This section analyses Wangdi’s implemented policies during his tenure as Secretary of the National Environment Commission. Firstly, the background to Bhutan’s previous advancements in the field is identified, which showcases the tools Wangdi had to become the architect of the modernisation of Bhutan’s environmental policies. This is followed by three of his main policy contributions with a detailed analysis of their content. Later on, in the impact section of this report, the ramifications of these policies are explored.
Country’s advancement background
Wangdi’s ability to transform Bhutan was built on pre-existing policies that were introduced before he became secretary. The national strategy ‘Middle Path’, introduced in 1998, aimed to raise living standards without compromising people’s cultural integrity. However, efforts to approach environmental sustainability began in the 1970s when the country started opening up to international trade. During this period, King Jigme Singye Wangchuck introduced the concept of GNH, which became the guiding principle for the country’s development. This way, rather than creating protection laws merely directed at reducing environmental damage, Bhutan integrated environmental development as a core national strategy, ensuring all development efforts aligned with this principle. This approach allowed for sustainable growth that prioritised environmental preservation and cultural integrity.
Through this approach, Bhutan established a system of national protected areas, covering 38% of the country’s landmass, as reviewed by the World Wildlife Fund (WWF). These newly designated areas were protected by legal frameworks to ensure conservation goals. Additionally, Bhutan focused on forest management by implementing restrictions on tree felling and commercial logging. This effort was solidified with the 1995 Forest and Nature Conservation Act which aimed to maintain 60% of the land as forest cover (seen in Figure I). This goal was later enshrined in Article 5 of the 2008 Constitution.
While such measures are not typical in Western countries, where they are perceived as constraints on economic growth, Bhutan’s approach has allowed employment opportunities for the rural poor and supplied them with fodder, fuel wood, and building materials. The Forest and Nature Conservation Act also provided crucial protection and maintenance of soil and water, essential for Bhutan’s reliance on hydropower. Especially important given that the hydropower industry contributes about 20% of the country’s GDP through domestic use and exports. Moreover, water conservation efforts have significantly improved access to drinking water, with the percentage of population increasing from 45% in 1990 to 93% in 2007.
Furthermore, there was a focus on economic development through environmental conservation with the Bhutan Trust Fund for Environmental Conservation (BTFEC). Through it, Wangdi played a key role in raising USD 20 million to finance conservation plans. Since then, it has been focused on providing grants for long-term conservation and managing finance in the effort of conservation. Multiple agencies oversee the assessment of environmental strategies that have allowed for Bhutan’s success to become mainstream, such as the Strategic Environmental Assessment (SEA) regulation agency. Another key agency is the GNHC, which Wangdi also played an important role in, as he was in charge of coordinating all sectoral policies and programmes, such as integrating environmental considerations into all sector development plans.
Additionally, the country’s reliance on hydroelectricity has allowed it to closely link conservation with economic development, as more than half of the GDP can be attributed to sectors dependent on natural resources. Therefore, Bhutan had an economic incentive to preserve and protect the environment as a key to reducing poverty. Lastly, Bhutan has taken a cautious approach to tourism, implementing what they call ‘controlled tourism’, by overpricing tourist spots and implementing capacity constraints on tourism infrastructure
National Environment Strategy of 2020
Building on the past policies, Wangdi has emerged as the architect for modernising Bhutan’s environmental policy and action. Even though he had been involved in key stakeholder organisations, he had never directly implemented policies under the Royal Government of Bhutan. However, as he found himself in a position of leadership, with a myriad of issues to tackle, he decided to revisit the iconic ‘Middle Path’, and create a new policy; the National Environment Strategy of 2020. This policy framework is focused on balancing conservation and development by focusing on four strategic objectives: Land, Air, Water, and Life.
In the land-related section, policies outline issues stemming from a lack of agricultural land which threatens food security, due to upward trends in urbanisation and infrastructure development. It then creates eight strategic objectives based on the identified issues, which thoughtfully are assessed and targeted, giving specific recommendations and solutions to the issues. For example, in Strategic Objective One; Plan for Balanced Land Use, Bhutan devises solutions such as leasing out state land, using Land Use Certificates (LUC) to create job opportunities for the youth.
Moreover, the document further strengthened the environmental impact assessment and SEA regulations by creating an Environmental and Social Management Regulation (ESMF) to ensure stricter adherence to the legislation. Lastly, the policies ensure optimum utilisation of arable land by improving government support to farmers when possible.
The rest of the objectives focus on enhanced disaster preparedness and response, creating specific plans like issuing early warnings to vulnerable communities, and on combating land degradation by reducing it and restoring the degraded landscapes. Focus on the promotion of environmentally friendly roads and infrastructure is also taken into consideration by creating climate-proof transport, which will substantially reduce the cost of rebuilding. Additionally, efforts are combined to achieve sustainable and climate-resilient agriculture, manage mineral extraction wisely, ensure green and sustainable settlements, and manage waste responsibly.
