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NATIONAL STRATEGY FOR THE DEVELOPMENT OF STATISTICSNSDS 2019-23

National Statistics Bureau Royal Government of Bhutan

STRATEGIC FRAMEWORK

May 2019

LIST OF ACRONYMS

ADB Asian Development BankBCCI Bhutan Chamber of Commerce and IndustryFAO Food and Agriculture OrganizationGDDS General Data Dissemination SystemGDP Gross Domestic ProductGPMD Government Performance Monitoring DivisionGPMS Government Performance Monitoring SystemGNHC Gross National Happiness CommissionIMF International Monetary FundMoAF Ministry of Agriculture and ForestsMoE Ministry of EducationMoH Ministry of HealthMoF Ministry of FinanceMoLHR Ministry of Labor and Human ResourcesMoIC Ministry of Information and CommunicationMoEA Ministry of Economic AffairsNCWC National Commission for Women and ChildrenNEC National Environment CommissionNSB National Statistics BureauNSDS National Strategy for the Development of StatisticsNSS National Statistical SystemOECD Organization for Economic Cooperation and DevelopmentPARIS21 Partnership in Statistics for Development in the 21st CenturyRBP Royal Bhutan PoliceRCSC Royal Civil Service CommissionRGoB Royal Government of BhutanRMA Royal Monetary AuthoritySDGs Sustainable Development GoalsTCB Tourism Council of BhutanUNDP United Nations Development ProgramUNICEF United Nations Children’s FundWB World Bank

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FOREWORDThe current National Strategy for Development of Statistics (NSDS 2019-23) was initiated to streamline and strengthen the national statistical system. This NSDS is prepared with assistance from PARIS-21. It is consistent with the overall development vision of Gross National Happiness (GNH) as statistics plays an important role in the formulation of policies, plans and monitoring of the programs. The NSDS formulation process comprised two phases namely, the Data Needs Assessment and the design of the Strategy itself.

The NSDS once implemented will address some of the issues and challenges such as data duplication and inconsistencies that Bhutan Statistical System (BSS) is facing today. As such, the Government recognizes the critical need for good, reliable and timely official statistics. This would guide Government to make informed decisions in formulating policies and programs on critical issues such as prudent economic management, good governance, poverty reduction, improved living conditions and ultimately narrowing the gap between rich and poor.

There are other users besides Government who often demand statistics for various purposes. These statistics come from multiple sources such as the National Statistics Bureau (NSB), Government ministries, public sector institutions, Non-Governmental Organizations (NGO) and to some extent from private sector institutions. All these diverse institutions producing and using statistics are collectively part of the BSS. The current BSS in the country has limited capacity and is not effectively coordinated and harmonized. This strategy is an important step by the Government to restructure the BSS so that it becomes more responsive to efficient production and usage of statistics.

As the custodian of national statistics, the NSB will play a crucial role in coordinating and harmonizing the BSS. However, this is possible only when the role of NSB itself is redefined within the framework of a broader BSS that is underpinned by statistical legislation. The Government has prepared this NSDS which considers capacity building and prioritized statistical work programs for the entire BSS to provide a conducive framework for strengthening statistical system in the country.

I urge all members of the BSS to ensure that the NSDS is fully and successfully implemented. As Government, we shall endeavor to provide the necessary support in order to ensure the successful implementation of the NSDS.

(Dr. Lotay Tshering)

Prime Minister

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Message from DirectorA bewildering array of reporting frameworks which are often inconsistent in collecting, producing and dissemination of data at various levels has constantly posed numerous challenges both to the respondents and to the government as well.

As such, intervention is needed to improve the coordination and to build capacity to a level that can meet the current national statistical requirements. Thus, National Statistics Bureau (NSB) has initiated preparing of NSDS since 2008.

With support from PARIS-21, NSB is pleased to bring out the NSDS 2019-23. The current NSDS provides framework and implementation plan for implementing statistical activities and building capacity to meet both current and future data needs. It aims to align the statistical development strategy with 12th FYP programs and strategies in consistent to Bhutan’s over all development philosophy of GNH.

Based on the data assessment, the current NSDS has been developed in close consultations with various stakeholders including data users led by NSB with technical assistance from PARIS-21. It has accounted some of the critical data gaps and incorporated lessons and experiences from implementation of the previous NSDS. It also compliments the data ecosystem mapping exercise which assessed the data gaps and challenges being faced by the BSS. The issues and challenges which were indentified through assessment exercises were the major inputs into formulation of the current NSDS.

The strategy is supported by a detailed implementation plan with indicative budget, considering the capacity building needs and human resource requirements, as well as demand for data of the different users.

The NSDS will serve as a framework for the development of statistics at various levels. The preparation of this document has been a collective and fruitful endeavor and is painstaking result of extensive consultations with various stakeholders including data users. As such, we would like to extend our heartfelt gratitude to everyone for the wholehearted support extended in the formulation of this document.

Chhime TsheringDirectorNational Statistics Bureau

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Executive SummaryThe Bhutan Statistical System (BSS) is a decentralized system with the National Statistical Bureau (NSB) as central agency. NSB has initiated preparing of National Strategy for Development of Statistics (NSDS) since 2008 focusing on improving the statistical products and services. Although Bhutan Statistical System (BSS) has made considerable improvement over the years, yet some of the data issues and challenges still persist. Further, in the absence of legal framework for the statistical activities and due to lack of resources, the BSS continued to be remained as fragile and it does not offer the users with quality statistics as desired. The current NSDS 2019-23 was developed with assistance from PARIS-21. It focuses on the current and emerging economic and social conditions in the country and considers the need of quality statistics.

The NSDS is consistent with Bhutan’s overall development philosophy of Gross National Happiness (GNH). The action plans are fully integrated with national programs and strategies of the 12th FYP. It also supports the 12th FYP as it has accounted the data need for the monitoring and evaluation of National Key Result Areas (NKRAs), Agency Key Result Areas (AKRAs), and Local Government Key Result Areas (LGKRAs) and their corresponding Key Performance Indicators (KPIs).

The NSDS takes account of official statistics specificities applying to small country when proposing technical solutions to produce the required data: priority is given to administrative data sources compilation rather than data collection through large and costly survey; the use of new statistical techniques like poverty mapping or small area estimations is also emphasized.

The NSDS outlines the vision, mission, strategic outcomes and strategies determining the successful achievement of the set objectives. It is supported by 5 year implementation plan.

Vision

To provide quality and timely statistics widely used in evidence based policy and decision making.

Mission

Provide timely, relevant and reliable statistics, consistent with international principles and standards.

Strategic Outcomes

1. Established authority for statistics

Statistical functions governed by legislation and executive policies

Statistical issues addressed/resolved

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Established code of ethics for statisticians

2. A Better-Informed Society

Institutionalized use of statistics in results-based management of national development and other productive functions of government

Increased use of official statistics by the business community, civil society, academics, and the public

Improved data literacy and trust in statistics among key users

Conducive environment for enhanced data user-producer communication and engagement

3. Improved Data Quality

Rationalized survey program

Improved administrative data systems

Established data quality assurance framework

Institutionalized coordination mechanisms

4. Strong Statistical Institutions

Strengthened statistical management systems and practices

Instituted results-based and sustainable resource allocation for statistics

Optimized use of innovation and technology

Strengthened competencies in statistical work

The implementation plan

To realize and achieve the strategic outcomes, the selected strategies will be implemented in an integrated and holistic manner over the next five years of period. It fits in the NSB program of 12 th FYP “Enhance the quality and timely statistics”. The implementation plan consists of four components:

1. The Legal and policy framework for official statistics and management of the BSS;

2. Strengthening BSS capacity;

3. The BSS statistical production; and

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4. The BSS statistical dissemination.

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TABLE OF CONTENTS

FOREWORD.....................................................................................................iiiMessage from Director....................................................................................ivExecutive Summary.........................................................................................v1. INTRODUCTION..........................................................................................12. SITUATIONAL ANALYSIS.............................................................................2

2.1 Data Assessment...............................................................................................22.2 Economic, social and policy context..................................................................22.3 The Bhutan economy and society.....................................................................32.4 The 12th Five Year Plan (2018-23).....................................................................3

3. Milestones and outputs of the NSDS 2014-18.............................................54. State of the Bhutan Statistical System........................................................85. NSDS (2019-23) STRATEGIC FRAMEWORK..................................................9

Vision...................................................................................................................... 9Mission.................................................................................................................... 9Strategies and strategic outcomes..........................................................................9Strategic Outcome 1: Established authority for statistics........................................9Strategic Outcome 2: A Better-Informed Society.................................................11Strategic Outcome 3: Improved Data Quality........................................................14Strategic Outcome 4: Strong Statistical Institutions..............................................17

6. NSDS IMPLEMENTATION PLAN...................................................................196.1 Implementation Plans to achieve Strategic Outcome 1...................................206.2 Implementation Plans to achieve Strategic Outcome 2...................................216.3 Implementation Plans to achieve Strategic Outcome 3...................................236.4 Implementation Plans to achieve Strategic Outcome 4...................................27

7. DATA ASSESSMENT....................................................................................297.1 Background..............................................................................................297.2 Objectives................................................................................................297.3 Assessment approach..............................................................................307.4 Data assessment process........................................................................317.5 Limitations and challenges......................................................................357.6 Assessment findings................................................................................367.7 Observations and way forward................................................................47REFERENCES..................................................................................................48ANNEXURE:....................................................................................................50

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SECTION-I

1. INTRODUCTION

Bhutan recognized the importance of statistical information for development planning and monitoring with the start of five year development plans in early 1960s. A statistical cell was established within the ministry of development in 1971. It was later expanded and upgraded as a central statistical organization (CSO) in 1979 in the erstwhile planning commission. In its efforts to strengthen the statistical system in the country, the government centralized the statistical system in 1990. However, centralized statistical system could not achieve its desired objectives as the financial and human resources were not transferred along with the mandates and subsequently, the statistical system was decentralized in 1998.

With the major change in the governance structure in 2003, the CSO was granted autonomy and it was re-named as the National Statistics Bureau (NSB). NSB functions as the central authority for the collection and release of any official data, and their custodian as per the government executive order issued in May 2006.

The implementation of the Government Performance Management System (GPMS) noted that there is a conflict of interest in ministries/agencies reporting their achievements/performance based on self-generated data. As such, as a strategic intervention to enhance coordination and to objectively measure achievements/performances of the respective ministries/agencies, all statistical personnel in ministries/agencies were brought under the parenting framework of the NSB (Bhutan Civil Service Rules and Regulations 2018).

National Strategy for Development of Statistics (NSDS)

The National Strategy for Development of Statistics (NSDS) is a framework used to strengthen and develop the national statistical system. The NSB has been preparing NSDS documents since 2008. The first NSDS was prepared in 2008 and the second in December 2014. The past NSDS focused on improving statistical products and services. However, due to lack of statistical legislation and resources in particular, many of the statistical plans and programs envisioned in these documents were not implemented.

