116122142 master thesis final version 12th jan 2011 araki sensei 1
TRANSCRIPT
The Development of Statelessness in International Law
and
the Case of Rohingyas in Myanmar
Submitted
By
Hnin Yee Myint
(Student ID : 09ff990)
Academic Advisor
Professor YOO Hyuck-Soo
International Graduate School of Social Sciences
Yokohama National University
Japan
January 2011
Acknowledgement
First of all, I would like to express my sincere thanks to all those who have
assisted me in various ways during my study at the Yokohama National University and in
the writing of my Thesis for a Master’s Degree.
Particularly, I would like to convey my deep gratitude to my academic advisors
Professor YOO Hyuck-Soo and Professor ARAKI Ichiro, who have given scholarly
guidance, offered invaluable comments and provided superb supervision as well as kind
support and wonderful encouragement during the whole period of my academic study as
well as the preparation of my Thesis. Without them, it would be impossible for me to
produce this Thesis. My profound thanks also go to Mr. John B. Gage for his analytical
review and kind advice for the improvement of my work.
I am also very grateful to Professor IKEDA Tatsuhiko, Professor KOIKE Osamu,
Professor Nerida Rand and all the other Professors and faculty members as well as Ms.
SAKAMOTO Mariko, Ms. EMI Chie, and all the staff members from the LPP Office for
their interesting lectures, kind assistance, generous help and wonderful care given to me
during my study at Yokohama National University.
I would also like to convey my profound appreciation to the Japan International
Cooperation Agency (JICA) and the Japan International Cooperation Centre (JICE) for
the warm hospitality, remarkable guidance, heartfelt assistance, and tender care I have
received from them throughout my stay in Japan.
ii
I have also greatly benefited in the writing of my thesis from the wonderful advice
and kind support I had received from Professor Dr. Robert Taylor, currently Visiting
Professor in the Department of Asian and International Studies, City University of Hong
Kong; Professor Dr. Aye Chan from the Department of International Cultures, Kanda
University of International Studies, Chiba, Japan; and U Khin Maung Saw, former
Lecturer from the Department of Asian Studies, Humboldt University, Berlin, Germany.
They had also provided me with invaluable information and documents, especially
concerning questions of ethnicity in Myanmar, the Rohingya issue, and the problem of
statelessness in Europe. I would like to express my deep appreciation to them.
Last but not least, I would like to thank my parents for their support and
encouragement given to me throughout my study at Yokohama National University.
Thank you.
Hnin Yee Myint
January, 2011
iii
Abstract
The present Master’s Thesis endeavors to study the nationality claim of the
stateless Rohingyas in Myanmar and the status of their statelessness outside the country
based on the concepts of “nationality”, “ethnicity,” and “self-determination” as well as on
the basis of the concept of the “territorial integrity” of a state. The issues of “self-
determination” and “territorial integrity” are important both for the people and the state.
They are also complicated and complex concepts in the context of today’s developments
in the international arena.
Many ethnic groups raise the issue of the right to “self-determination”. Ethnic
conflicts normally arise when two or more ethnic groups within a state compete for
economic and political goods. Most of the ethnic conflicts may grow out of the
grievances. However, there are cases when the ethnic problems are created by the
leadership of the respective nationalities for their own personal interests. Sometimes, the
nationality claim of an ethnic group is not readily accepted by the people residing in that
state as their original ethnic group or nationality. A case in point is the nationality claim
of the so-called Rohingya in Myanmar. The research, therefore, is based on the historical
background while it studies the issue from the perspectives of domestic and international
laws as well as from the humanitarian aspect. The objective, however, is to present the
issue in a way the international community could appreciate it in an objective manner.
The study also puts up a few humble recommendations that the researcher hopes
would assist in resolving the Rohingya issue in Myanmar, including the problem of their
statelessness status.
iv
Abbreviations
ARIF - Arakan Rohingya Islamic Front
ARNO - Arakan Rohingya National Organization
BDR - Bangladesh Border Security Forces
CRC - Convention of the Rights of the Child
ECHR - European Convention on Human Rights
ERRC - European Roma Rights Center
EU - European Union
HCNM - High Commissioner for National Minorities
INGO - International Non-governmental Organization
KNU - Karen National Union
MOU - Memorandum of Understanding
NGO - Non-governmental Organization
REF - Roma Education Fund
RSO - Rohingya Solidarity Organization
SPDC - State Peace and Development Council
TRC - Temporary Registration Cards
UAE - United Arab Emirates
UN - United Nations
UNHCR - United Nations High Commissioner for Refugees
USSR - Union of Soviet Socialist Republic
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Table of Contents
1. INTRODUCTION ...................................................................................................... 1
1.1.Purpose ..................................................................................................................... 1
1.2. Structure ................................................................................................................... 3
1.3. Methodology and Sources ........................................................................................ 4
1.4. The Role of Ethnicity in Myanmar ........................................................................... 5
CHAPTER I - LEGAL FRAMEWORK OF NATIONALITY, SELF-
DETERMINATION AND TERRITORIAL INTEGRITY FROM THE
PERSPECTIVE OF INTERNTIONAL LAW ........................................................... 11
2.1. Relevant Terminology: Definitions, Concepts and the Scope ............................ 11
2.1.1. State ............................................................................................................... 11
2.1.2. Nationality, Citizenship and Nationalism ........................................................ 13
2.1.3. Ethnicity and Ethnic Conflicts ......................................................................... 18
2.1.4. Self-Determination, President Wilson’s 14 Point Program, and Groups’
Claims ........................................................................................................ 22
2.1.5. Territorial Integrity .......................................................................................... 28
2.2. Statelessness and Refugees .................................................................................... 29
2.2.1. Statelessness and International Jurisprudence on Statelessness ...................... 29
2.2.2. Refugees, Refugees defined in International Instruments, and Refugees and
the United Nations ..................................................................................... 33
CHAPTER II - CONCEPTS OF CITIZENSHIP IN DOMESTIC AND
INTERNAITONAL LAWS AND SECURITY OF THE STATE ............................... 36
3.1. A Brief Historical Background of the Evolution of the Rohingya Issue in
Myanmar 36
3.2. The Situation of Rohingyas in Myanmar ............................................................... 43
3.3. Domestic Laws ...................................................................................................... 46
3.3.1. 1947 Constitution ............................................................................................ 46
3.3.2. 1974 Constitution and 1982 Burma (Myanmar) Citizenship Law .................. 48
3.3.3. 2008 Constitution ............................................................................................ 52
3.3.4 Burma (Myanmar) Immigration Act ............................................................... 52
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3.3.5. Rohingya Issue and 1947, 1974 and 2008 Constitutions and Myanmar
Citizenship Laws ....................................................................................... 53
3.4. International Instruments ..................................................................................... 58
3.4.1. Citizenship or Nationality ............................................................................... 58
3.4.2. Ethnic Group and Ethnicity ............................................................................. 59
3.5. Statelessness, Refugees and Security of the State ................................................ 60
3.5.1. Statelessness ..................................................................................................... 60
3.5.2. Refugees ........................................................................................................... 61
3.5.3. Security of the State ........................................................................................ 62
CHAPTER III - A COMPARATIVE STUDY ON THE STATUS OF
STATELESSNESS: ROHINGYAS AND THE EXPERIENCES OF ROMA .......... 64
4.1. The Development of the Rohingya Issue and Perspectives of the Interested Parties
64
4.1.1. Perspective of Myanmar .................................................................................. 64
4.1.2. Perspective of Bangladesh .............................................................................. 65
4.1.3. Perspective of Rohingyas ................................................................................. 67
4.1.4. Perspectives of UNHCR and NGOs ................................................................ 70
4.2. Roma and the Development of Statelessness in Europe ...................................... 71
4.2.1. Roma in Europe ............................................................................................ 71
4.2.2. The Situations of Roma in Europe and the EU Position .................................. 76
4.3. The International Responses on the Statelessness in Europe ............................... 80
4.3.1. United Nations High Commissioner for Refugees (UNHCR) ......................... 80
4.3.2. International Non-Governmental Organizations (INGOs) .............................. 82
4.4. A Comparative Study of the Status of Statelessness: Rohingyas and the Roma ... 84
5. CONCLUSION AND RECOMMENDATION ......................................................... 91
5.1. Conflict of Interests between the Recognition of the Claim of Rohingyas and the
Territorial Integrity of the State ........................................................................................ 91
5.1.1. The Conflicting Implications of the Concepts of Self-determination of
Ethnicity and the Territorial Integrity of the State .................................... 91
5.1.2. Applicability of the General International Law Concept of Ethnic Self-
Determination to the Rohingya Case ......................................................... 94
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5.2. Resolving the Issue ............................................................................................... 96
5.2.1. Consequences of accepting or denying the claims of Rohingyas on the Unity
and Integrity of the Multi-ethnic State of Myanmar ................................. 96
5.2.2. Concluding Remarks ........................................................................................ 98
5.3. Recommendation for Way Forward ..................................................................... 100
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1. INTRODUCTION
1.1. Purpose
The theme of this research is to examine the nationality claims of the Rohingya
people and the issue of their statelessness on the basis of the concepts of nationality, self-
determination and territorial integrity in international law. The historical aspects of the
Rohingyas’ nationality claim, the relevance of current international law, and the interests
of the state is also considered in the process.
Since the end of World War I, and more recently, with the end of the Cold War,
the world has witnessed a series of profound changes. One prominent trend within this
period has been the rapid disintegration of countries. In Europe, by the end of 1991, the
Union of Soviet Socialist Republics had been replaced by 15 independent states.
Yugoslavia, a federation of six separate republics – Slovenia, Serbia, Croatia, Bosnia and
Herzegovina, Macedonia and Montenegro, which comprised several ethnic groups also
collapsed in 1991. The course of ethnic conflicts began to emerge in Eastern Europe and
later proliferated and erupted in many other parts of the world.
It is difficult to define the term ethnicity. Its meaning is not fully racial or cultural
or religious and many scholars have defined the term from their different points of view.
It is therefore a complicated issue but it is also an important one as it can break a nation,
especially when a country is composed of many nationalities. Therefore, to reach a fair
judgment, it is important to give a very careful consideration of the unique characteristics
1
of the country as well as the prevailing conditions in the state when the ethnicity issue of
that state is considered from the perspective of international law.
The right of peoples to self-determination and the right of states to territorial
integrity are the fundamental principles of international law. However, these principles
are apparently in conflict. Many ethnic groups raise the issue of the right to “self-
determination”. Ethnic conflicts normally arise when two or more ethnic groups within a
state compete for economic and political goods, which may include territory, political
power and offices, or access to resources controlled by the state. In extreme cases, ethnic
conflict manifests itself as a demand by an ethnic group for a state of its own. These
claims are likely to be challenging politically and legally for the sovereignty of a state.
More commonly though, ethnic groups make lesser demands, which may range from
insistence on participation in the political life of the state on terms of equality with other
groups to affirmative measures, such as special language and education rights, to
demands for limited autonomy within the state.1
The issues of “self-determination” and “territorial integrity” are important for
both the peoples and the state. Though these concepts are important, they are also
complicated. They are important because without territorial integrity, a state would not be
able to survive, and without self-determination, the peoples would not feel free or
independent in promoting their individual characteristics. They are complicated because
territorial integrity could be implied for the state where all her peoples reside as well as
for a part of the state where one of its nationalities may reside.
1 David Wippman, ed., International Law and Ethnic Conflict (Ithaca and London: Cornell University, 1998) 5.
2
However, there are cases when the nationality claim of an ethnic group is not
readily accepted by the peoples residing in that state as their original ethnic group or
nationality. Whatever the case, when the conflicts that arise in connection with these
demands call into question the legitimacy of states and governments, they go to the heart
of international law.2
Most ethnic conflicts have their roots in objective conditions such as economic
deprivation, discrimination, loss of political or cultural autonomy and these conditions
create grievances that are exploited by ethnic entrepreneurs to mobilize ethnic groups for
political action. Whatever the causes of ethnic issues, ethnic conflict is often violent,
protracted, and resistant to settlement.3 In the case of the Rohingyas, the bone of
contention is the question of nationality or citizenship as they seemed to have lost their
original citizenship and become stateless people since a long time ago in the past when
they left their original places.
1.2. Structure
The structure of this thesis consists of Five Parts. Part One will be an introduction
of the relevant concepts of international law, a brief historical background and current
status of the ethnic composition of Myanmar (INTRODUCTION). Next, Chapter One
will discuss the legal instruments of international law which will apply to state,
nationality, self-determination and territorial integrity. Certain types of definitions and
concepts of relevant international instruments and the status of statelessness will also be
included (CHAPTER ONE: LEGAL FRAMEWORK OF NATIONALITY, SELF-
2 Ibid. 2.3 Ibid. 5.
3
DETERMINATION AND TERRITORIAL INTEGRITY FROM THE
PERSPECTIVE OF INTERNTIONAL LAW). Based on the existing domestic,
regional and international norms, Chapter Two, will evaluate how such norms have been
applied in practice (CHAPTER TWO: CONCEPTS OF CITIZENSHIP IN
DOMESTIC AND INTERNATIONAL LAWS AND SECURITY OF THE STATE).
Following, Chapter Three will evaluate the Rohingya issue and the international
responses on the issue of statelessness will be studied and compared with statelessness in
Europe (CHAPTER THREE: A COMPARATIVE STUDY ON THE STATUS OF
STATELESSNESS: THE ROHINGYAS AND THE EXPERIENCES OF ROMA).
And finally, in the Conclusion, comments will be made on the conflicting nature of the
concepts of self-determination and territorial integrity; the conflicting interests existing
between the ethnic groups as well as between the state and the ethnic group which claims
the citizenship of the state. After making comments, possible scenarios for resolving the
conflicting views and interests will be suggested (CONCLUSION AND
RECOMMENDATIONS).
1.3. Methodology and Sources
On the overall approach to considering the concepts of nationality, self-
determination, and territorial integrity in this Thesis, there will be a focus on describing
the law as it is. On the Stateless Rohingya Issue, political consideration will be made. It
will also be pointed out that international law is neither created nor applied in a vacuum
and that the role of power cannot be ignored. The research would look into the history of
the development of some of the ideas as well, particularly concerning ethnicity, such as
4
how the nineteenth century Western intellectuals saw this issue of ethnicity, how it had
become a prominent issue at the end of the First World War with the US President
Woodrow Wilson’s fourteen-point declaration4and look into whether these doctrines are
still relevant to the international situation developed since the onslaught of globalization.
In carrying out my research, I will seek to use qualitative data that was provided
from the United Nations High Commissioner for Refugees (UNHCR), and domestic laws
and other sources from both Myanmar and other countries. Firstly, I will rely on official
documents, news and reports, and relevant internet websites including that of the
UNHCR as the primary sources, together with the secondary sources, such as books and
articles from relevant journals which provide necessary information related to the overall
topic of my research. I will also focus on other countries’ experiences on nationality and
self-determination as well as the experiences of the groups claiming the nationality or
citizenship, and will make use of them for comparison. Through this research, I will try to
touch all the issues which are related to my research and will also study the related legal
perspective of my country.
1.4. The Role of Ethnicity in Myanmar
Before moving to the actual discussions and basic arguments of the related
research on the development of the stateless Rohingya issue in Myanmar, I would like to
provide a brief historical background on the issue of the nationalities (or) ethnicity in
Myanmar.
4 Derek Heater, National Self-Determination: Woodrow Wilson and his Legacy (Great Britain: Macmillan, 1994) 28-47.
5
Asia has a huge population, including over 1.3 billion5 of Chinese and 1.15
billion6 of Indians. It has a long history and suffered from the destruction of wars and
from the Western colonization even before the World War I as well as from other
regional conflicts. In this vast and over populated continent, Myanmar lies between
Asia’s two largest populated countries – China and India. In fact, they are also the
world’s two largest populated countries.
Ethnographically, Myanmar which is situated in Southeast Asia and bordered on
the north and northeast by China, on the east and southeast by Laos and Thailand, on the
south by the Andaman Sea and the Bay of Bengal and on the west by Bangladesh and
India, is one of the most diverse countries in the world which covers an area of 677,000
square kilometers (261,228 square miles). The length of the contiguous frontier is 6,159
kilometers. The total length of Myanmar-Bangladesh boundary is 271 kilometers (168.7
miles); Myanmar-China boundary is 2,204 kilometers (1,370 miles); Myanmar-Thailand
2,107 kilometers (1,309 miles); Myanmar-India 1,338 kilometers (831.8 miles); and
Myanmar-Laos 238 kilometers (147.9 miles).
5 “China’s Population”, About.com: Geography. 14 Jun 2010, 16 Jun 2010. <http://geography.about.com/od/populationgeography/a/chinapopulation.htm>.6 “India’s Population”, About.com: Geography. 27 Jul. 2009, 16 Jun 2010.
<http://geography.about.com/od/obtainpopulationdata/a/indiapopulation.htm>.
6
The immigrants from Central Asia were thought to be the ancestors of the present
day Myanmar people. Anthropologists have classified Myanmar nationalities into three
major groups on the line of linguistic and cultural affinities: (1) Tibeto-Burman, (2) Mon-
Khmer, and (3) Tai-Shans. They are speaking over one hundred languages and each of
these nationalities belongs to one of the above stated three major racial groups. However,
in Myanmar, the term “ethnic” is not common and instead, “nationality” is normally used
to describe the peoples living in different parts of the country. One noted Myanmar
historian observed that ‘their main difference is in language or dialect, and in tradition
and way of life, they are not dissimilar’.8
Historians generally agree that the earliest inhabitants of modern Myanmar still
recognizable today are the Mons of Lower Myanmar. Some historians thought that they
are the descendents of Austro-Asiatic (Mon-Khmer) peoples who once occupied much of
South-East Asia. When looking back to the history of Myanmar starting from the arrival
of the Mons until the fall of its last king, King Thibaw, the peoples of Myanmar had lived
in peace and unity under a feudal form of administration. Though dynasties and names of
offices might have changed from time to time, the feudal form of administration had
remained intact throughout Myanmar’s dynastic history. Moreover, peaceful and
harmonious relationships had also been established among the different races or
nationalities.
The first Anglo-Myanmar War broke out in 1824 and as a result the provinces of
Rakhine and Tanitnharyi had to be surrender to the British. In 1852, the second war broke
8 Khin Maung Nyunt, “Balance between Tradition and Modernity in Myanamr History”, Uta Gärdner and Jens Lrenz eds. Tradition and Modernity in Myanmar (Munster, Hamburg: Lit, 1994) 6-7.
