Strategy for gross national happiness (sgnh) Annexures to the Main Document

1. As Kokrajhar, Chirang, Baksha and Udalguri districts are governed by the BTC⁷⁴, we must institutionalize relations and increase contacts with the Chief and the Deputy Chief of the BTC. Both are based in Kokrajhar town, the headquarters of BTC. Since both are equivalent to the rank of state cabinet ministers of Assam, they should be cultivated by high-level MoHCA officials.

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  Bhutanese counterparts from Sarpang Dzongkhag should concentrate on Kokrajhar BTC members;
  

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  Counterparts from Samdrup Jongkhar Dzongkhag should concentrate on Baksha and Udalguri BTC members;
  
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  As they share immediate borders, counterparts from Gelephu Dungkhag, Sarpang Dzongkhag and Panbang Dungkhag of Zhemgang Dzongkhag should strengthen contacts with Chirang BTC members;
  
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  As it shares an immediate border, the counterparts from Nganglam Dungkhag, Pema Gatshel Dzongkhag should strengthen relations with Baksha BTC members.
  
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  As it shares an immediate border, the counterparts from Jomotsangkha, Samdrup Jongkhar Dzongkhag, should strengthen relations with Udalguri BTC members.
  

3. We must also establish relations with the leaders of the other districts of Assam⁷⁵. Of importance would be the Zilla Parishad of Rangia Sub-Division under Kamrup District in view of the proposed railway link to Samdrup Jongkhar originating from Rangia.

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   Also develop relations with the local leaders of small towns/villages located immediately across Bhutanese towns:
   

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  Kumargram bordering Lhamoizingkha;
  
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  Dadhgari village/town outside Gelephu main gate;
  
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  Saralpara in the vicinity of Sarpang town;
  
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  N.K. Darranga (Mela Bazaar) close to Samdrup Jongkhar town;
  
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  Tinali, which is 2 km away from Jomotsangkha; and
  
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  Rangapani, which is outside Nganglam.
  

Although we also share a border with these two states, we have no connection due to the absence of motorable roads from the Bhutanese side. However, we must also look at building relations with the political leadership of these two states as they share borders with Samtse, Haa, Samdrup Jongkhar, Trashigang and Trashi Yangtse Dzongkhags.

This age-old tradition of reciprocal hospitality between the people of eastern Bhutan with the people of Assam be revived and encouraged by the government. The Royal Government and the Government of Assam must encourage the civil authorities in these areas to encourage their people to revive this tradition. This tradition had helped cultivate the strong bonds of familial ties and brotherhood between the Bhutanese with the Assamese living across the border. Revival of this tradition could be critical to the need for rebuilding mutual trust, understanding and goodwill between the Bhutanese and the people of Assam.

While Indo-Bhutan Friendship Associations (IBFAs) exist in all the major cities of India, none have been established in the bordering Indian towns. Prominent residents of these towns tend to feel ignored as the IBFAs that are meant to cover their areas are far away, cut-off from them and have members who are oblivious of events in the border areas. While IBFAs in the bigger cities will continue to be beneficial for Bhutan in the long-run, it is recommended that IBFA chapters also be established in the smaller towns of Assam and West Bengal. It would also increase the sense of importance of these towns. This would also provide an opportunity for the Bhutan-India Friendship Associations (BIFAs) of Phuentsholing, Samtse, Gelephu and Samdrup Jongkhar to have counterparts with whom they could collaborate for organizing activities. Therefore, within the next year, IBFAs need to be established in Jaigaon, Chamurchi, Birpara, Kajalgaon, Bongaigaon, Rangia, Kokrajhar, Bhaksha and Udalguri. Prominent Indian businessmen that have good ties with Bhutan and local Indian officials/politicians should be encouraged to become officials of IBFAs.

It is recommended that a Bhutanese Consulate be established in Kolkata. Such a proposal was made during the Bhutanese Ambassadorial Conferences held from 1999-2001. The proposal is already under consideration by the Royal Government. Factors such as a common border with North Bengal, Druk Air operating to and from Kolkata, Bhutanese goods transiting through Kolkata, increasing number of Bhutanese patients and students availing of medical and educational services in Kolkata and the increasing business interaction by Bhutanese all necessitate the establishment of a Consulate. Furthermore, the Royal Government also owns substantial real estate in Kolkata. A Consulate would provide the Royal Government with the opportunity to have instantaneous and constant contact with the state government of West Bengal. The consulate should be established as soon as possible.