The current NSDS (2019-23) was initiated with assistance from PARIS-21 to improve coordination and strengthen capacity of the Bhutan Statistical System (BSS). The NSDS is consistent with the overall development vision of Gross National Happiness as statistics plays an important role in the formulation of policies, plans and monitoring of the programs.

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An important step in the NSDS process is a multi-dimensional assessment of the institutional, human resources and statistical capacity of the statistical system that analyzes the data users, their needs, quality of data and other statistical outputs. The current NSDS 2019-23 reviewed the past documents, incorporated the needs in response to the growing demands of statistics for planning and decision making in the government. The multi-sectoral task force comprising of representatives from various stakeholders including data users led by NSB with technical support of PARIS-21 convened several rounds of consultations in the formulation of the document. The NSDS 2019-23 also incorporated lessons learnt and experiences from the implementation of the earlier NSDS and further made revisions based on the best practices of other countries. The NSDS complements the data ecosystem mapping exercise, which assessed the data gaps and challenges being faced by the BSS.

2. SITUATIONAL ANALYSIS

2.1 Data Assessment

In June 2018, the BSS with support from PARIS-21 carried a comprehensive data assessment in addition to statistical capacity assessment. The data assessment adopted a 2-stage approach: an initial data assessment using the Advanced Data Planning Tool (ADAPT) and a more comprehensive assessment with reference to the generic national quality assurance framework.

Such data assessment was aimed to identify more specific issues with the data and inform the priority areas for improvement in the statistical system for effective use of statistics for monitoring and evaluation of the plan, particularly the National Key Result Areas (NKRAs), Agency Key Result Areas (AKRAs) and Local Government Key Results Areas (LGKRAs) and their corresponding Key Performance Indicators (KPIs).

The results framework of the 12th FYP has more than 749 KPIs that require monitoring and evaluation. Of the total number of KPIs, only 56% have available data for at least one time period. The assessment found that many of the indicators were not fit-for-purpose and have quality issues. Further, the data inadequacy, unreliability and inconsistency were some of the critical issues identified in the assessment. These specific data issues which were identified through the assessment exercise were major inputs into the preparation of the current NSDS 2019-23.

2.2 Economic, social and policy context

The NSDS document was developed with focus on the current and emerging economic and social conditions in the country. A reliable, relevant and timely statistics are critical for evidence based decision making. Therefore, the objectives

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and strategic framework of the document considers the need of the government, policy makers, researchers and academicians for quality statistics.

2.3 The Bhutan economy and society

Bhutan is one of the smallest countries and a growing economy in the world. The economy on an average grew by 7.0% in the last two decades. The national accounts statistics for 2017 recorded GDP of Nu. 164,627.92 million from Nu.97,452.96 million in 2012. The per capita GDP has grown from US$ 2,532.77 in 2012 to US$ 3,438.16 in 2017. The economy remains largely driven by electricity and service sector, particularly tourism. The share of electricity and service sectors to the overall GDP in 2017 was 13.2% and 42.0% respectively.

Bhutan continues to maintain strong economic performance and it is projected to grow on an average by almost 5.0% in next five years (12 th FYP). However, poverty and youth unemployment remain a serious concern for the country. There are 8.2% of the total population that still live below the national poverty line. According to Bhutan Poverty Analysis Report 2017 (PAR 2017), the poverty in rural area is relatively higher with almost 12.0% compared to urban area. The high poverty in rural area may be due to lower level of agricultural productivity, limited access to markets and poor road infrastructure. Although Bhutan is experiencing positive economic growth, the country is facing rising inflation and unemployment. In 2017, the inflation recorded was almost 5.4%. The overall unemployment rate was estimated at 3.1% in 2017, mostly concentrated among younger age group of 15-24 years (12.3%).

2.4 The 12th Five Year Plan (2018-23)

a. Objectives

The objective of the 12th FYP is to achieve a “Just, Harmonious and Sustainable Society through enhanced Decentralization.” The objective has been inspired by the Royal Addresses and is anchored on the provisions of the Constitution; lessons from the review of the 11th FYP; extensive stakeholder consultations including Civil Society Organizations (CSOs) and political parties, and regional and international commitments including the sustainable development goals (SDGs). The 12 th FYP objective is underpinned by principles of leaving no one behind, narrowing the gap between the rich and poor and ensuring equity and justice.

b. Strategic Framework

The 12th FYP is guided by the development philosophy of Gross National Happiness (GNH). Key deliverables of the plan have been identified as National Key Result Areas (NKRAs) at national level, Agency Key Result Areas (AKRAs) at agency level and Local Government Key Result Areas (LGKRAs) at local government level. These

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results will contribute to achieving the 12th FYP Objective. To measure progress of these results, each NKRA, AKRA and LGKRA has corresponding Key Performance Indicators (KPIs) with baseline and targets for the plan period.

c. Priorities

Since 12th FYP will be the last plan before graduating from the list of Least Developed Countries (LDCs) in 2023, the key priorities are:

Addressing the last mile challenges such as reaching the unreached; improving quality of health and education services; poverty reduction; narrowing the gap between the rich and the poor; and addressing needs of vulnerable group (senior citizens, disabled persons, orphans, etc.);

Strengthening the economy through economic diversification and employment generation particularly for youth;

Mainstreaming preservation and promotion of culture and traditions; conservation and sustainable utilization of environment and strengthening good governance; and

Consolidation and maintenance of existing infrastructure, and investing more on softer aspects of development such as human resources (particularly doctors, nurses, teachers, technicians etc.) and systems.

d. Aligning NSDS with 12th FYP

The National Statistics Bureau (NSB) being the custodian of statistics will support the government through production of statistics that will facilitate and enable the government in achieving the 12th FYP targets. The NSDS framework provides a concrete reference of the essential indicators and statistics that need to be produced by the statistical system. Specifically, the 12th FYP articulates the outcomes and outputs that need to be achieved in the next five years in order to achieve greater well-being and increased happiness for the people of Bhutan. The plan sets out strategies and activities to realize the plan objective through seventeen National key Result Areas (NKRAs) toward the enduring vision of Gross National Happiness (GNH). The 17 NKRAs are:

NKRA 1 – Macroeconomic stability ensured;NKRA 2 – Economic diversity and productivity enhanced;NKRA 3 – Poverty eradicated and inequality reduced;NKRA 4 – Culture and traditions preserved and promoted;NKRA 5 – Healthy ecosystem services maintained;NKRA 6 – Carbon-neutral, climate and disaster resilient development enhanced;

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NKRA 7 – Quality of education and skills improved;NKRA 8 – Water, food, and nutrition security ensured;NKRA 9 – Infrastructure, communication and public service delivery improved;NKRA 10 – Gender equality promoted; women and girls empowered;NKRA 11 – Productive and gainful employment created;NKRA 12 – Corruption reduced;NKRA 13 – Democracy and decentralization strengthened;NKRA 14 – Healthy and caring society enhanced;NKRA 15 – Livability, safety and sustainability of human settlements improved; NKRA 16 – Justice services and institutions strengthened and;NKRA 17 – Sustainable water ensured.

The 12th FYP adopted the ‘nine domain’ approach of the GNH to guide the planning framework for attaining the national development goals including integrated sustainable development goals and other international and regional commitments relevant and valuable to Bhutan. The nine domains include living standards, health, education, ecological diversity and resilience, good governance, community vitality, cultural diversity and resilience, time use and psychological wellbeing.

3. Milestones and outputs of the NSDS 2014-18

The NSDS 2014-18 provides a framework and action plan for building Bhutan’s statistical capacity to meet both current and future data needs. The NSDS envisioned the BSS as ‘a well-coordinated system that professionally produces timely, reliable, accurate, consistent Official Statistics for supporting evidence-based planning and decision making to achieve overarching development vision of the GNH. The NSDS laid out five strategic objectives that are aimed to contribute to the achievement of the vision supported by specific objectives and action plans.

Several interventions and milestones relating to the attainment of the strategic objectives are presented and analyzed below:

a. Strategic Objective 1: Develop and implement a legal and policy framework for the development of official statistics

The legal and policy framework for official statistics in Bhutan has remained inadequate as the statistics bill, initiated since the first NSDS, has not been officially endorsed. Statistical operations continue to be governed primarily by the executive order issued in 2006.

The NSB, on a directive of the Prime Minister and with support from PARIS-21 reviewed the BSS in 2016 with the objective of streamlining and strengthening the statistical system. In 2017, data ecosystem mapping was carried out with the support of UN Agencies to assess the statistical system. This was followed by an

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organizational development exercise by the Royal Civil Service Commission (RCSC). All the three assessments have recommended the need of a statistical legislation among others.

b. Strategic Objective 2: Develop the BSS staff efficiency and career satisfaction

The RCSC has approved the ‘parenting of statistical services’ by the NSB. The parenting approach has been recommended by the review of the BSS and has since been included in the 2018 Bhutan Civil Service Rules and Regulations (BCSR). The ‘statistical parenting’ arrangement has authorized the competency development, succession planning, career path, HRD planning, staffing standards, service delivery standards and transfer of statistical officers in the ministries/agencies/dzongkhags. Such task (technical supervision) is given to NSB to assist in the sectoral and local level data collection and management and to facilitate improvement of data comparability and consistency among multiple sources. The creation of a dedicated statistics division in the Ministry of Agriculture and Forests (MoAF) is a significant development in the BSS as it marks a significant step not only in resolving long standing issues with coherence and comparability of RNR statistics but more importantly in institutionalizing a strategic approach for continuing development of RNR statistics in the country.”

While NSB have started a capacity assessment study as recommended by the organizational development exercise of 2017, concrete initiatives to develop the human resource management and development strategy and guidelines as well as a comprehensive training programme for the BSS was unable to undertake due to financial constraints.

c. Strategic Objective 3: Make an efficient use of the technical and financial resources across the BSS

Aside from the approval of the parenting arrangement, the efforts undertaken to provide independent budget for the dzongkhag statistical offices and other initiatives to improve efficiency in the use of technical and financial resources in the BSS has not been achieved. The identified strategic actions that were not achieved include the establishment of statistical units in the ministries and agencies; pooling of financial and technical resources and investments; and cost-sharing of technical resources.

d. Strategic Objective 4: Increase the official statistics availability to fulfill the user needs

The conduct of the Population and Housing Census of Bhutan (PHCB) and Bhutan Living Standards Survey (BLSS) in 2017 has significantly increased availability of

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new and up-to-date data for many users in the country. The first economic census was conducted in 2018. These surveys and censuses will address long-standing data-gaps and provide many important statistical indicators.

