Abstract

Food Security describes a situation where “all people, at all times, have physical, social and
economic access to sufficient, safe and nutritious food” (World Food Summit, 1996). Bhutan
has had their efforts in improving the country’s food security long before 1960s after many
studies and researches conducted to achieve the country’s vision of providing physical,
economic and social access to safe and nutritious food for a healthy and active life in aims to
realize the goals of Gross National Happiness. This report aims to study the food security
situation and scenarios of the country, the issues related to it, measures taken by the country
to solve it and possible solutions to achieve food security. This report also aims to draw out
relationship between climate change and food security and its impact on food security. This
report also includes the study of building resilient agriculture system in context with the
climate change.
Acknowledgement
The completion of this report was only possible due to the many hands that took part in the
process of making this report. We would firstly like to extend our utmost gratitude to our
module tutor for giving us this opportunity to learn on food security of the country. It made
us aware of our country’s situation and acted as a wake-up call for all of us making us realize
our duties as a citizen of this country. This assignment brought us the opportunity to learn
and further grow for someone who will be the future rulers of the country.
We would like to thank all of our parents who never deprived us of the resources we needed
to work to the fullest and make this report a success.
We would lastly like to thank our seniors for guiding us and giving us suggestions on how to
proceed with the report writing and enlightening us with many information.
Introduction
Food security can be defined as the access to enough food by all the people at all times for
good health and an active life (FAO,1996). It can also be defined as the availability,
accessibility and the proper usage of food, ensuring stability of these dimensions which can
only be achieved when people have sufficient access to food in terms of quantity and quality
with diversity, variety and nutrient content to meet people’s dietary needs for a healthy and
active life (Royal Government of Bhutan, 2012). Food self-sufficiency on the other hand is
the ability to meet the consumption needs by own production instead of buying or importing.
While in Bhutan, Self-sufficiency is related to sufficiency in terms of cereal and rice.
According to the Policy & Planning Division (PPD) of the Ministry of Agriculture and
Forests (MoAF), Bhutan is already self-sufficient in maize and several minor grains. It also
states that Bhutan imports two-thirds of its wheat requirements but wheat is not an important
part of Bhutanese diet.
Bhutan had a population of 635 thousand people in 2005 with an annual growth rate of 1.7 to
1.8% and as od 2021 Bhutan now has a population of 781,840 people. The agriculture sector
of Bhutan provides livelihood to a population of 62.2% of the country, contributing 16% to
the country’s GDP (Gross Domestic Product) and 4.3% to exports.

Fig. Population by district

Bhutan took and implemented various measures for improving food security and alleviate
poverty by putting efforts to increase domestic food production in all the five-year plans since
1960s. The Vulnerability Analysis and Mapping (VAM),2005 ruled out the reason behind
poverty in Bhutan which is the food insecurity while the reason behind food insecurity is the
lack of productive assets. According to the Poverty Assessment and Analysis Report, 2004
31.7% of Bhutanese population is under the national poverty line of Nu.740.36 per person per
month. This was reduced to 12% with the national poverty line of Nu.1704.84 per person per
month in 2012. This proves food and nutrition security is an important matter that needs to be
addressed in line with achieving Gross National Happiness of the country. According to the
Data Collection Survey Report on Food Self-Sufficiency and Food Security in Kingdom of
Bhutan, 2012, poverty incidents in the eastern Bhutan is higher than other parts of the country
(JICA, 2012). The operations manual on Food Security and Agriculture Productivity Project,
2018 states that the reason is the country being mountainous becomes a constraint to the
growth of the country and reduction of poverty especially in the rural areas (Bank, 2017).
Due to the poor road connection a large quantity of rural people are isolated from the markets
and the social services limiting their livelihoods to subsistence agriculture. The same report
states that 20% of the farmers reported that the major constraint is the labor shortages. Other
constraints are the lack of water for irrigation, quality seeds and inefficient irrigation
channels. The high annual imports in Bhutan is due to the quantity of agriculture produce
produced by the farmers are not sufficient for domestic consumption (Bank, 2017).

