Understanding Recent Political Changes in Myanmar

Abstract

On 30 March 2011, Myanmar's ruling junta, the State Peace and Development Council (SPDC), handed power to a new government led by President Thein Sein that had come into being in the wake of elections held in November 2010. Because all administrative and legislative bodies--both at the central and local levels--were controlled by members of the military-backed Union Solidarity and Development Party (USDP), political activists and Myanmar watchers did not expect more than superficial changes under the new government. Although President Thein Sein mentioned his plan to introduce administrative and economic reforms and to launch an anti-corruption campaign in his inaugural speech doubts remained that the president would actually be able to deliver on his promises. However, on 19 August 2011, to the surprise of many people, President Thein Sein met Aung San Suu Kyi, leader of the main opposition party, the National League for Democracy (NLD), at his official residence. Two days earlier, the President had invited exiled activists to return to the country. Aung San Suu Kyi publicly stated that she was very encouraged by her meeting with Thein Sein and that she had trust in his determination to bring about positive political change to the country. (1) The United States and some members of the European Union (EU) welcomed the meeting. On the other hand, several exiled activists had reservations about the sincerity of the President, with some going so far as to say that what Thein Sein had done was little more than a publicity stunt and that there was little difference between the new government and its predecessor. This article, drawing on interviews with serving and retired government officials, and political activists including leading NLD members, argues that since the new government has taken office a new era of political openness has begun in Myanmar. It goes on to illustrate that in order to understand recent political changes, one should pay attention to shifts in the internal power structure of the government. However, it is not a given that Myanmar will become a full-fledged democracy any time soon. Indeed this article suggests that the country is at a critical juncture, and that the expansion of political openness in the country will depend on whether liberals within the government and those from the pro-democracy movement can work together to further political changes without prompting the country's armed forces, the tatmadaw, to stage a coup. The Power Structure and Political Change in the SLORC/SPDC Government The military government that ruled Myanmar between late 1988 and early 2011 was formed in response to the nation-wide pro-democracy movement against the military-dominated socialist government led by General Ne Win. Although the junta, which was initially known as the State Law and Order Restoration Council (SLORC) and later renamed the SPDC, held multi-party elections in 1990, it refused to transfer power to the NLD even after the latter had won a landslide victory. Instead, the junta convened a decade long National Convention (NC) to adopt guidelines for a new constitution. Although opposition groups and the international community called for the transfer of power to the NLD, the SLORC ignored these calls. In fact, after the 1990 elections Myanmar's military leaders decided to defer political change for as long as possible. Political activists, on the other hand, continued to campaign for swift political change. As Huntington and many others have pointed out, democratization under an authoritarian regime might take place under the following conditions: when the regime is toppled by a social movement or seriously weakened by a crisis; when reformers from within the regime and liberals from the movement find a way to work together; or when the regime feels that it cannot survive without initiating political reform. (2) Some activists had hoped for a split in the government and tried to identify liberal officials they could work with. …