At least 17 censuses and surveys were completed during the period as follows:

Census / Survey AgencyPopulation and Housing Census of Bhutan 2017 NSBBhutan Living Standards Survey 2017 NSBEconomic Census of Bhutan 2018 NSBTargeted Household Poverty Program Survey GNHC

Enterprise Survey MoEAGross National Happiness Survey CBS & GNH StudiesRural Economy Advancement Program Survey GNHCJob Prospecting Survey MoLHRLabor Force Survey MoLHRAgriculture Survey MoAFTourism Exit Survey TCBTourism Outbound Survey TCBDomestic Survey TCBTourism Industry Survey TCBTourism Employment Survey TCBViolence Against Children Study NCWCViolence Against Women/Girls Study NCWC

The use of administrative data has been enhanced by inclusion of mandatory statistical indicators in the Annual Performance Agreements (APA) of the dzongkhags under the Government Performance Monitoring System (GPMS). Similar indicators have yet to be identified for the ministries and central agencies. However, administrative data continued to be collected, compiled and published by the designated ministries, agencies and dzongkhags with persistent data quality concerns while improvements were minimal and limited in a few sectors such as health and vital registration.

A pilot quarterly household expenditure survey has been conducted to support the compilation of quarterly gross domestic product with some challenges including data inconsistencies and disaggregation of estimates by dzongkhag.

In line with streamlining of data flow within the BSS and to some extent promoting harmonization of concepts and classifications, NSB has drafted a data reporting guideline based on a concept proposed in the data ecosystem mapping report (December 2017) as recommended by the 2017 organizational development exercise.

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e. Strategic Objective 5: Offer the users an easier access to the data

NSB has initiated the formulation of a micro data dissemination policy as an offshoot of the advanced data program implemented by NSB with support from PARIS-21. While the Gross National Happiness Commission (GNHC) has approved the concept note, the draft policy is yet to be submitted. NSB has implemented national data archiving to make metadata of surveys and census conducted in the BSS more accessible to users. Efforts have been made to develop a common metadata dictionary.

In 2017, Bhutan has implemented the International Monetary Fund’s enhanced general data dissemination system (e-GDDS) to provide policy makers and other stakeholders with easy and simultaneous access to timely, essential macroeconomic data critical for monitoring economic conditions and policies. The National Summary Data Page (NSDP) for the e-GDDS is managed by the NSB beginning 2016 and utilizes the Statistical Data and Metadata Exchange (SDMX) making Bhutan among the first countries in the Asia and Pacific region to implement the e-GDDS recommendations.

4. State of the Bhutan Statistical System

At present, the ministries and agencies collect sector specific data for planning and monitoring purposes. A number of statistical activities are being carried out by various agencies, but mostly on ad-hoc basis. This resulted in a lot of data gaps, data inconsistencies, duplication of efforts, waste of limited resources, and respondent burden, that often lead to conflicting data estimates and confusions thereof.

Although BSS has made considerable improvement over the years, yet some of the data issues and challenges still persist. This is confirmed through the assessments such as that of In-depth Country Assessment of Renewable Natural Resources Statistics (MoAF and FAO, 2014); Data ecosystem mapping (NSB, GNHC, and UNDP, 2015); Review of the BSS (NSB and PARIS21, 2016); Organizational Development Exercise(NSB, 2017); and NSDS Stakeholder Consultations(NSB and PARIS21, 2018). It was found that there is lack of common standards to ensure data quality, unclear statistical responsibilities, and weak coordination among data producers and between producers and users which could be addressed through the statistical legislation.

The statistical activities do not receive priority as compared to other activities of the government due to resource constraints. Further, the lack of appreciation of the value of statistics limits the use of data and therefore is perceived as non-essential to the governance. Hence, most of the surveys and censuses are funded by development partners and are ad-hoc in nature often leading to difficulty in planning of statistical

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activities. The challenges could be addressed if the system of designated statistics could be funded by the government.

While the government has made reasonable investment in human resource development in the BSS, there still lacks subject matter specialist in specific fields. A competency framework and capacity assessment of the BSS (both in numbers and competency) needs to be carried out.

5. NSDS (2019-23) STRATEGIC FRAMEWORK

The strategic framework presents the proposed basic structure for the medium-term plan for the development of statistics in Bhutan. It articulates the shared understanding of the mission and vision of the Bhutan statistical system, and more importantly, the strategic and specific outcomes and key outputs toward the attainment of the vision for the fiscal years 2019-23.

Vision To provide quality and timely statistics widely used in evidence based policy and decision making

MissionProvide timely, relevant and reliable statistics, consistent with international principles and standards.

Strategies and strategic outcomes

The statistical framework shall provide key indicators for the measurement of development outcomes and outputs in support of results-based management, especially monitoring and evaluation of national development goals and sustainable development goals. A detailed statistical framework is developed based on the recommendations of an in-depth data assessment.

The framework presents the strategic and specific outcomes toward the attainment of the vision as well as the key contributing outputs, timeline of delivery, and owners and duty bearers.

Strategic Outcome 1: Established authority for statistics

A statistical legislation provides authority for the collection, compilation, production and dissemination of statistics in the country

Specific outcomes

a. Statistical functions governed by legislation and executive policies

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A Statistics Act for Bhutan will provide concrete and lasting authority for the collection, dissemination, sharing, and use of statistics in the country. The scope and clarity of relevant provisions of the statistics bill (including resource allocation, partnerships, innovation, and local level statistics) shall be reviewed and improved, and advocate support for the proposed legislation among key stakeholders.

b. Statistical issues addressed/resolved

Statistical policies that address data quality problems, statistical infrastructure issues, and capacity development needs shall be developed, coordinated, and monitored.

c. Established code of ethics for statisticians

With the statistical parenting in place, a code of ethics for statisticians in the Bhutan statistical system is necessary to promote professional integrity and competence toward increased trust in statistics among stakeholders. The code shall be formulated in the context of Bhutan in consistent with internationally recommended values, principles and ethical standards.

Key outputs to achieve strategic outcome 1

Output Program/Activity Year of delivery

Output owner/s

Updated executive order on statistics

Amend/update existing executive order of 2006 to adopt key provisions in the statistics bill and provide policy and guidelines for priority statistical concerns including standards development, coordination, resource allocation, and capacity development, among others

2018 – 2019

NSBStatistical committee

Statistical committee recommendations

Organize statistical committee for institutional coordination and policy formulation and task forces to study and

2018 – 2023

NSBStatistical committee and task

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address and provide guidance on specific statistical issues

forces

Statistics Act and implementing rules and regulations

Revisit and improve scope and clarity of relevant provisions of the pending statistics bill (including resource allocation, partnerships, innovation, and local level statistics); and advocate support for the proposed legislation among key stakeholders of statistics

2019 – 2023


Code of ethics for statisticians

Formulate and adopt a Bhutan code of ethics for statisticians to promote professional integrity and competence among statistical personnel

2020 NSB

Strategic Outcome 2: A Better-Informed SocietyStakeholders increasingly use statistics in critical areas of governance, with increased user trust and confidence, and contribute to building a culture of using data to create knowledge that inform the decisions and actions of society.

Specific outcomes

a. Institutionalized use of statistics in results-based management of national development and other productive functions of government

The Royal Government of Bhutan essentially adopts a results-based management approach in development planning and implementation manifested through the five year plans. The progress and achievemnts are monitored through the Government Performance Management System (GPMS). This approach requires a clear state policy supported with guidelines on purposive and proper use of statistics and data to guide policymakers and data users at all levels of governance. The policy will help establish the guiding principles and institutionalize systems and practices of using data as a standard process in monitoring and evaluation of development policies, plans and programs.

b. Increased use of official statistics by the business community, civil society, academics, and the public

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Official statistics provides unique and essential information about a country ― its people, economy, and environment. The delivery of effective and quality data will contribute to increase the use of statistics among various stakeholders of development.

c. Improved data literacy and trust in statistics among key users

In Bhutan, the use of statistics has been constrained by lack of adequate data literacy and skills in metrics and analytics. This is further compounded the lack of coordinated standards and practices in data dissemination. The Interventions that deliver knowledge and skills to key data user groups on analysis and application of data will significantly improve confidence and capacities in using statistics.

d. Conducive environment for enhanced data user-producer communication and engagement

An effective statistical program is enabled by parallel capacities of data users and producers in the statistical system. This would entail an environment where both data users and producers are proactive in initiating communication and discussion about data needs and issues. Mechanisms that promote open communication aided with technology as well as advocacy programs designed for community-wide and specific user groups will facilitate improved communication for more informed statistical priorities and better products and services.



Output owner/s

Statistical publications Statistical Yearbook National Accounts

Statistics Annual Dzongkhag

Statistics

see Annex A – List of existing statistical publications in Bhutan

Develop new and update/improve existing publications to disseminate on a regular and more predictable manner official statistics for general and specific purposes and relevant stakeholder groups

2018 – 2023

NSBAll ministries and agencies

Dissemination policy and standards for data, microdata, and metadata Executive directive on

Define the policy, standards, format, and approaches for the management and

2018 – 2023

NSB

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general policy and standards for data dissemination

Microdata policy e-GDDS Advanced release

calendar for priority statistics and statistical publications

dissemination of data, microdata, and metadata to users (including terms of use, single dissemination gateway, etc.)

Communication and advocacy strategy for statistics

Define the basis, policy, and strategies for the provision of the right statistical information to the right stakeholders and for advocacy for stakeholder support in the effective implementation of the NSDS toward the achievement of medium-term vision and goals

2019 NSBStatistical committee

Coordinated data portal Data webpage on

agency websites Compendium of official

statistics in Bhutan

Establish a coordinated information system and improved data access points to facilitate users, supported by references and guides on available data resources in the country (data, database, and other statistical products and services)

2019 – 2020

NSBAll ministries and agencies

Data literacy and user capacity development program User manuals for data

management, analysis, and applications

Training on statistics for

Develop tools to assist stakeholders improve understanding, expand knowledge, and learn skills on basic and advanced data analysis and

2019 – 2020

NSBGNHCGPMDSelected ministries and agencies,

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priority user groups applications for more effective use of statistics

and dzongkhags

Data user satisfaction report

Conduct periodic user satisfaction survey to gather feedback/comments from stakeholders on the statistical products and services to inform strategies and plans for improvement

2020, 2023

NSB

ICT applications for data dissemination and communication

Develop online, social media, and mobile applications that facilitate easy access to data by users

2021 – 2023

NSBSelected ministries and agencies

Strategic Outcome 3: Improved Data Quality Data collected, compiled and disseminated within the established quality assurance framework in line with international standards and practices.