Fig. Poverty Incidence of Bhutan

Fig. Poverty Map of Bhutan

Bhutan still has a long way to go in terms of ensuring food security and self-sufficiency of
food. Can food self- sufficiency be a solution to the food security problems in Bhutan? For a
very long period of time Bhutan has always relied on India for food supply as a result of
which when the COVID 19 pandemic hit Bhutan, the importing and exporting of food was
interrupted, the food supply chain was largely disrupted. According to the report done by
McKinsey, 16% of the rural population migrated to urban areas in 1995 and 2010. Between
1985 and 2005, the annual population growth rate in the rural areas was 0.6% and 6.1% in the
urban areas as per the population census in 2005. Since more people moved to the cities a
decline in employment rate was seen from 4.1 % in 2005 to 5.8% in 2011. The “Rupee
Crunch” triggered people’s food security and food self-sufficiency awareness. India banned
rice export to Bhutan for a month in 2008 putting psychological pressure on Bhutanese
government making the government take actions to secure imports(JICA, 2012). Hence food
security became an important subject for every Bhutanese to ponder upon, for Bhutan has to
survive and have sustainable food supply chain in case such unavoidable situations happen in
the future where the importing food becomes impossible. Bhutan thus has to gear up and
prepare for such worst-case scenarios.

Food Availability and Production of Bhutan

According to the research conducted by the Policy & Planning Division (PPD) under
Ministry of Agriculture and Forests, 2010, Bhutan produced approximately 74000 tons of
paddy equal to 49000 tonnes of milled rice and imported 52.1 thousand tonnes in 2006,
resulting in a self-sufficiency rate of 49%. In the same year, the cereal production was
143,000 tonnes with imports being 62000 tonnes resulting in a cereal self-sufficiency rate of
70%. The following table shows the production details of the cereals, imports and its self
sufficiency (Food_Security_and_Food_Sovereignty.Pdf.Pdf, n.d.).

Source: MOA, 2008 and data from Agricultural Marketing Service, Ministry of Agriculture.
The food availability is maintained through the domestic production and the distribution of
the imported food in the market. The “Food Corporation of Bhutan (FCB)” plays an
important role in maintaining the National Food Security Reserve (NFSR). In addition to
that, FCB also maintains the two separate reserves which are the SAARC Food Security
Reserve and the SAARC Food Bank each of which contains 180 MT of rice. The NSFR has a
total of 1658 MT food distributed and marketed through 20 regional and local depots of FCB
(Royal Government of Bhutan, 2012).
Availability of Cereals
60% of the total cereal demand was met by the domestic production ranging from 61% in
2008, 59% in 2009, 66% in 2010, to 69% in 2011 (Bhutan RNR Statistics, 2012). Out of the
cereals, all the demands for buckwheat and maize were met by the country’s domestic
production. The self-sufficiency ration of paddy was 53% in 2011 (Bhutan RNR Statistics,
2012).
Availability of Vegetables
A rise in the vegetable production was seen in 2011 meeting 89% of total vegetable demand.
The imported vegetables were only tomatoes, onions and chillies. The domestic production of
potatoes and tomatoes could meet the requirements of the country. It was found that Bhutan
is 118% self sufficient in vegetables where Bhutan even exported large number of vegetables
like cole crops which are cabbage, cauliflower, radish while peas and beans too were
exported(Royal Government of Bhutan, 2012).
Availability of Animal Products
Animal products include milk, beef, pork, mutton, chicken, egg and fish. The domestic
production of these met 35% of the demand in 2009 and 85% in 2011 but 97% of fish, 81%
of beef, 73% of pork and 60% of chicken demand is met from the imports. No additional
animal products was produced for exports (Bhutan RNR Statistics, 2012).
Availability of Fruits and Nuts
95% of the total demand for fruits and nuts in 2008 and 100% of it in 2011 was met by
domestic production. The demands for fruits like mangoes and nuts were met by importing
them. Exported fruits were apples and oranges.
Oils and Fats
90% of demand for oils and fats are met by importing them with 1580 MT of oils and fats
being imported in 2009, 9772 MT in 2011 (Bhutan RNR Statistics, 2012). More than 70% of
imported fats and oils are refined sunflower seed and soya-bean vegetable oils and
Hydrogenated palm oil (dalda) in 2011 with 90% of hydrogenated palm oil being used for
religious purposes.

Food Consumption and Distribution Characteristics

In 2010, Self-sufficiency rates were as follows:
Rice: 48%
Maize: 100%
Cereals: 63%
Fruits and potato: more than 100%
Dairy Products, milk, egg, mutton: over 70%
Beef and Pork: 20%
Fish: 3%
While the total imported value in 2010 was 11% for food items, and 2.2% for rice. There
were surplus trade of various fruits and vegetables and deficit trade of cereals, cereal
products, oil and animal products with rice trade deficit of Nu. 833 million in 2010. Bhutan’s
main import partner has always been India (JICA, 2012).
Almost all the imports in Bhutan are made from India with only 0.7 % of rice being exported
from the value of rice being imported. The rice is exported to Australia, Singapore and US.

