Relief Web (Humanitarian Information Source on Global Crises and Disasters) on Myanmar

March 2017
In Numbers (March 2017)
302,808 people in need of food assistance
52% 48%
258,325
people assisted
WFP Myanmar
Country Brief
WFP Assistance
Supporting Transition
by Reducing Food
Insecurity and
Undernutrition among
the Most Vulnerable
PRRO 200299
(Jan 2013 – Dec 2017)
Total
Requirements
(in USD)
Total
Received
(in USD)
6 Month
Net Funding
Requirements
(in USD)*
343 m
218 m
(63.5%)
5.1 m
(21%)
*April 2017 – September 2017
In 2017, WFP entered the final year of its Protracted
Relief and Recovery Operation (PRRO) in Myanmar, which
was launched in January 2013. The current PRRO
contributes to more equitable development and supports
national reconciliation by reducing poverty, food
insecurity and undernutrition, responding to disasters and
increasing resilience among the most vulnerable. Aligned
with the Sustainable Development Goals and the Zero
Hunger Challenge, the specific objectives of the PRRO are
to 1) prepare for and respond to natural disasters and
other shocks in support of the Government; 2) assist
post-disaster recovery by rehabilitating production assets
to improve household food security and create
socio-economic opportunities for the most vulnerable;
3) address undernutrition among children and pregnant
women and nursing mothers, and support at-risk groups
such as people living with HIV (PLHIV) and tuberculosis
(TB) clients; 4) improve access, enrolment and
attendance to primary schools; and 5) improve the
sustainability of responses to food insecurity and
undernutrition through knowledge-sharing and capacity
development.
WFP aims to reach its objectives through five major
activities:
Relief – WFP has been providing life-saving food
assistance to 515,000 people displaced and/or affected by
conflicts, violence and natural disasters. Both in 2015 and
2016, WFP assisted people affected by floods. Most
recently, during the floods in 2016, 231,000 people
affected in Ayeyarwaddy, Bago, Magway and Mandalay
Regions and in Rakhine State received emergency food
assistance to mitigate their suffering from hunger. WFP
and FAO co-lead the Food Security Sector since 2014,
which has been responding to food and/or cash needs of
people affected by ethnic conflicts and natural disasters.
Nutrition – Linking with the national health system and
in line with the national protection scheme, WFP provides
nutrition-specific and nutrition-sensitive support for
89,000 pregnant women and nursing mothers and
malnourished young children.
HIV/TB programme – As balanced nutrition is pivotal
for people living with HIV or TB clients to keep their
immune system strong in order to fight the diseases, WFP
provides food-by-prescription to 23,000 PLHIV and TB
clients aiming to enhance their adherence and treatment
success.
Community Asset Creation – WFP strengthens
community resilience by creating community
infrastructures and providing 200,000 people with either
cash or food in exchange for participating in asset
creation activities.
School Feeding - In support of the country’s National
Social Protection Strategic Plan and the 2016-2021
National Educational Strategic Plan, WFP and the Ministry
of Education have started working towards nationalisation
of the school feeding programme from the 2015/16
academic year onwards. WFP aims to feed 400,000
school children in the 2017/18 academic year.
Furthermore, WFP, in collaboration with the Ministry of
Livestock, Fishery and Rural Development, has completed
Food Security and Poverty Estimation surveys in 2016
and is developing the country’s first-ever Food Security
Atlas, contributing to the advancement of national food
security and poverty reduction policies and strategies.
WFP has also supported the Government in establishing
nine resource centres across the country, enhancing
national capacity of sustainable food security monitoring.
Highlights
 In the northern part of Rakhine State, WFP assisted
25,500 food-insecure and vulnerable people. The
majority of displaced people returned to their villages
of origin.
 WFP successfully completed the second round of
disbursements for the e-wallet pilot project in Kachin
State, which included three additional camps in
March.
 WFP conducted a mission assessing the use of
unmanned aerial vehicles (UAVs) for humanitarian
preparedness and response.
Photo: WFP/Innocent Sauti
Caption: WFP staff and a woman from a vulnerable
community during food distributions in Sitttwe, Rakhine
State.
Main
Photo

WFP Myanmar Country Brief
March 2017
Operational Updates
 In the northern part of Rakhine State, WFP delivered
food to 25,500 food-insecure people who had either been
displaced or lost their homes or livelihoods during the
recent security operations in the area. A majority of
displaced persons in the area returned to their villages
either as a result of the Government’s authorisation or
on their own individual initiative.
 In Kachin State, WFP successfully completed the second
round of disbursements for its e-wallet pilot project. In
addition to the three camps in Myitkyina, the project was
expanded to include three additional camps in
Waingmaw, thus targeting a total of 284 households or
1,400 displaced people. All participants received their
monthly cash assistance through accounts on WFP-
provided mobile phones without major technical issues.
 On 17-24 March, WFP carried out a mission in
preparation for the development of a coordination model
for the use of unmanned aerial vehicles (UAVs) for
humanitarian preparedness and response. Fully funded
by the Government of Belgium, the mission identified
local actors currently working with UAVs and conducted
assessments to gather information on current
developments, activities and plans from humanitarian
actors in Myanmar related to the potential use of UAVs
for large-scale humanitarian emergency operations. The
novel technology holds the promise of a diverse portfolio
of rapid strategic planning applications that are already
being effectively used in humanitarian response
operations around the globe.
 In order to support the Government of Myanmar in
realising its own first-ever national school feeding
programme, WFP and representatives from the
Government went on a study tour to Brazil to visit WFP’s
Centre of Excellence against Hunger. The purpose of the
trip was to enable Government officials to enhance their
knowledge on the development of multi-sector and
sustainable school feeding models, and included
representatives from the Ministries of Education, Health,
Agriculture and Border Affairs.
 In the framework of South-South and triangular
cooperation, WFP sponsored a study tour for staff
members from the Government of Myanmar to the
Philippines. The objective was for the two Governments
to share best practices in the area of logistics
preparedness and response and for the Government of
Myanmar to learn from the experiences of the Philippine
emergency preparedness and response model, which is
considered the best in Southeast Asia.
 The results of an external evaluation of WFP’s Protracted
Relief and Recovery Operation (PRRO) in Myanmar,
conducted in August-September 2016, were finalised and
published. The evaluation assessed WFP’s assistance
across its main activities as well as capacity
strengthening in Myanmar. Overall, the evaluation team
found the PRRO to be a well-implemented programme
that was being delivered in a challenging and dynamic
environment. The operation was relevant and
appropriate to the needs of the target groups, although
some outcomes were constrained by factors including
funding shortfalls. To read the full report, please use the
following link: https://www.wfp.org/content/myanmar-
prro-200299-supporting-transition-reducing-food-
insecurity-and-undernutrition-among-
Donors
Australia, Canada, China, Czech Republic, Denmark, European
Union, France, Germany, Global Fund, Italy, Japan, JAWFP,
Luxembourg, New Zealand, Norway, Republic of Korea, Sweden,
Switzerland, U.K, UN CERF, U.S.A. and private sector.
Contact info: wfpmyanmar.pi@wfp.org
Country Director: Dom Scalpelli
Further information: http://www.wfp.org/countries/myanmar
Country Background & Strategy
Myanmar is the second largest country in Southeast Asia.
The country is amidst an important political and socio-
economic transformation, marked by the election of its
first civilian government in 2016, led by Aung San Suu
Kyi’s National League for Democracy.
Nevertheless, ethnic conflicts and inter-communal violence
continue to exacerbate an already fragile situation in the
country. In addition, it is highly susceptible to natural
disasters and ranks second in the world among countries
most affected by such events, according to the Global
Climate Risk Index.
Myanmar remains one of the least developed nations in
the world with an estimated 37.5 percent or 20 out of its
53 million population living below the poverty line. Most
people in the country struggle with physical, social and
economic access to sufficient, safe and nutritious food to
meet their dietary needs and undernutrition rates remain
among the highest in the ASEAN countries.
Nearly one in three children under the age of five
countrywide suffers from chronic malnutrition (stunting)
while wasting prevails at seven percent. Furthermore, an
extremely low number of children aged 6-23 months—only
16 percent countrywide—are fed a minimum acceptable
diet. Eighty-three percent of children who enrol complete
primary school, but less than half of them complete middle
school and even fewer children progress onward.
WFP implemented its first operation in Myanmar in 1978 in
the northern part of Rakhine State and established its first
office in 1994. Currently WFP operates from the Country
Office in Yangon, a representative office in the capital Nay
Pyi Taw, three Area Offices and six Sub-Offices.
Chronic malnutrition: 29% of
children under the age of five
2016 Human Development Index:
145 out of 188
Income Level: Lower middle
Population: 53.2 million

4/22/2017 WFP Myanmar Country Brief, March 2017 Myanmar | ReliefWeb
http://reliefweb.int/report/myanmar/wfpmyanmarcountrybriefmarch2017 2/6
WFP Myanmar Country Brief, March 2017
Report
from World Food Programme
Published on 31 Mar 2017
Download PDF (500.36 KB)
Highlights

