Issue Brief # 222

Innovative Research | Independent Analysis | Informed Opinion

Rudderless & Drowning in Tears The Rohingyas of

Roomana Hukil & Nayantara Shaunik Institute of Peace and Conflict Studies

Within Myanmar there appears to be a And what has been the response of the decisive state policy designed in the international community so far? Will the interest of the government, military junta, Rohingyas continue to remain as, what Buddhist Rakhine, nationalist parties and has been termed by the UN - one of the other ethnical factions. With the 1978 most persecuted minorities in the world? ‘ethnic cleansing’ propaganda targeted against the Rohingya community, I Myanmar, has witnessed one of the most The Boat People: Rudderless & devastated large-scale sectarian strife’s in Drowning in Tears history. Albeit, political pressure, Myanmar, till today, maintains its ideological fancy in The Rohingyas identify themselves as the its inhumane treatment exhibited towards native settlers of Myanmar backed to the the Rohingya. This national venture whilst 7th century and disregard all literature supported by other Buddhist nations that propagates them as illegal migrants. predominantly of Burman and Rakhine For them, they are the native settlers who majority groups has left the Rohingya are being persecuted due to their varying community a dismantled lot. However, it linguistic and cultural traits. was only until 2009, when a worldwide coverage of the plight of the Rohingya The Rohingya highlight their grievances by vehemently spurred the international advocating the atrocities directed community in providing immediate towards them. They re-emphasize that reprieve to the issue. Within the larger they have been clustered into forced framework of social dynamics in labour with their lands confiscated by the Myanmar, this brief focuses on the ethnic Myanmarese Army. Their freedom of conflict affecting movement restricted; impermissible marriage within their community without What has been the internal perceptions of prior official approval that is further the within Myanmar? accustomed with a heavy fee. With no

Southeast Asia Research Programme (SEARP)

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access to higher education or accommodation of vulnerable employment opportunities, 20% of individuals. Rohingya are malnourished wherein their life enhancing options are extremely The Rohingya identify the conflict as a fatal. Due to their statelessness, most massive human rights violation. They countries are reluctant to consider the believe the claims of the state Rohingyas as refugees and often label government and other pre-dominant them as economic migrants. Moreover, Buddhist factions are unsubstantial as they are quite frequently forcibly pushed they have birthrights in the state. Urging back by the neighbouring states, being for justice at the earliest, the Rohingya considered as socio-economic and seek support from regional organizations security threats, as and when they as well such as the OIC, ASEAN etc to navigate across seas seeking refuge in help provide them with basic sustenance these countries. rights from within the state. They question the Muslim solidarity when it comes to For the Rohingya, the conflict is not a issues and perpetual conflicting violence mere struggle to reduce the widened administered against other Middle Eastern ethnic disparity gap, there is mounting states or even Non-Middle Eastern Muslim evidence that suggests the government states. The Rohingya languish their Muslim opposes the community due to the counterparts of not providing significant perceived threat of an economical-strain heed to their plight considering them as propaganda which has directed further followers of as well. Juxtaposing revulsion towards the Rohingya populace. such reasoning to their varying linguistic While the Rohingya fear the government characteristic. of eventually propagating a human genocide against them, thus, wiping off The Rohingya issue has historical their core existence in the near future. foundations, but it has only received Therefore, they emphasize an urgency of global attention in the recent years, international humanitarian intervention whenever it has contributed towards sought with an aim to promoting destabilizing either existing or emerging awareness among cross-transnational power configurations in the region. The borders about their current ordeal. interest in the new influx of Rohingya into Although, the international media in 2012, , a trend that continues to played a crucial role in garnering date, is connected to the broader politics attention to the grave plight of the of Burma’s democratic ‘opening’. The Rohingya, it is generally skewed towards new refugees are fleeing bloody clashes emphasizing the perceived between the Muslim Rohingya and unsympathetic role played by Rakhine Buddhists in Burma’s remote but Bangladesh and Thailand in turning back resource-rich Rakhine State. Their genuine refugees, and criticizes the desperate escape from the present country’s overall approach towards the circumstances depicts their anxiety in the hope of a better future. Armed gangs from both communities have killed dozens, burned down several villages, Due to their statelessness, most countries are and displaced tens of thousands of reluctant to consider the Rohingyas as refugees people. and often label them as economic migrants. The Rohingya plight has embarrassed the Moreover, they are quite frequently forcibly state and the international community pushed back by the neighbouring states, being who pin for a seamless transition of Myanmar to democracy through the considered as socio-economic and security threats, reforms being pushed forward by as and when they navigate across seas seeking Burmese president Thein Sein and refuge in these countries. 2