In order to increase and improve contacts, we must train the relevant Bhutanese officials at the three institutions of the All India Services, namely, the Indian Administrative Service (IAS), the Indian Police Service (IPS) and Indian Forest Service (IFS). We must also train them at the institutes of the Central Services such as Customs Service, Audit and Accounts Service, Indian Foreign Service and the Indian Survey Training Institute. Contacts established at such institutions are invaluable, especially when Indian colleagues are posted in key positions along the Indian border areas. Bhutanese officials trained at these institutes must serve in the southern Dzongkhags so that they can benefit the country even more through their contacts with counterparts. The Royal Government must have a long-term arrangement with GoI for an annual quota system to avail of training slots at such institutions for our officials. The training of Bhutanese officials at Indian institutions also conveys the message that we have confidence in the quality of their educational institutions.

Bhutan must start investing resources to use the Indian media to make people aware of a friendly Bhutan for trade, investment and touristic purposes. Even the Internet must be fully utilized for this purpose. Through the media, we must win over the hearts and minds of Indians and portray Bhutan as a genuine friend of India. We must also control and address any negative publicity on Bhutan that appears in the Indian media. Even the Bhutanese media must be used appropriately in publicizing any Indian initiatives in Bhutan to show the importance we are attaching to India. The Ministry of Foreign Affairs must be the lead agency for media related matters to promote and strengthen Bhutan-India relations.

Border security is important for safeguarding the sovereignty and creation of a safe and secure strategic economic zone in southern Bhutan. As it is the first line of contact, the Check Posts play a vital role in ensuring the security and safety of the country. The Check Posts must be improved and strengthened so that there is not only smooth flow of people and goods, but illegal activities such as illicit trafficking of humans, drugs, smuggling of arms and ammunition, antiquities, bio-products and other contraband are prevented. Therefore, ICPs will be established at all entry points into the country that will manage all the enforcement work currently performed at the various Check Posts by RBP, Immigration, Customs, BAFRA, Forests & DGM.

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  The functions of the Check Posts at the international border would be very similar to the airport and railway points. At such points of entry, the main function would be to check and monitor the flow of goods, visitors/passengers and conveyances. The inspection of goods would normally be confined to the baggage of passengers that would be in smaller volumes. Pre and Post clearance system shall be adopted for bigger consignment of goods for export/import. Consignments requiring quarantine clearance shall be referred to the nearest BAFRA office if the matter requires expert opinion.
  
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  At each entry/exit point, there would be several one window service counters, which will be authorized to clear passengers with their baggage, including passing through a security clearance screening system. The passenger may have to go through an investigation counter if he fails to get cleared by the security system. One window service counters can be increased or decreased depending on the volume of traffic.
  
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  Besides clearance counters, it is proposed that necessary sector specialists for all the law enforcement agencies be posted at the Check Posts.
  

Presently, the application of ICT at the Check Posts is limited to agencies like Customs, Immigration and BAFRA. With the implementation of the concept of an integrated ICP, it would be critical to develop and put in place a common information system, which could be further integrated with the Automated Border Management System (ABMS). The ABMS is already under implementation with support from the DIT. This approach would be cost effective as each agency would not be required to develop separate systems.

For smooth implementation and to standardize the level of services at every Check Post in the country, the Check Posts are categorized into 3 types viz; A, B and C.

It is proposed that an NLEA be established to build the capacity of the security personnel. This academy will be responsible for training of the police and other security personnel in an integrated approach. The Academy will be used for training of the RBP, security personnel of law enforcement agencies, private industrial security personnel, and in the event of approval by the Royal Government, even for service personnel selected for UN Peace Keeping Operations. With its growth, the Academy could also cater to the training needs of the law enforcement agencies such as Immigration, Customs and BAFRA, as it would have similar course content. In time, the NLEA could be affiliated to the Royal University of Bhutan.

As all law enforcement agencies would require a good training centre to train their personnel, it would be most logical to integrate all these requirements into one training centre. The integrated and combined training centre will be cost effective. It would lead to savings, in terms of financial and other resources as some of the courses such as basic computer sessions, office management, communication techniques, public relations, basic arms and ammunition courses, drill, etc. could be made common.

(ii) It shall be mandated to produce the best cadre of law enforcement personnel in the country.

(iii) The training regime shall ensure that the graduates from the Academy are able to meet any challenges that may arise due to the innovations and advancement of technology.

(iv) The graduates shall be imparted with a code of conduct to improve their public relations skills.

(v) The Academy will be mandated to conduct refresher courses for the personnel of all law enforcement agencies.