4/22/2017 WFP Myanmar Country Brief, March 2017 Myanmar | ReliefWeb
http://reliefweb.int/report/myanmar/wfpmyanmarcountrybriefmarch2017 3/6
In the northern part of Rakhine State, WFP assisted 25,500 foodinsecure and vulnerable people. The majority of displaced people returned to their villages of origin.
WFP successfully completed the second round of disbursements for the ewallet pilot project in Kachin State, which included three additional camps in March.
WFP conducted a mission assessing the use of unmanned aerial vehicles (UAVs) for humanitarian preparedness and response.
Operational Updates
In the northern part of Rakhine State, WFP delivered food to 25,500 foodinsecure people who had either been displaced or lost their homes or livelihoods during the
recent security operations in the area. A majority of displaced persons in the area returned to their villages either as a result of the Government’s authorisation or on their
own individual initiative.
In Kachin State, WFP successfully completed the second round of disbursements for its ewallet pilot project. In addition to the three camps in Myitkyina, the project
was expanded to include three additional camps in Waingmaw, thus targeting a total of 284 households or 1,400 displaced people. All participants received their monthly
cash assistance through accounts on WFPprovided mobile phones without major technical issues.
On 1724 March, WFP carried out a mission in preparation for the development of a coordination model for the use of unmanned aerial vehicles (UAVs) for humanitarian
preparedness and response. Fully funded by the Government of Belgium, the mission identified local actors currently working with UAVs and conducted assessments to
gather information on current developments, activities and plans from humanitarian actors in Myanmar related to the potential use of UAVs for largescale humanitarian
emergency operations. The novel technology holds the promise of a diverse portfolio of rapid strategic planning applications that are already being effectively used in
humanitarian response operations around the globe.
In order to support the Government of Myanmar in realising its own firstever national school feeding programme, WFP and representatives from the Government went on
a study tour to Brazil to visit WFP’s Centre of Excellence against Hunger. The purpose of the trip was to enable Government officials to enhance their knowledge on the
development of multisector and sustainable school feeding models, and included representatives from the Ministries of Education, Health,
Agriculture and Border Affairs.
In the framework of SouthSouth and triangular cooperation, WFP sponsored a study tour for staff members from the Government of Myanmar to the Philippines. The
objective was for the two Governments to share best practices in the area of logistics preparedness and response and for the Government of Myanmar to learn from the
experiences of the Philippine emergency preparedness and response model, which is considered the best in Southeast Asia.
The results of an external evaluation of WFP’s Protracted Relief and Recovery Operation (PRRO) in Myanmar, conducted in AugustSeptember 2016, were finalised and
published. The evaluation assessed WFP’s assistance across its main activities as well as capacity strengthening in Myanmar. Overall, the evaluation team found the
PRRO to be a wellimplemented programme that was being delivered in a challenging and dynamic environment. The operation was relevant and appropriate to the needs
of the target groups, although some outcomes were constrained by factors including funding shortfalls. To read the full report, please use the following link:
https://www.wfp.org/content/myanmarprro200299supportingtransitionred...
Ongoing
Primary country
Myanmar
Content format:
Situation Report
Language:
English

1
DREF n° MDRMM008 Amount allocated from DREF: CHF 69,653
Operation update n° 1 Date of issue: 17 March 2017
Period covered by this update: 20 Jan to 28 Feb 2017 Operations timeframe: 20 Jan to 19 Jul 2017 (extended)
N° of people planned to be assisted: 10,000
Host National Society presence: The Myanmar Red Cross Society (MRCS) has 40,000 active volunteers and 321
staff members across its national headquarters and 334 branches, including 10 branches in Rakhine State.
Red Cross Red Crescent Movement partners actively involved in the operation (if available and relevant): The
MRCS is working closely with the International Committee of the Red Cross (ICRC) and the International Federation
Red Cross and Red Crescent Societies (IFRC) in readiness measures for mounting an effective response. Danish Red
Cross and Qatar Red Crescent Society are also engaging in the readiness measures.
Other partner organizations actively involved in the operation: In addition to Myanmar public authorities at
national and state levels, several UN agencies and international non-governmental organizations (INGOs) are present
in the Rakhine State. The UN agencies include UNHCR, UN OCHA, UNICEF, UNFPA and WFP while the INGOs
include ACF, CARE, Malteser International and MSF.
Extension of operation timeframe: This operations update extends the operation timeframe by three months. The
operation will now be completed by 19 July 2017, with the final report to be issued by 19 October 2017.
A. Situation analysis
Description of the crisis
The humanitarian situation in the northern areas of Rakhine State, Myanmar, has deteriorated in recent months
following an upsurge of violence. The new wave of violence has led to mass displacement and population movement.
However, until a comprehensive assessment is completed, the total number of people who remain displaced within
cannot be determined independently. The northern parts of the three townships of Buthidaung, Maungdaw and
Rathedaung – where an estimated 95 percent of the population comprises of Muslim communities – are most
affected. UN OCHA has reported that available information at present indicates that an estimated 94,000 people fled
their homes to either other parts of northern Rakhine or across the border into Bangladesh.
The new wave of violence followed by attacks by armed militants on three border guard police posts in Maungdaw and
Rathedaung townships near the north-western border with Bangladesh has been reported in the early hours of 9
October 2016. Per the authorities, nine police and eight attackers were killed in the attacks which triggered a security
response from the authorities. Several further clashes occurred in November 2016. As part of the security response,
access to some areas, including by humanitarian organizations, has since been denied. Cases of civilian casualties,
violence against civilians, civilian arrests and destruction of property have been reported, although they have not been
independently verified due to restricted access and limited first-hand information.
It is important to note that the recent events have taken place against a backdrop of decades of protracted tension and
violence between Rakhine and Muslim communities in the state. Prior to the October 2016 events, violence had flared
up in other parts of Rakhine State in 2012, affecting at least 145,000 people from both Rakhine and Muslim
communities, many of whom were left dependent on humanitarian assistance. Since 2014, and until the October
events, the situation was relatively stable even though significant humanitarian needs persisted.
The recent events caused widespread fear in both Rakhine and Muslim communities. Some 3,000 Buddhist Rakhine
villagers fled to towns. However, UN OCHA has reported that most of the ethnic Rakhine and Mro people who were
DREF operation update
Myanmar: Complex Emergency

2
displaced have returned to their villages, although around 272 Rakhine and Mro people remain displaced in
Maungdaw and Buthidaung.
According to UN OCHA, access to 81 village tracts in Buthidaung and Maungdaw, including 17 village tracts in the
northern part of Maungdaw, was granted briefly in mid-December 2016 before it was again suspended with immediate
effect a few days later. In the most recent update, it is mentioned that five months since the new wave of violence
started, there has been an incremental resumption of some services provided by UN agencies and humanitarian
organizations in northern areas of Rakhine State although protection activities remain suspended in Maungdaw north
and the operating environment remains challenging. Access is being granted for national staff only. These limitations
are significantly affecting the quantity, quality and sustainability humanitarian assistance and other services.
The ICRC was provisionally given the greenlight to access the area of the ongoing clearance operations in the
northern parts of Maungdaw since mid-November, but authorities continued to invoke security concerns to postpone
actual access. The Movement has thus far not yet been able to carry out assessments or to provide assistance to the
affected population outside Maungdaw and Buthidaung townships.
Summary of current response
MRCS has been responding to the
displacement crisis in Rakhine since
its onset in June 2012. As a means of
providing human resources within a
sensitive context, the National Society
has deployed teams of volunteers
monthly from other states/regions in
the country to support operations, and
has slowly built up a programme with
a team based in Sittwe; now called the
Rakhine Special Programme (RSP).
Interventions have included on-going
distribution of relief items; provision of
WASH services in IDP camps
(including water trucking); mobile
health clinics; providing primary health
care in IDP camps; emergency
medical transportation; renovation of
rural health centres, and; construction
of temporary shelters in IDP camps.
More recently, MRCS has provided
livelihood support and rehabilitated
water sources in indirectly affected
communities in central Rakhine
townships of Sittwe and Minbya.
In the early days of the northern areas of Rakhine State crisis, MRCS worked closely with the ICRC, and with support
of the IFRC, in delivering much-needed assistance to over 3,000 internally displaced persons (IDPs) in the north
(Buthidaung, Kyauktaw and Maungdaw) and central Rakhine (Mrauk-U and Sittwe) through provision of essential
items such as drinking water, mosquito nets, kitchen sets, hygiene kits and tarpaulins.
At the request of MRCS, IFRC allocated CHF 69,653 from DREF on 20 January 2017 to support emergency response
preparedness measures that will position the National Society – with support of its Movement partners – to roll out a
prompt and effective response as soon as access is granted. Following the allocation, some of the readiness
measures undertaken so far include the appointment of an MRCS coordinator of the operation, establishment of an
operational hub in Maungdaw, procurement of office and IT materials for the hub, a joint MRCS-IFRC security
assessment, a state-level Movement dissemination and dialogue with the Community Social Organization in Sittwe,
coordination and advocacy meetings with township disaster management committee members, mobilization of Red
Cross volunteers in Butheetaung, Maung Taw and Yathaetaung, readiness meeting with Red Cross volunteers in
Maungdaw, and procurement of 200 family kits.
As access constraints remain, it has been very difficult for any actor to operate in the affected areas. Continuous
dialogue is being held with the authorities but so far it has led to very limited access by a few humanitarian actors.
Thus far, the most affected parts in northern areas of Rakhine have not been reached for independent assessments
Myanmar Red Cross Society (MRCS) personnel lead a coordination and
advocacy meeting in Maungdaw. Photo: MRCS