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supported by . Inside Burma, Given these circumstances, it is More disturbing is the fact that even some little wonder that the international pro-democracy dissidents, refuse to obligation to protect the Rohingya is acknowledge the Rohingya as compatriots. often sidelined in favour of economic and geo-strategic considerations. A timely Pro-democracy organisations view the look to help us awaken to the reality of Rohingya not as a Burmese ethnic group, our stupor and apathy towards the and that the root cause of the violence largely Rohingya voices is essential. But comes from across the border and foreign unfortunately, the impetus for humanitarian action often comes more countries. from the dictates of realpolitik than it does from the state itself. they voted for the military regime’s II representatives. Citizenship, however, is Internal Perspectives: The State still not restored. The plight of the and Other Majority-Minority Rohingya has yet to be made an integral Groups part of any reconciliation program involving ethnic groups, which is a What has happened recently is just more dismaying warning sign. of a symptom of a long history of More disturbing is the fact that even some discriminatory treatment toward the pro-democracy dissidents from Rohingya. With the 1982 Citizenship Law, Myanmar’s ethnic Burman majority, refuse the then military ruler stripped the to acknowledge the Rohingya as Rohingya of their citizenship. The compatriots. Pro-democracy government, particularly the military organisations are of the view that the junta, has handled this situation badly for Rohingya are not a Burmese ethnic decades, encouraging a perception that group, and that the root cause of the the Rohingya are stateless, and making violence largely comes from across the little effort to integrate them or resolve this border and foreign countries. Their problem in a sustainable way. nationalist stance further adds that Aside from being stateless, the Rohingya countries that criticise Myanmar for its are subject to a rule, embedded in refusal to recognise the Rohingya should marriage licenses, that they are only respect the country’s sovereignty. They permitted to have two children. They lack are not alone in this position. access to health care, food, and Thein Sein has said that the violence in education and are subject to forced Rakhine, known as Arakan State in British labour and travel restrictions. The religious colonial times, was fuelled by dimension of the Rohingya problem is also dissatisfaction harboured by different particularly troubling, since the military religious and ethnic groups and the desire junta over the past 20 years particularly for vengeance, warning that it could emphasised Buddhism as the religion of scuttle his reform agenda which is key to the 'true' Burmese people. lifting of international sanctions. Thein The current government of President Thein Sein's reform plans include negotiations Sein, which has been lauded for with armed ethnic groups fighting for implementing political and economic autonomy. However, even the new reforms over the last year, has also come democratic reforms have not altered the under criticism for continuing the junta's perception of the Rohingya with President discriminatory policies towards the Thein Sein suggesting in July 2012, in the Rohingya. The Rohingya were given wake of this violence, that he would not voting rights in Myanmar’s landmark 2010 recognise the Rohingya or their rights and elections, with the promise of citizenship if wished to turn over the entire ethnic 3

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group to the UNHCR. Buddhist monks, Rohingya. Curiously, the move came contrary to the teachings of the Buddha, ahead of US President 's staged anti-Rohingya marches in historic visit to Burma, the first by a sitting September to declare their support for American president. the president’s proposal. Human rights activist, head of In mid-June 2012, in the name of stopping and NLD leader, Aung San Suu Kyi, has such violence, the government declared also been criticised for failing to speak a state of emergency. But it used its out. Aung San Suu Kyi has taken a neutral border security force to burn houses, kill stance, despite earlier pleas from the EU men and evict the Rohingya from their to take a stand on the issue. The villages. In July 2012, the Myanmar parliament’s Rule of Law Committee - government did not include the Rohingya chaired by Aung San Suu Kyi - and ethnic minority group - classified as stateless leaders to discuss steps to prevent new Bengali Muslims from Bangladesh since clashes between Muslim Rohingya and 1982 - on the government's list of more Buddhist Rakhines requested the than 130 ethnic races and thence, the government to clearly define its government stated that the Rohingya citizenship policies, maintain transparency had no claim to Myanmar citizenship. in its efforts to secure the region, and to act in accordance with Myanmarese law, As state-sanctioned abuses against the thus washing its own hands off the Muslim community continued, Thein Sein citizenship issue. Interesting to note here is, urged neighbouring Bangladesh to take that although the Committee spoke in the Rohingya. In the process, Thein Sein about bringing the violence to an end, it attempted to hand over the group to the made no specific mention of the UN refugee agency. Interestingly, later in Rohingya themselves. Rather, it seemed October 2012, In an assurance to the to pass the onus to do so largely on the international community, he refurbished government. his stance by stating his government will consider resolving contentious rights issues In conclusion, it seems the State under facing the Muslim Rohingya minority, President Thein Sein has changed its including the possibility of providing them stance over the issue although whether citizenship. Thein Sein also said the these measures will remain sustainable is government was prepared to look into yet to be seen. It cannot be undermined the resettlement of tens of thousands of that the purpose of this change in Rohingyas displaced by months of deadly perception has widely been viewed as a communal violence with Rakhine move to engage more with the outside Buddhists in western Rakhine state during world and build confidence on 2011-12. It has been the clearest Myanmar’s democratic reformation, indication yet that the government is rather than an ideological shift in the moving to address the plight of the people’s perception of the Rohingya. Aung San Suu Kyi’s telling silence and diplomacy on the issue further problematizes the crisis.

