 to 58,338 acres in 2013 (25% reduction). The area under wheat was reduced from
21,900 acres in 2005 to 5,560 acres in 2010, which is a significant 75% decline.38 Such decreases in arable areas
reduce crop water demand, but puts food self-sufficiency in jeopardy.
Landslides
Landslides are a common feature in Bhutan, especially during the rainy season. Their frequency has increased
with the construction of (farm) roads due to steep cuts into the hillsides and the weight of construction spoil
materials deposited on the lower slopes. The areas that are most prone to rainfall-induced failures are heavily
fractured and weathered rocks of phyllites, slates and schists that contain high amounts of clay minerals that
occur in the southern part of the Lesser Himalayas.39
The Department of Geology and Mines has been involved in preparing hazard maps along some of the existing
highways and important sites of new towns. The Department of Roads has re-aligned some roads on the basis
of these hazard maps, or applied environment-friendly road construction methods. This method applies flatter
cuts into the hillsides (resulting in more-stable slopes), provides better drainage, and removes spoil, but is very
expensive.
Different geological settings cause different types of landslides calling for different mitigating measures, like
avoidance, stabilization, prevention or no action. Some of the common strategies to stabilize, control or prevent
landslides include (sub-) surface drainage, retaining walls, reinforced earth and bioengineering of the disturbed
slopes.
Over-grazing
Most of the pastu e g asses a e pe e ial, ith oot hizo e g o th i the top 6 to 9 layer of the soil. These
grasses bind the soil particles and make a good ground cover by their spreading habit and thus reduce soil
erosion from wind and water. There is little registered pasture land and cattle are allowed to graze freely in
forest areas. Repeated browsing, nibbling, and uprooting of saplings and trampling of the soil hinders natural
regeneration, especially when the same areas are grazed twice per year - by yaks in the winter and by cattle
during the summer.
Forest fires
Forest fires are one of the prominent causes of forest degradation in the country,40 and lead to more runoff. The
forest department in the last four years (2010-2014) recorded an average of 45 forest fire incidences damaging
about 19,844 acres of forest annually. Helicopters can be used effectively for fire-fighting if there are ponds
throughout the country that can be used to refill their water containers.
Technicians require software and reliable instruments to generate the information required to plan, implement
and monitor water-related programs and activities. Design and planning rural and urban drinking water supply,
urban sewer and drainage systems, irrigation, hydropower, etc. require various types of software, equipment
and instruments. Although it is efficient and cost-effective to consolidate such services in the light of limited
human and financial resources, different sectors are pursuing development of such capacity for their own sector.
As a result, data sharing and management is also sector based, not regularly updated and often inaccessible.
40
Bhutan Renewable Natural Resources Statistics, 2015
37
This chapter first describes how the approach to tackling water-related issues has changed over time, and then
presents the status of the current institutional environment. It continues with a description of the national
planning process followed by a description of the institutional framework and stakeholder analysis. This chapter
also looks at tools available for IWRM, presents the results of a training needs assessment carried out during the
preparation of the NIWRMP, and finally describes an inter-agency coordination framework based on the Bhutan
Water Security Index.
Beginning in the 1970s, concern about environmental and social impacts, including worsening water quality,
paved the way for multi-purpose water resource management that also saw the beginnings of a river basin
app oa h usuall ithi a i teg ated a ea de elop e t o te t . Multi-stakeholder participation was
introduced. Watershed protection gained prominence, and procedures for environmental impact assessment
requirements expanded the scope of water development concerns to include social and ecological aspects.
Nonetheless, river basin organizations still treated water as a separate sector and lacked a multisectoral and
integrated approach to addressing water-related concerns.
In the 1990s, the shift to a sustainable development vision paved the way to adopt a comprehensive system of
water resource management, one that emphasized coordinated development and the management of water,
land and ecological resources. The Dublin principles of 1992 recognized increasing water scarcity as a result of
conflicting uses and overuses of water. Importance was put on holistic approaches that sought to integrate
management of water resources within a broader socio-economic and institutional framework. During this
period IWRM became the dominant paradigm. It considerably expanded management challenges, for it often
requires balancing competing sector needs and establishing governance mechanisms for coordinating various
entities involved in water management (and which are not used to such coordination, or resist coordination).
The introduction of IWRM also came with sector-wide policy reforms and decentralization of governance, and
along with these the challenges of effective coordination. A strong focus was given to the river basin as the
logical (hydrological) unit for management, which remains to this day.
Over the past decade, the management scope for water resources has further expanded to include concerns
over the impact of climate change. This was to be expected since climate is the main supply driver which
ultimately determines how much water is available, and because managing extreme events associated with
climate change (droughts and floods) is fundamental to water resource management. Apart from this
development, there is increasing acknowledgment that, as with the environment, water is not a sector. Rather,
water is part of a nexus involving in particular agriculture, ecology and energy. Drivers of change in the water
sector often arise from activities in these other sectors. This latest evolution of the water management paradigm
has put coordination in an even more central role.
In Bhutan, the WRM institutional framework already adopts coordination—embodied in the mandate of the
NEC--as the core management principle (in othe o ds, Bhuta is o the ight t a k . Fo the institutional
38
design of IWRM in Bhutan, corresponding emphasis is on enhancing coordination at both the national and river
basin level. The following definition of coordination is used to guide the IWRM mission in Bhutan: Coordination
is a situation in which policies and programs of government and its agencies are characterized by minimal
redundancy, incoherence and gaps.
In addition, the coordination model of WRM in Bhutan should be framed/designed more specifically to address
effectiveness and efficiency aims.
Overview of policies
In 1999, the Planning Commission issued a Vision Statement for 2020. Part-1 stated that the vast hydropower
potential should be developed, yet it emphasized the need for environmental conservation, and warned that
the progressive removal of vegetation cover, especially in critical watershed areas, was beginning to affect the
hydrological balance, leading to the localized drying up of perennial streams and flash flooding.
It also mentioned the challenge to increase efficiency and to widen the opportunities of the decentralized
administrative system. Hence, people at the Gewog level should have more influence in decision-making that
has a direct bearing on their lives and livelihoods and the future of their communities.
Greater priority also needed to be accorded to the development of the information systems required for
informed decision-making and development planning.
Part-2, which dealt more with goals, objectives, strategies and milestones, emphasized the need for
sustainability. It stated that sustainability had many dimensions - social, financial, economic, cultural and
environmental - and they were all of critical importance in Bhutan since they all impacted, directly and indirectly,
its sovereignty and security. It distinguished five thematic headings to steer the process of change: human
development, culture and heritage, balanced and equitable development, governance, and environmental
conservation. One of the milestones mentioned for planning (for 2007) was the preparation of watershed master
plans: a prelude to the river basin management plans that are presently foreseen under the Water Act and
Regulation.
In April 2003 the Bhutan Water Partnership prepared the Bhutan Water Policy (BWP). The government approved
the document in 2006. The BWP is a refle tio of the go e e t s commitment to the conservation,
de elop e t a d a age e t of the ou t s ate esou es. It recognizes that water is a precious natural
resource and a heritage important to all aspects of social, economic and environmental wellbeing. As a result,
the policy recognized that every individual has the right to safe, affordable, and sufficient quantity of water for
personal consumption and sanitation.
With regard to uses of water, the BWP stipulated three main principles:
• Water is a common good. Its uses are open to all legitimate users under the provision of the water act.
• The policy sets priority for all legitimate uses of water. The first priority goes to drinking and sanitation,
which are essential for human survival. The allocation of water for irrigation, hydropower generation,
industrial uses, recreation and other uses are to be guided by national and local priorities.
39
• The policy also recognizes the importance of water for agriculture and food production. The policy thus
emphasizes that the allocation of water to the agriculture sector must be compatible with the objective
of national food security.
The BWP adopted the principles of IWRM. It stated that water resources in the country would be managed based
on natural river basins. Accordingly, the policy emphasized establishing institutions based on river basins.
The Water Act of Bhutan 2011 (Water Act) is an important milestone in the development of the legal framework
regarding the water resources in Bhutan. It is the first act that addresses water resources in an integrated
manner. Until then, management of water resources was fragmented, addressed in different laws, and focused
only on the operational level.
The Water Act is also an important milestone in the implementation of the concept of IWRM in national
legislation. It is also in line with the national concept of Gross National Happiness. Both concepts are expressed
in the preamble of the Act and elaborated in broad terms in the various chapters. In brief, the Act aims to
advance a coherent, integrated and open approach to the different aspects of water resource management in a
sustainable way and with the river basin approach as a leading principle. To achieve this goal, the Act provides
for a number of organizational and substantive facilities. The first aspect concerns the formulation of the
distribution of authorities and responsibilities between the various governmental bodies involved in water
management. The second aspect is aimed at providing the competent authorities with strategic and operational
legal instruments to enable them to perform their tasks properly.
- The Water Act is a true management law. It is not primarily about the development of water
infrastructure (including irrigation networks), but about creating conditions for the responsible and
sustainable management of water resources.
- The scope of the Water Act covers all aspects of water management: surface water and groundwater,
both in quantitative and qualitative terms. It also covers the infrastructure dimension: river basins,
irrigation systems, dams, water supply systems, etc. In other words, it provides a coherent and
integrated approach. The integrated approach is also manifested in the emphasis on the importance of
the basin approach. Water systems (river basins and groundwater basins) with their functional relevant
environments are the frame of reference.
- Water management is based on a structural (long term) approach. For that reason, a strategic plan
must be drawn up for every river basin in which all relevant aspects should be considered and weighed
in relation to each other. The river basin management plan is the reference for all types of operational
activities.
- Local communities and other stakeholders involved in water management are given the opportunity to
participate in all stages of the decision-making process.
- Alongside the social function of water (expressed in the Act through the stipulation that every individual
shall have access to safe, affordable and sufficient water for basic daily needs), the economic function
of water is also underlined. Water use (abstraction/discharge) and water services are chargeable
following the user pays principle and the polluter pays principle. This expresses the fact that water is
a scarce commodity, which has to be paid for.
40
- The Water Act has a close relation with the National Environmental Protection Act 2007 ("NEP Act").
This act has a broad scope, covering the environment in all its dimensions, including water. The relation
between the Water Act and the NEP Act has an institutional and a substantive dimension. The former
concerns the regulation of the tasks and powers of the NEC, while the latter is related to the various
rules about the protection of the environment.
- A final characteristic of the Water Act is its framework dimension. The topics covered by the Act are
only provided for in broad terms. They need to be elaborated in one or more implementing government
regulations. To ensure as much integration as possible, the government of Bhutan has decided to cover
all issues in one integrated regulation, which was done through the Water Regulation 2014 (Water
Regulation).
