By Samantha Power, White House Blog
The announcement that President Obama will become the first U.S. President to visit Burma marks an historic step in the United Statesâ€™ engagement with Burma. In the past year, since President Obama first noted â€œflickers of progressâ€ in Burma â€“ and since Secretary Clinton became the most senior U.S. official to visit since 1955 â€“ we have seen continued progress on the road to democracy. Several opposition political parties have been permitted to register legally for the first time and their members â€“ including Aung San Suu Kyi â€“ have been elected to parliament. Restrictions on the press have been eased. Legislation has been enacted to expand the rights of workers to form labor unions, and to outlaw forced labor. The government has signed an action plan aimed at ridding its army of child soldiers; it has pledged to join the Extractive Industries Transparency Initiative (EITI) to help ensure that Burmaâ€™s natural wealth is not squandered to corruption; and it has announced fragile ceasefires in several longstanding ethnic conflicts.
Seeing these signs of progress, we have responded in kind, with specific steps to recognize the governmentâ€™s efforts and encourage further reform. We have eased sanctions, appointed our first ambassador in 22 years, and opened a USAID mission. At the same time, we have also updated sanctions authorities that allow us to target those who interfere with the peace process or the transition to democracy, and we created a ground-breaking framework for responsible investment from the United States that encourages transparency and oversight.
We are clear-eyed about the challenges that Burma faces. The peril faced by the stateless Rohingya population in Rakhine State is particularly urgent, and we have joined the international community in expressing deep concern about recent violence that has left hundreds dead, displaced over 110,000, and destroyed thousands of homes. There is much work to be done to foster peace and reconciliation in other ethnic conflicts, develop the justice sector, and cultivate the free press and robust civil society that are the checks and balances needed in any stable democracy. But we also see an historic opportunity both to help Burma lock in the progress that it has made so farâ€”so that it becomes irreversibleâ€”and to meet the many challenges in front of it. In May 2011, as the Arab Spring took hold, the President noted that Americaâ€™s interests are served when ordinary people are empowered to chart their own political and economic futures. And to governments, he made a promise: if you take the risks that reform entails, you will have the full support of the United States.
Last month, as part of our effort to fulfill that promise, the Obama administration held the first-ever official bilateral dialogue on human rights with the Government of Burma. Led by Michael Posner, Assistant Secretary of State for Democracy Human Rights and Labor, the purpose was to initiate a new channel between our two countries to discuss challenges ahead â€“ a high-level exchange on urgent and delicate issues that would have been unthinkable a year ago. Our delegation included not only Posner, Ambassador Derek Mitchell, and other State Department officials, but also senior officials from the White House, the Vice Presidentâ€™s office, USAID, the Department of Homeland Security, and the Department of Defense, including both civilian officials and uniformed military. The delegation included experts on labor rights and economic development, rule of law and political reform, ethnic conflict and reconciliation, land-mine removal, and criminal justice. Our hosts included senior advisors to President Thein Sein and ministers and senior officials from across the Burmese government and military. Aung San Suu Kyi attended in her capacity as a member of parliament and the chair of a new legislative committee on the rule of law.
Before the official dialogue began, the U.S. delegation spent three days in Rangoon meeting with former political prisoners, ethnic minority leaders, labor advocates, LGBT organizations (who said that this was the first time any government had ever invited them to meet together), and other members of Burmaâ€™s nascent civil society. When we sat down for our official dialogue in Naypyidaw, we were able to convey the concerns raised in these meetings to our counterparts, while also stressing the importance of their building an inclusive reform dialogue that would seek inputs from Burmese civil society.
The U.S. government engages with many countries around the world in official dialogues on human rights. While these discussions are often a useful forum for diplomacy, it is fair to say that these conversations can sometimes be stilted, characterized by predictable presentations rather than a spontaneous back-and-forth in which uncertainty can be expressed. The U.S.-Burma dialogue was unusually high-energy and candid.
We both recognized the need to empower reformers in and out of government, protect against backsliding, and ensure the broader Burmese public feels the changes afoot. One of the most challenging aspects of reform is enlisting the countryâ€™s military, which governed the country through authoritarian rule for five decades. U.S. Army Lieutenant General Francis Wiercinski drew on his own experiences to make a powerful case to senior officials from the Burmese Defense Ministry that national security is helped rather than hindered by transparency and independent monitoring, and by compliance with international humanitarian law and human rights law. The discussions, which emphasized areas where commitments to reform are necessary â€“ including on child soldiers, forced labor, and in conflict areas â€“ underscored that the gradual process of normalizing our military-to-military relationship will hinge on progress on human rights.
Many of the issues that we discussed in detail will likely feature in the Presidentâ€™s upcoming trip to Burma. These included:
â€¢ Prisoners of conscience. The release of more than 700 political prisoners in the last year has been unprecedented. But as Secretary Clinton has made clear, for the United States even one prisoner of conscience is too many, and the State Department has passed along a list of those we are concerned remain imprisoned. In addition, as one ex-prisoner put it, â€œwe have been released, but we are not free.â€ The released prisoners have a huge amount to offer a democratic Burma, but, as we noted, the government will need to lift outstanding travel and other restrictions in order for them to participate fully in society.
â€¢ Political reforms. Reforms have begun to change the political landscape, particularly as parliament has become more inclusive, and as representatives are increasingly answerable to their constituents. But efforts to build civil society, make government ministries responsive to the public, and create a more inclusive political process have just begun. In particular, the central government needs to tackle the challenge of ensuring that any reforms that are made by the parliament and central government are felt at the local level and especially in Burmaâ€™s border areas where the majority of the countryâ€™s ethnic minorities reside.
â€¢ Rule of law. The parliament and the executive branch have tackled part of an ambitious agenda for remaking Burmaâ€™s law and legal institutions. But the judicial branch remains the least developed of Burmaâ€™s political institutions. Judicial reform, repealing outdated and restrictive laws, educating citizens of their rights, creating a vibrant civil society to protect those rights, and remaking the legal system and the legal profession all are required to lay the foundation of rule of law in Burma, and all have a long way to go.
â€¢ Peace and reconciliation. The challenge of ongoing ethnic and sectarian violence — including in Shan State, Kachin State, and Rakhine State â€“ remains an area of deep and on-going concern. If left unaddressed, it will undermine progress toward national reconciliation, stability, and lasting peace. Serious human rights abuses against civilians in several regions continue, including against women and children. Humanitarian access to hundreds of thousands of internally displaced persons remains a serious challenge and on-going crisis. The government and the ethnic nationalities need to work together urgently to find a path to lasting peace that addresses minority rights, deals with differences through dialogue not violence, heals the wounds of the past, and carries reforms forward. The situation in Rakhine State and the recent violence against the Rohingya and other Muslims last week only underscores the critical urgency of ensuring the safety and security of all individuals in the area, investigating all reports of violence and bringing those responsible to justice, according citizenship and full rights to the Rohingya, and bringing about economic opportunity for all local populations.
Ultimately, Burmaâ€™s reforms will succeed or fail based on the efforts of the Burmese people themselves. President Obamaâ€™s policy approach has been to support reform and those championing it â€“ an investment in Burmaâ€™s future that the President will personally reinforce later this month in Rangoon. Behind this investment is a commitment to helping the Burmese people see the promise that lasting reform holds for their country. As they take charge of their destiny, the American people stand ready to help.
Samantha Power is the Special Assistant to the President and Senior Director for Multilateral Affairs and Human Rights at the National Security Council.