The parliament’s Rule of Law Committee - III chaired by Aung San Suu Kyi - requested the External Interpretations: The UN, ASEAN, OIC, EU, Thailand, government to clearly define its citizenship Bangladesh, and the US policies, maintain transparency in its efforts to secure the region, and to act in accordance with The UN has faced many impediments in Myanmarese law, thus washing its own hands its efforts to provide relief and aid in the affected zones. Besides being sometimes off the citizenship issue. denied access to these regions, they incur 4

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hostile attitudes towards them. The reality is that the Rohingya are a hated minority The ASEAN has been focusing on providing in the state, and therefore, any agency humanitarian engagement to help defuse the helping them is going to incur local humanitarian fallout from the Rohingya crisis. It hostilities. has offered to work closely with the Myanmar Thein Sein’s statement in July 2012, finding government and the UN in the same way that it impossible to accept the Rohingyas as this tripartite arrangement effectively provided their ethnic nationals was rejected by the relief to the victims of in 2008. UN High Commissioner for Refugees. Later, before President Obama’s visit in However, Myanmar rejected the offer. November 2012, Thein Sein took a new stance on the issue, which has since allowed the UN and its agencies to largely gain access to the affected zones. to all residents of the strife-torn state. The Myanmar government, however, later The suffering of the Rohingya in reversed the decision following protests Myanmar’s Rakhine state also led then by Buddhist monks and laymen. The ASEAN Secretary-General Surin Pitsuwan Myanmar government even blocked the to make a statement and predicting that OIC from opening an aid office to assist the Rohingyas could become radicalized displaced Rohingya due to the violence and the entire region destabilized. The in Arakan state. ASEAN fears that if the Rohingya become radicalised, the area risks becoming a Several protests took place in in 2012, zone of violence, which could damage condemning the attacks and called on cooperation in ASEAN and . The other Muslim states to take a "firm stance" ASEAN has been focusing on providing against the violence. In , too, humanitarian engagement to help protests against the anti-Muslim riots were defuse the humanitarian fallout from the lodged by various political parties and Rohingya crisis. It has offered to work organisations, who called for the closely with the Myanmar government government, the UN, the OIC and other and the UN in the same way that this human rights organisations to take notice tripartite arrangement effectively of the killings and hold Myanmar provided relief to the victims of Cyclone accountable. In Saudi Arabia, the Nargis in 2008. However, Myanmar has Council of Ministers of Saudi Arabia also rejected the offer. condemned the “ethnic cleansing campaign and brutal attacks against In August 2012, the Organisation of Myanmar's Muslim Rohingya citizens" and Islamic Cooperation (OIC) condemned urged the international community to the Myanmar authorities for the "violence" protect "Muslims in Myanmar”. Further, against Rohingyas and the denial of the King Abdullah ordered $50 million of aid group's citizenship, and vowed to bring sent to the Rohingya, in Saudi Arabia's the issue to the General capacity as a "guardian of global Muslim Assembly. It announced before the interests". summit that it had received a green light from Myanmar to assist displaced In 2009-10, Thailand's military was Rohingya. It said Myanmar gave its accused of towing hundreds of Rohingya agreement following talks in the capital out to sea in poorly equipped boats with between a delegation from the scant food and water after they tried to pan-Islamic body and President Thein Sein flee Myanmar, a charge Thailand on the “deplorable humanitarian situation "categorically denied" back then. The in Rakhine state.” The delegation assured accusations had surfaced after nearly 650 Thein Sein that Islamic humanitarian Rohingya were rescued off India and organisations were willing to provide aid Indonesia, some saying they had been 5

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beaten by Thai soldiers. Hundreds of the brought up in Bangladesh or . boat people are still believed to be Intriguingly, in Malasyia, the UNHCR is missing at sea. The case had raised the allowed to register the Rohingya but not profile of the group's struggle at that time. to protect them as refugees.