Addressing the different types of issues in the Water Act in one integrated regulation was a complex, challenging
and time-consuming operation. Therefore, the preparation took quite some time but the Water Regulation of
2014 (Water Regulation) came into effect in January 2015. However, not all issues are addressed in a sufficient
manner. Based on practical experience, the Water Regulation will need to be updated.
As mentioned above, until the Water Act the management of water resources was fragmented, addressed in
different laws, and only focused on the operational level. The most important acts that contain water related
provisions are acts pertaining to land, forestry and nature conservation, mines and minerals management,
electricity, waste, and environmental assessment and protection:
Forest and Nature Conservation Act 1995, and Forest and Nature Conservation Rules 2006
It is important that the Water Act and the water related acts (as well as their underlying implementing
regulations) are sufficiently harmonized to avoid overlaps, contradictions or gaps. The Water Act addresses the
elatio ith e isti g a ts o l i oad te s. Its A ti le stipulates that: This Act hereby repeals the provisions
of any Acts/regulations and administrative instruments which are inconsistent with this Act . To a oid
misunderstandings and confusion in practice when inconsistencies arise, the above mentioned existing water-
related acts and regulations need to be assessed, which has been done. The overall conclusion of the assessment
is that the Water Act and the existing water related acts (and regulations) are harmonized. Most issues are
addressed in the acts consistently, though in some cases there are inconsistencies that may cause confusion.
provides some examples follo i g a the ati app oa h. The o se atio s ade i this se tio a e ot
exhaustive. Furthermore, some of them, such as the institutional framework, are discussed in more detail in
other sections of this NIWRMP.
Institutional framework
A clear and transparent institutional framework, taking into account the river basin approach and the
decentralization concept, is essential. The division of tasks between the various competent authorities needs to
be addressed in a clear manner to avoid misunderstandings about the question of who is responsible for what,
and which is the competent authority to take decisions (such as issuing a license and imposing administrative
sanctions). Unfortunately, this is not always done adequately. This is particularly the case for the NECS, the River
Basin Committee (RBC), and the Water User Association (WUA). Furthermore, the decentralization approach
needs further attention. The essence of this approach is: decentralize what is possible, centralize what is
necessary. The ability of the NECS to hand over certain powers to the districts and the municipalities has so far
been used in a limited way.
The issue of the institutional setup is elaborated in more detail in Section 4.5.
Planning
A structured long-term approach through planning is a key element of IWRM. The two key planning instruments
in the Water Act are the National Integrated Water Resources Management Plan (NIWRMP) and the River Basin
Management Plan (RBMP). In principle, these instruments are well covered. However, the relation between the
RBMP and the Watershed Management Plan needs further attention. A coordination mechanism to ensure that
both plans are sufficiently harmonized is missing.
Regulatory framework
The Water Act and Water Regulation, together with the Environmental Assessment Act 2000, set out a
comprehensive and differentiated regulatory system for water abstraction and use. Some cases require applying
first for environmental clearance while others do not require environmental clearance and only necessitate a
permit. The system will need to be tested in practice and, if necessary, adjustments made to facilitate its
application.
Financing
Key points of the financing arrangement in the Water Act are the establishment of fees and charges based on
the user pays and polluter pays p i iples. Their elaboration in the Water Regulation is incomplete. The focus
is on fees/charges in relation to the Environmental Assessment Act 2000. Criteria regarding the amount of a fee
or charge for surface or ground water use are not clearly set out in these Acts.
Compensation is also an important element of the financing set up. In the event of governmental decisions
causing damage, those affected have a legal right to compensation. This issue is not consistently addressed in
the legislation.
Dispute resolution
An overarching feature of the dispute resolution mechanisms in the Water Act is that it is a good example of the
implementation of the decentralization approach. However, issues remain to be addressed. Among other things,
the current operational role of the NECS in dispute resolution needs attention. Whether this operational
competence is consistent with the primary coordination task of the NECS should be reconsidered.
Enforcement
Enforcement is an important issue with a broad scope. A key element is supervising compliance with the law by
monitoring and inspection, and based on that, the application of administrative and/or criminal sanctions where
necessary. The administrative sanctions are set out clearly. However, that is not the case for criminal sanctions.
42
4.3 Overview of the national planning process and entry point for
IWRM
National Development Planning Process
Since 1961, Bhuta s de elop e t has ee guided a se ies of fi e-year plans (FYP), the preparation of which
is directed by the Gross National Happiness Planning Commission, subject to the National Assembly's final
approval. The current FYP is the eleventh in the series and covers the period 2013-2018. The planning/fiscal year
begins in July.
The planning activities for the 11th FYP started in April 2012, during which central and local government plans
were prepared by local government units and central agencies. Sectoral plans were prepared nationally by the
line ministries, and harmonized with the development plans prepared by local governments. At the local level,
stakeholders first identify which development activities are best suited for implementation at the level of the
Gewog, at the level of the Dzongkhag, or that of the sector (national level).
This mode of decentralized planning, down to the level of the Gewog, was first introduced during the 9th FYP. In
the 10th FYP, planning processes continued to be further decentralized, giving greater autonomy for sectors and
local governments to formulate strategies and to select priority programs (subject to budget resources available
through their respective annual grants).
Beginning with the 10th FYP, and continuing through the 11th FYP, a results-based planning framework was
adopted that identifies clear outcomes and outputs to be achieved. Outcomes are defined as Key Result Areas
(KRAs) at the national, sectoral, and Dzongkhag level, which are categorized under each of the four GNH pillars
and were set after extensive stakeholder consultations spanning 2 years. At the national level, 16 KRAs have
been identified. At the sector and Dzongkhag levels, there are more than 300 KRAs aligned with the 16 national
KRAs. The performance of all government agencies towards the delivery of KRAs is measured through
corresponding Key Performance Indicators (KPIs) consisting of baselines and targets.
The result-based planning is essentially meant to ensure that sector and agency plans contribute to the
attainment of clearly stated results, the latter defined as outcomes of the specific development activities
(program and project levels). The result-based planning framework was also meant to ensure that planning and
udgeti g p o esses a e a le to a ti ipate e e gi g halle ges i the ou t s so io-political and development
context in coming years.
Since the 10th FYP, the planning and budgeting timeframe for implementing programs and projects has been
changed to 3 years from the original 5 years in the previous FYPs. The FYPs continue to provide the medium-
term outlook in identifying priorities and monitoring results, but these plans are operationalized through multi-
year rolling plans of three years (1+2) which are rolled over from year to year based on annual work plans. This
system allows for improved predictability and realism in the budgeting process.
A 1+2 rolling plan refers to a plan for the coming year, plus two years in advance. That is, central and local
governments prepare annual plans with additional 2-year projections on program activities and budgetary
targets.
Development plans at both the national and local level are consolidated under either infrastructure or non-
infrastructure categories. The infrastructure items are required to be based on master plans that serve as road
maps for infrastructure development, and which are then implemented on the basis of 3-year rolling plans.
43
The five-year planning process provides an entry point for incorporating IWRM into development planning, i.e.,
by preparing for the next FYP to systematically integrate IWRM in the medium-term development planning and
resource allocation via the policy and planning guidelines that can be used as a basis in the next (12th) FYP,
possibly with an initial focus on irrigation infrastructure if it is prioritized by the government (see Figure 22).
A way to incorporate IWRM in the the 12th FYP is to introduce KRAs for water security along the five dimensions
of rural water supply provision, urban water supply and water quality security, economic water security for
agriculture and hydropower use, sustainable environmental flows, and climate change resilience.
Medium-term sector planning starts about midway through the current FYP guided by results of the mid-term
review of the current plan implementation. After extensive consultations are held with stakeholders at local up
to central levels, the identified develop e t gaps a d p io ities as ke i te e tio s a e so ted out a o di g
to how they should be pursued: as local activity at the Gewog or District level, or as part of a wider sector plan.
Guidelines for FYP planning are then drawn up by the Gross National Happiness Commission (GNHC), wherein
core sector objectives, priorities and strategies are set out. The guidelines serve as basis for the sector agencies
to formulate their respective sector plans (and also for the local governments). Such plans are expected to clearly
articulate expected results and ways to monitor progress of achievement (through sector KRAs and performance
indicators)
The main sector interventions, KRAs and KPIs are compiled based on the extensive consultations conducted with
stakeholders, and which are consolidated and presented formally to the GNHC prior to adoption and publication
in the guidelines. Medium-term sectoral plans are developed based on the key interventions, key result areas
and performance indicators that are specified in the planning guidelines.
Although sector agencies are given flexibility to modify the interventions in preparing their respective sector
plans based on the GNHC guidelines, changes in KRAs and KPIs have to be cleared with the GNHC. Detailed
specifi atio s of ea h se to s p og a s a d p oje ts a e fi alized afte the esou e allo atio s fo all sectors
are set by the GNHC ased o the fis al p oje tio . Ea h se to pla s spe ifi atio s of p og a s a d p oje ts
44
a e a o pa ied a espo si ilit f a e o k that ide tifies the le el of i ple e tatio atio al o lo al
and the allocation of budget resources between the central sector agency and the local governments. The
responsibility framework is issued by the GNHC as an attachment to the planning guidelines.
A e isio ed e t poi t fo IW‘M ai st ea i g i Bhuta s de elop e t pla i g s ste is to i flue e
the GNHC planning guidelines so that these adopt the water security KRAs and KPIs derived from the NIWRMP,
which also serves to guide preparation of basin plans. And following the st o g oo di atio odel des i ed
above for IWRM, water concerns—that are spread out across various agencies—built into the national planning
system will help ensure such coordination (including synergy among interventions). The NEC should then resolve
any gaps in addressing various water concerns.
Following the mainstreaming approach, strategic water security interventions, KRAs and designated competent
authorities--derived from the NIWRMP--will be coordinated by the WRCD and presented by the NECS (through
the NEC) to the GNHC, after which these are proposed to be formally adopted and published in the medium-
term planning guidelines that guide FYP preparation. Specific plans at the national and local levels are to be
developed based on these medium-term planning guidelines. Plans formulated will be reviewed by the GNHC
Secretariat for conformity with the water security KRAs and KPIs.41
Detailed specifications of programs and projects are finalized after the resource allocations for all sectors are
set by the GNHC based on the budget projection. The plan specifications are a o pa ied a espo si ilit
f a e o k that ide tifies the appropriate level of project implementation (national or local) and the allocation
of budget resources between the central sector agency and local governments. The responsibility framework is
issued by the GNHC as an attachment to the planning guidelines (and incorporated in the compact signed by the
executing agencies and the government). The role of the River Basin Committees (RBCs) is primarily to help
coordinate between line agencies when preparing and implementing projects and programs.
