Download Bhutan Public Administration Profile

KINGDOM OF
BHUTAN
Public Administration
Country Profile
Division for Public Administration and Development Management (DPADM)
Department of Economic and Social Affairs (DESA)
United Nations
February 2005
All papers, statistics and materials contained in the Country Profiles express entirely the opinion of the mentioned authors.
They should not, unless otherwise mentioned, be attributed to the Secretariat of the United Nations.
The designations employed and the presentation of material on maps in the Country Profiles do not imply the expression
of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country,
territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries.
Table of Contents
Table of Contents........................................................................................... 1
Bhutan ......................................................................................................... 2
1. General Information ................................................................................... 3
1.1 People.................................................................................................. 3
1.2 Economy .............................................................................................. 3
1.3 Public Spending ..................................................................................... 4
1.4 Public Sector Employment and Wages....................................................... 4
2. Legal Structure .......................................................................................... 5
2.1 Legislative Branch.................................................................................. 5
2.2 Executive Branch ................................................................................... 6
2.3 Judiciary Branch .................................................................................... 6
2.4 Local Government.................................................................................. 6
3. The State and Civil Society .......................................................................... 8
3.1 Ombudsperson ...................................................................................... 8
3.2 NGO participation .................................................................................. 8
3.3 Civil Society .......................................................................................... 8
4. Civil Service .............................................................................................. 9
4.1 Legal basis............................................................................................ 9
4.2 Recruitment .......................................................................................... 9
4.3 Promotion............................................................................................. 9
4.4 Remuneration ....................................................................................... 9
4.5 Training................................................................................................ 9
4.6 Gender................................................................................................10
5. Ethics and Civil Service ..............................................................................11
5.1 Corruption ...........................................................................................11
5.2 Ethics..................................................................................................11
6. e-Government ..........................................................................................12
6.1 e-Government Readiness .......................................................................12
6.2 e-Participation ......................................................................................13
7. Links .......................................................................................................14
7.1 National sites .......................................................................................14
7.2 Miscellaneous sites................................................................................14
1
BHUTAN
Bhutan
Click here for detailed map
Government type
Monarchy; special treaty
relationship with India
Independence
..
Constitution
No written constitution or bill
of rights; in 2001 the King
commissioned the drafting of
a constitution, and in
November 2004 presented a
draft to the Council of
Ministers
Legal system
Source: The World Factbook - Bhutan
In 1907, Ugyen Wangchuck was elected as the
hereditary ruler of Bhutan crowned on December
17, 1907, and installed as the Druk Gyalpo
(Dragon King).
Based on Indian law and
English common law; has not
accepted compulsory
International Court of Justice
jurisdiction
Administrative divisions
18 districts
Source: The World Factbook - Bhutan
King Ugyen and the British signed the Treaty of Punakha in 1910, which provided
that British India would not interfere in the internal affairs of Bhutan if the country
accepted external advice in its external relations. When Ugyen Wangchuck died in
1926, his son Jigme Wangchuck became the next ruler, and when India gained
independence in 1947, the new Indian Government recognized Bhutan as an
independent country.
In 1949, India and Bhutan signed the Treaty of Peace and Friendship. Succeeded in
1952 by his son Jigme Dorji Wangchuck, Bhutan began to slowly emerge from its
isolation and began a program of planned development. During his tenure the
National Assembly was established and a new code of law, as well as the Royal
Bhutanese Army and the High Court.
In 1972, the present king, Jigme Singye Wanchuck, ascended the throne at age 16.
He has emphasized modern education, decentralization of governance, the
development of hydroelectricity and tourism and improvements in rural
developments.
