Hope on the Distant Horizon

For the celebration of the Bhutanese New Year, I went to the shore. The shore was dusty, dry, and cold. There were sounds of birds chirping. I looked up and saw flocks soaring high in the sky. Far distant, as I lowered my gaze, I saw the bright sun offering a comforting warmth. Here, I contemplate my thoughts, realizing we have a long way to go... 
Far beyond the horizon, you rise bright. Here, in the dryness of winter cold, I stare. Ponder my thoughts beyond, to achieve might, And vow that none shalt stand who does not dare. 

The bright sun from the shore. 

Reflective Insights on Integrity-Driven and Adaptive Leadership in Infrastructure Decision-Making

1.     Introduction

The development of Bhutan's infrastructure has been a significant focus since the 1960s, beginning with the construction of the first road connecting Phuentsholing to Thimphu. Over the years, the government has prioritized building roads, suspension bridges, and public buildings, which have contributed to social and economic progress. However, despite substantial investments, the construction industry faces ongoing challenges related to quality, innovation, and sustainability. Roads often break down too soon, which means they need to be fixed over and over again, which puts a strain on budgets. This shows that planning and execution are not perfect.

As a professional in the Department of Surface Transport, I have encountered the complexities of infrastructure decision-making. A recurring dilemma is whether to construct a shorter, higher-quality road or a longer, potentially lower-quality one. This decision is not merely technical; it also involves moral and leadership considerations, balancing political desires, public needs, and ethical responsibilities. Frameworks like Moral DNA and the RIGHT (Rules, Integrity, Good, Harm, Truth) framework can guide decision-making to ensure it is both technically and morally sound. The Cynefin Framework aids in understanding the nature of these problems and determining appropriate responses.

In this essay, I contemplate the ways in which these frameworks can improve leadership practices in my workplace. I aim to lead cultural change, improve the workplace for my team, navigate contradictions, and transition from compliance-based management to adaptive leadership.

2.     Applying Moral DNA and RIGHT Framework to a KPI or Initiative.

Recognizing my Moral DNA as a JUDGE, I understand the importance of balancing obedience, honesty, and reason in leadership. These elements are crucial when making decisions that impact budgets, timelines, and quality outcomes in public infrastructure. I have revised the Key Performance Indicator (KPI) from "Develop a framework for Action Research" to "Enhance long-term road performance and user satisfaction through ethically guided and evidence-based budget decisions." This new KPI emphasizes results-oriented performance, focusing on sustainability, accountability, and user-centric service delivery.

Utilizing the RIGHT framework, I ensure that our decision-making processes adhere to professional and moral standards:

•  R – Rule: Adhere to national standards, policies, and engineering codes, ensuring transparency in budget prioritization.
• I – Integrity: Maintain honesty and consistency in decisions, resisting pressures for short-term gains.
• G – Good: Aim for long-term benefits for the public, considering the broader impacts of road quality on safety and access.
• H – Harm: Identify and mitigate potential harms, recognizing that low-quality construction can lead to greater long-term costs and loss of public trust.
• T – Truth: Uphold honesty in all communications, ensuring that decisions are based on accurate information and realistic assessments.

By systematically applying the RIGHT framework, I can align our department's decision-making with ethical principles, reinforcing the idea that ethical leadership and technical excellence are interconnected.

Image source: CFI

3.     Seismic Shift – From compliance -based decision making to Adaptive Leadership

A significant shift I aim to implement is moving from a compliance-based decision-making culture to one that is flexible, evidence-based, and morally grounded. Historically, the focus has been on procedural compliance and short-term budget efficiency, which stifles innovation and long-term thinking. Engineers often prioritize immediate physical goals over sustainable, high-quality outcomes.

To facilitate this transition, I will employ the Cynefin framework for adaptive leadership:

• In complicated domains, where expert knowledge can provide answers (example: determining design thickness or selecting pavement materials), the decision approach should be Sense – Analyze – Respond. Experts analyze multiple solutions, compare life-cycle costs, and recommend the best option.
• In complex domains, where outcomes are uncertain or emerging (for example, testing alternative materials or innovative designs), the approach should shift to Probe–Sense–Respond. Here, pilot projects and iterative learning become essential before full-scale implementation. I have already proposed the research and development idea and am now in the process of developing a framework to encourage and enable innovation.