The RBCs would use the RBMP as a tool for coordinating between line agencies and local governments on
projects and programs that affect the basin. For instance, the RBC shall ensure that district-level plans do not
adversely compete for water and that they remain within the total water available within the basin. If
development plans are set to draw more water than is available, the RBC can flag the issue to NEC and GNHC –
which in turn could reconsider certain plans so as to remain within the water available. The RBC would also
highlight any proposed interventions in the RBMP that are not being considered by the line agencies and local
governments, so that these can be attended to by the NEC and GNHC. Overall, the main aim of coordination
through the RBCs is to ensure that policies and programs in their respective basins—involving multiple agency
players and stakeholders--are characterized by minimal redundancy, incoherence, conflict and gaps. Over time,
a d ith the NEC s a date, the ole of the ‘BC ould e st e gthe ed to e te d e o d ad iso a d
coordination functions, but also to approve/disapprove any activity that affects the river basin environment.
In the current 11th FYP for the renewable natural resources (RNR) sector, for instance, the water-related KRA is
stated as e ha ed sustai a le fo est, la d, ate a d iodi e sit esou e a age e t fo hi h the
ide tified ke i te e tio is to o du t i e to of i po ta t ate at h e t areas and effectively manage
iti al at h e ts. Fo the e t FYP, it is expected that water security KRAs and KPIs proposed in the NIWRMP
will be incorporated into the plan.
At the basin level, with the RBC providing coordination through the river basin management plan, water-related
plans will be prepared by the Dzongkhag and Gewog administration units (through their respective development
councils). This will be done with reference to technical guidelines issued by competent water-related
agencies/authorities, as designated by the NEC. Each local plan will identify which strategic element under the
GNHC FYP formulation guidelines are to be implemented at the local level and, following the budget system, are
to be funded through allocations from central agencies in the form of grants earmarked for those activities.
41
For details on the mainstreaming of water security KRAs and KPIs into the planning process, refer to standalone supporting
document entitled: Integrated Water Resource Management in Bhutan: Possible entry points in Development Planning and
Budgeting System.
45
According to the Water Regulation, every Dzongkhag Administration will prepare an Integrated Water Use
Management Plan for the Dzongkhag based on the NIWRMP for adoption by the Dzongkhag Tshogdu. Every
Thromde Administration will develop a water management/safety plan based on demographic projections for
at least the next ten years to ensure efficient water supply and effluent disposal, including drainage systems, in
its jurisdiction.
46
47
42
For details of the stakeholder analysis and the communication plan to inform them on the IWRM issues, refer to supporting
standalone documents titled (i) Integrated Water Resource Management in Bhutan: Stakeholder Analysis and (ii)
Communications Plan to Support Bhutan's IWRM Process.
48
• Civil Society Organizations. The relevant CSOs are the Royal Society for the Protection of Nature (RSPN),
the Bhutan Water Partnership (BhWP) hosted by RSPN, and the Tarayana Foundation. These
organizations work closely with government agencies and local communities in education and
awareness, advocacy, and livelihood enhancement programs.
• Dzongkhag Tshogdhu (District Development Council). For each Dzongkhag, the council is composed of
elected leaders from each Gewog in the district. Thromdes are subdivisions of the Dzongkhags that are
more densely populated (i.e., urban municipalities) and have their own councils with directly elected
members. District and Thromde councils are tasked with balancing socio-economic development,
promoting business, protecting consumers, coordinating government agency activities, reviewing
Gewog regulations and ordinances, and representing the districts in national referenda.
• Gewog Tshogde (Gewog Development Councils). Each Gewog is administered by a Gewog Tshogde
(Block Council or Block Development Committee), which is subordinate to the Dzongkhag Tshogdu
(district council). The Gewog council is composed of a Gup (headman), Mangmi (deputy), and between
five to eight elected leaders (Tshogpas) from among the constituent villages. The Gewog Tshogde is
empowered to regulate resources. Gewogs are further subdivided into Chiwogs, which are the
equivalent of municipalities or cluster of villages. There are generally five to six Chiwogs in each Gewog.
• Dzongkhag Water Management Committee. Under the Water Regulation, the existing Dzongkhag
Environment Committee (DEC) is mandated to function as the district water management committee
(DWMC).
• River Basin Committees. The Water Act mandates that such committees shall be set up for the
pu pose of p ope a age e t of ate esou es. Fu tio s des i ed i the Water Act pertain to
community participation, preparation of the River Basin Management Plan (RBMP), monitoring and
reporting to NEC, data management, and resolution of cross-sectoral and transboundary water
management issues. The Water Act gives prerogative to NEC to direct or mandate RBCs to perform
additional functions, as needed.
• Water Users Associations. Except in Thromdes, water users of a common water facility are to be
esta lished. The te ate use fo the pu pose of fo i g a WUA ea s a household usi g ate
from a registered facility or source. Any new water user duly admitted to an existing facility will
automatically be a member of the WUA.
The role and functions of the various institutions at the central, district and local levels as outlined in the table
above shows that many institutions are involved in water management. However, most of them are only
involved in some tasks or specific aspects of water resource management. One of the main goals of the Water
Act is to create the conditions for a shift from a fragmented approach to an integrated water resource
management approach. To ensure effective coordination between the involved institutions, the Water Act
establishes two coordinating apex bodies: the NEC (and its Secretariat) at a national level, and the River Basin
Committee (RBC) at a river basin level. The NEC(S) was established in the early 1990s and legally embedded in
the National Environment Protection Act 1997. The RBC is a new institution required under the Water Act and
is without any prior experience. Therefore, the RBC does require a secretariat, a role of which can be fulfilled by
NECS as an interim measure.
The institutional model for the management of water resources is a complex model. It is based on the idea that
the water management tasks have to be carried out as much as possible by existing government agencies and
that the two apex organisations, NECS and RBC, ensure that the line agencies carry out their water-related tasks
in an integrated manner. An effective application of this institutional model requires that the role and functions
of all institutions concerned are clearly set out in the legislation to avoid misunderstandings, duplications, or
even contradictions. The following sections attempt to determine in broad terms if this is the case for the newly
established organisations: NEC(S), RBC, and WUA in relation to existing government institutions.
49
Training needs were identified in relation to the four categories of IWRM roles and functions noted earlier in
43
Refer for details to the standalone supporting document entitled: Guidelines for registration of Water User Associations
under The Water Regulations of Bhutan 2014.
44 For details, refer to the standalone supporting document entitled: Capacity Development and Training Needs Assessment.
50
Section 4.5, namely: (1) policy and planning, (2) coordination and regulation, (3) water services delivery, and (4)
information sharing and capacity development, including research. An inventory of subject matters relevant to
these roles and functions was prepared. Ten subject matter headings were considered, under which a total of
58 specific topics were identified. A survey was carried out to gather baseline information on the current
knowledge of stakeholders in relation to these IWRM-related topics, based on which the training plan was
prepared. Training needs were identified for specific stakeholders based on the roles and subject matter
pertinent to fulfilling those roles properly. The structure of the TNA is given in Table 12.
51
In carrying out the TNA, the roles of stakeholder groups were classified under the four categories above
comprising: (1) policy and planning, (2) coordination and regulation, (3) water services delivery, and (4)
information sharing and capacity development, including research. An inventory of subject matter relevant to
IWRM then was prepared in which items were classified under the four IWRM role categories. Trainings on
specific subject matters directly or indirectly relevant to fulfilling the agency roles were identified.
An online survey was deployed to gather baseline information on the current knowledge of stakeholders in
relation to the inventory of IWRM- elated topi s, a d also to gauge thei pe eptio of the topi s ele a e to
their work and their interest in acquiring training. Survey responses were gathered particularly among the TAC
members who are based in various competent authorities with formal IWRM roles under the water law and
regulation. Respondents were asked to indicate, on a scale of HIGH-MEDIUM-LOW, their individual rating of
knowledge on each topic, perception of relevance to their present and future work, and their interest in training.
Under the 4 subject matter headings related to IWRM policy and planning (i.e., IWRM principles and practices,
climate change and hydrologic assessments, economics and finance, and river basin planning), 60 to 80% of the
respondents rated their present knowledge as low. Seventeen to 37% rated their current knowledge as medium.
Only 1 to 3 % rated their current knowledge as high. The need for training is strongly indicated in the relatively
high ratings given by respondents on the relevance of the topics to their present and future work, as well as
their interest in receiving training.
For the 4 subject matter headings related to coordination and regulation (grouped under subject matter
headings of water resources administration and institutions, regulatory enforcement, socio-politics, and
monitoring of water security), 37 to 72% of the respondents rated their present knowledge as low, with the
lowest rating (72%) given to monitoring water security. Twenty-six to 54% rated their current knowledge as
medium. The highest percentage (54%) in this medium rating of existing knowledge was given on regulatory
enforcement; the lowest (26%) again on water security monitoring. Ten percent of respondents rated their
knowledge of regulatory enforcement as high. But on the remaining topics, only 1 to 3% rated their current
52
knowledge as high. The percentage of respondents who rated this group of institutions-related topics as being
highly relevant to their present work ranged from 43 to 62%; those who rated present relevance as medium
ranged from 25 to 41%. Future relevance to work was rated even higher. At least 69% of the respondents gave
high ratings on their interest in receiving training.
For the subject matter related to water utilization and water services delivery (including irrigation), 79% rated
their present knowledge as low. Forty-one percent rated the relevance of the topics to their current work as
high, 36% as medium and 23% low. Seventy-one percent rated future relevance to work as high, 21% medium.
Seventy percent of the respondents gave a high rating on their interest in receiving training on the topics.
A similar pattern was found for the topics on information management. Seventy-three percent of respondents
rated their present knowledge as low. Sixty-one percent rated the relevance of the topics to their current work
as high, 16% as medium and 8% low. Seventy-six percent rated future relevance to work as high, 16% medium.
Seventy-five percent of the respondents gave a high rating on their interest in receiving training on the topics
related to this subject matter.
A consolidated training plan, covering the above mentioned grouping of training topics, has been prepared,
which also gives information on participants, timeframe, cost estimate, and logistic requirements. The training
items are more technically specialized or management/coordination-oriented, and are proposed to be covered
as part of the IWRM plan implementation. Refer to Appendix 3.
According to Chapter III of the Water Regulation 2014, WUAs are to formulate and enforce their own rules for
managing water sources, and for protecting the sources themselves. Furthermore, there are new expectations
regarding the role of WUAs that are stated in the Water Regulation (Chapter III, Section 36). Notable are two
expanded functions:
• Determine and adopt water user fees that are commensurate with the water services rendered, i.e. the
fees can be charged in proportion to the surface area (acreage, decimal or square feet) of the irrigated
land. The fees can also be differentiated between dry land, wet land and for other activities whether
commercial or non-commercial, which require water; and
• Exercise such other powers and functions as may be delegated to it by a Competent Authority
(Dzongkhag Administration or River Basin Committee) within the jurisdiction of the WUA.
