𝐀𝐝𝐝𝐫𝐞𝐬𝐬𝐢𝐧𝐠 𝐭𝐡𝐞 𝐆𝐮𝐧𝐠𝐭𝐨𝐧𝐠 𝐂𝐫𝐢𝐬𝐢𝐬- 𝐀 𝐂𝐚𝐥𝐥 𝐟𝐨𝐫 𝐁𝐚𝐥𝐚𝐧𝐜𝐞𝐝 𝐃𝐞𝐯𝐞𝐥𝐨𝐩𝐦𝐞𝐧𝐭

By Kezang Choden

Bhutan, often celebrated for its Gross National Happiness (GNH) index, is facing a pressing issue that threatens the very fabric of its rural communities: the rise of gungtong, (empty households). The recent data revealing that 25% of households in Trashigang Dzongkhag are vacant, is a stark indicator of the escalating rural-to-urban migration trend. This phenomenon is not isolated to Trashigang alone; other Eastern Dzongkhags like Pemagatshel, Trashiyangtse, and Mongar are also witnessing significant rates of gungtong.

The country is facing a pressing issue that threatens the very fabric of its rural communities in the east: the rise of gungtong. Nationwide, a total of 5,985 households have been identified as gungtong, accentuating the widespread impact of migration.

Following Trashigang, other dzongkhags experiencing notable gungtong rates include Pemagatshel with 14.2%, Trashiyangtse with 13.4%, and Mongar with 11.2%. These figures illustrate the broader pattern of rural depopulation, as residents seek better economic oppotunities, job opportunities and living conditions in urban areas. The implications of this migration are profound, affecting local economies, cultural landscapes, and the social fabric of rural communities.

Thrimshing Gewog in Trashigang Dzongkhag has reported the highest rate of gungtong within the district. Of the 717 total households in Thrimshing Gewog, 181 are now vacant, marking a significant 25% gungtong rate. This highlights a growing rural-to-urban migration trend impacting the area. Yegay Dorji, Gup (Village Chief) of Thrimshing Gewog, attributes this rise in gungtong to the increasing desire among parents to send their children to urban areas for better educational opportunities. Additionally, many elderly parents are moving to live with their children who work in urban centers, further contributing to the number of empty homes. “This migration pattern reflects broader societal changes, where the pursuit of better education and employment opportunities is leading to the abandonment of rural homes,” Dorji noted.

Bartsham Gewog in Trashigang Dzongkhag is facing a significant gungtong problem, with 166 out of its 513 households currently vacant. This marks a notable increase in migration and emphasize the challenges faced by the community. Gup Kelzang Dawa of Bartsham Gewog said, “Family planning policies, the migration of many Bhutanese abroad, and parents moving with their children for better facilities and to act as babysitters have all led to a rise in empty households.”

Yurung Gewog in Pemagatshel is grappling with a high rate of gungtong, with 181 out of its 402 households now empty. This alarming trend highlights the pressing issues driving villagers away from their homes. Gup Sangay Thinley of Yurung Gewog shared, “A significant number of residents are leaving Yurung Gewog due to a combination of factors. The lack of job opportunities, educational facilities, and health facilities in the area is compelling families to seek better prospects elsewhere. Additionally, the threats from wild animals pose substantial challenges, as villagers find it increasingly difficult to protect their crops and livestock from wildlife incursions.”

Gup Sonam Jamtsho of Nanong Gewog in Pemagatshel Dzongkhag explained that the Dzongkhag is experiencing a severe gungtong issue, with 151 out of its 624 households now vacant. “The majority of the remaining residents are elderly parents. Once these elderly residents pass away, their homes are left empty. The problem is compounded by agricultural difficulties, as crops often fall prey to wild animals, leading to considerable losses for the farmers. The youths are increasingly seeking employment opportunities in urban areas, even if it means taking up blue-collar jobs, rather than remaining in their rural homes,” said Jamtsho.

The lack of infrastructure and basic facilities is exacerbating the migration crisis in Yallang Gewog under Trashiyangtse Dzongkhag, with 150 of its 453 households now vacant. Gup Sonam highlighted the critical issues contributing to this trend. “Due to the lack of roads and other essential facilities, the number of empty households is increasing. Out of five Chiwogs in Yallang Gewog, only one has access to road infrastructure, severely limiting mobility and access to services for the rest of the gewog,” said Sonam. The situation is so dire that the village of Phashi Nadang has been completely abandoned. “Previously, there were five to six households in Phashi Nadang, but now it is totally empty,” Sonam shared. “The inadequate water irrigation system further compounds the challenges faced by the residents, making agriculture difficult and less viable. The gewog’s proximity to the Arunachal Pradesh region also raises concerns about security and stability,” he added.

