Key Insights from the Farm Road Maintenance Manual Training for Local Government Officials

It was an honor and a privilege to engage with nearly all Local Government (LG) officials during the training on the Farm Road Maintenance Manual, 2023 developed by the Department of Surface Transport. The training was conducted across various regions, starting with the western districts, followed by the southern and eastern regions. Participants included all those involved in farm road maintenance—village Tshogpas, Gups, Mangmis, Geog and Dzongkhag Engineers, and even senior officials such as Dzongrabs and Drungpas. In certain cases, Geog Administrative Officers represented their respective Geogs. This ensured that the intended target group, for whom the manual was designed as a technical and advisory tool, was successfully reached.

Delivering the training was physically demanding, requiring long hours of standing and explaining the significance of farm road maintenance. However, the accomplishment lies in equipping LG officials with the necessary knowledge and skills to effectively manage and maintain these crucial roads.

Beyond sharing knowledge, the training also provided me with valuable insights into the real, grassroots challenges faced in farm road maintenance. It reinforced the fact that much remains to be done to achieve the shared objective of keeping these roads in good condition. Well-maintained farm roads ultimately contribute to the socio-economic development of our communities, ensuring better accessibility and connectivity.

A well-functioning farm road network will also play a crucial role in supporting the Gelephu Mindfulness City, facilitating the transportation of local produce and fostering collective growth at individual, community, and national levels. This highlights the importance of farm roads and the timeliness of the training.

Lhuentse, Trashigang & Bumthang Dzongkhag

Key Takeaways from the Training

• Mindset of Local Leaders and Political Influence 

It was surprising to hear some local leaders express regret that the training came too late, as they only had one to two years left in their term. However, the duration of their tenure should not be the focus—what truly matters is that everyone involved in farm road maintenance understands its importance and best practices. Local leaders, past and present, should take ownership of farm roads as custodians of their communities. The mindset of local leaders significantly impacts grassroots development, governance, and public welfare.

• Need for Minimum Educational Qualifications for Local Leaders 

With decentralization embedded in the Constitution, ensuring that local leaders meet a minimum educational requirement has become essential. Given their role in planning, budgeting, and implementing numerous developmental activities, it would be beneficial to mandate at least a Class 12 or Bachelor’s degree qualification. This would not only improve efficiency but also enhance the execution of plans and priorities within local governance. Leaders with a strong educational background are more likely to foster inclusive, transparent, and development-focused governance, driving sustainable progress. In contrast, those with a short-term or self-serving approach may hinder long-term community welfare.

Pema Gatshel & Samdrup Jongkhag Dzongkhag

• Budget Constraints and Financial Challenges 
• Inadequate budgeting and budget constraints limit the effective execution of FR projects.
• Non-uniform budget allocations create disparities in project implementation.
• Low priority for maintenance activities leads to rapid road deterioration.
• The rigidity of budget allocation guidelines restricts flexibility in addressing urgent needs.
• Lack of Ownership & Ineffective Road User Groups (RUGs)
• Weak community and institutional ownership lead to poor maintenance of roads.
• Ineffective or absent RUGs reduce local participation in road upkeep.
• The lack of incentives for RUGs affects their engagement in maintenance work.
• Drainage Issues & Climate Change Effects
• Inadequate or poorly designed cross-drainages cause waterlogging and accelerate road deterioration.
• Heavy rainfall and extreme weather events worsen the impact of poor drainage.
• Climate-resilient features are not adequately incorporated in road construction.

Dagana, Tsirang & Samtse Dzongkhag

• Geographical & Terrain Challenges
• Rugged and difficult terrain makes Farm Road construction and maintenance challenging.
• Many Farm Roads exceed the permissible design gradient, leading to faster deterioration.
• Some roads pass through marshy locations, requiring special engineering solutions.
• Land Acquisition & Social Clearance Issues 
• Delays in obtaining social clearance hinder timely project execution.
• Compensation issues arise when Farm Road alignment passes through private lands.
• Public grievances related to land acquisition impact project acceptance.