8
out again between Myanmar and British and during this time the whole lower Myanmar
fell under the British. The third and the last war between Myanmar and the British broke
out in 1885. This war was decisive and Myanmar became a part of the British Empire.
Subsequently, Myanmar was administered as a province of the British India. The British
rule brought many changes to Myanmar. As Myanmar came piecemeal under the British
rule in three stages as mentioned above, the colonial administration in Myanmar also
developed through several stages and its form differed from one region to another. Thus
the British government by adopting different systems of administration for Myanmar
proper and the hilly regions was putting into practice its policy of “divide and rule”.
While negotiations with the British were underway after World War II for
Myanmar’s independence, spokesmen for minority, ethnic, cultural or “national”
communities within its borders, advanced or were encouraged to advance demands for
separate rights, opportunities and powers to protect and enhance their particular positions.
These demands were all made vis-à-vis the central state and in the nation-state’s mode of
discourse. When these ethnically conceived demands were put in terms appropriate to the
state system, they then became phrased as “national” demands. However, the British
requirement that leaders of the ‘hill tribes’ and the Shan States indicate their willingness
to join with the government in Yangon in an independent Myanmar, culminating in the
1947 Panglong Agreement,9 meant that ethnicity became part of the independence
process itself. However, in several ways, individuals sought to put themselves forward as
ethnic leaders in order to increase their influence in the government. Thus, additional
9 An agreement signed at “Panglong” (Shan State) on 12 February 1947 between General Aung San and leaders and representatives of Shan, Kachin and Chin States. Today, on every 12 th February, it is celebrated as Union Day in Myanmar.
9
politically organized ethnic movements emerged during the next fourteen years,
threatening the disintegration of the state and a reversion to the politically dispersed
‘Myanmar’.
The new ethnic politics emerged from a series of ceasefire agreements reached
between the government which took power in 1988 and the ethnically designated
insurgent groups. The first ceasefire agreements were reached with the Kokang and Wa
troops from the northern Shan State, pledging not to secede from the Union. Today, the
State Peace and Development Council (SPDC) have officially maintained ceasefires with
seventeen out of eighteen armed ethnic groups since 1997. The KNU (Karen National
Union) is the only major armed group which has not yet entered ceasefire agreement with
the SPDC. As a result, parts which have been under control by the armed groups
previously have achieved improvements in education, health care, trade and in other
areas. The ceasefires have also allowed for the development of civil organizations in
ethnic areas.
A country needs peace for development. However, peace also can be achieved
when there is development in sight. If there is peace, economic development and
prosperity will definitely be achieved. On the other hand, if progress and prosperity could
be achieved to some extent, all the nationalities will be eager to preserve it and that
would become an incentive to reaching agreements on the issues concerning ethnicity.
10
CHAPTER I - LEGAL FRAMEWORK OF NATIONALITY,
SELF-DETERMINATION AND TERRITORIAL INTEGRITY
FROM THE PERSPECTIVE OF INTERNTIONAL LAW
This chapter forms a central part of this thesis since the definitions and concepts
of relevant international instruments which apply to state, nationality, ethnicity, self-
determination and territorial integrity are studied in this chapter. The study was made
with the purpose of finding out the ways to resolving the Rohingya issue in Myanmar
applying the relevant concepts of international law. In the process, this chapter analyses
these international law concepts and see whether they are still applicable or whether they
need reformulation to be applicable in the context of the prevailing international political
environment. The literature in this chapter serves as a guide when the background history
of the stateless Rohingyas is discussed in Chapter Two, and the status of statelessness is
examined in Chapter Three. Therefore, the literature in this chapter naturally has great
influence on the writings of other chapters.
2.1. Relevant Terminology: Definitions, Concepts and the Scope
2.1.1. State
With the rise of globalization, the number of actors and participants in the
international legal system has dramatically increased. However, states remain by far the
most important legal persons and retain their attraction as the primary focus for the social
activity of humankind and thus for international law. Then, what is a state?
11
Art. 1 of the Montevideo Convention states that, “The state as a person of
international law should possess the following qualifications: (a) a permanent population;
(b) a defined territory; (c) government; and (d) capacity to enter into relations with other
states.”10
The Arbitration Commission of the European Conference on Yugoslavia in
Opinion No. 1 declared that, “The state is commonly defined as a community which
consists of a territory and a population subject to an organized political authority” and
that “such a state is characterized by sovereignty”.11
Such provisions are neither exhaustive nor immutable. Other factors may also be
relevant, including self-determination and recognition, while the relative weight given to
such criteria in particular situations may very well vary. What is clear, however, is that
the relevant framework revolves essentially around territorial effectiveness.12
The term “State” or “Nation” often means the same for ethnic or racial groups that
share the common culture, ethnicity and language. These groups might have different
languages, cultures, religions, histories and also different identities of their own but the
fact of living together in a particular territory or region can be defined simply as a
“nationality” or “citizen” of a respective state or nation. In a sense, the meaning of
“national” and “citizenship” can be the same. The terms “nationality”, “citizenship” and
“ethnicity” have many meanings in political theory, law, and sociology and become an
important and complex issue in this age of globalization.
10 Rebecca M.M. Wallace, International Law (London, 2002) 58.11 Robert Jennings, Malcolm N. Shaw QC, International Law, 6th ed. (Cambridge: Cambridge University, 2008) 198.12 Ibid. 198-99.
12
2.1.2. Nationality, Citizenship and Nationalism
Nationality
Nationality is simply defined as a people who have common origins and
traditions. In her article, Orentlicher expressed that, “[N]ationality, is a legal bond having
as its basis a social fact of attachment, a genuine connection of existence, interests and
sentiments, together with the existence of reciprocal rights and duties. …”.13 Nationality,
in fact, establishes prima facie the link between a state and the persons forming it.
Nationality, therefore, is of basic importance for any state, as it defines its population,
one of the three constituent elements of statehood, the other two being territory and
effective government. Consequently, states pay special attention to the rules of
acquisition and loss of nationality, as well as to the effects of nationality in municipal and
international law. In addition, nationality has always been seen in the context of
sovereignty and regarded as falling within the domestic jurisdiction of states. 14
According to Lord Bryce, “A nationality is a population held together by certain
ties, as for example, language and literature, ideas, customs and traditions in such a way
as to feel itself a coherent unity distinct from other populations similarly held together by
like ties of their own.”15
13 Diane F. Orentlicher, International Law and Ethnic Conflict , ed. David Wippman (Ithaca and London: Cornell University, 1998) 318.14 Michael Reiterer, “The Regulation of Nationality in International Law”, rev. of The American Society of International Law by Ruth Donner, The American Journal of International Law (October 1987): 2. Downloaded from Lexis Nexis.15 “Nation and Nationality”, Political Science for + 2 Stage, vol.2, 2.<www.newagepublishers.com/samplechapter/000601.pdf>.
13
The nature of nationality is normally described either as an individual’s
membership in a state or in a nation. “Allegiance”, flowing from the former membership,
according to the Anglo-Saxon concept of nationality, gives rise to a framework of
reciprocal rights and duties. Its destruction causes legal consequences in the international
environment such as refugeehood or statelessness. Thus, nationality has an internal
aspect because it defines the above-mentioned framework and an international one
because it provides the main link between the individual or juristic person and
international law.16
Citizenship: The term citizenship has many meanings in sociology, political theory, and
law. It can denote a relationship to a polity, a social status, an activity, a package of
rights, or a package of responsibilities. Consequently, “the scope of a theory of
citizenship is potentially limitless.” For international lawyers, concerned with the state
system and with phenomena that transcend state borders, the most salient version of
citizenship is nationality, membership in a state.17
Zilbershats, in his article “Reconsidering the Concept of Citizenship”, states that,
citizenship is the embodiment of the strongest link between the individual and the State, a
link which is reflected by the fact that the citizen is entitled to all the rights which the
States grants and is subject to all the duties which it imposes. However, the fall of the
former Soviet Union has led to the birth of States founded on ethnic-nationalist
organization, associated with which is the issue to what extent an ethnic population may
16 Ibid. 3.17 Gerald L. Neuman, “Citizenship Today: Global Perspectives and Practices”. ed. Richard B. Hilder, American Journal of International Law, The American Society of International Law (April 2002): 1-2. Downloaded from Lexis Nexis.
14
legitimately be split to justify separate political organization, a problem which can be
seen in all its severity in the former Yugoslavia. On the other hand, opposing the
processes of ethnicity and division are broad world trends of globalization which are
sweeping away the borders between the various States and cultures and which are
transforming the world into a single global village, in which many issues are regulated by
international bodies that are either multinational or supranational.18
A society of people which lives in a State undertakes to live in accordance with
governing principles set out in a social charter which they have created, a charter which is
generally formulated as a constitution. The full affiliation of a person to a State is
determined by his consent to live in the present and in the future in accordance with the
principles which have been established in the constitution and not by virtue of a cultural
link which was created in the past. The former is a link which is less nationalistic and to a
certain extent more utilitarian.
A nationalist nexus to the past or the more utilitarian nexus to the present and
future are expressed in the earlier stage of immigration to the State. The laws of
immigration are an important element in the issue of citizenship. Using the laws of
immigration, a State may shape the character of its society of citizens and decide whether
it prefers admittance for the purpose of settling and receiving citizenship of persons who
are connected to each other through some nexus to the past or whether it prefers
immigration on the utilitarian basis of nexus to the present and future.
18 Yaffa Zilbershats, “Reconsidering the Concept of Citizenship”, Texas International Law Journal, University of Texas at Austin School of Law (Summer 2001): 2.
15
Nationalism
Human beings can only truly flourish in communities that have some more or less
secure existence. People need community to develop the kind of personal ties that lead to
familial and romantic love, professional satisfaction, friendship, intellectual stimulation,
and creative fulfillment. Shared practices and cultural traditions shape our identities and
give us a sense of belonging. Thus, it is natural for us to want to draw together into more
or less distinct communities with some historical continuity and with the ability to
differentiate our fellow members from outsiders.
Community sentiment translates into national sentiment because only certain sorts
of political entities have the power to shape their destiny. If national sentiment includes a
strong desire that one’s nation have a state of its own (and this is commonly thought to be
an identifying characteristic of nationalist thought), then this desire can be explained in
terms of the fact that, without the international recognition that states are given, the
community cannot maintain its distinctiveness. . . The desire for community therefore
finds natural expression in the desire for a state with internationally acknowledged status
and a state power equal to what other nations have. National sentiment is justifiable in
terms of promotion of the value of community, which is central to fulfilling human life.19
According to one theory, nationalism – the principle of homogeneous cultural
units as the foundations of political life, and of the obligatory cultural unity of rulers and
ruled – is indeed inscribed neither in the nature of things, nor in the hearts of men, nor in
the pre-conditions of social life in general, and the contention that it is so inscribed is a
19 Lea Brilmayer, International Law and Ethnic Conflict, ed. David Wippman (Ithaca and London: Cornell University, 1998) 61-62.
16
falsehood which nationalist doctrine has succeeded in presenting as self-evident. But
nationalism as a phenomenon, not as a doctrine, presented by nationalists, is inherent in a
certain set of social conditions; and those conditions, it so happens, are the conditions of
our time.20
According to Snyder and Ballentine, the most widely accepted doctrine for
“nationalism” is that the state and the nation should be congruent. Nationalism holds that
legitimate rule is based on the sovereignty of a culturally or historically distinctive people
in a polity that expresses and protects those distinctive characteristics.21
Berman observes that a “veritable international law of nationalism” is emerging in
the post-cold war period, a body of theory and practice that has an uneasy relationship to
its own deeply trouble history. A vast amount of work has gone into the reestablishment
of this field of international law: theoretical clarification of legal terms designating the
protagonists of national conflicts (such as “nations”, “peoples”, and “minorities”),
doctrinal specification of rights like self-determination and cultural autonomy, drafting of
innovative general conventions, deployment of policy packages on particular conflicts,
and philosophical debate about nationalism’s cultural meaning. At the same time, a sense
of historical déjà- vu seems pervasive: the past few years have seen the striking
resurgence of forgotten nationalist conflicts as well as legal notions that once seem
relegated to subordinate status, such as international minority rights.22
20 Hurst Hannum, Self-Determination: International Perspectives, eds. Donald Clark and Robert Williamson (Great Britain: Macmillan, 1996) 12.21 Jack Snyder and Karen Ballentine, Nationalism and Ethnic Conflicts (Cambridge, Massachusetts London: MIT, 1997) 65. 22 Nathaniel Berman, International Law and Ethnic Conflict, ed. David Wippman (Ithaca and London: Cornell University, 1998) 25-6.
17
2.1.3. Ethnicity and Ethnic Conflicts
Almost all the countries in this globe have their own different ethnic groups. They
might have different languages, cultures, religions, histories and also different identities
of their own. People who belong to a large or small group, in traditional or advanced
civilization, who are living in a common culture of national origin, religion, language,
history and similar racial identity can be defined as an “ethnic group” or “ethnic
community”.23 However, it is difficult to define “ethnicity”, as its meaning is said to be
not fully racial or cultural or religious.
Reuter observed in her article that the term “ethnic minority” is not clearly
defined in political and social science research or international law and its
characterization depends on the context and the academic approach chosen. She stated
that according to Anthony D. Smith, an ethnic group has six characteristics: a common
name, a myth of common ancestry, shared memories (including historical experiences,
myths, and legends), a link with a historic territory or a homeland (which the group may
or may not currently inhabit), a common culture, and a measure of common solidarity
and self-awareness.24 For Reuter, the term “minority” not only refers to a group
numerically inferior compared to the whole population, but also to express the power
structure in a given case, namely to describe a group in a disadvantaged position.
23 Raymond C. Taras and Rajat Ganguly, Understanding Ethnic Conflict: The International Dimension (Longman: Pearson Education, 2006) 1.24 Tina Kempin Reuter, “Dealing with Claims of Ethnic Minorities in International Law”, Connecticut Journal of International Law (Spring 2009). Downloaded from Lexis Nexis.
18
Maleševic shares the definition of “ethnic groups” by Weber25 as ‘those human
groups that entertain a subjective belief in their common descent because of similarities
of physical type or of customs or both, or because of memories of colonization and
migration; conversely, it does not matter whether or not an objective blood relationship
exists.’26
According to Taras and Ganguly, there are two different types of ethnic groups or
ethnic communities. They are “homeland societies” and “diaspora communities”.
Homeland societies have long-time ownership over that land and such claims are usually
backed up by historical (factual and mythical) and archaeological evidence. Ethnic
Diaspora communities exist in foreign countries and are mainly caused by population
migrations, induced either by oppression in their home state or by the attraction of better
economic prospects and opportunities.27
Claims of ethnic minorities generally fall in two major categories: demands for
protection and demands for empowerment. The first category concerns requests for
protection against extinction and discrimination, as well as claims focusing on the
preservation of culture and ethnic identity of the group. Claims falling within the second
category relate to empowering the group to have the authority to determine its own
affairs, actively and effectively participate in state affairs, to obtain autonomy (non-
territorial [segmental, cultural] and territorial), and, in some cases, to be able to secede
25 Weber is the only founding father of sociology who explicitly and extensively engaged with ethnic relations. Weber not only developed a highly original and systematic account of ethnicity but his theory still remains a potent explanatory framework in dealing with the sociology of ethnic relations. The skeleton key of this theory is present in his chapter on ‘Ethnic groups’ in Economy and Society (1968), but elements of his theory of ethnicity are also vivid in other writings (the various other sections in Economy and Society, Ancient Judaism (1967) and Religion of India (1992); and articles on W. E. B. Du Bois). 26 Siniša Maleševic, The Sociology of Ethnicity (London: SAGE, 2004) 24. 27 Taras and Ganguly, 1.
19
from the state and gain independence. The claims depend on the structure of the ethnic
group and its role in society. Regionally concentrated groups with a history or myth of
independent political existence tend to seek secession or autonomy, while minorities
integrated in pluralistic societies seek equal treatment and access to power within existing
political structures.28
Ismayilov stated that an ethnic conflict is a dispute about important political,
economic, cultural, or territorial issues between two or more ethnic communities. Since
the 1960s, increasing numbers of ethnic groups have begun to demand more rights and
recognition, demands that are now recognized as the major source of domestic and
international conflicts in the post-Cold War world.29
The most difficult claims to deal with not only politically but also legally are
demands of secession and independence. Attachment to territory is particularly powerful;
compromise is often looked upon as an act of treason. As Stefan Wolff points out: “[T]he
significance of territory lies primarily in its symbolic and historical importance for the
relevant groups’ ethnic identities, regardless of the extent to which claims match up with
the historical record.” Surrendering territories tend to be among the most disputed actions
for states as it violates their right to territorial integrity and potentially weakens their
power and role in the international order.30
Territorial claims are usually all-or-nothing matters and predominantly difficult to
resolve. Ethnic separation as policy resolving ethnic conflict can encourage the break-up
28 Reuter 3. 29 Gursel G. Ismayilov, “Ethnic Conflicts and Their Causes”, 53.<http://dspace.khazar.org/jspui/bitstream/123456789/136/1/Gursel%20G.%20Ismayilov.doc>.30 Reuter 22.
20
of states, may transform civil war to an international war, and in the end, might do
nothing to resolve ethnic antagonism. Furthermore, international law does generally not
recognize a right to secession for ethnic groups. Only in “exceptional circumstances,” it
might be a feasible option under international law.31
Many of the central issues arising from ethnic claims implicate key aspects of the
international order and, as a result, international law. The claims touch upon international
legal concepts and pose difficult questions: First, how can international law contribute to
the protection of minorities, particularly regarding the political and economic
discrimination of ethnic groups and the preservation of the group’s identity? Second, how
territorial claims of ethnic groups should be treated? Are power-sharing arrangements
and autonomy compatible with international legal principles? How does international law
deal with claims to secession and independence? And thirdly, does the active protection
and empowerment of ethnic groups and as a consequence, the favorable treatment of
minorities, undermine fundamental principles of equality in international human rights
law?32 These questions need to be addressed by international law.