According to the Water Regulation, WUAs are expected to become more involved in coordinating with local
administrations and river basin authorities, thereby extending their role beyond coordination of water allocation
and collection of fees. For instance:
• WUAs can request the Gewog or Dzongkhag Administrations to provide technical assistance in
determining water availability, which will be used as basis for admitting new water users (e.g., in cases
where the irrigation system is being expanded), or as basis for allowing non-irrigation water uses (e.g.,
livestock water use), and as basis for water sharing when water supply is scarce.
53
• From time to time, the WUAs may need to invite resource persons from the local administrations (e.g.,
district forest officer, district rural engineer) to attend WUA meetings in order to provide technical
support or advice.
One of the coordination tasks of WUAs under the Water Regulation is that of federating with other WUAs to
improve the water resource management of a common source. In particular, within the context of integrated
catchment or basin management that aims to minimize upstream and downstream water use conflicts,
federating WUAs would also be necessitated by the possible consolidation of adjoining irrigation systems as part
of a system modernization or rehabilitation.
WUAs will also increasingly be involved in resolving disputes over water allocation. At present, water disputes
have to be brought to the attention of the Gewog chief for resolution. As envisioned in the Water Regulation,
WUAs could appoint one or more negotiation facilitators to settle disputes amicably, and if necessary render a
decision by casting votes among the WUA members.45
Other expected roles of WUA as mandated by the Water Regulation are to:
• Decide on punitive actions for members failing to comply with the standing rules of the association;
• Hear and decide on disputes among its members relating to water and infrastructure use;
• Maintain books of accounts on money received (e.g., from user fees) and disbursements made;
• Submit reports and exchange information with the WUA federation; and
• To acknowledge customary practices of water allocation, which are fair and equitable and do not result
in the denial of water to any individual or community.
It has been studied whether the responsibilities of Water Users Associations (WUAs) under the Water Act and
Water Regulation are adequate in fulfilling the aims and objectives of the NIWRMP and overall plans and policies
of the government in the management of water in the country. In this regard, the focus has been on the
conditions and procedures for the registration of WUAs including the requirement of registration application
forms and formats, which would enable the relevant authorities to properly regulate the WUAs as per the Water
Act and Water Regulation. The proper registration of WUAs will also formalize the existing WUAs and will
encourage the formation of new WUAs. The established system will provide the legal status to the WUAs for
formation, registration and dispute settlement mechanisms, which will build confidence and relationships
amongst the people at a grass root level who are the end users and beneficiaries of the laws, policies and systems
of the government. The uniform system will also bring peace and harmony to the society, which is important in
fulfilling the principles of Gross National Happiness.
45
For additional details on resolving water allocation disputes at the community level, refer to the standalone supporting
document entitled: Social Aspects of Water Resource Management in Bhutan.
54
On reviewing the Water Act, it was established that the provisions are indeed provided, but only in broad terms.
Details of procedures are given in the rules and regulations. But these were found to be too summary and there
is no proper system or procedure for regulating WUAs.
Therefore, guidelines have been developed which provide detailed procedures and forms for the registration
process, and a dispute mechanism procedure that will give the affected parties an opportunity to appeal if not
satisfied with the decision of the registrar or any competent authorities.
The guidelines also address the requirement of a constitution or memorandum of agreement containing the full
names and signatures of the founding members which must be submitted to the registrar for the purpose of
registration. The constitution or memorandum of agreement will be the governing document for WUAs. The
said guideline will be finalized separately later in consultation with NECS.
As per section 32 of the Water Regulation, the Gewog Administration is responsible for registering WUAs, but
there are no provisions for the appointment of the Registrar and corresponding responsibilities and procedures
for registration. These provisions have also been elaborated in the guidelines, along with procedures for issuing
certificate of registration, change in the constitution, and name or names of the office bearers of WUAs, amongst
others.
The Registrar may refuse to register the WUAs based on various grounds. In such a case, there has to be a
procedure for the refusal and procedures for appeal against the refusal. These are also included in the guidelines.
Registration of WUAs
The Chairperson and Office Bearers of the WUA will complete the documents and fill in the forms necessary for
registration, where necessary assisted by relevant Competent Authorities from the Gewog or the Dzongkhag
Administration
The documents and forms will contain the name and address of the WUAs, names of the Chairperson and office
bearers, list of the water users, length of canal and the flow volume of the water, date of construction of the
water facility, name and location of irrigation or drinking water source, whether the Association is for irrigation,
drinking water, or both, or for any commercial purpose.
The Chairperson of the WUA will apply for registration with the concerned Gewog Administration. In case the
water users comprise two or more Gewogs, the Association will be registered with the Gewog Administration
that has the majority of water users. As per the guidelines, the founding members have to frame a Constitution
or Memorandum of Agreement consisting of a full description of the functioning of the WUA along with the full
names and signatures of the founding members. All of these relevant documents must be submitted to the
registrar when applying for registration. The constitution and other documents framed by the founding
members or any subsequent constitution and documents are the governing documents with respect to the
functioning of the WUA. The Association will not operate contrary to its constitution and governing documents.
The registrar at the Gewog Administration will register eligible WUAs in the Gewog registry and maintain a
register of WUAs, keep records and reports of WUAs and enquire into any matter regarding the performance of
activities and management of WUAs. He or she shall ensure that information and other records on the operation
of WUAs are made available to the government and public reference.
After being fully satisfied that all necessary information and relevant documents are provided, the registrar of
the Gewog Administration will issue a certificate of registration under the sign and seal of the Gup, which will
contain the name and address of the Association, the area of operation and such other terms and conditions, in
respect of which the certificate is issued. The certificate will be issued as per the prescribed form in the
guidelines. The copy of the registration certificates and a list of registered WUAs maintained with the Gewog
55
Administration will be sent annually to the Dzongkhag Administration with a copy to the relevant Competent
Authorities for updates. There shall be registration fees chargeable and payable upon any application for a
certification of registration, which shall be determined by the Gewog Administration.
The certificate of registration shall be the conclusive evidence of the WUAs to operate as specified in the
Constitution or Memorandum of Agreement and in the certificate of registration.
If the required conditions are not fulfilled, the registrar will refuse to grant a certificate of registration and the
aggrieved person can appeal to the Dzongkhag Water Management Committee (DWMC), which will decide the
matter according to the proposed guidelines. In such a case, the registrar will inform the applicant of the reason
behind the decision as per the form provided in the guidelines.
Whenever there are any changes in the Constitution or Memorandum of Agreement in the name or names of
the office bearers of the WUAs, the respective chairpersons shall notify the registrar of the concerned Gewog
within three months of such changes in a manner prescribed in the form of the guideline. This is for the purpose
of updating the records of the Association.
The registrar after receiving the notification shall enter into the register all changes as submitted in the
notification and whenever necessary issue new certificate of registration and remove from the register the
particulars of the Association as may be necessary. After the changes have been made in the register in respects
of the particulars of the Association, he or she shall inform the Dzongkhag Administration and competent
authorities of updates.
The certificate of registration may be suspended by the registrar if he or she is convinced that the terms and the
conditions prescribed in the certificate have been violated, the WUA has ceased to exist, the WUA operates in
variance to its constitution, or any interested person has submitted to the satisfaction of the registrar a
recommendation for its suspension or cancellation. In such a case, the WUA will be notified in the prescribed
form of the guideline and order it to stop its operations or remove the name of the said WUA from the register.
Upon the receipt of the notice of suspension of certificate of registration, the holder of the certificate can make
representation in writing for remedying or rectifying the default and where such a request is not entertained by
the registrar, he or she can appeal to the DWMC for a review of the decision to suspend the certificate of
registration. Thereafter, if not satisfied with the decision of the DWMC, appeal can be made to NEC. The appeal
before the competent court of jurisdiction is the last resort.
For the purpose of registration procedure, different forms have been developed, which are provided as annexes
in the proposed guidelines.
56
These five key dimensions comprise 11 sub-dimensions and 57 indicators. These have been adapted from the
Asian Water Development Outlook (AWDO) 2013 through a consultative process involving the Technical
Advisory Committee represented by stakeholders and competent authorities. The dimensions and indicators
make up the BWSI, which provides the framework for planning, monitoring and interagency coordination.
This chapter introduces the BWSI, which is a tool that provides a benchmark of Bhutan's water security. It will
be regularly updated and used to coordinate water resource planning and performance monitoring across
various agencies.
5.1 Concept
The concept of a water security index was introduced by ADB in its publication "Asian Water Development
Outlook" (AWDO) for the Asia-Pacific Water Summit in 2007 in Japan. With the objective to provide a broader
perspective on water management than (traditional) sectoral approaches, it aimed at comparing the status of
water management and its delivery services in a number of Asian countries.
The concept was revised in 2013 and is being revised again to include quantitative measurements, and to provide
direction for governance, investments, capacity-building, monitoring/ reporting.46
The concept was accepted for elaboration in Bhutan in a meeting of the NIWRMP Technical Advisory Committee
(TAC) in December 2014. The indicators were adapted to Bhutan conditions in a national IWRM workshop held
in March 2015. The results of the workshop were endorsed by the TAC in May 2015. Slight modifications were
approved by the TAC in November 2015 to make the BWSI more practical.
5.2 Description
Societies can enjoy water security when they successfully manage their water resources and services to:
1. Satisfy household water and sanitation needs in all communities;
2. Support productive economies in agriculture, industry, and energy;
3. Develop vibrant, liveable cities and towns;
4. Restore healthy rivers and ecosystems; and
46
Asian Development Bank, 2013. Asian Water Development Outlook 2013: Measuring water security in Asia and the Pacific.
57
Five key dimensions have been designed to enable assessment of progress towards the goal of national water
security. Some key dimensions are directly calculated from a set of indicators, while other key dimensions are
composed of sub-dimensions each containing a set of indicators. Indicators may contain more than one
parameter; see Table 13.
3. Urban - 5
Total 11 57
different.
