In the pristine highlands of Bhutan, many local communities engage in the traditional practice of yak herding, which plays a crucial role in Bhutan’s agricultural landscape. This is particularly the case in 11 highland districts, where yak herding engages over 1,100 households and contributes approximately 4% to the nation’s livestock production. Yaks – a species of long-haired domesticated cattle found throughout the Himalayas – primarily graze in rangelands, locally known as Tsamdros, which encompass permanent grasslands and forested areas.
The governance of Tsamdros has undergone significant transformation over the years. Initially, individual ownership was established via royal edicts (Kashos). The enactment of the Thrimzhung Chenmo (Supreme Law Code) in 1953 conferred full ownership rights to individuals and institutions. However, the 2007 Land Act nationalised rangelands, designating them as state property, thereby limiting herders to grazing rights. In 2017, The National Land Commission Secretariat aimed to safeguard the grazing rights of highlanders by redistributing land according to four guiding principles:
- Tsamdro use tenureship for highlanders with livestock.
- Leasehold tenureship for non-domiciled livestock owners.
- Leasehold tenureship for monastic institutions (Dratsang).
- Tsamdro grants based on registered livestock records at the block level (Gewog), subject to biannual revisions.
This process involved rescinding Tsamdro rights from non-domicile elites and religious institutions, with compensation provided to affected titleholders. This approach sought to balance environmental conservation with the livelihoods of highlanders. In 2017, highland communities petitioned His Majesty the King to reaffirm their Tsamdro rights. Following His Majesty’s endorsement, the National Land Commission of Bhutan developed the Tsamdro Implementation Framework, emphasising community engagement and incorporating local expertise to effectively address the needs of highlanders.
As of now, approximately 380,000 acres of Tsamdros have been surveyed and mapped using the Tsamdro App, co-developed and implemented with the highlanders. Rangelands are now officially recognised in Bhutan’s National Land Use Zoning, and relevant stakeholders are formulating management guidelines.
Key to this process are rangeland restoration efforts, including the control of weeds and invasive species through prescribed burning, water management and reseeding initiatives, all aimed at enhancing grassland productivity for both yaks and wild herbivores. These efforts are designed to ensure sustainable yak production while preserving cultural heritage and the environmental integrity of high-altitude rangelands.
The task of restoration is not an easy one and cannot be managed by a single agency. The National Land Commission Secretariat is encouraged by the combined efforts of the International Centre for Integrated Mountain Development (ICIMOD), along with the Department of Forest and Park Services, the Department of Livestock, National Biodiversity Centre, National Plant Protection Centre, and Menjong Sorig Pharmaceuticals Corporation – which specialises in manufacturing medicines using medicinal plants and herbs – in raising awareness about rangeland degradation and trialling various treatments to restore the health and productivity of our Tsamdros.
By conducting these trials with herders, the rangeland restoration work is also building the capacity of herders and incorporating traditional knowledge and practices, all of which align with the land management responsibilities emphasised in the Implementation Framework.
Authors
Geley Norbu, Director General, National Land Commission Secretariat (NLCS), Thimphu, Bhutan
Karma Choden Tshering, Senior Land Registrar, NLCS, Bhutan
Chimi Dem, Deputy Chief Survey Engineer, NLCS, Bhutan
Rinzin Dorji, National Cadastral Resurvey Program, NLCS, Bhutan
