Thursday 17 October 2019

A Need, A Must for International Intervention in the Rohingya Crisis


This is a 4k word essay written by me in 2018 in the module PS3236: Ethnicity and Religion in Asian Politics.  This essay argues for the irreconcilable nature of ethnopolitical and religious conflict in the Rohingya crisis at the national-state level that calls for a necessary intervention by international institutions, such as the United Nations. Grade: A- 

A Need, A Must

“A bystander to genocide” was a title awarded to the United States, and by extension, the United Nations, by Samantha Powers for their response, or lack thereof, concerning the Rwandan genocide.[1] The infamous failure of the United Nations (UN) to interfere with the ongoing onslaught of an entire Tutsi ethnic minority by the Hutu ethnic majority had left a permanent scar in the UN’s peacekeeping track record and reinforced doubts of the international organization’s role in managing ethnic conflict.

On a smaller scale, a similar situation not too far from the atrocities of 1994 is increasingly sounding alarm bells within the international community. The Rohingya crisis involving the disenfranchisement and systematic oppression of the Rohingya ethnic minority group by the Burmese state has been branded by the United Nations Human Rights Chief, as a “textbook example of ethnic cleansing”. [2]

This clash of ethnic groups, generating heavy public discourse with terms like ethnic cleansing, human rights violations, citizenship rights, nationality and even separatist suspicions are referred by Ted Gurr as ethnopolitical conflicts. He characterizes two kinds of distinct ethnopolitical groups – one of national peoples and the other of minority peoples. While national peoples often seek exit that leads to separatist conflict and state repression, minority people desire access, through more passive political means such as campaigns. [3] The Rohinya falls within the spectrum of these two groups and find themselves the protagonist of a complicated ethnopolitical conflict with great national, regional and international implications.        

This paper will argue that the United Nations has a significant role to play in intervening ethnopolitical tensions in the Rohingya crisis, and will attempt to justify why their involvement is necessary due to (1) the enduring ethnic identity claims of the Rohingya amidst rejection and oppression and (2) Myanmar’s weak democratic political infrastructure exacerbating ethnic conflicts.

Gurr’s framework of managing ethnopolitical conflict will be used to understand the nature of ethnic conflict between the Burman Nationalists and Rohingya, and why the United Nations should intervene.

It is important to note that although this paper attempts to rationalize United Nations’ intervention in the Rohingya crisis, the focus will not be an evaluation of UN’s structural qualities or principles. Rather, it examines the way ethnopolitical group identity and conflict is perceived and mobilized in existing infrastructures and subsequently why the United Nations, as a capable third-party actor, can and must interfere.

The paper also acknowledges that the justification for intervention does not sufficiently take into account the practical methods of which it is able to interfere. Instead, it assumes the United Nations in its ideal state, as its Charter presents itself to be, again reminding readers that the heart of this argument lies in fleshing out the nature of ethnopolitical identity and conflict.

The Enduring Rohingya Identity

Despite being cursed with a political predicament of statelessness, the Rohingya identity has been increasingly salient and mobilized by its circumstances, warranting the aid and the attention of the allegedly apolitical and the morally acclaimed United Nations organization respectively.

The Political Plight: Stateless and Unwanted

The bone of contention lies in the incompatibility of identity claims made by the Rohingya and the Burmese state political authority. The Rohingya claim Burmese citizenship as “their natural right”, entitled to all citizenship rights that includes state protection.[4] However, the new Citizenship Law passed in 1982 did not recognize the Rohingya as a national ethnic group.[5] This denial of citizenship effectively rendered the Rohingya people stateless. The state insisted that they are “Bengali Muslims”, “illegal immigrants”, not ever belonging in Myanmar’s history despite their inhabitance in Myanmar for many generations.. [6] This is a position still firmly maintained by the Myanmar government today.[7] The official stance on their stateless status accelerated Burmans’ intolerance towards the Rohingya, that eventually became the justification for rebellion by certain Rohingyas – and for ethnic cleansing by the military juntas.