Paro, Haa, Chukha & Thimphu Dzongkhag

• Procurement & Machinery Availability Challenges 
• Machinery required for road construction and maintenance is often unavailable during critical times.
• Centralized procurement processes at the Dzongkhag level delay machinery allocation.
• Disparities in hiring rates for equipment create inconsistencies in restoration works execution.
• Lack of Technical Expertise & Skilled Personnel 
• Local government officials often lack the technical expertise needed for road construction and maintenance.
• Shortages of engineers and technical personnel affect project planning and execution.
• Limited contract management and administration skills lead to inefficiencies.

Punakha, Gasa, Sarpang, Wangdue Dzongkhag

• Planning & Monitoring Deficiencies 
• Inadequate feasibility studies result in inefficient road alignments and resource utilization.
• A lack of proper monitoring leads to substandard construction quality.
• Poor coordination between local government and technical personnel delays decision-making.
• Bureaucratic & Administrative Challenges 
• Lengthy procurement processes cause delays in project implementation.
• A rigid reporting hierarchy for monsoon damage slows down repair works.
• Political interference sometimes affects the prioritization of FR projects.

Participants sharing issues & challenges

• Poor Quality of Construction & Maintenance 
• Improper design specifications and poor construction quality reduce the lifespan of Farm Roads.
• Lack of adherence to design standards and construction guidelines leads to frequent road failures.
• Coordination issues in constructing different pavement layers result in uneven road surfaces.
• Mismatch between Policies & Ground Realities 
• Existing policies and design standards do not always align with practical field conditions.
• Localized challenges require more flexible approaches, which are often restricted by rigid policies.
• The gap between public expectations and policy priorities causes dissatisfaction.

Conveying my messages 

ལམ་སེལ་ལས་ནའི་སྐོར།

This is a poem written in Dzongkha (National Language) as self-dedication to my profession. It is religiously considered that working for any construction, development and improvement of pathways, roads, bridges etc is outstanding merits. Basically, particularly working for any route used for traveling and transportation is meritorious service.

I am sorry for Dzongkha spelling err if any.

ལམ་སེལ་ལས་ན་ཐམས་ཅད་ལ། བྱང་ཆུབ་ལམ་དང་དབྱེ་བ་མེད། དགེ་བ་ཡོད་པའི་ལ་རྣམས་ཀྱི། འགྲོ་བ་ཡོངས་ལ་ཕན་པར་ཤོག།

ལམ་ནི་སེལ་ཡི་སེལ་ཡི་འགྲོ་བའི་ཚེ། ལུས་སྐྱིད་པ་ཡིད་ཡང་བདེ། ལུས་སེམས་གཉིས་ཀུ་སྐྱིད་པའི་ལས་བྱས་པ།བསྐལ་བ་བཟང་བ་སྐྱབས་སུ་ཆེ།

Beautifully blacktopped Phumithang Dratshang road.

འགྲོ་བ་རིག་རྣམས་འགྲོ་བའི་ལམ་འདི་ལས། རྐྱེན་བར་ཆད་མེད་པར་ཤར་ར་ར། འགྲུལ་ལམ་མ་འཐོག་སྨོན་ལམ་འདི་བཏབ་གནས། དགེ་བ་མང་པོ་ལས་ཀྱི་བསག།

ཕར་ཉིན་མ་ཤར་ལས་ཤར་བའི་ཚེ། ལམ་སེལ་ལས་ནའི་སྡུག་བསྔལ་གི། རང་ལས་ན་བལྟ་ལྟོག་འགྲོ་བའི་ཚེ། འདི་ཞིན་གྲུབ་འབྲས་མང་པོ་གྲུབ།

  

ཉིནམ་ནུབ་ཀྱི་ཕྱོགས་སུ་འཛུལ་བའི་ཚེ། དུས་ད་རེས་བཟུམ་མའི་དུས་རྒྱུན་དུ། ཉིན་རིན་ཆེ་མེད་པར་ཕན་པའི་ལ། ལོག་ཡང་ཡང་སྒྲུབས་པའི་སྨོན་ལམ་ཤོག། 

How avoidance of detailed ground study resulted in failure of road infrastructures

