Dynamics of grazing rights and their impact on mobile cattle herders in Bhutan

Abstract

Seasonal cattle movements have been an important part of the living cultural heritage in Bhutan for centuries. Herders migrate south every winter to graze their cattle on subtropical pastures and to work in orange orchards. They return north to their villages in spring to grow summer crops. However, the practice of transhumant agropastoralism is under increasing pressure on account of changes in land-use policies, climate change and a declining labour force as youth seek alternative livelihoods. This research investigated the impact of changes in land-use policy, with emphasis on the Land Act 2007, on current and future livelihoods of transhumant herders in Bhutan. During in-depth interviews with 24 transhumant herders and nine livestock advisors, and seven focus-group discussions with 64 participants including herders, downstream residents and development agency personnel, perspectives on this issue were gathered. Findings revealed a lack of herder awareness of changes in land-use policies and minimal consultation of herders during policy development. Confusion and uncertainty about the proposed redistribution of grazing rights and restrictions on herd movements have resulted in confusion and resentment and have created conflicts between upstream and downstream communities. Herders with no current alternatives are concerned about their future livelihoods, whereas others are leaving it to their children to decide their future. It is concluded that the motive behind nationalisation of rangeland is noble and timely, but there are flaws in the redistribution plan. Transhumant agropastoralism is already in decline and there is no need to push towards its end through legislation. Transhumant practices could be left to evolve towards what may be their natural end. Sudden stoppage of inter-district transhumance without offering meaningful alternatives to herders could result in negative environmental and socioeconomic impacts. In future, policy development needs to increasingly embrace science and be based on evidence. A genuine participatory process with citizen engagement could avoid the unintended negative impacts likely to be faced by transhumant herders with marginal land holdings, who depend on this production system for their livelihoods.

Good fences are key to sustainable pasture management and harmonious pastoral society of Merak and Sakteng in Bhutan

“…The presence of nomadic herders on the edge of Bhutan's northern belt protects the mountain resources from any potential external exploitations and encroachments, safeguarding border security (MOAF 2017;Namgay et al 2017;Wangdi 2016). Otherwise, the government would have to allocate huge resources to secure and protect these mountain natural resources from external intruders.…”

“…Around the world, highlanders face increasing threats to their livelihood from internal and external economic, political, social and ecological changes (de Haan 1993;Derville and Bonnemaire, 2010;Fratkin and Mearns, 2003;Namgay et al 2017;Nori and Davies, 2007;Wiener et al 2003) and Bhutan is no exception. In recent years, the change of policy to delete tsamdro ownership rights had posed a significant threat to the livelihood of highlanders, particularly the Brokpas.…”

“…Through the nationalization process, the government intends to correct the imbalance in tsamdro resource access (Chophyel 2009;Gyeltshen et al 2010;Namgay et al 2017). This policy is strategically aimed at centralizing pastoral land resource management in the country.…”

Changes in Property Rights and Management of High-Elevation Rangelands in Bhutan: Implications for Sustainable Development of Herder Communities

“…Enhancing tenure security and access to tsa-drog is an integral part of the strategy to make yak herding more attractive and to encourage its practice. Giving herders and livestock farmers more secure, lease-based rights to tsa-drog, with eligibility based on developing a mandatory management plan, is expected to promote sustainable management and improve herders' livelihoods and wellbeing (Gyeltshen et al 2010;Namgay et al 2017). At the time of writing, the Bhutan government had not fully implemented the program but had started paying compensation to those who will lose their use rights.…”

Transhumant pastoralism in a changing world : Challenges and opportunities to sustainable yak farming in Bhutan

“…The Land Act 2007 of Bhutan states that rangelands are nationalized and leased to yak herders and livestock farmers from 2017 onwards. However, because of poor explanation of the new act (Namgay et al, 2017) and a lack of coherence in the implementation strategy (Tenzing et al, 2017) confusion has arisen among different rangeland users. Consequently, the enactment of the law has led to conflicts between different rangeland users (Phuntsho and Dorji, 2016, Namgay et al, 2017, Tenzing et al, 2017 as this act affects the existing agreed norms and rules of communities on the management of rangelands.…”