The armed attack by the insurgent Rohingya organization, the Arakan Rohingya Salvation Army (ARSA) in August 25 2017 triggered a large-scale military offense toward the Rohingya people – innocent civilians included – that resulted in a mass exodus of Rohingya who were seeking for refuge beyond the Myanmar border. The diaspora of the Rohingya has been largely concentrated in Bangladesh, with an estimate of 328,000 Rohingya as documented and undocumented refugees. This outcome is not only due to the military operation in 2017, but through episodes of influxes of Rohingya fleeing into Bangladesh ever since 1978, when anti-Rohingya military campaigns were held to condemn the them as illegal immigrants.

Yet, despite the Burman state claiming their Bengali origin, this is inconsistent to Bangladesh’s stand. Bangladesh claimed to have not officially known of this ethnic group until 1978 when they had first crossed the border, therefore rightfully labelled as “refugees” and should be repatriated.[8] Although the somewhat successful negotiations between the two governments on repatriation saw through the return of 226,576 Rohingyas, Bangladesh still experienced flashes of influx of Rohingya entering its borders, with some Rohingya returning to Bangladesh after being repatriated. [9]

Unwanted in their home country and unwelcomed in their host country, the Rohingya find themselves trapped in statelessness and without a place to belong.

In an interview with Myanmar’s ambassador to Bangladesh, Mr Phae Thann Oo admitted that “The Rohingyas are an unfortunate issue between the two countries.” [10] With neither wanting to include the Rohingya in their national identity, nor are they equally likely to compromise their boundaries to meet the alternative solution of an autonomous Rohingya zone, external pressure beyond the state level is needed before any form of concession can take place.

In this case, the most compelling form of foreign intervention is the United Nations international organization. Thakur stated that the United Nation commands an authority from states because it is a product of an “international political process of the assertion and reconciliation of national interests”.[11]

Moreover, ethnic conflicts that “spillover” to other inter-state relations concern international peace and security that is enshrined in the UN Charter as part of the organization’s responsibility to manage.[12]

Sentiments that Run Deep
The Burman’s antagonism towards the Rohingya is not merely reactionary to past arbitrary conflicts. Instead, it was particularly the ethnic and religious quality of the Muslim community in the northern Rakhine State, of which existed alongside the majority of Buddhist Burmans, that was the basis of which the Rohingya identity was formed, politicized and ultimately rejected. Yet it is ironic that Myanmar’s increasingly explicit efforts to extinguish the Rohingya identity has led to a greater salience of identity both inwardly within the Rohingya ethnic group and outwardly in the international community.

The following section attempts to explain for the enduring Rohingya identity vis-à-vis the Burman Buddhist ethno-nationalist identity that serve to reinforce the ethnopolitical struggle. It will first discuss the underlying perceptions of the Burmese towards the Rohingya identity and argues that despite the Burmese pretense of a fear of a disloyal ethnic identity, its historical incongruence and disproportionate marginalization towards the Rohingya reveals a deeper force of islamophobia at work. It will then analyze the Rohingya identity as a mobilizing and collective force that endures even amidst its oppressive conditions. Lastly, in understanding how the unreasonable extent of discrimination by the Burmese and fervent refusal to concede by the Rohingya mutually reinforce ethnic conflict, it is a recipe for severe and prolonged destruction that justifies the response of the United Nations as an avowedly moral organization.

a.     The Rohingya Identity: Issues of Loyalty or Just Islamophobia

The Myanmar government’s official position does not acknowledge the term “Rohingya”. In the words of Mr. Phae Thann Oo, “The so-called ‘Rohingyas’ for you… [but] not for us. For us, they are Bengali Muslims”. [13]

In an effort to nationalize and unify into a modern state, one can rationalize that this reluctance to recognize and grant these ethnic minority groups more autonomy stems from the reasonable fear that concession to the increasing demand for self-government would encourage more ambitious and demanding behavior by the ethnic minorities, possibly leading to complete independence. This would create a greater security risk for the state. [14]

This suspicion of disloyalty towards ethnic minority groups has colonial roots in Burma’s pre-independent days. Well before independence in 1948, Burma has been at odds with its diverse minorities concerning the consolidation of political power. In a move to achieve Burma’s independence, anti-colonial Burman nationalists briefly aided Japan’s conquest during the World War 2 while ethnic minority groups remained loyal to its British colonial masters, creating tensions.[15] Moreover, Burman nationalists have additional reason to be weary as some North Arakan Muslims leaders requested to join Pakistan (but were rejected) and others making ethnic claims to the British and Burmese authorities in 1948 to request for more political autonomy.[16]

However, this does not explain for the exceptional discrimination directed specifically towards the Rohingya ethnic minority group. This situation is not so different from the Karen ethnic minority group who supported the British[17] and rebelled against the lack of self-determinism provided in the constitution during 1947.[18] And yet, the Karen people is legally recognized as an ethnic group while the Rohingyas are not.