3
even though the authorities have indicated that ‘clearance operations’ are over. Nevertheless, the Movement is ready
to conduct assessments and deliver humanitarian assistance as soon as access restrictions are lifted.
In the response, MRCS will work closely following a Movement-wide approach. The ICRC will be the main partner
supporting MRCS – through joint operations – in delivery of assistance to populations affected by the crisis with the
IFRC mainly supporting MRCS preparedness for emergency response and replenishment of some preparedness
stocks released from the National Society’s warehouses. IFRC and the Qatar Red Crescent Society also stand ready
to support MRCS in provision of assistance, where appropriate, complementary to the ICRC support.
Movement Coordination
Prior to the recent spike of violence in the northern area of Rakhine State, there was already a strong and well-
established Movement coordination mechanism in place, which is led by MRCS with the support of IFRC and ICRC.
The coordination mechanism is a permanent feature and brings together MRCS and all its Movement partners with in-
country presence. With this new response, the coordination mechanisms will expand to the field and be reinforced to
guarantee that Movement partners communicate and work effectively together to achieve the operational priorities.
So far, MRCS, ICRC and IFRC – engaging other Movement partners with in-country presence – have worked
collectively to prepare and agree on a Special Note (issued on 22 November 2016), a Movement Joint Statement
(issued on 14 December 2016) and reactive lines/talking points on the humanitarian situation in northern areas of
Rakhine State. Prior to issuance of the Movement Joint Statement, an ad hoc Movement tripartite meeting (comprised
of the MRCS president, ICRC head of delegation and IFRC head of office) was held in Yangon on 12 December 2016
to review contingency plans and align communication once access is granted for an independent assessment and
subsequent delivery of humanitarian assistance. One outcome of the Movement tripartite meeting was an agreement
to develop a Movement Framework for Action, which outlines interventions that Movement partners could undertake
together (based on an actual independent needs assessment and their respective mandates and capacities), as well
as coordination mechanisms, to contribute to meeting humanitarian needs of the affected people.
The Movement coordination mechanisms will function at two levels: strategic (Yangon-based tripartite strategic level
comprising of the MRCS president, ICRC head of delegation and IFRC head of country office) and operational (in
Yangon, Sittwe and Maungdaw, involving operational/programming leads of MRCS, ICRC, IFRC and PNS involved).
Among others, the two levels will facilitate joint planning and preparedness, leading to a coordinated response
implementation based on common standards and approaches, harmonized resource mobilization, common external
communication, and well-coordinated efforts aimed at enhancing presence and building the capacity of MRCS base
units in the northern area of Rakhine State.
Coordination with other stakeholders
Coordinating with the authorities
The Movement continues to engage with the authorities at national and state levels with the view of gaining access to
affected areas to deliver humanitarian assistance in accordance with the Fundamental Principles and other Movement
policies. Movement partners are investing in strengthening their communication with key stakeholders, including
communities and the Rakhine state parliament, to increase trust and acceptance, and gain access to restricted areas.
In view of the situation in northern areas of Rakhine State as well as considering historical aspects, the Movement
remains concerned about mounting humanitarian needs and the potential for violence throughout the state.
Inter-agency coordination
MRCS, ICRC and IFRC participate in meetings of the Humanitarian Country Team (HCT) held both during
disaster/crisis and non-emergency times at the national and field levels. The Movement also engages in active
coordination as well as shares information and operational updates with UN OCHA, relevant clusters and working
groups. This contributes to ensuring that there is no duplication of efforts and that synergies are maximized.
Given the recent rise in anti-humanitarian agencies sentiments within the Rakhine community, operational proximity,
even if only visibly, with other organizations that are not well received by segments of the community has the potential
of eliciting negative perceptions that may impact the Movement’s acceptance. As such, collaboration with external
agencies is being managed carefully to protect the acceptance of MRCS and other Movement components.
B. Operational strategy and implementation
Overall overview
This DREF allocation aims to prepare and position the MRCS to work both on its own and with the ICRC, with support
of the IFRC, to conduct assessments and respond to immediate needs of people affected by the recent spike in
violence in northern areas of Rakhine State as soon as access is granted.

4
The operational strategy
This operation was designed based on scenario planning developed by MRCS, in consultation with the ICRC and with
support of IFRC, and focuses on emergency response preparedness measures. In anticipation of increased access,
the Movement is putting in place readiness mechanisms to ensure a prompt roll-out of an effective response. MRCS
continues to work within a Movement-wide approach, with ICRC as the main operational partner supporting the
National Society in the delivery of assistance to populations affected by the crisis. The IFRC is also supporting MRCS
emergency response preparedness and replenishment of preparedness stocks released from the National Society’s
warehouses. Based on assessments and discussions with MRCS and ICRC, IFRC and Partner National Societies
with in-country presence may support MRCS in service delivery, complementary to that provided by the ICRC.
C. Detailed operational implementation
Quality programming
Outcome 1: The MRCS is
better prepared to respond to
immediate needs of people
affected violence in northern
areas of Rakhine State
Outputs % of
achievement
Output 1.1: Emergency response readiness capacity in
place and supports the immediate response of MRCS
50%
Activities
Is implementation
on time? % progress
(estimate)
Yes (x) No (x)
1.1.1 Establish an operational hub in Maungdaw for coordination of
the immediate response
x 85%
1.1.2 Place MRCS staff and volunteers on stand-by for immediate
response
x 25%
1.1.3 Mobilize and train MRCS personnel on conflict-sensitive
programming, including GBV, and community engagement and
accountability
x 25%
1.1.4 Mobilize relevant surge IFRC capacity to support MRCS in
specific technical areas not available in-country
x 50%
1.1.5 Undertake a security assessment in the northern areas of
Rakhine State
x 100%
1.1.6 Organize refresher training, including in security and logistics,
for MRCS personnel deploying to the northern areas of Rakhine
State
x 25%
1.1.7 Mobilize supplies and equipment closer to the northern areas of
Rakhine State
x 65%
1.1.8 Mobilize vehicles and temporary storage capacity closer to the
northern areas of Rakhine State
x 25%
1.1.9 Replenish non-food relief items released from MRCS
preparedness stocks
x 50%
Progress towards outcomes
Following the DREF allocation, and with additional support from the ICRC, MRCS has so far undertaken some
readiness measures that will enable a swift as soon as access is granted. In this regard, an operational hub was
established in Maungdaw on 1 March and a staff member appointed in mid-February to lead MRCS coordination at
the field level. Procurement of office supplies and IT equipment for the hub is underway.
Furthermore, MRCS has started to mobilize Red Cross volunteers in Maung Taw, and held advocacy meetings with
local authorities in Maungdaw to prepare access and for response. IFRC supported MRCS for the readiness efforts
through mobilization of personnel from its offices in Yangon and Sittwe. The support includes a joint MRCS-IFRC
security assessment, which was conducted on 16 to 20 January prior to the establishment of the hub. During the
second half of February, IFRC also deployed its Asia Pacific Regional migration coordinator to support MRCS
headquarters team in Yangon on aspects of this operation as well as the displacement agenda at large. Finally,
MRCS has initiated the procurement of 200 family kits via the IFRC Regional Logistics Unit (RLU) in Kuala Lumpur to
replace those dispatched from preparedness stocks.

5
Outcome 2: Assessment and
analysis is used to inform the
design and implementation of
the operation.
Outputs % of
achievement
Output 2.1: Needs assessments are conducted and
response plans updated according to findings.
22%
Activities
Is implementation
on time?
% progress
(estimate)
Yes (x) No (x)
2.1.1 Mobilize MRCS staff and volunteers for assessments x delayed
2.1.2 Organize refresher assessment training for MRCS staff and
volunteers, ensuring compatibility with ICRC approach to facilitate
joint operations where feasible.
x delayed
2.1.3 Undertake joint MRCS-ICRC assessments to determine
specific needs of communities
x delayed
2.1.4 Develop an evolving response plan, following a Movement
approach, with activities that will meet identified community needs
x 90%
Progress towards outcomes
The ICRC was provisionally given the greenlight to access the area of the ongoing ‘clearance operations’ in the
northern parts of Maungdaw in mid-November 2016, but authorities have continued to invoke security concerns to
postpone actual access. As such, MRCS and its Movement partners have not yet been able to carry out
assessments outside Maungdaw and Buthidaung townships. However, during February, state-level Movement
dissemination and dialogue was held with the Community Social Organization in Sittwe. In addition, coordination
and advocacy meetings with township disaster management committee members, including the chairman of
General Administration Department (GAD), the police, the medical officer and the education officer.
Challenges
Access constraints have made it difficult for any actor, including MRCS, to operate in the affected areas. As such the
most affected parts in northern areas of Rakhine are yet to be reached for independent assessments. Nevertheless,
the Movement is ready to conduct assessments as soon as access restrictions are lifted.
It is due to the access challenge that MRCS has requested a three-month extension of this DREF operation’s
timeframe. The extension will enable the National Society to maintain adequate readiness for rolling out a response
operation – starting with needs assessments – as soon as access is granted.

6
Reference
documents

Click here for:
 Emergency Plan
of Action (EPoA)
Interim Financial
Report
Contact information
In Myanmar Red Cross Society, Yangon:
 U Khin Maung Hla, secretary general; email: ed-mrcs@myanmarredcross.org.mm
 Daw San San Maw, director of disaster management department;
email: dm1@myanmarredcross.org.mm
In IFRC Country Office, Yangon:
 Araceli Lloret, acting head of country office; email: araceli.lloret@ifrc.org
 Jesper Fridolf, acting programme coordinator; email: jesper.fridolf@ifrc.org
In IFRC Asia Pacific Regional Office, Kuala Lumpur:
 Martin Faller, deputy regional director; email: martin.faller@ifrc.org
 Nelson Castano, head of disaster and crisis unit (DCPRR); email:
nelson.castano@ifrc.org
 Necephor Mghendi, operations coordinator; mobile: +60-122-246-796; email:
necephor.mghendi@ifrc.org
For resource mobilization and pledge enquiries:
 Diana Ongiti, relationship manager, emergencies; diana.ongiti@ifrc.org
For communications enquiries:
 Patrick Fuller, communications manager; mobile: +60-122-308-451;
email: patrick.fuller@ifrc.org
For planning, monitoring, evaluation and reporting (PMER) enquiries
 Clarence Sim, PMER Coordinator; email: clarence.sim@ifrc.org
In IFRC Geneva:
 Cristina Estrada, response and recovery lead; cristina.estrada@ifrc.org
 Janet Porter, Response and Recovery Senior Officer; email: janet.porter@ifrc.org
How we work
All IFRC assistance seeks to adhere to the Code of Conduct for the International Red Cross and Red Crescent
Movement and Non-Governmental Organizations (NGO’s) in Disaster Relief and the Humanitarian Charter
and Minimum Standards in Humanitarian Response (Sphere) in delivering assistance to the most
vulnerable. The IFRC’s vision is to inspire, encourage, facilitate and promote at all times all forms of
humanitarian activities by National Societies, with a view to preventing and alleviating human suffering,
and thereby contributing to the maintenance and promotion of human dignity and peace in the world.