Generally, it is accepted that justification of the protection of ethnic minorities is
based on three concepts: maintenance of peace and security, respect of human dignity,
and preservation of minority culture. Ethnic conflict poses a threat to peace and security
on the regional and international level. Conflicts in the Balkans, Rwanda, Chechnya, Sri
Lanka, India, and Darfur are only the deadliest and best-known ethnic conflicts that have
shaped international relations over the last fifteen years. Provinces, states, and in some
31 Ibid. 28.32 Ibid. 3.
21
cases even whole regions have been destabilized through a wave of ethnic insecurity and
violence, often paired with a downward spiral of economic decline and state failure,
accompanied by corruption and mismanagement. Ethnic conflicts often involve massive
attacks on civilians, especially on the weakest part of the population. The worst atrocities
have been committed during ethnic conflicts. Spillover effects of ethnic conflict to nearby
regions can include refugee problems, economic disasters, ecological catastrophes,
military complications (armament and proliferation), and instability leading to interstate
war.33
As stated above, ethnic conflict is born out of human attitude concerning their
status and identity, and hence, it is a conflict between the separate groups to gain their
identity and status and it could keep on for a long period, if not until the end of
civilization. In Reuter’s view, peace and stability are the necessary preconditions for an
effective implementation of international legal provisions concerning ethnic minorities.
2.1.4. Self-Determination, President Wilson’s 14 Point Program, and
Groups’ Claims
Self-Determination
In her article, Carley writes, “Since the end of World War I, and especially since
World War II, the world has ordered its affairs with an international system based on the
concept of states whose borders, no matter how they were originally determined, are
considered inviolable. . . The United Nations and other international organizations have
steadfastly defended this system of states. They also defended the right of peoples to self-33 Ibid. 4.
22
determination as outlined in the UN Charter. However, the self-determination principle
has been interpreted differently at different times and has been inconsistently applied as a
result. In the wake of rapid political, social, and technological changes in the world,
distinct national groups have pushed demands for their own states to the top of their
political agendas. These national groups have armed themselves with the claim to self-
determination, in which the right to secession is seen as an implicit, integral part. Because
the issue is so complex and potentially explosive, the response of the international
community has frequently been to sidestep it.”34
She continued to state that, Hurst Hannum of the Fletcher School of Law and
Diplomacy described three eras that have shaped the history of the concept of self-
determination. The first era began in the nineteenth century and lasted through the
Wilsonian period, ending in approximately 1945. At this time, the essential qualities of
the concept of self-determination were, first, that it was a purely political principle,
usually referring to some sort of autonomy rather than statehood for ethnic or national
groups, and second, that the right was not absolute, but relative. In the late nineteenth and
early twentieth centuries, the concept of self-determination was seen almost invariably in
terms of another, much more important, political goal of promoting world peace.
The establishment of the United Nations in 1945 marked the beginning of the
second era of the self-determination idea. Although the UN Charter mentioned self-
determination twice, the term very clearly applies to states and not to peoples or groups.
Yet, once the idea was written into the Charter, it very quickly evolved from a principle
34 Patricia Carley, “Self Determination: Sovereignty, Territorial Integrity, and the Right to Secession”, Report from a Roundtable held by the United States Institute of Peace in conjunction with the US Department of State. (February 1995) 1. <http://www.usip.org/files/resources/pwks7.pdf>.
23
to a right. However, it was never seen as an absolute or unlimited right. During this era,
four principles characterize self-determination. First, self-determination referred only to
decolonization. Second, it did not apply to peoples but to territories. Third, self-
determination was now considered an absolute right – though, again, for colonies only.
Finally, self-determination did not allow for secession; instead, the territorial integrity of
existing states and most colonial territories was assumed. The essential quality of self-
determination during this era, Hannum emphasized, was not that all peoples had the right
of self-determination, but that all colonies had the right to be independent.
The third, and most problematic, era in the development of the concept began
with the end of decolonization in the late 1970s and continues to the present. This stage is
characterized by the attempt in recent decades to fuse the first two eras; that is, to
combine the ethnic and cultural rights of minorities that Wilson championed with the
territorial absolutism of decolonization. The result has been a tendency to redefine self-
determination to mean that every distinctive ethnic or national group has a right to
independence. But though self-determination has taken on this new meaning in a popular
sense, it has not been accepted by any state or by international law.35
Ralph Steinhardt of George Washington University Law School outlined four
essential propositions regarding self-determination and international law. The first is that
the law simply will not definitively resolve competing claims for power or territorial
disputes, though it can provide the requisite mechanism in attempts to do so. Yet the
paradox remains: Self-determination has little legal meaning but is nevertheless a
tremendously powerful political principle. The second proposition regarding the legal
35 Carley 3-4.
24
context of self-determination is that international law is not “univocal” on the subject.
Self-determination has never been defined; hence, its mere mention conjures up several
different meanings at once. The third basic proposition about the legal context of self-
determination is that it is not a “suicide pact” in that it does not oblige any state to
subjugate its own self-interest. The fourth proposition is that law is constantly changing.
There are several new meanings or “clusters of principles” that should be included in the
right to self-determination, just as there are new ways in which the right should be
interpreted.36
Kampelman stressed that “The right to self-determination must be separated from
the right to secession. . . Self-determination may be an internationally recognized
principle, but secession is a national issue, one for states themselves to decide. Self-
determination, Kampelman maintained, means, inter alia, the right to cultural
independence, religious freedom, and the use of one’s own language, but not
secession.”37
President Wilson’s 14-Point Program
President Woodrow Wilson, according to Hannum, was the statesman most
closely identified with the principle of self-determination.38 The concept of “self-
determination”39 was used after World War I when President Woodrow Wilson believed 36 Ibid. 8.37 Ibid. 8-9.38 Ibid. 3.39 Oxford Dictionary of Law (2003) defines self-determination as ‘the right of people living within a non-self-governing territory to choose for themselves the political and legal status of that territory. They may choose independence and the formation of a separate state, integration into another state, or association with an independent state, with autonomy in internal affairs. The systems of mandates and trusteeship marked a step towards the recognition of self-determination as a legal norm. It is probably illegal for another state to intervene against a liberation movement and it may be legal to give assistance to such a movement.’
25
that the right of national self-determination incorporated two essential elements: the right
to secession and the right to independent statehood.40 In Wilson’s distinction between
“internal” and “external” interpretations of self-determination, the former, referring to a
people’s right to choose its own form of government without outside pressure, was of far
greater concern to him. Indeed, he rarely mentioned the external aspect of self-
determination, the one associated with the establishment of independent states.41
Hurst Hannum asserted that “Although US President Woodrow Wilson was the
most public advocate of “self-determination” as a guiding principle in the post-war
period, neither he nor other Allied leaders believed that the principle was absolute or
universal. Indeed, in Wilson’s celebrated “Fourteen Points” speech to the US Congress
on 8 January 1918, the phrase “self-determination” is conspicuous by its absence.”42
Ethnic Groups’ Claims
Self-determination is often considered to be the right of people to shape their own
political, economic and cultural destinies. Among several ethnic and national groups, and
minorities, “national self-determination” has become higher expectation, and used this
right to argue a right to secede from existing states. Consequently, the number of ethnic
groups’ claims and ethnic conflicts has risen continuously since the end of the Cold War.
These groups have various claims but are primarily searching for independent statehood,
or recognition of statehood.
40 Taras and Rajat 6. 41 Carley 3.42 Hannum 13.
26
Müllerson stated that, “the principle of the self-determination of peoples is rightly
considered to be a successor to the political principle of nationality, which became widely
recognized in nineteenth century Europe and related to the emergence of nation states.
Since then, hardly any political or legal principles have been highly praised and
supported by some and strongly denied by others, as has been that of the principle of self-
determination.”43
According to the UN statistics from 2006, “Since the late 1980s, the main threat
to regional and global peace has not come from major inter-state confrontations, but from
another source: internal conflicts, conflicts occurring within the borders of states. These
have replaced the Cold War’s ideological clashes as the principal types of conflicts. To
clarify, from May 1988, when the Cold War was coming to an end, up to the present day,
there have been 47 conflicts in which the United Nations (UN) has intervened with only 3
of these being inter-state in character (the Iraqi invasion of Kuwait in 1990, the Chad-
Libya border dispute in 1994, and the Ethiopia-Eritrea border dispute in 1998-2000).
Adding the latest Iraqi invasion by the United States brings the total number of inter-state
conflicts during the post-Cold War period to 4, compared with 44 internal conflicts in the
same period.”44
However, according to Hannum, “The principle of self-determination is
mentioned only twice in the Charter of the United Nations, both times in the context of
developing “friendly relations among nations”, and in conjunction with the principle of
43 Rein Müllerson, International Law, Rights and Politics, The New International Relations Series. (London: Routledge, 1994) 58.44 Muzaffer Ercan Yilmaz, “Resolving Internal Conflicts in the Post-Cold War Era: Is Peacekeeping Enough?”, Journal of Economic and Social Research . 8(2), 27-42, 27-28.
27
“equal rights … of peoples”, and neither self-determination nor minority rights is
mentioned in the 1948 Universal Declaration of Human Rights although the Declaration
contains a preambular reference to developing friendly relations between nations.”45
2.1.5. Territorial Integrity
International law is based on the concept of the state. The state in its turn lies
upon the foundation of sovereignty, which expresses internally the supremacy of the
governmental institutions and externally the supremacy of the state as a legal person. But
sovereignty itself, with its retinue of legal rights and duties, is founded upon the fact of
territory. Without territory, a legal person cannot be a state. It is undoubtedly the basic
characteristic of a state and such fundamental legal concepts as sovereignty and
jurisdiction can only be comprehended in relation to territory.46
In this age of globalization, political entities are not immutable. One of the core
principles of the international system is the need for stability and finality in boundary
questions and much flow from this. Reflective of this concept is the principle of territorial
integrity. Geographical claims have been raised throughout.47 The principle of the
territorial integrity of states is well established and is protected by a series of
consequential rules prohibiting interference within the domestic jurisdiction of states as,
for example, article 2(7) of the United Nations Charter, and forbidding the threat or use
of force against the territorial integrity and political independence of states, particularly
article 2(4) of the United Nations Charter. This principle has been particularly
45 Hannum 16.46 Jennings, Malcolm Shaw QC 487.47 Ibid. 524.
28
emphasized by Third World states and also by other regions.48 It is widely accepted that
the principle of respect for the territorial integrity of states is well founded as one of the
linchpins of the international system, as is the norm prohibiting interference in the
internal affairs of other states.49
However, this principle appears to conflict on the face of it with another principle
of international law, that of the self-determination of peoples as the requirement to
respect territorial integrity seems to make self-determination null and void. Practice has
not supported its application as a principle conferring the right to secede upon identifiable
groups within already independent states.50
2.2. Statelessness and Refugees
2.2.1. Statelessness and International Jurisprudence on Statelessness
Statelessness
“Statelessness”, in a strictly legal sense, describes people who are not considered
nationals and are unrecognized by any state. Although statelessness is prohibited under
international law, the UNHCR recently estimated that there may be as many as 12 million
stateless people in the world. Recent research from the Refugees International has
highlighted the numerable barriers with which stateless people contend, including the
denial of opportunities to: establish a legal residence, travel, work in the formal economy,
48 Ibid. 522.49 Ibid. 488.50 Ibid. 522-23.
29
send children to school, access basic health services, purchase or own property, vote,
hold elected office, and enjoy the protection and security of a country. 51
There are various circumstances regarding people becoming statelessness which
include, differences in the laws between countries; laws regulating marriage and birth
registration; failure to register children to birth; nationality based solely on descent, often
that of the father; renunciation of nationality (without prior acquisition of another
nationality); political change; discrimination due to race, ethnicity, or gender; expulsion
of people from a territory; abandonment of children; migrant workers being unable to
pass citizenship to their children; and trafficking.52
These people face different problems depending on why they become stateless
and where they live. For instance, in the European Union (EU), stateless people, like
other non-citizens, are not qualified to vote and banned from certain public sector jobs.
Moreover, in some EU states, large numbers of stateless people – such as Slovenia’s
erased citizens are not qualified to obtain both health care and education. 53
In other cases, a stateless person can also be considered as refugee if he or she is
forced to leave the home land. However, Goodwin-Gill writes that, “Statelessness and
refugee status are by no means identical phenomena.”54
International Jurisprudence on Statelessness
51 Brad K. Blitz, “Statelessness, Protection and Equality”, Forced Migration Policy Briefing 3, Refugee Studies Centre, Oxford Department of International Development, (University of Oxford: Sep. 2009) 6.52 Ibid. 2.53 Indira Goris, Julia Harrington and Sebastian Köhn. “Statelessness: what it is and why it matters”, Forced Migration Review: Stateless, Marion Couldrey and Maurice Herson eds., Refugee Studies Centre, Issue 32 (Refugee Study Center: April 2009) 4.54 Guy S. Goodwin-Gill, The Refugee in International Law (New York: Oxford University, 1998) 42. For full text, 1961 Convention on the Reduction of Statelessness: UNdoc.A/CONF.9/15, Final Act.
30
Over the past five decades, the right to nationality has been elaborated in two key
international conventions that have brought the concept of statelessness into the United
Nations framework: the 1954 Convention relating to the Status of Stateless Persons; and
the 1961 Convention on the Reduction of Statelessness.55
The 1954 Convention introduces the international legal status of stateless person
and provides the definition of stateless persons. There are two basic forms of
statelessness: de jure and de facto. “A person who is not considered as a national by any
state under the operation of its law creates de jure (legally) statelessness. De facto (in
fact) stateless persons are those who have legitimate claims to citizenship, but who
cannot prove their citizenship, whose governments refuse to give effect to their
nationality”.56 However, in the Final Act of the 1961 Convention on the Reduction of
Statelessness, the Conference recommended that “Persons who are stateless de facto
should as far as possible be treated as stateless de jure to enable them to acquire an
effective nationality”.57
In addition, as regards to the stateless persons, there are certain cases, such as in
the case of de facto stateless German Jews who were, under the Reich laws, classed as
nationals and non-citizens. Although they were holding nationality legally, the lack of the
usual attributes of nationality, including effective protection, was evident. It is from this
epoch that the term de facto statelessness traces its origins. At that time, however, the
55 Blitz 6.56 Katherine Southwick and M. Lynch, “Nationality Rights for All”, Refugee International (March 2009) 1. 57 See Goodwin-Gill 42-42.
31
terminology was more encompassing for the criterion was not lack of citizenship but
rather lack of effective protection.58
Chimni stated that, the protection of stateless persons thus reveals a gap in
definition between those stateless refugees, and those as such protected as refugees, and
those who are legally or de jure stateless and therefore, covered by the statelessness
conventions. As Manley Hudson, Special Rapporteur for the International Law
Commission on the subjects of nationality and statelessness commented:
Purely formal solutions … might reduce the number of stateless persons
but not the number of unprotected persons. They might lead to a shifting
from statelessness ‘de jure’ to statelessness ‘de facto’.59
Each state has the sovereign responsibility to determine under its national/
domestic law who are its citizens. However, there are also many treaties’ provisions
which protect the children, women and minority groups. As regard to the children, article
24 of the 1966 International Covenant on Civil and Political Rights states that, “Every
child shall be registered immediately after birth and shall have a name,” and that “every
child has the right to acquire a nationality”. The 1989 Convention on the Rights of the
Child (CRC) carries similar provisions. States are to ensure these rights “in particular
where the child would otherwise be stateless”.60
Recently, statelessness has become global issues and challenged not only the
understanding of the issue but also of the causes. Currently, the United Nations,
International and domestic NGOs, refugee organizations and human rights monitoring
58 B.S. Chimni, ed., International Refugee Law: A Reader, 1st Published (New Delhi: Sage, 2000) 73.59 Ibid.60 Southwick and Lynch 4.
32
bodies are the main actors in providing protection for the stateless people and refugees
and their problems.
2.2.2. Refugees, Refugees defined in International Instruments, and Refugees
and the United Nations
Refugees
In this age of globalization, not only the numbers of refugees or immigrants have
been increasing day by day, the purposes and objectives of the peoples who tried to find
refuge in other lands have become very diverse and complex when compared to the ones
taken place in the olden days. Moreover, the volume of these people have mostly
increased in the developed countries as most of the peoples from developing countries try
to escape from their homelands, partly due to circumstances found to be intolerable in
their native countries.
The term refugee is often used to refer to the people who have escaped from
hunger, wars, and other natural, social and security problems such as natural disaster,
33
earthquake, flood, drought, and famine encountered in their homelands or places that they
were living in. However, these terms are not precise.
According to Goodwin-Gill, “The ‘fugitive’ from justice, the person fleeing
criminal prosecution for breach of the law in its ordinary and non-political aspect, is often
excepted from this category of refugees”.61 He again stated that “for the purposes of
international law, states have further limited the concept of the refugee and the solution to
this problem lies, rather in the institution of asylum than in the protection given for
whatever duration, in the territory of another state”.62
Refugees defined in International Instruments
In treaties and arrangements concluded under the auspices of the League of
Nations, a group or category approach was adopted. If the refugee was (a) outside their
country of origin, and (b) without the protection of the government of that state, then it
was sufficient. A Russian refugee, for example, as defined in 1926, includes ‘any person
of Russian origin who does not enjoy or who no longer enjoys the protection of the
Government of the Union of Soviet Socialist Republics and who has not acquired another
nationality’.63
Refugees and the United Nations
The Office of the United Nations High Commissioner for Refugees was
established by the General Assembly on 1 January 1951 to provide international
61 Goodwin-Gill 3.62 Ibid. 3.63 Ibid. 4.
34
protection to the refugees and the resolution of refugee problems. According to the statue,
the work of the Office shall be of an entirely non-political character – it is for
‘humanitarian’ and ‘social’ and to relate, as a rule, to groups and categories of refugees.64
The UNHCR defines the term refugee as a person who “owing to a well-founded
fear of being persecuted for reasons of race, religion, nationality, membership of a
particular social group, or political opinion, is outside the country of his nationality, and
is unable to or, owing to such fear, is unwilling to avail himself of the protection of that
country…”65
In 1959, in anticipation of World Refugee Year, the General Assembly called for
special attention to be given ‘to the problems of refugees coming within the competence’
of UNHCR, while simultaneously authorizing the High Commissioner to use his good
offices in the transmission of contributions for the assistance of refugees ‘who do not
come within the competence of the United Nations’.66
64 Ibid. 7.65 UNHCR: Definitions and Obligations. (undated, last accessed 30 Sep. 2010) <http://www.unhcr.org.au/basicdef.shtml>; For full text, Article 1, 1951 Convention relating to the Statue of Refugees. 66 Goodwin-Gill 10.