The difference lies beyond the purported reasons of ethnic disloyalty or secessionist tendencies, but that of race and religion. This racial and religious quality characterizes the Rohingya identity into one that, amidst the backdrop of a differing state religion, is underserving of national inclusion.

Andrew Selth viewed that religious tension was always present in the Burmese political landscape. The rise of Buddhist nationalism led to the making of Buddhism as the state religion in 1960 and the 1962 military coup and regime that abrogated the 1947 constitution – and with it the full rights for Muslims. Chris Lewa agrees, explaining that the ramifications of a prevailing Buddhist nationalism is a strong anti-Muslim sentiment, “frightened … of losing traditional superiority” [19]

These physical and religious traits of the Rohingya people become overtly problematized through discriminatory policies and national rhetoric. This ironic oppression of identity, as explained by Ted Gurr, becomes a “strong source of group cohesion”.[20]

This paper has discussed in great detail of how the Rohingya identity is perceived and acted upon by external actors such as the Burmese government, Burmese nationalists and the Bangladesh government. However, the next section aims to give voice to the agentic Rohingya community (contrary to contemporary media framing them as abjectly helpless) in order to understand why the Rohingya identity is still surviving despite the odds stacked against them.

b.     The Rohingya Identity: Mobilized

In rationalizing why ethnic minority groups rebel, Ted Gurr describes the salience of identity and incentives for political action such as ethnopolitical frames and repression, as key factors in contributing to the Rohingya’s psyche of resistance.

Firstly, several traits such as physical attributes (or ‘race’), religion and language, have been linked to durable collective identities have explicitly been the justification for many for the distinct and unwelcomed Rohingya identity today. These particularly salient characteristics have also been heavily emphasized even from the early days. Jacques Leider mentioned that “the criteria that prevailed in the first reports [of the Rohingya] were religious identity (“Muslim”) and linguistic group (“Bengali”).”[21] However, this perspective suffers from being too primordial as these simplified characteristics are assumed as inherent and sufficient in drawing immutable boundaries for the Rohingya collective. A case against this logic is the reality of the Rohingya in Bangladesh. Although the Rohingya share identical culture and religion with the Bengali,[22] they are still outcasted.

A greater force is at play distinguishing the Rohingya ethnic identity from its neighbors. Gurr points to another factor, the shared incentives for political action, that inspire and motivate greater political mobilization of the Rohingya as a collective entity.  The associations to the Rohingya identity – one of a people denied of citizenship – has not always been the driving force of Rohingya political action. In the 1950s, the Rohingyas fought not for acknowledgement as citizens, as the 1947 constitution had offered them this access. But rather, they had wanted to be recognized as a national race to claim their own political autonomy.[23] Despite rejection by authorities, these ethnopolitical desires are further intensified within the Rohingya political imagination through frameworks that empower and mobilize.

Perhaps a surprise to many is that the term Rohingya is very recent. This name entered public discourse after its unsuccessful political appeal in the 1950s for state recognition. Gurr explained that in times of injustice or grievances, these “frames” serve as cognitive understandings to process these feelings and become the centre for social activity. Likewise, analyzing the context of which it emerged, the same could be understood of the Rohingya identity as a frame for Muslims in the Rakhine State. While earlier documented accounts mentioned the “Rooinga”, a piece of evidence often used to proof the indigenous Muslim ethnic community’s existence,[24] the term “Rohingya” (of which was a derivative or “Rooinga”) was a more encompassing muslim identity and identification process. Leider described the Rohingya as embodying “an ongoing process of identity formation” that effectively unified Muslim communities in the North Arakan region who shared similar cultural profile despite having diverse historical backgrounds. Some were members of the old Muslim community known as the “Arakan Mahomedans” and the larger and more recent Muslim community were referred to as the “Chittagons” who settled n then-Burma due to colonization forces and the opening of the Suez Canal. [25]  (#25,6) The name Rohingya was used as a tool to assert a distinct ethnoreligious identity. Key mobilizing actors like the Muslim leaders and the students in North Arakan began leveraging on this term. This rebranded concept gave Muslim nationalists a self-identifying term and a semblance of unity that they did not have in the 1950s.  