Specific outcomes

a. Rationalized survey program

Bhutan has conducted several censuses and surveys that are generally feeble coordinated among administrators and users alike. It is mostly driven by donors and development partners and with the time lags, the results delivered are less meaningful for intended purposes. Rationalization of censuses and surveys through proper coordination is crucial for ensuring relevance, timeliness, comparability and consistency of data across related activities and optimizing the available resources. A rationalized and coordinated system will clarify roles and responsibilities, identify collaborative partnership areas, and contribute to a strategic scheduling of large scale statistical activities for efficient and effective survey program.

b. Improved administrative data systems

Administrative based data systems (e.g., licensing, regulatory reporting, and monitoring and evaluation, etc.) provide a significant supply of official statistics. It can significantly address critical data gaps that are of challenges in large scale

14

censuses and surveys. Solutions include: (a) an in-depth assessment of selected and priority administrative data systems, (b) development of standards and improvement of tools for data collection, validation and reporting; and (c) relevant capacity development of sectoral statistical personnel.

c. Established data quality assurance framework

A quality assurance framework provides a mechanism for the management of the multi-dimensional nature and characteristic of data quality. Some of the typical dimensions of quality are relevance, credibility, reliability, accuracy, timeliness and punctuality; accessibility, clarity and interpretability; coherence, consistency, and comparability. The data quality framework consisting of policies, standards, and data protocols with specific purposes, processes and process flows, supported by detailed documentation at each level will ensure the production of high quality statistics from censuses, surveys, and administrative based statistical activities.

d. Institutionalized coordination mechanisms

Coordination is a critical concern in many statistical systems. Strong institutional and technical coordinative mechanisms such as review of survey design and data systems, inter-agency review of data quality, and statistical framework and indicator development will facilitate resolution of many issues on policies, processes, methodology, and quality toward the production of high quality data across interrelated development sectors and application areas.



Output owner/s

Comprehensive data assessment report

Undertake a comprehensive and in-depth data assessment to analyze data gaps and identify specific data and/or quality dimensions of data for improvement

2018 NSB

Core set of priority indicators at national, sectoral, and local levels

Define the core framework for the development of statistics by level of policy use and application, and to

2019 NSBGNHCGPMDDzongkhagsAll other

15

guide strategic and sectoral development plans for statistics

ministries and agencies

Integrated and rationalized survey program Household Establishment

see Annex B – List and status of censuses and surveys in Bhutan

Coordinate the design, integration, management, and implementation of censuses and surveys in the country to improve coherence and consistency of data and to rationalize and maximize resources for statistics

2019 NSBAll ministries and agencies

Comprehensive data quality assurance framework Quality assurance

framework for statistical activities and outputs, including administrative based data

Standard concepts and definitions for statistical purposes

Updated/new standard classifications for statistical purposes, including geographic code, school type, etc.

Develop a comprehensive data quality assurance framework to establish policies, standards, methodologies, processes, protocols, and guidelines for ensuring quality of data from censuses, surveys, and administrative based data systems

2019 – 2020


Technical committee to review data quality Administrative based

data in priority sectors

Organize a technical committee of statistical experts and practitioners to undertake quality review of data and attendant tools and processes focusing on administrative based data as medium-term priority

2019 – 2023

NSBSelected experts

16

Improved local level statistics for priority indicators

Develop standard guidelines and procedures consistent with the data quality assurance framework for the collection, validation, and reporting of data at the local level for the compilation of selected indicators such as the consumer price index, ADS, DAG, QHES, GLD, etc.

2019 – 2023

NSBGNHCGPMDSelected ministries and agenciesDzongkhags

Improved administrative based data in priority sectors

see Annex C – List and status of existing administrative based data

Assess and compile administrative-based data in priority sectors in accordance with the national data quality assurance framework

2020 – 2023


ICT applications for improved data production

Develop ICT applications and tools to improve statistical business processes for data production ― collection, compilation, processing, validation, and management

2020 – 2023


Strategic Outcome 4: Strong Statistical Institutions The BSS is strengthened with assured financial resources complimented by adequate and competent manpower in key areas of statistics.

Specific outcomes

a. Strengthened statistical management systems and practices

The statistical institutions will facilitate a system-wide strategic planning and implementation for statistical systems. Strengthening results-based management will not only ensure effective implementation of the statistical plans but more importantly help the BSS in realizing its intended goals. The current statistical parenting system shall be strengthened with proper human resource

17

development strategy and sustainable provisions of resources within the government’s financing policy and framework. The parenting system will streamline the functions of statistical personnel in other agencies and strengthen the ownership of statistical responsibilities.

b. Instituted results-based and sustainable resource allocation for statistics

Resources are important in sustaining statistical operations and facilitating improvements in the statistical system. Adopting a results-based approach to allocate resources for statistics is crucial as it integrates both policy use and statistical development. The resources for statistics shall be allocated based on the costs required to produce statistics and data to measure and monitor the contribution of government institutions in the achievement of national and sectoral development goals, including the SDGs.

c. Optimized use of innovation and technology

Innovation and technology shall be encouraged, managed and optimized to help improve methods and approaches, systems, tools, and processes, and products and services for statistical data production and dissemination. The focus shall be given to information and communication technology applications that facilitate quality data production and speed up dissemination and communication of data to users.

d. Strengthened competencies in statistical work

Statistical competencies shall be improved in various key areas such as framework and indicator development, sectoral data development, data quality assurance, data application in management, innovation and technology, and results-based management of statistics based on a comprehensive, system-wide statistical capacity development plan.



Output owner/s

Medium term statistical expenditure framework

Develop a framework and medium-term investment plan to sustain statistical operations and enable implementation of the NSDS

2018 NSB

18

Statistical human resource management and development strategy Statistical parenting

framework Rationalized statistical

position classification and job description

Education and training program in statistics, technology, management, and communication

Comprehensive statistical capacity development plan

Design and implement coordinated development programs to strengthen capacities of statistical personnel (including officers under the statistical parenting arrangement) on technical and management areas of statistical work, and improve human resource management for statistics

2019 NSBRCSCAll ministries and agencies/dzongkhags

Coordinated system of statistics

Establish a coordinated system for the production and dissemination of statistics at the national and local levels (including dzongkhags and thromdes) based on the core framework of priority indicators toward a system of designated statistics

2019 – 2020


Updated NSDS for 2023 – 2028

Prepare an updated NSDS for the next plan period

2023 NSB

6. NSDS IMPLEMENTATION PLAN

The NSDS 2019-23 provides supplementary implementation plan for four different strategic outcomes. Such implementation plans were felt necessary to realize and achieve strategic outcomes. The implementation plans are organized in matrix by strategic outcomes. Each strategic outcome with specific activities, sub-activities, indicative cost, timeline and the responsible agency for implementation are identified.

19

6.1 Implementation Plans to achieve Strategic Outcome 1

Outcome Output Description Activities Sub-Activities

Indicative Cost (Nu. in mill.)

TimelineLead

Division Responsibl

e

Key Collaborating Agencies

ESTA

BLI

SHED

AU

THO

RIT

Y FO

R

STA

TIST

ICS

Statistics Bill and its rules and regulations prepared

Review and improve scope and clarity of relevant provisions of the pending statistics bill (including resource allocation, partnerships, innovation, and local level statistics); and advocate support for the proposed legislation among key stakeholders of statistics

Submit the draft Statistics Bill of Bhutan to the Cabinet for endorsement (in consultation with the Office of the Attorney General - OAG, if the Cabinet Secretariat approves/instructs)

Develop and submit the legislative proposal to the Cabinet Secretariat

1.500

March, 2019

PPS, NSB

ITF, MSTF, SOs,OAG,

RAs, & Cabinet

Secretariat

Review and submit the Regulatory Impact Assessment Report to the Cabinet in consultation with the OAG

April, 2019

Develop the drafting workplan including drafting instructions, policy background, explanatory notes for legislation in consultation with the OAG

May, 2019

Review and consult the draft Bill with relevant stakeholders including translation (TA/OAG)

December, 2019

Consult, review and develop the delegated legislations including translation into Dzongkha (rules and regulations in consultation with the OAG)

March, 2020

Conduct Advocacy programs of the statistical legislations

2020-203

Executive order on statistics revised and updated

Amend/update existing executive order of 2006 to adopt key provisions in the statistics bill and provide

Revise and update the 2006 Executive Order

Review 2006 Executive Order and submit to the Prime Minister's Office (Incase the Statistics Bill is not enacted)

June, 2019 PPS, NSB

NSB, Divisions &

Cabinet Secretariat

20

policy and guidelines for priority statistical concerns including standards development, coordination, resource allocation, and capacity development, among others

Statistical committees established

Organize statistical committees for institutional coordination and task forces to study and address and provide guidance on specific statistical issues. (In case the Statistics Bill is not enacted)

Institute Statistics Technical Committees (STCs if Bill is not enacted)

Form an Internal Task Force to Develop Terms of Reference/Standard Operating procedures of the Committee Members (Domain based; Eco, Social, Survey/Census)

0.400 September, 2019 CIARD, NSB

NSB Divisions,

SOs & RAs

Organize STC meetings 0.500 2019-23

Respective Division,

NSB

NSB Divisions,

SOs & RAs

2.400




Timeline

Lead Division

Responsible


BET

TER

INFO

RM

ED

SOC

IETY

Statistical publications improved and updated

Develop new and update/improve existing publications and disseminate on a regular and more predictable manner official statistics for general and specific purposes and relevant

Update/Improve existing publications

Rebasing of Consumer Price Index EESD, NSB NSB & RAs

Rebasing of National Accounts EESD, NSB NSB & RAs

Review regular publications (SYB, ADS, GLD, DAG, NAS, EAS, PPI, etc)

0.200 2019-2023

Respective Divisions

NSB Divisions & RAs

Initiate new publications

Publish Export and Import Index

2019-2020

EESD, NSB DRC, MoF & RAs

21



Timeline

Lead Division

Responsible


stakeholder groups

Publish Construction Material Index 2020-

2023 EESD, NSBMoEA, MoWHS & RAs

Publish Waste Statistics 4.000 2019-

2020 EESD, NSB NEC, WWF & RAs

Dissemination policy and standards for data, microdata, and metadata defined and standardized

Define the policy, standards, format, and approaches for the management and dissemination of data, microdata, and metadata to users (including terms of use, single dissemination gateway, etc.)

Develop General Data Dissemination Guidelines

Draft, consult and finalize General Data Dissemination guidelines/standards (TA support)

0.250 2019-2020 CIARD/NSB

NSB Divisions & RAs

Develop Microdata Dissemination Policy

Review the Microdata Dissemination Policy and submit to the Cabinet

0.500 2021-2022 SDPD, NSB Cabinet

Secretariat

Coordinated data portal established

Establish a coordinated information system and improved data access points to facilitate users, supported by references and guides on available data resources in the country (data, database, and other statistical products and services)

Establish a coordinated data webpage on NSB's website

Assess the existing webpage with DITT, MoIC

0.500 2019-2020 ICT, NSB DITT, MoIC

Build capacity to manage the webpage

Create an improved multilingual NSB webpage

Data literacy and user capacity development program developed

Develop tools to assist stakeholders improve understanding, expand knowledge, and learn skills on basic and advanced data analysis and applications for more effective use of statistics

Conduct training on statistics for priority user groups

Coordinate and conduct the trainings on statistics/statistical analysis/statistical tools/economic data

3.500 2019 - 2023 CIARD, NSB Respective

NSB Divisions to design training coursesConduct data literacy

programs (workshop, media, quiz, etc.)