35
CHAPTER II - CONCEPTS OF CITIZENSHIP IN
DOMESTIC AND INTERNAITONAL LAWS AND SECURITY OF
THE STATE
3.1. A Brief Historical Background of the Evolution of the Rohingya
Issue in Myanmar
Throughout the history of Myanmar, until the fall of the last king, King Thibaw,
the peoples of Myanmar had lived in peace and unity and through weal and woe under a
feudal form of administration. Myanmar became a colony under the British rule in three
stages: in 1826, in 1852, and in 1886. The colonial administration in Myanmar also
developed through several stages and its form differed from one region to another.67
Between 1826 and 1941, a modern state structure was imposed by the British only upon
the areas of Burma (Myanmar) where the more culturally and linguistically uniform
“valley” peoples lived; the Burmans (Bamars), Mons, Arakanese (Rakhines), Tavoyans
(Dhawes) and some Karens (Kayins). Amongst the diverse “hill” peoples, the Kachins,
Chins, Shans and some Karens (Kayins), the colonial state remained as remote and
67 Kyaw Win, Mya Han and Thein Hlaing, The 1947 Constitution and the Nationalities, vol.1 (Yangon Universities Research Centre and Innwa, 1999) 1-2.
36
largely irrelevant as it had been during the pre-colonial period.68 The rationale of the
colonial administration was based on an economical, as well as a divide-and-rule policy.
When the British annexed Rakhine and Taninthayi in 1826 after the first Anglo-
Myanmar War, they were first placed under the direct control of the Governor-General of
India. However, because Rakhine adjoined Bengal, it was early transferred to the care of
the Government of the Presidency of Bengal, with the Superintendent of Rakhine being
placed under the control of the Commissioner of Chittagong. A little later, the
Superintendent was elevated to the rank of a Commissioner and Rakhine was excluded
from the charge of the Commissioner of Chittagong and placed under the direct control of
the Government of Bengal as one of the territorial divisions of Bengal.69 The introduction
of this administrative system in Rakhine was one of the principal factors that facilitated
the easy migration of people from Bengal, which was to significantly influence issues of
ethnicity in later times.
The Rakhines (Arakanese), on the west coast of Myanmar, have a long history
like the Bamars and the Mons. The Rakhines are from the Tibeto-Burman stock and their
language is very close to the language of the Bamars. The majority of them are Buddhists
although it is estimated that there are more people of Islamic faith found in Rakhine State
than in any other parts of the country, as a result of its common border with the Bay of
Bengal, especially with Chittagong District. Additionally, the introduction of an
administrative system that made it part of Bengal after 1826, as well as Myanmar
68 Robert H. Taylor, “Perceptions of Ethnicity in the Politics of Burma (Myanmar)”, Southeast Asia Journal of Social Science, vol. 10, No. 1 (1982) 8. 69 The 1947 Constitution and the Nationalities, vol.1, 2-3.
37
becoming a province of India after the Third and last Anglo-Myanmar War of 1885, is
believed to have contributed to this situation.
The people who call themselves Rohingyas are the Muslims of Mayu Frontier
area, present-day Buthidaung and Maungdaw Townships of Rakhine State, an isolated
province in the western part of the country across Naaf River, which forms the border
with Bangladesh. The word “Rohingya” was first pronounced by Mr. Abdul Gaffar, an
MP from Buthidaung, in his article “The Sudeten Muslims”, published in the Guardian
Daily on 20 August 1951.70 Since then, a few Bengali Muslim intellectuals of the
northwestern part of Arakan (Rakhine) began to use that term “Rohingya” to refer to
themselves. They were in fact direct descendants of immigrants from the Chittagong
District of East Bengal (present-day Bangladesh), who had migrated into Rakhine after
the province was ceded to British India in 1826. Most of the migrants settled in the Mayu
Frontier Area, near what is now Myanmar’s border with modern Bangladesh. Actually
they were called “Chittagonians” in the British colonial records. The British policy then
was to encourage the Bengali inhabitants from the adjacent areas to migrate into the
fertile valleys in Rakhine as agriculturalists. Indeed, during a century of colonial rule, the
Chittagonian immigrants became the numerically dominant ethnic group in the Mayu
Frontier.
A peaceful coexistence was possible for the two different religious/ethnic groups
in the Mayu Frontier till the beginning of the World War II. However, during World War
II and after 1948, in the opening decade of independent Myanmar, the ethnic violence
70 Aye Chan, “The Development of a Muslim Enclave in Arakan (Rakhine) State of Burma (Myanmar)”, SOAS Bulletin of Burma Research, vol. 3, No. 2, ISSN 1479-8484, Autumn 2005: 412.
38
between Rakhine Buddhists and those Muslim Chittagonians broke out. Just before
gaining independence, Myanmar cooperated with the Japanese in her attempts to gain her
independence from the British at an early date. Then, the British recruited some of these
settlers to give assistance to them in their war efforts against the Japanese in Myanmar,
particularly in gathering military information concerning the Japanese and local
resistance movements. Then, some armed clashes occurred between the Rakhine people
and these settlers. It had brought a great deal of bloodshed to Rakhine. Thus, suspicion
and mistrust had been sown between the two communities since then, and said to have
been lingering on till today.
When we looked back the history of the evolution of the Rohingya movement, it
was found that at the beginning, the Rohingyas adopted the policy of joining East
Pakistan with the slogan, “Pakistan Jindabad” (Victory to Pakistan). When Myanmar
was on the brink of independence, “some members of the ‘Jami-atul Ulema-e’ religious
association of the settlers went to Karachi on a delegation to discuss the incorporation of
Butheedaung, Maungdaw and also Rathedaung townships into East Pakistan, but Pakistan
ignored their proposal”. This policy faded away when they could not gain support from
the government of Pakistan. After Myanmar gained independence, some of these people
rebelled against the government of Myanmar and tried to establish a Muslim State in
northern Rakhine. When that attempt failed, they demanded an autonomous region
instead. When that also failed and Dhaka also followed a policy of disowning those
Chittagonians when Bangladesh gained independence they stuck to insist firmly on their
claim for citizenship by creating stories that they were one of the original ethnic
minorities of Myanmar and included in its 135 or so nationalities.
39
Now the main objectives of the movement of some Rohingya groups have been to
gain the recognition of their ethnic entity in the Union of Myanmar and to obtain the
equal status enjoyed by other ethnic groups. However, some elements have still adopted
the radical idea of founding a separate Muslim state.71 Their leaders began to complain
that the term “Chittagonian Bengali” had been arbitrarily applied to them. But the
majority of the ethnic group, being illiterate agriculturalists in the rural areas, still prefers
their identity as Bengali Muslims. The demand for the recognition of their rights has been
interpreted by some as a direct challenge to the right of autonomy and the myth of
survival for the Arakanese majority in their homeland. A symbiotic coexistence has so far
been inconceivable because of the political climate of mistrust and fear between the two
peoples and the policy* of the military junta.72
The Muslims from the other parts of Rakhine kept themselves aloof from the
Rohingya cause as well. Thus the cause of Rohigyas found a little support outside their
own community and their claims of an earlier historical tie to Myanmar are
unsupportable as U Khin Maung Saw, a former lecturer from the Humboldt-University in
Berlin and an expert in the Rakhine Affairs had observed. He stated that “In the history of
Myanmar, there is no ethnic race called “Rohingya” within the 135 ethnic races and it is
also neither in Myanmar nor Arakanese (Rakhine) language”.73 U Khin Maung Saw also
pointed out that “these people can speak neither Myanmar nor Rakhine language and
71 See full text in Aye Chan, “The Development of a Muslim Enclave in Arakan (Rakhine) State of Burma (Myanmar)”, 408-09.72* The author (Aye Chan) earlier stated that they (Burma’s successive military regimes) stubbornly grasped the 1982 Citizenship Law that allowed only the ethnic groups who had lived in Myanmar before the First Anglo-Burmese War began in 1824 as the citizens of the country. Aye Chan 414-45. 73 Khin Maung Saw, “The Rohingyas’, Who are they? The Origin of the Name ‘Rohingya’”, Uta Gärdner and Jens Lrenz eds. Tradition and Modernity in Myanmar (Munster, Hamburg: Lit, 1994) 89-90.
40
what they can only speak is the Chittagong dialect”, but they have claimed themselves
that they are one of the Islamic Rakhines since from the time of their ancestors and
considered themselves as Myanmar citizens.
Map 2. The Myanamar – Bangladesh Border Land74
Gradually, the question of the citizenship of the Rohingya people has become a
complicated issue. There are numerous reasons for this development. Firstly, as stated
above, Myanmar has 135 nationalities and it has been engulfed with ethnicity problems
74 Myanmar-Bangladesh Border Land, map (Schendel, Kyoto Review of Southeast Asia)
41
of one kind or another since she regained her independence, even to the extent of the
armed conflicts in some cases, and one or two of those conflicts are still ongoing today.
Naturally, Myanmar has neither been willing nor prepared to adopt one more ethnic race
as her own, especially when that one is not included in her original list of nationalities.
Secondly, these people are, also as stated above, the direct descendants of the
Chittagonian immigrants from the Chittagong District of East Bengal and their features
appear very much the same as those of the people living in the present-day Chittagong
areas. Therefore, it is difficult to identify whether the people in that border areas are
recent immigrants, or are descended from the people who had migrated to this area
during the colonial days.
Thirdly, some of these people have adhered to the radical idea of founding a
Muslim State in these areas, or at least wish to establish an autonomous region. The
armed struggle they have been waging against the government of Myanmar has clearly
demonstrated this objective.
Finally, due to globalization, many of these people nowadays, especially the
educated people of Rohingyas, wish to obtain Myanmar citizenship or Myanmar
passports in order to immigrate to third, more economically advanced countries. Hence,
in fact, most of them have now become economic migrants. It could be observed that the
Rohingya movement led by the educated people of their race has been raising, in the
international media, political issues concerning the autonomy of the region where most of
their people are living, or demanding for the right to citizenship of their peoples. They are
also publicizing the issues of discrimination and abuse of human rights. However, the
42
lack of evidence to corroborate their allegations has, many a time, raised a legitimate
question as to whether the real intention of these people who have already been living in
foreign countries, lies in gaining political asylum or refugee status in the developed
countries.
Due to these reasons, the successive governments of Myanmar might have found
themselves in a difficult situation whenever they attempted to find solutions to this
problem. The Myanmar government’s inability or reluctance to accept their claim of
citizenship seems to dwell in legitimate grounds. However, the government has tried its
best to accommodate for the settlement of those who have returned back to the country
after completing a scrutinizing process.
3.2. The Situation of Rohingyas in Myanmar
Currently the population of Rohingyas can be found in three parts of the Rakhine
State in Myanmar, which are Maungdaw, Buthidaung and Rathedaung. The United
Nations estimated in 2009 that the population of the Rohingyas is around 720,000. As the
population of the Rakhine State in 2010 is estimated at 3.83 million, the Rohingyas made
up approximately 25% of the state’s population. However, they are said to be not counted
as citizens by the government.75
The Rakhine people have their own dialect which is close to the Bama dialect and
culture. However, the Rohingyas have a different dialect and culture. They speak a
Bengali dialect which is similar to the one spoken in the Chittagong region of
75 Myanmar, “Rakhine State”, Ministry of Hotel and Tourism. (undated, last accessed 17 Aug. 2010)<http://www.myanmar.gov.mm/ministry/hotel/fact/st_div/rakhine.html>.
43
Bangladesh. Moreover, most of the Rohingya children could not speak either official
language of Myanmar or Rakhine dialect when entering public schools.
During the 1990s, it is reported that thousands of Rohingyas fled to Bangladesh.
In 1992, after signing the bilateral Memorandum of Understanding (MOU) on the
repatriation, the governments of Myanmar and Bangladesh made an arrangement to place
ten transit camps on the Bangladesh side and five reception centers on the Myanmar side.
These five reception centers were opened in May 1992 and 21,850 persons were accepted
during the period from 22 September 1992 to 15 August 1997.76 Amnesty International
also reported that, the mass repatriation of Rohingyas to Myanmar by UNHCR took place
from April 1994 to December 1995. During 2003, some 3,000 Rohingyas were
repatriated to Myanmar. To date a total of 236,000 Rohingyas have returned to the
Rakhine State from Bangladesh. At the beginning of 2004, it is estimated that about
20,000 Rohingyas were still in Kutapalong and Nayapara, the two remaining refugee
camps in Cox’s Bazaar in southern Bangladesh. It is reported that seven thousand of
these 20,000 people have been cleared by Myanmar authorities for return to Myanmar.77
In April 2004, in response to the United Nations Committee on the Rights of the
Child, the government of Myanmar stated that:
“The Government renders full and equal treatment to these people, as
with other races, in matters relating to birth and death registration,
education, health and social affairs. In the official records, they are listed
76 Myanmar, “Ministry of Immigration and Population”, MODiNS.NET. (undated, last accessed 17 Aug. 2010) <http://www.modins.net/myanmarinfo/ministry/population.htm>. 77 “Document – Myanmar”. Amnesty International. (undated, last accessed 17 Aug. 2010) <http://www.amnesty.org/en/library/asset/ASA16/005/2004/en/a565434b-d5d5-11dd-bb24-1fb85fe8fa05/ asa160052004en.html>.
44
as Bengali racial group of the Bengali race and are recognized as
permanent residents within Myanmar.”78
The UNHCR Refworld reported that several Rohingya armed groups have been
established during the past decades, including Rohingya Solidarity Organization (RSO)
and the Arakan Rohingya Islamic Front (ARIF). The RSO was formed in the early 1980s
and switched from political to armed activity after 1991-92. The RSO insurgents
detonated bombs in towns and villages along the western border of Rakhine, resulting in
several deaths and injuries in 1994. At one time, the RSO and the Arakan Rohingya
National Organization (ARNO) had joined and formed the Arakan Rohingya Islamic
Front (ARIF), but the RSO is reported to have left the ARIF in 1998 (The Independent 23
Jan. 2001).79 Although they do not appear to have a large number of troops, there are
concerns about the security and stability of the region.
Some of the Rohingyas are now said to be living in Bangladesh, Pakistan and
Saudi Arabia. They are also located in small numbers in the UAE (United Arab
Emirates), Thailand and Malaysia. In Bangladesh, there are around 28,000 Rohingyas
remaining in two camps and they are recognized as refugees and have benefited from
limited protection and assistance of the UNHCR.80 In 2004, the UNHCR stated that there
are 10,000 Rohingyas in Malaysia and the government of Malaysia had granted
temporary stay permits to these Rohingya refugees. Many of them are said to have
arrived during the 1990s.81
78 Ibid.79 “Myanmar: Information on the Situation of Rohingyas”, UNHCR Refworld, 28 March 2001, 17 Aug. 2010. <http://www.unhcr.org/ refworld/country,,USCIS,,MMR,,3deccd7a4,0.html>. 80 Chris Lewa, “North Arakan: An Open Prison for the Rohingya in Burma”, Forced Migration Review: Stateless, Marion Couldrey and Maurice Herson eds., Issue 32 (Refugee Study Center: April 2009) 13. 81 UNHCR, The UN Refugee Agency , (undated, last accessed 17 Aug. 2010). <http://www.unhcr.org/cgi-bin/texis/vtx/search?page=search&docid =4187af744&query=populationofrohingyainmyanmar>.
45
3.3. Domestic Laws
3.3.1. 1947 Constitution
The First Constitution of Myanmar was adopted by the Constituent Assembly on
the 24th of September 1947.82 There are altogether 14 Chapters in the Constitution and
Citizenship, certain Fundamental Rights and Safeguards are to be found in Chapter Two
– Fundamental Rights - of the Constitution. These rights were enjoyed by citizens and
aliens alike. In this Chapter83, the citizenship was defined as follows:
10. There shall be but one citizenship throughout the Union; that is to say, there shall
be no citizenship of the unit as distinct from the citizenship of the Union.
11.(i) Every person, both of whose parents belong or belonged to any of the indigenous
races of Burma;
(ii) Every person born in any of the territories included within the Union, at least one
of whose grand-parents belong or belonged to any of the indigenous races of
Burma;
(iii) Every person born in any of territories included within the Union, of parents both
of whom are, or if they had been alive at the commencement of this Constitution
would have been, citizens of the Union;
(iv) Every person who was born in any of the territories which at the time of his birth
was included within His Britannic Majesty’s dominions and who has resided in
any of the territories included within the Union for a period of not less than eight
years in the ten years immediately preceding the date of the commencement of
this Constitution or immediately preceding the 1st January 1942 and who intends
82 Myanmar, The Constitution of the Union of Burma, (Rangoon Supdt., Govt., Printing & Stationery: 1947) 1.83 Ibid., 2.
46
to reside permanently therein and who signifies his election of citizenship of the
Union in the manner and within the time prescribed by law, shall be a citizen of
the Union.
12. Nothing contained in section 11 shall derogate from the power of the Parliament
to make such laws as it thinks fit in respect of citizenship and alienage and any
such law may provide for the admission of new classes of citizens or for the
termination of the citizenship of any existing classes.
Section 10 stipulates that there is one common Union Citizenship; there is no state
citizenship separate from Union citizenship. Under section 11 (iv) certain persons were
allowed to elect Union citizenship. The Union Citizenship (Election) Act, 1948 lays
down the rules for electing Union citizenship. Naturalization is provided for by the Union
Citizenship Act, 1948, and the Union Citizenship (Amendment) Act, 1954. There are the
usual qualifications for naturalization: attainment of 18 years of age; 5 years continuous
residence in the country; proficiency in one of the languages spoken in the country; good
character; intention to settle in the country or serve the government of the Union or of
one of the states. However the Union of Burma (Adaptation of Laws) Order, 1948 had
later repealed the Burma Naturalization Act. Consequently, the hardship was encountered
by this Order. Later, the Union Citizenship (Amendment) Act, 1954 removed the
hardship and enabled such persons to acquire a new naturalization certificate by a simple
procedure if they applied for it before April 1, 1955. No distinction is made in the
constitution between a natural-born citizen and a naturalized citizen. Dual citizenship
was, however, eliminated by the Union Citizenship (Amendment) Act, 1954.84
84 Maung Maung, Burma’s Constitution, (The Hague: Martinus Nijhoff, 1959) 94-96.
47
3.3.2. 1974 Constitution and 1982 Burma (Myanmar) Citizenship Law
1974 Constitution
The Second Constitution of Myanmar, which was approved in a nation-wide
referendum held in December 1973, is divided into 16 Chapters and contains 209
Sections. The Citizenship was defined in Chapter XI, Section 145 and 146 of the 1974
Constitution85 as follows:-
Article 145
(a) All persons born of parents both of whom are nationals of the Socialist Republic
of the Union of Burma are citizens of the Union.
