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Decentralization in Myanmar: the Evolution of the Development Affairs Organization (Dao)

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Decentralization in Myanmar: the Evolution of the Development Affairs Organization (Dao) DECENTRALIZATION IN MYANMAR: THE EVOLUTION OF THE DEVELOPMENT AFFAIRS ORGANIZATION (DAO) A Research Paper Presented to the Faculty of the Graduate School of Cornell University in Partial Fulfillment of the Requirements for the Degree of Master of Regional Planning by Dominic Mathew December 2018 © 2018, Dominic Mathew ABSTRACT This paper analyzes the work and role of the Development Affairs Organization (DAO) introduced in the local governance system in Myanmar through the 2008 Constitution. It traces its evolution and looks at the functioning and efficacy of the officials, the DAOs, through the analytical lens proposed by development economist, Judith Tendler in her path breaking book (1997), Good Government in the Tropics. My methods of analysis were mainly qualitative, built on field surveys, focus group discussions and interviews with different stakeholders. The DAOs are under the State and Region governments with 31 urban functions under their mandate but have no reporting ministry at the Union level unlike the Financial and Revenue Planning ministry or Agriculture ministries. In a country without a third tier of governance, the DAOs are representative of the state and are a major basic services provider. I find DAOs to be functioning as the face of the state at the local level, even as they face many limitations under the GAD (General Administration Department) and cannot fully provide the ‘missing link’ between the central state and municipal governance in Myanmar. BIOGRAPHICAL SKETCH In a lot of ways my life mirrors the words of Chicago Tribune journalist Mary Schmich, turned into a gentle narration by Australian director, Baz Luhrmann, in the ‘Sunscreen Song’. A few lines that resonate, “Don't feel guilty if you don't know what you want to do with your life….the most interesting people I know didn't know at 22 what they wanted to do with their lives, some of the most interesting 40-year olds I know, still don't.” I have meandered my way from a bachelor’s degree in architecture to working in urban design, sustainability, transportation and environmental finance. I have picked, examined and embedded various experiences from these journeys and in a twist of proverbial fate do hope to combine these interests someday. This paper reflects my interest in peace-conflict and planning, the DAOs are a by-product of the military rule in Myanmar, but more importantly embed in them characteristics from the time of the monarchy in Burma. iii ACKNOWLEDGEMENTS This paper would not have been possible without the help of many wonderful individuals over the two years I was here in Ithaca. I am extremely grateful to them for their time, guidance and patience. I approached Professor Neema Kudva trying to explore the intersection of planning and conflict. Having been a witness to the long-lasting effects of violent religious conflict in New Delhi, Mumbai and Ahmedabad, and with prior experience in Jharkhand’s Naxal belt (which former Indian Prime Minister termed as the biggest threat to internal security), I was very curious about this relation. Her immediate feedback and guidance throughout the process has been amazing and helpful as I figure out how to put my thoughts into words. Professor Matthew Evangelista’s weekly Thursday talks on conflict through the Judith Reppy Institute for Peace and Conflict Studies at Cornell University helped me immensely to situate my interest within the broad field of conflict and peace studies. His feedback and continuous encouragement to add different perspectives was very helpful. In particular, I would like to thank Professor Tamara Loos whose class Cambodge gave me my first glimpse into Southeast Asia. Reading a book per week for her discussion styled class helped me understand not just Cambodia, but Myanmar in the light of its ties to other southeast Asian countries. All this work was not conceivable without my colleagues at The Asia Foundation; Ma Ei Ei The, Ko Tun Thet Aung, James Owen and Matthew Arnold, who helped me figure the country and the DAOs as well as Lachlan and Arkar at the Renaissance Institute who helped me understand the DAO’s user fees and taxes better. Finally, this paper would not have been possible without financial assistance from the Einaudi Center for International Learning, the South East Asia Program and the Department of City and Regional Planning at Cornell University. iv TABLE OF CONTENTS BIOGRAPHICAL SKETCH .............................................................................................. III ACKNOWLEDGEMENTS ................................................................................................ IV TABLE OF CONTENTS ..................................................................................................... V LIST OF FIGURES ............................................................................................................. VI LIST OF TABLES ............................................................................................................. VII LIST OF ABBREVIATIONS .......................................................................................... VIII INTRODUCTION ................................................................................................................. 