Asia's Forgotten Crisis

A New Approach to Burma

Michael Green and Derek Mitchell

From Foreign Affairs, November/December 2007

Summary:  Over the past decade, Burma has gone from being an antidemocratic embarrassment and humanitarian disaster to being a serious threat to its neighbors' security. The international community must change its approach to the country's junta.

Michael Green is Associate Professor of International Relations at the Edmund A. Walsh School of Foreign Service at Georgetown University and a Senior Adviser and Japan Chair at the Center for Strategic and International Studies. Derek Mitchell is a Senior Fellow and Director for Asia Strategy at CSIS.

U.S. policy toward Burma is stuck. Since September 1988, the country has been run by a corrupt and repressive military junta (which renamed the country Myanmar). Soon after taking power, the State Law and Order Restoration Council (SLORC), as the junta was then called, placed Aung San Suu Kyi, the leader of the opposition party the National League for Democracy, under house arrest. In 1990, it allowed national elections but then ignored the National League for Democracy's landslide victory and clung to power. Then, in the mid-1990s, amid a cresting wave of post-Cold War democratization and in response to international pressure, the SLORC released Suu Kyi. At the time, there was a sense within the country and abroad that change in Burma might be possible.

But this proved to be a false promise, and the international community could not agree on what to do next. Many Western governments, legislatures, and human rights organizations advocated applying pressure through diplomatic isolation and punitive economic sanctions. Burma's neighbors, on the other hand, adopted a form of constructive engagement in the hope of enticing the SLORC to reform. The result was an uncoordinated array of often contradictory approaches. The United States limited its diplomatic contact with the SLORC and eventually imposed mandatory trade and investment restrictions on the regime. Europe became a vocal advocate for political reform. But most Asian states moved to expand trade, aid, and diplomatic engagement with the junta, most notably by granting Burma full membership in the Association of Southeast Asian Nations (ASEAN) in 1997.

A decade later, the verdict is in: neither sanctions nor constructive engagement has worked. If anything, Burma has evolved from being an antidemocratic embarrassment and humanitarian disaster to being a serious threat to the security of its neighbors. But despite the mounting danger, many in the United States and the international community are still mired in the old sanctions-versus-engagement battle. At the United Nations, Secretary-General Ban Ki-moon has appointed the former Nigerian diplomat and UN official Ibrahim Gambari to continue the organization's heretofore fruitless dialogue with the junta about reform. The U.S. State Department and the U.S. Congress have fought over control of U.S. Burma policy, leading to bitterness and polarization on both sides. Although the UN Security Council now does talk openly about Burma as a threat to international peace and security, China and Russia have vetoed attempts to impose international sanctions. And while key members of the international community continue to undermine one another, the junta, which renamed itself the State Peace and Development Council (SPDC) in 1997, continues its brutal and dangerous rule.

Regimes like the SPDC do not improve with age; therefore, the Burma problem must be addressed urgently. All parties with a stake in its resolution need to adjust their positions and start coordinating their approach to the problem. Although this may seem like an unlikely proposition, it has more potential today than ever before. Burma's neighbors are beginning to recognize that unconditional engagement has failed. All that is needed now is for the United States to acknowledge that merely reinforcing its strategy of isolation and the existing sanctions regime will not achieve the desired results either. Such a reappraisal would then allow all concerned parties to build an international consensus with the dual aim of creating new incentives for the SPDC to reform and increasing the price it will pay if it fails to change its ways.

BURMESE WAYS

After General Than Shwe became chair of the junta in 1992, repression grew more brazen. Thousands of democracy activists and ordinary citizens have been sent to prison, and Suu Kyi has been repeatedly confined to house arrest, where she remains today. Since 1996, when the Burmese army launched its "four cuts" strategy against armed rebels -- an effort to cut off their access to food, funds, intelligence, and recruits among the population -- 2,500 villages have been destroyed and over one million people, mostly Karen and Shan minorities, have been displaced. Hundreds of thousands live in hiding or in open exile in Bangladesh, India, China, Thailand, and Malaysia. In 2004, the reformist prime minister Khin Nyunt was arrested. Two years ago, Than Shwe even moved the seat of government from Rangoon (which the junta calls Yangon), the traditional capital, to Pyinmana, a small logging town some 250 miles north -- reportedly on the advice of a soothsayer and for fear of possible U.S. air raids. And this past summer, the government cracked down brutally on scores of Burmese citizens who had taken to the streets to protest state-ordered hikes in fuel prices.

Burma's neighbors are struggling to respond to the spillover effects of worsening living conditions in the country. The narcotics trade, human trafficking, and HIV/AIDS are all spreading through Southeast Asia thanks in part to Burmese drug traffickers who regularly distribute heroin with HIV-tainted needles in China, India, and Thailand. According to the U.S. Drug Enforcement Administration, Burma accounts for 80 percent of all heroin produced in Southeast Asia, and the UN Office on Drugs and Crime has drawn a direct connection between the drug routes running from Burma and the marked increase in HIV/AIDS in the border regions of neighboring countries. Perversely, the SPDC has been playing on its neighbors' concerns over the drugs, disease, and instability that Burma generates to blackmail them into providing it with political, economic, and even military assistance.

Worse, the SPDC appears to have been taking an even more threatening turn recently. Western intelligence officials have suspected for several years that the regime has had an interest in following the model of North Korea and achieving military autarky by developing ballistic missiles and nuclear weapons. Last spring, the junta normalized relations and initiated conventional weapons trade with North Korea in violation of UN sanctions against Pyongyang. And despite Burma's ample reserves of oil and gas, it signed an agreement with Russia to develop what it says will be peaceful nuclear capabilities. For these reasons, despite urgent problems elsewhere in the world, all responsible members of the international community should be concerned about the course Burma is taking.