58
representation of the water security of the country or river basin. The scores of the BWSI are given in Table 15
and can be visualized as described in the next section.50
Table 14: Water security index stage and criteria (after AWDO, 2013)
Index Stage Criteria
5 Model Sustainable financing for water security, environmental protection and management already
established
4 Effective Water security is given high priority in the national agenda; appropriate public investment in
water security; effective regulation and enforcement; public awareness and on-going behavioural
changes apparent
3 Capable Increasing levels of investment and strength of regulation and enforcement; water security and
environment recognized as priorities in the national development agenda; improving technical
and financial capabilities in addressing water-related issues
2 Engaged Need to invest in water security recognized, including investment in capacity-building programs;
on-going institutional development and strengthening; improving policy environment in which
water-related issues are addressed
1 Hazardous Inadequate levels of investment in water-related infrastructure and poor quality regulation and
enforcement result in hazardous levels of water security
The detailed computation is contained in a separate document titled 'Bhutan Water Security Index: Dimensions,
Indicators and Computations', a copy of which is included in the Volume 2 of this final report.
50 For additional details, refer to the standalone supporting documents entitled: (i) Bhutan Water Security Index System:
Software Requirements Specification and (ii) Bhutan Water Security Index System: User's Manual
51
For some of the indicators, values were estimated when the exact figures were not yet available from the district-level
sources. It is expected that, over time, the database on the indicators will be improved.
59
Figure 23: Visualisation of the national BWSI baseline scores for 2015
The size and shape of the diagram provide a good representation of the water security level in the country or
concerned basin, and can be tracked over time in accordance with the evolving IWRM process, which is
represented in Figure 24 as a spiral.
60
The goal of the National IWRM plan is to achieve water security for Bhutan. This is to be accomplished by better
coordination between the water users and key agencies that are managing the water resources. The Bhutan
Water Security Index is the mechanism proposed to be used for the envisaged coordination in planning and
management. In line with the GNHC terminology in the FYPs, Key Result Areas (KRAs), Key Performance
Indicators (KPIs) and Strategies have been identified along the structure of the BWSI. In other words, it is
proposed that the water security be adopted as National Key Result Area in addition to the 16 KRAs that have
already been defined under the planning mechanism established under the Gross National Happiness
Commission. The BWSI has 5 Key Dimensions, which would translate into 5 Sectoral Key Result Areas that would
be added to the 300 Sectoral Key Result Areas that are already in use in the FYPs.
The objectives of the NIWRMP are based on the five key dimensions of the BWSI. They correlate with the Sectoral
Key Result Areas in the FYPs and the extent to which the objectives are being accomplished are measured by
indicators. The KRAs and indicators are mostly self-explanatory and briefly explained below. The strategies
explain how the objectives of the key dimensions would be realized. A number of strategies are identified for
each Key Dimension, but the list is not meant to be exhaustive. Some duplication is unavoidable. Some indicators
in the BWSI are god given and not manageable, like rainfall variability. For planning purposes, these have been
61
replaced with indicators for which management interventions and targets can actually be set. The results are
presented in Table 16.52
52
For details on how these KRAs and KPIs are to be incorporated into the national planning and budgeting system, refer to
the standalone supporting document entitled: Integrated Water Resource Management in Bhutan: Possible entry points in
Development Planning and Budgeting System.
62
It follo s that these age ies a e ou d togethe i this o ept, although the e ai so e eig ithi thei
own domain. NECS is custodian of the water security system, and hence the coordinator for inputs by the
respective agencies. In essence, the water security dimensions and indicators provide the platform for assessing
64
the contribution of the agencies towards each of the dimensions as well as the overall national and basin-level
water security. The computed scores presented in the spider web diagram allow planners and decision makers
to visualize sectors contributions to the water security index thereby providing them with the basis for
prioritization in the planning.
65
Figure 25: Delineation of river basins for IWRM planning and management
As shown in Figure 24, parts of some districts spread over two basins. The assessed areas under each
hydrological basin and annual flow (MCM) for the management basins are given in Table 17.
53
Some overlap with the description of the institutional framework at the national level is inevitable.
66
10 Merak-Sakteng 137
Total 38,394 70,576
Flow in m3/s 2,238
It is neither necessary nor politically realistic to create unitary basin organizations to replace the role of water
resource management from existing administrative institutions. Standalone basin organizations would also be
against the concept of cross-sectoral i teg atio a d holisti ie s p opagated IW‘M.
The RBC framework and functions have been elaborated based on guidelines in the Water Act and Water
Regulation, and have been approved by NEC in their meeting held on 25 June 2015. It should be noted that an
RBC, which will be formed for each of the five management basins, may have sub-committees looking after
minor hydrological basins, or even at specific activities in sub-basin areas.54
The RBC will be supported by a Secretariat. From time to ti e, the ‘BC a su o fo o sultatio a ou il
consisting of invited representatives from Gewog-level administrations, NGOs, state enterprises, and other
relevant stakeholders to discuss specific issues or concerns.
The RBC for each management basin will be established officially by the NEC through the NECS. This has already
been done for the Wangchhu basin. The RBC will have a broad mandate to coordinate policies and actions
concerning basin plan coordination and management of water resources, including preparation and periodic
updating of the river basin management plan. From within the basin, it will be composed of incumbent
chairpersons of the district development councils (Dzongkhag Tshogdus), district governors (Dzongdags),
Mayors (Thrompons) and district environment officers (DEOs) who, in accordance with the Water Act, are
responsible for water concerns.
54
For additional details on the institutional set-up for forming the river basin committees, refer to the standalone supporting
document entitled: Coordination Framework and Terms of Reference for River Basin Committees.
67
The position of RBC chairperson will be rotated annually among the district governors covered by the basin, and
a staff member of the NECS-WRCD will be designated as permanent member secretary.
According to the Water Act (Chapter 6, Section 27) , members of the River Basin Committee (RBC) may broadly
eda f o Wate Use s Asso iatio s o Fede atio of Wate Use s Asso iatio s, h d opo e ge e atio
agencies, industries, drinking water supply and sanitation service providers, recreation and tourism operators,
registered environmental non-governmental organizations, traditional communities with particular regard to
those engaged in subsistence farming, and the Department of Forest and Park Services. However, these
stakeholders need not all be regular members of the committee so as to avoid overcrowding the RBC
membership. Individual stakeholders shall be invited by the RBC during deliberation of matters relevant to the
stakeholde s spe ifi o e s.
A diagram showing the structure and position of the River Basin Committee is shown in Figure 26.
Ideally, the RBC shall meet at least three times a year. Notices of meetings are to be sent out two weeks in
advance, and one week in advance if the meeting is urgent. The required quorum for meetings is two-thirds of
the RBC members. Two consecutive absences of an RBC member shall be grounds for reporting of such absence
to the NEC. Committee members may send representatives to attend RBC meetings, but not for two consecutive
meetings during the year. The RBC chairperson, upon advice of the Secretariat, may invite specific stakeholders
or resource persons to attend meetings if their participation is relevant to the meeting agenda (but they cannot
vote). Bi-annual reports to the NEC/NECS shall be submitted by each RBC on the 30th of June and 31st of
December.
68
With reference to the Water Act, the specific functions of the RBC are as follows:
69
a. Establish baseline data on the water security indicators for the basin, following the framework
set up by the NEC and GNHC for a national water security indicator system
b. Based on the basin plan implementation reports of the Dzongkhag and Thromde
administrations, consolidate data to periodically update the water security indicators for the
river basin, and report these to the NEC and GNHC, as well as to the basin consultative council
c. Facilitate the exchange of data and information among agencies operating in the river basin,
and among the district and Gewog level administrations
5. To help resolve cross-sectoral and Dzongkhag trans-boundary issues relating to water resources in the
basin
a. Serve as forum through which issues/disputes related to water sharing and distribution among
districts within the basin can be discussed and resolved in an informed and consultative
manner
b. Establish procedures/rules for hearing and resolving trans-boundary water allocation issues
c. Monitor and report to the NEC on adherence of parties to agreed trans-boundary water
resources sharing
6. To perform any such additional functions as the NEC may direct, related to water resources
management concerns in the basin.
A permanent Secretariat for each RBC will be established. NECS shall facilitate the setting up of the RBC
Secretariats and serve as the interim RBC Secretariat with support from the District Environment Officers (DEOs)
in each management basin. An independent Secretariat will take over responsibility from NECS-WRCD when
suitable provisions are available and with the agreement of NECS and the particular RBC.
The secretariat shall prepare the meeting agenda for the basin committee, gather information needed to brief
the committee on issues to be tackled, document proceedings, and consolidate the water management plan for
the basin (derived from the district and Gewog plans). As mandated by the RBC chairperson, the secretariat may
summon representatives from the sectoral competent authorities to serve as resource persons. The latter shall
give advice on technical matters, and ensure coordination of the basin plan with sector-level plans and programs
for water resources development and management. The Secretariat will draw support from sectoral Competent
Authorities on technical matters.
The RBC secretariat shall also act as an administrative support unit to the RBC. It will be responsible for following
through and monitoring implementation of measures authorized or directed by the basin committee; it will also
work with the district and Gewog administrations to monitor water use/issues in the basin, including water
infrastructure activities and related programs in the basin (in coordination with sectoral competent authorities).
The DEOs of respective districts in the basin will assist in carrying out Secretariat functions.
Under the supervision of the RBC, the Secretariat shall perform the following tasks:
1. Assist the Chairperson of the RBC in preparation of annotated agenda of RBC meetings, draft minutes
of the meetings and maintain records of RBC meetings.
2. Prepare and propose annual work plan and operational budget for the RBC, seek RBC approval and
submit to WRCD, NECS for timely inclusion in the annual budget proposal.
3. Assist the RBC in applying the water security performance indicator system for the basin.
4. Coordinate with the concerned district administrations and national sectoral agencies to ensure that
basin plan items are being implemented.
70
5. Advise the RBC in evaluating impacts of development plans or actions proposed by local administrations
and national sectoral agencies operating in the basin.
6. Assist the RBC in preparing water security and water-related reports to the NEC and GNHC.
7. Facilitate conveyance of advisories or directives of the RBC to the district and Gewog administrations,
as well as collate responses.
8. In coordination with the NECS, maintain a water database for the basin, and coordinate the updating
of information collected by local administrations and sectoral agencies operating in the basin.
9. Esta lish a k o ledge hu fo atte s pe tai i g to asi ate esou es a age e t a d
coordination.
10. Document successful IWRM interventions in the basin for reporting to the RBC, as well as dissemination
to national policy-makers, stakeholders and the media.
11. Facilitate networking and partnerships with NGOs, communities, state enterprises and private
organizations operating in the basin.
12. Identify needs and facilitate training and capacity building (with assistance from the NECS) among local
administration staff on integrated water resources planning and management.
13. Coordinate with the district and Gewog administrations to collect, compile, check, sort and analyse data
about the status of water resources in the basin, and the on-going implementation of basin plans.
14. Prepare necessary Monitoring and Evaluation forms and formats to collect data and information on the
status of water resources and water security in the basin.
