burma's environment: people, problems, policies-report engl

8/6/2019 Burma's Environment: People, Problems, Policies-report engl

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BURMASENVIRONMENT:

PEOPLE,PROBLEMS,POLICIES

The Burma Environmental Working Group (BEWG)


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BURMAS ENVIRONMENT:PEOPLE, PROBLEMS, POLICIES

ISBN: 978-974-350-515-7

Copyright June 2011

Published by:

The Burma Environmental Working Group (BEWG)Website: www.bewg.org

Printed by:

Wanida Press, Chiang Mai, Thailand.

Tel. 66 53 110503-4

Made in Thailand

Copyright is reserved by The Burma Environmental Working Group (BEWG)


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EXECUTIVE SUMMARY .................................................................................. 08

RECOMMENDATIONS ................................................................................... 10

1. INTRODUCTION ....................................................................................... 13

2. COUNTRY FACTS ...................................................................................... 14

2.1 DEMOGRAPHY ...................................................................................... 14

2.2 NATURAL RESOURCES .......................................................................... 15

3. ENVIRONMENTAL LAWS AND POLICIES IN BURMA................................... 17

3.1 NaonalCommissionforEnvironmentalAairs .................................. 18

3.2 EnvironmentalPoliciesandLaws ......................................................... 19

3.3 ImpactAssessmentsinBurma ............................................................. 19

3.4 EnvironmentalProvisionsinthe2008Constuon............................. 20

3.5 NaonalSustainableDevelopmentStrategy........................................ 21

3.6 InternaonalCommitments................................................................. 22

3.7 EnvironmentalisminBurma................................................................. 26

4. LAW AND POLICY ON FORESTRY AND AGRICULTURAL LAND .................... 33

4.1 ForestryLawsandPolicies.................................................................... 33

4.2 LandLawsandPolicies ......................................................................... 36

4.3 EconomicdevelopmentandnaturalresourcesinBurma .................... 42

5. THREATS TO ENVIRONMENT AND LIVELIHOODS ........................................ 51

5.1 LargeDams........................................................................................... 53 5.2 OilandGasExtracon .......................................................................... 58

5.3 Mining .................................................................................................. 61

5.4 Deforestaon ....................................................................................... 65

5.5 LargeScaleAgriculturalConcessions ................................................... 70

5.6 IllegalWildlifeTrade ............................................................................. 80

5.7 ClimateChange .................................................................................... 81

6. CONCLUSION ........................................................................................... 83

Contents

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ACKNOWLEDGEMENTS

TheBurmaEnvironmentalWorkingGroup(BEWG) would like toacknowledge the

contribuonsofthefollowingorganizaonsandindividualsfortheirsupportforthe

produconofthereport.

AnotherDevelopmentforBurma

InformaonContribuon:

ArakanRiverNetwork

BurmaRiversNetwork

EthnicCommunityDevelopmentForum

KarenEnvironmentCommiee

KarenniEvergreen

YukiAkimotoMartyBergoen

ClydeFawkes

JeremyMak

ZaoNoam

ShweMyoThant

SteveThompson

NickVeidelis

KatrinaWinters

Donors:DagHammarskjldFoundaon

KarenEnvironmentalandSocialAconNetwork

Manyotherindividualswhocannotbenamedgavewelcomeinputtothedras.

BEWGalsoappreciatestheeortsoftheForestResourceEnvironmentDevelopmentand

ConservaonAssociaon,EcosystemConservaonandCommunityDevelopmentIniave,

andotherlocal,naonalandinternaonalorganizaonsthatareworkingtoconserve

Burmasecosystems.

About the Burma Environmental Working Group

TheBurmaEnvironmentalWorkingGroup(BEWG)bringstogetherBurmafocusedethnic

environmentalandsocialorganizaons.MemberorganizaonsmonitorBurmadevelopment

policyandadvocatesforalternavedevelopmentpoliciesmeengtheirspecictradional

andcomprehensiveunderstandingoflocalsustainability.BEWGprovidesaforumformember

organizaonstocombinethesuccesses,knowledge,experseandvoicesofethnicpeoples

inpursuitofnotjustlocallivelihoods,butsustainableandpeacefulnaonal,regionaland

internaonaldevelopmentpolicy.Memberscollaborateonresearch,reporng,advocacycampaigns,capacity-buildinginiavesandpolicyformulaon.BEWGalsonetworkswith

non-memberorganizaonstoencourageharmonyanddiversityinitsownacviesaswell


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asstrengthendemocracyandcivilsocietyinBurma.

MembersoftheBEWGrstcametogetherin 2005throughaseminarorganizedbythe

AnotherDevelopmentforBurmainiave(ADfB).TheADfBprojectprovidesaplaorm

forpolical,communityandissuebasedgroupswithintheBurmademocracymovementtoconsiderlong-termchallengesanddevelopmentalternavesforthefutureofBurma.

Unlnow,mostBEWGacvieshavebeenorganizedwithsupportfromtheADfBplaorm.

ThefollowingorganizaonsaremembersoftheBurmaEnvironmentalWorkingGroup.

Arakan Oil Watch (AOW),foundedin2006,isanindependentnon-governmentalorganizaon

thataimstoprotecthumanrightsandtheenvironmentfromextracveindustriesinArakan

StateandinBurma.AOWeducatesaectedpeoplesontheseissues,developsandpromotes

oilandgasrevenuetransparencystandards,andconductsinternaonaladvocacy.AOWis

anacvecorememberoftheShweGasMovementandamemberofSouthEastAsiaOilWatch.EachmonthAOWpublishesTheShweGasBulleninEnglishandBurmese,a

newsleercoveringthelatestdevelopmentsinBurmasoilandnaturalgasindustry.Website:

www.arakanoilwatch.org

Bridging Rural Integrated Development and Grassroots Empowerment (BRIDGE) works

togetherwithruralcommuniesimpactedbypolicalandsocio-economicchangeinKachin

statetostrengthentheircapaciestomanagetheirownnaturalresources.BRIDGEsupports

theircommunity-baseddevelopmentacviesandbuildscollaboraonsandpartnerships

thatadvocateforsustainabledevelopmentandfosteracultureofpeace.

EarthRights Internaonal (ERI)isagroupofacvists,organizers,andlawyerswithexperse

inhumanrights, theenvironment,andcorporateandgovernmentaccountability.Since

1995,ERIhasworkedinBurmatomonitortheimpactsofthemilitaryregimespoliciesand

acviesonlocalpopulaonsandecosystems.Throughtheirtrainingprogram,ERItrains

youngenvironmentalacvistsfromdiverseethnicbackgroundsinBurmatoempoweryoung

leaderswithskillsandknowledgetoworkonearthrightsissuesintheircommunies.In

addion,ERIworksalongsideaectedcommunitygroupstopreventhumanrightsand

environmentalabusesassociatedwithlarge-scalenaturalresourceprojectsinBurma.

Website:www.earthrights.org

Kachin Development Networking Group (KDNG), foundedin2004,isanetworkofcivil

societygroupsanddevelopmentorganizaonsinKachinState.KDNGspurposeisto

eecvelyworkforsustainabledevelopmentbasedonindigenousknowledgeandculturally-

appropriateenvironmentalmanagementandconservaonmethods.KDNGworksto

maintaintheintegrityof landandforest,andempowerindigenouspeoplebyproviding

awarenessonenvironmentissues,especiallyrelangtohumanrights,environmentalrights

andindigenousrights.Itachievesthesegoalsthroughtrainings,workshops,research,

documentaon,andadvocacy.Website: www.aksyu.com

The Karen Environmental and Social Acon Network (KESAN)wasestablishedin2001as

therst local community-based organizaonto raise environmentalawareness amongKarenpeople.KESANworkstoempowerandeducatecommuniesandlocalinstuons

torevitalizeexisngindigenousknowledgeandpraccesforincreasedlivelihoodsecurity

BURMAS ENVIRONMENT: PEOPLE, PROBLEMS, POLICIES

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inKarenandKachinStatesandinareasalongtheThai-Burmeseborder.KESANstrivesto

build uplocal capacitiesin forest andnaturalresource management, raisepublic

environmentalawareness,and support community-baseddevelopmentiniaves. In

addiontoplayingaleadingroleinenvironmentallawandpolicyformulaon,KESAN

advocatesforenvironmentalpoliciesanddevelopmentprioriesthatensuresustainableecological,social,cultural,andeconomicbenetsandpromotegenderequity.Website:

www.kesan.asia

The Lahu Naonal Development Organizaon (LNDO)wassetupbyleadingLahudemocracy

acvistsinMarch1997toadvocateforthewelfareandwell-beingoftheLahupeople,

includingthepromoonofalternavestodestrucvedevelopmentprojectsandopium

culvaon.LNDOseekstoprotectthelivelihoodsandlandsofLahuandAkhapeoplesand

toincreaseunderstandingamongthelocalethnicnaonaliesabouthumanrights,

democracy,federalism,communitydevelopment, andhealthissues.LNDOalso aimsto

developunityandcooperaonamongtheLahuandotherhighlandersfromShanStateandtoprovideopportuniesfordevelopmentofcivicleadershipskillsamonglocalgroups.

Network for Environmental and Economic Development (NEED)wasfoundedinMarch

2006.NEEDisanonprotNGOworkingtostrengthenBurmesecivilsocietysothatallthe

peopleof Burmamaybenetfromthepracceof indigenousandholiscdevelopment

strategies,basedoneconomically,environmentally,andsociallysustainableideas.NEED

concentrateson thepromoon ofenvironmentalconservaon,sustainable agriculture,

andeconomicdevelopmentinBurma.Website:www.need-burma.org

The Pa-Oh Youth Organizaon (PYO)wassetupin1998strivingforpeaceandjuscethroughempoweringyouth.PYOpublishedthereportRobbing the Future inJune2009

aertwoyearsofresearchatthesiteofBurmaslargestironmineandthePangpetNo.5

SteelMillinShanState.PYOconnuestomonitorthesituaonandeducatecommunies

oftheenvironmentalandsocialimpactsofthisandotherminingprojects.Website: www.

pyo-org.blogspot.com

Shan Sapawa Environmental Organizaon (Sapawa)worksalongtheThai-Burmeseborder

andinsideBurmatopromoteenvironmentalproteconandhumanrightsinShanState,

Burma.Sapawawasestablishedin2003byShanalumniofEarthRightsSchoolandtheShan

StateSchoolforNaonaliesYouthwhohadbecomeincreasinglyconcernedatthe

environmentalsituaoninShanState.SapawasvisionisajustandpeacefulShanStatefreeofenvironmentaldestruconandexploitaon.ThemissionofSapawaistoempower

Shancommuniestoprotecttheirrightsandlivelihoods,andpreservetheirnatural

resources,andtoexposethedestruconoftheenvironmentandhumanrightsviolaons

occurringinShanStatetolocalpeoplesaswellastheinternaonalcommunity,inorderto

ndwaystopreventsuchviolaons.Website:shansapawa.org

The Shwe Gas Movement (SGM) isanon-governmentalorganizaoncampaigningagainst

theShweGasProjectandChinasTrans-BurmaPipelines,forHumanRights,Environment

Jusceandrevenuetransparencyinoilandgassector.SGMspecializesinfact-nding,

traininggrassrootsandcommunityleadersandadvocacycampaign.ItsmembersincludetheAllArakanStudentsandYouthsCongress,ArakanOilWatchandShweGasMovement

(India)anddedicatedacvistsinBurma.


