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The Right to Food Rice Militarization Rise of the Tatmadaw

Concerned by frequent and serious reports of hunger in Burma, the Asian Human Rights Commission (AHRC) invited us to sit as members of the People’s Tribunal on Food Scarcity and Militarization in Burma, and requested us to hold an inquiry. We are aware that there is military dictatorship in Burma, that there have been human rights violations throughout the country, and that such violations continue even today. However, in this inquiry we are not concerned with all such abuse. We are mainly concerned with whether the right to food has been denied to people in Burma, and if so whether this denial owes to a militarization of Burmese society.

This section presents the terms and concepts basic to our inquiry. It also summarizes the history of food production and military rule provided us by AHRC.


Return to Top The Right to Food Next

The right to food is recognized by both the Universal Declaration of Human Rights and the International Covenant on Economic, Social and Cultural Rights, passed by the UN in 1966 (ICESCR). Article 25(1) of the Universal Declaration of Human Rights reads:

Everyone has the right to a standard of living adequate for the health and well being of himself and of his family, including food, clothing, housing and medical care and necessary social services, and the right to security in the event of unemployment, disability, widowhood, old age or other lack of livelihood, in circumstances beyond his control.

The Declaration further states that member nations should "by progressive measures, national and international… secure their universal and effective recognition and observance." The primacy of right to food is also established by Article 11 of the ICESCR, which provides:

1.) The States Parties to the present Covenant recognize the right of everyone to an adequate standard of living for himself and his family, including adequate food, clothing and housing, and to the continuous improvement of living conditions. The States Parties will take appropriate steps to ensure the realization of this right, recognizing to this effect the essential importance of international cooperation based on free consent;

The States Parties to the present Covenant, recognizing the fundamental right of everyone to be free from hunger, shall take, individually and through international cooperation, the measures, including specific programs, which are needed;

Failure to safeguard the right to food is as bad as failure to protect life To improve methods of production, conservation and distribution of food by making full use of technical and scientific knowledge, by disseminating knowledge of the principles of nutrition and by developing or reforming agrarian systems in such a way as to achieve the most efficient development and utilization of natural resources;

Taking into account the problems of both food-importing and food-exporting countries, to ensure an equitable distribution of world food supplies in relation to need.

Under the international legal system, States have a duty to respect, promote and fulfil all basic human rights. If protecting life is what human rights are all about, it must be said that life cannot be sustained without food. Food is not just a commodity, but the guaranteed right of every person. Failure to safeguard the right to food is as bad as failure to protect life; if multitudes are denied food, mass starvation and death are bound to ensue.

The State’s obligation to protect the right to food goes beyond providing a morsel of food for every hungry mouth. Instead, it means States must perform certain positive obligations. Their obligations include:

  • To respect people’s right and freedom to control their resource base, namely land;
  • To eliminate any form of involuntary servitude that restricts the freedom to choose an adequate resource base from which to obtain sustenance;
  • To protect this freedom and resource base from encroachers;
  • To assist people who are unable to take care of their needs;
  • To eliminate discriminations hampering free access to food; and in no event to indulge in any act of commission or omission which will endanger people’s capacity to produce food and have access to it.
Within the international legal framework, non-performance of the duties mentioned above, or any of them, or deliberate refusal to comply with them, would constitute denial of the right to food. At the same time, the Government of the Union of Myanmar has not acceded to most international legal instruments, including the International Covenant on Economic Social and Cultural Rights. This raises the question of applicability. The Tribunal’s view is that a distinction can be made between the legal instruments of human rights as the letter of law, and the universal truths about human life and society which these laws help to articulate. This is especially pertinent to such a basic right as food, the universality of which can not be reasonably challenged. Failing to ratify an international treaty may preclude other governments’ right to censure in certain forums, but it does not exempt Myanmar from the obligation to respect and establish basic human rights. Moreover, the government has voluntarily committed itself in non-binding declarations, plans and obligations to protect the right to food. The universality of human rights and the government’s awareness of its responsibilities therefore render the Government of Myanmar accountable for allegations of abuse.