(b) Persons who are vested with citizenship according to existing laws on the date
this Constitution comes into force are also citizens.
Article 146
Citizenship, naturalization and revocation of citizenship shall be as prescribed by
law.
Article 147 states the equality of all citizens before the law irrespective of race,
status, official position, wealth, culture, birth, religion or sex. Fundamental Rights and
Safeguards are to be found in the Articles from 148 to 172.
85 Myanmar, The Constitution of the Socialist Republic of the Union of Burma , (Rangoon: Printing and Publishing Corporation, 1974) 38.
48
1982 Burma (Myanmar) Citizenship Law
In 1982, the then government of Myanmar, on the basis of, and in accordance
with, the 1974 constitution, elaborated and promulgated the Citizenship Law86 as Pyithu
Hluttaw (People’s Assembly) Law No. 4. The Law contains 8 chapters and 76 sections.
The Citizenship Law contains: Title and Definition; Classifications of Citizenship
(Citizenship, Associate Citizenship and Naturalized Citizenship); Decision as to
Citizenship, Associate Citizenship, or Naturalized Citizenship; Central Body; Appeals;
and Miscellaneous.
The salient points of the Law are as follows:
3. Nationals such as the Kachin, Kayah, Karen, Chin, Burman (Bamar), Mon,
Rakhine or Shan and ethnic groups as have settled in any of the territories
included within the State as their permanent home from a period prior to 1185
B.E., 1823 A.D. are Burma citizens.
4. The Council of State may decide whether any ethnic group is national or not.
5. Every national and every person born of parents, both of whom are nationals, are
citizens by birth.
6. A person who is already a citizen on the date this Law comes into force is a
citizen.
7. The following persons born in or outside the State are also citizens:
(a) persons born of parents, both of whom are citizens;
86 “1982 Myanmar Citizenship Law”. UNHCR.org Refworld. (undated, last accessed 6 Aug. 2010)<http://www.unhcr.org/cgi-bin/texis/vtx/refworld/rwmain?docid=3ae6b4f71b>.
49
(b) persons born of parents, one of whom is a citizen and the other an
associate citizen;
(c) persons born of parents, one of whom and the other a naturalized citizen;
(d) offsprings born of parents one of whom is -
(i) a citizen; or
(ii) an associate citizen; or
(iii) a naturalized citizen; and the other is born of parents, both of
whom are associate citizens.
(e) Xxx.
(f) Xxx.
8.(a) The Council of State may, in the interest of the State, confer on any person
citizenship or associate citizenship or naturalized citizenship.
13. A citizen shall not acquire dual citizenship.
15.(b) A foreigner shall not acquire citizenship merely by marriage to a citizen.
42. Persons who have entered and resided in the State prior to 4 th January 1948,
and their children born within the State may, if they have not yet applied
under the Union Citizenship Act, 1948, apply for naturalized citizenship to
the Central Body, furnishing conclusive evidence.
43. The following persons, born in or outside the State, from the date this Law comes
into force, may also apply for naturalized citizenship: -
(a) persons born of parents, one of whom is a citizen and the other a
foreigner;
(b) persons born of parents, one of whom is an associate citizen and the other
a naturalized citizen;
(c) persons born of parents, one of whom is an associate citizen and the other
a foreigner;
(d) persons born of parents, both of whom are naturalized citizens;
50
(e) persons born of parents, one of whom is a naturalized citizen and the other
a foreigner.
44. Any applicant for naturalized citizenship shall have the following qualifications: -
(a) be a person who conforms to the provisions of Section 42 and Section 43;
(b) Xxx;
(c) be able to speak well one of the national languages;
(d) Xxx;
(e) Xxx;
45. A person married to a citizen or to an associate citizen or to a naturalized citizen,
who is holding a Foreigner’s Registration Certificate, prior to the date this Law
comes into force, shall have the following qualifications to apply for naturalized
citizenship:-
(a) Xxx;
(b) Xxx;
(c) Xxx;
(d) be the only husband or wife;
(e) have resided continuously in the State for at least three years as the lawful
wife or husband.
72. No foreigner shall have the right to apply for naturalized citizenship from the
date this law comes into force, except under provisions of this law.
76. The following Acts are repealed by this law:
(a) The Union Citizenship (Election) Act, 1948;
(b) The Union Citizenship Act, 1948.
51
3.3.3. 2008 Constitution
The third constitution of Myanmar was approved in a nation-wide referendum
held in May 2008.87 The 2008 Constitution contains 15 Chapters and 457 Clauses88 and
the Provisions concerning citizenship are stated in Sections 345 and 346 in Chapter VIII
– Citizen, Fundamental Rights and Duties of the Citizens. They are as follows:
345. All persons who have either one of the following qualifications are citizens of the
Republic of the Union of Myanmar.
(a) person born of parents both of whom are nationals of the Republic of the
Union of Myanmar;
(b) person who is already citizen according to law on the day this Constitution
comes into operation.
346. Citizenship, naturalization and revocation of citizenship shall be as prescribed by
law.
3.3.4 Burma (Myanmar) Immigration Act
The Burma Immigration (Emergency Provision) Act, 1947 was enacted on 13
June 1947. Section 13 and 14(1) of this Immigration (Emergency Provision) Act, 1947
was amended in 1990.89
In accordance with the 1982 Citizenship Law, all citizens need to apply for the
new “Citizenship Scrutiny Cards” which are color-coded for each categories of the
87 Robert H Taylor, The State in Myanmar, (Singapore: NUS, 2009) 487.88 Myanmar, Constitution of the Republic of the Union of Myanmar (2008), (Ministry of Information, 2008) 89 “The Burma Immigration (Emergency Provision) Act, 1990”, www.baliprocess.net. (undated, last accessed 5 Aug. 2010). <http://www.baliprocess.net/index.asp?PageID=2145832107>.
52
citizenship status: “Pink Cards” for full citizens who belong to one of the 135 national
races, “Blue Cards” for associate citizens and “Green Cards” for naturalized citizens.
3.3.5. Rohingya Issue and 1947, 1974 and 2008 Constitutions and Myanmar
Citizenship Laws
From the discussions of the history and salient points of Myanmar’s Constitutions
and their Citizenship Laws enacted so far in the country, it was found that the laws with
regard to granting citizenship are strict in Myanmar and there seemed to have no
flexibility also in their applications. On the other hand, there had been some weaknesses
on the part of the so-called Rohingya people in taking up the opportunities which had
come out from time to time from the loopholes of the enacted laws. The misses of
opportunities might primarily have come out as most of them were poor and uneducated
and lived in the remote areas of the country as well as partly due to the ignorance,
insensibility, inconsiderateness and lack of far-sightedness of the educated people of their
community in advancing the interests of the community, especially in the cases
concerning the submission for citizenship for their people.
For instance, in the 1947 Constitution, section 11(iv) stated that;
“Every person who was born in any of the territories which at the time of
his birth was included within His Britannic Majesty’s dominions and who
has resided in any of the territories included within the Union for a period
of not less than eight years in the ten years immediately preceding the
date of the commencement of this Constitution or immediately preceding
the 1st January 1942 and who intends to reside permanently therein and
53
who signifies his election of citizenship of the Union in the manner and
within the time prescribed by law”.
Therefore, under section 11(iv), certain persons were allowed to be elected as
Union citizenship.
The inclusion of this provision was in fact intended to give opportunity to the
British citizens who, at that time, may wish to attain citizenship of Myanmar. They may
choose to remain British nationals. This was a reciprocal arrangement, provided for by
His Majesty's government by the Burma Independence Act, 1947. The period allowed for
those to make their choice before the first day of April, 1955. The Union Citizenship
(Election) Act, 1948 lays down the rules for electing Union citizenship. Naturalization is
provided for by the Union Citizenship Act, 1948, and the Union Citizenship
(Amendment) Act, 1954.90 The question as to whether there was a possibility for the so-
called Rohingyas to obtain citizenship from this provision should be considered.
However, these people needed to have proficiency in one of the languages spoken in the
country.
Although most of the descendants of the migrants from the Chittagong district
might not have applied and obtained Myanmar citizenship at the dawn of the
independence, U Khin Maung Saw, in his paper, stated that in the 1950s the then Prime
Minister U Nu was reported to have granted about 50,000 illegal immigrants in the
Rakhine State to Myanmar citizenship and the rest were tolerated to continue to stay in
Myanmar without any identity or as foreigners.91
90 Maung Maung 94-95.91 Khin Maung Saw, “On the Evolution of Rohingya Problems in Rakhine State of Burma”, 61.
54
Although Article 3 of the 1982 Burma (Myanmar) Citizenship Law stated that
“Burma (Myanma) citizens are nationals such as the Kachin, Kayah, Karen, Chin,
Burman (Bamar), Mon, Rakhine or Shan and ethnic groups as have settled in any of the
territories included within the State as their permanent home from a period prior to 1185
B.E., 1823 A.D.,” another opportunity seems to have been opened in the. Article 42
which stated that, “Persons who have entered and resided in the State prior to 4th January
1948, and their children born within the State may, if they have not yet applied under the
Union Citizenship Act, 1948, apply for naturalized citizenship to the Central Body,
furnishing conclusive evidence”.
According to Amnesty International, the press release of the Ministry of Foreign
Affairs of the Union of Myanmar in 1992 stated that:
“In actual fact, although there are (135) national races living in Myanmar
today, the so-called Rohingya people is not one of them. Historically,
there has never been a ‘Rohingya’ race in Myanmar. The very name
Rohingya is a creation of a group of insurgents in the Rakhine State. Since
the First Anglo-Myanmar War in 1824, people of Muslim Faith from the
adjacent country illegally entered Myanmar Naing-Ngan, particularly
Rakhine State. Being illegal immigrants, they do not hold immigration
papers like other nationals of the country.”92
However, since then, there are some indications of the change of situation with
regard to this issue. It is reported that the Ministry of Immigration and Population have
been issuing temporary registration cards to these people without registration certificates.
92 “Document – Myanmar”. Amnesty International. (undated, last accessed 17 Aug. 2010)<http://www.amnesty.org/en/library/asset/ASA16/005/2004/en/a565434b-d5d5-11dd-bb24-1fb85fe8fa05/ asa160052004en.html>.
55
In response to UNHCR’s intensive advocacy efforts to document the so-called
Rohingyas, the Department of Immigration and National Registration, in 1995, has
started to issue the Temporary Registration Cards (TRC) which is also known as the
“White Cards”.93 It is learned that during the period of 1 April 1995 to 11 November
1997, the Department of Immigration and National Registration had issued 350472
Temporary Registration Certificates.94
The new 2008 Constitution has not yet expounded the citizenship laws in detail.
Article 346 merely states that “Citizenship, naturalization and revocation of citizenship
shall be as prescribed by law”. We will need to wait and see how it will come into shape.
In the meantime, I would take this opportunity to make some observations with
regard to the issue concerning nationality of the Rohingyas in Myanmar in the context of
the international practice concerning the issue of nationality.
Firstly, the practice of some of the developed countries with regard to granting of
citizenship could be observed as follows. Despite the United States being renown as the
most democratic country, it is learned that it has not granted automatic citizenship to the
children born in the US of Mexican parents who had come to and lived in the US
illegally. Likewise, the peoples of the Indian subcontinent, such as Sri Lanka, are also
known to have suffered similar discrimination of citizenship right for their children when
they took up permanent residency in the United Kingdom which is recognized as the
Mother of Democracy. Moreover, Germany also has not automatically granted German
93 Lewa 11.94 Myanmar, “Ministry of Immigration & Population”. MODiNS.NET. (undated, last accessed 17 Aug. 2010)
56
citizenship to the children of many Turks who had lived in Germany for more than forty
years after arriving there as Guest Workers in the 1950s.95
Secondly, it could be observed that the Rohingya problem initially appears to be a
simple and straight forward issue and easy to be resolved. However, when we study it
deeply, it is found that the problem lies deep in the historic and ethnic marshes. In the
historical context, there are firm evidences that they had arrived as immigrant labors
during the colonial period. Hence, the logical conclusion that could be drawn from this
historical fact is that their ethnicity is not included in the list of the country’s indigenous
nationalities. However, the Rohingyas claimed that they have been the descendents of
early immigrants to Myanmar and hence entitled to the automatic citizenship of the
country like other nationalities such as the Shans, the Kachins, etc. In fact, historically as
well as regionally, never there has ever been an ethnic race with the name of Rohingya in
this part of the world, let alone in Myanmar. As stated above, the name came into being
only in the 1950s when it was invented by one of their people. Therefore, it is not a
straightforward issue and hard to mange it, especially when it is added by other complex
factors such as geographical position, population explosion, economic development,
security concern and endeavors for unity and harmony of the people.
Finally, it could be concluded that the only rational solution could lie in the step
by step approach and it would include the process of integration, applying and obtaining
permanent residential status, and eventually, gaining naturalized citizenship. This process
could be expedited by the so called Rohingyas’ learning and understanding of the
Myanmar language and culture and living in harmony with the native people as well as
95 Khin Maung Saw 62.
57
their disowning the ideas of founding a Muslim state or establishing an autonomous
region inside Myanmar.
3.4. International Instruments
3.4.1. Citizenship or Nationality
When we study the term citizenship, we can see that it has many meanings in
sociology, political theory, and law. It can denote a relationship to a polity, a social
status, an activity, a package of rights, or a package of responsibilities. In international
law which deals with the state system and with phenomena that transcend state borders,
citizenship is nationality, membership in a state. Nationality establishes the link between
a state and the persons forming it. In fact, nationality is of basic importance for any state
because it defines its population which is one of the three constituent elements of
statehood. The other two constituents are territory and effective government. In
international law and international relations, nation-states are still the main actors and
nationality cannot be bestowed or acquired under international law. Besides, nationality
has always been seen in the context of sovereignty and regarded as falling within the
domestic jurisdiction of states. States, therefore, pay special attention to the rules of
acquisition and loss of nationality, as well as to the effects of nationality in municipal and
international law.
In the field of International Law, there have been cases of States’ conferment and
withdrawal of nationality. The most recent cases happened in the former states of the
Soviet Union. Soon after the Soviet Union fractured into fifteen states, the Supreme
58
Council of Latvia proclaimed that only citizens of prewar Latvia and their descendants
would be granted automatic citizenship in the newly independent state. With this, some
half a million ethnic Russians in Latvia became instant aliens in the place they considered
home. Estonia also adopted a restrictive citizenship law in 1992 as it reclaimed
independence following fifty-one years of Soviet rule. When the Czech Republic became
an independent state upon its “velvet divorce” from Slovakia in December 1992, it too
enacted a restrictive law excluding its long-term residents from citizenship.96 U Khin
Maung Saw, remarked that, “In any case one should not forget the fact that every
sovereign nation has their own immigration and naturalization laws which the others
show respect”.97
3.4.2. Ethnic Group and Ethnicity
The Rohingyas are definitely the members of an ethnic group. However, it is not
certain whether an ethnic group called Rohingya has existed historically or it has all
along been a fabricated ethnic name. Because historically, there are firm pieces of
evidence that they have been the descendants of the migrants from the Chittagong
District. So before we dispute whether the Rohingyas are one of the ethnic groups of
Myanmar as they have been claiming, the problem to be resolve first is whether there
existed at all in history an ethnic group called the Rohingya. As stated very often, ethnic
groups cannot be created out of whole cloth. Therefore when it comes to the question of
citizenship for these people, there could be a possibility for them to obtain naturalized
citizenship gradually, but it could be on an individual basis after gaining first the right to
96 Orentlicher 296-98.97 Khin Maung Saw 62.
59
permanent settlement. However, it would be impossible for the group as a whole to
obtain recognition as an ethnic group originated in Myanmar because they are neither an
historical ethnic group nor an indigenous ethnic group of Myanmar. As mentioned in
Chapter Three, indigenous ethnic groups of Myanmar are defined to be the ethnic groups
who were already living in Myanmar before 1823. There is a possibility that new settlers
who arrived after British colony could be considered to be citizens but not as an
indigenous ethnic group.
Myanmar has been encountering problems which could be construed as ethnicity
issues, for instance with some Kayins, but their case is different from the issue of so-
called Rohingyas because Kayins are one of our races or ethnic groups from the very
beginning. If ethnicity serve as part of a group’s claim to be a people entitled to self-
determination,98 it could be argued with definitiveness that there has never been an
ethnicity issue concerning the so-called Rohingyas in Myanmar. Besides, for Myanmar
which is still encountering or threatened with armed conflicts in a few remote areas of the
country, territorial integrity plays a paramount important role in her internal and
international considerations.
3.5. Statelessness, Refugees and Security of the State
3.5.1. Statelessness
Who are the stateless persons? It is difficult to identify them. However, persons
those who claim for citizenship but cannot prove their citizenship or whose governments
refuse to recognize them as their nationality or citizenship can be called as stateless 98 Wippman, ed., 2.
60
persons. According to Blitz and Lynch, ‘statelessness’ is defined as people who are not
considered nationals by any state.99 In this world, there are millions of people who lack
nationality or citizenship and become stateless. There are various stateless groups in
various parts of the world, such as the Roma, and some other groups in Europe, and some
in Russia, and the Palestinians. Some of the Rohingyas who have not yet been granted
citizenship by Myanmar has now become stateless persons as Bangladesh has not also
recognized them as its citizens.
3.5.2. Refugees
The term refugee is defined in the Lectric Law Library as “any person who is
outside any country of such person’s nationality or, in the case of a person having no
nationality, is outside of any country in which such person last habitually resided, and
who is unable or unwilling to return to, and is unable or unwilling to avail himself or
herself of the protection of, that country because of persecution or a well-founded fear of
persecution on account of race, religion, nationality, membership in a particular social
group, or political opinion.”100 Since the end of the Cold War, human migration and the
flow of international refugee movements are rapidly increasing. The Rohingya people
who have become stateless are eager to get refugee status in any country they arrive as
refugees have also the right to seek asylum (Universal Declaration of Human Rights of
1948).