As usual, I always begin by thinking whenever I see failure in road infrastructures; road construction in Bhutan has already passed half a century after its inception in the early 1960s. Exactly, at this time, mule tracks and footways are mere history to track back. Roads replaced all those detour tracks for transportation that touches high mountains and deep valleys. Slope failures on those tracks were out of the question since these don’t have one except the natural slope. But the road construction comes with designs that require cut and fill that develop another slope in addition to the natural slope, which is called the "cut and fill slope." The failure mechanism of these slopes must be addressed and learned. Despite engaging in road construction and maintenance for decades, are we enough with the trend? We have many questions to ask and things to do. Let the custodian of the road not bounce from one agency to another.

The Department of Roads, in the 11^th five-year plan and in the beginning of the current plan, Geog Connectivity roads with the department. Planning and budgeting works were mandated for the department. Finally, those roads were handed over to Local Government. Inconsistency in the decision of springing the custodian has left those improved roads further deteriorated and damaged.

We are adequate with road coverage. Every nook and corner of the country is connected. We are done with the length. The length of roads has outnumbered the technology involved. Now, what we need is advancement of technologies with the change.

 

Bailey Bridge subsided under the catastrophic slope failure.

Construction techniques of the road, starting from formation cutting to pavement strengthening, have improved with the advancement and introduction of new machinery and methods. An environment-friendly road construction technique was started in the late years of the 9th five-year plan, and now the time has triggered and reminded us to start preparations to integrate the construction of climate-resilient road infrastructures.  

Indeed, the monsoon has taught us valuable lessons. The change, we see, is through more destruction and damages in road infrastructures than before. We feel the change through roadblocks.

How is it possible to overcome the change, especially the climate change? What are differences in failure we observe between then and now? Are those failures due to climate change or something else?

Pavement or the road fails because of the failure of permanent structures—walls, drains, cross drainages, slopes, etc. Bridges usually fail because of overloading and slope failure. Otherwise, bridge failure due to other reasons is the least that we usually counteract immediately.

Let me explain one simple example—provision of both sides camber on pavement in any category of roads. Our Primary National Highways are wide enough to provide camber on both sides, and so are likely the Secondary National Highways. But is it really possible on Dzongkhag and farm roads? And our standards say that the camber should be on both sides. The standard carriageway width is only 3.5 meters. From my personal experience, there is a constructability issue. Even if there is no constructability issue like in the aforementioned category of highways, providing camber on both sides is unnecessary considering the different nature of soil conditions on downhill slopes. We must avoid infiltration of runoff from the pavement, prevent saturation of the slope, and let the slope fail grossly.

And why do our walls repeatedly fail in the same location?

 

Pavement failure due to excessive infiltration.

Likewise, are our standard design road drainages or cross-drainages adequate? Or do we need to revise?

The evidence of aggravating damages year after year on road infrastructures and restoration works that cost us dearly must be felt by every individual responsible and, indeed, must be felt by the end user as well. Or else we wait for the catastrophe that is looming large before us.

Therefore, road infrastructures designed and constructed decades ago may not suffice for the change now. We may need to revise the design criteria and focus more on slope stability studies. Much more information and awareness about slope engineering are indeed felt necessary in addition to the training provided for construction quality and more effective road asset management.

Tunnel Roads – the next phase of transport system in Bhutan

Department of Roads as parent agency for highways in Bhutan under Ministry of Works and Human Settlement has galloped a long journey since the start of first highway construction in early 1960s. Beyond highways, in the 11^th fifth year plan, department was ushered responsibilities for construction and maintenance of whooping networks of Geog Connectivity (GC) roads. At the inception of 12^th fifth year plan and thus far, almost all surface roads construction and improvement were completed; overall the adequacy of road networks have been accomplished under the dynamic farsighted leadership of the department. After successful completion of blacktopping of 182 GC roads out of 205, those roads were handed over to Local Government (LG), leaving the department mandated to focus only on highways.

Nonetheless, journey of further enhancement and development of transportation system in the country must travel far to the world standards for enhancement of socio-economic development.