(vi) The Academy should regularly review and update the course content, both in substance and quality.

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  Grant a work permit for four years in the first instance and renew after every four years if required
  
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  Can work in all sectors of the Bhutanese economy
  
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  There will be no restriction on the number of Work Permit A holders that a company can employ
  
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  Permits for spouse and children
  
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  Long term visit passes for parents & parents-in-law
  
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  After one extension the worker must stay outside the country at least for 3 months. But if that worker wishes to come back he/she should be allowed if he/she has no adverse record
  

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  Applicants who qualify for work permit B will have renewable work permits valid for three years in the first instance and could renew for two extensions. Total stay would be for six years.
  
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  There will be no restriction on the number of work permit B holders a company can employ.
  
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  Work Permit B holders may work in all sectors in Bhutan.
  
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  They will be allowed to work up to the prevailing retirement age.
  
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  Permits for spouses and children shall be given.
  
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  After one extension, the worker must stay at least 3 months outside the country. If the worker wishes to come back to work, he/she shall be allowed provided there is no adverse record.
  

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  Work permit C shall be issued to semi-skilled and unskilled workers e.g., construction and mining sector workers subject to sectoral restrictions and on a company's dependency ratio ceiling.
  
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  Applicants who qualify for general work permit will have renewable work permits valid for one year.
  
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  The worker must stay outside the country at least 3 months after one extension. The worker would be allowed to come back to work provided he has no adverse record.
  

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  Work permit holders cannot bring in their immediate family members to live with them in Bhutan.
  
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  Workers shall be subjected to a security bond.
  

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  Workers holding Work Permit A up to 8 years.
  
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  Workers holding Work Permit B up to 6 years.
  
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  Workers holding Work Permit C up to 2 years.
  

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  No nationality restrictions for Work Permit A and Work Permit B issued by MoLHR.
  
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  Work Permit C for Indian nationals only.
  

Currently, the numbers of foreign workers working in the country is determined according to the ceiling fixed by the Government. It is recommended that instead of fixing a number, a levy system be introduced.

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  The levy would make employment of foreign workers expensive. This would reduce employers' reliance on foreign workers, which would otherwise impede Bhutan's efforts to generate employment.
  
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  In the absence of a levy scheme, employers are not discouraged from indiscriminate recruitment of low-skilled foreign workers and, therefore, delay in automating and mechanizing the construction industry.
  
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  The higher levy for unskilled workers will help to reduce the industry's dependence on foreign labour.
  

Levy system emphasized for construction workers for the following reasons:

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  Construction workers constitute the majority of foreign workers in the country.
  
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  It can be observed that the ability to recruit foreign construction workers has made local construction enterprises unwilling to take measures to reduce their requirement for labor, especially where these call for high amounts of investment. The general observation is the relatively low level of productivity in construction sector. Problems relating to productivity in construction are due to:
  

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  The lack of transferability of experience that is exacerbated by the use of a revolving pool of foreign workers.
  
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  The relatively short duration of stay of foreign construction workers gives employers little incentive to invest in their improvement.
  
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  The free recruitment of cheap foreign workers drives down the wages of local workers. It further detracts people from careers in construction and makes it necessary for even more foreign workers to be recruited to meet the industry’s’ labour requirements.
  
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  The image of the industry is already unattractive as more foreign workers with low skills and poor educational backgrounds are engaged in it. Thus if there is no policy shift, this sector would remain stagnant.
  

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  Assumption: SEZ will be a free movement area.
  
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  All foreigners employed/working in the SEZ must possess a valid work permit.
  
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  It will be the employer and the foreign worker’s responsibility to ensure that they hold a valid work permit, otherwise both parties will be subjected to penalty.
  
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  Although SEZ is a free movement area, not all foreigners will be entitled to work permits.
  

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  While the Labor Act allows workers to associate, a regulation must be developed that will prevent them from undertaking activities that will disrupt industrial operations.
  
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  The enforcement agency of such regulation must be strengthened in terms of labor relations, mediation and inspections so that a harmonious environment at work place is created.
  
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  Employers and employment agents must be made responsible for any mishaps of foreign workers during recruitment.
  
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  Labournet and immigration information system must be fully upgraded so that all foreign workers are recorded and monitored.
  