Source: U.S. Department of State - Bhutan
2
1. General Information
1.1 People
Bhutan
Nepal
Tajikistan
Population
1
a
Total estimated population (,000), 2003
2,257
25,165
Female estimated population (,000), 2003
1,116
12,315
6,245
3,133
Male estimated population (,000), 2003
1,141
12,850
3,112
Sex ratio (males per 100 females), 2003
102
104
99
Average annual rate of change of pop. (%), 2000-2005
2.96
2.23
0.86
41
40
36
Female population aged 60+ (%), 2003
7
6
7
Male population aged 60+ (%), 2003
6
5
6
Youth and Elderly Population
b
Total population under age 15 (%), 2003
Human Settlements
c
Urban population (%), 2001
7
12
28
Rural population (%), 2001
93
88
72
Urban average annual rate of change in pop. (%), ‘00-‘05
5.92
5.11
0.69
Rural average annual rate of change in pop/ (%), ‘00-‘05
2.34
1.92
0.69
Education
d
Total school life expectancy, 2000/2001
..
..
9.9
1
Female school life expectancy, 2000/2001
..
Male school life expectancy, 2000/2001
..
..
9.1
1
..
10.7
Female estimated adult (15+) illiteracy rate (%), 2000
1
..
76i
1.2i
Male estimated adult (15+) illiteracy rate (%), 2000
2
..
40.6i
0.4i
Employment
2
e
Unemployment rate (15+) (%), 2000
..
..
iv
2.7iii
ii
1
Female adult (+15) economic activity rate (%), 2000
..
49
60
2
Male adult (+15) economic activity rate (%), 2000
..
80iv
75ii
2
Notes: i 1991; ii 1989;
employed persons
iii
1997, Based on registered unemployment from employment office records;
1.2 Economy
Bhutan
iv
1991, Economically active relates only to
Nepal
Tajikistan
GDP
2
a
GDP total (millions US$), 2002
594
5,493
GDP per capita (US$), 2002
698
228
1,208
191
PPP GDP total (millions int. US$), 2002
..
31,922
5,788
PPP GDP per capita(int. US$), 2002
..
1,323
916
Sectors
b
Value added in agriculture (% of GDP), 2003
i
33.9
40.1
23.4
Value added in industry (% of GDP), 2003
37.4i
21.0
20.2
Value added in services (% of GDP), 2003
28.8i
38.8
56.4
7.8
4.5
14.2
54.4i
78.2
73.9
i
10.3
8.3
Miscellaneous
c
GDP implicit price deflator (annual % growth), 2003
Private consumption (% of GDP), 2003
Government consumption (% of GDP), 2003
21.0
Notes: i 2002
1
United Nations Statistics Division:
Statistics Division and Population Division of the UN Secretariat; b Statistics Division and Population Division of the UN
Secretariat; c Population Division of the UN Secretariat; d1 UNESCO ; d2 UNESCO; e1 ILO; e2 ILO/OECD
2
World Bank - Data and Statistics:
a
Quick Reference Tables; b Data Profile Tables ; c Country at a Glance
a
3
1.3 Public Spending
Bhutan
Nepal
Tajikistan
Education (% of GNP), 1985-1987
3.7
2.2
..
a
Education (% of GNP), 1995-1997
4.1
3.2
2.2
a
Health (% of GDP), 1990
1.7
0.8
4.9
Health (% of GDP), 1998
3.2
1.3
5.2
Military (% of GDP), 1990
..
0.9
..
b
Military (% of GDP), 2000
..
0.9
1.2
b
Total debt service (% of GDP), 1990
1.8
1.9
..
Total debt service (% of GDP), 2000
1.4
1.8
8.8
Public expenditures
i
Notes: xxxx;
ii
3
xxxx
1.4 Public Sector Employment and Wages
Bhutan
1991-1995
Bhutan
1996-2000
(,000)
..
8.0
(% pop.)
..
1.09
(,000)
..
0.8
(% pop.)
..
0.11
Data from the latest year available
South Asia
average4
1996-2000
South East
Asia
average4
1996-2000
Low income
group
average4
1996-2000
..
..
0.46
..
..
0.46
..
..
0.91
..
..
0.62
..
..
0.30
..
..
0.33
..
..
13.1
..
..
..
Employment
Civilian Central Government5
Sub-national Government5
Education employees
Health employees
Police
Armed forces
SOE Employees
Total Public Employment
(,000)
..
2.4
(% pop.)
..