For that matter, as reflected in the current plan document, the next stage for the department to get engage is in tunneling and underground space engineering works. Best for the country like ours that is geologically challenging and mountainous, start of tunneling works shall gear the department in accomplishing the mission statement of reducing travel time.

The first ever underground/tunnel road (1.50 km) (Video published by Bhutan Tube)was constructed on Tsirang – Wangdue National Highway by Punatshangchu Hydro project II and successfully opened to traffic on 25^th June 2014.

Since the start of hydro-power plants construction to meet the target to harness 20000 MW by 2020, Bhutanese in general have seen tunnel construction in hydro sector only.

 

Highway tunnel on Tsirang - Wangdue National Highway. Photo from PHPA-II website

Tunneling roads will not only help in reducing travel time, it will also reduce the current setback triggered by unusual monsoon. Though the initial construction expenditure will be huge as compared to surface roads, operation and maintenance costs will be minimum; thereby, the best judgment to invest in the tunneling works considering the Life Cycle Costing and also the climate change effect on the roads such as now will be meager.

For that matter, it is time for the government and department in particular to start groundwork for the tunneling and underground space engineering knowledge. Ultimately, with tunnel roads that are best suited for country like ours, transportation system will be in the next level.

Therefore, as an introductory process to tunneling, short course on tunneling is scheduled on 24^th to 27^th September at Druk Hotel, Thimphu. Dr. Manoj Verman, Tunneling and Rock Engineering Expert, President, Indian National Group of ISRM (International Society for Rock Mechanics and Rock Engineering) is organizing the course. The course fee is Nu. 17,000.00 (Seventeen thousand only).

I aspire, interested engineers of the nation would participate in the short course to originate light in future tunnel roads and underground space engineering.

Blacktopping of Dakpai-Buli-Nimshong GC Road

Dakpai-Buli-Nimshong GC Road starts at Dakpai, 18.00 km on Tingtibi – Zhemgang SNH at an altitude of 1263 m. It traverses through forest touching many villages until Buli (36.60 km), 1698 m. The highest elevation, it passes between Dakpai & Buli is at Talila (18.00 km), 2014 m.

From Buli, the road inclines up through randomly dense forest till Gonglithang (5.10 km), 2154 m. The road further inclines up through the continuously dense forest & crosses Malaya top (10.50 km) at an altitude of 2626 m. The road, then declines down until Rongdigang (19.60 km), 1833 m and incline bit up with four short zigs. Further it traverses straight until Churmulung (25.50 km), 1937 m and then decline down till Nimshong (30.20 km), 1740 m.

The road, Dakpai-Buli was constructed in early years of ninth fifth year plan and Buli-Nimshong road was constructed in later years of 10^th fifth year plan.

 

Blacktopping work in progress at Nimshong

From the above alignment description of the road, it is clear that the road stretch from Dakpai to Buli (36.60 km) passes through uniform elevation variation. Whereas, the road stretch from Buli crosses the highest elevation variation. Due to high elevation and dense forest cover along Gonglithang until Rongdigang, the road corridor and the pavement in particular receive less sun, leaving the road stretch marshy and damp throughout the year.

Although major sections of the road have been blacktopped, it is observed deterioration of wearing coarse in the form of potholes; alligator cracks, depression distress, shoving etc. At certain stretch, the gross failures of pavement are observed.

Due to more damp and marshy locations, almost 2.40 km of road beyond Malaya towards Nimshong were left without blacktopping.

 

Road stretch through dense jungle beyond Malaya

To forgo the blacktopping of marshy sections, discussion were held in various meetings and even in Department’s Quarterly meeting and resolute the same.

That’s why, certain stretch along Buli to Nimshong GC (2.40 km out of 30.20 km target) road was not blacktopped. Nonetheless, estimates for the remaining pavement improvement works have been prepared inclusive of cross drainage and road drainage for the betterment of smooth road along the high elevation ranges. 

I generously regret the inconveniences caused to the public of Upper Kheng, UK.