INTERIM REPORT AND
RECOMMENDATIONS
MARCH 2017

3
Table of Contents
Introduction 4
Mandate of the Advisory Commission 4
Purpose of this report 4
Nomenclature 5
Modus operandi 5
Context of the Commission 5
Acknowledgments 7
Interim Recommendations 7
Humanitarian access 7
Media access 8
Justice and rule of law 8
Border issues and the bilateral relationship with Bangladesh 8
Socioeconomic development 10
Training of security forces 10
Citizenship and freedom of movement 11
Closure of IDP camps 12
Cultural issues 13
Inter-communal dialogue 14
Representation and participation in public life 14
Regional relations 15

4
Introduction
Mandate of the Advisory Commission
The Advisory Commission on Rakhine State – chaired by Mr Kofi Annan – was
established on 5 September 2016 at the behest of Myanmar’s State Counsellor Daw
Aung San Suu Kyi. According to the Commission’s Terms of Reference – agreed by
the Government of Myanmar and the Kofi Annan Foundation – the Commission will
analyse the present situation of all communities in Rakhine State, and seek to
identify the factors that have resulted in violence, displacement and under-
development. In doing so, the Commission will consider humanitarian issues, living
conditions, access to health, education and livelihoods, the question of citizenship
and freedom of movement, and the assurance of basic rights. In accordance with
established international standards, the Commission will develop recommendations
within five thematic areas: conflict prevention, humanitarian assistance,
reconciliation, institution building and development.
The Commission is composed of six national members (U Win Mra, U Aye Lwin, Dr.
Tha Hla Shwe, Dr. Mya Thida, Daw Saw Khin Tint and U Khin Maung Lay) and three
international members (Mr Ghassan Salamé, Ms Laetitia van den Assum and Mr Kofi
Annan).
Purpose of this report
The main body of recommendations will be presented in the Commission’s final
report towards the end of August 2017. However, pending the publication of the
final report, the Commission has decided – in line with its mandate – to present a
set of interim recommendations. This decision was made in light of the recent
developments in northern Rakhine State, which necessitate urgent action from the
government and other stakeholders, in order to ward off any further violence while
also laying the groundwork for a more peaceful and prosperous future. While the
final report will address all issues covered by the Commission’s mandate, this
interim report addresses issues where urgent action is required. Implementation
of the interim recommendations will inform and inspire the content of the final
report.
The Commission is not mandated to investigate specific alleged human rights
violations. Rather, it seeks to address institutional and structural issues which
undermine the prospects for peace, justice and development in Rakhine, and to
propose concrete steps that may contribute to improving the well-being of all
communities in the state.

5
Nomenclature
In line with the request of the State Counsellor, the Commission uses neither the
term “Bengali” nor “Rohingya”, who are referred to as “Muslims” or “the Muslim
community in Rakhine”. This does not include the Kaman Muslims, who will simply
be referred to as “Kaman”.
Modus operandi
The Commission has sought input and advice from a wide range of stakeholders. In
Rakhine state these include the State government, the Rakhine parliament,
political parties, religious institutions, civil society organizations, village elders,
private sector representatives and residents of various villages and Internally
Displaced People (IDP) camps. At the Union level, the Commission has met with
political and military leaders, including the President, the State Counsellor and the
Commander-in-Chief. In Bangladesh, the Commission has met with government
officials in Dhaka, and visited various refugee camps in Cox’s Bazar. The
Commission has also consulted international actors, including UN officials,
representatives from International Non-Governmental Organisations (INGO’s), and
independent analysts. The Commission has sought to ensure full participation of
the Rakhine and Muslim communities, and has consulted an equal number of
Rakhine and Muslim stakeholders. The Commission has also made special efforts to
include youth and women in its consultations.
Since 5 September 2016 when the Commission was inaugurated, it has carried out
115 consultation meetings in Sittwe, Mrauk U, Myebon, Kyawkpyuh, Ramree,
Maungdaw, Buthidaung, Yangon and Naypyidaw – as well as in Dhaka and Cox’s
Bazar in Bangladesh. During these meetings, the commissioners have met with
approximately 760 representatives of various stakeholders. Additionally, individual
commissioners have reached out to a variety of other actors.
Context of the Commission
The context in which the Commission operates is a highly challenging one. Rakhine
State represents a complex mixture of poverty, under-development, inter-
communal tension, and centre-periphery grievances. In many parts of Rakhine,
local communities harbour deep-rooted fears of the intentions of other groups, and
trust in government institutions is limited. In particular, the government’s ability
to provide services – including protection – to all communities has for long been
suboptimal. The Commission recognizes the complex nature of the challenges in
Rakhine, and the lack of available “quick fix solutions”.

6
During the Commission’s first six months, various issues have complicated its work:
 The security situation in Rakhine has sharply deteriorated. Armed attacks on
the Border Guard Police in Maungdaw on 9 October, 2016 resulting in the
loss of life of members of the security forces, were followed by an extensive
military and police operation. Violence and destruction of private property
led to a significant number of Muslim residents fleeing across the border to
Bangladesh. Although violence did not spread to other parts of Rakhine,
inter-communal relations have suffered a major setback across the state.
Moreover, while military operations were scaled down in the beginning of
2017, a significant risk of renewed violence remains. While the first months
after the 9 October attacks were characterized by a strongly securitised
response, the situation now urgently requires an integrated and calibrated
response - one that combines political, developmental, security and human
rights responses to ensure that violence does not escalate and inter-
communal tensions are kept under control. If human rights concerns are not
included – and people’s rights and voices are ignored – this may provide
fertile ground for radicalization, as local communities may become
increasingly vulnerable to recruitment by extremists. If not addressed
properly, this may not only undermine prospects for development and inter-
communal cohesion, but also the overall security of the state.
 From the very beginning, some stakeholders have fully or partially refused
to engage with the Commission. In early September 2016, a motion in the
national parliament sought to dissolve the Commission due to its
international component. While the motion eventually failed, a similar
motion in the Rakhine State parliament in mid-September was successful,
leading to a boycott by some Rakhine stakeholders (including the parliament
and the Arakan National Party). Although the Commission has managed to
engage directly with some of these actors, the boycott has to some extent
hampered the Commission’s efforts to get buy-in from all relevant
communities in the state.
 In November 2016, the Myanmar government established an investigation
commission to investigate the violent attacks in Maungdaw, headed by Vice
President U Myint Swe. Although the mandates of the two commissions are
different, they nevertheless have some over-lapping aspects. The fact that
both bodies were commissioned by the Government of Myanmar has at times
generated some public confusion with regard to the roles and
responsibilities of the respective commissions. While the second commission
was established in order to investigate the attack in Maungdaw on 9
October, the Rakhine Advisory Commission – which was established prior to
these events – has a different mandate, addressing the long-term and
structural challenges in the state.

7
 The Commission was established by the State Counsellor but the security
agencies - which must play a key role in the management and resolution of
the conflict in Rakhine State - have a separate line of authority. However,
the Commander in Chief assured the Chairman of the Commission that the
security forces would cooperate with the Commission in its work.
 Following the recent violence in northern Rakhine State, the international
discourse on Rakhine has become more heated and confrontational.
Domestic and international actors have sought to influence the Myanmar
government in opposite directions. Such polarization has obviously made the
work of the Commission more complex and difficult, as it seeks to
understand the origins of the state’s challenges and reach agreed findings
and recommendations.
Acknowledgments
The Commission would like to express its appreciation for the invaluable support
and input provided by a wide range of stakeholders, before and after its
establishment. These include: the President of the Republic, the State Counsellor
and other members of the Myanmar government; upper and lower houses of
Parliament, the Tatmadaw, the Rakhine State government; Rakhine and Muslim
political parties, religious associations and civil society organizations; town elders
and residents of villages, IDP camps and refugee camps; UN officials, INGO
representatives, academics and analysts; accredited diplomats in Yangon, and
officials from other countries in the region, including Bangladesh, Thailand and
Indonesia. The Commission looks forward to continuing this cooperation, including
with other countries in the region.
Interim Recommendations
1) HUMANITARIAN ACCESS
Context: Since the beginning of the military operations carried out by Myanmar
security forces in the wake of the armed attack against the Border Guard Police on
9 October 2016, parts of Maungdaw Township have been largely inaccessible to
humanitarian actors. With a limited number of exceptions, aid organizations have
not been allowed to enter the area to provide their usual range of services and
assistance to the local population or carry out needs assessments. The Commission
was informed by the army leadership that the military operations were ended on 1
February 2017.
Recommendations:
 The Myanmar government and the Rakhine State government should allow
full and unimpeded humanitarian access to all areas affected by recent

8
violence. The government, assisted by international partners, should ensure
adequate assistance to all communities affected by the violence.
2) MEDIA ACCESS
Context: Since the beginning of the military operations in northern Rakhine State,
media access to the area of operation has been highly restricted. The Commission
believes that such restrictions, which inhibit the flow of information, are
detrimental to the government’s efforts to develop an effective and transparent
policy to respond to the crisis in northern Rakhine State.
Recommendation:
 Myanmar authorities should provide full and regular access for domestic and
international media to all areas affected by recent violence.
3) JUSTICE AND RULE OF LAW
Context: In the wake of the fatal attack on the Border Guard Police on 9 October
2016 and the subsequent military operations carried out in northern Rakhine State,
allegations have been made of serious violations of human rights law by the
security forces during these operations.
Recommendation:
 In light of the allegations of serious violations of human rights law, the
government should – based on independent and impartial investigation –
ensure that perpetrators of serious human rights violations are held
accountable.
4) BORDER ISSUES AND THE BILATERAL RELATIONSHIP WITH BANGLADESH
Context: The recent crisis in northern Rakhine State has underlined the
importance of the Myanmar/Bangladesh relationship. Close cooperation is
essential in order to: manage potential threats of cross-border terrorism and other
dangers; the movement of people between the two countries, and to capitalise on
the opportunities presented by increased cross-border trade.
Recommendations:
 The Governments of Myanmar and Bangladesh should strengthen bilateral
ties by immediately activating a joint commission, consisting of senior
political and security officials from both sides. The joint commission – which
should meet at least every quarter – should address the following issues:

9
o Facilitate the voluntary return of refugees from Bangladesh to
Myanmar through joint verification, in accordance with international
standards.
o Establish a joint mechanism to combat human trafficking, drugs
smuggling and illicit trade – as well as illegal practices enabling such
activities.
o Develop a joint strategy to address the issue of illegal migration.
o Promote a joint strategy to revive cross-border trade and investment,
with private sector participation, and re-open all legal border
crossings.
o Strengthen intelligence sharing and cooperation to combat terrorism.
 When refugees from northern Rakhine State return from Bangladesh, the
Government of Myanmar should help create a secure environment and,
where necessary, assist with shelter construction for those whose homes
have been destroyed.
5) SOCIOECONOMIC DEVELOPMENT
Context: Rakhine is the second poorest state in Myanmar; the economic
environment is failing to provide adequate livelihood opportunities for the labour
force, and the economy is marked by a deficit of skilled labour and a lack external
investment in productive sectors. While access to basic health services is low for
all communities, Muslims face particular obstacles due to movement restriction,
language difficulties, inability to pay for treatment, and refusal by some health
facilities to treat Muslim patients. There is a great need for long-term investment
in medical facilities and infrastructure – both in Sittwe and other areas across the
state – as well as the recruitment of additional qualified health personnel. As for
education, the state lags behind the national average, with high illiteracy rates
and low primary school completion rates. Of particular concern is the Muslim
community’s lack of access to higher education due to discriminatory policies and
the lack of freedom of movement.
In mid-2016, the Rakhine State government – assisted by the UN – started to draw
up the Rakhine State Socio-Economic Development Plan, a 5-year plan aiming to
boost development in various sectors.
Recommendations:
 The Commission recommends that the Rakhine State government rapidly
finalise and publicise the plan, which should be based on an inclusive
approach that takes into consideration, and gives priority to, the needs of
all local communities.
 The Union government should carry out a comprehensive assessment (or a
so-called strategic environment assessment) for Kyawkpyuh and its environs
to explore how the Special Economic Zone (SEZ) may affect local

10
communities and map how other economic sectors in the state may benefit
(or possibly suffer) from the SEZ.
 The Commission recommends the fast-tracking of the following:
o Vocational and technical training: The Government of Myanmar
should develop a comprehensive plan for vocational and technical
training in Rakhine, to be supported by international donors. The
government should put special emphasis on skills training for women.
o Education: Immediately expand primary education to the
communities in the northern part of Rakhine State.
o Health: The government should quickly finalize a plan for the
expansion and refurbishment of Sittwe State Hospital, for the benefit
of all communities and rapidly expand primary health care services in
the southern and northern parts of Rakhine State (for instance
through mobile health clinics).
 The Union government and the Rakhine State government should ensure –
and publicly state – that all communities have equal access to education,
irrespective of religion, ethnicity, race, gender, or citizenship status. As
such, the government should also reverse discriminatory policies that bar
Muslim students from higher education.
 The Union government and the Rakhine State government should ensure –
and publicly state – that all communities have equal access to health
treatment, irrespective of religion, ethnicity, race, gender, or citizenship
status. The authorities should commence the removal of administrative
obstacles that impede access to health care.
 Both the Union government and Rakhine State government should encourage
companies investing in Rakhine to give preference in hiring to the people
from Rakhine State. The Commission commends the government for
consulting with civil society during the development of the Rakhine State
Socio-Economic Development Plan (SEDP). However, the dialogue with civil
society needs to continue during the implementation period of the SEDP,
and the government should seek to establish formal mechanisms to ensure
regular and structured input from civil society.
6) TRAINING OF SECURITY FORCES
Context: Given the complex security environment in Rakhine State, the capacity
of the police and other security forces to anticipate and manage threats to law and
order in conformity with the provisions of Myanmar law as well as internationally
accepted standards, needs to be significantly enhanced.
Recommendations:
 The Government of Myanmar should - as an urgent measure - ensure
comprehensive training for police and other security forces deployed in
Rakhine, covering areas such as human rights and respect for cultural and
religious diversity. International donors should support such efforts by
providing technical and financial assistance.

11
 The composition of the police force should reflect the population in all
components, including women and minorities.
7) CITIZENSHIP AND FREEDOM OF MOVEMENT
A. Citizenship
Context: Protracted statelessness has left the Muslim community in Rakhine
vulnerable to discrimination and abuse, and the community faces restrictions on
movement, pursuit of livelihood, ownership of land, and access to health and
education. A citizenship verification process – advanced by both the former and
the current government – has so far been unsuccessful, with only around 2,000
individuals being granted a form of citizenship to date. Many Muslims have refused
to participate in the process due to a dearth of information, lack of tangible
benefits for those who are eventually verified as citizens, or the rejection of self-
identification. On the other hand, the process has also been rejected by parts of
the Rakhine community, fearing that corruption will undermine the process and
provide many ineligable Muslims with citizenship.
Recommendations:
 Those verified as citizens should enjoy all benefits, rights and freedoms
associated with citizenship. Consequently – and in line with the
government's rule-of-law agenda – all who have been identified as citizens
should have full freedom of movement. This will demonstrate immediate
tangible benefits of the verification exercise.
 The Government of Myanmar should immediately establish a clear strategy
and timeline for the citizenship verification process. This strategy should be
transparent, efficient, and with a solid basis in existing legislation. The
strategy should be discussed with members of the Rakhine and Muslim
communities, and communicated through a broad outreach campaign. The
strategy should include a clear timeline for the different stages of the
process.
 Complaints related to the on-going verification processes should be
addressed swiftly by a government authority independent of the institutions
responsible for the implementation of the verification processes.
 The Government of Myanmar should ensure that children and descendants of
citizens do not have to go through the National Verification Card process (a
preparatory step towards the citizenship process for undocumented people)
but qualify automatically to apply for citizenship.
 The Rakhine and Muslim communities should work constructively with the
government to revitalize the citizenship verification process.

12
B. Freedom of Movement:
Context: Both Muslims and Rakhines face restrictions on movement. While most
Muslim IDPs are almost entirely deprived of freedom of movement, other Muslims –
and to a certain extent some Rakhines – face limitations due to a patchwork of
government-imposed restrictions, ad hoc decisions by local officials, and
exorbitant travel costs due to corrupt practices. In effect, access to health,
education and other services is reduced. Moreover, both communities face self-
imposed restrictions related to fear of neighbouring communities, limiting access
to farmland, fishing areas and markets.
Recommendation:
 The Government of Myanmar should initiate a process to map all existing
restrictions on movement in Rakhine, covering all communities. Such an
exercise should also investigate and determine additional travel costs
generated by informal payments to allow passage.
C. Birth Certificates
Context: Birth registration of Muslim babies came to an almost complete halt after
the violence in 2012. Today, the majority of Muslim children – as well as some
Rakhine children – lack such documentation. While exact figures are scarce,
estimates suggest that almost half of the children in Rakhine State do not have
birth registration.
Recommendation:
 The Commission recommends that the Government of Myanmar roll out a
comprehensive birth registration campaign - with door-to-door visits carried
out by mobile teams - in order to reach all children. International actors
(including the United Nations and donors) should assist such efforts
technically and financially in accordance with needs.
8) CLOSURE OF IDP CAMPS
Context: More than 120,000 Muslims are confined to IDP camps throughout the
state, a result of the violence in 2012. Efforts to facilitate the return or relocation
of IDPs have shown little progress. In 2014, the former government sought to
address this issue through the development of the Rakhine State Action Plan,
which was only implemented to a limited extent. The current government has yet
to develop a comprehensive plan to address the issue.
Recommendations:
 The Government of Myanmar should prepare a comprehensive strategy
towards closing all IDP camps in Rakhine State. The strategy should be
developed through a consultation process with affected communities, and

13
contain clear timelines. It should also contain plans for the provision of
security and livelihood opportunities at the site of return/relocation.
 More immediately, as a first step and sign of goodwill, the Government of
Myanmar should facilitate the return and relocation of IDPs from the
following the three locations mentioned below, in view of the established
feasibility and safety of their return. It should also establish a designated
security unit to ensure the safety of returnees and the neighbouring
communities.
o 55 Kaman Muslim households still displaced in Ramree. The
Government of Myanmar should support shelter reconstruction in
their original villages, and inform and prepare the Rakhine
community for their return.
o 215 Muslim households from Min That Phar village, currently living in
Kyein Ni Pyin camp. The government should support the construction
of individual houses for the returnees, and take the appropriate
measures to facilitate reintegration into local communities.
o Approximately 65 Rakhine households from Ka Nyin Taw who are
ready to move to an already identified relocation site. The
government should provide additional funds to provide the necessary
infrastructure.
9) CULTURAL ISSUES
Context: Mrauk U – arguably the greatest physical manifestation of Rakhine’s rich
history and culture – has been on UNESCO’s tentative list for becoming a world
heritage site since 1996. If such a status was granted, this could eventually serve
to boost national and international tourism to Rakhine, and thus help strengthen
the State’s economy. From the government’s side, much needs to be done to
ensure Mrauk U’s eligibility, including formally proposing the site for such a status.
Recommendation:
 As a first step, pending a comprehensive mapping of all cultural and
historical sites in Rakhine, the Government of Myanmar should officially
declare its intention to propose Mrauk U as candidate for the status as a
UNESCO world heritage site. The government should work closely with
UNESCO and local communities to ensure that formal criteria are fulfilled,
with international donor support.
10) INTER-COMMUNAL DIALOGUE
Context:
Inter-communal cohesion was significantly weakened as a result of the violence in
2012. In general, willingness to reconcile seems to have increased within both
communities over the following years, however positive developments were
partially or fully cancelled out by the recent violence in Northern Rakhine. There