99 Brad K. Blitz and Maureen Lynch, “Statelessness and Benefit of Citizenship: A Comparative Study”, Agenda for Human Rights (16 November 2008) 4. 100 “Refugees”, The Lectric Law Library. (undated, last accessed 9 Aug. 2010)<http://www.lectlaw.com/def2/q023.htm>.
61
3.5.3. Security of the State
Security is a legitimate interest of a State. The State has the right to protect its
people and all persons under its jurisdiction and its territory and adopt policies, rules and
regulations to protect them. The Rohingya problem was in fact triggered by security
reasons. The Myanmar government had been concerned with the security of the border
areas in the west due to steady influx of refugees and attempts were made from time to
time to drive out the refugees or the illegal immigrants from the country. However, the
problem came up whenever it attempted to do so and reached beyond its control.
When the “Independence War” in East Pakistan broke out in 1970, it was reported
that there were about one and a half million “war refugees” in Arakan Division of
Myanmar. In fact, most of the people who claimed to be the “Rohingya people”
nowadays, crossed the border and settled down inside Myanmar in the 1970s during the
Bangladesh Liberation War and later. Then, the population growth of Rohingyas inside
Myanmar became at least ten times higher than before. In 1978, the then Myanmar
Government made routine immigrant checks with the “Nagamin Operation” at the
Rakhine-Bangladesh border and most people fled to Bangladesh claiming that they were
Rohingyas and the issue of abuses of the army were raised. Later those Rohingyas were
allowed to return back to Myanmar but the numbers of returnees were reported to be
much higher than the numbers of official refugees declared by the Bangladeshi
authorities. In fact, the aborted Naga Min Operation at that time had put the Rohingya
issue to the attention of the international community. In 1991, another Naga Min-type
operation was conducted by the Myanmar government, and consequently, the issue of
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abuses against the Rohingyas was raised. Although the allegations were vehemently
rejected by the military government, the international pressure was said to be harsher than
in 1978.101
The government’s intention was to curb the influx of migrants and refugees into
the country. The increase of migrants or refugees would in the long term definitely
threaten the integrity and perpetuation of the state. The Rohingyas, although they were
originally migrants, now aimed at founding a Muslim State inside Myanmar, or at least
demanding the establishment of an autonomous region. Some of them are spearheading
armed struggles against the government. Some of them are reported to have been
undergoing training in terrorist camps outside the country. Those taking refuge in other
countries are also working hard to disseminate and publicize unfounded allegation of the
so-called abuses the Rohingyas were said to have been suffering inside Myanmar. They
all have been campaigning in different and various ways to attain their goal of at least
establishing an autonomous region in a country of which historically they have never
been a part of it. At least the security of Myanmar is at stake if this issue could not be
resolved as quickly as possible.
101 Khin Maung Saw 45.
63
CHAPTER III - A COMPARATIVE STUDY ON THE STATUS
OF STATELESSNESS: ROHINGYAS AND THE EXPERIENCES
OF ROMA
4.1. The Development of the Rohingya Issue and Perspectives of the
Interested Parties
4.1.1. Perspective of Myanmar
In Chapter Two of this study, it is already discussed on the historical background
and the situation of the Rohingya people in Myanmar. The study of the historical
background found the Rohingyas’ claims of an earlier historical tie to Myanmar to be
unsupportable. As stated, Myanmar historians generally agreed that “in the history of
Myanmar, there is no ethnic race called “Rohingya” within the 135 ethnic races”.102
The cause of the Rohigyas found a little support outside their own community.
However, today, in the Rakhine state, the population of Rohingyas comprises
approximately 25% of the state’s population. Although the records of the Myanmar
government have not counted them as citizens, since 1995, the Department of
Immigration and National Registration have been issuing Temporary Registration Cards
(TRC), also known as the “White Cards”, to these people.
Today, due to the globalization, many of these people wish to immigrate to the
economically advanced countries such as Thailand, Malaysia and the Middle East in
102 Khin Maung Saw, “The ‘Rohingyas’, Who are they? The Origin of the Name ‘Rohingya’”, 89-90.
64
order to enjoy better living conditions. To achieve this purpose, they seemed to have
attempted as follows. First, they tried to travel to the destination countries legally with
Myanmar passports. However, in order to get Myanmar passports, they need to obtain
citizenship. Due to the lack of identification documents, they have also chosen to take
risky immigration and illegal channels, such as by boat. Under the present circumstances,
undocumented stateless Rohingyas have now become economic migrants and illegal
trespassers. Furthermore, in order to enable to gain refugee status in countries to which
they have attempted to immigrate, they have fabricated stories alleging discrimination
and persecution in Myanmar.
Therefore, though the government of Myanmar has refused their claims of
citizenship or ethnic group status and also declined their claim of separated autonomy
within Myanmar, Myanmar authorities tried its best to accommodate them by way of
accepting them back to the country and provide them for resettlement in Myanmar.
4.1.2. Perspective of Bangladesh
Today, Rohingyas can be found mostly in Bangladesh, Pakistan and Saudi Arabia
while smaller populations are located in the UAE (United Arab Emirates), Thailand and
Malaysia. Lewa states that, on account of statelessness and lack of identification
documents to prove their citizenship, tens of thousands of Rohingyas have been travelling
by boats to the Middle East and Malaysia using Bangladesh as a transit country.103 Since
they are entering illegally, they have no access to protection and are also regularly caught
in the immigration crackdowns and end up facing deportation.
103 Chris Lewa, “North Arakan: An Open Prison for the Rohingya in Burma”, 13.
65
In 1992, after signing the bilateral Memorandum of Understanding (MOU) on the
repatriation between Myanmar and Bangladesh governments, an arrangement was made
to set up ten transit camps on the Bangladesh side and five reception centers on the
Myanmar side.
According to the UNHCR, there are around 28,000 Rohingyas remaining in the
two camps. The government of Bangladesh has allowed the UNHCR and some NGOs to
assist them,104 yet it is reported that there are still up to 200,000 of them who had settled
outside the camps.105 They are unregistered Rohingya refugees and they settled among
local residents in slums and villages in Cox’s Bazar District and Chittagong Hill
Tracks.106 The government of Bangladesh considered them as irregular immigrants and
they do not have any benefits or protection. The government also considers them to be
economic immigrants. However, Lewa stated in his article that there are also some anti-
Rohingya movements among the local population which have been pressing (the)
government to take action against the Rohingyas.107
As Bangladeshi population continues to increase, resulting in a variety of
economic and related problems, the Bangladesh authorities began to crackdown on
unregistered Rohingyas at the end of 2007. Some of them were arrested under the
Immigration Act and some of them were deported across the border to Myanmar. These
deportations generally took place across the Naaf River or on a land border. The police
104 “Rohingya: Burma’s Forgotten Minority”, UNHCR Refworld, 18 Dec. 2008, 15 Oct. 2010. <http://www.unhcr.org/refworld/country,,,FACTFINDING,MMR,,494f53e72,0.html>.105 Lewa 13. 106 Chris Lewa, “Unregistered Rohingya Refugees in Bangladesh: Crackdown, Forced Displacement and Hunger”. The Arakan Project, (Bangkok: 11 February 2010) 2.107 Ibid. 1.
66
and the Bangladesh Border Security Forces (BDR) are rounding up in all sub-districts
where unregistered Rohingyas have been settling.108
Lewa wrote that, on 2 January 2010, there was a crackdown on unregistered
Rohingyas who had settled outside the two camps in Cox’s Bazar by the Bangladesh law
enforcement agencies.109 The Cox’s Bazar District crackdown was followed by the
announcement of the Bangladesh national media on December 2009 that Myanmar had
agreed to the repatriation of 9,000 Rohingya refugees during a meeting between the
Bangladesh Foreign Secretary and the Myanmar Deputy Foreign Minister.110
Although many of them were deported or repatriated to Myanmar voluntarily or
involuntarily by the Bangladeshi authorities, some returned with new groups or sought
out opportunities to try to go to other countries by sea using Bangladesh as a transit point
rather than seeking refugee status in Bangladesh.
4.1.3. Perspective of Rohingyas
The CRCS historian Nurul Islam expounded the perspective of Rohingyas in his
article, “To Bring Harmony in Arakan, Xenophobic Works of the Rakhines Must Stop”.
The article dated September 2009 was circulated via the Internet. On the ‘Inhabitance of
the Rohingyas in Rakhine’, he stated, “According to History, mankind started to inhabit
in Arakan since 6th century. But one thing is not proved that only Buddhist inhabitants
were exclusively commenced to inhabit in Arakan. So, it is no doubt that Muslim
inhabitants were among them… Most of the Buddhists migrated from India and the
108 Ibid. 1-3.109 Ibid. 1.110 Ibid. 4.
67
Muslims migrated mostly from Arab countries and few from Bengal. . . Some Arakanese
kings were found bearing Muslim names…”111
…On ‘Ethnic Name Issue’, he explained that “….In other hand, in the early
period, Arakan Muslims were less educated and politically not so conscious. First they
call themselves “Rohangyi”. But after 16th century when they become politically
conscious, they were realizing that a meaningful ethnic name is crucial for them as
identity. So, they themselves invented a name “Rohingya” as ethnic identity. But none
can give guarantee of 100% reality on historical facts. . . Some Rakhine brothers raised a
question that “Why the historical evidences about the Rohingya Muslims were ignored in
Burma history?” It is clear that Burma history was a fabricated history because the
history was compiled as per direction of the military rulers. Burma history is
discriminated and incomplete because the real history of an ancient ethnic group of
Arakan was intentionally ignored and … I mean the real historical evidences of Rohingya
Muslims were hidden and distorted. . .112
On ‘Rohingya-Phobia and its impact’, he stated that “. . . So, why the Rohingya
Muslim in Arakan were rejected their citizenship despite they have been inhabiting on
Arakan soil for centuries. It was due to religious and political discrimination. . . After
downfall of democratic government in Burma, the military junta (dictatorship) adopted
policy of ‘Divide and Rule’ only for different religious ethnic groups such as Rohingya
Muslim, Karen, Ko Kang, etc. This Junta is being implemented many kinds of Rohingya
cleansing policies and operations one by one caused huge Rohingyas left Arakan to
111 Nurul Islam, “To bring harmony in Arakan, Xenophobic works of the Rakhines must stop”, (Sep., 2009) 1-2. 112 Ibid. 2-3.
68
escape the severe persecution of Junta. The aim and objective of Junta is to make Arakan
a Rohingya free state. . .At the same time . . . the conservative Rakhines are raising
slogan that “Rohingyas are Bangali, they came from Bangladesh.” They said they never
heard the name ‘Rohingya’ in Arakan. But they will never refuse the existence of Arakan
Muslims (Rohingya) since Arakan was discovered. . .”113
In ‘comment and suggestions’, he asked “. . . Rakhine brothers to erase ‘Rohingya
phobia’ from their minds and get ready to embrace them because when the prospective
Democratic Government in Burma is established . . . when the government announces its
amnesty to those who are living in exile, more than 20,00,000 exile Rohingyas will be
repatriated in to their Native place, Arakan, Burma . . The Rohingya can play a majority
role in Arakan politics . . . But it will be a political blunder for them (Rakhines) for . . .
the Arakan people must be in a great trouble in future and they will have to atone for their
political blunder one day. .” 114
The work of Nurul Islam indicates a lack of support regarding claims of the
inhabitance of the so-called Rohingya people in the Rakhine state since 6th century when,
according to him, the Rakhine state was founded. He concluded that the Muslims’ claim
of residence was based on a lack of proof that Buddhists exclusively inhabited in the area.
On the ethnic name “Rohingya”, he said that the Rohingyas invented the name after the
16th century when they became politically conscious. But he said he could not give
historical evidence as, according to him, Burma history was a fabricated history; that the
real history of an ancient ethnic group of Arakan was intentionally ignored; and that the
113 Ibid. 3-5.114 Ibid. 6.
69
real historical evidences of Rohingya Muslims were hidden and distorted. On ‘Comment
and Suggestions’, he threatened that the Arakan people will be in great trouble in the
future and will have to atone for their political blunder if they continue their xenophobic
activities because the Rohingyas will become a majority when they are repatriated back
to Rakhine, Myanmar, after the announcement of an amnesty for those who are living in
exile by the prospective Democratic Government of Myanmar.
4.1.4. Perspectives of UNHCR and NGOs
The United Nations and donor countries have separated the Rohingyas from other
Myanmar refugees. According to the United Nations High Commissioner for Refugees
(UNHCR), the plight of Rohingyas has become a regional problem. In the UNHCR
Refworld report, it is stated that in Malaysia, the UNHCR continues to work for a
separate solution for the Rohingyas’ “temporary work permits” and exclude almost all of
the Rohingyas from options such as resettlement that are available to other Burmese
(Myanmar) refugees.115
The UNHCR is also highly concerned with the boat people who were caught in
the sea while seeking refuge in other countries. In January 2009, regarding the boat
people who had been detained by the Thai authorities, the UNHCR requested the Thai
government for access to 126 detained Muslim Rohingya boat people in order to assess
their situation and determine whether any of them were in need of international
protection and to make sure whether their lives were not put at risk.116 However, on
115 “Rohingya: Burma Forgotten Minority”, UNHCR Refworld. 18 Dec. 2008, 18 Oct. 2010.116 “UNHCR seeks access to 126 Muslim Rohingya Boat People in Thailand”, UNHCR: The UN Refugee Agency, 20 Jan. 2009, 18 Oct. 2010. <http://www.unhcr.org/4975f6362.html>.
70
occasions, the UNHCR have difficulties to get access to the detention centers to secure
the release of the registered refugees.
The Refugee International report urged the UN and other NGOs as well as donor
countries and the countries within South and Southeast Asia that they should begin to
address the plight of all Burmese (Myanmar) refugees equally, and commit resources to
them in equal measure. . It is also recommended that the receiving countries should
welcome the UNHCR and the implementing partners and allow them to provide basic
necessities to the Rohingyas and also to recognize them as refugees.117
4.2. Roma and the Development of Statelessness in Europe
4.2.1. Roma in Europe
Origin and the Background
The “Roma”,118 also known as “Gypsies”, are living with large populations in
Central and Eastern Europe and in small numbers in the Baltic countries. The early
history of the Roma is little known and unclear although it was assumed that they
originally came from India. Historical records indicate that, they appeared to leave their
original homeland in Northern India and migrated to Europe between ninth and
fourteenth century although the reasons for their migration are not clear. Tanner, the 117 “Rohingya: Burma’s Forgotten Minorities”, Refugees International Field Report, 19 Dec. 2008. <http://www.reliefweb.int/rw/RWFiles2008.nsf/FilesByRWDocUnidFilename/MYAI-7N45J8-full_report. pdf/$File/full_report.pdf>.118 The term ‘Roma’ is used to refer to Roma, Sinli. Kale, Travellers and related groups in Europe and covers the wide diversity of groups concerned, including groups which identify themselves as Gypsies. This usage is in line with the terminology of other international bodies including the Council of Europe. See full text in “The Situation of Roma in France and Europe”. Joint Information Note by Vice-President Viviane Reding, Commissioner Laszlo Andor and Commissioner Cecilia Malmstrom , 1 Sep. 2010.
71
Finnish Directorate of Immigration, stated in his article that “around the year 1000, an
event in northern India, about the time of Muslim invaders, likely triggered their mass
exodus. The precise event is still unknown, but the possible reasons include a conflict that
resulted in the Roma’s persecution, a natural disaster, or even recruitment into a
mercenary military.”119 They went first into the Byzantine Empire where they stayed for
several hundred years. However, the Muslim expansion, mainly made by the Seljuk
Turks into the Byzantine Empire recommenced the movement of the Romani people.
They had reached the Balkans and Bohemia around 14th century; by the 15th century,
they reached Germany, France, Italy, Spain and Portugal; and by the 16th century,
Russia, Denmark, Scotland and Sweden. Some Romanies migrated from Persia through
North Africa, reaching Europe via Spain in the 15th century. The two currents met in
France.120
By the end of the 16th century, they had covered almost all the central and
Western Europe including Russia, Scandinavia and Spain. However, a 2004 study by
Morar et al. concluded that the Romanies, a founder population of common origins, has
subsequently split into multiple socially divergent and geographically dispersed Gypsy
groups.121 Throughout their history, the Nazi era was the darkest period. Similar to the
Jews, the Roma were also targeted with discriminatory legislation and at later stages they
faced extermination.
119 Arno Tanner, “The Roma of Eastern Europe: Still Searching for Inclusion”, Migration Information Source, (May 2005) <http://www.migrationinformation.org/feature/display.cfm?ID=308>. (undated, last accessed 19 Dec. 2008)120 “Romani People”, enotes.com. (undated, last accessed 18 Nov. 2010) <http://www.enotes.com/topic/Romani_people>.121 Ibid.
72
Map 3. Map of Central and Eastern Europe122
122 Central and Eastern Europe, map (Wikipedia, the Free Encyclopedia, sources from CSUN)
73
Approximately, half a million of the Roma across Europe were executed or killed
in concentration camps. They were mostly from Yugoslavia, Romania, Hungary, the
USSR (Union of Soviet Socialist Republics) and Poland.123 Likewise, many of them were
suppressed and killed under Stalin’s rule in the USSR.
On the other hand, during the communist era, the Roma were forced to settle in
the major cities and adopt a “decent” communist way of life by the governments of
Romania and Hungary.124 Therefore, their life under communism seemed to be better as
they were provided access to housing, health care and employment. Under the socialist
Yugoslavia, they were officially granted nationality status in 1981. In general, for Roma,
the socialist policies improved their living conditions; however, theirs was a mixed
blessing. As the level of their education and skills were low, their positions in the work
place became unqualified ones, such as low-skilled jobs on collective farms, instead of
places in public sector enterprises.125
Along with the transition to democracy and market economies, new opportunities
came for ethnic minorities to freely express their ethnic identity and to take part in the
society. Hence, most of the ethnic minorities were again classified as distinct ethnic
groups in most of the countries. For example, in 1991, Czechoslovakia adopted the new
Declaration of Basic Human Rights and Freedoms, which allowed for free determination
of ethnic identity.126 However, the transitional era also brought new challenges and
123 Dena Ringold, Mitchell A. Orenstein and Erika Wilkens, Roma in an Expanding Europe: Breaking the Poverty Cycle (Conference Edition), A World Bank Study (Washington DC: 2003) 14.124 See full text in Tanner, “The Roma of Eastern Europe: Still Searching for Inclusion”. 125 Dena Ringold, Mitchell A. Orenstein and Erika Wilkens, Roma in an Expanding Europe: Breaking the Poverty Cycle, A World Bank Study (Washington DC: 2005) 8.126 Dana Ringold, Roma and the Transition in Central and Eastern Europe: Trends and Challenges, The World Bank (Washington DC: 2000) 6.