Financial Year 2016 - 2017

The road history of Upper Kheng (UK) is in making. The most controversial GC road construction in the history of Department of Roads has been completed. Formation cutting of additional length of 1.24km to the newly proposed Gewog Centre is yet to complete with trace cutting already reached its termination point. Formation cutting of Bardo Gewog centre road (Therang - Khomshar GC road) will be completed within this financial year 2016 -2017. Trace cutting has already been terminated at the Gewog centre. 

 

Beautiful Khomshar before road construction

Survey work for the new road that will connect Khomshar under Zhemgang and Wama under Mongar Dzongkhag is underway with Lingmithang regional office undertaking the feasibility survey until Ngomila. The road construction activity is in 12th fifth year plan. The road will connect Central and Eastern Dzongkhag. 

Construction completion of GC roads has welcomed many farm roads under Shingkhar and Bardo Gewogs. Within 2015 -2016 financial year, two farm roads to Radhi and Thrisa village with 7.10 km and 9.17km respectively started its construction. Another two farm roads to Changkhar and Thajong is yet to start. 

Bardo Gewog's farm roads to Phulabi and Dratshang (Gonpa) awaits trace cutting of GC road to reach Gewog centre, since all takeoff points of the farm roads are from Gewog centre road. Factually, UK's development mode is on. 

 

Thrisa Farm road takeoff from GC road

With Chamkharchu Hydropower soon to start, roads condition and people's lives will be drastically improved. 

Nimshong Sub-division office is mandated for management and administration of road projects of UK. It has blacktopping and maintenance of Buli - Nimshong (30.2km) and Phumithang Dratshang road (3.35km), formation cutting of Shingkhar and Bardo GC roads works at hand. 

Budget proposal for the fiscal year 2016 - 2017 amounting to roughly Nu. 150.00 million was farsighted move. Among various proposed improvement activities of GC roads, budget for construction of only three Bailey bridges were approved with RGoB financing. 

Government has pledged and prioritized blacktopping of all Gewog centre roads within 2018. Within these two financial years period, Shingkhar GC and Bardo GC road till Bardo contemplate to complete. The total GC roads to blacktop lengthen to 59.06km after completion of Therang - Khomshar GC road. 

Therefore, as per the fiscal budget approval and work plan accordingly, I wish for timely release of the budget and timely completion of work. 

Therang - Shingkhar GC Road construction II

Starting from the feasibility study to construction was divisive. Controversies hindered the project by almost three months. Initially people discussed and minuted to change alignment, diverting away from the mandate of having the GC road be the shortest possible. The initial construction by the Dzongkhag administration deviated from the mandates outlined in the Guidelines and Specifications. The gradient was high enough for vehicles to ply. The department had to propose the gradient correction work for 3.18 km in length, and unluckily certain length of the road passes through private land. Repeated bulldozing through private land proved injustice. Yet, holistic discussions with the landowner made it a success.

The target for this fiscal year was 8.10 km. The total length of the road as per the feasibility survey report was 11.32 km. 3.18 km was already trace cut by Dzongkhag but left with a high gradient, and the department had to do correction work. Despite public unfriendliness with the construction work, management risked completing the whole remaining length (8.1 km) in this fiscal year.

Roads are the topmost priority of the government and people's wants and needs as well. It is a crucial facility for development and prosperity. Impossibility is guaranteed to develop far-flung villages and communities without a road network.

Gradient correction work through pvt land. 

Everywhere, the concerns may be similar. People grant and sign a no objection agreement if a road passes through their private land during the initial stage of feasibility studies. During the construction stage, people aren't happy because they care about their land since it is their livelihood. This disagreement arose during the construction of the Shingkhar GC road. It marked as the most controversial road construction in the history of the Department of Roads, with frequent media reports at the national level.

Despite hectic pressure from the public, construction management was a real challenge. It is best to act holistically, considering the laws of the land. No one is above the law. The last resort for every disagreement is with laws and the system to decide. Decision-taking is the toughest, and pronouncing the advantage of larger interest is best. Never decide in view of self-gain. Lead with laws, and every problem will have strict solutions. Finally, few individuals were apprehended.

Lyonpo Lekey's recent visit to his Gewog connected with road. 

