Humanitarian Civil-Military Coordination in Emergencies: Towards a Predictable Model

Myanmar

Disaster risk profile

Evolution of humanitarian civil-military coordination in Myanmar

The Armed Forces (Army, Navy, Air Force) are a primary responder in disaster response in Myanmar. Civil-military coordination in Myanmar is shaped by a history of military rule, limited foreign engagement, devastating natural disasters and ongoing conflicts. In recent years, several large-scale disasters, including Cyclone Nargis in 2008, and ongoing conflicts in the northern states have shaped the way the Armed Forces interact with civilian actors in humanitarian response. The role of regional actors, such as ASEAN, is also notable in the context of disaster response in Myanmar.

The past decade has resulted in notable transformations in civil-military coordination in disaster response in Myanmar. Building on the response to Cyclone Nargis in 2008, and Cyclone Giri in 2010, the Government of Myanmar enacted the National Disaster Management Law (2013) and the subsequent Disaster Management Rules (2015), outlining roles and responsibilities of military and civilian actors. This includes guidance on requesting assistance from the military for search and rescue operations,⁶¹ security in disaster-affected areas⁶² and for the delivery of assistance to victims more generally.⁶³ Guidance on coordination with foreign governments and other regional and international actors is also provided.

The Armed Forces have taken significant steps to strengthen disaster management capabilities. According to a recent presentation provided by the Armed Forces at the ASEAN Regional Forum, the Armed Forces have 161 Search and Rescue Teams ready for deployment to natural disasters, with nine naval ships, transport aircraft and helicopters on standby.⁶⁴ It is also evident that engagement by the Armed Forces in national and regional civil-military coordination activities is increasing. The Armed Forces participate in national and regional HADR exercises and Myanmar is engaged in regional civil-military coordination mechanisms including the Regional Consultative Group (RCG) on Humanitarian Civil-Military Coordination for Asia and the Pacific.

As a result of the RCG 2016 work plan progress, there are plans to develop SOPs to strengthen civil-military coordination, share timely information, engage in joint training, and test these in regular exercises and simulations. The creation of a military HA/DR team has also been recommended.

National legal and policy frameworks for disaster management

The central role of the military is well articulated in Myanmar’s disaster-related laws and policies. The Constitution of the Republic of the Union of Myanmar, in Chapter VII, states that ‘The Defence Services shall render assistance when calamities that affect the Union and its citizens occur in the Union’. It should be noted, however, that for the most part disaster-related laws and policy apply to natural disasters only, and not to the ongoing situations of sub-national conflict that persist in Myanmar.

National Disaster Management Law (2013)

The principle national law guiding disaster management in Myanmar is the National Disaster Management Law, ratified on 31^st of July 2013 in line with priorities established in the Myanmar Action Plan on Disaster Risk Reduction. The Disaster Management Law includes provisions for the establishment of disaster management bodies and their duties and responsibilities (Chapter III). This includes provisions on requesting assistance from the Armed Forces for search and rescue operations, security in disaster-affected areas and for the delivery of assistance to victims more generally. It also provides for the cooperation and liaison with foreign countries and other regional and international actors when assistance is required to expedite a response (Chapters III and IV).

The Standing Order on Natural Disaster Management in Myanmar (the Standing Order), finalized in January 2009 and updated in 2011 is another key document defining the mandate, roles and responsibilities for national level institutions in disaster management. The Standing Order was created post the devastation caused by Cyclone Nargis. It reflects on lessons from the disaster response effort during Cyclone Nargis and includes actions to be taken by Government agencies in the course of future disasters. It also guides the formation of committees and coordination mechanisms for a timely and coordinated disaster response.

The Standing Order notes that ‘measures should be in place to make use of the assistance provided by the Armed Forces (army, navy and air force) in addition to that provided by local volunteers and volunteers from other areas’.⁶⁵ It also refers to the role of the Armed Forces in expediting search and rescue activities, protection and other disaster relief efforts.⁶⁶ The responsibilities of the Ministry of Defense and Armed Forces are delineated according to four disaster phases – Normal Times, Alert and Warning, During Disaster, and Relief and Rehabilitation – refer to Ministry of Defence Responsibilities Overview in Table X below.⁶⁷ It has been noted that steps are currently underway in-country to update the Standing Order based on the changing context – in accordance with the new Disaster Management Law and Rules established under this law and the Sendai Framework.⁶⁸