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http://www.kesan.asia/http://www.need-burma.org/http://www.pyo-org.blogspot.com/http://www.pyo-org.blogspot.com/http://shansapawa.org/http://shansapawa.org/http://www.pyo-org.blogspot.com/http://www.pyo-org.blogspot.com/http://www.need-burma.org/http://www.kesan.asia/


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Notes to the reader

In1989,thegovernmentinBurmachangedtheocialnameofthecountryfromtheUnion

ofBurmatotheUnionofMyanmari,alongwithnamesofcies,districts,andstates,including

thenamesofplacesmenonedinthisreport. Inrespectandrecognionofethnicand

indigenous peoples names forancestral lands, however, thisreportuses thehistorical

nameswiththeexceponofdirectquotes.

Footnotesareclaricaonpointstogivethereadermorebackgroundinformaonnecessary

tounderstandaseconscontext.Endnoteslistreferencesused.

InBurma,severaldierentmeasurementsystemsareused,includingthemetricsystem,

theinternaonalsystem,andothernaonalandlocalizedmeasurements.Thisreport

utilizesvariousmeasurementsystems,althoughthereisapreferenceformetric

measurements.Conversionsforthemostcommonmeasurementsinthereportarelistedbelow.Numbershavebeenroundedtothethreesignicantdigits.

1acre=0.405hectares

1hectare=2.47acres

1kilometer=0.621miles

1mile=1.61kilometers

1squarekilometer=100hectares=0.386squaremiles=247acres

1kilogram=2.21pounds

1pound=0.454kilograms

1ton=2,000pounds=907kilograms1 cal=0.0163kilograms=0.0360pounds

1 viss=100cals=1.63kilogram

Burmasnaonalcurrencyisthekyat(MMK).Forreference,equivalentsinAmericandollars

($USD)areoenshown.Althoughtheocialexchangerateissetat6.31MMKper$1

USD,thereportusestheunocialmarketratewhereeconomictransaconsarecarried

outandisthereforemoremeaningful.

$1USD=30THB=approximately880MMK

i In2010intheleaduptotheelecons,thenamewasociallychangedtotheRepublicoftheUnionof

Myanmar.


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Acronyms

AAC AnnualAllowableCut

ADB AsianDevelopmentBank

ADfB AnotherDevelopmentforBurma

AOW ArakanOilWatch

ASEAN AssociaonofSoutheastAsianNaons

BANCA BiodiversityandNatureConservaonAssociaon

BEWG BurmaEnvironmentalWorkingGroup

BRIDGE BridgingRuralIntegratedDevelopmentandGrassrootsEmpowerment

BSS BurmaSeleconSystemCBO CommunityBasedOrganizaon

CDB ConvenononBiologicalDiversity

CPB CommunistPartyofBurma

DAP DepartmentofAgricultureandPlanning

DG DirectorGeneral

DHF DagHammarskjldFoundaon

DKBA DemocracKarenBuddhistArmy

DZGD DryZoneGreeningDepartment

ECODEV EconomicallyProgressiveEcosystemDevelopment

EIA EnvironmentalImpactAssessment

ERI EarthRightsInternaonal

FD ForestDepartment

FREDA ForestResourceEnvironmentDevelopmentandConservaonAssociaon

GA GeneralAssembly

GEF UnitedNaonsGlobalEnvironmentFacilityGMS GreaterMekongSubregion(denedbytheADBasBurma,Thailand,Lao,

Cambodia,Vietnam,andYunnanProvince,China)

ILO InternaonalLaborOrganizaon

INGO InternaonalNongovernmentalOrganizaon

IUCN WorldConservaonUnion(InternaonalUnionfortheConservaonof

Nature)

KDNG KachinDevelopmentNetworkingGroup

KEG KarenniEvergreenKESAN KarenEnvironmentalandSocialAconNetwork


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KHRG KarenHumanRightsGroup

KIA KachinIndependenceArmy

KIO KachinIndependenceOrganizaon

KNLA KarenNaonalLiberaonArmy

KNU KarenNaonalUnion

KORD KarenOrganizaonofReliefandDevelopment

KTWG KarenTeacherWorkingGroup

LMC LandManagementCommiee

LNDO LahuNaonalDevelopmentOrganizaon

PYO Pa-OhYouthOrganizaon

MoAI MinistryofAgricultureandIrrigaon

MOGE MyanmarOilandGasEnterprise

MPCE MyanmarPerennialCropsEnterprise

MTE MyanmarTimberEnterprise

NBSAP NaonalBiodiversityStrategyandAconPlan

NCEA NaonalCommissiononEnvironmentalAairs

NDAA NaonalDemocracAllianceArmy

NDAK NewDemocracArmyKachinNEED NetworkforEnvironmentalandEconomicDevelopment

NGO NongovermentalOrganizaon

REDD ReducingEmissionsfromDeforestaonandForestDegradaon

ROAP UNEPsRegionalOceforAsiaandthePacic

SLRD SelementandLandRecordsDepartment

SPDC StatePeaceandDevelopmentCouncil

SLORC StateLawandOrderRestoraonCouncil

SSA-S ShanStateArmySouth

TPDC TownshipPeaceandDevelopmentCouncil

UNDP UnitedNaonsDevelopmentProgram

UNEP UnitedNaonsEnvironmentProgram

UN-REDD UnitedNaonsCollaboraveProgramonReducingEmissionsfrom

DeforestaonandForestDegradaoninDevelopingCountries

UWSA UnitedWaStateArmy

WCS WorldConservaonSociety


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EXECUTIVE SUMMARY

Burmahasextensivebiodiversityandabundantnaturalresources,whichhaveinrecent

yearsbeenthreatenedbymilitarizaon,large-scaleresourceextracon,andinfrastructure

development.Burmahassomelawsandpoliciesrelatedtoprotecngpeopleandthe

environment,butthecountrylacksthenecessaryadministraveandlegalstructures,

standards,safeguardsandpolicalwilltoenforcesuchprovisions.Thecountryis alsoa

partytoseveralinternaonaltreaesrelangtotheenvironment,includingthoseon

proteconofbiodiversityandindigenouspeoples,wildlife,andcounteringclimatechange.

Itisunclear,however,howthecontentsofthosetreaesthathavebeenraedhavebeen

incorporatedintodomesclaw.

ManyorganizaonsareacveinBurmaonprojectsandprogramsrelatedtoenvironmental

proteconandsustainabledevelopment.Thisincludesabroadrangeofcommunity-based

organizaons,grassrootsorganizaons,naonalandinternaonalNGOs,UNagencies,andchurchgroupsbothbasedingovernment-controlledareasofBurma(inside)andthose

basedintheThaiandChineseborderregions(bordergroups).Manyorganizaonstake

thetradionalconservaonapproachortherights-basedapproachorboth.Organizaons

thatareusingarights-basedapproachworkfromaperspecveofsustainabledevelopment

andlivelihoodsandsubsequentlyfocusonissuessuchasfoodsecurity,landtenureand

rights,andcommunitydevelopmentandorganizing.Conservaonorganizaonstendto

focusspecicallyonenvironmentalprotecon,althoughwithvaryingstrategiestoachieve

their commongoal.Organizations workingon environmental issuesalso focuson

environmentalawareness,educaonandtraining,policydevelopment,advocacyand

networking.

Communiesconnuetobeexcludedfromprotectedforestareas,threateningtheirforest-

basedlivelihoods.The1990sand2000switnessedseverelogging,rstalongtheThai-Burma

borderandthenalongtheChinaborderinnorthernBurma.Althoughtheloggingrushhas

somewhatsubsidedalongtheseborders,thegovernmentandmilitaryconnuetoallocate

loggingconcessionstoChineseandBurmesebusinesspeople,irrespecveofnaonaland

locallawsregulangsustainableforestrypracces.Timber,however,contributesmuchless

toGDPasotherresourcesectorsboom.Communityforestryisposionedtochallengethe

mannerin whichmberresourcesaremanaged,providingsomepromisingdevoluonii

trends.

LandtenureremainsveryweakinBurma.Thestateownsallthelandandresourcesin

Burma,withmostvillagershavingnoformallandtlefortheircustomaryagriculturalland.

Newpolicieshavebeenputinplaceallocanglandconcessionstoprivateeneswhich

donotrespectcustomarylandrightsorinformallandholdings.Therearenosafeguardsto

protectfarmersfromtheonslaughtofcapitalismormechanismstohelpthembenet.

Controlovernaturalresourcesisamajorcauseofconictinethnicareas,wherethemajority

ofBurmasnaturalresourcesremain.ForeigndirectinvestmentinBurmaisconcentrated

inenergyandextracvesectorsandoenresultsinmilitarizaonanddisplacement.Recently

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therehasbeenheightenedinterestfromcountriesintheregionformoreinvestment

opportunies.Giventhelackofsoundeconomicpolicyandunwillingnessofthestateto

reconcilewithethnicarmedgroups,anincreaseinforeigninvestmentcouldhaveamajor

impactontheenvironmentandcommunieslivingintheseareas.

Whiletheydonotprovideloans,internaonalnancialinstuonssuchastheWorldBank

andInternaonalMonetaryFundremainengagedinBurma.TheAsianDevelopmentBank

inparcularprovidesassistancethroughvariouschannelsandfacilitatesprivateinvestment.

Burma iscurrently facingmanythreatsto thenaturalenvironment andsustainable

livelihoods,suchasconstruconoflargedams,oilandgasextracon,mining,deforestaon,

large-scaleagriculturalconcessions,illegalwildlifetradeandclimatechange.Themajority

ofBurmasincomecomesfromsellingonaturalresources,includingbillionsofdollars

fromgasandhydropowerdevelopment. Investmentcomesfromcountrieswithinthe

regionmostsignicantlyChina,IndiaandThailand.Malaysia,Singapore,Japan,VietnamandKoreaarealsokeyinvestorslookingtoincreaseinvestmentsaertheelecons.These

resourceextracveinvestmentsdamagetheenvironmentandthreatenlocalresource-based

livelihoods,parcularlyinethnicareas.

InordertotakestepstowardsecologicallyandsociallyresponsibledevelopmentinBurma,

Burmamusthaveasoundpolicyframeworkforenvironmentalproteconandsustainable

developmentthatenablescizenstotakepartindecisionmakingabouttheirown

development,andensuresresponsibleprivatesectorinvestment.Unlthen,newforeign

investorsinvesnginenergy,extracveandplantaonsectorsshouldrefrainfrominvesng.

Exisnginvestorsshouldimmediatelyceaseallproject-relatedwork-parcularlyinsensiveareasthroughoutBurma-unladequatesafeguardsareinplacetoensureinvestmentdoes

notleadtounnecessarydestruconofthenaturalenvironmentandlocallivelihoods.At

thesameme,InternaonalNGOsandUNagenciesshouldensurepeoplearerecognized

askeyactorsintheirowndevelopment,ratherthanpassiverecipientsofcommodiesand

services;andcivilsocietyorganizaonsshouldempowercommuniesthroughoutBurma

tounderstandtheirrights.


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RECOMMENDATIONS

To Burmas Government

Environmentalpolicyandlawmustbebasedoninternaonallawsandstandards,including

standardsforEnvironmentalImpactAssessments(EIA)andSocialImpactAssessments(SIA).

ThedevelopmentprocessmustalsoincorporatetheprincipleofandFree,PriorandInformed

Consent(FPIC).

Holdopenconsultaonswithabroadspectrumofstakeholdersindevelopingenvironment

lawsand policiesbeforetheyareapproved,includingestablishingadraingcommiee

withrepresentavesfromdierentsectorsandethnicgroups.