14
are various barriers to inter-communal dialogue, including deep-rooted fears
towards the other community, active resistance from some quarters, as well as
government-imposed restrictions on freedom of movement, limiting the degree of
contact. Yet, levels of trust differ from area to area: in southern parts of the
state, relations remain more positive than in the centre and the north. It should
also be noted that the recent violence did not spread to other parts of Rakhine,
unlike events in 2012. However, without reconciliation, prospects for development
and peace in Rakhine State will be severely undermined.
Encouraging dialogue among young people is especially important and the final
report of the Commission will develop specific recommendations to that end.
Recommendations:
 The Government of Myanmar – both at the Union and State level – should
publicly encourage inter-communal harmony and encourage dialogue, and
proactively dispel misinformation about different communities.
 The Government of Myanmar should forcefully denounce all kinds of hate
speech, and hold perpetrators accountable. Political, religious and
community leaders should be echoing this message.
 Rakhine and Muslims are encouraged to establish joint markets (“friendly
bazars) – accessible to both Rakhines and Muslims – and the Government of
Myanmar should proactively support and facilitate such efforts.
11) REPRESENTATION AND PARTICIPATION IN PUBLIC LIFE
Context: There is a fundamental lack of Muslim representation at all levels of
Myanmar’s political system. Muslims are represented neither in the national
parliament, nor in the regional parliament in Sittwe. The Muslim community also
face barriers to establishing civil society organizations, leaving the community
without clear representative mechanisms. The Government of Myanmar should
therefore look to strengthen Muslim political and civil society representation.
Recommendations:
 As an immediate step, the government should establish consultative
mechanisms which give voice to the state’s Muslim inhabitants.
 The government should allow Muslims in Muslim-majority villages and village
tracts to become village administrators.
12) REGIONAL RELATIONS
Context: Viewing the challenges in Rakhine as a domestic issue, Myanmar has
traditionally been reluctant to engage with its neighbours on the issue. However,
on 19 December 2016, the State Counsellor invited ASEAN foreign ministers to
Yangon to inform them about recent developments in Rakhine. In January, she

15
dispatched a special envoy to Dhaka to initiate high-level talks with Bangladesh on
the recent refugee crisis.
Recommendations:
 The government should continue its initiative to brief ASEAN members on a
regular basis on the broader dimensions and regional implications of the
situation in Rakhine State. The Government of Myanmar should maintain a
special envoy to engage with neighbouring countries on this issue.

MYANMAR
Credit: Reuters/Soe Zeya Tun
DEC 2016
NEEDS
HUMANITARIAN
OVERVIEW
2017
UNITED NATIONS AND PARTNERS HUMANITARIAN COUNTRYTEAM

02

SHAN
KACHIN
SAGAING
CHIN
BAGO
MAGWAY
KAYIN
RAKHINE
MANDALAY
AYEYARWADY
KAYAH
MON
TANINTHARYI
YANGON
B a y
o f
B e n g a l
Mekong
ChaoPhraya
Bhramaputra
Irrawaddy
Salween
ARUNACHAL PRADESH
CHINAINDIA
BHUTAN
THAILAND
BANGLADESH
VIET NAM
CAMBODIA
LAO PEOPLE'S
DEMOCRATIC REPUBLIC
Chinese Line
Indian Line
NAY PYI TAW
250 km
People targeted
53%
48%
53%
50%
51%
52%
7%
12%
3%
% of IDPs by sex and age
Women & girls
Children (< 18 years)
Elderly (> 60 years)
KACHIN
104,000 people targeted
(including 87,000 IDPs)
SHAN
RAKHINE

03
humanitarian needs & key figures
HUMANITARIAN
NEEDS & KEY FIGURES
About 218,000 displaced people, of which 78 percent are women and children, remain in camps or camp-
like situations in Kachin, Shan and Rakhine. This includes 87,000 people in Kachin and 11,000 in Shan who
were displaced as a result of the armed conflict that resumed in 2011 and that continues to displace people.
It also includes about 120,000 in Rakhine who were displaced as a result of the inter-communal tensions
and violence that erupted in 2012. In addition, there are particularly vulnerable non-displaced people who
continue to require special attention and/or support as a result of different factors including, amongst others,
armed conflict, movement restrictions and severe malnutrition. To address these needs, combinations of
different types of support may be needed from a range of actors involved in humanitarian, development,
human rights and peace-building activities. Humanitarian action may be one of several components in
a comprehensive approach to addressing the short, medium and long-term needs and human rights of
vulnerable communities.
1Meeting needs of
displaced people and
searching for durable
solutions
Approximately 218,000 people –
of which 78 per cent are women
and children – remain displaced
as a result of the armed conflict
that resumed in Kachin and
Shan in 2011 and the inter-
communal violence that started
in Rakhine in 2012. Many IDPs
living in camps or camp-like
situations remain dependent
on humanitarian assistance to
meet basic needs. For some,
this is a result of the continued
movement restrictions, while for
others it relates largely to limited
livelihoods opportunities. In
the camps, displaced people
continue to live in over-crowded
conditions in long-houses that
were meant to be temporary.
For those people who have
been given no option but to
remain in camps, there is a need
to ensure that they are able to
live there in safety and with
dignity. Meanwhile, priority
must continue to be given to the
search for durable solutions for
displaced people and initiatives
aimed at ending displacement
and promoting self-reliance and
early recovery.
2Access to services
and livelihoods for
vulnerable people
In Kachin, Shan and Rakhine,
there are vulnerable people
(both displaced and non-
displaced) who lack access to
services and livelihoods as a
result of factors such as armed
conflict, inter-communal
tensions, movement restrictions
and restrictive policies
or practices. In Rakhine,
service provision remains
unequal, largely as a result of
new movement restrictions
applicable to Muslims that
were introduced in at least
eight townships in 2012. This
puts many people at risk,
particularly those in need of
urgent life-saving medical
attention. Women and girls face
particular challenges due to the
risk of gender-based violence.
In the northern part of Rakhine,
movement restrictions have
also impacted the health and
nutrition status of Muslims,
with malnutrition rates above
emergency thresholds in
Buthidaung and Maungdaw
townships. While restrictive
policies and practices continue,
humanitarian needs will persist,
requiring continued support
to ensure access to life-saving
services.
3Protection of civilians
In Kachin and Shan,
protection concerns from
ongoing internal armed conflict
include continued displacement
of civilians, violations of
international humanitarian
and human rights law, gender-
based violence and grave
violations against children.
Humanitarian access within
and beyond the Government
controlled areas dramatically
deteriorated in 2016, reducing
affected people’s access to
humanitarian assistance as
well as protection monitoring.
In Rakhine, statelessness,
movement restrictions, lack of
access to essential services (such
as health and education), lack
of access to civil documents,
gender-based violence, human
trafficking, family separation
and physical insecurity remain
serious protection concerns,
compounded by discrimination,
marginalization and segregation
of the concerned population.
Many children in Rakhine
have not been issued with
birth certificates since the
1990s, further restricting their
rights and increasing their
vulnerability.
4Strengthening
national capacities
and building resilience
of communities affected by
natural disasters
Myanmar is one of the countries
at highest risk of natural
disasters in South-East Asia.
There is a continued need
for an integrated approach
to strengthen the resilience
of communities; to enhance
national capacity to prepare for
and respond to natural disasters
and other emergencies; and
to support the Government in
meeting urgent humanitarian
needs of people affected by
natural disasters. The World
Humanitarian Summit
reaffirmed the need to reinforce
national and local leadership;
ensure local actors – in
particular women’s groups and
representatives – are consulted,
supported and funded; ensure
women, children, youth,
persons with disabilities, older
persons and other vulnerable
groups benefit from targeted
support; work with the private
sector; use modern technology;
and increase the use of cash-
based programming where
appropriate in the context.
HUMANITARIAN NEEDS

04
humanitarian needs & key figures
NUMBER OF PEOPLE WHO NEED HUMANITARIAN ASSISTANCE
525,448
TOTAL POPULATION
51.5M
BY STATUS
INTERNALLY DISPLACED PERSONS
217,514
NON-DISPLACED PERSONS
307,934
OTHER CRISIS AFFECTED PEOPLE AND
HOST COMMUNITIES
307,934
IN CAMPS, COLLECTIVE CENTRE
OR SELF-SETTLED
204,010
IN HOST
FAMILIES
13,504
NUMBER OF PEOPLE LIVING IN CONFLICT-AFFECTED AREAS1
6.4M
CHILDREN
(<18 YEARS)
57,200
ADULT
(18-60 YEARS)
49,200
ELDERLY
(>60 YEARS)
3,700
CHILDREN
(<18 YEARS)
40,700
ADULT
(18-60 YEARS)
37,000
ELDERLY
(>60 YEARS)
5,900
AGE AND SEX DATA AVAILABLE FOR 110,100 IDPS IN RAKHINEAGE AND SEX DATA AVAILABLE FOR 83,600 IDPS KACHIN/SHAN
TOTAL MALE
39,700
TOTAL FEMALE
43,900
TOTAL
83,600
TOTAL MALE
56,400
TOTAL FEMALE
53,700
TOTAL
110,100
INTERNALLY DISPLACED PEOPLE (BYAGE AND SEX)
1. This includes townships covered by the Nationwide Ceasefire Agreement; townships where ethnic armed groups have a presence; and townships affected by inter-communal violence in
Rakhine State

