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Parliamentary Development in Myanmar an Overview of the Union Parliament, 2011-2016

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Parliamentary Development in Myanmar an Overview of the Union Parliament, 2011-2016 Parliamentary Development in Myanmar An Overview of the Union Parliament, 2011-2016 Renaud Egreteau May 2017 About the Author Dr. Renaud Egreteau is a political scientist whose research and teaching include democratization, civil- military relations, and comparative legislative politics, with a special focus on South and Southeast Asia. He has taught at the University of Hong Kong and Sciences Po Paris, and held research fellowships from the Woodrow Wilson International Center for Scholars in Washington, DC, and the ISEAS-Yusof Ishak Institute in Singapore. He recently authored Caretaking Democratization: The Military and Political Change in Myanmar (Oxford University Press and Hurst, 2016). Acknowledgments The author would like to thank everyone – friends, colleagues, scholars and interviewees – whose cooperation, suggestions and inputs made this study possible. At The Asia Foundation, John J. Brandon and Kim N. B. Ninh, who commissioned the report, were extremely supportive. Ma Mi Ki Kyaw Myint has provided outstanding assistance while collecting data and interviews in Nay Pyi Taw. The author is also grateful to the directors general and their deputies in the Union legislature for the time they have spent responding to many queries and questions. Many former and incumbent Union members of parliament met over the years, at their homes or in their party offices, have offered their personal views of their work and life as parliamentarians. This has enriched the author’s own understanding of Myanmar’s emerging legislative affairs. This report benefited from reviews by both Professor David I. Steinberg and U Chit Win. Matthew Arnold, Carine Jaquet, Mael Raynaud, Christina Fink and Kim Jolliffe also provided extremely valuable suggestions for improvement. About The Asia Foundation The Asia Foundation is a nonprofit international development organization committed to improving lives across a dynamic and developing Asia. Informed by six decades of experience and deep local expertise, our programs address critical issues affecting Asia in the 21st century—governance and law, economic development, women’s empowerment, environment, and regional cooperation. In addition, our Books for Asia and professional exchanges are among the ways we encourage Asia’s continued development as a peaceful, just, and thriving region of the world. Headquartered in San Francisco, The Asia Foundation works through a network of offices in 18 Asian countries and in Washington, DC. Working with public and private partners, the Foundation receives funding from a diverse group of bilateral and multilateral development agencies, foundations, corporations, and individuals. Preface The history of Myanmar’s legislature has evolved through numerous cessations and restorations, from the first ministerial council during the Pagan dynasty through to the colonial period, to its termination and restoration during Myanmar’s post-junta period. More than two decades after the military seized power in 1988, Myanmar is experiencing another return to parliamentary democracy. The first bicameral legislature in post-colonial Myanmar was convened on January 31, 2011 after the controversial general elections of November 2010 that saw the military stepping back from political power but still holding on to some key institutions, including 25% of reserved seats in the new Union Parliament. While the Union Parliament has put into operation its legislative, representative and oversight functions, it is still very much in a nascent phase of development and will require reforms and further support to achieve efficiency, effectiveness, and public trust. This report reviews the organizational structure and functioning and legislative performance of the Union Parliament since 2011, and compares the two legislatures elected in 2010 (Union Solidarity and Development Party) and 2015 (National League for Democracy). Currently, the legislature’s ability to direct policymaking is weak, and its understanding of vetting mechanisms also needs to be strengthened. For Myanmar to move away from the remnants of executive dominance and top-down directives in order to deepen the democratization process, the Union Parliament must play a central role and its institutions must be strengthened to do so. Despite the numerous challenges facing the Union Parliament and the inexperience of many of its members, the Union Parliament has surprised many domestic and international observers with its active legislative agenda and open discussion of issues once untouchable. The Union Parliament also sees more diverse members, including more women and a wider array of professions being represented from businessmen to former political prisoners to ethnic and civic leaders. It is a critical moment to provide support to Parliament to further reform its institutions and practices and build its capacity to become a genuinely professional and independent legislative body. We hope this research will contribute to the ongoing public discourse in Myanmar on parliamentary development and democratic transition. This research paper is authored by Dr. Renaud Egreteau, a political scientist who specializes in areas of comparative legislative politics and democratization and an observer of Myanmar politics. The opinions expressed in this report are solely those of the author and do not necessarily reflect those of The Asia Foundation. Dr. Kim N.B. Ninh Country Representative The Asia Foundation, Myanmar Table of Contents Acronyms ....................................................................................................................................i Executive Summary .............................................................................................................................ii Introduction ...................................................................................................................................1 Parliaments and democratization .........................................................................................................1 Objectives of the research ....................................................................................................................2 Methodology ........................................................................................................................................3 Structure of the paper ..........................................................................................................................3 Section I: The Return to Parliamentary Democracy ..............................................................................5 1.1 What the 2008 Constitution says ....................................................................................................6 1.2 Elections in post-junta Myanmar ....................................................................................................7 Section II: Organizing the Legislature .................................................................................................10 2.1 Infrastructure ................................................................................................................................10 2.2 Parliamentary management and human resources ......................................................................11 2.2.1 The Hluttaw Offices .............................................................................................................11 2.2.2 Human resource challenges ................................................................................................14 2.3 Standing and ad hoc parliamentary committees ..........................................................................14 2.4 Support for parliamentary management and skills .......................................................................17 Section III: Profile of the Union Parliament ........................................................................................19 3.1 Age .........................................................................................................................................19 3.2 Gender .........................................................................................................................................20 3.3 Ethno-religious profile ..................................................................................................................21 3.3.1 Ethnicity ...............................................................................................................................21 3.3.2 Religion ................................................................................................................................21 3.4 Education ......................................................................................................................................22 3.5 Occupational background .............................................................................................................23 Section IV: Representation and Constituency Services .......................................................................25 4.1 Reaching out to constituents ........................................................................................................25 4.2 Speaking for constituents..............................................................................................................27 4.3 Serving constituents ......................................................................................................................28 Section V: Lawmaking
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