However, a change in policy was visible in There is a narrative of convenience, in the the aftermath of the Rohingya-related case of Bangladesh, where a small violence in 2011-12. Thailand's ''help on'' number (less than 30,000) of Rohingya are policy was introduced to replace the recognised as refugees, and a much ''pushbacks'' campaign, which had larger group (over 300,000) who share the previously led to the deaths of hundreds same characteristics are viewed as of boatpeople. Under the ''help on'' economic migrants. After deliberations policy, the Thai Navy and onshore between the two countries, the erstwhile paramilitary volunteers intercept the junta-led Myanmar government took Rohingya boats in open waters to provide back most of the 1991 refugees leaving passengers with food, water, medical about 28,000 who still live in UN-run assistance, and mechanic help if refugee camps on the Bangladesh side of required. But they will not allow the boats the border. However, since 1992, to land in Thailand. Additionally, in Bangladesh has also refused asylum to November 2012, Thailand also provided them. US$100,000 in humanitarian aid to the Myanmar government to assist victims of Already, such fears have aroused anti- violence in Rakhine state, a paradigm Rohingya sentiment among some shift from its previous stance on the issue. Bangladeshis, and initially Bangladesh’s government tried to force the refugees According to an editorial in Open back without assisting them. It increased Democracy, there is a dichotomous border security in response to the riots. portrayal of the Rohingya as both victim Numerous boat refugees, escaping from and problem by countries such as the riots into the bordering territories of Bangladesh and Malaysia, which Teknaf and Cox Bazaar in Bangladesh by acknowledge that there is a problem but crossing the in their rickety are engaged in a stalemate with regard wooden trawlers, were turned aside by to solutions. Each is unwilling to act first, the Border Guard. About 1500 Rohingyas for fear of attracting still more Rohingya. were returned from Bangladesh by their They call for a “holistic” or “regional” despite pressure from solution, which largely underscores the the HRW and UNHRC. The Bangladesh position that Myanmar must concede government, citing high population that the Rohingya are citizens of the pressure on the existing limited resources country, and therefore, should welcome in an impoverished region, refused to take all Rohingya back, regardless of the fact in these refugees and asylum seekers. It that they may have been born and was only after some villagers risked arrest by sheltering refugees in their homes that the government began to offer humanitarian aid, before sending them back on their boats. ...there is a dichotomous portrayal of the Rohingya as both victim and problem by Other countries, particularly those that do countries such as Bangladesh and Malaysia, not have to deal with large numbers of Rohingya arriving unannounced on their which acknowledge that there is a problem but shores, acknowledge that the Rohingya are engaged in a stalemate with regard to are victimised by Myanmar; and also, that solutions. Each is unwilling to act first, for fear receiving countries fall short of their protection obligations. This narrative of attracting still more Rohingya. seemingly says the right things, but is 6not