In order to facilitate smooth flow of goods and passengers and avoid time consuming clearing procedures at the entry and exit points, customs management should introduce the following widely accepted goods clearance procedures:

It is apparent that the absence of habitation along our border areas has resulted in illegal activities such as encroachment, illegal felling of trees and extraction of sand and stone, poaching and other criminal activities. Leaving out the Manas Sanctuary, the rest of the border areas along the new highway, in all the six Dzongkhags, should be utilized for resettlement programmes. While resettling landless people, special care should be taken to ensure that people belonging to the same community/ethnic background are placed in the same locality. This will help ensure unity and preservation of their cultural values and traditions.

In order to ensure unhindered, safe and secure movement of goods and people on the SEWH, a special unit under the RBP will have to be created and mandated with its security responsibilities. Given that police is a more widely recognized, accepted and visible law enforcement agency, it is recommended that this special unit be raised as the National Border Police (NBP) under the command and control of the RBP. In the field, the NBP, with a distinct outfit, should be placed under the direct command and control of the respective RBP field divisions. The mandate of this unit could cover the following:

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  Provide security coverage for SEWH users and their properties.
  
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  Implement highway traffic safety regulations.
  
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  Combat smuggling and movement of contraband items in collaboration with other law enforcement agencies.
  
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  Provide and coordinate rescue and first aid medical services.
  
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  Collaborate with other law enforcement agencies and secure southern borders from infiltration and prevent encroachment.
  
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  Prevent and assist in detecting cross border crimes.
  
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  Prevent and detect entry of illegal immigrants.
  

To ensure the security of the SEWH, in addition to deploying personnel to patrol the highway, it is critical for the stretch of territory between the highway and the international boundary to be well secured. Without adopting these dual mechanisms, it would be difficult to ensure the safety of the highway. The safety of the SEWH would largely depend upon the deployment of well trained and resourced police security against the sum total of threat perceptions, proximity of the highway to the border and the vulnerability due to isolation of certain stretches of highway from human settlements.

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  NBP will develop as a specialized branch of RBP with specific charter of duties and responsibilities.
  
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  Establish and make operational NBP Command Centres at Gelephu, S/Jongkhar and Samtse under the existing RBP divisions.
  
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  The NBP will cater to the security of SEWH and the borders in the rural and uninhabited areas by deploying highway patrol and border patrol.
  
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  Ideally, the creation of the NBP would make a big difference in strengthening the existing security arrangements in the border areas of southern Bhutan. However, given the high cost implications, the following may also be explored:
  

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  Explore the possibility of inducting the existing RBA and RBP personnel having work experience in border areas of southern Bhutan for NBP. On induction of such personnel, additional cost incurred would only be on training them for NBP functions.
  
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  Explore the possibility of utilizing the existing RBA infrastructure/facilities in the border districts for setting up the three proposed NBP Command Centres.
  
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  Explore the possibility of assigning the responsibilities of the proposed NBP to the existing RBA establishments in the border districts. This new security force could then operate under a new name and uniform.
  

The concept of community policing will be inducted into the policing mainstream by extending the services through Community Policing (CP) desks directly under the purview of the existing Police Stations. The community policing services will be delivered to individual communities through the service outlets known as CP Desks.

- Customized solutions

- Tap on community resources

- Encourage active citizenry

- Monitor vulnerable areas and new faces in the community.

- Make frequent door to door visits and ask the residents about their problems and get their views.

- Fast response to emergency calls.

- Conduct on-scene investigation to avoid lengthy practices and improve services.

- Mobilize volunteers and resources for the community vigilance.

- Work together with residents in dealing with petty offenders.

- Interact with media to promote safety habits and crime prevention measures.

Given the important role that the Pazap, Militia, Village Volunteers and Risup systems have played in safeguarding national security in the past and considering the prevailing threat perceptions, today there are all the more reasons for a small country like Bhutan to make national service compulsory. The concept of National Service should be built on the tradition of Pazaps and promoted as a sacred duty for the protection of the Palden Drukpa.

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  Given Bhutan’s geo-political realities and being a small country with a population of less than 600,000, it is imperative for all able bodied Bhutanese to enroll and undergo national service training so that every citizen is in a state of preparedness to make sacrifices for safeguarding national security and sovereignty.
  
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  National Service will serve as a great asset at times of wars and situations of national crisis and emergencies caused by disasters such as earthquakes, floods, fires, famine and outbreak of diseases. They will serve as a valuable pool of trained reservists.
  
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  National Service will not only supplement the professional security force, which currently has a combined strength of less than 10,000 personnel, but also create a reserve force and enable the government to maintain a small security force. Such a policy will help drastically reduce cost of maintaining a large armed force.
  
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  In countries like Singapore and Switzerland, National Service has also fostered greater cohesiveness and understanding among different ethnic groups.
  