0.33
(,000)
..
2.0
(% pop.)
..
0.27
(,000)
..
..
(% pop.)
..
..
(,000)
..
..
(% pop.)
..
..
..
(,000)
..
(% pop.)
..
..
(,000)
..
..
(% pop.)
..
..
Wages
Total Central gov't wage bill
(% of GDP)
..
7.2
2.1
2.1
5.4
Total Central gov’t wage bill
(% of exp)
15.8
17.9
14.5
16.2
24.7
Average gov't wage
(,000 LCU)
..
74
Real ave. gov’t wage ('97 price)
(,000 LCU)
4.2
4.2
4.4
Average gov’t wage to per capita GDP ratio
..
74
..
3.8
Source: World Bank - Public Sector Employment and Wages
3
UNDP - Human Development Report 2002
Data refer to total public expenditure on education, including current and capital expenditures.
As a result of a number of limitations in the data, comparisons of military expenditure data over time and across
countries should be made with caution. For detailed notes on the data see SIPRI (2001).
4
Averages for regions and sub regions are only generated if data is available for at least 35% of the countries in that
region or sub region.
5
Excluding education, health and police – if available (view Country Sources for further explanations).
a
b
4
2. Legal Structure
T
he Kingdom of Bhutan is a monarchy with sovereign power vested in the King.
During 2001 a draft constitution was written which was debated in the National
Assembly during the year. The drafting committee was chaired by the Chief Justice
of the High Court and was, according to the Government, composed of
representatives of the Monastic body, the people, the judiciary, and the Royal
Government.
Source: U.S. Department of State (Human Rights) - Bhutan
2.1 Legislative Branch
Unicameral National Assembly or Tshogdu (150 seats; 105 elected from village constituencies, 10 represent
religious bodies, and 35 are designated by the monarch to represent government and other secular
6
interests; members serve three-year terms).
women in parliament: 14 out of 152 seats: (9%).7
The National Assembly consists of 150 members. The
procedures for the nomination and election of National Assembly
members state that in order to be eligible for nomination as a
candidate, a person must, inter alia, be a citizen; be at least 25
years of age; not be married to a foreign national; and not have
been terminated or compulsorily retired for misconduct from
government service.
Fact box:
elections: Local
elections last held
November 2002 (next to
be held 2005)
election results: ..
In 2002, the election laws were changed so that each citizen over the age of 21
could vote by secret ballot for a representative to the National Assembly (Tshongdu)
when previously, only one vote per family was allowed.8
Each National Assembly constituency consists of a number of villages. Each village is
permitted to nominate one candidate but must do so by consensus. There is no
provision for self-nomination, and the law states that no person may campaign for
the candidacy or canvass through other means. If more than one village within a
constituency puts forward a candidate, the district development committee conducts
an election, and the candidate obtaining a simple majority of votes cast is declared
the winner. The law does not make clear how a candidate is selected if none
achieves a simple majority. However, it does state that in case of a tie among the
candidates in the election, selection shall be made through the drawing of lots.
The representatives of the clergy are elected by the Central Monastic Body (Zhung
Dratshang) and the concerned District Monastic Bodies (Rabdeys). All members
except the representatives of the clergy, who serve for one year, serve a term of
three years. The Speaker and the Deputy Speaker are elected by the National
Assembly from among the members.9
The National Assembly enacts laws, approves senior government appointments, and
advises the King on matters of national importance. Voting is by secret ballot, with a
simple majority needed to pass a measure. The King may not formally veto
legislation, but may return bills for further consideration. The Assembly may question
6
7
8
9
Source of fact boxes if nothing else stated: The World Factbook - Bhutan
Inter-Parliamentary Union - Women in National Parliaments
U.S. Department of State (Background Notes) - Bhutan
European Commission (External Relations) - Country Strategy Paper (2003)
5
government officials and force them to resign by a two-thirds vote of no confidence;
however, the National Assembly never has compelled any government official to
resign.
The National Assembly has the power to remove ministers whom the King appoints.
The prerogative has never been exercised.