Tongmijangsa Gewog in Trashiyangtse Dzongkhag is home to 367 households. The Gewog is facing a significant gungtong issue with 149 vacant homes. The primary driver behind this trend is the inadequate infrastructure in the area, according to local officials. Gup Ugyen Dorji of Tongmijangsa Gewog pointed out that the lack of proper infrastructure is a major concern. “Our gungtong cases are rising due to low infrastructure. We have only one road, which was connected in 2002 and has not been maintained since. Additionally, the Gewog offers only basic education and health facilities, which are insufficient to meet the needs of the community,” said Dorji.

Saling Gewog in Mongar Dzongkhag, with 387 households, is experiencing a similar growing gungtong issue, with 18 homes now vacant. The primary concern for residents is the persistent problem of wildlife damaging agricultural products, leading to increased migration. “Local residents are losing hope in sustaining their livelihoods through farming due to frequent incursions by wildlife. Our agricultural efforts are being thwarted by wildlife,” said Gup Sonam. He emphasized that without significant improvements in infrastructure, including better roads, enhanced educational opportunities, and improved health services, the trend of increasing gungtong is likely to continue.

The recent National Assembly session brought to light significant concerns regarding the socioeconomic development disparities in Bhutan. According to a review report on Satong and Gungtong by the Good Governance Committee (GGC) of the National Council (NC), these imbalances are evident from poverty and migration patterns across the country.

The report highlights a troubling trend: between 2010 and 2019, Bhutan’s total cultivated area decreased by over 28,000 acres (10%), with chuzhing (wetland) reduced by 29,566.42 acres (38.4%) while kamzhing (dryland) increased by almost 14,000 acres (8.13%). Phuntsho Rabten, Chairperson of the NC’s Good Governance Committee, expressed concern that if this trend continues, Bhutan could face deserted villages, increased food insecurity, and rapidly diminishing community vitality.

The report identifies key reasons for land being left fallow, including irrigation problems, human-wildlife conflicts, and labor shortages. Additionally, migration for employment, education, family relocation, marriage, and health is contributing to the rural-urban shift, with projections indicating that by 2037, half of Bhutan’s population will reside in urban areas.

In 2019, 8,957.81 acres of wetland were left fallow, resulting in an opportunity cost of 14,322.5 metric tons of rice per year. Between 2017 and 2022, both the area under paddy cultivation and its production declined by over 50%. Consequently, rice imports surged from Nu 1.7 billion in 2017 to Nu 2.6 billion in 2022, reaching Nu 3 billion in 2023. The chairman remarked, “This has significantly impacted our goal of achieving rice self-sufficiency, which decreased to 25% in 2022 from 40.8% in 2018.”

The GGC proposed several key recommendations to address the rising issues of gungtong (empty households) and satong (abandoned households). One of the primary recommendations emphasized the need for balanced regional development to reduce disparities and promote equitable growth across the country. This approach aims to address the imbalances in socioeconomic development that are evident from disparities in poverty and migration patterns.
Another crucial recommendation was the formulation of a policy for converting fallow lands. The committee highlighted the increasing dependence on food imports and the growing amount of fallow lands, which pose a threat to the country’s food security. They suggested adopting policies similar to those seen in other countries, where fallow lands are leased for productive use.

The committee also recommended allowing flexible use of wetlands, emphasizing the potential for commercial or contract farming to diversify land use and enhance productivity. This approach could provide a solution to the urgent necessity for a fallow land conversion policy.
To mitigate risks from natural calamities and human-wildlife conflicts, the GGC advocated for crop and livestock insurance schemes. The chairman highlighted the high risks associated with farming and the need for an insurance scheme to cover livestock depredation and crop damage caused by wild animals, focusing on priority crops and livestock categories identified by the Ministry of Agriculture and Livestock.

Program support was another significant recommendation, including subsidies to address challenges faced by farmers due to labor shortages and limited access to suitable machinery. The government previously provided subsidies for hiring farm machinery, but this support has been withdrawn, placing a significant burden on farmers who now face higher costs to rent equipment. The committee urged the government to reevaluate subsidies for farm machinery and introduce cost-sharing packages for prioritized crops and livestock activities to incentivize farmers.

Additionally, the committee recommended establishing eligibility criteria for land exchanges, scaling up agricultural production, reviewing access to credit in the agricultural sector, reconsidering interest rates, expanding markets, and incentivizing the agricultural sector to attract youth, especially in rural areas. These comprehensive measures aim to address the various challenges faced by the agricultural sector and promote sustainable development.
Following further discussions, the National Assembly has assigned the GGC to revisit some of these recommendations. The house will adopt the final report, including the revised recommendations, on July 2, 2024.

The Gungtong and Satong crisis in the country is a clarion call for action. Addressing the causes of rural depopulation requires a multifaceted approach that combines infrastructure development, economic diversification, and balanced regional development. By fostering sustainable and inclusive growth across all dzongkhags, Bhutan can ensure that its rural communities thrive, preserving their cultural heritage and contributing to the nation’s overall prosperity. The time to act is now to build a future where all Bhutanese, regardless of where they live, have equal access to opportunities and a high quality of life.