2.500 2019 -2023 CIARD, NSB

Data user satisfaction report

Conduct user satisfaction survey to gather

Conduct Data User Satisfaction

Plan and design questionnaire including CAPI

5.000 2022-2023

SDPD, NSB SOs, LGs

22



Timeline

Lead Division

Responsible


published

feedback/comments from stakeholders on the statistical products and services to inform strategies and plans for improvement

Survey

Collect data from the field

2022-2023

Clean data 2022-2023

Publish report 2022-2023

ICT applications for data dissemination and communication developed

Develop online, social media, and mobile applications that facilitate easy access to data by users

Develop ICT applications for data dissemination and communication

Disseminate statistical information highlights through social media (including capacity development)

2.500 2019-2023

ICT, NSB

DITT, MoIC, SOs, All divisions of NSB

Maintain NSB social media page 1.500 2019-

202320.450




Timeline

Lead Division

Responsible

Key Collaborating

Agencies

IMPR

OVE

D Q

UA

LITY

OF

DA

TA

Data assessment report developed

Undertake a data assessment to analyze data gaps and identify specific data and/or quality dimensions of data for improvement

Carry out data assessment to analyze data gaps for the 13th Five Year Plan

Institute an Internal Task Force Members, Multi-Sectoral Task Force Members and liaise with Development partners for the support

1.200

Jan-22 PPS, NSB NSB, ITF, MSTF

Develop Terms of Reference for the Internal Task Force Members (ITF), Multi-Sectoral Task Force Members (MSTF) and the Consultant


Conduct data gap assessment, validate and finalize in consultation with the ITF and MSTF


Survey program Integrated and rationalized

Coordinate the design, integration, management, and

Develop an integrated and rationalized survey

Develop annual statistical calendar including advance release calendar (coordination workshop/meetings)

2019-23 SDPD, NSB NSB & RAs

23



Timeline

Lead Division

Responsible

Key Collaborating

Agencies

implementation of censuses and surveys in the country to improve coherence and consistency of data and to rationalize and maximize resources for statistics

program (see Annex B – List and status of censuses and surveys in Bhutan)

Review and implement Survey clearance/monitor compliance (Review of SOP)

1.000 2019-23 SDPD, NSB NSB & RAs

Comprehensive data quality assurance framework developed

Develop a comprehensive data quality assurance framework to establish policies, standards, methodologies, processes, protocols, and guidelines for ensuring quality of data from censuses, surveys, and administrative based data systems

Develop Quality Assurance Framework (DQAF) for statistical activities and outputs, including administrative based data (collection, entry, and analysis)

Review and align the Guidelines for conduct of surveys/census as per the United Nations (UN) National Quality Assurance Framework (NQAF)

2021-22 SDPD, NSB SDPD & CAIRD, NSB & DITT, MoIC

Conduct workshops to disseminate the Survey standards (the Guidelines for conduct of surveys)

0.600 2019-23 SDPD, NSB NSB & RAs

Update frame (listing/mapping) 32.5 2022 SDPD, NSB NSB

Update/new standard classifications for statistical purposes, including geographic code, school type, etc. (e.g. Bhutan Standard Industrial Classification - BSIC etc.)

Develop Bhutan Statistical codes of practice (concepts/definitions/codes) (Geographic codes - Country, Dzongkhag, Area, Gewog/Town, Chiwog/EAs), Demographic Codes - (Gender, Age, Relationship, Marital Status, Disability, Language and Religion) Educational Attendance and Qualification, Training Level, Employment - Type and Nature, Enterprise Type, Housing Type - Material of roof, wall, and floor, room, water and

0.7 2019 -23

SDPD, NSB NSB & RAs

24



Timeline

Lead Division

Responsible

Key Collaborating

Agencies

sanitation, Income Source, etc., Distance of the households from service facilities, Sources of lightning and Cooking, Land Category.Develop Bhutan Standard Industrial Classification (BSIC) 0.8

2019 -20 EESD, NSB NSB & RAs

Develop Bhutan Central Product Classification (BCPC)

2019 -20 EESD, NSB NSB & RAs

Develop Bhutan Standard Classification of Occupations (BSCO)

0.7 2019 -20 SSD, NSB NSB & RAs

Develop Standard Guidelines and Procedures (SGP) consistent with the data quality assurance framework for the collection, validation, and reporting of data at the local level for the compilation of selected indicators. E.g. ADS and gewog database.

Develop Standard Data Reporting Guideline and procedures

Review guidelines for collection of gewog-level database

1.5

2020 -21 SSD, NSB NSB, SOs & RAs

Review and initiate the collection of data at the urban areas

2020 -21 SSD, NSB CIARD, NSB &

SOs

Assess and compile administrative-based data in priority sectors in accordance with the national data

Develop common/ harmonized format and data sharing mechanism

Draft, consult and finalize the common/harmonized format and data sharing mechanism for national accounts, statistical year book, environment accounts, etc.

0.700 2020 -21

CIARD, NSB

ITF, MSTF and SOs

25



Timeline

Lead Division

Responsible

Key Collaborating

Agencies

quality assurance framework

ICT applications for improved data production implemented



Conduct scoping mission to study the feasibility of setting up of the ICT systems (TA)

2019-20 ICTS, NSB NSB & RAs

Set up server to support survey and census data collection (Physical and software info to be included)

2019-21 ICTS, NSB SDPD & CAIRD, NSB & DITT, MoIC

Adopt and host online data collection System at NSB 2019-21 ICTS, NSB SDPD & CAIRD,

NSB & DITT, MoICDevelop capacity to set-up and manage the system (through TA)


Develop Capacity for effective Data visualization 2019-23 ICTS, NSB SDPD & CAIRD,

NSB & DITT, MoIC

Develop data archiving and dissemination system

Assess, define and develop one Micro-data archiving and dissemination system


Disseminate official statistics through both hard (publications) and soft (excel format).

2020-21 ICTS, NSB NSB Divisions, & DITT, MoIC

39.700




TimelineLead

Division Responsibl

e


STR

ON

G

STA

TIST

ICA

L IN

STIT

UTI

ON

Statistical human resource management and development strategy implemented

Design and implement coordinated development programs to strengthen capacities of statistical

Implement the Statistical parenting framework

Review, consult and implement the Parenting Framework (Transfer Guideline and coordination mechanism - incase the statistics legislations are not enacted)

0.700 January, 2020

HRS, NSB NSB Divisions, RCSC, RAs

26

personnel (including officers under the statistical parenting arrangement) on technical and management areas of statistical work, and improve human resource management for statistics

Develop and implement HR Master Plan

Develop HR Master Plan (Requirement, Competency Framework -TA - and succession planning)

0.700 December, 2019 HRS, NSB

NSB Divisions, RCSC & RAs

Coordinated System of statistics enhanced

Establish a coordinated system for the production and dissemination of statistics at the national and local levels (including Dzongkhags and Thromdes) based on the core framework of priority indicators towards a system of designated statistics

Organize Coordination workshops

Conduct coordination workshops (Annual Dzongkhag Statistics for harmonization with Gewog Database, Consumer Price Index, National Accounts, Environmental Accounts, Statistical Yearbook, Social Statistics, Annual Statistics Calendar/Advanced Release Calendar, etc.)

10.000 2019-2023 CIARD, NSBNSB Divisions, SOs & RAs

NSDS for 2023 – 2028 developed

Prepare an updated NSDS for the 13th Five Year Plan period

Prepare and update NSDS for the next plan period

Institute an Internal Task Force Members, Multi-Sectoral Task Force Members and liaise with the Development partners for the support

1.500

June, 2022

PPS, NSB ITF, MSTF, SOs & RAs

Develop Terms of Reference for the Internal Task Force Members (ITF), Multi-Sectoral Task Force Members (MSTF) and the Consultant

July, 2022

Draft, validate and finalize the NSDS in consultation with the ITF and MSTF

September, 2022

Endorse and advocate for implementation of the NSDS

November, 2022

1.500

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SECTION-II

7. DATA ASSESSMENT

7.1 Background

In June 2018, the Bhutan statistical system with support from PARIS21 conducted back-to-back workshops to validate findings of several recent assessments of the statistical system and to carry out strategic planning to inform a new NSDS for the period 2019-23. The workshops led to the completion of the NSDS 2019-23 Strategic Framework for Bhutan.

While the strategic framework provides the strategic directions ---- the vision, the mission, and strategic and specific outcomes toward the improvement of data production and quality, data dissemination and use, policy framework, coordination mechanisms, resource mobilization, and capacity building for statistics, there needs to be a corresponding implementation plan that clearly sets out the statistical development results and activities, the investment needed, and accountabilities to deliver the necessary changes.

In order to draw up an effective implementation plan, a comprehensive data assessment in addition to the statistical capacity assessment was deemed imperative. Such data assessment could help identify more specific issues with the data and inform the priority areas of improvement in the statistical system to make them more useful and effective in planning and monitoring the 12FYP results.

7.2 Objectives

The data assessment aimed to (a) understand better the data demand as primarily defined by the 12FYP key result areas; (b) get more insights on the specific issues with the current data and the challenges affecting the data supply; (c) analyse gaps in the data not only in terms of availability but also in terms of other dimensions of data quality; and (d) inform the validation of the NSDS strategic framework and the preparation of the statistical development plans of the national statistical system and of the different data producing institutions.

The data assessment was designed to identify and document gaps in the quality of existing data that have been identified to support monitoring of national development priorities and international development commitments, in particular the SDGs. Quality in this context covers direct quality attributes of data such as relevance, reliability,

28

timeliness and punctuality, accessibility and clarity, and coherence and comparability as well as statistical business process requisites like coordination, methodology and standards, human and financial resources, and dissemination and communication.

7.3 Assessment approach

The data assessment adopted a 2-stage approach: an initial data assessment using the ADAPT tool and a more comprehensive and detailed data assessment with reference to the generic national quality assurance framework.

a. Scope of data assessment

This detailed data assessment covers all the statistics produced by the ministries and agencies that comprise the Bhutan Statistical System primarily those statistics and data required in the planning and monitoring of the 12FYP through the National Key Result Areas, Agency Key Result Areas, and Local Government Key Result Areas, and the Bhutan SDGs.

b. Basic principles

The data assessment focused on analysing quality of data based on the concept of ‘fitness for use or fitness for purpose’ and recognizing the multi-dimensional and sometimes overlapping and often interrelated nature of data quality. The assessment referred to the United Nations Fundamental Principles of Official Statistics in general and the generic UN recommended national quality assurance framework in particular. The generic NQAF guidelines recommend the following quality dimensions or elements:

Managing the statistical system

[NQAF 1] Coordinating the national statistical system

[NQAF 2] Managing relationships with data users and data providers

[NQAF 3] Managing statistical standards

Managing the institutional environment

29

[NQAF 4] Assuring professional independence

[NQAF 5] Assuring impartiality and objectivity

[NQAF 6] Assuring transparency

[NQAF 7] Assuring statistical confidentiality and security

[NQAF 8] Assuring the quality commitment

[NQAF 9] Assuring adequacy of resources

Managing statistical processes

[NQAF 10] Assuring methodological soundness

[NQAF 11] Assuring cost-effectiveness

[NQAF 12] Assuring soundness of implementation

[NQAF 13] Managing the respondent burden

Managing statistical outputs

[NQAF 14] Assuring relevance

[NQAF 15] Assuring accuracy and reliability

[NQAF 16] Assuring timeliness and punctuality

[NQAF 17] Assuring accessibility and clarity

[NQAF 18] Assuring coherence and comparability

[NQAF 19] Managing metadata

The adoption of the NQAF in the data assessment facilitated a comprehensive understanding of quality and a systematic way of identifying quality problems and appropriate actions which can lend to monitoring of progress of statistical improvements over time.