Fig. Main Cereals import in Bhutan

Fig. Main Cereal exports in Bhutan

Major Characteristics of Agricultural Production in Bhutan

 Crop Production
The three major crops of Bhutan are Paddy, maize and potato which constitutes 70%
of total production in 2008. 50% of the total harvested areas in Bhutan are constituted
by maize and paddy in 2008 where paddy generated 43% of total value of agricultural
production in 2008. A rise in paddy production was seen from late 2000s and a
decrease in maize and potato production was seen from mid 2000s.
 Livestock Production
With increase in the sentiment of condemnation for animal slaughter, the production
of beef and pork decreased since mid-2000s. The production of chicken however
increased from 2008.
 Regional Characteristics in Agricultural Production
Due to the regional farm endowment and different yield of products, significant
regional gaps were seen in paddy and maize production per farmer. The gaps in the
yields of different farmers depended on the difference in variety of crops
 Production Costs and Economic Returns
Among the three major crops of Bhutan namely the paddy, maize and potato, paddy
production brought the highest economic return while potato brought the lowest of the
three.
 Infrastructure and Inputs for Agricultural Production
The following problems were faced in the agricultural production sector of Bhutan:
1. No sufficient irrigation
2. Lack of machinery and equipment
3. Farmers owned small areas of land
4. Damage to the cultivated crops by the wild animals
5. Many lands are fallow
6. Less availability of fertilizers and chemicals
7. Labor shortage
 8. Converting wetlands to other uses (JICA, 2012).

Storage and Processing

 Rice
An estimate of 15% of total output of rice is lost during storage due to rats and pests.
Grain breakage is also common due to the crude Indian milling machines used for rice
milling.
 Maize
Is consumed as a staple food in the form of grits called Kharang or boiled cobs
especially in eastern Bhutan. It is consumed at homes and can also be brewed into
Ara and stored by hanging it from the ceilings.
 Potato
For the purpose of making seeds, home consumption and selling, it is stored for 4 to 5
months. It is mostly stored at ground floors. The peak prices of potatoes are in
October and November due to its high demand by India as seeds. Local potatoes reach
market every June but there is lack of provision for storage of potatoes at large scale
hence, selling potatoes harvested early at the highest price season becomes
impossible.
 Dairy Products
There is no proper cold storage for the dairy products because of which the marketing
of milk becomes restricted. Though the country has various dairy processing firms
such as Zimdra, Wanchuktaba and Drukyul, the raw milk is imported from India.
 Meat Products
Bhutan as of now does not have a formal and designated meat processing firms and
the slaughtering of animals are done at the villages and not publicly and then
distributed to the households and neighbouring villages(JICA, 2012).

Policy and Legal Environment- Bhutan’s measure to help ensure food

security
The Land Act of Bhutan, 2007
The act aims to make best use of land by adopting sustainable options for the economic,
social and environmental wellbeing of the people by declaring numerous areas in the country
as protected agricultural areas. The act protects Chhuzhing which is the paddy land where the
converting of Chhuzhing land is only allowed if the owners have inherited Chhuzhing only
and do not own a house to live in.
The Food Act of Bhutan, 2005
This act ensures the health of people in terms of trading food in the country. The food imports
are made only through designated legal borders where all the food imported are certified by
authorities in the country from which they are exported. The act ensures the imported food
does not compromise the health and safety of the Bhutanese citizens.
Forest and Nature Conservation Act of Bhutan, 1995
A legal environment is provided for resource management and utilisation, community
forestry, transport and trade of forest produce, soil & water conservation and royalty free
domestic consumption of non-wood forest products by this act.
The Seed Act of Bhutan, 2000
Through the regulation of the quality of the seeds, seeds sales and certification of seeds, the
income generated through these in the rural areas and livelihood is enhanced. This act
encourages and promotes the seed industry of the country.
Plant Quarantine Act of Bhutan, 1993
This act ensures that new pests are not brought into the country by enforcing the import and
export regulations of plants and its products.
Livestock Act of Bhutan, 2001
Includes regulations for livestock breeding, health and production to improve livestock
productivity and prevent diseases. It ensures that the quality of livestock is not compromised.
Cooperatives Act of Bhutan, 2001
A guideline for formation of Co-operatives and farmer groups.
Bhutan Water Policy, 2003
Identifies rivers as aquatic habitat and a critical food source. It includes the right of every
individual to safe, affordable and enough water for consumption and sanitation. It also
focuses on allocating adequate water for sustainable agriculture in aims to achieve the
National Food Security.
Bio-Security Policy, 2008
Emphasizes on food safety for Bhutanese by protecting human health from pest-borne
diseases, using natural resources sustainably, protecting agricultural products from pests and
diseases and ensure a safe and sustainable trade and tourism.
The Economic Development Policy of the Kingdom of Bhutan, 2010
Includes exempting sales taxes and import duties on all farm machines, sale taxes and custom
duty on agricultural inputs, no income tax for 10 years of commercial farming and related
processing of products. As for the commercial farming of organic products, there is no tax
grant for 15 years (Royal Government of Bhutan, 2012).
Climate History
Climate change can result in a serious effect to food production and lead to crop losses. This
is evident from the list of events Bhutan encountered in the past years which are as follows:
Six eastern dzongkhags in Bhutan was hit by flash flood in 2004 leading to a damage of 664
acres of farm lands, death of 9 lives, washing away of 29 houses and 107 dilapidated houses
(NDRMF, 2006).
In 2009, Bhutan experienced floods along many natural drainage systems due to a very large
level of rainfall caused by Cyclone Aila. A significant damage was caused to the agriculture,
transport facilities, schools and hydro projects killing 12 people.
In 2010, 2000 acres of agricultural lands were destroyed by flash floods and landslides which
influenced 4165 households, destroyed the irrigation channels, farm roads affecting 529
households. 40 acres of pasture lands were also washed away ( DoA, MoAF, 2011& DoL,
MoAF).
In 2011, 16 dzongkhags experienced successive windstorms destroying 2424 rural houses, 81
religious structures, 57 schools, 21 health centres and 13 government institutional facilities.

