312-identity-crisis-myanmar-ethicity_0

Report: Identity Crisis: Ethnicity and Conflict in Myanmar

Asia Report N°312 | 28 August 2020

Table of Contents

I. Introduction (Page 1)II. A Legacy of Division (Page 4)A. Who Lives in Myanmar? (Page 4)B. Those Who Belong and Those Who Don’t (Page 5)C. Contemporary Ramifications (Page 7)III. Liberalisation and Ethno-nationalism (Page 9)IV. The Militarisation of Ethnicity (Page 13)A. The Rise and Fall of the Kaungkha Militia (Page 14)B. The Shanni: A New Ethnic Armed Group (Page 18)C. An Uncertain Fate for Upland People in Rakhine State (Page 23)V. Policy Options (Page 28)VI. Conclusion (Page 32)

Executive Summary (Page 4)

Central Tenet: Ethnicity is critical to defining citizenship, rights, political representation, and the dynamics of armed conflict in Myanmar.

Problems with Ethnicity:

• Ethnic divisions foster a toxic socio-political atmosphere characterized by fear and hostility.

• They contribute to zero-sum thinking, where the success of one group is seen as a loss to another.

• Result in the proliferation of numerous armed groups based on ethnic identities, complicating peace efforts.

Need for Reform:

• A national dialogue is essential to create an inclusive future that does not equate citizenship with ethnicity.

• This dialogue should aim to ensure that inherent rights are detached from ethnic identity, promoting equality and unity.

I. Introduction (Page 6)

Context

• Myanmar has a long-standing history of armed conflict rooted in ideological, political, and ethnic differences dating back to its independence in 1948.

Ethnic Diversity

• The complexity of ethnic conflicts in Myanmar has been aggravated by historical grievances regarding autonomy, representation, and resource control among various groups.

Current Landscape

• The current context is marked by the existence of numerous armed groups that operate along ethnic lines, further complicating the prevailing situation and posing challenges for peace and stability.

II. A Legacy of Division

A. Who Lives in Myanmar? (Page 9)

• Ethnic Composition:

  • Myanmar is home to a rich tapestry of ethnic diversity influenced by its historical migrations and the impacts of colonization.

  • Important ethnic groups include the Burman, Shan, Kachin, Karen, and Rohingya, among others.

• British Colonial Impact:

  • British colonial policies of classification and divide-and-rule fostered deep animosities among ethnic groups, creating a legacy of mistrust and division that persists to this day.

B. Those Who Belong and Those Who Don’t (Page 9)

• Independence Movement's Focus:

  • The post-independence focus on establishing a cohesive national identity often marginalized minority groups such as the Indians and ethnic minorities.

• Post-Independence Citizenship:

  • Laws enacted during the post-independence era sought to define who qualifies as indigenous, resulting in the exclusion of groups like the Rohingya from citizenship rights and social recognition.

C. Contemporary Ramifications (Page 12)

• 1982 Citizenship Law:

  • The introduction of the Citizenship Law created tiers of citizenship, which primarily favored the Burman population and entrenched ethnic inequalities.

• Exclusions & Consequences:

  • A significant number of ethnic minorities remain disenfranchised, leading to increased grievances against the state and perpetuating stereotypes and fears about different ethnic groups.

III. Liberalisation and Ethno-nationalism (Page 14)

• Post-2011 Political Liberalization:

  • Despite the political liberalization since 2011 that theoretically encourages freedom of expression, it inadvertently reinforced ethnic divisions.

• Electoral Dynamics:

  • Ethnic political parties have gained prominence, revealing a political landscape dominated by identity-based politics that challenges national cohesion.

• Public Perception:

  • While ethnic minorities have leveraged newfound freedoms to assert their cultural identities, this increased visibility can sometimes lead to heightened tensions and conflict between groups.

IV. The Militarisation of Ethnicity

A. The Rise and Fall of the Kaungkha Militia (Page 14)

• Overview:

  • The Kaungkha militia serves as a case study showcasing the complex interplay between ethnic identity, armed resistance, and the involvement in illicit economies in Myanmar.

• Disarmament:

  • Recent strategic operations by the Tatmadaw (Myanmar's military) targeting the Kaungkha militia highlight the precarious nature of local militia systems and the ongoing power struggles in the region.

B. The Shanni: A New Ethnic Armed Group (Page 18)

• Emergence:

  • The Shanni Nationalities Army represents a burgeoning ethnic armed group that reflects the ongoing ethnic tensions within Myanmar, advocating for representation and rights.

• Conflict with Kachin:

  • Surveys of historical conflicts between the Shanni and Kachin further underscore the pervasive ethnic strife and the tumultuous nature of regional politics.

C. An Uncertain Fate for Upland People in Rakhine State (Page 23)

• Impact of Conflict:

  • Ongoing tensions among various armed groups have severely affected non-Rakhine minorities in Rakhine State, leading to humanitarian crises and marginalization of vulnerable populations.

V. Policy Options (Page 28)

• Reconceptualizing Citizenship:

  • Recommendations propose delinking ethnicity from citizenship frameworks and redefining legal rights to promote inclusivity.

• Administrative Reform:

  • Suggestions for creating self-administered regions indicate a move away from restrictive ethnic affiliations towards governance that reflects diverse community needs.

• Broader Representation:

  • Emphasizing the importance of multi-ethnic participation in governance structures without prejudice towards ethnic affiliation to ensure equitable representation for all communities.

VI. Conclusion (Page 32)

• Ethnic Tensions:

  • The ongoing categorization of ethnic identities perpetuates cycles of violence and division in Myanmar, making resolution and reconciliation increasingly challenging.

• Path Forward:

  • Acknowledgment of Myanmar's diverse heritages is crucial to forge a unified national identity that respects and incorporates the rights and contributions of all ethnic groups, fostering long-term peace and stability.