Source: U.S. Department of State (Human Rights) - Bhutan
2.2 Executive Branch
cabinet: Council of Ministers (Lhengye Shungtsog) nominated by the monarch, approved by the National
Assembly; members serve fixed, five-year terms; note - there is also a Royal Advisory Council (Lodoi
Tsokde), members nominated by the monarch
elections: None; the monarch is hereditary, but democratic reforms in July 1998 grant the National Assembly
authority to remove the monarch with two-thirds vote
The Royal Advisory Council (Lodey Tshogdey), formally
established in 1965, advises His Majesty the King and the
Ministers, and monitors the implementation of policies and
programmes approved by the National Assembly.
The Council consists of nine members. Six are representatives of
the public (Meeser Thuepoens) and are elected in the National
Assembly from among the representatives of the districs
(Dzongkhags). Two members represent the Central Monastic
Body, and the chairman is nominated by His Majesty the King.
Fact box:
chief of state: King
Jigme Singye
WANGCHUCK (since
24 July 1972)
head of government:
Chairman of the
Council of Ministers
Lyonpo Yeshey ZIMBA
(since 20 August 2004)
Source: National Human Development Report 2000
All cabinet ministers are nominated by the King and are elected by the National
Assembly. The term of office is limited to 5 years, after which ministers must pass a
vote of confidence in the National Assembly in order to remain in office.
The National Assembly, by a two-thirds vote of no confidence, can require the King
to abdicate and to be replaced by the next person in the line of succession. The King
removed himself as chairman of the Council of Ministers in 1998. Cabinet Ministers
who receive the most votes rotate the position on a yearly basis. The chairman of
the Council of Ministers serves as Prime Minster and head of government.
Source: U.S. Department of State (Human Rights) - Bhutan
2.3 Judiciary Branch
Supreme Court of Appeal (the monarch); High Court (judges appointed by the monarch).
The judiciary is overseen by the National Judicial Commission. The judicial system
consists of three branches, the Sub-Divisional Court, the District Court, and a High
Court. Only the King can pardon or commute a sentence. Judges were appointed by
the King on the recommendation of the Chief Justice and may be removed by the
King. There is no uniform system of qualifications for judicial appointments.
Source: U.S. Department of State (Human Rights) - Bhutan
2.4 Local Government
Bhutan is divided into 20 districts (dzongkhags), each headed by a district officer
(dzongda) who must be elected. In addition, each district also is broken into smaller
areas known as a village (geog), led by a locally elected leader called a gup. In 2002,
6
the National Assembly created a new structure for local governance at the geog
level. Each local area is responsible for creating and implementing its own
development plan, in coordination with the district.
Source: U.S. Department of State (Human Rights) - Bhutan
Historically, the establishment of 20 District Development Committees (Dzongkhag
Yargay Tshogchung - DYT) in 1981 first provided the institutional framework
necessary for decentralization. The committees were empowered to formulate plans,
propose agenda and make decisions on the socio-economic development of the
district. Thus, the establishment of the DYTs did away with the traditional practice of
central planning for the whole country. In the 2002 elections, the chairperson of the
DYT was elected amongst members of the DYT, shifting the pivotal role in a DYT
from the district’s top civil servant to an elected official.
Source: World Bank (Bhutan) - Sustainable Development Through Good Governance (May 2004) (edited)
In 1991, the Geog Yargye Tshogchung (GYT) was established in all 201 geogs, with
2859 elected members. These Committees are headed by gups (village leaders) and
are responsible for assessing local needs, determining priorities, deciding on
programmes, and monitoring progress of all development activities in their geogs.
The gups also are responsible for collection of taxes in rural areas, mobilization of
resources for community services, settlement of local disputes, maintenance of water
supply and supervision of social services.
Source: National Human Development Report 2000 (edited)
7
3. The State and Civil Society
3.1 Ombudsperson
Source: Institution - Title
3.2 NGO participation
Source: Institution - Title
3.3 Civil Society
For the time being, there are no political parties nor trade-unions and only a small
number of national NGOs. Overall the role of civil society is relatively limited.