05
Impact of the crisis
IMPACT OF THE
CRISIS
In Rakhine, inter-communal tensions, as well as constraints on freedom of movement and
restrictive policies and practices, continue to affect both displaced people in camps and
people living in surrounding communities, and the large population in the northern part of
Rakhine State. Many Muslim women and men, girls and boys do not have adequate access to
health care, education and other basic services due to ongoing restrictions on their freedom of
movement. In the northern part of Rakhine, rates of malnutrition are above WHO emergency
thresholds. Elsewhere in Rakhine, while a Government-led project supported the return or
relocation of about 25,000 people in 2015-16, some 120,000 IDPs remain confined in camps
where they are largely dependent on humanitarian aid. The protracted situation continues
to expose people to the dangers of risky migration. In Kachin and Shan, armed conflict has
continued, causing pockets of new and secondary displacement and putting many civilians at
risk, with allegations of continued human rights violations. As a result, about 98,000 people
are still displaced and many people are living in fear. Landmines and explosive remnants of
war also continue to pose a threat to civilians. Flash floods in some parts of Myanmar in July
and August 2016 exacerbated many of these existing vulnerabilities.
Drivers and underlying factors
The humanitarian situation in Myanmar is characterized by
a complex combination of vulnerability to natural disasters,
food and nutrition insecurity, armed conflict, inter-communal
tensions, statelessness, displacement, trafficking and
migration. The situation is compounded by chronic poverty
and underlying structural inequalities and discrimination,
including on the basis of gender, ethnicity and religion, which
exacerbates needs and vulnerabilities of affected people in
many parts of the country.
A new government led by the National League for Democracy
(NLD) assumed power in 2016 and the country’s political
and economic reforms that began in 2011 have gained further
momentum. The World Bank has projected that GDP growth
in Myanmar will average 8.2 per cent from 2016-2020, despite
the annual flooding that regularly affects the livelihoods
of some of the poorest and most vulnerable people in the
country. State Counsellor Aung San Suu Kyi has said that
advancing the peace process is the Government’s top priority.
The establishment of an Advisory Commission on Rakhine,
led by former UN Secretary-General Kofi Annan, also
illustrates the Government’s commitment to making progress
in resolving problems in the troubled Rakhine State.
Despite these positive signals, significant challenges remain,
primarily related to communal and ethnic divisions as well
as protracted conflicts. If left unaddressed, these challenges
pose significant risks to Myanmar’s stability and progress on
sustainable development. People in Myanmar remain highly
vulnerable to natural disasters. The floods in 2016 temporarily
displaced more than half a million people and exacerbated
many of the existing vulnerabilities in the country,
particularly in terms of food security.
In recent years, efforts to address structural gender inequality
and discrimination in the public and private spheres in
Myanmar have multiplied. However, according to the World
Bank, significant gender disparities persist across the country.
Myanmar is ranked 85 (out of 187) on the Gender Inequality
Index and while labour force participation has increased,
institutionalized discrimination continues to prevent women
from achieving equal political participation, decision-making
and access to resources. Such challenges are particularly
pronounced in remote and conflict-affected areas, where
women and girls may be exposed to various forms of gender-
based violence, trafficking and discrimination, including
customary laws that inhibit land tenure, property ownership
and inheritance.
There is no comprehensive prevalence data on gender-based
violence, but numerous reports indicate that such violence
is wide-spread. The Special Rapporteur on the situation of
human rights in Myanmar, for example, found that sexual
violence was widespread in Kachin, northern Shan and

06
Rakhine, as well as other areas of the country. Women and
girls from ethnic or religious minorities, as well as stateless
women, remain especially vulnerable and often suffer multiple
forms of abuse by government forces, armed groups and, in
many cases, in domestic settings. Intimate partner violence
is normalised and widely accepted, with reports indicating a
high prevalence across the country including in humanitarian
settings were risk factors such as poverty, drug and alcohol
abuse along with the breakdown of community protection
mechanisms are elevated. Human trafficking and sexual
slavery abroad also remain a serious concern, especially for
younger women. The combination of gender inequality and
exposure to violence, harassment and abuse remain a serious
protection concern and an impediment to recovery, transition
and development.
Rakhine State
In Rakhine State, inter-communal violence in 2012 led to the
displacement of approximately 145,000 people. About 25,000
of these IDPs were assisted to return or relocate by the end
of 2015, with individual housing support being provided
by the Rakhine State Government with support from the
international community. As of September 2016, some
120,000 IDPs remain in 36 camps or camp-like settings across
Rakhine, of which about 79 percent are women and children.
In addition, there are over 282,000 people spread over 11
townships in Rakhine who are not in camps but who remain
in need of humanitarian support, bringing the total number
of people in need of humanitarian assistance in Rakhine to
402,000 (see table on Number of People in Need).
Rakhine is one of the least developed areas of Myanmar,
with a diverse ethnic and religious population. According to
the 2014 Myanmar Population and Housing Census Report,
Buddhists make up 96 per cent of the 2.1 million people that
were counted in Rakhine during the census. However, the
Census Report highlights that in addition, a “non-enumerated
population of over one million in Rakhine belongs to a
defined group known to be primarily, if not wholly, of the
Islamic faith”.
Rakhine has the highest poverty rate in the country (78
per cent, compared to 37.5 per cent nationally) according
to a November 2014 report by the World Bank entitled
“Myanmar: Ending Poverty and Boosting Shared Prosperity
in a Time of Transition”. Myanmar remains one of the 36
countries worldwide that have the highest burden of chronic
malnutrition (or stunting, defined as height-for-age < –2
standard deviations of the WHO Child Growth Standards
median). A survey carried out in 2015-2016 by the Ministry
of Health and Sports indicated that Rakhine State had the
highest rate of global acute malnutrition (GAM, defined as
weight-for-height < –2 standard deviations of the WHO Child
Growth Standards median) in the country. Humanitarian
organizations working in the Nutrition Sector in Rakhine
indicate that acute malnutrition rates are particularly high in
Maungdaw and Buthidaung townships, where they are above
WHO emergency thresholds. Chin State has the highest rate
of chronic malnutrition in the country (above WHO critical
threshold) closely followed by Kayah and Rakhine States.
Historical tensions and issues of identity, religion and
ethnicity remain the defining features of the operational
environment for humanitarian organizations in Rakhine
State. The situation is critical for more than one million
Muslims, most of whom call themselves ‘Rohingya’, whose
citizenship status remains unresolved and who continue to be
subject to discriminatory policies and practices. These people
face restrictions on freedom of movement that limit their
access to livelihoods, healthcare, food, education, protection
Jun 2011
Mass
displacement
due to conflicts in
Kachin and northern
Shan
Jun 2012
Mass dis-
placement in
Rakhine following
inter-communal
violence. Government
declares State of Emer-
gency in Rakhine
Jul 2015
Floods and land-
slides temporar-
ily displace 1.7
million people mostly in
Chin and Rakhine states,
and Magway and Sagaing
regions
TIMELINE OF RECENT EVENTS
2 0 1 1 2 0 1 2 2 0 1 5
Feb 2015
About 80,000
people
displaced by
conflict in Kokang
SAZ (Shan State).
Government declares
State of Emergency in
Kokang SAZ
2 0 1 3

07
and other basic services, making them heavily dependent
on humanitarian assistance. Conservative gender norms
and entrenched gender inequality magnify the impact of
this discrimination on women and girls, exacerbating their
specific needs and rendering them at greater risk of violence
and hardship. Women and girls are at risk of gender-based
violence, trafficking and transactional sex, including child
marriage while men and boys are more at risk of arrest,
detention and forced labour. The Government has tried
to address the citizenship issue of the Muslim community
Credit: OCHA
31 Aug 2016
The Union
Peace
Conference (“21st
Century Panglong”)
takes place with the
Government and ethnic
armed groups
Apr 2016
New NLD-led
Government
takes over with
U Htin Kyaw as
President and Daw
Aung San Suu Kyi as
State Counsellor
15 Oct 2015
Eight ethnic
armed groups
sign a Nationwide
Ceasefire Agreement
with the Government
2 0 1 6
Jun 2016
Floods
temporarily
displace about 500,000
thousand people in
Magway, Mandalay,
Bago, Rakhine and
Ayeyarwaddy
Oct 2015
Conflict in
southern
Shan State
temporarily displaces
around 6,000 people
from Kyethi and
Monghsu townships
Oct 2016
Thousands
of people
newly displaced in
the northern part of
Rakhine