15. Monitor performance of local administrations in implementing their assigned roles under the river
basin plan, and report to the RBC.
A proposed staffing of the Secretariat, which identifies positions and tasks, is provided in the RBC framework. 55
The Water Act requires that a River Basin Management Plan (RBMP) be prepared for each basin and mandates
the NEC, supported by the RBCs concerned, to prepare such plans.
• A National Integrated Water Resources Management plan shall be formulated for coordinated
development, management, conservation and efficient use of water resources.
• The NEC-Secretariat, assisted by competent authorities, shall prepare and periodically update a River
Basin Management Plan for each river basin.
• The NIWRMP shall provide binding guidelines for the preparation of RBMPs.
The Water Regulation adds that NECS, with the Competent Authorities, shall ensure that the NIWRMP is
mainstreamed into national and sectoral policies, plans and programs for the efficient, effective and sustainable
management of water resources, including watersheds and wetlands.
It also stipulates that NECS will designate major river basins for the purpose of preparing the RBMP for its
implementation by respective Competent Authorities. The NECS shall review and adopt River Basin Management
Plans and forward them to the Gross National Happiness Commission for mainstreaming into national plans.
55
Refer to supporting document titled Coordination Framework and Terms of Reference for River Basin Committees.
71
The Water Regulation also states that the Secretariat shall conduct an inventory of water resources, identify and
demarcate the river basins, identify water resources for drinking, irrigation, energy, industry or other uses, and
identify critical issues, gaps, and socio-economic concerns for the protection and conservation of water
resources.
The Water Act states that the RBMP shall contain at least the following elements:
56
For the plan prepared for the pilot Wangchhu river basin, refer to the standalone supporting document entitled:
Wangchhu Basin Management Plan 2016.
57
For details, refer to the standalone document entitled: Economic Analysis.
72
- appoint focal persons to take up the responsibility of coordinating collection and input of information
pertaining to the dimensions and indicators identified for the agency;
- update the information on an annual basis.
The NECS has the responsibility of ensuring proper administration and functioning of the online Bhutan Water
Security Information Management System:
The decision on clustering hydrological river basins into management units for the purposes of IWRM is expected
to be taken by the NEC before the end of the 11th FYP.
While it would be desirable for the remaining RBMPs to be prepared simultaneously, the task may also be
sequenced on the basis of fund availability, urgency of water issues in the basins and other priorities deemed
appropriate by the government.
There is a need for the NECS to support the Gewogs in gathering and reporting information (discussed further
in Section 7.11). It is recommended that each District Environment Officer be provided with an assistant who
can facilitate support to the Gewogs.
58
Refer to the supporting standalone documents entitled: (i) National Irrigation Master Plan and (ii) Irrigation Engineering
Manual, 2016.
74
establishment and operation of WUAs will need to become more formalized and codified. This is true especially
if organized water users require financial assistance, for example micro-financing from the Bhutan Development
Bank, to procure farming equipment or inputs; this requires the WUA to be a legal entity. Section 4.9 described
the recommended procedures for legalizing the status of WUAs through registration. The existing and upcoming
WUAs shall thus be formalized, registered and strengthened within a given time frame which is to be
incorporated in the planning process.
The WUAs will need to acquire the capacity to cope with their new tasks. The role of women in the decision-
making and implementation process will be enhanced. This will be reflected in the constitution and by-laws that
govern the operation of the WUAs. To that effect, it is recommended that DOA provide training on improved
irrigation practices, and that MoH provide training on sanitation and drinking water facilities to WUAs.
To keep momentum in IWRM, and for its effective implementation, the proposed increase in capacity of NECS
may be implemented by the end of the 11th FYP.59
This will require the Water Resources Coordination Division (WRCD) in NECS to enhance its coordination role
whereby it should create a platform for players to cooperate and interact to systematically plan, implement,
maintain and update information, and report. For this, the WRCD shall be re-organised and strengthened into
three major sections:
59
For details on the organizational assessment and capacity strengthening of the NECS to plan and coordinate IWRM
implementation, refer to the supporting standalone document entitled: Strengthening of the Water Resource Coordination
Division under National Environment Commission Secretariat.
75
iii. Coordinate with the basin committees/secretariats to collect, compile, check, sort and analyse
qualitative and quantitative data about the status of water resources and the on-going
implementation of basin plans and district/Gewog level activities.
The organogram is presented in Figure 27. As can be seen a total of 10 new posts are recommended to be
created.
Note: There are five existing staff members under WRCD - Chief, Deputy Chief, Environment Officer and two technicians.
1. Strengthening of the existing Irrigation Management Section at the central office with establishment of
three sub-units, as depicted in Figure 28. Each sub-unit will be comprised of one coordinator and two
officers, in total adding 9 staff at the central office.
60
For details on the organizational assessment and capacity strengthening of the DOA, refer to the standalone supporting
document entitled: Strengthening of the Department of Agriculture and Water User Associations.
76
Figure 28: Proposed units under the Irrigation and Water Management Section of the DOA
For the purpose of facilitating technical backstopping and coordination of planning, implementation, and
monitoring operation and maintenance of irrigation infrastructure projects, it is recommended that the
RDCs are designated to look after specific management basins as proposed below, see Table 18:
3. Establishment of Irrigation Water Management Units at the DoA Research and Development Centres to
facilitate research on best practices for water management in irrigation systems. 61
The 2014 Water Regulation called for setting up of irrigation water management units under the three
Research and Development Centres. Specifically, the regulation mandated MoAF to "institute an irrigation
water management unit under its three existing Research and Development Centres (RDC) to facilitate and
support irrigation development. Currently, however, there is only an average of three DoA Engineering
Division staff posted in each of the three RDCs. Setting up an irrigation management unit in four RDCs, with
at least 2 personnel assigned to the unit, entails adding 8 staff to the Engineering Division.
61
The details of the proposals are elaborated in the standalone supporting document entitled: Strengthening of the
Department of Agriculture and Water User Associations.
77
4. Moreover, it is proposed to designate the 4 Research and Development Centres to specific basin
management units: the new RDC in west Bhutan would look after the Amochhu and Wangchhu basins; the
RDC in Bhur would look after the Mangdechhu basin; the RDC at Bhajo would take care of the
Punatsangchhu-Aiechhu basin and the RDC in Wengkhar would take care of the Drangmechhu and Nyera-
Amari basin.
DHMS should be able generate hydro-meteorological information that is sufficiently detailed to represent
smaller geographical units (districts and Gewogs) throughout the country. Presently, 92% of the stations cover
o l a out half of the ou t s la d ass, i.e., a eas elo an elevation of 3,000 meters. Higher elevations are
thus significantly under-represented.
Based on the guidelines of the World Meteorological Organisation regarding the density of meteorological
stations, a mountainous country like Bhutan should have precipitation gauges for every 250 square kilometres
(or approximately 15 km apart, on average). This translates to 150 such stations to cover the country, which is
roughly 60% higher than the present station density.
Expanding the meteorological network to adequately cover elevations above 3,000 meters is important due to
the p oje ted i ease i p e ipitatio ith latitude pa ti ula l i Bhuta s id-zone), and associated with the
shift of the snow line northward because of global warming.
Groundwater and ambient water quality are presently not in the domain of any agency. DHMS staff would be
well poised to include them in their responsibilities.
It is proposed that DHMS will in the future provide hydrological and meteorological information to sectors other
than hydropower, such as NEC (for IWRM) and Agriculture.
The current location of the DHMS within the MoEA has raised concern as to whether, under such an
organizational set-up, the department is in an effective position to fulfil that role. The need to upgrade DHMS
into an independent institution is being taken up by the government but not yet in place as of April 2016. The
option of delinking the DHMS from the MoEA to establish it as a standalone service bureau needs to be pursued.
62
For details of the assessment conducted on the DHMS capacity, including recommendations for strengthening, refer to
the standalone supporting document entitled: Strengthening Bhutan's Capacity for Future Climate Modelling: A Proposal for
Strengthening Hydromet Services.
78
It is recommended to monitor the implementation of the new legal framework during the plan period of this
NIWRMP, particularly with respect to the issues identified in Section 4.2. The NECS should guide this monitoring
process in line with its overall coordination role. The yearly reports of the water-related institutions at all
government levels are important inputs for the collection of information about the implementation of the Water
Act and the Water Regulation. In addition, the NECS can initiate other activities such as workshops with relevant
stakeholders to create consensus about issues that need further improvement in the legislation. Based on that,
it would become clear which issues can be sufficiently resolved through amending only the Water Regulation,
and which issues are of such an importance that they need to be resolved at the level of the Water Act itself.
Another point concerns the relation between the Water Act and other water-related acts. It is important that
the Water Act and the water-related acts (as well as their underlying implementing regulations) are sufficiently
harmonized to avoid overlaps, contradictions or gaps. The overall conclusion of a desktop assessment carried
out in 2015 is that the Water Act and the existing water-related acts (and regulations) are in harmony. Most
issues are addressed in the acts consistently, though in some cases there are ambiguities that may cause
confusion – as stated in Section 5.2. On-going initiatives to revise the concerned water-related acts (such as the
Electricity Act) can be used to solve the ambiguities. 63
63
For additional details in the proposed harmonization of the IWRM legal framework, refer to the standalone supporting
document titled: Legal Aspects of Integrated Water Resource Management in Bhutan.
79
proposed that a study is commissioned to investigate ground water. Considering that the exercise entails huge
cost, it is recommended that the study be prioritized for southern foothills and the wider river valleys such as
Punakha and Paro.
80
References
Supporting documents produced under ADB CDTA (TA 8623-BHU)
EGIS and RSPN/ BhWP, 2016. Bhutan Water Security Index System: Software Requirements
Specification. A technical report prepared under ADB technical assistance to Bhutan: Adapting to
Climate Change through Integrated Water Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Bhutan Water Security Index System: User's Manual. A technical report
prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water
Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Bhutan Water Security Index System: Dimensions, Indicators and
Computations. A technical report prepared under ADB technical assistance to Bhutan: Adapting to Climate
Change through Integrated Water Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Capacity Development and Training Needs Assessment. A technical report
prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water
Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Climate Modelling and Assessment for Bhutan. A technical report prepared
under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource
Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Communications Plan to Support Bhutan's IWRM Process. A technical report
prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water
Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Coordination Framework and Terms of Reference for River Basin Committees.
A technical report prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through
Integrated Water Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Database backup and restore User's Manual. A technical report prepared
under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource
Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Economic Analysis for National Irrigation Master Plan. A technical report
prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water
Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. GIS Software Installation User Manual (all in one). A technical report prepared
under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource
Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Hydrological Modelling and Assessment for Bhutan. A technical report
prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water
Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Integrated Water Resource Management in Bhutan: Possible entry points
in Development Planning and Budgeting System. A technical report prepared under ADB technical
assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource Management.
Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Integrated Water Resource Management in Bhutan: Stakeholder Analysis. A
technical report prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through
Integrated Water Resource Management. Thimphu Bhutan.
81
EGIS and RSPN/ BhWP, 2016. Irrigation Engineering Manual. A technical report prepared under ADB
technical assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource
Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Interactive Web GIS User's Manual Legal Aspects of Integrated Water
Resource Management in Bhutan. A technical report prepared under ADB technical assistance to
Bhutan: Adapting to Climate Change through Integrated Water Resource Management. Thimphu
Bhutan.
EGIS and RSPN/ BhWP, 2016. Legal Aspects of Integrated Water Resource Management in Bhutan. A
technical report prepared under ADB technical assistance to Bhutan: Adapting to Climate Change
through Integrated Water Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. National Atlas of River Basins and Water Infrastructure in Bhutan. A
technical report prepared under ADB technical assistance to Bhutan: Adapting to Climate Change
through Integrated Water Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. National Irrigation Master Plan. A technical report prepared under ADB
technical assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource
Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Social Aspects of Water Resource Management in Bhutan. A technical
report prepared under ADB technical assistance to Bhutan: Adapting to Climate Change through
Integrated Water Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Strengthening Bhutan's Capacity for Future Climate Modelling: A Proposal
for Strengthening Hydromet Services. A technical report prepared under ADB technical assistance to
Bhutan: Adapting to Climate Change through Integrated Water Resource Management. Thimphu
Bhutan.
EGIS and RSPN/ BhWP, 2016. Strengthening of the Department of Agriculture and Water User
Associations. A technical report prepared under ADB technical assistance to Bhutan: Adapting to Climate
Change through Integrated Water Resource Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Strengthening of the Water Resource Coordination Division under National
Environment Commission Secretariat. A technical report prepared under ADB technical assistance to
Bhutan: Adapting to Climate Change through Integrated Water Resource Management. Thimphu
Bhutan.
EGIS and RSPN/ BhWP, 2016. Water Balance Calculator Users Manual. A technical report prepared under
ADB technical assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource
Management. Thimphu Bhutan.
EGIS and RSPN/ BhWP, 2016. Thematic Atlas of Wangchhu Basin. A technical report prepared under ADB
technical assistance to Bhutan: Adapting to Climate Change through Integrated Water Resource
Management. Thimphu Bhutan.
Bajrachary, S. R., S. B. Maharjan and F. Shrestha. 2014. The status and decadal change of glaciers in Bhutan
from the 1980s to 2010 based on satellite data. Annals of Glaciology 55(66) 2014 doi:
10.3189/2014AoG66A125.
Data collection survey on renewable energy in the Kingdom of Bhutan, JICA-DRE, MoEA, 2013.
82
Eleventh Five Year Plan 2013-2018, Gross National Happiness Commission, Royal Government of Bhutan.
Moool, P., D. Wangda, S. Bajracharya, K. Kunzang, D. Gurung and S. Joshi. Inventory of Glaciers, Glacial Lakes
and Glacial Lake Outburst Floods, Monitoring and Early Warning Systems in the HKH Region (Bhutan).
ICIMOD, Kathmandu, Aug 2001.
Rapid classification of watersheds in the Wangchhu basin, SNV-WMD, DOFPS, MOAF, 2011.
UN-Water: http://www.unwater.org
83
Appendices
84
Districts Area (Sq.Km) Wangchhu Punatsangchhu Mangdechhu Drangmechhu Amochhu Aiechhu Nyera Amachhu Total
% of district % of basin % of district % of basin % of district % of basin % of district % of basin % of district % of basin % of district % of basin % of district % of basin % of district
Thimphu 1792 81.2% 31.7% 18.8% 3.5% 100%
Gasa 2951 100.0% 30.7% 100%
Punakha 1110 100.0% 11.5% 100%
Wangdue Phodrang 3977 74.3% 30.7% 26.1% 13.6% 100%
Tsirang 638 100.0% 6.6% 100%
Dagana 1713 4.0% 1.5% 95.2% 17.0% 0.8% 0.7% 100%
Trongsa 1814 100.0% 23.8% 100%
Bumthang 2667 100.0% 35.0% 100%
Zhemgang 2416 87.2% 27.6% 12.8% 3.6% 100%
Lhuentse 2851 100.0% 33.4% 100%
Monggar 1940 100.0% 22.7% 100%
Trashi Yangtse 1447 100.0% 17.0% 100%
Trashigang 2198 58.1% 15.0% 41.9% 32.9% 100%
Pema Gatshel 1022 69.2% 8.3% 30.8% 15.9% 100%
Chhukha 1,880 63.3% 25.9% 36.7% 21.2% 100%
Haa 1,905 31.0% 12.9% 69.0% 40.3% 100%
Paro 1,287 100.0% 28.0% 100%
Samdrup Jongkhar 1,877 100.0% 67% 100%
Samtse 1,256 100.0% 38.5% 100%
Sarpang 1,655 100.0% 83.4% 100%
Area / % 38395 4592.0 100.0% 9618.8 100.0% 7625.1 100.0% 8531.0 100.0% 3259.5 100.0% 1983.9 100.0% 2797.4 100.0%
85
There are more than 15 key institutions in Bhutan which have a stake in IWRM. Their respective roles have been
defined in Chapter 3 of the Water Act and in Chapter 2 of the Water Regulation. The table below briefly describes
the primary mandate of each of these institutions and their specific IWRM roles with regard to (i) policy and planning,
(ii) coordination and regulatory powers, (iii) water services delivery, and (iv) information management/reporting and
capacity building.
1. Ministry of MoAF is the Competent Authority on irrigation, watershed and wetland management. It is
Agriculture and responsible for development of irrigation systems and management of watersheds
Forests (MoAF) throughout the country. The Engineering Division of the ministry provides engineering
services to local administrations for design and development of irrigations systems. The
Watershed Management Division (under the Department of Forest and Park Services) is
tasked to categorize watersheds, prepare management plans, and implement them in
collaboration with stakeholders.
WRM policy and planning role: Coordination and Regulatory role:
• Formulate, implement and periodically • Ensure the protection, conservation and
review a comprehensive National Irrigation management of watersheds to sustain
Policy water supply and other environmental
• Develop and implement watershed and services
wetland management plans • Promote payment for environmental
• Identify watershed areas that require services mechanism to support
protection, conservation and management watershed management programs
for sustainable supply of water; • In consultation with NECS, develop and
• Conduct feasibility studies on new issue quality standards for irrigation
irrigation systems water discharge
Water service delivery role: Information, reporting, research and
• Ensure that water abstraction for irrigation capacity-building role:
is in line with NIWRMP • Develop comprehensive inventory on
• Design irrigation water conveyance irrigation systems in the country and
infrastructure and implement these update annually
optimize water use efficiency • Identify cost effective irrigation
• Ensure reliable and efficient water supply technologies and encourage adoption
system for cropping intensification and • Promote cropping patterns and land use
diversification management suitable to water
• Ensure that the concept of eco-efficient availability conditions
water infrastructure is followed while • Conduct seminars or training for
developing irrigation systems members of the irrigation WUA on
• Facilitate the formation and registration of efficient water management
an irrigation WUAs and monitor them • Explore alternative water resources like
rain water harvesting and hydropower
reservoirs
• Involve Civil Society Organizations to
86
projects
• Conduct studies on glacial dynamics for
GLOFs
• Submit annual report to the NECS on
implementation and enforcement of
Water Act and Regulation, including
difficulties, issues and challenges met
3. Ministry of The MoE does not have direct water management and service delivery mandates
Education (MOE) specified in the Water Act and the Water Regulation. Its main role, as one of the
competent authorities mentioned in the Water Act, is to promote awareness of water-
related issues among the general public.
WRM policy and planning role: Coordination and regulatory role:
None • Coordination information gathering for
educational and public awareness-raising
purposes
Water service delivery role: Information, reporting, research and
• None capacity-building role:
• Collect information on water resources
from other Competent Authorities and
incorporate these into its education
programs and curriculum
• Conduct educational activities to
sensitize and create awareness among
the general public on the importance of
water resources management
• Submit annual report to the NECS on
implementation and enforcement of
Water Act/Water Regulation, including
difficulties, issues and challenges met
4. Ministry of Health Ministry of Health is responsible for the overall planning, implementation and
(MoH) management of infrastructure for drinking water supply and sewage management for all
rural areas, which it undertakes in collaboration with local governments. It is also
mandated to monitor quality of drinking water. MoH is mandated under the Water Act
and the Water Regulation to mainstream water resources management in its policies,
plans and programs. Although spring sources are to be given preference as a drinking
water source, the ministry is mandated to explore alternative drinking water resources
like rainwater harvesting and tapping of hydropower reservoirs.
WRM policy and planning role: Coordination and regulatory role:
• Review existing status of drinking water • Assist NECS in developing and revising
supply systems in rural areas drinking water quality standards
• Develop national master plan for rural • Designate focal persons to monitor
drinking water and wastewater water quality standards in Thromde and
management (with emphasis on spring rural areas.
sources)
• Develop, issue and revise guidelines on
ate safet pla s a d e o-effi ie t
water infrastructures
Water service delivery role: Information, reporting, research and
88
89
90
64 The Government Performance Monitoring System has come into practice, but PLAMS has not been abandoned.
92
93
94
to pass laws. Gewogs are further subdivided into Chiwogs, which are the equivalent of
municipalities or cluster of villages. There are generally 5-6 Chiwogs in each Gewog. The
Gup and Tshogpas prepare proposals for rural infrastructure in the five-year development
plans and they organize local projects. They also settle community disputes (including
water-related disputes), and decide the use of community resources including land and
water. A Gewog Administrative Officer (GAO) plays a key role in initiating and facilitating
the annual Gewog-level planning process.
