Why does implementation lag the Royal articulation by a decade?

Because the Crown operates on a longer time horizon than any other Bhutanese institution. No Prime Minister has the standing to commit the country to a fifteen-year hospital project; the political-government cycle is too short. No Minister has the standing to commit to a forty-year city build-out. So the Crown announces; the apparatus catches up. The catching-up takes a decade because the legislative, regulatory, ministerial, and staffing layers that operationalise the announcement all run on shorter cycles than the announcement itself.