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  The presence of a strong National Service will serve as an effective deterrence against external aggression as well internal disturbances.
  
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  The concept of National Service will help promote a culture of responsibility and service to the nation.
  
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  The National Service training will help inculcate self-discipline and strengthen the spirit of nationalism and patriotism.
  

Since our efforts are geared towards introducing reforms and strengthening the efficiency of existing arrangements, it is believed that introducing the concept of National Service will help the government to cut military costs and maintain a small, cost efficient security force that will be supplemented by a large pool of well trained reservists to be mobilized in times of national crisis.

MEA should formulate a security framework for industries and incorporate a separate chapter in the proposed Industries and Investment Act.

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   As an interim measure, an appropriate industrial security framework should be drawn-up in close consultation with agencies like MoHCA, RBP, BCCI and key stakeholders for implementation by the concerned. The identified agencies should look into the following:
   

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  Industrial Security Framework and Policy addressing separately the security issues of industrial estates, railways, airports and vital installations.
  
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  Categorization of high and low security risk industries and vital installations should be done based on their strategic importance and locations.
  
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  Specification of the required minimum security standards with specialized services like firefighting units should be based on the nature of industries and installations.
  
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  Fulfillment of security requirements to be set as one of the conditions for renewal of business licenses.
  
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  Financial institutions to set security measures as a prerequisite for industrial insurance policies.
  
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  Setting up of a mechanism for monitoring and evaluation of the security systems in industrial units to be effected by an independent agency.
  
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  A protocol for coordination and information sharing is to be developed.
  
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  Identification of vital installations requiring 24 hours security coverage.
  

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   Identify an appropriate government agency to monitor private security firms on issues such as recruitment policy, information sharing with law enforcement agencies, confidentiality procedures, etc.
   
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   In case of accidents, senior management of industry/organization should be made equally accountable and responsible along with the security personnel. Management must be educated on its responsibilities and provided with the tools to deal with risk management effectively.
   
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   Management of industries should provide clear career development opportunities for private security personnel.
   
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   Needs assessment study to be carried out for industries requiring double layer of security.
   
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   To carry out a study for the feasibility of sharing common security resources wherever feasible.
   

The RBP as a law enforcement agency has the crucial role to ensure internal safety and security. In order to address increasing challenges and to continue to be effective and efficient, its capacity will need to be constantly upgraded. Furthermore, with the transition to parliamentary democracy and increased economic activities planned from 2008, RBP will need to be reformed to address the challenges that would emerge with new developments.

Reforms need to be undertaken within the RBP to make it more efficient in the discharge of its responsibilities. In this regard, the revised Police Act, which is proposed for submission to the Royal Government soon, would provide the guiding principles for RBP and its personnel. The Act would provide a clear mandate with defined roles, responsibilities and procedures for the functioning of RBP. Therefore, it would be vital for the revised Act to be enacted.

There is a need to establish a HRD section within the RBP so that it can have a clear human resource development master plan for the proper growth and development of the organization. Officers and personnel must be provided with opportunities to regularly update and enhance their skills through in-service specialized training, refresher courses, seminars and workshops. Officers must also be provided opportunities for post-graduate courses in specialized areas.

The entry qualifications for recruitment for constables must be raised from Class VIII to Class X pass. Raising the entry qualification levels would lead to a pool of skilled police constables. Raising the qualification levels would also contribute towards improving the performance of the RBP as a whole.

To develop into an effective police force to counter the increasing challenges associated with rapid socio-economic development, the RBP would need to upgrade its infrastructure and be provided with modern equipment/facilities. The establishment of forensic laboratories for DNA, drug and document analysis, automated finger print system and the development of a comprehensive data base, etc. will become prerequisites for future policing. In the absence of such facilities, RBP would not be in a position to provide foolproof security. Currently, in the absence of such facilities, successful crime detection can be attributed to the determination of the investigating officers and sometimes due to sheer luck.

Jail and Fire Services involve professional roles and responsibilities quite different from policing. Personnel trained in prevention and detection of crimes that are deployed for rendering reformative and fire fighting services cannot deliver their services professionally. In view of this, it is recommended that Jail and Fire Services be established as specialized units under the RBP staffed by personnel specially trained in these fields.

Drawing on the experiences of other countries, there is the general perception that in the absence of functional autonomy for the RBP, post 2008, interferences could adversely impact on the efficient delivery of police services. In this regard, since the Police Act is being revised and reviewed by the Royal Government, the matter would need to be given due consideration.