7.4 Data assessment process

The data assessment was implemented with the following targeted results and methods:

30

Intermediate output Method/Source of inputs

Stage 1

N/AKRAs, LGKRAs, and SDG indicators in the ADAPT system

Workshop to orient the MSTF on ADAPT and encode the indicators

Validation of data demand and supply indicators by the NSB and GNHC

Stage 2

1. Quick SMART assessment of N/AKRA and LGKRA indicators

Consultant’s analysis of the ADAPT results

Validation by participants2. Initial data quality gaps based on

ADAPT

3. Specific data gaps by quality dimension and by institution

Detailed data assessment by ministry/agency using ADAPT results supported by assessment matrix of censuses, surveys, & administrative data, and Bhutan SDG statistical annex

4. Data quality gaps from use and user perspectives

Analysis of the Quick Data Use Survey results

Stage 1 provided for the critical first step of the data assessment process which is understanding the data demand. Data demand is usually influenced by the development policy and results framework of a country. In the context of this exercise, data demand is defined primarily by the information requirements of the 12FYP as articulated in the N/AKRAs and LGKRAs and the relevant indicators to measure or monitor results.

In order to understand the policy and results framework, an inventory of indicators and statistics in the N/AKRAs and LGKRAs was undertaken using the ADAPT tool.

31

The ADAPT tool is a cloud-based system developed by PARIS21 to help plan statistical activities in general. More specifically, ADAPT facilitates documentation of the indicators and statistics and analysis of data demand, supply, and data gaps as well as capacity gaps to inform actions to be adopted in the NSDS.

The inventory of N/AKRA and LGKRA indicators was started in the ADAPT workshop carried out with support from PARIS21 on 3 September 2018 and 5-6 September 2018 in Bhutan and participated by 15 member-agencies of the Multi-Sectoral Task Force (MSTF) on the NSDS. During the workshop the participants learned about the use of the ADAPT tool and started encoding into the system the relevant indicators in the N/AKRAs and LGKRAs produced by their respective ministries/agencies. The MSTF members continued and completed the encoding of all the indicators in the N/AKRAs and some indicators in the LGKRAs after the workshop. Information on the SDG indicators adopted/adapted for Bhutan were not encoded. Finally, the Gross National Happiness Commission from the data user side and NSB from the data producer side reviewed and validated the data demand and supply and related information to facilitate analysis.

The inventory required the provision of comprehensive metadata of the indicators, including detailed information on the demand and supply in terms of the following:

(1)Specific concept and definition;

(2)Variables and computational/estimation formula;

(3)Rationale for the indicator;

(4)Geographic disaggregation (national, dzongkhag, thromde, gewog);

(5)Other disaggregation (sex, type, subpopulation, sectoral, institutional, etc.);

(6)Frequency (annual/biennial (or every so many years, beginning, mid-term, end-of-term), semestral, quarterly, etc.);

(7) Institutional and activity source;

(8)Data availability and dissemination mechanisms; and

(9)Capacity development needs.

Stage 2 consisted of several steps undertaken during the detailed data assessment workshop conducted on 23-25 October 2018 among 12 member-agencies of the

32

MSTF. The workshop was designed to inform the preparation of statistical development plans by the ministries/agencies at its conclusion.

The detailed data assessment was carried out through the: (a) assessment of the N/AKRA and LGKRA framework and key performance indicators (KPIs), (b) assessment of data uses and users through a quick data use survey, (c) assessment of data supply in relation to demand, and (d) analysis of data gaps by quality dimension based on the generic NQAF elements.

A quick assessment of N/AKRA and LGKRA KPIs was done using the SMART criteria that include specificity, relevance, and appropriateness of the indicators to measure the results (outcome or output). This step provided for among others the identification and delineation between statistical indicators and programmatic and operational data and information that characterize the N/AKRA and LGKRA KPIs. As the data assessment was conceptualized and designed to focus on statistics, only KPIs that provide statistical measure of outcomes and key outputs were included.

The assessment of uses of data from the perspective of key users in Bhutan was done through a quick data use survey administered by the NSB prior to the workshop. The purposive survey gathered information about the key data users in Bhutan – their profile, data priorities, and attributes of data needed; the data uses – data and forms of data used, policy areas data is used, types of data analysis performed, and users or beneficiaries of results of data analysis, etc.; and user perceptions on current data supply (data quality, relevance, timeliness, accessibility, reliability, etc.).

The core point of the data assessment was the analysis of data supply in relation to demand. Using the inventory generated from the ADAPT system, the N/AKRA and LGKRA KPIs were mapped with available data in the Bhutan statistical system to identify gaps in terms of general availability of data as well as in terms of key metadata as follows:

(1) Specific concept and definition;

(2) Variables and computational/estimation formula;

(3) Geographic disaggregation (national, dzongkhag, thromde, gewog)

(4) Other disaggregation (sex, type, subpopulation, sectoral, institutional, etc.);

33

(5) Frequency (annual/biennial (or every so many years, beginning, mid-term, end-of-term), semestral, quarterly, etc.);

(6) Methodology;

(7) Standards/frameworks adopted/applied;

(8) Dissemination mode;

(9) Activity source and error or any quality measurements, if any;

(10) Institutional source; and

(11) Improvement/development plan.

The next step in the process was narrowing the master list of indicators to those KPIs that are considered key statistical indicators or statistics, and expanding the same by including other critical sectoral statistics used by the different ministries/agencies in their mandated planning and monitoring activities that were not included in the N/AKRAs and LGKRAs. As many of the statistical indicators are composite measures of two or more different statistics that may be produced by different ministries/agencies, the list was further expanded by breaking down these indicators into the component variables or data items. The detailed data assessment was done on the resulting master list of indicators and data items for each participating ministry/agency.

In the detailed data assessment, the participating MSTF members provided additional information to update the metadata for the data items from the demand and supply perspectives.

7.5 Limitations and challenges

It is important to recognize several limitations and challenges that may have affected the comprehensiveness and level of overall quality of the process and results. Below are among the critical ones.

(1)The assessment relied primarily on the inputs and outputs of the members of the MSTF for the NSDS during the workshops and may not include further validation with other informants or the management in the ministries/agencies.

(2)Many of the detailed information about the indicators asked by ADAPT system and the detailed data assessment could not be provided by the MSTF

34

members due to limited knowledge about the indicator or data item or unavailability or lack of reference or documentation, especially from the demand perspective.

(3)Some ministries/agencies did not participate in the final workshop leaving out the corresponding sectors and statistics from the detailed data assessment.

(4)The assessment did not include focused assessment of data for the SDGs as the information was not encoded in ADAPT.

(5)There was very limited material on the LGKRAs provided which prevented more detailed analysis of data demand and supply at the local government levels.

(6) The quick data use survey could have included a few more key ministries/agencies and key users from the private sector and international development partner institutions.

7.6 Assessment findings

This section presents the consolidated results and findings of the data assessment:

a. Assessment of data demand

1. Assessment of N/AKRA and LGKRA indicators based on metadata in the ADAPT system

(a) The results framework for the 12FYP consisted of the N/AKRAs and LGKRAs and corresponding KPIs and the SDGs and indicators adapted for Bhutan all of which presented a comprehensive and complex reference for the data assessment. There are 135 AKRAs and 38 LGKRAs (Dzongkhag level) under and across 16 NKRAs requiring a total of 794 KPIs for monitoring.

(b) Of the total number of KPIS, only 56 percent have available data for at least one time period. While availability of data at the national level is at a moderate 77 percent, the situation drastically worsens at the agency (sectoral) and local levels.

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Logframe / Level Number of KRAs

Number of KPIs

KPIs with at least 1 value

Proportion of KPIs with available data (%)

NKRA-AKRA

NKRA 16 120 92 77

AKRA 135 583 323 55

LGKRA-Dzongkhag 38 91 33 36

Total number of KPIs

794 448 56

(c) Of the total number of KPIS, only 56 percent have available data for at least one time period. While availability of data at the national level is at a moderate 77 percent, the situation drastically worsens at the agency (sectoral) and local levels.

(d) There is substantial imbalance in the number of KPIs across the 16 NKRAs that may suggest misleading indication of relative contribution of the NKRAs in the attainment of higher societal goals.

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(e) In terms of metadata, availability of information on disaggregation, geographic coverage, frequency and institutional source of data for N/AKRA KPIs is strong but very weak for LGKRA indicators. However, the level of metadata availability for the selected attributes may be largely due to poor articulation of data demand. Information is certainly much less scarce for other dimensions required in the inventory of KPIs through the ADAPT system.

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(f) The comparison of demand and supply indicators yielded concerning results as only about half of the KPIs, on average, have available data that matched with the required (selected) attributes. While KPIs with matching geographic coverage appear to be high, the level could be much lower if there was clearer definition of demand at the N/AKRA level. Data gaps according to selected attributes are consequently wide.

(g) A review of the KPIs using the SMART criteria revealed the following:

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― Many of the KPIs are not relevant or appropriate as they do not provide meaningful measure of the identified outcome or output. Many KPIs measure processes and inputs rather than results (outcomes and outputs). Many of the KPIs are programmatic or operational in nature than statistical.

― Some KPIs are not standard or are differently-formulated from nationally-used, or internationally-recommended indicators.

― Some KPIs do not have official/standard, nationally-used, or internationally-recommended definitions; have vague definition.

― Some KPIs are not appropriately formulated as indicators, e.g. plan, activity, process, timeline; directional, etc..

― A number of KPIs are duplicates; some are used several times to measure different levels of results and/or different outcomes. There are too many KPIs to measure a specific outcome or output; imbalance in number of KPIs among KRAs.

2. Assessment of users’ perception of existing data and unmet data needs in Bhutan

Below are the key findings of the quick survey of selected key data users in government conducted by NSB.

(a) There is strong trust in statistics and high appreciation of its importance among data users.

(b) A good proportion of respondents, 70 percent, indicated overall satisfaction with current statistic but a lesser number are satisfied with the existing statistical products.