Table X Delineation of Responsibilities for the Armed Forces According to Normal Times, Alert and Warning Stage, During Disasters, Relief and Rehabilitation (Standing Order 2011)



Myanmar Action Plan on Disaster Risk Reduction (2012)

The Myanmar Action Plan on Disaster Risk Reduction provides a framework for multi-stakeholder engagement in Disaster Risk Reduction. It was established in 2012 and identifies projects that need to be committed to meet the government’s commitment to the Hyogo Framework for Action and the ASEAN Agreement on Disaster Management and Emergency Response (AADMER). Efforts have been made to integrate the Myanmar Action Plan on Disaster Risk Reduction into national development frameworks.

Section 2: National coordination mechanisms and actors in disaster response

National Natural Disaster Management Central Committee (NDMC)

The National Natural Disaster Management Central Committee (NDMC) is the highest decision-making body for disaster management in Myanmar. The structure and composition of the NDMC was reformed in 2016 by the new Government and is outlined below.

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  Forming the necessary groups (work committees), formulating policies for priority tasks, evaluating the Committee’s performance and giving necessary guidance.
  
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  Formulation of policy guidelines for mobilising internal resources in times of disaster
  
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  Laying down the basic policy for coordination when international assistance is needed
  
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  Managing the State budget and State-owned resources and directing resources to where assistance is needed
  
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  Issuing orders / notifications to ensure effective disaster management and avoid hindrances, to prevent the misuse of relief aid and to assess peace and tranquillity and the rule of law during and after disasters
  

Work Committees

Twelve Work Committees support the work of the NDMC through the implementation and coordination of disaster management activities. The twelve Work Committees and their key functions are listed below: - key functions need translation

1. 
   Natural National Disaster Management Work Committee
   
2. 
   International Relations Work Committee
   
3. 
   
   

District and Local Level Disaster Management Committees

Disaster Management Centre

The Disaster Management Centre acts as an emergency operations centre during a disaster response. It was first set up in 2015 during nation-wide flooding.
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Disaster Focal point Disaster Management Centre

Established by the Disaster Management Law (2013)

Key functions (summary):

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  Establish command and control for the disaster response
  
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  Implement National Natural Disaster Management Committee priorities
  
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  Facilitate international and national coordination
  
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  Serve as the central point for communication
  
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  Facilitate information collection, analysis and dissemination
  
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  Logistics support and resource tracking
  
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  Fast track of visa’s for international actors
  

Armed Forces of Myanmar

The core functions of the Armed Forces in disaster response include search and rescue, transportation and logistics, humanitarian assistance, relief and rehabilitation and security. Increasingly the government is also engaging in preparedness planning and activities. According to a recent presentation provided by the Armed Forces at the ASEAN Regional Forum, Myanmar has 161 Search and Rescue Teams ready for deployment to natural disasters, with nine naval ships, transport aircraft and helicopters on standby.⁶⁹ Current preparedness actions for each component of the Armed Forces were outlined at the ASEAN Regional Forum, as follows⁷⁰:

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  Prepare transportation groups under regional command
  
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  Train troops on effective humanitarian response activities
  
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  Establish cooperation with the Ministry of Defence
  

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  Establish communication lines with Ministry of Defence, Army HQs, Navy HQs and Air Force HQs
  
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  Prepare to carry out rapid rescue and rehabilitation operations
  

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  Collect up to date data on natural disasters
  
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  Establish a safety plan for aircrafts and infrastructure
  
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  Prepare for effective deployment and mobility of resources
  

Lead government agencies in disaster response

Section 3: Coordination of Foreign Military and Civilian Assistance

International assistance in disaster response has changed in recent years, reflecting a more general trend in the Asia Pacific region to accept offers of targeted international support where required. International assistance is likely to be negotiated on a bi-lateral basis and with a preference for assistance from ASEAN Member States. The National Disaster Management Law (2013) includes provisions for the acceptance of international assistance.

The use of foreign military assets in disaster response in Myanmar is limited. Acceptance of assistance is most likely to be arranged on a bilateral basis with ASEAN Member States and other regional neighbouring countries. During the response to Cyclone Nargis in 2008, the Government declined to authorize ship-to-shore operations despite numerous offers of naval support. It did however, authorize naval support from India and two warships under the code Operation Sahayata were mobilised.