Inwardly, a unifying identity has been internalized. Outwardly, the Rohingya increased their efforts in English language media, and less in the Burmese language, to publicly champion their Muslim nationalist movement. In merging their ethnic and historical claims with their political goals, they mirror the causes of other rebelling ethnic minority groups who were similarly seeking for recognition and an autonomous territory, using them as points of references for greater ethnopolitical action. [26]

Yet, arguably, the most compelling unifying force is the perceived unjust and repressive control towards the Rohingya by the state that incentivizes a greater ethnopolitical response. Generally, the use of force in the short run may generate fear or caution, but it may stir resentment and “enduring incentives to resist and retaliate” in the long term. True enough, sustained discriminatory policies and the outright persecution of the Rohingya have led to a greater hardening of identity and greater conviction for the movement – domestically and internationally.[27] Although previously indifferent to the way they were labelled, years of oppression combined with little legal recognition made many Muslims in the Rakhine state unhappy. Derek Mitchell, a U.S ambassador to Burma serving from 2012 to 2016, said that activists and leaders in the Rohingya community are very “protective” of that name (Rohingya), of their identity and dignity after countless human rights had been robbed from them in recent years.[28] Director of the Arakan Project, Chris Lewa, stated that Muslim minorities continue to “consolidate under one Rohingya identity”, despite reports of “systematic disenfranchisement, violence and instances of anti-Muslim campaigns”[29]

The above section has striven to analyze, at a deeper level, the underlying forces that drive perceptions of the Rohingya identity from both the Burman nationalists’ and the Rohingya’s point of view. It reaches the conclusion that therein exists a deep emotional sentiment, with the racist and Islamophobic reaction towards the Rohingya people and the intensified mobilization of the ethnoreligious identity despite prolonged suffering, that serves as the basis of which ethnopolitical action and conflict arises. However, the nature of the conflict is one that cannot be rationally resolved by either party who are both scarred with long-standing resentment from strong prejudices, bitterness and a lack of trust. Engaged in a self-generating cycle of greater oppression and greater resistance, the United Nations’ claim to be “acting in the interest of mankind” presupposes a fair and neutral position that legitimizes a rightful authority to intervene. Moreover, it would undoubtedly cause even greater human rights violations, as ethnic conflicts often do, which again means that the United Nations – founded upon principles of human rights protection – cannot remain completely indifferent to ethnic conflict.

Weak Political Infrastructure

Gurr characterizes state power as a “durable opportunity factor” in ethnopolitical conflicts. The state’s political infrastructures are an important factor that determines the capability of the ethnopolitical group to pursue their objectives and likewise the response of the state to these ethnopolitical requests.[30] The following section seeks to understand the political structure of the Myanmar state and how it escalated ethnic tensions to the point of state-sanctioned military attacks that are still taking place today, demanding international intervention.

Democracy is often glorified as the panacea, and even more so in multicultural and multiethnic societies because of its openness and accommodation towards diverse interests. Ideally, this system would represent and endorse equality for all groups – minorities included. Democracy, however, has had a complicated presence in Myanmar’s history. This quasi-democratic structure not only denies the Rohingya minority but exacerbates ethnopolitical tension, which all the more emphasizes the need for international intervention.

Although granted independence in 1948 as a democratic nation, it was quickly replaced by the military totalitarian regime not long after from a staged coup, ushering in the reign of the military junta for 23 years until 2011. It set up the State Law and Order Restoration Council (SLORC) that essentially acted as the veto power, handing its power over to selected elected parties to govern Myanmar.[31] Democracy was largely pushed into the shadows, hardly playing any significant role at the government level. This was so until the 2015 general elections where the National League for Democracy party overwhelmingly won, installing the country’s first non-military president in 54 years. Despite hopes of many for greater state support for ethnic minority groups, in particular the Rohingya, critics identify a reluctance by the now de-facto democratic leader Aung San Suu Kyi to advocate for the Rohingya cause. It is posited that her fear of alienating the majority Buddhist nationalist would threaten the power-sharing relations between the civilian government and the military. 