Success metrics will also evolve; rather than merely measuring project completion, I will assess long-term performance, maintenance expenses, and the integration of new ideas. This shift will cultivate a culture that bases decisions on facts and values, striking a balance between efficiency and sustainability.

4.     Creating a Supportive Environment for My Team

The effectiveness of my leadership hinges on fostering an environment conducive to learning, creativity, and ethical dialogue. Many engineers face strict deadlines and high public expectations, leaving little room for reflection or innovation. To improve this environment, I commit to two key initiatives:

• Establishing Continuous Learning Platforms

I will implement structured "learning from practice" sessions, allowing engineers to share experiences, challenges, and ethical dilemmas in a supportive setting. This initiative aims to promote ongoing improvement and innovation, with documented insights informing future project planning and policy adjustments.

• Encourage Openness and Honesty

I will create a safe space for team members to voice concerns and propose new ideas without fear of repercussions. During project meetings, I will integrate discussions around the RIGHT framework, embedding ethical reasoning into our daily practices.

5.     Leading Culture Change

Transforming the culture within the public construction sector is a gradual process that requires alignment of values, behaviors, and systems. My goal is to shift the focus from speed and physical accomplishments to long-term quality and sustainability.

To achieve this, I will:

1. Model Integrity and Accountability: I will demonstrate through my actions that ethical decision-making and honesty are paramount, reinforcing that prioritizing quality is the norm.
2. Integrate Reflection into Project Reviews: I will initiate "post-project reflection" sessions that evaluate not only technical outcomes but also the ethical considerations that influenced decisions, similar to the Asian Development Bank & World Bank funded projects.
3. Recognize and Reward Innovation: I will advocate for institutional recognition of teams or individuals, which I have already initiated in the department, who explore new technologies or methods that enhance quality and reduce costs.

Cultural change requires sustained effort, but the potential benefits are significant. An organization that values innovation and ethics embeds these principles into identity. 

6.     Navigating Paradoxes

Leadership often involves managing paradoxes, where conflicting priorities must coexist. A critical paradox I face is the tension between the need to build more roads and the obligation to construct better roads. While there is pressure to enhance connectivity quickly, professional integrity demands that we prioritize safety, durability, and cost-effectiveness.

To address this paradox, I will adopt a balanced approach:

• Phased development: Implementing full standards for critical sections while gradually improving others as funding permits.
• Life Cycle cost Analysis: Demonstrating to policymakers that investing in quality upfront can lead to long-term savings.
• Community Engagement: Involving stakeholders in understanding the consequences of poor construction practices to align expectations with sustainable approaches.

Navigating this paradox requires a commitment to honesty, data-driven decision-making, and ethical reasoning.

7.     Conclusion

The challenges facing Bhutan's infrastructure extend beyond technical issues; they highlight the need for improved moral leadership, adaptive thinking, and cultural transformation. By leveraging the Moral DNA and RIGHT frameworks, I can ensure that my decisions align with both professional standards and ethical values.

My shift from compliance-based to adaptive, integrity-driven leadership will shape my decision-making and influence the broader infrastructure governance landscape in Bhutan. By fostering a supportive environment for learning and ethical dialogue, leading cultural change toward quality and innovation, and addressing contradictions with clarity, I aim to build not just roads but also trust, accountability, and resilience within our systems.

Ultimately, leadership transcends infrastructure development; it encompasses the cultivation of integrity, creativity, and moral purpose in every endeavor. As I embark on this journey, I aspire to ensure that each kilometer of road constructed symbolizes not only progress but also a commitment to ethical principles and sustainable practices.