08
through the re-launching of the citizenship verification
process. However, this process has stalled due to the many
challenges encountered.
The majority of IDPs in Rakhine live in collective shelters
known as ‘long houses’. The long-houses and other facilities
in the IDP camps were originally constructed in 2012-13 as a
temporary measure, designed to last for only two years. Many
of these buildings require continuous maintenance or repairs.
Even then, due to space constraints the current floor size per
IDP remains approximately 20 per cent less than minimum
standards advise.
Even though there was a significant investment in repairing
long-houses in 2016, further repairs and maintenance will
need to be carried out on these structures each year. There
is a lack of privacy in the long-houses and most of them
remain over-crowded. A lack of privacy combined with a lack
of adequate lighting in camp settings heightens the risk of
gender-based violence. Further, the lack of adequate space for
separate and safe individual cooking areas also creates a high
risk of fires in the camps. For example, a fire in Baw Du Pha
IDP camp in May 2016 destroyed the homes of more than
2,000 people. There is a continued need for food, nutrition
support, education and protection services in the camps, and
it is vital to ensure improved access to primary health care, as
well as unobstructed access to secondary health care.
In a more recent development, fighting between Myanmar
Army troops and the Arakan Army in March-April 2016
displaced approximately 1,900 people in Buthidaung,
Rathedaung and Kyaktaw townships. While the State
Government has said that it expects these people to return
to their homes soon, authorities say conditions are not
yet conducive for returns due to ongoing tensions. In the
meantime, their immediate needs are being met by the
government and local partners, with support from United
Nations agencies and NGOs. Thousands of people were also
affected by flooding in Rakhine in 2016, primarily in Thandwe,
Minbya and Taungup townships. The State Government, with
support from the United Nations and its partners, responded
to the most immediate needs of the affected people, including
food, emergency shelters, non-food-items (NFIs) and water.
In Rakhine, although there continues to be some level of
trading and interaction between the communities, there
remains far less than before the violence erupted in 2012.
Meanwhile, the continued segregation risks having an adverse
impact on current and future inter-communal relations and
dialogue. Ongoing inter-communal tensions continue to
have a negative impact on the overall Rakhine economy,
affecting all communities. This was reflected in the results
of a Multi-Sector Assessment of socio-economic conditions
in Mrauk-U, Minbya and Kyauktaw townships carried out
by the Early Recovery Network in March 2016. The survey
showed that all assessed villages are poor and suffered from
the broader economic stagnation of central Rakhine State over
the preceding five years. All communities are affected by the
ongoing inter-communal tensions. However, those that are
most affected are the isolated Muslim communities that face
severe movement restrictions.
Cash transfer programming is increasingly used in Myanmar
by the Government as well as UN and NGO partners. To
augment the Humanitarian Country Team’s understanding
of cash feasibility, a study was undertaken in 2016 to assess
its feasibility, specifically in areas of Rakhine State. The
study looked in detail at capacities of organizations, market
functioning, financial service providers and the Government,
as well as community acceptance for future responses and
potential for scaling-up. It concluded that scale-up may be
feasible in the more urban areas, depending on markets,
financial infrastructure, implementation capacity of partners
and willingness on the part of the Government. However, for
displaced populations, particularly those in camps, it noted
that restrictions on movement and on access to markets are
debilitating factors and leave people open to a number of
protection concerns. In addition, conservative gender norms
restrict women and girls’ freedom of movement beyond the
home, often requiring them to travel with a male companion
or remain inside the home, which greatly hinders their access
to markets.
In Maungdaw and Buthidaung townships, the Muslim
population’s access to State schools, hospitals, markets and
livelihoods opportunities is constrained by extortions and local
orders that impose limitations on their rights and require them
to obtain travel permits even for travel within the township.
Since 2012, Muslims in most other townships in Rakhine have
been barred from accessing State schools and universities.
They are also not allowed to visit Township hospitals,
markets or other facilities if this requires travelling through
Buddhist areas, unless they have special permissions that
are often difficult to obtain. When traveling, harassment and
exploitation at roadblocks is commonly reported, particularly
of women. This has an impact particularly on patients
requiring second-level or specialized health care treatment
such as women with high-risk pregnancies, HIV and TB
patients (which increase the risk of extending the epidemic),
and acute chronic patients. The townships of Kyauktaw,
Mrauk-U and Minbya govern 96 Sub-Rural Health Centers,
20 Rural Health Centers, six Station Hospitals and three
Township Hospitals, and yet from all of these facilities, only
one Station Hospital is open to Muslim patients. As a result
of these restrictions, many non-displaced people in Rakhine
continue to require support from humanitarian organizations
to ensure that their basic needs are met.
The top five protection threats faced by people in Rakhine
are: limited freedom of movement, physical insecurity,
gender-based violence, a lack of documentation, and people
smuggling and human trafficking. For the Muslim population

09
in Rakhine, a lack of civil documentation has been identified
by the Protection Sector as an extreme threat as it has various
adverse effects on the safety and well-being of communities.
The current situation in the northern part of Rakhine State
(see note below) may further compound these protection
threats, which may in turn increase the risk of people
resorting to irregular and dangerous maritime travels or
fleeing to a neighbouring country. In general, the lack of civil
documentation is a major hurdle for people as it prevents
them from enjoying and exercising their legal rights, including
freedom of movement, and from accessing services. The
lack of personal identification documents (birth, death and
marriage certificates) and/or identity documents showing legal
residence, such as national registration cards, can also affect
current or future claims for citizenship and increase the risk
of statelessness. Women’s access to legal recourse is severely
restricted in Rakhine. This is particularly true for survivors of
gender-based violence in Muslim communities, who without
documentation lack all access to the legal system.
For many displaced people in Rakhine, the protracted
nature of their displacement has led to increased pressure on
families as they suffer from overcrowded conditions and lack
of privacy in camps/shelters, limited access to livelihoods
and food, increased anxiety and hopelessness for the future.
Reports from the Protection Sector indicate that this has led
to an increase in the incidence and severity of various forms
of gender-based violence towards women and children,
including intimate partner violence. Adolescents are an
under-served population and they have limited access to
youth services, leading to negative coping mechanisms, child
marriage, child labour and risky migration.
Note: In the northern part of Rakhine, the events that began
on 9 October 2016 have introduced a new level of violence,
instability and uncertainty into the context. On that day,
coordinated attacks on the Border Guard Police headquarters
and two other Border Guard Police posts resulted in nine
police personnel being killed and many weapons being
looted; there were further clashes over subsequent days and
another major escalation in November. A press release issued
by the Government on 13 October following the first attacks
outlined the Government’s initial findings, claiming that a
previously unknown militant Muslim group was responsible
for the attacks. As a result of the attacks and the subsequent
security operations, thousands of people have fled their homes,
hundreds of houses and buildings have been burned, many
people have been killed and allegations of serious human
rights violations have been widely reported in the media.
Due to restrictions on access imposed by the Government as
a result of the current security situation, the United Nations
has not been able to independently verify these reports.
The United Nations has expressed its deep concern and a
group of United Nations human rights experts has urged the
Government to address the growing reports of violations. The
experts have called on the authorities to conduct thorough and
impartial investigations of alleged human rights violations;
to implement concerted efforts to fight and prevent acts of
incitement to discrimination, hostility and violence against
minorities; and to allow access for humanitarian workers.
The United Nations estimates that there are currently about
30,000 newly displaced people in the northern part of
Maungdaw Township. Due to lack of access for humanitarian
staff to carry out a needs assessment, it has not yet been
possible for the United Nations and its humanitarian partners
to verify the number of people affected and the magnitude of
their needs. The situation has been further compounded by
suspension of the pre-existing humanitarian programmes in
most parts of the northern townships, including food, cash
and nutrition services for 160,000 people. A Government-led
mission to the northern part of Rakhine from 2-3 November
with the UN Resident and Humanitarian Coordinator and
nine Ambassadors provided an opportunity for them to get a
general sense of the humanitarian situation and listen to the
fears and needs of some of the affected communities. In a press
conference at the end of the mission, the UN Resident and
Humanitarian Coordinator called for a credible, independent
investigation and for urgent humanitarian access. Since
then, while there has been a gradual increase in the number
of humanitarian activities that have been able to resume in
some of the more secure parts of Maungdaw, Buthidaung
and Rathedaung townships, as of the end of November 2016
humanitarian organizations still do not have access to many
areas.
Kachin State
In Kachin State, as a result of the armed conflict that re-
started in 2011, about 87,000 people remain displaced in
142 camps/sites, of which about 77 percent are women
and children. About 48 per cent of the displaced people
are located in areas beyond Government control where
international actors have limited humanitarian access but
where local humanitarian organizations continue to be able
to operate, despite increasing constraints. Kachin State is
resource-rich, but has higher than average poverty levels (28.6
per cent compared to the national average of 25.6 per cent).
During 2016 there was a significant deterioration in access of
international humanitarian organizations and international
staff to IDPs and other vulnerable conflict-affected people
in Kachin State, particularly in areas beyond Government
control. Starting in April 2016, the Government and military
have not permitted the World Food Programme (WFP) and
other international humanitarian organizations to take food
or other relief supplies into areas beyond Government control.
Instead, the Government issued an instruction requiring IDPs
in areas beyond Government control to travel to designated
distribution points in Government-controlled areas in order

10
to collect any necessary relief supplies. The new restrictions
on access are coming at a time of heightened tensions and
increased fighting in Kachin and Shan. The Government and
military have said that the new restrictions on access relate
to a number of factors, including allegations of diversion
of aid. They have also questioned the figures being used by
humanitarian organizations for displaced people in camps in
these areas. The United Nations is in the process of working
with the Government to reconcile any discrepancies and to
come up with a common set of figures.
Even for Government-controlled areas, international
humanitarian organizations are experiencing unprecedented
delays in obtaining travel authorizations for international
staff and this is having an impact on humanitarian activities
in Kachin. In addition, there are concerns that access of
national staff of both international and national organizations
may be affected by new travel authorization processes. The
United Nations and humanitarian partners, both national and
international, have advocated strongly with the Government
for continued safe humanitarian access to all displaced people
and conflict-affected civilians wherever they might be located.
They have pointed out that requiring IDPs to cross conflict
lines in order to receive humanitarian assistance would
expose them to serious risks and would not be in accordance
with the principles of humanitarian action.
While humanitarian assistance has been delivered regularly
to IDPs in all accessible locations since 2011, the current lack
of sustained and predictable humanitarian access remains a
considerable challenge. While local partners remain at the
centre of humanitarian response in Kachin and have been
able to deliver assistance to remote areas inaccessible to the
United Nations and international partners, support from
international humanitarian organizations is still needed to
complement and enhance local efforts, given the growing
humanitarian needs resulting from protracted displacement
and renewed conflict. Many of the IDP shelters that were put
up in 2011 are in desperate need of repair, particularly in the
more remote areas bordering China where they are exposed
to severe weather condition. Education remains inadequate at
all levels, from early childhood to secondary school, limiting
opportunities to access the higher education system and
diminishing growth and learning opportunities for the youth.
In April/May and again in August 2016, the conflict in Kachin
escalated both in terms of intensity and frequency of fighting.
The situation remains extremely tense and volatile and there
is a risk that new security incidents may trigger further
displacement. Due to the proximity of armed personnel
to civilians, there are serious ongoing protection concerns
that require constant monitoring and attention. Advocacy
related to international humanitarian principles will need to
be further strengthened in 2017. This includes issues such as
distinguishing between civilians and combatants, protection of
civilians against indiscriminate attacks, protection of children
in armed conflict, preventing and responding to gender-based
violence, freedom of movement for civilians, humanitarian
access and safe passage for conflict-affected civilians.
Prolonged displacement has put a strain not only on the
displaced but also on host communities’ coping mechanisms.
Credit: OCHA

Relief Web (Humanitarian Information Source on Global Crises and Disasters) on Myanmar

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