Gurr’s framework of ethnopolitical action concerning a weak democratic autocracy does not exactly hold in the case of the democratic Myanmar government – democratic, at least, in name. Although it is arguably a country with fairly new democratic powers in place, this form of democracy is still very much subservient to the coercion of the military.

In fact, democracy had been counter-effective to the Rohingya cause. The International Crisis Group outlined two levels of struggle taking place in Myanmar’s political history. The democracy movement at the centre that have been overwhelmingly championed by Buddhist Burmans and the ethnic nationalist movement at the periphery of the country, led by ethnic minority groups who were more so against discrimination than against authoritarianism.[32]

The democratic structure thus finds more favor in satiating the majority of Buddhist Burmans at the centre, who were actively shaping a Buddhist-based vision, and anti-Muslim, vision of the country. The International Crisis Group also reported that “country-wide anti-Muslim sentiment” along with the exploitation of the democratic system had made it “politically difficult for the government” to make policies that were “supportive of Muslim rights”.[33]

It does not render Gurr’s point of that the nature of autocratic democracy was a determinant of the extent of durable opportunities available for ethnopolitical action. In fact, it sheds new light to the complicated and almost barren opportunities present for the Rohingya in its domestic country, deserving of greater opportunities driven at the international level.

Moreover, the result of an obscure democratic state is an impunity deeply entrenched in its political and legal system. The Myanmar government has violently denied allegations of committing ethnic cleansing and human rights violations despite an influx of reports by the United Nations, media sources and the Rohingya themselves on the systematic and grotesque use of violence, rape and mass killing. Instead, blame is pushed to the multiple culprits and circumstances, such as the lack of trained soldiers and even the Rohingya who it claimed torched their own houses. These baseless claims earned warnings from the United Nations High Commissioner for Human Rights, Zeid Ra'ad Al Hussein to “stop pretending”.[34] The complete denial of this grossly disproportionate reality by the uncooperative Myanmar government combined with the disastrous democratic infrastructure thus demands an even higher authority, appropriately the United Nations. 

This paper has thus striven to unravel the nature of ethnopolitical conflicts. It justifies the United Nation’s role of intervention due to the firstly, an enduring Rohingya identity that has suffered politically as statelessness and unwanted but at the same time prevailed in prominence as an identity and a political process despite many obstacles. Real political stakes coupled with the deep emotional vein reveals a desperate need for third party intervention that is generally viewed as politically neutral and morally superior. Finally, it explores the democratic situation in Myanmar to evaluate the capacities and opportunities for the Rohingya and concludes that the severely un-democratic model plagued with political immunity necessitates a higher authority. Therefore, the United Nations needs to, and must intervene in the Rohingya crisis.
  
