July 7, 2025
THIMPHU – Bhutan has drawn unexpected global attention following the International Labour Organisation’s (ILO) latest global working hours report, which ranks the country among those with the longest average working hours in 2024.
Citing data from Bhutan’s 2022 Labour Force Survey (LFS), the report states that employed individuals in the country work an average of 54.4 hours per week, with 61 percent working 49 hours or more. This ranking has triggered national debate, particularly in light of Bhutan’s global image as a proponent of Gross National Happiness (GNH).
The contrast is stark. Citizens and observers alike are questioning how Bhutan, a country deeply associated with holistic well-being, is ranked worst than other nations often criticised for overwork, such as Japan and South Korea. The question on many minds: how can countries with reputations for demanding work cultures rank better than Bhutan?
Disparities and data inconsistencies
Critics have raised concerns about the validity of the ILO’s global rankings, citing discrepancies in data timelines. Bhutan’s data is drawn from 2022, while countries like Japan, Germany, and France — which reported lower working hours — used latest or more lenient datasets, in some cases from as early as 2019. This undermines the fairness of direct international comparisons. The Ministry of Industry, Commerce and Employment (MoICE) acknowledged this issue but noted that Bhutan has not challenged the ILO ranking, as the country is not yet a full member of the organisation. A directive from the Ministry of Foreign Affairs and External Trade in 2024 restricted official engagement with the ILO until membership is secured.
In previous years, the Department of Labour (DoL), acting as the ILO Observer representative, reviewed the annual ILO questionnaire related to labour data. The ILO itself stresses the importance of timely and accurate data submission, stating, “The timely, complete and accurate submission of ILO member States’ labour market statistics to this annual inquiry is therefore essential for the continued international dissemination of your labour market data.”
MoICE Minister Namgyal Dorji explained: “Due to our current observer status, we lack access to technical assistance. As a result, we do not currently benefit from direct technical support on internationally harmonised data collection and reporting standards.”
He said that Bhutan’s figures are compiled with limited support, which can skew how the country is perceived internationally. However, he added that the focus should remain on addressing domestic labour market issues rather than chasing global rankings.
Bhutan’s Labour and Employment Act (LEA) 2007 allows a maximum of 48 regular working hours per week, plus up to 12 hours of overtime if fairly compensated — aligning with ILO standards. Therefore, the reported national average still falls within legal limits.
Nevertheless, Lyonpo said that working hour norms vary significantly across countries, shaped by different economic and cultural contexts. “Direct international comparisons may not always provide a fully accurate reflection of Bhutan’s specific realities,” he said.
Situation at home
The 2024 Labour Force Report presents a more updated picture, showing a national average of 50.26 working hours per week, with 43.34 percent of workers logging more than 49 hours — lower than the 2022 figures cited by the ILO.
Interestingly, in Bhutan, the agriculture sector reports the highest working hours. However, most agricultural workers are self-employed, meaning they are less likely to be exploited compared to employees in formal industry or service sectors.
Still, long hours remain a reality, especially in the informal economy and private sector. In 2024–25, the DoL handled around 50 complaints in the hospitality sector alone related to unpaid overtime and unlawful terminations. Officials admit these are likely under-reported figures.
A DoL official said that while monitoring in the civil service and corporate sectors is manageable, enforcement becomes difficult in private enterprises due to limited inspection capacity and workers’ fear of reprisal.
To address this, the DoL is planning a detailed study on wages and working hours, with proposals to introduce digital payment and attendance systems to better track employment conditions. Lyonpo said the department aims to strike a balance between protecting workers’ rights and maintaining a healthy business environment.
Despite these efforts, accurately measuring work hours remains a challenge. Formal schedules may state 9:00 a.m. to 5:00 p.m., but real work patterns often include breaks, personal errands, or overtime. Some employees reportedly work up to 80 hours a week, according to the LFS.
Why do people work so much?
The root cause is simple: low wages.
Many Bhutanese work extended hours not out of ambition, but necessity. The national minimum wage of Nu 3,750 has remained unchanged since 2017, despite rising living costs.
A DoL official explained that as long as employers comply with the minimum wage, the department has limited authority. Although the DoL recommended revising the minimum wage in 2017, the government postponed action due to fears of economic disruption. Only the wage rates for the national workforce were revised in 2023.
One former hotel worker in Paro shared that she earned a basic salary of Nu 8,000, insufficient to sustain her during off-seasons. “To live like this was impossible in Bhutan,” she said. “I left the hotel industry for good and moved to Australia, where I am well paid and can support my family back home.”
Another worker in the hospitality sector said that though overtime increased her income, it came at the cost of personal time and health.
Human cost: Health and burnout
The ILO and World Health Organisation (WHO) have long warned of the health risks linked to excessive working hours — including mental health issues, cardiovascular diseases, and premature death.
Health Minister Tandin Wangchuk acknowledged that these concerns apply in Bhutan as well, noting a rise in stress and burnout.
To promote employee well-being, the Ministry of Health, in collaboration with the RCSC and other agencies, has introduced workplace wellness programmes and nationwide health screenings, reaching over 200,000 adults this year. Activities include marathons, Zumba, and traditional mindfulness practices like Sorig-Zhiney.
The ministry is also working through district-based task forces to develop localised plans for preventing lifestyle diseases and improving well-being.
Long hours, low productivity
Despite long hours, Bhutan’s labour productivity remains low. The Royal Monetary Authority’s 2024 report shows that average hourly earnings in the service sector declined from Nu 361 in 2022 to Nu 333 in 2023. Workers in international agencies earned the most; those in domestic household jobs earned the least.
Moreover, 52 percent of Bhutan’s workforce lacks essential skills — especially in construction, manufacturing, tourism, and energy.
Finance Minister Lekey Dorji warned that longer hours do not equate to greater output. “Working smarter, not longer, is what drives real productivity,” he said. He added that fatigue and burnout ultimately reduce national efficiency.
The 13th Plan focuses on boosting productivity through skill development, institutional reforms, and formalising informal sectors. While the finance ministry does not directly oversee employment programs, it facilitates job creation through fiscal policy, donor coordination, and strategic investment in employment-rich sectors.
“Future productivity gains will depend on skills, innovation, and smarter work organisation — not longer working hours,” Lyonpo said.