Objective two on water is equally a central part of the strategy. It places importance on the agriculture sector, which consumes over 90% of water resources, employs over half the population, and contributes 15% to the country’s GDP. They highlight the main challenges surrounding the lack of infrastructure, such as an underdeveloped sewage treatment network, water shortages, and challenges related to climate-intensified disasters. Based on existing policy, Wangdi was able to institutionalise and implement integrated water resource management, prevent freshwater pollution, improve access to safe drinking water and sanitation, ensure sustainable development of hydropower and ensure efficient use of water resources. The impact of the water strategy will be examined in the following section.
The development of these comprehensive solutions, which address the issue from all angles, demonstrates that Wangdi’s contribution to this policy is both well-rounded and thoroughly considered. Similarly, for the other three focuses, Air, Water and Life, there are detailed objectives designed to tackle these issues in depth. Therefore, by revisiting the ‘Middle Path’, Wangdi has been able to successfully balance a policy on conservation and development, underscoring his significant contributions to Bhutan’s environmental conservation efforts.
Second Nationally Determined Contribution 2021
Another policy in which Wangdi played a major role was the Second Nationally Determined Contribution (NDC) to the UNFCCC in 2021. Not only does it restructure all of the institutions created to ensure the conservation of Bhutan as a climate-neutral country, but also analyses an adaptation component for issues like Covid-19, as well as means of implementation.
The NDCs are reports that countries make every five years, as required per the Paris Agreement, as climate action plans to reduce emissions for the United Nations in compliance with the 2030 Agenda. Given Wangdi’s financial background and his time at the BTFEC, he knew that international support and investment were the key to achieving his goals, which is why this policy document begins with a call from Bhutan ‘on the international community to continue and enhance the support for Bhutan’s efforts to mitigate and adapt to climate change’. It then explains the mitigation component of the policy, detailing the implementation of frameworks such as forest conservation, Low Emission Development Strategies (LEDS) for food security, industries, surface transport, waste management, and alternative renewable energy. For example, among the mitigation measures of LED for food security is the switch from synthetic to organic fertilisers at the rate of 5% annually, increased biomass through increased perennial crop production and improved dairy cattle production through breed improvement and feeding management.
Additionally, it provides an overview of the implementation methods and the financial aspects of the projects, noting that funding will be sourced nationally as much as possible. However, they acknowledge that ‘as Bhutan is a landlocked LDC with limited financial resources, international financing will be needed to implement the actions in the NDC over the next 10 years,’ clearly indicating the necessity for external support..
First National Adaptation Plan 2023
The third important policy which Wangdi implemented is the First National Adaptation Plan of 2023, which was developed to identify medium and long-term adaptation needs, by aiming to build adaptive capacity and resilience while integrating climate change adaptation needs. It builds from the 2020 NES, by expanding focus to sectors like water, agriculture, forest and biodiversity, energy, and health. Wangdi went on record, ‘I believe that the information provided in this report will be useful for both national and international policymakers, development partners and the private sectors to mobilise potential resources of global climate initiatives’.
The policy outlines a projected temperature rise of 0.8°C– 1.6°C by 2050, and a 1.8°C– 2.8°C by the end of the century, along with an increase in precipitation from 10-30% in annual rainfall. Three climate scenarios stem from this to assess future risks and hazards across six vulnerability sectors. Adaptation options, namely crop modelling and fire risks, including controlled burning and research into optimal burning cycles. The health sector’s future risk assessments come with recommendations to mitigate outbreaks of dengue, malaria and diarrhoea. With regard to water management, the strategic objective is to improve the natural capacity for infiltration, resulting in a resilient functioning ecosystem for water services. In agriculture and livestock, the strategic objective is to secure natural resources for livestock grazing, to reduce farmer’s vulnerability. The forest and biodiversity section includes methods to strengthen forest fire management, while the health section aims to build resilience of critical public health systems and infrastructure and long-term climate risks.
This detailed analysis highlights Bhutan’s proactive efforts towards global warming. Wangdi stresses in the plan that even though Bhutan is climate-negative and therefore contributing to the regulation of atmospheric CO2 levels, it is still subject to the impacts of climate risks associated with the man-made trend of global warming.
All three sections showcase the imperative need for Bhutan’s adaptation regarding the risks posed by global warming. Wangdi’s commitment to address all possible solutions and assess the given risks to anticipate the problems that Bhutan will face in the future showcase the crucial steps policymakers in developing countries have to take. The following section will dive into the impact these policies have had in Bhutan.
IExRAIA Summer Research Program:
This article is an excerpt from a report on Sonam Phuntsho Wangdi produced as part of an RAIA research program on climate leaders. For a full picture of Ruto’s climate leadership read the full report. This project was fully financed by IE University’s IE School of Politics, Economics and Global Affairs.
Authors: Sophia Rathleff & Maria de la Paz Gonzalez
Editor: David Salinger
Project Lead: Francia Morales
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