People tense when the law acts. After apprehension, apprehensive thought about the project was ended. Construction progressed well, and it is my glory to inform the general public that the construction of the Therang-Shingkhar GC road is completed. Yet an additional length of 1.24 km to the proposed new gewog center is under construction. Hopefully by the beginning of fiscal year 2016-2017 it will be completed.

I applaud and thank my concerned site engineer for the dedicated work, and as a team we grow. 

Shingkhar GC Road

It is almost two years since the construction of the Therang–Shingkhar GC road, with a total length of 11.32 km with Nu. 48 million funded by the Government of India (GoI). It has become the most controversial road construction in the history of the Department of Roads (DoR). Much unfolding history and important happenstance has to be told and learned. Yet within a year of my handling the project in the capacity of project engineer, it has progressed with a few hundred meters left to reach the termination point, the Gewog center.

There were countless hindrances and misgivings from the public. Nonetheless, I am content to share the good news.  

Not only does the project management deserve significant applause, but also nearly all relevant agencies, from grassroots organizations to the primary ministry.

Road construction reached Shingkhar village. Image date: 31/01/2016

Most probably by the middle of March, construction will be completed, and as per the work plan, within this fiscal year, the project shall be completed. It is indeed good news for the people of Upper Kheng and mostly for the people of Shingkhar gewog. The hardship days of walking shall be history hence. And the first-ever road project in the community is yet again a history to remember.

The Therang–Bardo–Khomshar GC road (27.1 km) will take another year for completion, and the progress to date is good despite encountering tough geological terrain for both trace cutting and formation cutting.

The Buli–Nimshong–Therang GC road (49.6 km) is under maintenance, and the road stretch from Nimshong until Therang has improved.

A budget for various constructions of permanent structures and bridges along the aforementioned roads under the Nimshong sub-division office has been proposed and submitted for fiscal year 2016–2017.

Thank you, public, for the support and giving me vast opportunities to learn numerous tactics in my professional life, and I shall remain grateful forever. 

Shingkhar GC road Construction I

Road construction is the topmost priority for the government of now and then, and it is the basic necessity for the socio-economic development to prosper. Considering the vital importance of rapid economic development, the Department of Roads (DoR) started improvement works on existing highways. The Department of Roads took over the construction of Gewog Connectivity (GC) roads from Dzongkhags (districts) in accordance with the government's fiscal policies and measures for quality road construction and the stated road development network of the country. 

Therang-Shingkhar GC road alignment

DoR, Regional Office Tingtibi, took over the GC roads on 2^nd July 2013. During the handover, the Shingkhar and Bardo GC roads in Upper Kheng were under construction under Zhemgang Dzongkhag. The road networks in Lower Kheng are well-developed.

It was my pleasure to take over the projects of Upper Kheng in the capacity of a fresh college graduate as a project engineer.

Upper Kheng is the most remote part of the nation. People had to walk days and nights to reach Dakphey, the current takeoff point of the Upper Kheng roads. Many repeated pleas in the past regarding the road construction were made to the government but in vain.  The settlements are scattered, and it would cost a huge amount. At some point people were asked to resettle in southern Bhutan, considering the difficult geographical terrain.

With major funding from the Government of India (GoI), road construction to the UK was begun in early 2000. The road was only till Buli, Nangkor Gewog. The Ministry of Agriculture constructed the road as a farm road. It is said that people with joy prostrate, considering the road as a craving gift for the Khengpas. The tears of happiness wet the eyes and relieved the hardship of mundane suffering to walk and walk.

That was the welcoming moment of happiness for the Khengpas of the UK and the beginning of economic development with road connectivity.

In 2007, Dzongkhag started the road construction from Buli until the Therang junction that benefits Bardo and Shingkhar Gewog. The road passes through Malaya, the highest peak between Shingkhar and Nangkor Gewog.

From Nimshong until Therang, DoR took up the road construction as deposit work. The roads to Bardo and Shingkhar Gewog diverge from Therang junction. The 11.34 km road to Shingkhar Gewog and the 27.1 km road to Khomshar are under construction; the work started in 2013. 

That marked the inception of road history in the UK, and I will discuss its subsequent controversy shortly.