74
hardships for the Roma in Central and Eastern Europe. The situation of the Roma in
Europe differs from one country to another. However, in general, the Roma have low
levels of education and minimal skills and it is quite difficult for them to compete for jobs
in a market economy. As a result, this economic transition affected them very severely
and led to increased poverty, lower living standards and insecure economic prospects.
Thus, according to Tanner, since the fall of Communism, the Roma’s problems in Eastern
Europe have become more severe.127 They have suffered not only from discrimination
and high rates of unemployment in the labor market but also from a lack of access to
public services such as education, health care and housing.
In her article, Ringold states that in the early 1990s, approximately 50,000 Roma
left Central Europe and fled to the West along with other migrants when border controls
were relatively lenient. However, migration later slowed down as the countries began to
close their borders. Most of the Western European Countries, including France and the
Netherlands, started to repatriate and deport the immigrants and asylum seekers whose
applications had been rejected.128
Circle of Poverty and Exclusion
In Europe, no ethnic group has experienced greater poverty, discrimination and
social exclusion than the Roma. Throughout European history, the Roma were one of the
poorest peoples in Europe. Moreover, their situation included living in isolated areas or in
illegal housing. Since they lacked identification documents, they encountered increasing
barriers to access to social welfare, such as education, employment opportunities, health
127 See full text in Tanner, “The Roma of Eastern Europe: Still Searching for Inclusion”.128 Ringold 8.
75
care and other social assistances. Many Roma children could not attend schools as some
parents were incapable of sending them to schools as they could not even afford the basic
supplies and there were also fears of losing their cultural identity. At the same time, some
parents began to realize the important role of the education for the future prospects of
their children.
Cultural and Linguistic
Estimating the accurate size of Roma population worldwide is quite difficult.
However, EU reports estimate that their population all over the world is between 15 and
30 million, with more than 10 million residing in Europe. Historically, the Roma
developed tribes and clans, each with its own traditions, culture, beliefs, and practices.
They speak different languages and practice a number of religions.129 There are various
dialects of the Roma language widely used among some Roma communities.130 For
example, in Bulgaria, half of them speak the Roma language at home. While in Hungary
and Slovakia, a lesser percentage of their population speaks the Roma language.131 They
are especially known for their skills of music, craftsmanship and even fortune-telling.
4.2.2. The Situations of Roma in Europe and the EU Position
Due to the problems discussed above, the situation and the legal status of the
Roma differs from one country to another, as well as from one group to another. The
European Commission has registered the term “Roma’ in its documents. Nevertheless, it
considers the use of the term “Roma” as an umbrella one, practical and justifiable within
129 The European Social Fund and Roma (Background Report), (European Union: Belgium, 2010) 14. 130 Roma in an Expending Europe: Breaking the Poverty Cycle (Conference Edition) 17. 131 Roma in an Expanding Europe: Breaking the Poverty Cycle, 11.
76
the context of its policy documents dealing above all with issues of social exclusion and
discrimination, but not with the specific issues of “cultural identity”.132
According to World Bank reports, the “Policy approaches that European
governments have taken in modern times fall into four broad groups: policies of
exclusion, assimilation, integration, and minority rights (see Marko 2000 for a similar
typology). These approaches reflect different responses to two basic questions about the
Roma policy: whether Roma should be treated as a distinct group or as individual
members of a broader society, and whether Roma policy should be pursued through
coercive measures or with respect for the Roma rights”.133
As discussed above, it is difficult to confirm the number of Roma throughout the
regions of Europe or in each of the European country as some European Countries do not
recognize the minorities and do not allow the collecting of the ethnic data. In the cases of
France and Italy, France does not acknowledge the existence of minorities in its territory,
nor accept any minority rights, while Italy does not recognize the Roma as a minority.134
French authorities took actions of repatriation and deportation of illegal settlements in
France. Therefore, estimates from different sources widely differ. According to the
sources of official national census and the estimation of Council of Europe in Eurostat
2006, Roma population in EU27 should be between 4 and 7 million135. However, sources
from joint information note of “The Situation of Roma in France and Europe”, states that
there are some 10 to 12 million in EU countries, candidate EU countries and potential EU
132 The European Social Fund and Roma (Background Report), 15.133 Roma in an Expanding Europe: Breaking the Poverty Cycle, 14.134 The European Social Fund and Roma (Background Report), 15.135 This number is 5 to 10 million including all other European Countries in the “Table of Roma and Sinti Population in Europe”. See Table 1. The European Social Fund and Roma (Background Report) 16.
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candidate countries. They are mainly residing in Bulgaria, Hungary, Romania and
Slovakia, with a total of 80% of their population.136
Most Roma are nationals of some countries which have become Member States of
the European Union such as Romania, Bulgaria, Czech Republic and Slovakia; they are
entitled to free movement as EU citizens, but in some Member States they lack full rights
as workers.137 The above mentioned four member states recognize Roma as ethnic
minorities and they represent in each country more than 1% of the total population. In
most of these member states, large numbers of them are nationals of these states and thus
European citizens which entitle them to free movement. However, those who lack birth
certificates or other identification documents are still considered as illegal migrants. In
the case of other Member States, there are limited numbers of Roma among the
population, but they are recognized as national or ethnic minorities as in Austria,
Belgium, Germany, Estonia (where those who have Estonian nationality are considered a
national minority), Finland, Latvia, Poland, Slovenia, Sweden (where they are recognized
as a cultural minority) and the United Kingdom.138 However, there are also some other
Member States which still do not recognize their nationality or as an ethnic minority.
In EU reports, the Roma are not officially recognized as a minority in Bulgaria
and Greece although a large proportion of the population there are of Roma origin. There
is no policy document addressing the national minority groups in Bulgaria and, in 1999,
the Bulgarian parliament ratified the Framework Convention for the Protection of
136 “The Situation of Roma in France and Europe”, Joint Information Note by Vice-President Viviane Reding, Commissioner Laszlo Andor and Commissioner Cecilia Malmstrom, 2. 1 Sep. 2010, 2 Nov. 2010. <http://www.statewatch.org/news/2010/sep/EC-Roma-France-report.pdf>.137 The European Social Fund and Roma (Background Report), 17.138 Ibid.
78
National Minorities (Council of Europe) and in 2003, the Protection against
Discrimination Act was also ratified; however, Bulgaria recognizes minorities on the
basis of language. There is evidence of the existence of Roma in Greece since the 11th
century and their current population is estimated at between 0.73% and 3.18% of the
overall Greek population. The only minority officially recognized in Greece is the
Muslims of Tracia. A large number of Roma did not have Greek citizenship until the
mid-1970s.139
To improve the situation of Roma, particularly to improve the social and
economic integration of Roma in Europe, has become important challenges for all EU
Member States. Under these circumstances, in 2009, the European Platform on Roma
inclusion was launched. The first integrated platform on Roma inclusion was organized
on 24 April 2009 in Prague and a set of 10 Common Basic Principles140 to effectively
address the inclusion of Roma was identified. These Principles were annexed to their
Conclusions on the Inclusion of the Roma by Employment and Social Affairs Ministers
of the EU countries on 8 June 2009. The second meeting took place in Brussels on 28
September 2009 and the main objective of the platform concerned with the improvement
of the Roma education in Europe. The third platform took place in Brussels on 17 June
2010, and was organized under the Spanish presidency. The meeting focused on the
discussion of a roadmap proposed by the Spanish Presidency and provided a mid-term
framework of stakeholder actions and expected outputs for the Platform.141
139 Ibid. 140 See full text in “Platform for Roma Inclusion”. European Commission. 5 Nov. 2010.<http://ec.europa.eu/social/main.jsp?catId=761&langId=en>.141 Ibid.
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4.3. The International Responses on the Statelessness in Europe
4.3.1. United Nations High Commissioner for Refugees (UNHCR)
There are millions of stateless people in numerous countries around the world. In
those countries, stateless people experience social exclusion, discrimination and lack of
documentation. Since they lack identification documents, it has been difficult to gather
related information and as a result, it has been difficult to address their situation.
Therefore, in order to gather related statistical information, the UNHCR together with
other UN agencies, has been working with recipient governments as well as other
partners. The kinds of issues that the UNHCR and its partners are analyzing include the
causes of statelessness and the problems incurred thereof. On the other hand, statistics on
statelessness worldwide are always incomplete due to political sensitivities. There are
various activities in progress in the field of statelessness and actions have been taken on
resolving the existing problems.
Due to the break-up of the USSR, Yugoslavia and Czechoslovakia, the number of
stateless people has increased. Hence, the UN General Assembly specifically requested
the UNHCR to take action to prevent and reduce stateless people and to protect them. As
a result, the UNHCR has a mandate with two approaches: to address situation of
statelessness which have occurred around the world and to assist in resolving cases which
may arise under the 1961 Convention.142 The UNHCR also provided, as the advisory143 of
142 Mark Manly and Santhosh Persaud, “UNHCR and Responses to Statelessness”, Forced Migration Review: Stateless, Marion Couldrey and Maurice Herson eds. Issue 32, (Refugee Study Center: April 2009) 7.143 “provide relevant technical and advisory services pertaining to the preparation and implementation of nationality legislation.”
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UN General Assembly, to governments around the World for both prevention and
alleviation of these stateless persons. Moreover, in the article of Manly and Persaud, it is
stated that states which are not member to the 1961 convention can also implement
safeguards in their national legislation to prevent and reduce statelessness.144
Although in certain countries some stateless people may enjoy rights similar to
nationals’, in other countries, they have no access to social welfare and lack freedom of
movement. In the case of Estonia and Latvia145, the majorities of the stateless people
there have long-term residence permits, and enjoy the privileges and guarantees
envisaged by the EU Council Directive 2003/109/EC of 25 November 2003 concerning
the status of third-country nationals who are long-term residents. None-the-less,
discrimination in certain areas remains. In Estonia, stateless people with the long-term
residence status have the right to vote others but cannot be elected at local elections and
they are not allowed to be members of the political parties and run for the public office.
As for the stateless people in Latvia, they are not allowed to vote or work in the civil
service. Along with other international organizations, the HCNM (High Commissioner
for National Minorities) is also involved in the process of drafting the new legislation of
elaborating Latvia’s new Citizenship Law. In addition, with the financial support from
the Russian Federation, the UNHCR’s Regional Office for the Baltic and Nordic
Countries in Stockholm continues to encourage efforts for the alleviation of statelessness
in Estonia and Latvia. Funding for these efforts was provided by the Russian Federation
in 2007 and 2008.
144 Manly and Persaud 8. 145 “Humanitarian Assistance to Countries and Regions of Concern to the Russian Federation”, UNHCR’s Regional Office for the Baltic and Nordic Countries, Stockholm, 2-3. UNHCR Nov. 2009, 30 Oct. 2010.
81
The UNHCR has been cooperating closely with national and international NGOs
and other international agencies that are supporting stateless people. Although it does not
cover the whole world at global level, together with its partners, the UNHCR has
continued its wide-ranging activities in order to more effectively focus on the issue of
statelessness.
4.3.2. International Non-Governmental Organizations (INGOs)
Today, many of the internationally-funded Non-Governmental Organizations
(NGOs) are playing an important role as agents on the issues of the ethnic minorities,
statelessness and refugees. In the process, they are also closely cooperating with the UN
and other International Agencies, governments, and local NGOs to help the peoples who
are in greatest need. Some of the INGOs are implementing projects such as “closing the
gap between the Roma and the non-Roma” in education and other development activities.
Concerning such projects, they continue to encourage governments to work with the
Roma in actively supporting Roma children in their early childhood education.
Using the activities of the REF (Roma Education Fund) in Romania and
Hungary,146 the REF, for an example, in recent times, set up the first operational office in
Romania in view of creating a project by using structural funds to strengthen its ability to
support local and public institutions for the Roma students. Up to now, the REF has
received over EUR 10,000,000 in Structural Funds to support local partner activities such
as to offer scholarships for the Romani pre-school and primary school students,
146 Costel Bercus, “Increasing Access to and Management of Structural Funds for Quality Education of Roma”, Roma Education Fund. (undated, last accessed 10 Nov. 2010)<http://ec.europa.eu/employment_social/esf/docs/2-4-costel-bercus_en.pdf>.
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secondary school students, and university scholarships in the health profession, and to
facilitate the transition from university life to labor market integration amongst Roma
university graduates.
Supporting education and social welfare are not the only issues that the NGOs are
concerned with, as some organizations are also giving legal assistance for the Roma. In
the case of the Roma from Bulgaria and Romania who have been repatriated and
deported by French authorities, a Hungary-based public-interest law organization, the
European Roma Rights Center (ERRC) provided legal briefs to the Commission on the
Roma expulsion issue, arguing that France’s actions violated not only the Freedom of
Movement Directive and the Charter of Fundamental Rights but also the European
Convention on Human Rights (ECHR).
At present, the number of NGO projects throughout the world has increased
which provide financial support and other assistances to help not only the Roma but also
other refugees, stateless people in Europe in their resettlements, education, and health
care and also provide social services together with the local governments and national
and international human rights institutions. Nevertheless, providing enhanced protection
for stateless people remains a significant challenge for both governments and the
international organizations concerned.
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4.4. A Comparative Study of the Status of Statelessness: Rohingyas and
the Roma
“Statelessness” is described as people who are not considered nationals and are
unrecognized by any state. As discussed earlier, there are various circumstances
regarding peoples becoming stateless. These people face different problems depending on
why they become stateless and where they live.
Recently, statelessness has become a global issue and challenged not only the
understanding of the issue but also of its causes. Currently, the United Nations,
International and domestic NGOs, refugee organizations and human rights monitoring
bodies are the main actors in providing protection for the stateless people and refugees.
When we study the statelessness of the Rohingya and the Roma, there are some
similarities but it could also be observed that more differences exist on the way the two
peoples became stateless. Then, what are the similarities and what are the differences we
could possibly observe? First of all, it is to be acknowledged that there is a similarity in
the origins of the two peoples. Both peoples were originally from India. The Roma were
from Northern India. The Rohingyas were from the Chittagong District of East Bengal of
the Indian Sub-continent.
Prof. Aye Kyaw defined the term “Rohingya” as “fallen leaves” or “the
wandering people” in the Bengali language, ‘the ones who do not have a permanent
home’ or like ‘people who are moving everywhere like Gypsies’. In fact, the Roma are
“Gypsies”. Therefore, both people nowadays share the same “Gypsy” status, implying
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that they have been moving from one place to another and are not permanently residing at
any place. This is the second similarity. However, it should be noted that the Rohingyas
have become Gypsies or wandering people in recent times, coinciding with the
emergence of globalization. Their original nature will be discussed when the differences
of the two communities are considered later.
The third similarity could be that both people have now become economic
migrants as they are seeking to settle in the economically advanced countries where there
are promises of better living conditions.
Today, while some European countries were deporting the Roma from their
countries claiming that the Roma were not following their Law and Order as well as their
culture, the Rohingyas in Asia are also facing deportation by the authorities of the
countries to where they have migrated. This situation could be concluded as the fourth
similarity of the two communities.
The fifth similarity lies in the area of discrimination. Due to lack of identification
papers and documents, members of the two communities face discrimination in the
countries they have been residing.
The poverty and lack of education are also common characteristics of the two
communities and these characteristics have reduced their capacity of adaptability in the
new societies. This sixth similarity produces untoward consequences for both peoples and
lead to the following seventh similarity.
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Both communities, in consequence, have shown, also due to other reasons of their
own, resistance in their integration into the societies of the host countries. Religious
fanaticism could be one of the primary reasons of Rohingyas and concern for the loss of
their identity could be one of the main reasons of the Roma. This is also an important
aspect of similarity between the two peoples as it has the disastrous effect of prolonging
their sufferings.
However, there are some important differences as well between the two
communities. The first difference is historical concerning the direction and the distance
they had migrated. The Roma had migrated to the West and moved far away from their
homeland. They were thought to have left for the West between AD 1000 and 1030. By
the end of the 16th century, they were said to have covered almost all the central and
Western Europe including Russia, Scandinavia and Spain. On the other hand, the
Rohingyas migrated to Rakhine in the East which was very close to their homeland
situated in the Chittagong region although some of their scholars invented unfounded
stories of the history of their people “starting to inhabit in Rakhine since 6 th century by
migrating mostly from Arab countries and with a few from Bengal.”147
The second difference concerns with the reasons of their departures. Although
the reason of the Roma’s departure from their homeland about 11 th century was still
unclear, it was assumed that around the year 1000, an event in northern India, about the
time of Muslim invaders, likely triggered their mass exodus. One possible reason was
thought to be a conflict that resulted in the Roma’s persecution. The Rohingya on the
147 See full text in Nurul Islam, “To bring harmony in Arakan, Xenophobic works of the Rakhines must stop”.
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other hand, started to arrive in Myanmar to earn a living as seasonal workers at the rice
fields in the Rakhine region after 1826. It is obvious that the reason of the Rohingyas’
migration is economic while the reason of the Roma is to escape from persecution.
Thirdly, not like the Roma, the Rohingyas, initially, did not, at that time or later
for some time until the 1990s, try to proceed to other countries or destinations in groups
or in large numbers. Until the dawn of the age of globalization, the Rohingyas were not
like the Roma. They were not travelers by nature and their culture was not characterized
by self-employment, occupational fluidity, and nomadism. They were mostly uneducated
agricultural workers and contented to continue to stay in the western part of the country
where they were living for quite some time. Myanmar was also a bit well off at that time.
They were, therefore, not even included in the exodus of many Indians from Myanmar
that occurred after the 1964 nationalization of the private enterprises by the Socialist
government of Myanmar. In the beginning of their settlement in Myanmar immediately
after 1826, they even did not live in Rakhine for good or for a long time. Every time,
they, being seasonal workers, came to work in the rice fields in Rakhine and returned to
their native Chittagong District after completion of their work in the fields. However,
later, gradually they used to continue to stay in Myanmar. At that time, Myanmar was
under the British colonialists and the country had even been made a part of India. There
was no international boundary between Myanmar and India at that time and no
immigration existed. Therefore, no question of nationality or citizenship came up for
those people who settled in Myanmar. This situation might have caused them untoward
consequences after many years later.
