TIL BDR GHALLEY | Thimphu
Thimphu’s largest full-scale earthquake simulation has revealed significant gaps in emergency coordination, communication and preparedness, highlighting areas that require strengthening before the country faces a major seismic disaster.
The findings emerged from an After-Action Review of the multi-agency field training exercise conducted in Thimphu earlier this week, which tested the country’s response to a simulated high-impact earthquake.
While the exercise demonstrated strong commitment from responders and improved collaboration among agencies, the review identified challenges in command structures, communication systems, medical preparedness, traffic management and emergency logistics.
The review found delays in activating emergency response systems, communication challenges between agencies, unclear reporting lines, shortages of specialised equipment and limited manpower during the initial stages of operations.
Participants noted that while Bhutan has trained personnel for search and rescue, medical response and emergency communications, further practical training, stronger public awareness, improved equipment and standardised reporting mechanisms are needed to strengthen disaster response.
Referring to the recent magnitude-5.6 earthquake in Punakha, Prime Minister Tshering Tobgay said the event should serve as a reminder to continue strengthening disaster preparedness.
“The recent earthquake should not make us complacent,” he said. “We must continue strengthening our preparedness and resilience so that we are ready to protect lives and communities when a major disaster occurs.”
The PM said the simulation highlighted the importance of coordinated action among government agencies, emergency responders and communities. He also pointed to the potential challenges of maintaining connectivity during a major disaster, noting that damaged roads and disruption to airport operations could severely affect access and movement.
The field exercise simulated widespread destruction across Thimphu following a major earthquake. Under the scenario, critical infrastructure was affected, with bridges including Lungtenzampa and Dechencholing declared unsafe after developing simulated cracks, while landslides and falling debris blocked roads in several areas.
The exercise also tested the ability of the Royal Bhutan Police, Traffic Division to manage emergency movement by diverting traffic and creating routes for ambulances transporting injured victims.
However, the After-Action Review found that emergency vehicles faced long traffic queues at diversion points, delaying movement during the critical early stages of the response. Observers identified coordination challenges between agencies responsible for traffic management and emergency operations.
International response teams participating in the exercise were also stationed away from some operational areas, creating delays in reaching designated locations. Reviewers said faster activation of coordination mechanisms and earlier engagement with international partners would be essential during a real disaster.
At the operational level, responders reported delays in earthquake activation procedures, communication difficulties and uncertainty over reporting structures that affected early decision-making.
The national referral hospital successfully tested evacuation procedures and patient management systems but also exposed several vulnerabilities. The review identified limited capacity to rapidly assess building safety following an earthquake, inadequate ambulance resources, unreliable backup communication systems and shortages of personnel for sustained emergency operations.
During the initial phase of the exercise, the Emergency Operations Centre faced challenges in establishing a clear coordination structure, with decision-making, task allocation and communication flows lacking organisation. As the exercise progressed, coordination improved and agencies were able to manage operations more effectively. However, reviewers stressed the need for clearer command structures and standardised communication protocols for future emergencies.
Gaurav Ray, Resident Coordinator of the UN Resident Coordinator’s Office, said the exercise highlighted the importance of acting quickly during real emergencies.
“In real life, there will be no assumptions, there will be no time for assumptions. You have to act, react and then be agile,” he said.
He said effective disaster response depends on more than assigning responsibilities.
“Coordination is important. It is not merely a function; it is a discipline that builds trust,” Gaurav Ray said.
Earthquake Simulation Expert Surya N. Shrestha said disaster response would require stronger links between professional responders and communities.
“During a disaster, professional responders alone may not be enough because the situation can quickly become overwhelming. Community-level life search and rescue is important, where trained community members can support professional responders while more complex rescues are handled by specialised teams,” he said.
Surya N. Shrestha also highlighted the need to strengthen communication systems and integrate medical response with search and rescue operations.
“Search and rescue capacity and medical first response capacity should go hand in hand so that when people are rescued from damaged buildings, they receive immediate medical attention on site before being transported to hospitals,” he said.
The review also identified the need for stronger communication infrastructure, including reliable radio stations to support emergency radio communication during disasters.
Yang Dorji, Chief Programme Officer of the Department of Local Governance and Disaster Management, said the review would help identify improvements needed to strengthen the Thimphu Earthquake Contingency Plan.
“The review is an opportunity to identify what worked, what did not work, and the improvements needed to strengthen the Thimphu Earthquake Contingency Plan by incorporating lessons from the exercise,” he said.
The Department of Local Governance and Disaster Management said the Coalition for Disaster Resilient Infrastructure (CDRI), based in India, together with Nepal’s National Society for Earthquake Technology, will prepare a comprehensive report on the simulation exercise.
After incorporating recommendations from the review, the revised Thimphu Earthquake Contingency Plan will be submitted to the Prime Minister’s Office before being adapted for use in other dzongkhags.
The field training exercise followed a tabletop simulation conducted on February 16 and tested the activation of the National Emergency Operations Centre, search and rescue operations, emergency medical response and multi-agency coordination during a simulated major earthquake.
This was the second earthquake simulation exercise conducted, following the first exercise carried out in 2018.
The exercise was to identify weaknesses before a real disaster occurs. The simulated damaged bridges, blocked roads, communication challenges and operational delays provided lessons that authorities will use to strengthen Bhutan’s earthquake preparedness.