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(c) Interestingly, more users are satisfied with data sourced from other institutions than with the data produced by their institutions.

(d) Users identified statistics on social welfare, justice and crime, and local level as the weakest while governance, national accounts, public works, and agriculture and forestry are the strongest.

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The survey results are in Annex-4.

b. Assessment of data supply

The detailed data assessment was conducted by the members of the MSTF on NSDS from thirteen (13) ministries/agencies but only eleven (11) were able to identify specific data quality issues on the indicators and statistics under their purview.

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The assessment initially used the extracted list of KPIs from the ADAPT system allocated to the relevant ministries and agencies. The list only includes KPIs under the N/AKRA and LGKRA (Dzongkhag) as encoded and are available in the ADAPT system. The SDG indicators were not encoded into the system.

The next step was the delisting of KPIs which were clearly not indicators, e.g., plan, activity, or timeline, one-time or single point indicators, those that were considered more programmatic or operational in nature, and those indicators that were vague and did not have clear definition from the demand side. The remaining list of indicators and statistics were further assessed and broken into component data items. Key statistics such as population, area, and gross domestic product, which are commonly used as denominator in general and sectoral indicators, were excluded from the sectoral assessment but were taken up by the producing ministry or agency.

Each ministry and agency updated the metadata generated from the ADAPT system for the new list of indicators and statistics and identified specific data issues and needed interventions pertaining to the different quality dimensions represented by the generic NQAF elements (see Annex-5).

1. Summary of data quality issues observed

Following is a summary of common issues identified during the detailed data assessment conducted by twelve (11) ministries and agencies:

― Relevance

Data produced/disseminated limited to national level.

Disaggregation of many indicators/data are not available, especially geographic disaggregation, e.g., Dzongkhag, Thromde, Gewog.

Periodicity of many data is pre-dominantly annual.

Some data that are available on a monthly/quarterly basis are being released only on an annual basis due to lack of clear policy or weak user orientation.

Some important indicators/data are not available due to resource constraints and capacity or lack of clear definition and methodology.

There is lack of stakeholder consultation across many sectors.

― Accuracy and reliability

Unclear/vague concept/definition, e.g., urban/rural, water and sanitation, tax performance, unreported crime/road accident cases, forest area

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boundaries, coverage areas, etc.

Coverage problems, e.g., border issues, excluded areas, excluded types/categories

Unclear/lack of standard classification, e.g., vehicle, crime, roads, etc.

Discrepancy between survey and administrative data

Field collection/reporting challenges, e.g., illegal activities

Low resolution satellite images (land)

Absence of quality assurance mechanisms

― Timeliness and punctuality

Data needed more frequently than annual are not available, e.g., quarterly GDP.

Need for annual population data to compute indicators across sectors

Relatively long time lags in the release of results of censuses and surveys, e.g., population, BLSS

Relatively long time lags in the release of indicators/statistics, e.g., poverty statistics, education

Delayed submission of data from field or from other ministries/agencies.

― Accessibility and clarity

Lack of metadata for many indicators/metadata

Lack of proactive dissemination of available data

Lack of access to microdata

― Coherence and comparability

Lack of standards/guidelines

Multiple sources of data

A more detailed and consolidated list of issues under each of 13 quality dimensions in the generic NQAF is provided in Annex-6.

2. Analysis of data quality gaps

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The detailed data assessment covered a total of 222 indicators and statistics across 11 ministries and agencies, including NSB. The following analysis focuses on the results of the mapping of demand and supply based on 4 key metadata items, disaggregation, geographic coverage, frequency, and institutional source of the data and the status of available data across the various quality dimensions in the NQAF.

a. Many of the indicators are not fit-for-purpose.

While the proportion of indicators with matched metadata between demand and supply appears fairly adequate for each of the 4 data attributes, from 63 percent (frequency) to 84 percent (institutional source), only a mere 41 percent of the indicators have all the specific details required in the N/AKRAs and LGKRAs. This suggests a significant number of indicators that may not have the ideal characteristics of indicators and which may render the analysis of data less informative and meaningful for accurate and reliable measurement of results of the 12FYP.

With the general assessment that the demand is not even articulated well, e.g., logical framework (delineation between impact-outcomes-outputs and processes-inputs) needing clarity, measurement framework lacking in parsimony and wanting in specificities for deeper analytical use (sectoral, spatial, small area/local level, and population subgroup analysis), the above assessment may only be implying a surface diagnosis of what could be a worse scenario.

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Details of the matched indicators: demand and supply by selected metadata are in Annex-7 while the detailed data assessment matrices of the 11 participating ministries and agencies are documented in Annex-8.

b. Many indicators have critical quality issues mainly in terms of reliability and timeliness of data.

Of the 19 NQAF elements or quality dimensions, 13 have been cited as problem areas for many of the indicators. A significant number of indicators have issues with assuring accuracy and reliability (NQAF15) and timeliness and punctuality (NQAF16). However, for some indicators, these are interrelated with challenges in standards and methodology and coordination among data producers and providers.

Among the identified and observed leading root causes of unreliable data are the lack of clear definition and methodology for many of the indicators across most sectors. In general, the metadata suggests limited awareness and knowledge among data managers, coordinators, or compilers of the standard or operational definitions and data classifications even for commonly used indicators. Although not as clearly documented but adequately covered in the discussions, there is shared concern about the inadequate if not lacking mechanisms for quality assurance across the board, both intra-organizational (vertical and lateral flow of data within institutions) and inter-organizational (sharing between institutions) systems.

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Timeliness of data or specifically, the long time lag in the release of data as well as delay in the reporting of data for higher level compilation or consolidation, seems to be the bigger concern among the ministries and agencies. The absence of systems with clear standards and guidelines and coordination arrangements has been identified as an important factor affecting data flow and eventually release of data.

Little attention both from the demand and supply perspective is accorded to timeliness, e.g., frequency/periodicity, which is as akin to ensuring relevance as the need to be fastidious in making the data available to users. Details of the number of indicators with quality dimensions are in Annex-9.

7.7 Observations and way forward

The detailed data assessment exercise turned out to be quite challenging both for the participants and facilitators. From the encoding into the ADAPT system to the review of indicators and data and identification of issues, the process was intense and required knowledge and understanding of concepts and of the methodology itself, a different and new approach to analyzing data and metadata. The introduction and use of the NQAF as a core reference for the assessment may seem radical but ultimately should be the direction if the national statistical system aims to understand statistics better --- the characteristics, the processes, and the people that make them, including and more

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importantly the problems and challenges that affect this system in order that appropriate and effective solutions can be implemented.

The real lessons from this data assessment are in the details which can be found and better appreciated in the individual data assessment matrices of the participating ministries and agencies at http://www.nsb.gov.bt/publication/publications.php?id=15. These lessons, as what the approach calls for, are meant to inform and guide the formulation of statistical development plans that are aligned with the NSDS Strategic Framework but more importantly, directly addressing the most critical data problems at the implementation or operational level.

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http://www.nsb.gov.bt/publication/publications.php?id=15

REFERENCES

GNHC. 12th Five-Year Development Plan (2019-2023). Retrieved from Gross National Happiness Commission website: www.gnhc.gov.bt

GNHC. Twelfth Five Year Plan (12FYP) National Key Result Areas, Agency Key Result Areas, and Local Government Key Result Areas. 2018. Retrieved from Gross National Happiness Commission website: www.gnhc.gov.bt

MoAF. In-depth Country Assessment of the National System for Renewable Natural Resources Statistics in Bhutan (An implementation of Global Strategy to Improve Agriculture and Rural Statistics). Retrieved from Ministry of Agriculture & Forests website: http://www.gsars.org/wp-content/uploads/2014/10/GS-Bhutan-IdCA_Bhutan_FINAL.pdf

NSB. Bhutan Living Standard Survey 2012 Report. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. Bhutan Living Standard Survey 2017 Report. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. Bhutan Poverty Analysis Report 2012. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. Bhutan Poverty Analysis Report 2017. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. Bhutan’s Data Ecosystem Mapping. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. Consumer Price Index (2003-2017). Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. National Accounts Statistics 2017. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. National Accounts Statistics 2018. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

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NSB. National Statistics Development Strategy (NSDS 2008-13). Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. National Statistics Development Strategy (NSDS 2014-18). Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. Organaization Development Report. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

NSB. The Statistics Bill of Bhutan 2015. Retrieved from National Statistics Bureau website: www.nsb.gov.bt

PARIS21. ADAPT. Retrieved from PARIS21 website: https://adapt.paPris21.org/auth/login

PARIS21. National Strategies for the Development of Statistics. Retrieved from PARIS21 website: http://www.paris21.org/national-strategy-development-statistics-nsds

RGoB. Bhutan SDGs Statistical Annex. 2018. GNHC.

UNSD. Guidelines for the Template for a Generic National Quality Assurance Framework (NQAF). February 2012. UN.

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ANNEXURE:

ANNEX-1 List of existing statistical publications of NSB

Sl. No Publications Frequency1 Consumer Price Index Monthly2 Socio-Economic Indicator Quarterly3 Producers’ Price Index Quarterly4 Dzongkhag Statistics Annually5 Statistical Year Book of Bhutan Annually6 Environmental Account Statistics Annually7 Labour Force Survey Report Annually8 Gewog Level Data Base Annually9 National Accounts Statistics Annually

10 Bhutan Living Standard Survey Report Every five years11 Bhutan Poverty Analysis Report Every five years12 Bhutan Multi-Dimensional Poverty Index Every five years 13 Bhutan Multiple Indicator Survey Report Every ten years

14 Population and Housing Census of Bhutan Report - National Every ten years

15 Population and Housing Census of Bhutan Report - Dzongkhag Every ten years

16 Population Projection Report-National Every ten years17 Population Projection Report-Dzongkhag Every ten years18 Socio-Economic Demographic Indicators Ad-hoc

19 Knowledge Attitude and Practices Report on Religious Personnel Ad-hoc

20 Standardization of Measurement Unit Survey Report Ad-hoc21 Enterprise Survey Report Ad-hoc22 Dzongkhag Information Based on PHCB-2005 Ad-hoc

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ANNEX-2 List of censuses and surveys in Bhutan

# Activity Responsible

AgencyFunding Periodicit

y Year last conducted

Amount Source

A. CENSUSES

1 Population and Housing Census

NSB Nu. 254.M RGoB 10 years 2017

2 RNR Census MoAF Nu. 183.331 M

RGoB/ FAO/ Donar partners

10 years 2008

3 Livestock Census

MoAF Nu.1.1 M RGoB Annual 2017

4 Economic Census

NSB Nu. 21 M World Bank

10 years 2019

B. SURVEYS1 Bhutan Living

Standard Survey

NSB Nu 31 M World Bank

5 years 2017

2 Bhutan Multiple Indicator Survey

NSB Nu 70 M UNICEF 10 years 2010

3 National Health Survey

MoH Nu 25 M WHO,UNFPA, (DHS 2012)