EIAsandSIAsshouldbedraedinconsultaonwithcivilsociety(includingethnicgroups)

thatareinaccordancewithinternaonalbestpracce.Theseassessmentsmustbe

conductedbyindependentthirdpares,throughaprocessthatensuresaccesstorelevant

informaon,adequateparcipaonofaectedcommuniesandpublichearingstomigate

theimpactofdevelopmentprojectsonlocalcommuniesandtheenvironment.

Developanequitablebenet-sharingsysteminallinfrastructure,extracve,energyand

developmentprojects.

Developlaws,policiesandinstuonsthatprotectcommuniesandindividualfarmers

livelihoodsandlandsfromtheimpactsofopeningnewmarkets,especiallyfromdomesc

andinternaonalagribusinesses.

Enactlandlawsandpoliciesthatrecognizeandrespectcustomarylandrights,entlement

andtenurerights.Forexample,rotaonalfarmingshouldberecognizedasonetypeof

tradionalagriculturesysteminuplandareas.

Abolishthe1953LandNaonalizaonActandupholdthesllexisng1963LawSafeguarding

PeasantsRightstoensurefarmerslandsandlivelihoodsareprotectedfromconscaon

bylaw.

Ratify core human andenvironmental rightstreaties.Developmandatorylaws andregulaonsinaccordancewiththeseinternaonallawsandstandardstoregulateand

monitorplantaon,energyandextracveindustries,includingnaonalprivatecompanies,

stateownedenterprises,andforeignprivateandstateownedcompaniesoperangin

Burma.

Respectindividualandcommunityrightsintheprocessofcompulsoryacquisionofland

inaccordancewithinternaonalbestpracce.Thisincludestheprovisionofadequate

informaon,consultaon,andfairandjustcompensaonoradequatealternavehousing

andlivelihoodpriortoeviconfromtheland.Duringtheevicon,theremustbenouseof

violenceordisproporonateforce.


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EstablishindependentbodiessuchasaNaonalEnvironmentalCommission,Naonal

HumanRightsCommissionandAn-corruponunitwithadequatebudgetanddecision-

makingpowertoensuresocialandenvironmentaljusce.

Enactpoliciesthatarerights-based,people-centered,andpro-poor.Thisensurestherightsoflocalpeopletothesustainableuseandmanagementoftheirresources,suchascommunity

forestryandpaymentsforecologicalservices.

Applytheprinciplesofsustainableandequitabledevelopmenttoeconomicdevelopment

tomakesurepoliciesandpraccesareecologicallysound,sociallyequitable,economically

viableandculturallyappropriate.

To the Private sector and state owned enterprises

Exisngforeigninvestors,aswellasprivatecompanies,stateownedenterprisesandjointventureswithinthecountrymust:

Applyinternaonalsustainabledevelopmentprinciplesandpracces(suchasFPIC,nancial

disclosure,benetsharing,conducngEIAandSIAs).

ConductinclusiveandmeaningfulEIAandSIAsinaccordancewithinternaonalbestpracce

throughaprocessthatensuresaccesstorelevantinformaon,adequateparcipaonof

aectedcommuniesandpublichearingstomigatetheimpactofdevelopmentprojects

onlocalcommuniesandtheenvironment.

Abidebyinternaonalsustainabledevelopmentiniavesandmechanisms,suchas

guidelinesonsustainableoilpalmdevelopmentandForestLawEnforcement,Governance

andTrade(FLEGT).

Makeeveryeorttoavoidinvoluntaryreselement.Incaseswherereselementis

inevitable,thereshouldbeaclearplanforreselementandcompensaonprocessesfor

relocaon,landconscaonor propertydamagetoaectedpeopleas aresultof large

scaledevelopmentprojectsimplementedbyprivatecompanies,stateenterprisesand

government.ForeigninvestorsshouldfollowthereselementpoliciesoftheInternaonal

FinanceCorporaon.

Immediatelyceaseallproject-relatedworkunladequatesafeguardsareinplace,parcularly

insensiveareasthroughoutBurma.

Foreigninvestorsshouldrefrainfromanyformofnewengagementintheplantaon,energy

andextracvesectorsinBurmaunlthepeopleofBurmacanmeaningfullyparcipatein

developmentdecisions,precondionsforresponsibleinvestmentareinplace,andadverse

impactscanbemigated.


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To Civil Society Organizaons

CSOsworkingbothinsideBurmaandonthebordersshouldrepresentpeoplesviewsin

advocangforenvironmentallawandpolicydevelopment,andmonitorthestateand

privatecompaniesbusinessestobeinaccordwithsociallyjustandenvironmentally

sustainabledevelopmentgoals.

To Internaonal NGOs

InternaonalNGOsworkingontheenvironmentmustunderstandthelocalpolicaland

socialcontext(includingthehumanrightssituaon),conductneedsassessmentsinclusively;

donoharmtolocalpeoplesrightsandlivelihoods;andfocusonbothpolicyandpracce

changetowardsenvironmentalproteconandsustainablelivelihoods.

To UN agencies

UNagenciesshouldfacilitaterealpolicyandpraccechangewithmeaningfulparcipaon

ofallstakeholders,andoperateaccordingtotheUNrightsbasedapproachstatementof

CommonUnderstanding,underwhichpeoplearerecognizedaskeyactorsintheirown

development,ratherthanpassiverecipientsofcommodiesandservices.

TheUNshouldensurethattheUNDeclaraonoftheRightsofIndigenousPeoples

(parcularlytheconceptofFreePriorInformedConsent)isrearmedinanyREDD+

agreement,andensuredintheimplementaonandmonitoringonREDD+.

To Internaonal Financial Instuons

UntilthepeopleofBurmacanmeaningfullyparticipateindevelopmentdecisions,

precondionsforresponsibleinvestmentareinplace,andadverseimpactscanbemigated,

thenIFIsshouldrefrainfromanyformofnewengagementwithBurma.

Iftheydoengage,Internaonalnancialinstuons(IFIs)mustapplytheirownenvironmental

andsocialsafeguardpolicies,followInternaonalFinanceCorporaonstandardsandUN

Frameworks(ie.oncommunityengagementandFPIC).

IFIsmustmakesurethatanyfuturenaonaldevelopmentplanforBurmaisbasedonproper

needsassessmentsandaparcipatoryconsultaonprocesswhichensurethatitmeetsthe

interestsofthepeople.


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1. INTRODUCTION

ThisreportbytheBurmaEnvironmentalWorkingGroupaimstoachievethefollowingmain

objecves:i)toreviewthecurrentstateofenvironmentalproteconinBurma(including

domescandinternaonalpoliciesandmechanisms,andtheroleoflocalandinternaonal

NGOsandUNagencies),ii)tohighlightkeyenvironmentalproblemsandtheimpactson

local peopleand theenvironmentand toiii) provide analysis onconict over natural

resourcesinethnicareasbeforeandaertheeleconsin2010.

Thereportbegins by reviewing international commitments,domestic mechanisms,

governmentpoliciesonland,forestandeconomy(relatedtotheresourcesector),andthe

role oflocaland internaonal NGOs basedinsideand outside thecountry working in

environmentalconservaonandlivelihoodimprovement.Itthenhighlightsthethreatsto

local peopleandtheenvironment.It alsoprovidesrecommendaonsforpolicies,laws,

instuonsandmechanismsthatmeetinternaonalstandardsinprotecngtheenvironmentandcommunitylivelihoods.Recommendaonsareaimedatpolicyandlawmakersinpost

eleconBurma,domescandforeigninvestors,stateownedcompanies,internaonal

nancialinstuons,UNagencies,internaonalNGOsandcivilsocietyorganizaons.

TheideaforthisreportoriginatedatanAnotherDevelopmentforBurmathemacseminar

inearly2006inChiangMai,Environment Seminar on Burma.Itwasiniallyaresponseto

areportentledInvestmentOpportuniesforBiodiversityConservaoninMyanmar,

publishedin2005byBirdlifeInternaonal,UNDP-BurmaandCricalEcosystemsPartnership

Fund(CEPF).Thereportoutlineskeybiodiversityareas,alistofthreatenedspecies,and

conservaoncorridors,as wellas idenespriories for conservaoninvestment.It is,however,enrelybasedonthebiophysicalsciencesandtechnicalexpersewithoutany

menonofethnicareasandtheconictrootedinBurma,mega-developmentprojectsthat

resultinmilitarizaon,displacement,widespreadhumanrightsabusesandenvironmental

degradaon,andtheroleofethniccommuniesinmaintainingtradionalnaturalresource

managementsystemswhichprotecttheenvironment.

Itwasdiscussedattheseminarhowconservaonplanningconnuestoexcludethepeoples

whoforcenturieshavelivedintheareastobeprotected,andthatinBurmalargescale

conservationinitiativesinvolveengagementwiththegovernment.Theapproachof

internaonalconservaonorganizaonsisoenlargelyanecologically-centredconservaon

approachpraccedbythemainattheexpenseofanysocialorpeople-focusedconcerns,

andincertaincaseslinkedtohumanrightsabusesandincreasedaccesstocontestedethnic

territory.Thisbringsintoquesontherealmovaonsofthegovernmentin sengup

large-scaleconservaonprojects.Large-scaleenvironmentalprojects,parcularlyinethnic

areas,mightalsomaskeconomicormilitaryobjecvesfortheregime.

Anideaemergedforareportonthestateofenvironmentfromethnicperspecvesthat

wouldput together thesituaonin ethnic areasand demonstratewhatethnicbased

environmentalorganizaonsbasedinThailandaredoingfromarightsbasedapproach.It

wasalsodecidedthatthereportwouldincludetheinternaonalcommitmentsthatthe

governmenthasrelatedtotheenvironment,aswellaslegislaonanddomescmechanismsrelatedtoprotecngtheenvironmentinlivelihoods.Thereportwasthensplitintotwo


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parts,withthefirstpartpublishedin2009calledAccessibleAlternatives:Ethnic

CommuniesContribuontoSocialDevelopmentandEnvironmentalConservaonin

Burma,whichspecificallyfocusesontheactivitiesofethnicbasedenvironmental

organizaonsbasedinThailand.

Withthe2010eleconloomingandtheeconomyopeningitbecameimportanttohighlight

bilateralresourceextraconagreementsbetweentheBurmeseleadersandforeign

governmentsandcorporaonswhicharehaving,andwillconnuetohave,anegave

impactoncommuniesandtheenvironmentparcularlyinethnicareas.Atthesameme

abroaderdiscussionwasaddedofdomescprocessesthatsupportprivateinvestmentand

thelackofadequatesafeguardsforfarmersthroughoutthecountry.

TheBEWGhopesthatthereportwillprovidepolicyandpraccerecommendaonsfor

policymakers,investors,internaonalcommunityandcivilsocietygroupsworkinginside

andoutsidethecountrysothattheyarewellinformed,andthatwhentheyimplementaprojectinBurma,theyhavefullawarenessofthecomplicaons,impacts,andrightsof

aectedcommunies.

Thereportisrelevanttotheenrecountry.Manyseconsfocusmorenarrowlyonethnic

areasofthecountry,whileseveralseconsgivemoregeneraloverviewsofemergingtrends

relevanttothewholecountry.Finally,noaenonisgiventourban-basedenvironmental

issues.

