2010 UNHCR country operations profile - Myanmar

Working environment

The context

The political environment in Myanmar continues to be dominated by preparations for the 2010 elections, which will result in both constraints and opportunities for UNHCR's operations.

There has been no significant change in the situation of Muslim residents of northern Rakhine State. However, in the lead-up to the 2010 elections, the Government has made some overtures to them, suggesting that their legal status may be improved and that restrictions on movement, marriage and other rights may be eased.

In this context, UNHCR has increased its engagement in northern Rakhine State by significantly expanding activities in the areas of infrastructure, education and health. Since any concessions to this population are opposed by the local community, progress towards normalization of the Muslims' status will be gradual.

The Government continues to support UNHCR's projects to assist communities affected by the conflict in south-east Myanmar, which has been going on intermittently since independence in 1948, and has had a devastating impact on the civilian population. The political situation, logistical difficulties and security concerns remain major challenges in reaching populations of concern in the region.

The Government has indicated its willingness to facilitate the gradual access of UNHCR to the interior of this region.

The needs

UNHCR works with approximately 750,000 Muslim residents of northern Rakhine State who do not have citizenship. Despite this, they participated in the 2008 constitutional referendum and will be eligible to vote in the 2010 elections. In this context, temporary registration cards (TRCs) are being issued to all residents over the age of 10. Government estimates indicate that more than 85 per cent of those eligible have received TRCs, and UNHCR continues to monitor the distribution process.

UNHCR has regular discussions with the local authorities on various protection concerns, such as restrictions on Muslim individual's freedom of movement and marriage rights, as well as the repair of their religious buildings. UNHCR also works with community leaders, women, children and other groups to address the protection needs arising from within the community, such as cultural constraints on women travelling and accessing education.

UNHCR's operations in south-eastern Myanmar target the communities affected by displacement. The projects focus on rehabilitation of basic infrastructure, mainly in the water, education, and health sectors. Shelter projects target groups with specific needs such as female-headed households. In 2009, a programme on HIV and AIDS prevention and response was launched, and communities were encouraged to participate in all stages of project implementation. Other needs include mine education and clearance, as well as livelihood opportunities.

Main objectives

Favorable protection environment

• Promote the rights and well-being of the people of concern in northern Rakhine State by improving their legal status and treatment.

• Mitigate the vulnerability of communities affected by displacement in south-eastern Myanmar and develop strategies to enhance protection in the area.

Security from violence and exploitation

• Enable women and girls in northern Rakhine State to participate in society equally with men.

Basic needs and services

• Implement expanded programmes in water, sanitation, health, education and infrastructure.

Community participation and self-management

• Promote the integration of people without citizenship into Myanmar society and improve their livelihoods.

Key targets for 2010

In northern Rakhine State:

• The final phase of the Government's distribution of TRCs is monitored and advocacy on status and documentation issues is continued.

• People without citizenship see improvements in their basic rights, and serious protection cases receive adequate support.

• More infrastructure projects, such as bridge and road repair and construction of schools and health centres, improve basic services and answer the Government's request for expanded operations in five priority areas: health, education, water and sanitation, agriculture and infrastructure.

• Training in reproductive health is increased and health services strengthened.

• Supplementary feeding reduces malnutrition, and good infant-feeding practices are promoted.

• Workshops on gender-related topics and women's self-reliance are held and activities emphasizing the education of girls are expanded.

• The number of people without citizenship who can speak the Myanmar language grows.

In south-eastern Myanmar:

• The living conditions of people affected by displacement with specific needs are improved and protection strengthened through support in shelter construction, livelihood assistance, mine-risk education and HIV and AIDS awareness-raising.

• Communities affected by displacement are provided with basic services in health, education and water. Schools are properly equipped and the number of water points increased.

• The humanitarian space is increased through targeted awareness-raising and regular dialogue with the Government.

• Training on community-based participatory approaches to sexual and gender-based violence and protection monitoring enhances the capacity of UNHCR staff and partners.

• Greater access to the interior of the region enables UNHCR to provide assistance to vulnerable communities in remote areas.

Strategy and activities

The coping capacities of the populations in northern Rakhine State and south-eastern Myanmar will be improved by helping them gain better access to public services such as schools and hospitals, as well as through protection interventions. Community-based activities and awareness-raising programmes on gender and social issues aim to improve the status of women and girls who, in addition to official restrictions, face curbs imposed by their communities on freedom of movement, access to education and other rights.

Following the High Commissioner's visit to Myanmar in March 2009, the national authorities agreed to a significant expansion in UNHCR's activities in northern Rakhine State. New projects will cover the construction of community infrastructure, repair and building of schools and supply of medical equipment to hospitals and clinics.

UNHCR implements its education and community-development programmes through a network of community service centres in northern Rakhine State. These provide Myanmar-language training, early childhood development classes, support for school drop-outs and skills training for women. In 2009, UNHCR launched a second hostel for adolescent girls who are completing their high school education. Health and nutrition programmes conducted by UNHCR partners, including reproductive health services, will continue. UNHCR provides technical support for the maintenance of vehicles, as well as vocational training. The office will promote peaceful co-existence between various ethnic and religious groups through inter-community activities.

In south-eastern Myanmar, UNHCR will continue community-based projects, with particular attention to communities affected by displacement. These projects will restore basic services and improve the living conditions of those affected by population movements.

Constraints

The programme in northern Rakhine State is based on the assumption that the improving relationship with the Myanmar authorities will continue in 2009 and into 2010, and that more investment in development and infrastructure programmes will lead to greater humanitarian space. The situation is not amenable to immediate resolution due to tensions between the Rakhine and Muslim populations. Progressive measures are needed to build confidence and foster co-existence.

In south-eastern Myanmar, the lack of reliable statistics and difficulties in reaching remote areas affected by population displacement pose a variety of challenges for UNHCR. The presence of a limited number of humanitarian agencies in the region also makes it difficult to provide comprehensive assistance.

Organization and implementation

Coordination

UNHCR participates in coordination mechanisms at both the local and national level. The cluster approach that was used in response to Cyclone Nargis in 2008 was phased out in 2009 as the emergency receded. UNHCR chairs the protection working group and participates in other groups related to shelter, child soldiers and land issues.

In northern Rakhine State, UNHCR is the lead agency and hosts monthly inter-agency meetings. UNHCR also heads a gender task force attended by other UN agencies, NGOs, community members and the Government and participates in coordination mechanisms on health, food, security and education.

In south-east Myanmar, UNHCR is the lead agency and strives to develop a positive working relationship with the Government and to gain the trust of communities in need of international assistance.

Financial information

In 2008 and 2009, the budgetary increases over the previous years reflected UNHCR's involvement in assisting survivors of natural disasters, leading the protection cluster and helping people without citizenship. Increases to the 2010-2011 budgets reflect the enlargement of UNHCR's programme on behalf of displaced populations as well as those without citizenship.

Source: UNHCR Global Appeal 2010-2011