5 Years 2012

4 STEPS Survey MoH Nu. 6.1 M WHO (2014)

5 Years 2014

5 Nutrition Survey MoH Nu. 20 M WHO/UNICEF

5 Years 2012

6 Global Youth Tobacco Survey

MoH 5 Years

7 Patient Satisfaction Survey

MoH Nu. 0.4 M Adhoc

8 EPI Survey MoH 5 Years 20089 KAP Survey MoH

10 Annual Household Survey

MoH Annual

11 Enterprise Survey

DCSI, MoEA Nu. 1.18 M

World Bank

Adhoc 2015

12 Gross National CBS

51

Happiness Survey

13 Job Prospecting Survey

DEHR, MoLHR

Nu. 1.5 M RGoB Annual 2017

14 Agriculture Survey

MoAF Nu. 7.26 M

RGoB Annual

15 Labour Force Survey)

DEHR, MoLHR

Nu. 4.327 M

RGoB Annual 2017

16 Tourism Exit Survey

TCB RGOB annual 2017

17 Outbound Tourism Survey

TCB Annual

18 Domestic Tourist Survey

TCB Annual

19 Tourism Industry Survey

TCB Annual

20 Tourism Employment survey

TCB Annual

21 Targeted Household Poverty Survey (THPP)

GNHC

22 Media Impact Study

DoIM RGoB

23 Violence Against Children Study

NCWC 200,000 UNICEF 5 years 2016

24 Violence Against Women/Girls Study

NCWC 200,000 UNDP/UNFPA

5 years 2018

25 Employment Survey

DCSI, MoEA NA NA Adhoc 2015

26 Market Price Information

OCP, MoEA Nu. 0.2 M RGoB Quarterly 2018

27 Consumer Price Index

NSB Nu. 3 M RGoB Monthly 2018

ANNEX-3 List of publications based on administrative data

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# Publications Responsible Agency

Periodicity

1 Annual Dzongkhag Statistics NSB Annual2 Annual Report RMA Annual3 Annual Bulletin MoWHS Annual4 Education statistics MoE Annual 5 Employment statistics MoLHR Annual6 Power Data MoEA Annual7 State of Environment report NEC Annual8 Environmental account statistics NSB Annual9 Annual financial statement MoF Annual10 Annual Health Bulletin MoH Annual11 Monthly Bulletin RMA Monthly12 Selected Economic Indicators RMA Quarterly13 National accounts statistics NSB Annual14 Producer Price Index NSB Quarterly15 Annual report TCB Annual16 Trade statistics DRC Annual17 Annual report MoIC Annual18 Civil Service Statistics RCSC Annual

ANNEX-4 Survey results (Annex-a)

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ANNEX-5 The Generic NQAF elements (Annex-1)

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ANNEX-6 Consolidated list of data issues by NQAF element and Institution

Institution Data issue Number of indicators

NQAF1. Coordinating the national statistical systemMoAF Definition of research work not clear 1

MoAF Discrepancy between data from survey conducted by RSD of MoAF and that of Dzongkhags 7

NSB Delayed submission of basic price data from Dzongkhag 1NSB Duplication of data 2

NEC Need for well-established national system of collecting greenhouse gas inventory 1

MoIC Non-inclusion of relevant data in existing NSB surveys 1MoIC Reliability on the data as per standard definitions 1MoIC Timeliness and reliability of input/raw data 1

NQAF2: Managing relationships with data users and data providersMoIC Coordination with airlines to provide correct figures 1MoIC Timeliness, and reliability 1MoIC Non-inclusion of relevant data in existing NSB surveys 1MoAF Lack of peer review process or stakeholder consultation 2TCB Managing relationships with data users and providers 1

MoWHS Reliability and Verification of the collected data 1NQAF3. Managing statistical standards

MoIC Coordination with airlines to provide correct figures 1MoIC Need for comprehensive vehicle type classification 1MoIC Proper estimation methodology 1MoIC Wrong calculation of internet users 1

RBP No standard classification of crime like violence against women, children, domestics violence, etc. 1

NQAF5. Assuring impartiality and objectivity MoIC Non-inclusion of relevant data in existing NSB surveys 1MoIC Timeliness, and reliability 1

NQAF8. Assuring the quality commitmentMoIC Need to conduct survey on new data 1

MoIC Data not based on region but focused on number of population provided with trainings 1

NQAF9. Assuring adequacy of resources

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MoH Financial and human resource shortage. 2NSB Lack of HR 2NEC More stations required - more data su 1MoIC Need to conduct survey 1

NQAF10. Assuring methodological soundness

MoHLimited coverage/undercoverage of areas/groups of population (non-health facility births, survey not covering major cities and towns)

2

MoIC Need to coordination with providers on provision of correct data

MoAF, MoF, MoIC

Lack of clarity in definition, coverage, or methodology (area under effective watershed management, enterprise, tax performance in relation to economic growth, domestic revenue to expenditure for 12FYP, impact of emission reduction, estimation, essenital imports)

12

NSB Definition and concepts not consistent with international standards 1

NSB Lack of technical capacity on SAE 2

MoIC, MoAF,

MoH, MoF

Need to conduct survey/new/improved administrative data system (FIES, tax compliance) 4

NQAF12. Assuring soundness of implementation

MoAF As per definition, too ambitious, so will suffer from impracticality of measurement. 1

NQAF14. Assuring relevance

NEC Need for well-established national system of collecting greenhouse gas inventory 1

MoAF, TCB No data / information available currently 3

TCB Some basic data available. Need to enhance basic datasets 1

MoWHS, MoH, TCB

Unavailability of disaggregated population data (urban/rural , inbound tourism, relevant age group) 4

NSB Unavailability of Dzongkhag/Gewog level data 5

NSB, RMA Unavailability of quarterly GDP 2

NSB Unavailability of small area poverty estimates (SAE) 1NQAF15. Assuring accuracy and reliability

MoH, RBP, MoAF, NEC

Limited coverage/under coverage of areas/groups of population (urban centers, unreported accident/crime/road crash cases, small pocket areas, outbound tourism, more monitoring stations, forest area boundaries, illegal cultivation)

15

57

NSB, MoH, RMA, MoAF

Unavailability of data (inputs for indicators/frameworks, home delivery, home deaths, population, age group population, livebirths)

12

MoAF Data affected by natural phenomena (border movement of tiger population, degraded areas) or technology 3

MoAF Data in BLSS based on recall by respondents who are unsure of their answers 7

NSB, MoWHS,

MoIC

Reliability of projections (population); need to improve data verification 4

MoIC, NSB, MoF

Need to improve methodologies (estimation/projection, revisions, impact on emission reduction, potential export products, internet users)

6

NQAF16. Assuring timeliness and punctualityNSB Delayed submission of basic data from Dzongkhag (price) 1

NSB, RMA Need for quarterly GDP estimates 4

MoAF, NSB, RBP,

MoH, MoIC, RCSC

Long time lag (poverty, population, age group population, nutrition, crime/road/accidents, among others) 32

NQAF17. Assuring accessibility and clarityNSB No access to micro-data 2

NQAF18. Assuring coherence and comparabilityNSB, MoAF

Definition and concepts not clear/not consistent with international standards (research work, 2

MoAF, MoIC

Discrepancy between data from survey conducted by RSD of MoAF and that of Dzongkhags 11

NSB Duplication of data 2

* Figures do not add up to total number of indicators due to multiple count (some issues span across more than 1 quality element (NQAF).

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ANNEX-7 Number of matched and unmatched demand and supply indicators

Institution/Metadata

Disaggregation Geographic Coverage Frequency Source Institution

Tota

l num

ber o

f fu

lly m

atch

ed

indi

cato

rs

Tota

l num

ber o

f in

dica

tors

Prop

ortio

n of

fully

m

atch

ed in

dica

tors

Mat

ched

Unm

atch

ed

Prop

ortio

n of

m

atch

ed

indi

cato

rs

Mat

ched

Unm

atch

ed

Prop

ortio

n of

m

atch

ed

indi

cato

rs

Mat

ched

Unm

atch

ed

Prop

ortio

n of

m

atch

ed

indi

cato

rs

Mat

ched

Unm

atch

ed

Prop

ortio

n of

m

atch

ed

indi

cato

rs

NSB 20 7 74.1 18 9 66.7 16 11 59.3 23 4 85.2 5 27 18.5

MoAF 51 1 98.1 39 13 75.0 40 12 76.9 51 1 98.1 36 52 69.2

MoE 0 0 0 0

MoF 21 6 77.8 25 2 92.6 18 9 66.7 22 5 81.5 12 27 44.4

MoH 24 13 64.9 22 15 59.5 18 19 48.6 29 8 78.4 11 37 29.7

MoIC 10 10 50.0 10 10 50.0 10 10 50.0 10 10 50.0 10 20 50.0

MoWHS 1 3 25.0 1 3 25.0 4 0 100.0 3 1 75.0 1 4 25.0

NEC 3 1 75.0 2 2 50.0 0 4 - 4 0 100.0 0 4 0.0

RBP 8 7 53.3 7 8 46.7 12 3 80.0 14 1 93.3 2 15 13.3

RCSC 8 3 72.7 8 3 72.7 11 0 100.0 11 0 100.0 7 11 63.6

RMA 13 4 76.5 16 1 94.1 7 10 41.2 16 1 94.1 6 17 35.3

TCB 3 5 37.5 2 6 25.0 4 4 50.0 4 4 50.0 1 8 12.5

TOTAL 162 60 73.0 150 72 67.6 140 82 63.1 187 35 84.2 91 222 41.0

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ANNEX-8 Data assessment matrices of 11 ministries and agencies (appendix-4)

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ANNEX-9 Number of indicators with data issues by quality dimension (NQAF element)

InstitutionTotal number of indicators

Indicators with quality issues

Proportion of

indicators with

quality issues

NQAF1 NQAF2 NQAF3 NQAF4 NQAF5 NQAF6 NQAF7 NQAF8 NQAF9 NQAF10 NQAF11 NQAF12 NQAF13 NQAF14 NQAF15 NQAF16 NQAF17 NQAF18 NQAF19

NSB 27 17 63.0 3 2 2 7 3 16 2 3

TCB 8 8 100.0 1 4 4

NEC 4 2 50.0 1 1 1 1

MoAF 52 44 84.6 8 2 7 1 1 23 1 10

MoE

MoF 27 8 29.6 5 3

MoH 37 16 43.2 2 2 7 7

MoIC 20 12 60.0 3 3 4 2 2 1 5 4 2 2

MoWHS 4 3 75.0 1 2 1

RBP 15 8 53.3 1 7 8

RCSC 11 2 18.2 1 1

RMA 17 2 11.8 2 2

Total 222 122 55.0 15 7 5 2 2 6 21 1 17 54 37 2 15

* Figures do not add up to total number of indicators due to multiple count (some issues span across more than 1 quality dimension (NQAF).

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