2. COUNTRY FACTS

Burmaisaresource-richnaonandyetitremainsoneoftheleastdevelopednaonson

earth.ThelatestUNDPsHumanDevelopmentReportrankedBurma132outof169onthe

HumanDevelopmentIndex.iii1Atapproximately$435USD,percapitaGDPinBurmaranks

amongstthelowestintheworldandrecentresearchshowsthatremovenetexportsfrom

theequaonandthedomesceconomyhasbeengrowingataratethatfallsshortof

populaongrowthimplyingthatpercapitaGDPhasbeendeclininginrecentyears.2

2.1 DEMOGRAPHY

Theabsenceofdependabledataandthecomplexiesinethnicidentyandclassicaon

andrendersitdiculttoesmatethetotalpopulaonofBurmaandvirtuallyimpossible

togaugetheexactmakeupofthenaon. 3Thelastreliablecensuswasconductedin1931

(the1983censuswasonlyparal,asnumbersfromconictareaswerenotrecorded).4Using

reproducveandferlityhealthsurveys,theWorldHealthOrganizaonesmatesthatin

2003,thereweremorethan52millionpeopleinBurma,whichhadatthemea2%

populaongrowthrate.5Burmaisamul-ethniccountry.Thelargestethnicgroup,Burmans,

accountforapproximatedtwo-thirdsofthepopulace.Otherethnicandindigenouspeoples

reportedlycompriseatleast40%ofthepopulaonandliveson60%oftheavailableland. 6

iii TheHumanDevelopmentIndexmeasuresdevelopmentcombiningindicatorsofeducaon,lifeexpectancy

andincomehp://hdr.undp.org/en/stascs/hdi/.


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Accordingtothe2006EnvironmentalPerformanceAssessment(EPA)report,39%ofBurmas

forestsaremixeddeciduous,26%hillforests,16%evergreen,and10%drythornyforests.15

Dipterocarpforestsaccountfor5%,withtheremaining4%belongtomangroves,beach

anddune,andswampforests.

2.2.3 Coastal Areas

Burmahasa2,832kilometer-longcoastlineextendingfromthecountryswesttosoutheast

fromtheBayofBengaltotheAndamanSea.Alongthisstretch,alluvialatsandsheltered

muddyareasarehometomangrovetreesandshrubs,keystonespeciesthatnotonlyserve

ashabitattocrawsh,shrimp,crabs,andnumerousotheraquacanimals,butalsoprotect

coastalregionsfromtheimpactsofstormsandcyclones.Besidesshandotheraquac

foods,communiescollectnon-mberforestproductslikewildfruitsandvegetablesfrom

mangrovesaswell.Oshoreliebiodiversecoralreefandseagrassbedmarineecosystems,

providingcoastalvillageswithanabundantsupplyoffood.16

2.2.4 Watersheds and Freshwater Sources

Burmahasvemainrivers:theIrrawaddy,theChindwin,theSalween,theSiaung,and

theTenasserim.EndangeredspeciessuchastheIrrawaddydolphinandBlythsriverfrog

canbefoundinsomeofthesewaterways. 17OthernotableriversaretheKaladan,which

runsfromMizoram,India,throughChinlandandArakan;18andtheMekong,whichforms

theborderbetweenShanStateandLaoPDR.19Regionalandinternaonalinvestorshave

takennoceofBurmasplenfulwatersources,bothforhydropowerpotenalaswellas

irrigatedagriculture.

2.2.5 Oil and Gas

Therstforeigninvestmentprojectaer1988whenthegovernmentbegantoparally

liberalizetheeconomywasthedevelopmentoftheYadanagaseldintheAndamanSea

andtheconstruconofagaspipelinethroughceasereandconictareasinMonState

andTenasserimDivisionineasternBurma.Sincetheendof2004,theBurmeseregime

intensiedtheopeningofoilandgasblockstoforeigncompanies.Todaythereare49

onshoreblocksand26oshorebeingexploredand/ordevelopedinBurma.Burmasoil

andgassectorisassociatedwithmassivescalehumanrightsabusesandenvironmental

degradaon.

In2007,SoeMyint,theDirector-GeneralofPlanningforBurmasEnergyMinistry,stated

thatthecountryhadmorethan500millionbarrelsofonshoreoilreserves,withanother

100millionoshore.20Thatsameyearnineforeignoilcompanieswereexploringfornew

oildeposits,increasingoutputfromolderelds,andaempngtorestartextraconon

previouslyshutdowneldson16onshoreblocks. 21AccordingtotheCIAFactbook,Burma

has50millionbarrelsofprovencrudeoilreservesasofthestartof2010,makingitthe

countrywiththe50thlargestreservesintheworld.22

Inregardstonaturalgas,accordingtoBrishPetroleums2010StascalReviewofWorldEnergy,attheendof2009,Burmasprovengasreservesstoodat20.1trillioncubicfeet,or


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0.57trillioncubicmeters,roughly0.3percentoftheworldstotalgasreserves.23TheCIA

WorldFactbookcitesBurmasgasreservesatonly283.2billioncubicmetersasofthe

beginningof2010,buttheactualprovenreservesarelikelyhigherthancitedbyboth

sourcesduetorecentonshoregasdiscoveries.24SINOPECsBurma-basedjointventurewith

theBurmamilitaryjuntaBurmaPetroleumCo.,Ltd.reportedthediscoveryof909billioncubicfeetofonshorenaturalgasinPahtoloneldinCentralBurma.25 26Extensiveexploraon

acviesarecurrentlytakingplacebothonshoreandoshore,andtheseundiscovered

reserves,suchastheesmated13trillioncubicfeetofgasintheoshoreA-2block,are

settopushBurmasgasreservelevelsevenhigher. 27In2009-10naturalgasaccountedfor

38%ofBurmasexportearnings,withallofthegasgoingtoThailand.28

2.2.6 Minerals

Burmahasrichmineralresourcedepositsincludingtungsten,n,zinc,silver,copper,lead,

coal,goal,andindustrialminerals.29

Anmony,limestone,andmarbledepositsalsodotthelandscape.30Gemstonesincludingdiamonds,rubies,jade,andsapphirescanalsobefound

inBurma.Burmaismostfamousforitshighqualityrubiesandjadeite(themostexpensive

formofjade).Itishardtotracksmallscalegembusinessesandesmatethevalueofgem

tradeinBurma,however,accordingtoindustryesmates,Burmaaccountsformorethan

90percentofglobaltradeofrubiesbyvalue.31

3. ENVIRONMENTAL LAWS AND POLICIES IN BURMA

OVERVIEW

ThoughBurmadoeshavesomelegislaonrelatedtoprotecngpeopleandtheenvironment,

thecountrylacksthenecessaryadequateadministraveandlegalstructures,standards,

safeguardsandpolicalwilltoenforcesuchprovisions.Inaddion,whileBurmaisparty

toseveralinternaonaltreaessuchastheConvenononBiologicalDiversity(CBD), vBurma

hasnotincorporatedtheprovisionscontainedintheseagreementsintodomesclaw.For

example,naonallawsdonotcurrentlyrequireenvironmentalimpactassessments(EIA)

orpublicparcipaonbylocalcommuniesinthedecision-makingprocessesoflarge-scale

developmentprojects.Therearenolawsthatcomprehensivelyregulatepolluon,no

standards to adequately protect biodiversity, develop reselement plans, or providecompensaon.Thelackofenvironmentalproteconlegislaonhasleroomforunabated

ecologicaldegradaon.32Thereare,however,the1995CommunityForestInstrucons(CFI),

adraedEnvironmentalLaw,andtheLandAcquisionActthat,ifsystemacallyenforced,

wouldimproveenvironmentalproteconandtheland-basedrightsoflocalpopulaons.

Thisseconreviewstheadministraveandlegalstructuressetuptoprotecttheenvironment,

aswellasongoingacviesbythegovernmentandcivilsocietyorganizaonsbasedinside

andoutsideBurmathatareintendedtopromotesustainabledevelopmentandenvironmental

protecon.

v BurmabecameapartytotheCBDin1994.Arcle14(1)(a)oftheConvenonrequiresanEIAandArcle

8(j)mandatesindigenousparcipaonwherethereisasignicantimpactonbiodiversity.


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3.1 National Commission for Environmental Affairs

EnvironmentalproteconinBurmagenerallycomesundertheauthorityoftheNaonal

CommissionforEnvironmentalAairs(NCEA),formedin1990.viUnl2005,theMinisterof

ForeignAairswasthechairofNCEAwhichwasastrongindicaonthattheBurmese

governmentcreatedtheNCEAmerelyasatooltowininternaonalapproval. 33In2005,

however,theNCEAwastransferredundertheMinistryofForestry(MoF),andtheMinister

ofForestryassumedtheroleoftheNCEAchairperson.

ThestatedobjecvesoftheNCEAaretosetenvironmentalstandards,createenvironmental

policiesforusingnaturalresources,issuerulesandregulaonstocontrolpolluon,and

tocreateshort-andlong-termenvironmentalpolicieswhichbalanceenvironmentalneeds

anddevelopmentrequirements.34However,seriousbudget,staconstraintsandlackof

legislavemandatehavecompromisedtheeecvenessoftheNCEAinmeengthose

objecves.35Thebudgetisminuscule:inthescalyear2004-2005,theNCEAhadabudgetofonlyabout$12,000USD(12millionKyat36),andmostofitwasusedtopaysalaries.

TheNCEAhasdraedtwoenvironmentallaws:theEnvironmentalProteconLawandthe

EnvironmentalImpactAssessmentRules,bothofwhicharependingapprovalbythe

government.37

TheNCEAwasalsothefocalpointfortheMyanmarNaonalEnvironmentalPerformance

Assessment(EPA),areportdoneincollaboraonwithseveralinternaonalorganizaons

suchas theAsianDevelopmentBank(ADB),UnitedNaonsEnvironmentalProgramme

(UNEP),Instituteof Global Environmental Strategies, andthe National Institute forEnvironmentalStudiesofJapan.In2006theMyanmarEPAwaspublishedaspartofa

broaderprogramcalledtheNaonalPerformanceAssessmentandStrategicEnvironment

Framework of GreaterMekong Subregion (GMS), which aims topromote sustainable

developmentintheGMSthroughthecreaonofnaonalandsub-regionalenvironmental

performanceassessmentsystemsanddevelopmentofnaonalandsub-regionalcapacies

forimplemenngsuchassessments.TheMyanmarEPAprovidessomeusefulbaselinedata

coveringsevenkeyenvironmentalconcerns,includingforestresources,biodiversity,land

degradaon,managementofwaterresources,wastemanagement,airpolluonfrom

mobilesourceandclimatechange.38However,intheEPAthereisnomenonofthemany

environmentalconcernsinBurmasuchasproblemsassociatedwithminetailingsdisposal,

construconoflargedams,large-scalecommercialagriculture,gas-elddevelopment,or

pipelineandroadconstrucon.Thereportalsodoesnotmenonthetradionalnatural

resourcemanagementsystemspraccedbyethnicpeoplethroughoutthecountry.

vi However,respecvedepartmentsthatarestatutorilyseparatefromtheNCEAareresponsibleforacute

environmentalissuesincludingforestdegradaon,waterresourcemanagementandsustainabilityof

agriculture.TunMyint,EnvironmentalGovernanceintheSPDCsMyanmarinMyanmar:Thestate,communityandtheenvironment,TrevorWilsonandMoniqueSkidmore(eds),AustralianNaonalUniversity,ANUEPress

andAsiaPacicPress,2007.


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3.2 Environmental Policies and Laws

AnaonalenvironmentalpolicywasdraedbytheNCEAin1994.TheNaonalEnvironment

Policyisasfollows:

Toestablishsoundenvironmentpolicies,ulisaonofwater,land,forests,

mineral,marineresourcesandothernaturalresourcesinordertoconserve

theenvironmentandpreventitsdegradaon,theGovernmentoftheUnion

ofMyanmarherebyadoptsthefollowingpolicy:Thewealthofthenaonis

itspeople,itsculturalheritage,itsenvironmentanditsnaturalresources.