Source: European Commission (External Relations) - Country Strategy Paper (2003)
The spiritual head of Bhutan, the Je Khempo--the only person besides the king who
wears the saffron scarf, an honor denoting his authority over all religious institutions-is nominated by monastic leaders and appointed by the king
Source: U.S. Department of State - Bhutan
8
4. Civil Service
The Royal Civil Service Commission (RCSC) is the central personnel policy making,
coordinating and monitoring agency for the civil service.
Source: ADB OECD Anti-Corruption Initiative for Asia-Pacific - Anti-Corruption Resources (Bhutan)
4.1 Legal basis
The Civil Service Rules (BCSR)10 2002 was published by the Royal Civil Service
Commission to provide an effective tool for Management of the Civil Service.
The BCSR 2002 provides directions in decisions related to the Personnel
Administration. The Secretariat of the Royal Civil Service Commission, under the
directives of the Commission has initiated the revision of the Bhutan Civil Service
Rules.
Source: Royal Civil Service Commission - Bhutan Civil Service Rules (2000)
4.2 Recruitment
The Human Resource Management Division (HRMD) of the Royal Civil Service
Commission selects and recruits educated and skilled nationals for employment into
the civil service.11
Source: Royal Civil Service Commission - Human Resource Management Division (HRMD)
4.3 Promotion
The HRMD furthermore examines promotion proposals and process for government
approval in respect of civil servants from BCSR grade 8-4.
Source: Royal Civil Service Commission - Human Resource Management Division (HRMD)
4.4 Remuneration
With effect from January 1, 2005, the government approved a 45 percent increase in
the normal salary of the civil servants. According to a news release from the Prime
Minister’s office, the salary increase is expected to reduce anomalies brought about
by special allowances granted to certain categories of civil servants.
Source: Department of Human Resources (Ministry of Labour and Human Resources)
4.5 Training
The Department of Human Resources (DHR) is an autonomous agency of the Royal
Government of Bhutan that is responsible for overseeing all aspects of technical and
vocational education and training (TVET).12 It was established in May 1999 with the
mandate to develop and implement a national TVET system that matches the supply
and demand of skilled workers in numbers, quality and expectations.
Source: Department of Human Resources (Ministry of Labour and Human Resources)
The Royal Institute of Management (RIM) was established in 1986. RIM is entrusted
with the task of developing management and public administration through the
10
11
12
Click here for BCSR in Bhutanese.
Click here for the nomination procedure (select January 31, 2005 Notification)
Click here for an overview of the training programmes offered.
9
provision of training, study, consultancy, research, and advisory services. In 1990, it
was incoporated as an autonomous institute under the Royal Charter.
The institute's training activities (click here) are categorized broadly as regular and
non-regular programmes. The regular training programmes are mostly pre-service
and generally are of longer duration.
Source: Royal Institute of Management
4.6 Gender
Source: Institution - Title
10
5. Ethics and Civil Service
5.1 Corruption
2003 CPI Score relates to perceptions of the degree of corruption as seen by
business people and country analysts and ranges between 10 (highly clean) and 0
(highly corrupt).
Corruption Perceptions Index
2003 CPI
Score
Rank
Country
1
Highly clean
..
Bhutan
133
Highly corrupt
Number
Inst.
90 percent
confidence
range
9.2 - 10.0
4
9.5 - 9.9
..
..
..
0.3 - 2.2
6
0.9 - 1.7
Surveys
Used
Standard
Deviation
High-Low
Range
9.7
8
0.3
..
..
..
1.3
8
0.7
Source: Transparency International - Corruption Perceptions Index 2003
Surveys Used: Refers to the number of surveys that were used to assess a country's performance. 17 surveys were
used and at least 3 surveys were required for a country to be included in the CPI.
Standard Deviation: Indicates differences in the values of the sources. Values below 0.5 indicate agreement, values
between 0.5 and c. 0.9 indicate some agreement, while values equal or larger than 1 indicate disagreement.
High-Low Range: Provides the highest and lowest values of the sources.