Submitted by:

Sangay Duba

Executive Engineer 

Cohort 22

EID: 20150105089

Department of Surface Transport

Key Insights from the Farm Road Maintenance Manual Training for Local Government Officials

It was an honor and a privilege to engage with nearly all Local Government (LG) officials during the training on the Farm Road Maintenance Manual, 2023 developed by the Department of Surface Transport. The training was conducted across various regions, starting with the western districts, followed by the southern and eastern regions. Participants included all those involved in farm road maintenance—village Tshogpas, Gups, Mangmis, Geog and Dzongkhag Engineers, and even senior officials such as Dzongrabs and Drungpas. In certain cases, Geog Administrative Officers represented their respective Geogs. This ensured that the intended target group, for whom the manual was designed as a technical and advisory tool, was successfully reached.

Delivering the training was physically demanding, requiring long hours of standing and explaining the significance of farm road maintenance. However, the accomplishment lies in equipping LG officials with the necessary knowledge and skills to effectively manage and maintain these crucial roads.

Beyond sharing knowledge, the training also provided me with valuable insights into the real, grassroots challenges faced in farm road maintenance. It reinforced the fact that much remains to be done to achieve the shared objective of keeping these roads in good condition. Well-maintained farm roads ultimately contribute to the socio-economic development of our communities, ensuring better accessibility and connectivity.

A well-functioning farm road network will also play a crucial role in supporting the Gelephu Mindfulness City, facilitating the transportation of local produce and fostering collective growth at individual, community, and national levels. This highlights the importance of farm roads and the timeliness of the training.

Lhuentse, Trashigang & Bumthang Dzongkhag

Key Takeaways from the Training

• Mindset of Local Leaders and Political Influence 

It was surprising to hear some local leaders express regret that the training came too late, as they only had one to two years left in their term. However, the duration of their tenure should not be the focus—what truly matters is that everyone involved in farm road maintenance understands its importance and best practices. Local leaders, past and present, should take ownership of farm roads as custodians of their communities. The mindset of local leaders significantly impacts grassroots development, governance, and public welfare.

• Need for Minimum Educational Qualifications for Local Leaders 

With decentralization embedded in the Constitution, ensuring that local leaders meet a minimum educational requirement has become essential. Given their role in planning, budgeting, and implementing numerous developmental activities, it would be beneficial to mandate at least a Class 12 or Bachelor’s degree qualification. This would not only improve efficiency but also enhance the execution of plans and priorities within local governance. Leaders with a strong educational background are more likely to foster inclusive, transparent, and development-focused governance, driving sustainable progress. In contrast, those with a short-term or self-serving approach may hinder long-term community welfare.

Pema Gatshel & Samdrup Jongkhag Dzongkhag

• Budget Constraints and Financial Challenges 
• Inadequate budgeting and budget constraints limit the effective execution of FR projects.
• Non-uniform budget allocations create disparities in project implementation.
• Low priority for maintenance activities leads to rapid road deterioration.
• The rigidity of budget allocation guidelines restricts flexibility in addressing urgent needs.
• Lack of Ownership & Ineffective Road User Groups (RUGs)
• Weak community and institutional ownership lead to poor maintenance of roads.
• Ineffective or absent RUGs reduce local participation in road upkeep.
• The lack of incentives for RUGs affects their engagement in maintenance work.
• Drainage Issues & Climate Change Effects
• Inadequate or poorly designed cross-drainages cause waterlogging and accelerate road deterioration.
• Heavy rainfall and extreme weather events worsen the impact of poor drainage.
• Climate-resilient features are not adequately incorporated in road construction.

Dagana, Tsirang & Samtse Dzongkhag

• Geographical & Terrain Challenges
• Rugged and difficult terrain makes Farm Road construction and maintenance challenging.
• Many Farm Roads exceed the permissible design gradient, leading to faster deterioration.
• Some roads pass through marshy locations, requiring special engineering solutions.
• Land Acquisition & Social Clearance Issues 
• Delays in obtaining social clearance hinder timely project execution.
• Compensation issues arise when Farm Road alignment passes through private lands.
• Public grievances related to land acquisition impact project acceptance.