Theobjecve ofMyanmars environmental policy isaimedat achieving

harmonyandbalancebetweenthesethroughtheintegraonofenvironmental

consideraonsintothedevelopmentprocesstoenhancethequalityofthe

lifeofallitscizens.Everynaonhasthesovereignrighttouliseitsnatural

resourcesinaccordancewithitsenvironmentalpolices;butgreatcaremustbetakennottoexceeditsjurisdiconorinfringeupontheinterestsofother

naons.ItistheresponsibilityoftheStateandeverycizentopreserveits

naturalresourcesintheinterestsofpresentandfuturegenerations.

Environmentalproteconshouldalwaysbetheprimaryobjecveinseeking

development39.

Thereis,however,noformalenvironmentallaworaninstuonalframeworkforthe

implementaonofthispolicy.Asetofprovisionsaboutenvironmentalproteconwas

draedandre-draedbetween1997and2000bythegovernmentwithtechnicalinput

fromanenvironmentallawexpertfundedbyUNEP,40

butithasnotbeenmadeintolawyet.Ifthelawisapproved,therewillbemoreinstuonalspacetoregulateenvironmental

qualityandconductEIAsandSIAsforinfrastructureandinvestmentprojectsfundedby

thegovernmentandprivatesector.However,lackofpolicalwill,limitedhumanresources,

andlowlevelsofbudgetallocaonforenvironmentalproteconandconservaonare

majorchallengeseveniftheenvironmentallawisinplacetoimplement.

ThedevelopmentoftheenvironmentalpolicywasfollowedbythedraingofMyanmar

Agenda21in1997,whichfollowsaUNframeworkforamul-prongedapproachto

sustainabledevelopment.TheMyanmarAgenda21recognizestheneedforEnvironmental

ImpactAssessments.41MyanmarAgenda21 callsforintegratedmanagementofnatural

resourcesandprovidesablueprintforachievingsustainabledevelopment.

3.3 Impact Assessments in Burma

Oneofthemostimportantinternaonally-acceptedenvironmentalproteconmethodsis

toconductanenvironmentalimpactassessment(EIA)priortoimplemenngdevelopment

projects.Whendoneproperly,anEIAidenes,predicts,evaluates,andmigatesthe

biophysical,social,andotherrelevanteectsofdevelopmentproposalspriortomajor

decisionsbeingtakenandcommitmentsmade. 42TheEIAissupposedtoprovideappropriate

opportuniestoinformandinvolvestakeholdersinaproject.vii

vii TheInternaonalAssociaonforImpactAssessmenthasguidelinesontheobjecvesandprinciplesofan

EIAseehp://www.iaia.org/publicdocuments/special-publicaons/Principles%20of%20IA_web.pdf


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InBurma,nolawrequiresanEIAorSocialImpactAssessment(SIA)viiibeforeadevelopment

projectisimplemented.Publicaccesstogovernmentinformaonisrestricted,andprior

approvalfromagenciesisrequiredtoreleaseinformaonaboutdevelopmentprojects.43

OngoingdevelopmentprojectsinBurmasuchasconstruconofroadsanddams,mining,

logging,aswellascoal,oil,andgasextracondonothaveanystandardizedmeasureofnegaveimpactstotheenvironmentandthelocalpeople,andtheimplemenngagencies

arenotrequiredbythelawsofBurmatomakeeortstomigatetheseimpacts.

AnecdotalevidenceshowsthatevenonrareoccasionswhenanEIAisconductedinBurma,

itisnotdonetomeetthesubstanveobjecvesofaproperEIA.ArecentEIA,supported

byaforeigncompany,wasconductedbyaBurmeseconservaonNGOabouttheconstrucon

ofahydropowerdaminBurma,buttheNGOrefusedtoincludeanysocialfactorsas

accordingtoBurmesegovernmentorders.44TheEIAdidnotimpactthedesignofthedam

orstemthedeofhydropowerprojectsinthecountry.

Inarecentarcle,anocialwiththeMinistryofMinesproposedanEIAprocessforBurma.45

Theproposedprocesshasseveralshortcomings.First,theprocessallowstheMinisterfor

theEnvironment(currentlyatheorecalposionasyetthereisnosuchministry)to

determineatthestart,withoutanysupporngevidence,thataprojectwillhavenoimpact.

Whensucha decision istaken, anEIAis not required. This wouldprovide anobvious

loopholeinanyrigorousassessmentofthepotenalenvironmentalandsocialimpactfrom

aproject.Furthermore,whereastheinternaonalgoodpracceisforathirdpartyto

conducttheassessmentstudy,underthisproposal,theprojectproponenthasthe

responsibilityforpreparingtheEIA,whichprovidesaneasymechanismtohideorignore

signicantimpacts.Finally,publicparcipaonisnotmandatory,andoccurstoolateintheprocess.Itisuptothegovernmenttodetermineifpublicparcipaonisrequired,allowing

thegovernmenttoavoidpublicparcipaonforcontroversialprojects.

Anothertooladvocatedbyhumanrightsandothercivilsociety organizaonsis human

rightsimpactassessments(HRIAs)toassesstheimpactofgovernmentandotherpolicies

onhumanrights,i.e.health.46

3.4 Environmental Provisions in the 2008 Constitution

Underthenew2008Constuon,thegovernmentshallprotectandconservethenatural

environment(Chapter1,Secon45). 47Thenaonallegislaturecan,butdoesnotneed

to,enactlawstoprotecttheenvironmentandhelprestoreareasdegradedordamagedby

miningandforestryacviesorthosethathaveexperienceddestruconofplants,wildlife,

andhabitat(Chapter4,Secon96).48StateandDivisionLegislaturesalsohavethepower

toregulateenvironmentalprotecon,butwithintheboundariesoflegislaonpassedby

theNaonalLegislature(Chapter4,Secon196).49Inaddion,everycizenhastheduty

viii SIAsshouldcoverallsocialandculturalconsequencestohumanpopulaonsofanypublicor private

aconsthatalterthewaysinwhichpeoplelive,work,play,relatetooneanother,organizetomeettheir

needs,andgenerallycopeasmembersofsocietyandculturalimpactsinvolvechangestothenorms,values,

andbeliefsofindividualsthatguideandraonalizetheircognionofthemselvesandtheirsocieesR.J.BurdgeandF.Vanclay,F.,Socialimpactassessment:acontribuon

tothestateoftheartseries,ImpactAssessment,1996.


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toassistthegovernmentincarryingoutenvironmentalconservaon(Chapter8,Secon

390).50

Withregardtoenvironmentalprotecon,the2008Constuondoesnotguaranteetothe

people theright toa clean andhealthy environment although many other naonalconstuonsprovidesucharight.ixTheconstuondoesnothaveanyclearlanguageon

sustainabledevelopmentandrecognionoftherightsofcivilsocietysuchasfreedomof

informaon,parcipaoninnaturalresourcemanagement,customarylandownership,

informaoninlocallanguages,andequitablebenetsharing.

3.5 National Sustainable Development Strategy

TheNaonalSustainableDevelopmentStrategy(NSDS)ispartofabroaderprogramofthe

UNSustainableDevelopmentCommissionsetupaertheWorldSummitonSustainable

Developmentin2002.EverycountryincludingBurmathatsignedAgenda21xattheEarthSummit inRioDe Janerioin1992,agreedto developan NSDSby 2010 inline withthe

MillenniumDevelopmentGoals(MDGs).UNEPprovidedfundingforBurmatodevelopan

NSDS.The main aim ofthe processwas todevelop anNSDSin line with internaonal

standardsbymeengtheMDGsandensurethatenvironmentalandsocialimpactsare

migatedwhenimplemenngdevelopmentprojects. 51TheNCEAinBurmatookaleadin

developingthestrategyinconsultaonwiththegovernmentandasmallnumberofNGOs.

BurmasNSDSwaspublishedinAugust2009.Thethreegoalsaresustainablemanagement

ofnaturalresources,integratedeconomicdevelopmentandsustainablesocialdevelopment.

Specicstrategiesareoutlinedundereachgoal.Forexample,thegoalforSustainable

ManagementofNaturalResourcessuggestsstrategiesforforestresourcemanagement,sustainable energy producon andconsumpon,biodiversityconservaon,sustainable

freshwaterresourcesmanagement,sustainablemanagementoflandresources,sustainable

managementformineralresourcesulizaon,andsoon.52

TheNSDSwasociallyacceptedbytheMinistryofPlanning.Intheory,itisaguiding

documentforgovernmentministries,departmentsandlocalauthories,UNorganizaons,

andinternaonalandlocalNGOs.Themainlimitaon,however,isthatBurmalacks

comprehensivenaonalpoliciesonlanduse,energyandenvironment,whichmakesit

diculttoimplementthestrategiescontainedintheNSDS.Thereisalsoaneedtoconsult

moreNGOsintheprocess.TheUnitedNaonsEnvironmentProgramhasstatedthatthere

areopportuniestoreviewandfurtherdevelopthestrategyinthefuture.53

ix ForexamplethePhilippinesConstuonprovides:TheStateshallprotectandadvancetherightofthe

peopletoabalancedandhealthfulecologyinaccordwiththerhythmandharmonyofnaturehp://www.

tanggol.org/environmental_laws/conex.html.x Agenda21isacomprehensiveplanofacontobetakenglobally,naonallyandlocallybyorganizaons

oftheUnitedNaonsSystem,Governments,andMajorGroupsineveryareainwhichhumanimpactsonthe

environment.Agenda21..wasadoptedbymorethan178GovernmentsattheUnitedNaonsConferenceonEnvironmentandDevelopment(UNCED)heldinRiodeJanerio,Brazil,3to14June1992. hp://www.

un.org/esa/dsd/agenda21/


21
http://www.tanggol.org/environmental_laws/conex.htmlhttp://www.tanggol.org/environmental_laws/conex.htmlhttp://www.un.org/esa/dsd/agenda21/http://www.un.org/esa/dsd/agenda21/http://www.un.org/esa/dsd/agenda21/http://www.un.org/esa/dsd/agenda21/http://www.tanggol.org/environmental_laws/conex.htmlhttp://www.tanggol.org/environmental_laws/conex.html


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3.6 International Commitments

Burmahassigned31internaonaltreaesrelatedtotheenvironment(seeTable1).Itis

unclear,however,howthecontentsofthosetreaeshavebeenincorporatedintodomesc

law.Belowisamorein-depthdiscussionofthemostsignicantconvenonsinthecontext

ofenvironmentalproteconinBurmatoday.