1 MOTIVATION ............................................................................................................................................ 1 RESEARCH METHOD ............................................................................................................................... 4 HISTORY OF MYANMAR AS A NATION ............................................................................................... 6 BACKGROUND OF CHANGES IN GOVERNANCE IN MYANMAR ..................................................... 11 A ROADMAP TO THE PAPER ................................................................................................................. 15 HISTORICAL CONTEXT ................................................................................................. 18 POST-INDEPENDENCE AND THE 1948 CONSTITUTION .................................................................. 19 THE TATMADAW LED CONSTITUTION IN 1974 ............................................................................... 27 THE NEW 2008 CONSTITUTION.......................................................................................................... 30 PRESENT FORM OF GOVERNANCE IN MYANMAR ............................................... 36 DEVELOPMENT AFFAIRS ORGANIZATION ....................................................................................... 47 UNDERSTANDING THE ROLE OF THE DAO: THE FACE OF THE STATE........ 54 STRONG SENSE OF MISSION AND LEGITIMACY BESTOWED BY THE STATE ............................... 56 UNUSUAL DEDICATION AMONGST THE IMPLEMENTATION AGENCY ......................................... 66 GREATER DISCRETION AND FLEXIBILITY TO MEET THE CLIENT’S NEEDS ................................ 72 ACCOUNTABILITY TOWARDS CITIZENS ............................................................................................ 75 CONCLUSION .................................................................................................................... 78 APPENDIX ........................................................................................................................... 80 BIBLIOGRAPHY ................................................................................................................ 84 v LIST OF FIGURES FIGURE 1: PHASES THAT MYANMAR WENT THROUGH FROM THE 9TH CENTURY TILL 2018 ..... 10 FIGURE 2: TIMELINE OF THE 1948, 1974 AND 2008 CONSTITUTIONS IN MYANMAR ................ 19 FIGURE 3: STRUCTURE OF THE 1948 BURMESE GOVERNANCE SYSTEM ................................... 20 FIGURE 4: HIERARCHY AND NUMBER OF TERRITORIAL DIVISIONS AND THEIR HEADS IN 1948 . 20 FIGURE 5: POLITICAL MAP OF BURMA IN 1948 ....................................................................... 21 FIGURE 6: HIERARCHY OF COUNCILS AT EACH ADMINISTRATIVE LEVEL AS PER THE 1948 CONSTITUTION ................................................................................................... 23 FIGURE 7: RICE EXPORTS IN MYANMAR FROM 1961- 2012 ..................................................... 25 FIGURE 8: BASIC REVENUE STRUCTURE DURING THE PYIDAWTHA PLAN (1952-56) ............... 26 FIGURE 9: GOVERNANCE STRUCTURE AFTER THE 1974 CONSTITUTION .................................. 28 FIGURE 10: FACTORS LEADING TO THE ‘ROADMAP TO DEMOCRACY ...................................... 32 FIGURE 11: THE GOVERNANCE STRUCTURE ACCORDING TO THE 2008 CONSTITUTION ........... 34 FIGURE 12: HIERARCHY, NUMBER AND HEADS OF TERRITORIAL DIVISIONS BASED ON 2008 CONSTITUTION ................................................................................................... 37 FIGURE 13: ORGANIZATION AND FLOW OF MINISTRIES IN THE UNION AND STATE/REGION GOVERNMENTS .................................................................................................. 38 FIGURE 14: POLITICAL MAP OF MYANMAR AS PER THE 2008 CONSTITUTION ......................... 39 FIGURE 15: GRAPHICAL REPRESENTATION OF THE LEGISLATURE............................................ 40 FIGURE 16: STRUCTURE OF UNION TRANSFERS TO STATE/REGION ......................................... 45 FIGURE 17: UNION TRANSFERS TO STATE/REGIONS, 2011-16 ................................................ 46 FIGURE 18: AN EVOLUTION OF THE DEVELOPMENT AFFAIRS ORGANIZATION ........................ 49 FIGURE 19: HIERARCHY
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