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loud, forceful or timely. The West, including the EU, United Kingdom and the The peace process has also gained momentum in US, whilst remaining “deeply concerned” the first ever Myanmar Development Co- by the situation and calling for "all parties operation Forum held at on 20 to exercise restraint, added that they would continue to watch developments January 2013 wherein a number of closely. Myanmar has become a representatives of the International Community destination for capital investment now met with President Thein Sein to sign an that the US, the EU, and Canada have agreement for a smooth process for international accepted the government’s narrative of democratic transition and have largely aid to flow into Myanmar for the next few years. lifted the economic sanctions they began applying after 1988. It is crucial to highlight here that these measures did not prevent China, India, South , for fulfilling self-interests, sanctions (which Thailand, Singapore, and multinational oil were considered hardy leverages to companies from doing business with the direct the reforms process) are being Myanmarese. The US, EU, and the UK rapidly lifted and international obligations have welcomed Myanmar’s first steps to step in to protect the most vulnerable toward democratisation, but have also have sadly been relayed to nothing but set down conditions for strengthening ties, rhetoric. including an end to ethnic violence. IV Increasingly, however, this has not Conclusions impeded the countries from indulging in economic ties with the nation. Not only does the exclusion of the This juxtaposing narrative finds its roots in Rohingya pose a threat to the process of several factors. One is that the West does national reconciliation, it also poses a not want to be viewed or portrayed as serious security threat and economic loss. meddling in the internal affairs of the Due to the state’s denial to gainfully country. A connected reason may be a employ them, the youth remains in a state reluctance to step in and share of frustration and is ripe for indoctrination responsibility. Taking a strong stance on by militant outfits. They are also vulnerable the issue would make it obligatory to take to human trafficking all over the prompt actions under international Southeast Asian region. The cost of not human rights law and the doctrine of handling this issue is much higher than the responsibility to protect (R2P). There is government of Myanmar has so far more rhetoric at play here, which shrouds estimated. Considering that their the deeper realpolitik agenda behind concentration is in the Rakhine state, these countries’ foreign policy agendas Kyakphue and Sittwe being two of the vis-à-vis Myanmar. Geo-political and cities with a comparatively high Rohingya economic strategies with regards to population, it might impact Myanmar’s China, which has dominated the investment prospects adversely. Myanmarese economy for several Rakhine state has an international border decades now, are of primary concern to with Bangladesh, access to the Bay of the West. Bengal and consequently, all the Myanmar is considered the last frontier countries in the BoB region, including market of a world. In a scenario of several India and the offshore oil and Natural Gas economic crises, the desperate search blocs where major exploration work by for new resources, markets, and spheres international companies is being carried of influence, Myanmar’s “opening up” out. In fact, Kyakphue port is the origin of and democratisation process has been a the oil and gas pipelines being built by welcome change. Therefore, in a quest China National Petroleum Corp. that7

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connects it to the Yunnan province. expeditiously addressed in times to come. Therefore, having simmering tensions in the state may not be in the best interest of the country as that affects the safety of institutional infrastructure that supports References investments. Huda, Sadaqat Mirza. 2013. “The Rohingya It is important for Myanmar to be seen as Refugee Crisis of 2012: Asserting the need for a stable state. It will perennially have to Constructive Regional & International Engagement.” South Asia Journal. New contend with the fact that it is one of Jersey: p.47. Asia's most ethnically diverse states, and therefore, people are watching to see http://www.independent.co.uk/voices/ how the government handles the comment/the-rohingya-of-burma-are-on-the- tensions. The first step is for Aung San Suu edge-of-disaster-why-wont-the-world-act- Kyi and the Myanmar government to 8513536.html acknowledge that the Rohingya exist. http://www.wfp.org/content/pushed-burma- The continued clashes have consistently stateless-rohingya-flee-boat raised concerns about the fragility of Myanmar’s democratic reforms process. It ‘Persecuted Burmese tribe finds no welcome in Bangladesh’, The Guardian, U.K., 7 August is crucial, in this regard, to contextualise 2012 and ‘Nowhere to Turn: Brad Adams, Human Rights Watch’s Asia Feel Violence in Myanmar, Unwelcome in director views on the issue whilst Bangladesh’ International Business Times, U.S.s, developing a roadmap ahead. He asserts 9 August 2012 that so much justified excitement about Myanmar’s reforms and emergence https://twitter.com/rohingyavoice could imply that the chances of the Rohingya issue being taken seriously will http://globalvoicesonline.org/2012/06/16/ be even lower than usual. He adds, and understanding-the-violence-in-western- this could well be a moot point, that, “If myanmar/ the atrocities in Arakan had happened Lallah, Rajsoomer. 1999. “Situation of Human before the government’s reform process Rights in Myanmar.” Commission on Human started, the international reaction would Rights. 55th Session. The United Nations. have been swift and strong. But the international community appears to be http://www.google.com/hostednews/afp/ blinded by a romantic narrative of article/ALeqM5j_x2afxfntqJUV3PuaTz6Jy12_Yg sweeping change in Burma [Myanmar], signing new trade deals and lifting http://www.aljazeera.com/ sanctions even while the abuses pressoffice/2013/03/20133210535530465.html continue.” Therein lies the dichotomy of a http://www.rfa.org/english/commentaries/ people in crisis, which must be east-asia-beat/rohingya-06122012225150.html

Southeast Asia Programme (SEARP) at the Institute is supported by the SAEA Research Group Singapore.

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