Table 1InternaonalandregionaltreaesconcerningtheenvironmenttowhichBurma

isaparty(inchronologicalorder)

Name

1 PlantProteconAgreementfortheSoutheastAsiaandPacicRegion

2 TreatyBanningNuclearWeaponsTestsintheAtmosphereinOuterSpaceand

UnderWater3 OuterSpaceTreaty:TreatyonPrinciplesGoverningtheAcviesofStates

intheExploitaonandUseofOuterSpaceincludingtheMoonandother

CelesalBodies

4 TreatyontheProhibionoftheEmplacementofNuclearWeaponsandother

WeaponsofMassDestruconontheSea-BedandOceanFloorandinthe

Subsoilthereof(SeabedTreaty)

5 ConvenonontheProhibionoftheDevelopment,Produconand

StockpilingofBacteriologicalandToxinWeapons,andtheirDestrucon

6ViennaConvenonfortheProteconoftheOzoneLayer

7 MontrealProtocolonSubstancesthatDepletetheOzoneLayer

8 MARPOL:InternaonalConvenonforthePrevenonofPolluonfromShips

9 MARPOL:InternaonalConvenonforthePrevenonofPolluonfromShips

asamended1978

10 AgreementontheNetworksofAquacultureCentersinAsiaandthePacicRegion

11 LondonAmendmenttotheMontrealProtocolonSubstancesthatDepletethe

OzoneLayer

12 UnitedNaonsFrameworkConvenononClimateChange(UNFCCC)

13 TreatyontheNon-ProliferaonofNuclearWeapons

14 ICAO:ANNEX16AnnextotheConvenononInternaonalCivilAviaon

EnvironmentalProteconVol.I,II,AircraNoise

15 UnitedNaonsConvenontoCombatDesercaon

16 ViennaConvenonfortheProteconofOzoneLayer

17 MontrealProtocolonSubstancesthatDepletetheOzoneLayer

18 LondonAmendmenttotheMontrealProtocol

19 ConvenonConcerningtheProteconoftheWorldCulturalandNaturalHeritage

20 ConvenononBiologicalDiversity(CBD)


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AconsultaonworkshoptostarttheNBSAPprocesswasorganizedbytheForestDepartment

inJune2006inRangoon.InperhapsthelargestgatheringinBurmaeverregardingan

environmental issue, outof 149invitees, there were 119parcipants from over 44

organizaons,governmentministriesanddepartments,universiesandinstutesaswell

asrepresentavesofinternaonalandnaonalNGOsandtheprivatesector. 57

AtthemeengitwasdeclaredthatthereportInvestmentOpportuniesforBiodiversity

ConservaoninMyanmar,publishedin2005byBirdlifeInternaonal,UNDP-Burmaand

CricalEcosystemsPartnershipFund(CEPF),wouldbeusedasabaselinedocumentforthe

NBSAPprocess.Thereportoutlineskeybiodiversityareas,alistofthreatenedspecies,and

conservaoncorridors,aswellasidenesprioriesforconservaoninvestmentforthe

nextveyears.Thereport,however,isenrelybasedonthebiophysicalsciencesand

technicalexpersewithoutanyregardforsocialandculturalvalue,indigenousterritories,

orthepolicalethnicconictrootedinBurma.58

BurmahasreceivedfundingforthestocktakingprocessintheformulaonoftheNBSAP

fromtheGlobalEnvironmentFund(GEF),butduetopersonnelchangesin theForestry

Departmentandthelackofaqualiedresourceperson,theprocessisnotgoingasfastas

GEFandUNEPhoped. 59AconsultantfortheNBSAPhashoweverbeenappointedfromthe

naonalNGOECODEV(seesecon3.7.1).

Moreover, Burmas NBSAP process itself thusfar hasmarginalizedindigenous peoples

contribuontobiodiversityconservaon.Noindigenouspeoplesorenvironmentalgroups

withindigenousrepresentaoninsideorbasedoutsideofBurmahavebeenconsultedin

theprocessofdevelopingtheNBSAP.ThisisindirectcontradicontotheprinciplesoftheCBD,theNBSAPguidelinesandGEFmandates.60

United Nations Declaration on the Rights of Indigenous Peoples

Burmawasoneof144statesthatendorsedtheUnitedNaonsDeclaraonontheRights

ofIndigenousPeoplesinSeptember2007.Eecveimplementaonofthishumanrights

instrumentwouldsignicantlyimprovethesituaonforindigenouspeopleinBurmaand

throughouttheworld.61 Arcle32 isabout Indigenous Peoples rightto Free and Prior

InformedConsent(FPIC):Statesshallconsultandcooperateingoodfaithwiththe

IndigenousPeoplesconcernedthroughtheirownrepresentaveinstuonsinorderto

obtainFreeandPriorInformedConsentpriortoapprovalofanyprojectaecngtheirland

orterritories.Arcle10aboutforciblerelocaonofindigenouspeople,andtheneedfor

FPICandArcle26aboutlandrightsarealsorelevantarclesforindigenouspeoplesin

Burma.xiiiWhileitisapplaudedthattheBurmesegovernmentsignedthistreaty,itisme

adaptforthispurposeexisngstrategies,plansorprogrammeswhichshallreect,interalia,themeasures

setoutinthisConvenonrelevanttotheContracngPartyconcernedandintegrate,asfaraspossibleand

asappropriate,theconservaonandsustainableuseofbiologicaldiversityintorelevantsectoralorcross-

sectoralplans,programmesandpolicies.Arcles26and10(a)arealsorelevantcallingforregularnaonal

reportsandtheintegraonofconservaonandbiologicalresourcesintonaonaldecisionmaking.xiii

Indigenouspeoplesshallnotbeforciblyremovedfromtheirlandsorterritories.Norelocaonshalltake

placewithoutthefree,priorandinformedconsentoftheindigenouspeoplesconcernedandaeragreementonjustandfaircompensaonand,wherepossible,withtheoponofreturn(Arcle10),1.Indigenous

peopleshavetherighttothelands,territoriesandresourceswhichtheyhavetradionallyowned,occupied


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thatrespondtotheirurgentandimmediateneedstoadapttoclimatechangethosefor

whichfurtherdelaywouldincreasevulnerabilityand/orcostsatalaterstage. 66TheNAPA

projectinBurmaisfocusingonpreparingnaonalsectoralandmulsectoralacviesto

buildadapvecapaciesatnaonalandlocallevelforfacingclimatechangerisks.Burma

isearmarkedforfundingofapproximately$US16millionunderGEFs2010to2014programcycle(namelyGEF5sSystemofTransparentAllocaonofResources(STAR)).However,

BurmasaccesstofundsfromGEF5isconnedbytheneedinco-fundingupto40to60%

ofthetotalbudgetwhichislimitedbyWesternsanconspolicies.Nevertheless,aempts

havebeenmadeinsideBurmaforformaonofnewauthorityfocusingonclimatechange

andenvironmentalmaers,includingenvironmentalacvieslinkedwithglobalmovements

andiniaves.Atpresent,ECODEVisalsoservingasteamleaderoftheGEFfundedproject

fornaonalcommunicaonunderUnitedNaonsFrameworkConvenononClimateChange

inordertoimplementtheArcle6oftheconvenonwhichistopromoteeducaon,training

andpublicawarenessonclimatechange,andtheexecuvedirectoristhenaonalconsultant

fortheNaonalStrategyandAconPlanonBiodiversityconservaon(NBSAP).

In2010theBurmesegovernmentexpressedinterestinaUNcollaboraveiniaveon

ReducingEmissionsfromDeforestaonandForestDegradaon(REDD),nowreferredtoas

REDD+.xvi67However,itwasmutuallyagreedthatduetoconcernsoverthepossibilityof

opposionfromsomemembersof theUN-REDDPolicyBoard,theywouldnotformally

proceed with anapplicationto join atthistime. UN-REDDis currentlysupporting

representavesfromcivilsocietyorganizaonsfromBurmatoaendtrainingsin REDD

ReadinesssuchasatraininginfreeandpriorinformedconsentinVietnam.InNovember

2010,twoMinistryofForestryocialsandaUNDPocialaendedaworkshopforregional

actorsinBangkok.TheworkshopservedtoexchangelessonslearnedandexperiencesinpreparingforREDD+.

3.7 Environmentalism in Burma

Note: Many groups and individuals inside are acvely working on a range of environmental

and livelihood-based issues inside Burma. Their work and safety could be jeopardized by

being idened, so only groups with a high public prole or websites will be menoned. For

others, their work will be discussed without idenfying their organizaon.

Indiscussingtheacviesoforganizaonsworkingonenvironmentalandlivelihood-based

issuesbothbasedingovernment-controlledareasofBurma(inside)andthosebasedin

theThaiandChineseborderregions(bordergroups),therearetwoapproaches:the

tradionalconservaonapproachandtherights-basedapproach.Organizaonsthatare

usingarights-basedapproachworkfromaperspecveofsustainabledevelopmentand

livelihoodsandsubsequentlyfocusonissuessuchasfoodsecurity,landtenureandrights,

andcommunity development andorganizing. Conservaonorganizaons tend tofocus

specicallyonenvironmentalprotecon,althoughwithvaryingapproachestoachievetheir

xvi ReducingEmissionsfromDeforestaonandForestDegradaon(REDD)isaneorttocreateanancial

valueforthecarbonstoredinforests,oeringincenvesfordevelopingcountriestoreduceemissionsfrom

forestedlandsandinvestinlow-carbonpathstosustainabledevelopment.REDD+goesbeyonddeforestaonandforestdegradaon,andincludestheroleofconservaon,sustainablemanagementofforestsand

enhancementofforestcarbonstocks.Seehp://www.un-redd.org/AboutREDD/tabid/582/Default.aspx


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ECODEVwhichstandsforeconomicallyprogressiveecosystemdevelopmentisagroup

ofMyanmardevelopmentprofessionals,intellectualsandsocialentrepreneurs.70Itis

registeredundertheMyanmarPartnershipActandtheMyanmarCompanyAct.Themission

ofECODEVistonetworkforprivatepublicpartnershipsinordertorealizeitsvisionof

PrivateSectorLedSustainableDevelopmentinBurmaandbeyond.Allofitsdevelopmentprogramsfocuson nurturing HealthierEnvironment bya Stronger Society with

ResponsibleBusinessInvestmentthroughStrategicPartnershipDevelopment.Aspart

ofitsaempttopromoteenvironmentalgovernanceinMyanmar,ECODEVhasundertaken

numberofiniaveswhichincludethedevelopmentoftheprocessoftheEnvironmental

PerformanceAssessmentareportcommissionedbyUNEPtheADB,publishedin2006(see

secon3.1),the empowerment ofgrassrootscommunies tosecure land tenure and

resource-userightsofcommuniesthroughcommunityforestry,andevidencebased

researchforeecveadvocacy.ECODEVtakeskeyposionsincivilsocietynetworksincluding

theFoodSecurityWorkingGroup,MangroveEnvironmentandRehabilitaonNetworkand

KachinStateConservaonGroup.Atpresent,ECODEVisalsoservingasteamleaderfortheINCproject(seesecon3.6.3),andtheexecuvedirectoristhenaonalconsultantforthe

NBSAP(seesecon3.6.1).

TheMettaDevelopmentFoundation(Metta)isanNGOestablishedin1998to

assistcommunitiesrecoveringfromthedevastatingconsequencesofconflictand

humanitarianemergency.Meaworksin10statesandregionsonawiderangeofprojects

aimedtoenhancelandtenureandfoodsecurity,facilitatefarmer-to-farmer eldschools,

encouragetheestablishmentofcommunityforests,andothersustainablecommunity-based

projects.Meabasesitsworkonacommunityempowermentmodelbyworkingclosely

withcommuniesoveralongterm,gainingthemrespectfromtheircolleagues.

ShalomFoundaon(Nyein)wasestablishedin2000iniatedbyKachinreligiousleaderand

involvedbyreligiousandcivilsocietyleadersfromvariousethnicstatesandthewider

Burmesecommunity.ItaimstoworkonpeaceanddevelopmentiniavesinKachinState

aerthecease-reprocess,whichhasnowevolvedintofacilitanglivelihooddevelopment

projectssuchascommunityforestry,community-basedresearch,peace-buildingtrainings,

andconstrucvedialogueamongstdierentpares.ShalomworkscloselywithKachin

communies,andthewidercommunityonissuespertainingtopeace,conict,and

sustainabledevelopment.