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[1] Samantha Powers, "Bystanders to Genocide." The Atlantic. March 31, 2017. https://www.theatlantic.com/magazine/archive/2001/09/bystanders-to-genocide/304571/.
[2] Stephanie Nebehay, "U.N. Brands Myanmar Violence a 'textbook' Example of Ethnic Cleansing." Reuters. September 11, 2017. Accessed April 03, 2019. https://www.reuters.com/article/us-myanmar-rohingya/u-n-brands-myanmar-violence-a-textbook-example-of-ethnic-cleansing-idUSKCN1BM0QF.
[3] Ted Gurr, “Minorities and Nationalists: Managing Ethnopolitical Conflict in the
New Century,” Turbulent Peace: The Challenge of Managing International Conflict (2001), pp. 163-87, 164.
[4] Kazi Fahmida Farzana, "Conclusion." Memories of Burmese Rohingya Refugees, 2017, 233-47, 60.
[5] Tun Khin, "Rohingya: A Preventable Genocide Allowed to Happen." Insight Turkey, 47 https://www.insightturkey.com/commentaries/rohingya-a-preventable-genocide-allowed-to-happen.
[6] Farzana, "Conclusion." Memories of Burmese Rohingya Refugees, 60.
[7] Katie Hunt, "Rohingya Crisis: How We Got Here." CNN. November 13, 2017. Accessed April 03, 2019. https://edition.cnn.com/2017/11/12/asia/rohingya-crisis-timeline/index.html.
[8] Akm Ahsan Ullah, "Rohingya Refugees to Bangladesh: Historical Exclusions and Contemporary Marginalization." Journal of Immigrant & Refugee Studies 9, no. 2 (2011): 139-61.
[9] Akm Ahsan Ullah, "Rohingya Refugees to Bangladesh: Historical Exclusions and Contemporary Marginalization."
[10] Akm Ahsan Ullah, "Rohingya Refugees to Bangladesh: Historical Exclusions and Contemporary Marginalization."
[11] Stephen Ryan, "Ethnic Conflict and the United Nations." Ethnic and Racial Studies13, no. 1 (1990): 25-49. doi:10.1080/01419870.1990.9993660.
[12] Ryan, "Ethnic Conflict and the United Nations.", 30
[13] Khan, Mohammed Abu Sayed Arfin, Sharif Ahmed Mukul, Mohammed Salim Uddin, Mohammad Golam Kibria, and Fahmida Sultana. "The Use of Medicinal Plants in Healthcare Practices by Rohingya Refugees in a Degraded Forest and Conservation Area of Bangladesh." International Journal of Biodiversity Science & Management5, no. 2 (2009): 76-82. doi:10.1080/17451590902978855.
[14] Re Kazi Fahmida Farzana, "Conclusion." Memories of Burmese Rohingya Refugees, 2017, 233-47, 13.
[15] "Myanmar: A New Peace Initiative | Crisis Group.", 1.   
Accessed April 3, 2019. https://www.crisisgroup.org/asia/south-east-asia/myanmar/myanmar-new-peace-initiative
[16] Jacques Leider, "Rohingya: The History of a Muslim Identity in Myanmar." Oxford Research Encyclopedia of Asian History, 60.  
[17] Leider, "Rohingya: The History of a Muslim Identity in Myanmar”, 61
[18] "Myanmar: A New Peace Initiative | Crisis Group.", 2.
[19] Penny Green, "Islamophobia: Burma's Racist Fault-line." SAGE Journals, 46.
[20] Ted Gurr, “Minorities and Nationalists: Managing Ethnopolitical Conflict in the
New Century,” Turbulent Peace: The Challenge of Managing International Conflict (2001), pp. 163-87, 168.
[21] Leider, "Rohingya: The History of a Muslim Identity in Myanmar”, 6.
[22] Akm Ahsan Ullah, "Rohingya Refugees to Bangladesh: Historical Exclusions and Contemporary Marginalization”, 3.
[23] Leider, "Rohingya: The History of a Muslim Identity in Myanmar”, 11.



[25] Leider, "Rohingya: The History of a Muslim Identity in Myanmar”, 6
[26] Leider, "Rohingya: The History of a Muslim Identity in Myanmar”, 10
[27] Ted Gurr, “Minorities and Nationalists: Managing Ethnopolitical Conflict in the
New Century”, 170
[28] Krishnadev Calamur, "The Misunderstood Roots of Burma's Rohingya Crisis." The Atlantic. www.theatlantic.com/international/archive/2017/09/rohingyas-burma/540513/.
[29] "What Forces Are Fueling Myanmar's Rohingya Crisis?" Council on Foreign Relations. https://www.cfr.org/backgrounder/rohingya-crisis.
[30] Ted Gurr, “Minorities and Nationalists: Managing Ethnopolitical Conflict in the
New Century,” Turbulent Peace: The Challenge of Managing International Conflict (2001), pp. 163-87, 174
[31] "Myanmar: A New Peace Initiative | Crisis Group.", 1.
[32] Myanmar: A New Peace Initiative | Crisis Group.", 12.

[33] "What Forces Are Fueling Myanmar's Rohingya Crisis?" Council on Foreign Relations. https://www.cfr.org/backgrounder/rohingya-crisis.
[34] Krishnadev Calamur, "The Misunderstood Roots of Burma's Rohingya Crisis." The Atlantic. www.theatlantic.com/international/archive/2017/09/rohingyas-burma/540513/.


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