By FRANCIS WADE
Published: 21 May 2012
The Norwegian government is pushing ahead with a
multi-million dollar scheme to rehabilitate regions in eastern Burma
that for decades have been beset by conflict and upheaval, a project
that is likely to gather pace in the wake of a ceasefire deal over the
weekend between Naypyidaw and Shan rebels.
A draft document seen by DVB outlines the aims and methodology
of the ‘Norwegian Peace Support Initiative’, for which a pilot programme
has already begun in an area of northern Karen state. Over the coming
months this will be expanded to other areas of eastern Burma where
ceasefires have been agreed.
The aim is to transform them into regions safe for habitation
and development by preparing the ground for the return of internally
displaced persons (IDPs), aiding the opening of liaison offices for
ethnic armies, and creating “community development committees”.
While it has been welcomed by many as a sign that Naypyidaw is
willing to allow outsiders in to help rebuild the fragile border
regions, the proposal has courted controversy, not least because it
comes in the wake of Norway’s decision to end cross-border aid. The
estimated $66 million earmarked for the project will be channeled
through government-approved groups based out of Rangoon, a decision that
will test the trust that armed groups have of any body affiliated with
Naypyidaw.
Katja Nordgaard, Norway’s ambassador to Burma, told DVB that
Oslo was looking for greater transparency in its aid delivery in the
wake of governmental reforms, and would be channeling the funds through
NGOs and civil society groups that have existed for years. If some of
the border aid groups were to set up offices in Rangoon, then they would
also be approached.
The initiative would furthermore be “totally based on the
[armed groups’] acceptance” of Norway’s proposals, she said, adding that
the funds came in the wake of “demand” from the likes of the Karen
National Union (KNU).
The team formed to advise and carry through on the initiative
has raised some eyebrows. Heading it is Charles Petrie, who served as UN
coordinator for Burma until his expulsion in December 2007 following a
statement in which he encouraged the then ruling junta to heed the
demands of protestors during the September 2007 uprising.
Also included is Ashley South, who in a report last year for
the Dutch NGO, Transnational Institute, wrote that the KNU was “in
crisis”, having lost territory and lacking a clear political agenda. The
KNU’s permission and support are key to the implementation of the
project, which will be rolled out across sections of their territory.
Petrie’s notes in the draft report acknowledge South’s
potential for controversy, but state that there is a low risk of the
baggage that accompanies his presence jeopardising the initiative,
“assuming KNU has no problem with Ash role”.
Zipporah Sein, secretary of the KNU, told DVB that the group
was fine with the pilot stage, but “we don’t want them to extend it
broader at the moment because we have to wait for a political
settlement” between the group and the Burmese government. Nordgaard said
that Oslo was “waiting for them to say it’s OK”.
The KNU has agreed to a tentative ceasefire with Naypyidaw,
although it is wary of pledging to lay down arms too quickly. The
Burmese government has pushed for ethnic armies to agree to truces and
allow economic development to take place before any sort of political
solution to the root causes of the conflicts is made, something that has
been met with resistance from the Kachin Independence Army in the
north, which continues to fight.
A member of the team working on the Norway initiative said in
an email interview that it was “not an alternative to or substitute for a
broad political settlement, which will be necessary to achieve real
peace in Myanmar [Burma]”. Instead it would “help communities recover
from conflict and build momentum for peace on the ground”.
The report also acknowledges the potential the initiative holds
to sideline existing small-scale NGOs and civil society groups who have
been working in the border regions for years.
“Given that, in many conflict-affected areas, communities and
local organisations … are involved in activities to assist vulnerable
populations, there is a risk that international interventions in could
[sic] marginalise or distort existing local activities.”
There is also the question of whether the current reformist
attitude of the government will last, something acknowledged by Petrie
who says that while President Thein Sein and his chief peace broker,
Aung Min, “are sincere”, this “does not mean they will be around
forever, or able to implement their agenda”.
Indeed, as the case of the Kachin conflict shows, the president
has struggled to control frontline troops. One element of the Karen
ceasefire is the withdrawal of Burmese soldiers from areas close to KNU
territory, but according to Zipporah Sein, this is not happening. The
consequences of that intransigence will affect conditions for returning
IDPs, which is the main element of the Norway initiative for Karen
state.
“Areas where IDPs have to move are where the Burmese army camps
are located – many outposts have not been removed. We have to wait and
discuss this before [agreeing to their return],” she said.
Accusations that the initiative is being used by Naypyidaw as a
bargaining chip with which to persuade armed groups to sign ceasefires
have also circulated, as has suspicions concerning Norway’s motives. The
Norwegian government, long a supporter of Burma’s pro-democracy
movement, was the first country to drop independent sanctions on the
country last month, and has spoken of its desire to invest in Burma.
Nordgaard said however that there was “absolutely no interest
in the border regions” where Burma holds vast natural resource
capabilities. “I’m sure there are Norwegian businesses that want to move
into Burma, because [Norway] sees investment as means to create jobs
and growth, but this has nothing to [do] with [the peace initiative]”,
she said, adding that it would “take a long time” before the likes of
Karen state are fit for Norwegian investment.
Norway’s deputy foreign minister Torgeir Larsen will visit
Burma next week and is likely to travel to Karen state. Nordgaard said
he would aim to meet with IDPs and assess the current situation with
regards to the initiative.
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