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Updated January 24, 2020


U.S. Relations with Burma: Key Issues in 2020


Some Members of Congress have been critical of the
Trump Administration's Burma policy, particularly its
limited response to atrocities committed by the Burmese
military (Tatmadaw), the intensification of the nation's
long-standing civil war, and rising concerns about political
repression. In December 2018, the 115th Congress passed
the Asia Reassurance Initiative Act of 2018 (P.L. 115-409),
which prohibits funding for International Military
Education and Training (IMET) and the Foreign Military
Financing (FMF) Program in Burma for fiscal years 2019
through 2023. In December 2019, the 116th Congress
passed the Further Consolidated Appropriations Act, 2020
(P.L. 116-94), which places additional restrictions on
bilateral economic and international security assistance to
Burma in fiscal year 2020. Other legislation has been
introduced that would modify U.S. relations with Burma
(see Pending Legislation).


Burma has been embroiled in a low-grade civil war
between the Tatmadaw and over 20 ethnic armed
organizations (EAOs) as far back as 1962. Significant
portions of the nation are effectively under EAO control,
particularly in Kachin and Shan States. After the Tatmadaw
transferred power to a mixed civilian-military government
in 2011, fighting initially was limited to Kachin and Shan
States, with periodic skirmishes in Kayin State, but has
since spread to Chin, Kayah, Mon, and Rakhine State. The
government of former President Them Sein and the current
government, led by State Counselor Aung San Suu Kyi,
have attempted to negotiate a nationwide ceasefire
agreement, but these efforts have had limited success.

In December 2018, the Arakan Army (AA) launched
coordinated attacks on security outposts in northern
Rakhine State as part of its plan to establish an autonomous
region for the Arakan (Rakhine) people. Following the
December 2018 AA attack, Commander-in-Chief Senior
General Min Aung Hlaing announced a four-month
unilateral ceasefire in eastern (but not western) Burma,
which he later extended for two more months, and reversed
his objection to the inclusion of the AA and two other
EAOs in the ceasefire talks.

Fighting between the AA and the Tatmadaw in Chin and
Rakhine State continued throughout 2019, with more than
482 skirmishes reported during the year, accounting for
10.6% of the recorded military confrontations in Burma
since 2011, according to the Armed Conflict Location and
Event Data Project (ACLED). In 2019, fighting also was
reported between the Tatmadaw and various EAOs, as well
as between EAOs, in Kachin, Kayin, Mon, and Shan States,
despite the existence of ceasefire agreements.


Figure I. Map of Burma (Myanmar)











                     BUR MA MA


Source: CRS.


Aung San Suu Kyi has focused her efforts to end the civil
war on holding broad national conferences at which her
government, the Tatmadaw, the EAOs, and representatives
of civil society, seek to negotiate a nationwide ceasefire
agreement. Conferences were held in 2016, 2017, and 2018,
but not in 2019. Preliminary discussions about a possible
2020 conference are underway, but many EAOs are
skeptical of the Tatmadaw's willingness to negotiate in
good faith.


Burma's parliamentary elections are expected to take place
sometime in November. Aung San Suu Kyi's domestic
popularity has waned over the years due to the escalation of
the civil war and the stalled peace process; her failure to
deliver on promised political reforms; and a slowdown in
economic growth. Some of the country's ethnic-based
political parties are trying to form a united front to
challenge the NLD, seeking to win a majority of the
parliamentary seats for their respective ethnic states.


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