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The continued stay of the Rohingyas in Myanmar after independence pointed the
fourth difference between the two peoples. The Rohingyas, not like the Roma, had not
experienced any discrimination or persecution in Myanmar during their long stay. The
history of the Roma is filled with stories of persecution experienced by these people
during their endless journey. The continuous stay of the Rohingyas, on the other hand,
had demonstrated the absence of any discrimination, let alone persecution, in Myanmar
even though there was mistrust and suspicion existed between the two communities due
to events occurred immediately before and after the birth of independence as well as the
involvement of some of their educated leaders in the political demands made in the name
of their ordinary people who in fact might not be aware of these demands that had been
made on their behalf.
The fifth difference is the Rohingya’s (especially the educated and ambitious
sections of the Rohingyas) political involvement which could not be observed or heard in
the case of the Roma. It has been discussed in detail in Chapter Two, under the heading,
‘A Brief Historical Background of the Evolution of the Rohingya Issue in Myanmar’. The
political ambitions of the Rohigyas and the unfoundedness of their claim to be one of the
original ethnic groups of Myanmar have led to the assertion of one Rakhine scholar that
the Roingyas are like ‘the guest, who wants to kick out the host and has an intention to
occupy the house’. The Roma, not like the Rohingyas, never tried to turn a part of the
host nation to a ‘Roma Land’. This fifth difference pointed to the fact that the Rohingya
issue is no longer a simple and pure humanitarian issue.
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The issue of statelessness is difficult to resolve because it is not a simple
humanitarian issue. It is also a political and legal issue. Resolving the issue of
statelessness involves a lot of factors that should be given careful consideration, such as
the constitution of the country, the mind-set of the nation, the internal political situation,
the character, the characteristics and the historical backgrounds of the individual as well
as the community to be granted citizenship, and so on and so forth.
The Rohingya issue, in fact, should be a simpler one than the Roma’s. However,
the Rohingya’s educated leaders had made matters worse by politicizing the issue to
pursue their own interest. Nowadays, the issue of statelessness in Europe, particularly the
issue of the Roma, seems to have become simpler and more straightforward to resolve
compared to the issue of the Rohingyas. The Roma did not make any political claims.
When we study the status of the statelessness of the two communities, a lot of
lessons could be learned from their experiences. The two communities have very similar
origins but vast different of experiences. What is identical is that both communities no
longer have their own states. They have lost their origins since a long time ago for
different reasons. They have to find a state which would adopt them as their nationality or
citizen. Both of them wanted to attain citizenship or nationality to enable them to settle in
a country. However, both have drawbacks in their struggles to escape from statelessness.
Initially, the status of the Rohingyas was in better position as they lived in one country as
an integrated entity and they needed to contend only with one state. Even if there were
problems they could try to settle them with the state amicably. However, they did not
choose that way. The Rohingyas try to achieve their objective of securing citizenship by
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applying political pressure on the government of Myanmar. Thus, the issue has become
intractable as time passed. For the Roma, they are not one integrated society. They have
different communities in various countries. They also try to find countries willing to
accept and integrate them into their society. There is no evidence of the Roma employing
political means to achieve their objective of escaping from statelessness. If the two issues
are compared, the issue of the Roma nowadays seems more simple and straightforward
than the issue of the Rohingyas. The issue of the Roma looks to have better chances of
quicker resolution than the issue of the Rohingyas. The valuable lesson from the Roma
issue is that the Rohingya issue also stands better chances of resolution if the Rohingyas
forsake the political methods in their request for citizenship.
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5. CONCLUSION AND RECOMMENDATION
5.1. Conflict of Interests between the Recognition of the Claim of
Rohingyas and the Territorial Integrity of the State
5.1.1. The Conflicting Implications of the Concepts of Self-determination of
Ethnicity and the Territorial Integrity of the State
At this age of globalization, the issues of citizenship or nationality, ethnicity, self-
determination, human rights, and the territorial integrity of the states have become
pressing issues challenging the international community with an unprecedented scale. I
have discussed these concepts in Chapter One to some extent. At this conclusion, I would
like to discuss the implications and the impacts these concepts have on the development
of the affairs of a state as well as in the interactions on the international arena.
Particularly, I would like to discuss the conflicting implications of the concepts of self-
determination of ethnic groups and the territorial integrity of the state.
Although there are a number of nations where only one group of nationality
resides in its territory like nation-states, many other nations or states have combined more
than one nationality in their territories. In other words, a state or nation could be defined
as an entity composed of one or more ethnic or racial groups who live together in a
particular geographical area and share the common culture, tradition, history and
language although they might also have their own particular unique dialects, languages,
religions and cultures. The fact of living together of these ethnic groups in a particular
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territory or region has made them “nationalities” or “citizens” of a respective state or
nation.
If a state has more than one nationality, the nationalities which compose of that
nation or state may have a variety of their own interests. Some of their interests may be
submerged in the interests of their state. Some interests may conflict with the interests of
others. Some may even come into conflict with the interests of the state itself. This kind
of problem may occur due to fundamental conflicting nature of the interests. The original
cause of ethnic conflicts, therefore, could be an inherent one, or internal or external one,
or a combination of two or more causes.
When the concepts of international law are favorable to the integrity and
sovereignty of states, as it stood in the past and to some extent until now, the states could
more or less maintain their territorial integrity without much difficulty. If not, the
possibility for the disintegration of a state with more than one nationality could become a
reality sooner or later. The disintegration of the states especially in Eastern Europe is a
case in point.
Since the end of World War I, and especially after World War II, the world had
ordered its affairs in an international system based on the concept of states whose
borders, no matter how they were originally determined, are considered inviolable.
However, the self-determination principle has been interpreted differently at different
times and has been inconsistently applied as a result.148 Moreover, self-determination is
also considered to be the right of people to shape their own political, economic and
148 Carley, “Self Determination: Sovereignty, Territorial Integrity, and the Right to Secession”, 1.
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cultural destinies. Among several ethnic and national groups, and minorities, “national
self-determination” has become higher expectation, and used this right to argue for a right
to secede from existing states. Consequently, the number of ethnic groups’ claims and
ethnic conflicts has risen continuously since the end of the Cold War. These groups have
various claims but are primarily searching for independent statehood, or recognition of
statehood.
It is widely accepted that the principle of respect for the territorial integrity of
states is well founded as one of the linchpins of the international system, as is the norm
prohibiting interference in the internal affairs of other states. However, this principle
appears to conflict on the face of it with another principle of international law, which is
the principle of the self-determination of peoples. In other words, the requirement to
respect territorial integrity, in some respects, seems to make self-determination null and
void.
However, due to the emergence of new ideas and new concepts in the
international political sphere, efforts are being made in the regime of international law to
modify the prevailing concepts in order to be in harmony with the developments taking
place in other fields. Redefining or modifying the concepts to be in conformity with the
developments occurring in the international arena is a truly necessary and commendable
effort. However, new concepts, or new interpretations of concepts, would definitely have
a great impact to the states with many nationalities. Therefore, a cautious approach
should be taken and a careful consideration should be given in the process of
reformulating the concepts.
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5.1.2. Applicability of the General International Law Concept of Ethnic Self-
Determination to the Rohingya Case
As discussed previously, since the end of the Cold War, ethnic conflicts have
become the most common political violence in the world. For many centuries the
conflicts of minorities and majorities centered on the questions of regional autonomy,
religious rights, language rights, and group rights, etc. As these problems grow stronger,
the possibility for the collapse of a state becomes higher. Such situation can be witnessed
in many countries around the world, especially in the countries formed with many ethnic
groups. These nationalities have highlighted the ‘rights of people’ or ‘self-determination’
with the aim of protecting their groups from discrimination and achieving the right of
self-government, or establishing a separate state. The demands for the recognition of self-
government or autonomy and secession are the most difficult issues to deal with and
challenge a state’s ‘territorial integrity’ or ‘the right of the existence of a state’. The
outbreak of ethnic conflicts encourages the break-up of states and could turn the war from
a civil to a regional or international one.
According to the UN Charter, it is clearly mentioned that, “self-determination”
applies only to states not to peoples or groups. However, the outline of the UN Charter
also defends ‘the right of peoples’ to self-determination.149 To support their claims, some
ethnic groups interpreted self-determination in the international language of ‘human
rights’. While nationality, self-determination and territorial integrity are essential for the
interests of a state’s security and its people, the concept of human rights also supports the
rights of individuals and groups. 149 Carley 1.
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When we study the case of Rohingyas, the Rohingyas first wanted to integrate the
part of Myanmar territory they were residing into former East Pakistan. When their
approach to Pakistan for that purpose was refused, they attempted to establish an
independent Muslim state within Myanmar by waging a war against the then Myanmar
government. When that plan also failed to realize, they claimed for autonomy in the
territory they were residing. When that attempt was also rejected and no more alternative
was left, as Bangladesh also turned down their request for the incorporation of their
territory into Bangladesh when it was born in 1971 and did not also recognize them as
their citizens, they then resorted to the claim of the citizenship of Myanmar. Their claim
for citizenship has been based on their assertion that they were one of the ethnic
minorities of Myanmar. The research highlights firm evidences to the contrary with the
effect that the Rohingya has never been one of the 135 original nationalities of Myanmar
and that they are not entitled to claim either for nationality or self-determination. In fact,
some of the Rohingya people had requested and received some kind of citizenship of the
country in the meantime; but many others had not applied for the citizenship so far.
However, the number of people who had received a kind of citizenship of Myanmar is
indeed minimal.150
Therefore, the research found the case of Rohingyas having little basis for
applicability to the general international law concepts of nationality and self-
determination. Matters relating to the Rohingyas, however, may be considered case-by-
case as they had become stateless people or refugees and their issue needs to be resolved.
In an attempt to help resolve the issue, the Department of Myanmar Immigration and
150 See full text in Aye Chan, “The Development of a Muslim Enclave in Arakan (Rakhine) State of Burma (Myanmar)”.
95
National Registration, in 1995, started issuance of the Temporary Registration Cards
(TRCs), also known as the “White Cards”.151 Myanmar authorities also received
numerous Rohingya refugees who came back from the Bangladesh side after passing
their scrutiny test.
The Rohingyas have been denied by both states of Myanmar and Bangladesh as
their own nationality. However, both countries have been receiving them as either
refugees or economic migrants. The research notes that today they have been diversifying
their immigration channels as well as their destination countries and seeking refugee or
asylum status in the developed countries, most probably with the aim of achieving better
living conditions. The issue of the statelessness of the Rohingya has become a difficult
and complicated issue to be tackled with.
5.2. Resolving the Issue
5.2.1. Consequences of accepting or denying the claims of Rohingyas on the
Unity and Integrity of the Multi-ethnic State of Myanmar
As stated very often, the problem with the Rohingya’s claim is that there is no
historical ground to accept them as one of the ethnic groups of Myanmar. In addition to
that, Myanmar has been encountering the ethnic problems since she regained her
independence in 1948. Ethnicity even became part of the independence process itself.
However, the new ethnic politics which emerged in the 1990s when the government that
took power in 1988 reached a series of ceasefire agreements with the ethnically
151 Myanmar, “Ministry of Immigration and Population”, MODiNS.NET. (undated, last accessed 17 Aug. 2010) <http://www.myanmar.gov.mm/ministry/hotel/fact/st_div/rakhine.html>.
96
designated insurgent groups. Today, the State Peace and Development Council (SPDC)
have officially maintained ceasefires with seventeen out of eighteen armed ethnic groups
since 1997. Again, it could be observed that the question of ethnicity in Myanmar has yet
to be completely resolved once and for all.
Under these circumstances, Myanmar was not in a position to include the
Rohingya as one of its nationalities as this would make the already complicated ethnicity
problem of Myanmar become worse. Myanmar has enough of its own problems. Besides,
these Rohingyas were living in the border areas and their features very much look alike
with the people on the other side of the border. There is no way to differentiate and
identify as to whether they are the descendants of the people living there since many
years ago, or they are the people just arrived from the other side. This technicality may be
included in one of the points that had caused the authorities reluctant to accept their claim
of citizenship.
As discussed above, acceptance of their claims could also make matters worse
especially concerning the peaceful atmosphere of the Rakhine State as well because
suspicion has existed between the two communities due to the bloody clashes that had
occurred just before and immediately after the country’s independence. Therefore, it was
feared by the Rakhine people with some good reasons that the acceptance of their claim
of nationality in the long run has the potential of threatening the existence of the Rakhine
state and the survival of its people as well as the security and the territorial integrity of
the state as a whole.
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It is true that denying the claims of their nationality would give the Rohingyas an
opportunity to intensify their unfounded allegations of discrimination and persecution.
The Rohingas, in fact, might have made these allegations in order to gain acceptance of
the refugee status in other countries. Myanmar has been pushed into difficult situation
due to these allegations of the Rohingyas. For Myanmar, the territorial integrity of the
state must be given utmost priority and the authorities, therefore, are firm in rejecting the
nationality claims and all sorts of other unfounded allegations made by the Rohingyas.
The authorities, on the other hand, tried their best to cooperate with the international
organizations in resolving the issue, such as by issuing the Temporary Registration
Cards and also receiving numerous Rohingya refugees returning from the Bangladesh
side.
5.2.2. Concluding Remarks
The issues of nationality, self-determination and territorial integrity are important.
They are important because without nationality, a state would not exist. Likewise,
without territorial integrity, a state would not be able to survive, and without self
determination, the peoples would not feel free or independent to promote their individual
characteristics. On the other hand, they are also complex because nationality is difficult
to define, territorial integrity could be implied for the state where all her people reside as
well as for a part of the state where one of its nationalities reside, and self-determination
could mean both for the whole people of a country and for one of its nationalities.
When we consider about territorial integrity, sovereignty, ethnicity, nationality,
and self-determination, we could clearly observe and feel that they are not just concepts.
98
They have fundamental values and these values are still highly appreciated all over the
world. When the concept of self-determination is applied to an ethnic group, thorough
consideration should be given on the validity as well as the strength of the issue as this
could have far reaching impacts on the state as a whole and could eventually lead to its
disintegration. When the concept of human rights is added to this, the issue could then
become more complicated and the disintegration process of a state would then be
accelerated with added momentum.
In fact, most of the problems arising out of the ethnic questions could be traced in
the state of underdevelopment. This point should be noted and taken into consideration
when reformulations of the concepts are made. When a state is well off to some extent,
the nationalities inside would be happy to stay together and would not be very eager to
move for secession. The economic development seems to be the principal factor for the
firm integration and continued unity of the nationalities of a state and has a favorable
impact on the maintenance of the stability and security of a state.
For the development, a country needs peace. However, peace can only prevail
when there is development in sight. If progress and prosperity could be achieved to some
extent, all the nationalities will be eager to preserve it and that would become an
incentive to reaching agreements on the issues centering on ethnicity.
In the endeavors of a state to reach understanding and agreements on ethnic
issues, international law could play a positive and important role by its concepts of
nationality, territorial integrity and self-determination which would encourage the
harmonious living together of nationalities of a state.
99
5.3. Recommendation for Way Forward
The issue of the Rohingyas needs to be resolved. The authorities of Myanmar
would also like to resolve the issue of Rohingyas as quickly as possible as the adverse
effects of this issue lingering on could have the negative impact on the state and would
eventually impede the development efforts of the government and could also threaten the
security of the state. The government has now accepted the Rohingyas who returned from
the other side of the country and issued Temporary Registration Cards to these people. To
grant citizenship to these people will take time as outright granting of citizenship has
never been the case in almost any other countries. The Rohingyas on their part need to
show their sincerity and willingness to be integrated into the society of Myanmar such as
by way of learning Myanmar and Rakhine languages and cultures, adapting and living in
harmony with the native people, and showing their loyalty to the state.
However, it should also be noted that the citizenship could only be granted to
individuals and granting the status of nationality to an ethnic group like the so-called
Rohingyas is definitely not possible as the Rohingya has never been included in the
original 135 ethnic groups of Myanmar. There are no historical evidences also to support
the Rohingyas’ claim that they are one of Myanmar’s nationalities. Therefore, granting
citizenship step by step alone could be possible and an election could be made after
through scrutiny of each individual on a case by case basis.
In Myanmar, elections have been held in November 2010 in accordance with the
Constitution approved at a referendum held in 2008. A new government will be sworn-in
in the early months of 2011. The recommendation to the democratically-elected
100
government which would definitely be eager to resolve all the nationalities issues once
and for all is to also tackle this issue of the Rohingyas as the continuance of this issue
could have untoward consequences on the road to unimpeded development of the
country. The new government would be fully occupied with the affairs of the state when
it begins to accept new responsibilities and starts its new term of office. However, when
other nationality issues are considered, this issue should not be left out although this is
not the issue of a true ethnic group of the country. However, it is indeed a real and
profound issue that could, in the long run, have adverse effects on the country.
With regard to the Rohingya issue, the following recommendation may be made
for the speedy and successful resolution:
1. Firstly, consideration may be made to appoint a Committee for the purposes of
drawing up principles or provisions for recognizing the genuine people who have
already lived there for quite some time, in accordance with the new Constitution;
of setting up a sophisticated and clear-cut mechanism for verifying the genuine
people, perhaps with the aid of modern techniques such as the testing of DNA,
which may be assisted by the International organizations; and of writing down
procedures for issuance of different kinds of registration cards, if possible
together with an approximate time schedule to complete the whole process.
2. Secondly, steps may be taken, in accordance with the mechanism of verification,
to identify the people who are the genuine descendents of the people who had
settled in Myanmar since the British had brought them to this country to work in
agricultural farms.
101
3. Lastly, in accordance with the procedures drawn up by the Committee, the
issuance of Myanmar Registration Cards may commence in stages to the already
accepted people. The issuance may start from the Temporary Registration Cards
and complete with the recognition of some kind of citizenship to them.
The successful implementation of this recommendation will also depend on the
willingness, sincerity, and loyalty of the so-called Rohingyas to be integrated into
Myanmar society. Unfortunately, I have not bee able to find evidence that the leaders of
the Rohingya movement have expressed these attitudes in their appeal to the international
community. .
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