WRM policy and planning role: Coordination and regulatory role:
• Encourage the adoption of appropriate • Facilitate formation of WUAs and assist
drinking and irrigation technologies and in their registration with the Gewog
good water management practices administration
• Assist communities in identifying and • Ensure all water sources for drinking and
conducting feasibility studies on new irrigation are registered with the Gewog
drinking or irrigation water system or administration
maintenance of the existing infrastructure • Provide liaising services between
• Work with competent authorities in community and Dzongkhag
planning drinking and irrigation water Administration or Competent Authorities
projects on planning, execution and monitoring
of drinking and irrigation water systems
• Coordinate skill development activities
for the members of registered WUAs
• issue permit for water abstractions and
use of source within their jurisdiction not
requiring an Environmental Clearance
Water service delivery role: Information, reporting research and
• Implement and monitor national drinking capacity-building role:
water and irrigation policies, following • Monitor and evaluate drinking and
procedural manuals issued by Competent irrigation water programs
Authorities • Develop and maintain separate
• Ensure regular maintenance of water inventories on irrigation and drinking
supply systems water systems
• Ensure effective implementation of the • Compile and submit periodic progress
Water Safety Plan reports to the Dzongkhag Administration
• Assist Competent Authorities in the day- on drinking water and irrigation facilities
to-day supervision of water infrastructure • Maintain records of WUAs and make
construction and maintenance works these records available to relevant
Competent Authorities for technical or
financial assistance
• Cooperate and assist other Competent
Authorities in research activities on
drinking or irrigation water management
systems in the Gewog
• Submit annual report to the NECS on
implementation and enforcement of
Water Act and Regulation, including
difficulties, issues and challenges met
14. Dzongkhag Water Under the Water Regulation, for the purpose of proper and effective protection and
Management management of water resources at Dzongkhag level, the existing Dzongkhag Environment
Committee Committee (DEC) shall, with additional members as may be necessary, function as the
95
96
• Ensure (enforce national policy) that every water availability to admit new water
household belonging to the WUA has users to its Association, and if there is no
equitable and fair access to drinking and/or such expertise at the Gewog level, it will
irrigation water supply and that no person request Dzongkhag Administration for
is arbitrarily denied basic daily water needs technical assistance
• Determine and adopt water user fees that • Admit or decline the admission of new
commensurate with the services rendered users to the WUA, depending on water
by its members availability at source and carrying
• Exercise other powers and functions as capacity of the water services
may be delegated by a Competent infrastructure
Authority to the WUA • Issue letter of consent to temporary
ate use s f o the WUA s ate
facility
• Request intervention of Gewog
Administration when there are undue
developmental activities being sighted in
and around its water source
• Federate with other WUAs to improve
water resource management
• When necessary, invite district forest
officer, health worker or engineers to
attend WUA meetings for technical and
other support
Water service delivery role: Information, reporting, research and
• Mainly through water allocation and capacity-building role:
resolution of water disputes • Keep records of irrigable land holdings of
• Appoint one or more negotiators to settle WUA members and means of water
disputes amicably before considering to distribution
render decision by casting votes by its users • Maintain records of minutes of its
• Decide on punitive actions for members meetings and decisions taken by the
failing to comply with the standing rules of Association
the Association • Keep books of accounts on the money
• Hear and decide on disputes between or received and disbursement made by the
amongst its members relating to water and Association
infrastructure use • Exchange information with WUA
• Allocate and maintain a water tap point, at federation
a strategic location within a group of
households, for fire emergency purposes
• Take necessary measures for the efficient
use of water
• Appoint water guard for irrigation and/or
drinking water protection
98
Appendix 3: Bhutan Water Security Index- Description of Key Dimensions and Indicators
Key Dimension 1: Improve and protect the drinking water supply, sanitation and hygiene in rural
areas
KD1 assesses the extent to which rural household water and sanitation needs are met, and improved hygiene for public health is provided in all communities. It
is a composite of three main sub-indices (i) access to piped water supply (%), (ii) access to improved sanitation (%), and (iii) hygiene (incidence of diarrhoea per
10,000 people).
Indicators
3. Incidence of diarrhoea
Diarrhoea is an infectious disease that is related to hygiene and thus related to proper sanitation. It is expected that the incidences of diarrhoea will
reduce when a larger part of the population is using proper (sealed) sanitation.
Key Dimension 2: Maximize the economic benefit of water resources in a sustainable way
Water is an essential input to grow food and fibre, for many industrial processes, and to generate the energy required by society. The uses of water in these
sectors is increasingly recognized as being closely related and can no longer be addressed in isolation from each other. Debate about the water-food-energy
nexus has begun to raise general awareness about the critical interaction among water uses to support economic activities.
99
Economic water security measures the productive use of water to sustain economic growth in the food production, industry, and energy sectors of the economy.
The indicators are aggregates of multiple sub-indicators, defined to highlight key aspects of water security in a particular sector as described in the following
sections. There is debate (also in AWDO) to what extent the indicators are applicable at basin level – beside national level.
Indicators
65Other water uses are vulnerable to rainfall variability as well. Given the greater role of water in agriculture and that agriculture, after the environment, is usually the residual water user, agriculture
can be considered particularly vulnerable.
100
Indicators
3. Percentage of cereal consumption that is imported out of the total cereal consumption
This indicator has an inverse appraisal: lower volumes of cereal imports mean higher self-sufficiency is achieved in line with the national policies.
Indicator
101
Indicators
1. Percentage of volume of trans-boundary inflow compared with total annual flow (internal renewable water resources + incoming water)
Hydropower generation is to some degree dependent on inflow from China in Amochhu and Drangmechhu basins, leaving Bhutan vulnerable. This
aspect is monitored in this indicator. It has an inverse appraisal: the lower the value, the more secure is hydropower generation.
4. Hydropower revenue (in million Nu per amount of water used in MCM (productivity)
Like for agriculture and industries, the contribution of hydropower to GDP is monitored.
Key Dimension 3: Improve and protect urban drinking water supply, and improve effectiveness of
urban sanitation and drainage
The urban water security indicators measure the creation of better water management and services to support vibrant and liveable water-sensitive cities. A
water-sensitive city is defined as a city that integrates water supply, sewage, storm-water, and the built environment; a city that respects the value of urban
waterways; and a city where citizens value water and the role it plays in sustaining the economy, environment, and society (Brown, Keath, and Wong 2009).
The urban water security index is a composite of four sub-indices relating to water supply coverage, wastewater treatment, garbage collection (to keep water
ways clean) and urban flooding.
102
Indicators
4. Percentage of urban population with (at-least weekly) waste collection and disposal service
When solid waste is not properly collected and disposed of, it will often end-up in the open water ways and spoil the quality of the water. This aspect is
more pronounced in urban areas, where solid waste collection and disposal can be more efficiently organized than in thinly populated rural areas.
Rivers have become vulnerable to pressures from pollution, diminished flows, watershed deterioration, and increasing populations and industrial activities. The
environmental water security indicator assesses the health of rivers and measures progress on restoring rivers and ecosystems to health on a national and
regional scale. The environmental water security index is composed of four themes – watershed disturbance; pollution; water resource management; and biotic
factors.
103
Indicators
3. Livestock density
Free roaming cattle have a disturbing impact on the watershed by trampling and compacting the soil, browsing the vegetation and thus increasing
rainfall runoff and erosion. The cattle population density is a measure to monitor this effect.
Sub-dimension 2: Pollution
This sub-dimension encompasses a number of pollutants that have well known direct or indirect effect on water resources and/ or bio-diversity. Indicators
include (i) soil salinization; (ii), nitrogen; (iii) phosphorus; (iv) mercury deposition; (v) pesticide loading; (vi) sediment loading; (vii) organic loading (as Biological
Oxygen Demand, BOD; (viii) potential acidification; (ix) thermal alteration. As can be seen below, not all these drivers have been adopted in the BWSI.
104
Indicators
Indicators
1. Dam density
Dams in rivers disrupt the free movement of migrating fish species. The reservoirs change the temperature of the water as well as the sediments load.
These factors have an impact on the environment. Therefore the density of dams in the river system is an indicator for water resources management.
A high value has a low appreciation.
105
Indicators
Reduce socio-economic loss resulting from (climate change induced) water-related disasters, particularly GLOFs, landslides, and monsoon floods/ droughts.
There is an increasing global consensus on the importance of water-related risk management. Risk management requires quantification of water-related disaster
losses at a finer temporal and spatial resolution than currently available for the analysis of trends. Such analysis will provide estimates of vulnerability and
resilience and allow assessment of the effectiveness of mitigation policies and investments. The BWSI focuses on: i) Hazards and threats; ii) Sensitivity to
exposure; and iii) Coping and adaptive capacity.
The complexity of assessment of water-related disasters is such that the computations of the resilience indicators are the most complex in the AWDO water
security index. In fact, these could not be replicated and therefore the BWSI uses a simple linear scoring.
NB: Many of the phenomena captured in the indicators below cannot be planned as such, but their implications can be planned for. That is why the following
indicators have been adopted in the BWSI.
Indicators
107
Indicators
3. Deviation from constitutionally mandated forest cover (60%) at national and basin level
This indicator monitors the deviation from the mandated forest cover as a measure of sensitivity to extreme weather events.
4. Population density
Obviously, a high population density is more sensitive to exposure to extreme weather events than a low population density.
108
Indicators
1. Governance
Number of basins with functional RBCs with:
• Secretariat formed
• RBMP prepared or under implementation
• At least one RBC meeting held /year
2. Poverty rate
Poor communities are less capable of coping with disasters and adverse conditions. Hence poverty rate is adopted as an indicator in the BWSI.
6. Reservoir capacity
Reservoirs will dampen runoff waves in the rivers, hence a high reservoir capacity is a good way to buffer the peak flows.
109
11. Education level of women for enhanced coping capacity (with CC impacts)
Similar to above. Women can direct households/ children in case of adverse conditions. A better education will enable to better cope with this
task.
110
111
112
Grand Total=57
113
Type of Training Topics Participants/ Relevant agencies Schedule Est. Budget (US $) Logistic Requirements
IWRM principles - IWRM history/rationale; NECS, GNHCS, MoAF, MoEA, MoE, MoH, Once every 25000 WRCD, NECS to prepare
and practices MoHCA, MoWHS, CSOs, Dzongkhag Five Year training plan in consultation
- IWRM principles and practices;
Tshogdu, Gewog Tshogde, District Water Plan period with GNHCS, identify venue
- Multi-disciplinary/stakeholder context of IWRM; management Committees, RBCs, WUAs. for each river and relevant in-country
basin resource persons.
- River basin as basic unit for IWRM; Target: 30
114
Participation in Global Water Forums WRCD, NECS staff (2) and selected focal Annually 15,000 - WRCD, NECS to plan, form
global and regional persons of competent Authorities (3) and lead delegation;
- World Water Forums
Water forums and
- inclusion of stakeholder in
conferences - Stockholm Water Week
delegation;
- Netherlands Water Learning Week
- identify funding.
Regional Water Forums WRCD, NECS staff (2) and selected focal Annually 15,000
persons of competent Authorities (3)
- India Water Week
- Singapore Water Week
- ADB Water Week
Study tour Study tour for selected members of the Wangchhu Basin Selected members of Wangchhu RBC 2016 32000
Committee (Total 14)2016
115
116