Number Institutions: Refers to the number of independent institutions that assessed a country's performance. Since
some institutions provided more than one survey.
90 percent confidence range: Provides a range of possible values of the CPI score. With 5 percent probability the score
is above this range and with another 5 percent it is below.
Source: Institution - Title
5.2 Ethics
Source: Institution - Title
11
6. e-Government
0.4
0.35
0.3
0.25
0.2
0.15
0.1
0.05
Web Measure Index:
A scale based on
progressively
sophisticated web
services present.
Coverage and
sophistication of stateprovided e-service and
e-product availability
correspond to a
numerical classification.
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The index is comprised
of three sub-indexes:
Web Measure Index,
Telecommunications
Infrastructure Index and
Human Capital Index.
e-Government Readiness Index
la
de
The index refers to the
generic capacity or
aptitude of the public
sector to use ICT for
encapsulating in public
services and deploying
to the public, high
quality information
(explicit knowledge) and
effective communication
tools that support
human development.
6.1 e-Government Readiness
Bh
ut
an
e-Government
Readiness Index:
Source: United Nations – World Public Sector Report 2003
Web Measure Index
Telecom. Infrastructure Index
Human Capital Index
1
0.9
0.8
Telecommunications
Infrastructure Index:
A composite, weighted
average index of six
primary indices, based
on basic infrastructural
indicators that define a
country's ICT infrastructure capacity.
0.7
Primary indicators are:
PC’s, Internet users,
online population and
Mobile phones.
Secondary indicators
are TVs and telephone
lines.
0
0.6
0.5
0.4
0.3
0.2
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0.1
Source: United Nations – World Public Sector Report 2003
Human Capital Index:
A composite of the adult literacy rate and the combined primary, secondary and tertiary gross enrolment ratio, with two thirds of the weight
given to adult literacy and one third to the gross enrolment ratio.
12
6.2 e-Participation
e-Participation Index
0.3
0.25
0.2
0.15
0.1
0.05
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e-information:
The government
websites offer
information on
policies and
programs, budgets,
laws and regulations,
and other briefs of
key public interest.
Tools for disseminating of information
exist for timely access
and use of public
information, including
web forums, e-mail
lists, newsgroups and
chat rooms.
N
an
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ad
In
ta
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n
0
hu
Refers to the willingness, on the part of
the government, to
use ICT to provide
high quality information (explicit knowledge) and effective
communication tools
for the specific
purpose of empowerring people for able
participation in
consultations and
decision-making both
in their capacity as
consumers of public
services and as
citizens.
B
e-Participation
Index:
Source: United Nations – World Public Sector Report 2003 d
e-information
e-decision making
e-consultation
7
6
5
4
3
2
1
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B
an
The government
indicates that it will
take citizens input
into account in
decision making and
provides actual
feedback on the
outcome of specific
issues.
B
hu
e-decision making:
Source: United Nations – World Public Sector Report 2003 d
e-consultation:
The government website explains e-consultation mechanisms and tools. It offers a choice of public policy topics online for discussion with
real time and archived access to audios and videos of public meetings. The government encourages citizens to participate in discussions.
13
7. Links
7.1 National sites
Authority
Topic
Government Official Web Portal
http://www.bhutan.gov.bt/
Ministries
http://www.bhutan.gov.bt/ministry.php
Agencies
http://www.bhutan.gov.bt/autonomousagencies.php
Department of Human Resources
http://www.dhr.gov.bt/
Royal Civil Service Commission
http://www.rcsc.gov.bt
Royal Audit Authority
http://www.raa.gov.bt/
7.2 Miscellaneous sites
Institution
Topic
Asian Development Bank (ADB)
http://www.adb.org/Bhutan/default.asp
European Union (EU)
http://europa.eu.int/comm/external_relations/bhutan/intro/index.htm
International Labour Organization (ILO)
http://www.ilo.org/dyn/natlex/natlex_browse.home
United Nations Development Programme (UNDP)
http://www.undp.org.bt/
World Bank (WB)
http://www.worldbank.org/bt
14