BesidesBurmeseconservaonandlivelihooddevelopmentNGOs,therearealsomany

internaonalNGOsworkingonsimilarissues,withheadocesinRangoonandinsome

casesbranchocesinprovincialcapitalsinstates/divisionswheretheyoperateprojects.

Mostoftheseorganizaonsworkfromarights-basedapproach.Someofthemoreacve

organizaonsincludeWorldConcern,GRET,DeutscheWelthungerHilfe(DWHH,formerly

GermanAgroAconorGAA),AdvenstDevelopmentandReliefAgency(ADRA),SwissAid,

SavetheChildren,Oxfam(GB),CARE,MercyCorps,DanishChurchAid(DCA),Consorum

ofDutchNGOs(CDN),Aconcontralafaim(ACF)andAconAid.Whiletheyoperate

dierentlyandinvesttheirresourcesindierentprojectsacrossthecountry(although

mostlyinethnicareasandtheIrrawaddydeltaaerCycloneNargis),theyallseemtoshare

acommongoal:improvinglocallivelihoods.


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3.7.2 UN Interventions on Environmental Protection

UNDPhasbeenworkinginBurmasince1994.Theycurrentlyworkin60townshipsacross

thecountry.UNDPsiniavestargetthemostvulnerablecommuniesandworktoimproveopportunies forsustainablelivelihoods71inareasoffoodsecurity,primary

healthcare,environment,HIV/AIDS,andtrainingandeducaon. 72

AlthoughUNEPdoesnothaveanoceinRangoon,theydocollaborateonvariousUN-

Burmaprojectsthatfallwithinitsmandate.Theyarealsobecomingmoreacveinthe

country and are looking toemploy a part-me stabased at the UNHABITAT oce in

Rangoonin2011.73Asmenoned,itsacviesinthepastincludeinvolvementinthe

EnvironmentalPerformanceAssessment,NaonalBiodiversityStrategyAconPlan(NBSAP),

providing fundingfor anenvironmental lawexpert todraft theEnvironmental Law,

parcipanginformulangtheNaonalSustainableDevelopmentStrategyandtheInleLakeIniave(withFREDA).Inaddion,UNEPisworkingwiththeWorldHealthOrganizaon

(WHO)onanOzoneDepleonProjectinRangoonwhichassessesthelevelofcontaminants

intheairtoidenfysourcesandtakemeasurestopreventairpolluonsuchasencouraging

thedecreaseintheamountofleadedpetrolusedincars.7475

BurmasgovernmenthasalsoexpressedinterestintheUnitedNaonsCollaborave

ProgrammeonReducingEmissionsfromDeforestaonandForestDegradaoninDeveloping

Countries(UNREDD)program,menonedabove.xvii76

3.7.3 Ethnic Environmental Organizations based in Thailand

EnvironmentalgroupsbasedontheThailand-Burmaborderworkinalltheethnicstates.

Amajorfocusistoincreasetherecognionofrightsoflocalandindigenouspeoplestouse

andmanagetheirnaturalresourcesforsustainabledevelopment,topromoteenvironmental

proteconandhumanrightsthroughadvocacyaboutlarge-scaledevelopmentandnatural

resourceextraconprojects,andcorporateandgovernmentaccountability.Thesegroups

workprimarilyinareasundercontrolofethnicarmiesandinceasereareas.Notallgroups

workoneveryaspect,asummaryofacviesisexplainedbelow.Shortbriefsaboutindividual

BEWGmembersareincludedatthebeginningofthereport.

ThisseconincludestheworkofArakanOilWatch(AOW),ArakanRiversNetwork(ARN),

BridgingRuralIntegratedDevelopmentandGrassrootsEmpowerment(BRIDGE),Burma

Rivers Network (BRN), Ethnic Community Development Forum (ECDF),EarthRights

Internaonal (ERI), KachinDevelopmentNetworking Group(KDNG),KarenniEvergreen,

KarenEnvironmentCommiee(KEC),KarenEnvironmentalandSocialAconNetwork

(KESAN),LahuNaonalDevelopmentOrganizaon(LNDO),NetworkforEnvironmentaland

EconomicDevelopment(NEED),PaOhYouthOrganizaon(PYO),ShanSapawaEnvironmental

Organizaon andthe Shwe Gas Movement.Thosewhichare members ofBEWGhave

organizationaldescriptionsatthebeginningofthereportunderAbouttheBurma

EnvironmentalWorkingGroup.

xvii Seefootnotexv.


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Community Development

EmpowermentofcommuniesinsideBurmatoconservenaturalresourcesandimprove

livelihoodsecurityandsustainabilityforcurrentandfuturegeneraonsisthecentralfocus

inanumberofborder-basedgroupsacvies.Arightsbasedapproachisusedtoempowercommuniesandlocalleadersonenvironmentconservaonandsocialdevelopment.

Projectsincludetheestablishmentandproteconofcommunityforests,supportforlocally-

producedtradionalmedicines,community-basedfoodandwatersecurityiniavesthat

supportlocalfoodproduconandclimatechangeadaptaonmechanisms,formaland

informalenvironmentaleducaon,andHIV-AIDSeducaonandsurveys.Youthdevelopment

isseenasespeciallyimportantbymanygroupsandispursuedthroughinternshipand

educaonopportuniesin within these organizaons,youth forumsexploringsubjects

suchastheresourcecurse,andnetwork-buildingacrossethnicies,issuesandregions.

Groupsareincreasinglydesigningcommunitydevelopmentiniavesthataddressgender

inequalityandamplifywomensvoicesandroles.

Figure 1 Community forest awareness training, Khoe Kay, Salween River, Karen state.

Karen youth learning indigenous knowledge on community forest conservaon. KESAN

2009.


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Environmental Education

Environmental groups based on theThailand-Burma border provideeducation and

communityawarenessandcapacityonarangeofenvironmentalissues.Educaonthemes

includebiodiversity,landtenure,environmentalconservaon,climatechange,tradionalagriculture andmedicines, alternaveenergies, organicfarming, environmental impact

assessment,goodenvironmentalgovernance,resourcedocumentaon,informedconsent,

revenuetransparencyandsustainabledevelopment.Educaonmethodsincludetraining

throughyouthforums,workshops,internshipsandestablishedenvironmentalschoolsboth

withinandoutsideBurmasborders.Moreinformalinformaondisseminaonoccurs

throughtradionalcommunitynetworking,travelingstorytellersandvideo,audioand

printedmediaproducedinlocallanguages.Somegroupsacvelyfosterlocalethniclanguages

whichhavebeenbannedintheBurmeseeducaonalsystem,asacentralmeanstoachieving

environmentaleducaon.

Policy Development

Policydevelopmentisnotjustataskforthecurrentgovernmentorthegovernmentofa

futuredemocracBurma,butforregionalandinternaonalframeworks,internaonal

nancialinstuonsandgovernments,andbusinessesandcorporaonsoperanginside

Burma.Groups work with local andregionalcivil societyorganizaonsto arculate

environmentalandsocialandeconomicdevelopmentconcernsandformulateenvironmental

policiesforpolicymakersinexile,thecurrentgovernment,companies,andnon-stateactors.

Border-basedenvironmentalgroupswidelyrecognizetheneedtostrengthencommunity

iniavesthroughdevelopmentofpolicyandidencaonofdevelopmentpriorieswithlocalstakeholdersinethnicareas.

Advocacy

ThereisnofreedomofspeechinBurma,makingitdicultfororganizaonsbasedinside

Burmato publicly expose negave environmental andsocial impactsof largescale-

developmentacviessuchastheconstruconoflarge-scaledams,mining,resource

concessions,andoilandgasextracon.Border-basedenvironmentalgroupstherefore

conductresearchanddoadvocacyontheseissuesbecausetheyareabletoworkinasafer

environment.Inaddiontolarge-scaleinfrastructuredevelopmentprojects,theyadvocate

aboutcommunitydevelopment,environmentaleducaonandpolicydevelopmentiniavesinlocal,regional,naonalandinternaonalarenas,buildingalliancesandworkingwith

othercivilsocietyorganizaons.Theypublicizetheirresearchandadvocacythroughmany

reportsdocumenngsuchabuses.Groupsnetworkwithnaonal,regionalandinternaonal

organizaonsonissuesrangingfromrevenuetransparencytoindigenouspeoplesrights,

riversandbiodiversity,mega-developmentprojects,andInternaonalFinancialInstuons.


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4. LAW AND POLICY ON FORESTRY AND AGRICULTURAL

LAND

4.1 Forestry Laws and Policies

4.1.1 Ministry of Forestry

TheMinistryofForestry(MoF)isresponsibleforforestlandmanagement,environmental

protecon,mberextraconandforestpolicyinBurmafollowingtheForestPolicy1995.

Thetopposions,includingtheministerandnowoenmedirectorgenerals(DGs),are

staedbymilitaryocialswithnotechnicaltrainingorknowledge,whilethedepartments

undertheministryaremadeupoftrainedforestersandotherprofessionals.Fivedepartments

comeunderthecontroloftheMoF:theForestDepartment(FD)withitsNatureandWildlife

ConservaonDivision; theMyanmarTimberEnterprise(MTE), theloggingandincome-earningarm;theDryZoneGreeningDepartment(DZGD)forreforestaonincentralBurma;

thePlanningandStascsDepartment;andtheNaonalCommissionforEnvironmental

Aairs(NCEA).In2007-08scalyeartheforestrysectorearnedthegovernment83.5billon

Kyat,butwhichonlyrepresentsapercentofthecountrystotalGDP,accordingtonaonal

stascs.77Thegovernment-controlledexportofteaklogsreacheditsmaximumvolume

andvaluein2006-07atnearly300,000tonsworthjustover$200millionUSD.Thetotalvalue

ofgovernment-exportedteaklogsfrom2003-04to2007-08reachedover$1billionUSD.

WithintheMoFthereexiststensionbetweenthedivergingagendasoftechnicalexperse

andcommunity-managedforests,aswellasbetweentheseparategoalsofconservaon

andmberextracon.Forestconservaonandcommercialmberextraconaremanaged

bydierentdepartments(FDandMTE,respecvely,)whichcarriesobviousproblemsand

conicts.

TheprivatesectorisnowallowedtoworkincooperaonwiththeMyanmarTimber

Enterprise(MTE)undertheMoFforexporngvalue-added,semi-processedwoodproducts

only.ButtheprivatesectorhasbeencooperangwithMTEforloggingandarranging

businessdealswithforeignbuyers,eventhoughitisthenexportedviaMTE.Andsince2005

thegovernmentallowsBurmeseprivateinvestorstoestablishtreeplantaons,including

teakbutonlywithspecialpermissionsinceitissllastate-ownedtree.Itappearsthat

privatetreeplantaonsarebecomingamorepopularformofinvestmentbyBurmeseforesters,althoughasofyetisnotapopulartrendcomparedtoagribusiness.

MyanmarTimberEnterprise(MTE)generatestheincomenecessaryfortheMoFtofuncon,

butasaresultcarriesmorepolicalinuenceandresourcescomparedtoForestDepartment

aswellasappliesloggingpressureontheveryforestresourcestherestoftheministry

protects.MTEiswellknowntonotfollowthemeasuressetoutintheBurmaSelecon

System(BSS)andAnnualAllowableCut(AAC). 78MTE,duetoseverelyliminghuman,

nancecapital,andtechnicalresource,oensubcontractoutconcessionstotheprivate

sectorto carryoutloggingoperaons.Howeverthesubcontractors(e.g.,HtooTrading,

amongmanyothers)thenmustselltheirsetvolumeofmbertotheMTEatagivenprice,evenifitisforexporttoprivateforeigncompanies.However,thestatehasamonopolyon


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teaktrees.Ineect,then,MTEcontrolstheloggingandmbertrade,butitisinfactcarried

outbytheBurmeseprivatesector,wherebothenesprot.