Paro, Haa, Chukha & Thimphu Dzongkhag

• Procurement & Machinery Availability Challenges 
• Machinery required for road construction and maintenance is often unavailable during critical times.
• Centralized procurement processes at the Dzongkhag level delay machinery allocation.
• Disparities in hiring rates for equipment create inconsistencies in restoration works execution.
• Lack of Technical Expertise & Skilled Personnel 
• Local government officials often lack the technical expertise needed for road construction and maintenance.
• Shortages of engineers and technical personnel affect project planning and execution.
• Limited contract management and administration skills lead to inefficiencies.

Punakha, Gasa, Sarpang, Wangdue Dzongkhag

• Planning & Monitoring Deficiencies 
• Inadequate feasibility studies result in inefficient road alignments and resource utilization.
• A lack of proper monitoring leads to substandard construction quality.
• Poor coordination between local government and technical personnel delays decision-making.
• Bureaucratic & Administrative Challenges 
• Lengthy procurement processes cause delays in project implementation.
• A rigid reporting hierarchy for monsoon damage slows down repair works.
• Political interference sometimes affects the prioritization of FR projects.

Participants sharing issues & challenges

• Poor Quality of Construction & Maintenance 
• Improper design specifications and poor construction quality reduce the lifespan of Farm Roads.
• Lack of adherence to design standards and construction guidelines leads to frequent road failures.
• Coordination issues in constructing different pavement layers result in uneven road surfaces.
• Mismatch between Policies & Ground Realities 
• Existing policies and design standards do not always align with practical field conditions.
• Localized challenges require more flexible approaches, which are often restricted by rigid policies.
• The gap between public expectations and policy priorities causes dissatisfaction.

Conveying my messages 

Acknowledgement

The journey of my study was filled with recurrent question of ‘Why CST, why not Australia or other countries for masters?’, from anyone who I informed that I am on study leave to College of Science and Technology. I considered this on positive note, as the lone civil servant in the first batch of the Masters in Construction Management course, I was dedicated to upgrading my knowledge and abilities in the local context to find solutions to problems unique to Bhutan. Self-tenacity overruled all barriers along the journey of this study.

I would like to express my heartfelt gratitude to Royal Government of Bhutan, College of Science and Technology and Department of Roads for the opportunity to pursue masters my graduate studies.

It is virtually impossible to carry out research of any scale without the cooperation and support of those who are not only generous in time, but also consciously choose to help in any possible ways. I would like to place on record my sincere gratitude to my supervisor, Dr. Chimi Wangmo for reading the various drafts of the dissertation and for the suggestions and feedback. Your guidance and insights throughout the dissertation was informative and inspiring. I am also very grateful for the autonomy and scope to think my own thoughts and follow my logical instincts.

Sincere gratitude to Dr. Kazuhiro Marumatsu, Assistant Professor, Electronics & Communication Engineering Department, who despite his busy schedules, provided value guidance and mentorship in the development of proof of concept model. Your time has had a great impact on the research study. Thanks to Madam Karma Kelzang Yuden for your time for editing the draft of the chapter on proof of concept. 

I would also like to acknowledge the time and expert opinion of interviewees mostly heads of the organizations, who made themselves available for the interview, despite their very busy schedule. Their inputs and insights made this thesis possible.

I would also like to thank the Research Supervisory Committee for their valuable feedback and critical comments that helped to fine tune my thesis.

Finally, my endearing and enduring gratefulness to my family, who have remained the bedrock of my study.

རྩོམ་རྗོད་ཚིག་བདུན་མ། - ༦

བདེ་བ་དེན་ཅུག་སེམས་ཅན་རྣམས།།

ནད་མེད་སྡུག་མེད་བདེ་སྐྱིད་སྨྱོང་།།

སྨོན་ལམ་ཏབ་པའི་རྟེན་འབྲེལ་ལ།།

ཚེ་ལུང་གནས་ལ་གནས་སྐོར་ནས།།

བདག་གི་ནུ་གཅུང་ལོ་གསུམ་ལ།།

སྐུན་མཚམས་བཅད་པའི་རྟེན་འབྲེལ་གྱི།

འགྲོ་དྲུག་སེམས་ཅན་རྣམས་ལ་བདེ་བར་ཤོག།

འགྲོ་ལམ་ཟམ།

ཚེ་ལུང་གནས།

ལྷ་ཁང་།

ཟམ།