Food Security and Food Self Sufficiency at Gewog Level

Coordinated by the Ministry of Agriculture, 87% of agricultural households in Bhutan were
interviewed where the analysis included three measures of staple-food self-sufficiency which
are:
 Rice production per person
 Maize production per person
 Cereal production per person
It was found out that the households in the rural areas have enough food for themselves for a
period of 10 months from their own production. 42 % of the rural households produce their
own food that lasted 12 months while the rest 58% consume food through purchases.
The 2000 Agricultural Census, Bhutan states that in rural areas, 67 kg of rice and 114 kg of
maize per person is produced in Bhutan. While 211 kg of cereal per rural inhabitant was
produced. There also were several gewogs that did not produce any cereals such as Lunana in
Gasa and three more gewogs in Thimphu.
Conclusion
With the ever-increasing population of the world which is about 1.06% per year, food
security has become an inevitable concern. There is no guarantee as such on whether the food
that we have right now will be sufficient enough for the future generations that are yet to
come. Food security too has been one of Bhutan’s major concerns since 1960s in line with
achieving goals of the Gross National Happiness of the country. While the country has taken
numerous measures and projects to achieve food security, there is still room for Bhutan to
improve its food security and achieve food self-sufficiency. Measures like vertical gardening,
hydroponics and aeroponics can be seen as a potential solution to the long unsolved food
security issues in our country. These methods are more efficient compared to the traditional
method of farming as it takes minimum space and also very less resources.
Though Bhutan is an agrarian country, a majority of food supply in Bhutan is imported from
other countries especially from India. According to the World Bank Collection of
Development indicators in 2012, the Bhutan’s food import rate was 13.71%. There is need
for the country to adopt measures to ensure that the country is food self-sufficient and the
food imports are kept as the last resort. Hence the role falls on the citizens of Bhutan to
ensure food security by adopting ways that would encourage people to purchase, and utilize
the locally available food products such as reasonable pricing of the products where people
can easily afford them. In that way it would help the country prosper in terms of economy as
well as food security. It has also become important for people to not change the existing
climate which is the major factor that brings negative impacts to food security. The role
especially falls on architects to ensure that the planning of town and houses are done such
that the agricultural lands are not reduced and ensure provision of facilities that would
encourage food production in the country. Bhutan is still undergoing development and this
can be seen as an opportunity for the country to adopt technologies to encourage food
security and attain food self-sufficiency. There is need for the country to address food
security on the new light.
Bank, W. (2017). Food security and agriculture productivity project Bhutan. August.
Bhandari, O. (2020). Safeguarding Food Self-Sufficiency in the Time of COVID-19 :
Lessons from Bhutan. Observer Research Foundation, 429.
Food_Security_and_Food_Sovereignty.pdf.pdf. (n.d.).
JICA. (2012). Data Collection Survey Report on Food Self-Sufficiency and Food Security in
the Kingdom of Bhutan Data Collection Survey Report on Food Self-Sufficiency and
Food Security in the Kingdom of Bhutan. August.
Royal Government of Bhutan. (2012). Food and Nutrition Security Policy of the Kingdom of
Bhutan , 2012.