Burma's Ethnic Challenge

transnational institute Burma Policy Briefing Nr 12 October 2013 Burma’s Ethnic Challenge: From Aspirations to Solutions The present time of political transition in Recommendations Burma/Myanmar1 is the most hopeful in terms of aspirations and potential since inde- To end the legacy of state failure, the pendence from Great Britain in 1948. Many present time of national transition must outcomes, however, remain possible. There is be used for inclusive solutions that involve still no inclusive political framework or na- all peoples of Burma. The most important tional consensus that guarantees future peace, changes in national politics have started in democracy and progress for all citizens. many decades. Now all sides have to halt military operations and engage in socio- As in any troubled country in transition, political dialogue that includes government, it appears good strategy to concentrate on military, ethnic, political and civil society the positives. Certainly, this has been the representatives. response of the international community towards the quasi-civilian government of Political agreements will be essential to President Thein Sein that assumed office in achieve lasting peace, democracy and March 2011 from its military predecessor, ethnic rights. National reconciliation and the State Peace and Development Council equality must be the common aim. The (SPDC). As the doors to the country opened, divisive tradition of different agreements and international perceptions of Burma’s govern- processes with different ethnic and political ment rapidly transformed from pariah status groups must end. in the West to a pro-democracy model for the developing world. In the past eight months, In building peace and democracy, people- Thein Sein – a former general and SPDC centred and pro-poor economic reforms leader – has been welcomed as a state guest to are vital. Land-grabbing must halt, and the USA, Australia, UK, France, Norway and development programmes should be other European countries. appropriate, sustainable and undertaken with the consent of the local peoples. Of key importance, the start of the release of Humanitarian aid should be prioritized for political prisoners, the relaxation of censor- the most needy and vulnerable communities ship, and the admission of Aung San Suu Kyi and not become a source of political and National League for Democracy (NLD) advantage or division. As peace develops, candidates to parliament have instigated internally displaced persons and refugees hopes that the new political system might be must be supported to return to their places of made to work. At the same time, new cease- origin and to rebuild divided societies in the fire agreements with a majority of the armed ethnic borderlands. ethnic opposition groups in the country’s borderlands have furthered expectations that The international community must play real reform could be underway. Equally strik- a neutral and supportive role in the ing, economic change has fostered excitement achievement of peace and democracy. that, after decades of conflict and humanitar- National reform is at an early stage, and it is ian suffering, Burma could be on the brink vital that ill-planned strategies or investments of an economic boom on one of Asia’s most do not perpetuate political failures and ethnic strategic but impoverished crossroads. injustice. Burma Policy Briefing 1 Such optimism and markers of reform by elected parliament in five decades, a crucial no means suggest that distressing events or stage has been reached. With the next general regressive trends should be overlooked. After election not due until 2015, there are growing decades of political and ethnic conflict, the questions about reform direction and mo- sentiment is widespread that the present time mentum. Government officials seek to project of state transition must be built upon to truly the present political, ethnic and economic deliver peace and inclusive socio-political re- difficulties as teething problems that will dis- form for all Burma’s peoples. In a break from sipate over time. In reality, history has long the repressive malaise under military rule, a warned that their resolution is integral to new sense of energy and openness has begun future peace and democracy in the country. in parts of the country. In particular, for domestic and international confidence to build, two key issues remain to After two years of the Thein Sein govern- be resolved: how the new political system will ment, however, a cautious mood is also be- evolve and how the military’s control over ginning to set in. There have been too many politics will devolve. disappointments and injustices in Burma’s past for simple optimism now. Despite many For this reason, while political manoeuvrings promises of reform, progressive change for and ethnic ceasefire talks continue, it is es- many citizens has either not happened or is sential that state failure and national divi- on the drawing boards and yet to be imple- sions do not become sustained under a new mented. incarnation of military-backed government. Important steps have been made in national For the moment, there are different centres reconciliation during the past two years. of authority in national politics between the But promises and ceremonies will never be president, government, Union Solidarity and enough. The long-standing aspirations of Development Party (USDP), armed forces Burma’s peoples for peace and justice must and new legislative assemblies, while mili- find solutions during the present time of tary officers and units still dominate many national transition. This can only be achieved aspects of daily life in the field. Meanwhile through transparent and inclusive processes many citizens continue to feel excluded from that truly address long-standing political and political representation and influence at both ethnic needs. Challenges must be faced up to the community and national levels where the – not downplayed or ignored. NLD and ethnic opposition parties are strug- gling to make impact. In essence, political change remains top-down after five decades Warnings from history of military rule, and democratic and ethnic reforms are still in their infancy. A lack of political experience or knowledge is often blamed for Burma’s difficulties in Against this unsettled backdrop, regressive national reform. In reality, the country has trends have continued. These include eco- one of the most contested ethnic and politi- nomic inequalities, land-grabbing, continued cal histories of all post-colonial territories in militarization and ethnic conflict2 – the latter, Asia. In a land of obvious natural and hu- most especially in the Kachin and Shan states man resource potential, the present time of but also Rakhine state and other parts of political transition is far from the first time the country where violent Buddhist-Muslim that hopes have been raised of a stable and communalism has taken place.3 A further prosperous future. There have been four pre- 240,000 civilians have been internally dis- vious occasions of national expectation and placed from their homes since the Thein Sein dialogue. On each occasion, however, divi- government assumed power4; loss of life and sion and exclusion continued, providing the humanitarian suffering have continued; and, backdrop under which internal conflicts and although confrontations have lately reduced, military-dominated government developed there seem no immediate solutions to po- and ultimately set in. litical challenges that, in many cases, have existed since independence. The consequences have been deep and must not be repeated. After over six decades of Thus, halfway through the life of Burma’s first violence and political impasse, crises exist in 2 Burma Policy Briefing every area of national life, from the economy Tensions, however, were rising in other parts and environment to health and education. of the country, especially among Shans and But among many failings, the marginalisa- Kachins – the latter even more after Prime tion and suppression of different political Minister U Nu promoted Buddhism as the and ethnic interests have become the most official state religion (most Kachins are fundamental in a country where minority Christians). The status of Buddhism and peoples make up an estimated third of the religion is not a new or uncontested issue in 60 million population. Nationwide peace Burma. Finally in March 1962, as U Nu made and inclusive democracy have yet to be ready to address the federal seminar, Gen. Ne established. Win seized power in a military coup, ending Burma’s brief experience with parliamentary The first lost opportunity in political transi- democracy. “Federalism is impossible,” he tion was at independence in 1948. National said. “It will destroy the Union.”7 hopes of a co-operative future had been raised by the 1947 Panglong conference A third opportunity for national political where ethnic principles for the new Union reform did briefly appear to occur under were agreed. But with key parties already Gen. Ne Win’s “Burmese Way to Socialism” outside the new political system, the 1947 (1962-88). Despite the arrest of politicians constitution was riddled with inconsistencies and violent suppression of student protests, and never sufficient to bind the new Union a nationwide Peace Parley took place in Ran- together.5 The new parliamentary system was goon during 1963-64 between the military federal in intention but not in name. As so- government and different communist and cialist and communist supporters battled for ethnic forces. Socialist and non-aligned poli- control of government, armed conflict swept tics were then popular in the post-colonial across the country to include Karen, Karenni, world, and opposition groups were keen to Mon, Rakhine and other ethnic groups who hear the new government’s views. But once felt marginalised and took up arms to press the totalitarian nature of Ne Win’s ambi- for ethnic rights and self-determination. tions became clear, armed resistance quickly Thousands of lives were lost, the economy resumed.

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