AnnualAllowableCutswerebasedonparalsurveysdoneintheearly1960s,whichwere

thenextrapolatedtothewholecountry,despitemuchofthecountrythenmiredincivilwar.ThisisamajorawoftheestablishedAACguresevenifpreciselyfollowed.79Based

ontheforeignexchangeearningsexpectaon,atargetvolumeiscalculatedwhichisthen

translateddownwardsintologgingquotasforeachloggingdistrict.Thesehavelilebearing

oncapacityoftheforest,thecalculatedAAC,andthereforethesustainabilityofforestry

operaons.TheAACoccasionallychangesbytheregimetomaintainannualrevenuebut

notactuallyameasureofchangingmberstock.AccordingtotheFDsPlanningandStascs

Division,the2010AACforteakissetat147,300trees(176,760tons)andforotherhardwoods

1,131,461trees(1.584milliontons).xviiiOverall,since1970teakproduconhasexceeded

theAACbyatleastanaverageof15percent,accordingtoevenocialgures,80whichis

assumedtoactuallybemuchhigher.

4.1.2 Forest Law and Policy

The1992 Forest Lawsupports conservaon,sustainable forestry andsocio-economic

benetswhilealsoparallydecentralizingandencouragingtheprivatesectorandcommunity

parcipaoninforestmanagement.The1995MyanmarForestPolicyandtheupdated

1996ForestWorkingPlansareresponsibleforimplemenngthe1992ForestLaw.Specically,

thelawandpolicyadvocateforaparcipatoryapproachtoforestmanagement,including

communityforestryforsupplemennglivelihoods.The30-yearNaonalForestryAcon

Planfor2001onlyseekstostrengthenconservaongoalsandenforcementoflawsagainstillegalextraconofforestproducts,withoutanymenonoftheneedtoincludevillagers

asstakeholdersinthenaonsforests.Nospeciclegallandrightsareavailabletolocal

peoplesclaimtouseoraccessforestresources,severelyimpingingoncommuniesfood

andforestlandtenuresecurity.

ForestReserve andProtectedPublic Foresttogetherform thePermanentForest Estate

(PFE),whichaccordingtotheForestPolicy1995itisbeingtargetedfor30percentofthe

countrystotallandwhichisthusolimitsforlocallivelihoods.Inaddiontheprotected

areasystem(PAS)issloedtocover10percentofthecountrystotalterritory.However,

asof2003,onlyabout22percentoftotallandareahasbeengivenfulllegalprotecon

undertheForestReserveSystem,whichisonlyabouthalfoftheexisngforestareaaccording

togovernmentdata.

InaddiontoPFE,averycrucialaddionthathasthepotenaltogreatlyenhancelocal

forestresourcesecurityisanaddional10percentofthecountrystotallandistobe

managedformulplelandusemixing,includingagroforestryandcommunityforests.

4.1.3 Community Forestry

Followingthe1992ForestLawand1995ForestPolicy,thegovernmentlegallyrecognizes

peoplesco-managementinforestrywiththecreaonofthe1995CommunityForestry

xviii TheFDcalculatesthevolumeasonaverage1.2tonsperteaktree,and1.4tonsperhardwoodtree.


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thecentralgovernmentarefullledontheground.AlsoofsignicanceistheBurmaPerennial

CropsEnterprise(MPCE),whichisresponsibleforsugarcaneandperennialcrops,suchas

rubberandpalmoil.

TheGeneralAssembly(GA),undertheMinistryofHomeAairs,isthehighestlevelofauthorityin the districtthatcollects land revenue asassessedby theSLRD. TheLand

Management Commiee(LMC)isacrucialagencyforgovernmentlandmanagementin

Burma,fromthevillageuptothecentrallevel.TheCentralLMCisheadedbytheMinister

oftheMoAI,withothermembersincludingMoF,theSecretaryoftheSLRD,andDGsfrom

relevantdepartmentswithintheseministries.However,itappearsthatmilitaryocials

havesucientlypenetratedtheLMCwhichhaslenttowardscorruponandservingthe

interestsofinuenalpeople.

DuringthepastdecadetheMoAIhasgainedinprominenceastheministrywithjurisdicon

overhugelandareasofthecountry,andindeedthewaterthatirrigatesit.ThemarketliberalizaonpoliciesBurmabeganin1988seemstobebenengMoAImuchmorethan

MoFasnowprivateagriculturalconcessionscanbegrantedtowell-placedagribusinessmen.

4.2.2 Customary Land Rights

Bothstatutory(naonalstatelaws)andcustomarylaws(local,tradional,non-statesocial

systems)arefollowedinBurma,somemessimultaneouslyinthesameplace.Overall,it

canbegeneralizedthatintheuplandsofethnicareascustomarylandpraccesprevail,and

thelowlandsfollowstatutorylaws.However,thereareofcoursemanyexcepons;forone

theethnicuplandshavebeenterrorizedbywarandconictforgeneraons,whichhasledtoeeing,internallydisplacedpersons,militarizaonandcompromisedtradionalpracces

allofwhichhaveweakenedtradionalsocialsystemsandtheirlandmanagementpracces.

Thesituaonnowisthatcustomarylandpraccesappeartobeonthewane.Inceasere

areasthestateisextendingtheircontroloverlandandpopulaons,withtheiraendant

landcategories(e.g.,forestandagricultureratherthanagro-forestrysystems).Andinacve

warzoneslocalethnicpopulaonsarekeptfrompraccingtheirtradionalswidden

culvaonduetotheconstantthreatofwarfareandfear.

Uplandethnicpopulaonsnowndthemselvesstuckinthecrossreoftheroughtransion

toan openingmarketcapitalismwherelandistransferred from smallholderfarmersto

largeprivatecompanies,bothBurmeseandforeign.Aspreviouslycustomarylawswere

honoredandthestatehadnotreachedtheuplandsinmostethnicstates,mosthouseholds

intheruraluplandsdonothaveanylandregistraontles.DuringtheBrishcolonialmes

afewformalizedcustomaryruleswereenactedandinsomesmallwaysrecognizedfor

certainareasoftheuplandsofnorthernandwesternBurma.Forexample,the Kachin Hills

Manual(specicallyChapters3and7)respectedcustomaryauthorityofKachinheadmen,

andfortheChinspeciclawswerecreatedtoaddresstheircustoms,calledtheChin Hills

Regulaon 1896,andtheChin Special Division (Extension of Laws) Act,1948.

TheSPDCdoesnotlegallyhonorcustomaryrightsandlaws,withinadequateprovisionsin

thenewconstuontoupholdcustomarytradions.Inpracce,however,thereisamessyinformaloverlapbetweencustomaryandstatutorylawsandpracces,whereSLRDocers


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recordcustomaryagriculturallandplotsfortheirsurveysandmaps,butatthesameme

isnothonoredwhendesiredbyaninuenaldeveloperbackedbythestate.Itisthisgrey

areawithrespecttothecustomary-statutoryspectrumthatcauseslandtenureinsecurity

formillionsoffarmersinBurma,especiallyintheethnicuplands.

Land tenure remains very weak inBurma, especiallyin theuplands where customary

praccesareslloenfollowedinsteadofstatutorylaw. 84Afundamentalproblemisthat

nolawformallyrecognizestradionaluplandlanduse.Thismeansthatifafarmerwants

topraccecustomaryshiingculvaon,thenthatpraccewillnotbeformallyrecognized

bythe government,and thus there isno way tolegallyprotectthistradional land

managementpracce.TheCommunityForestryInstrucons,whileagoodopportunity,are

oennotimplementedasatradionallandmanagementstrategyandthuschangethe

waylocalpeopleuse,accessandmanageland.TheyarejointlymanagedwiththeForestry

Departmentandoenpromotegrowingmberratherthanfood.

4.2.3 Statutory Land Laws

TheLand Acquision Act, whichissllineecttoday,legallygivesthegovernmenttheright

totake over any land,butwithcompensaon toitsoriginal owners. The1953Land

Naonalizaon Actandthe1963Tenancy Lawgavelegalpowertothestatetoseizeallland

(andthereforealllandownedbythestate,asissllthecasetoday)andredistributeaccording

tosocialistprinciples.LegalpracceinBurmatodaygenerallyrevertstothe 1953Land

Naonalizaon Act,whichrecognizessomeprivateownershipofagriculturalland(secon

38),althoughitrestrictssaleortransfer(secons9-12).However,insecons9-12,thesame

ActprovidesfortheStatetoconscatefallowland(alsoatypeofabsenteeownership),amajorproblemforsmallholderfarmersandcompaniesalike.Thelawdoesnotpermit

outrightprivateownershipofland,andsoalllandmustbeleasedfromthestate,asissll

thesituaon.Inpracce,however,thelandiseitherallocatedbythecustomaryownerto

arelaveortoapayingfarmer.Thesepost-coloniallawsrelyuponcolonialtradionswhere

rightstolandremainconngentonthelandbeingconnuouslyusedinaproducveway

orelsethestatehastherighttoconscateit(unlessafallowtaxispaidbymorewealthy

farmers)andputittomoreecientuseasituaonweseetodaywithlarge-scale

concessionsgrantedtotheprivatesector.Thisisinspiteofthesllacve 1963 Law

Safeguarding Peasant Rightswhichforbidsfarmerslandbeingconscated,harkingback

tothesocialisterawhichadvocatedforpeasantrightstoland.

In1988aertheinfamousprotestsandthebreakdownofthesocialisteconomy,theSLORC

(thenameofthegovernmentatthatme)begantoopenuptheeconomyinsuchaway

wecouldcallitamilitarycommandeconomywheretheemergingprivatesectorcould

begintooperatebutonlyfavoredcompaniesingoodrelaonwiththemilitaryleaders,and

undertheircarefulconscripon.Followingthisnewtrend,SLORCenactedthePrescribing

Dues and Rights of the Central Commiee for the Management of Culvable Land, Fallow

Land and Waste Land,1991(orManagement of Culvable Land, Fallow Land and Waste

Land, ormoresimplytheWastelands Law).Thislawsoughttoencouragethedevelopment

ofso-calledwastelands,orbasicallylandwithnolandtle,throughenlisngtheprivate

sector.xixTooverseetheimplementaonofthislawthe governmentformedtheCentral

xix Registeringtoculvatevirginlandisthesameprocessasforwasteland.Butvirginlandiscontrolled


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Commiee for the Management of Culvable Land, Fallow Land and Waste Landthesame

year(hereincalledtheLandManagementCommiee,orLMC).Theduesofthiscentral

commieeistosystemacallyscrunizeallapplicaonssubmiedtogranttherightto

culvatewastelandandfallowlandbystate-ownedeconomicenterprises,jointventures,

andcorporaonsandprivateindividualsforcommercialreasons.

TheLMCmayassignprivateagriculturalblocksofupto5,000acresforselectedperennial

industrialcropssuchassugarcane,oilpalmandrubber,and1,000toamaximumof3,000

acresfororchardcrops.Ifthislandisdeveloped,morelandcanbegranted,uptoapossible

50,000acreswithamaximumleaseperiodof30years.Thecompanymust,within4to5

yearsfromthedateofbeinggrantedtheland,fullyculvatethewholeareaoftheirland

concession,orelseitcanbetakenbackbythegovernment(al

burma's environment: people, problems, policies-report engl

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