Picture 1: Food scarcity refers to inadequate access to the necessary amount of food as measured in real terms.

AHRC has measured the denial of the right to food in Burma terms of "food scarcity." This phrase denotes the absence of sufficient food to maintain a healthy and active life 1. Food scarcity refers to inadequate access to the necessary amount of food as measured in real terms: whether people actually have food to eat. Food may be produced and sold abundantly, but if it is too expensive or not available locally then people will have no food on their tables. It is the opposite of food security. Clinical malnutrition and death from starvation may be extreme effects, but are not required to demonstrate food scarcity. More visible are the social symptoms: poverty, children dropping out of school to work, crime, corruption and other communal or environmental damage created by the desperate search for a reliable food source.


Return to Top Rice Next

Any investigation into hunger must take into account agricultural production and distribution. AHRC has provided the Tribunal with a background to Burma’s agricultural economy, summarized briefly below.


Picture 2:
"Bad harvests in 1966-68 resulted in short supply of food."

Rice is the staple crop and staple food, and is the commodity which determines food security or scarcity. Burma’s agricultural economy has weathered four eras of rice production and distribution: feudal, colonial export, nationalized, and post-socialist. Importantly, none of these historical shifts tells the full story. Because the country is politically and geographically diverse, significant sectors of the agricultural economy remained unaffected by these historical changes. This is particularly true in the distinction between lowland rice production, by which farmers cultivate rice paddies flooded by monsoon rains, and highland swidden agriculture, in which non-irrigated fields are cultivated on hillsides. To generalize: lowland cultivation provides a surplus crop to be sold and traded; growing highland rice generally produces a subsistence crop for local consumption. The four eras of Burma’s agricultural economy generally refer to changes in the production and distribution of lowland paddy.
Feudal agriculture provided a community’s food and whatever tribute was due to the monarch or his local vassal. Generally, the subsistence economy depended on three factors: enough cultivable land, communal labor and a local natural resource base to provide the necessities of life. The "rice tax" due the royal court, its army and small civil service was more or less of a burden depending on proximity to the capital (or feudal lord), total output and the specific demands placed on a farming community. "Around 1960 one kilogram of rice cost 0.5 kyat. In 1966-69 it cost 28 kyat, 56 times more."

With colonialism came the rice export economy. Under British administration, vast areas of lower Burma were cleared for export rice production, and by the 1920s Burma became the foremost supplier of rice to the world. In 1939 Burma was still the leader, putting 3 million tons of rice on the international market that year. Much of it was grown in the Irrawaddy Delta and exported from Rangoon.

Under the socialist regime, which took over in 1962, rice production was nationalized. The government attempted to redistribute productive lands under nationally administered, locally managed collective farming. The general ineffectiveness of this program combined with the fertility of Burma’s soil meant that the changes posed little threat to food security, despite population growth from 17 million just after World War II to 24 million in 1962. However, poor harvests in the late 1960s tested nationalized rice production’s flexibility in a crisis:

Bad harvests in 1966-68 resulted in short supply of food. Starvation was experienced for the first time in the known history of Burma. Even during the four years (1942-45) of war, food had not been scarce. For the first time in the lives of the people of Burma, the word famine expressed itself in real life. Parents sold their children for some rice… Around 1960 1 kilogram of rice cost .5 kyat. In 1966-69 it cost 28 kyat, 56 times more.2

In good times and in bad, the government was a major rice consumer. It purchased a percentage of all rice produced at a fixed rate, regardless of most fluctuations in the rice market. As in pre-colonial times, the government procured rice to provision the army and sell at a discount to civil servants. Throughout the shortages of the 1960s, the government maintained its purchase rate of 3 kyat per kilogram, or almost one-tenth of the going market rate.


Picture 3: "The government pays little for rice destined to bring high profits in overseas markets."

Trouble in the rice market triggered the end of the socialist-styled agricultural economy. By 1987 another food crisis loomed, and the government abandoned its strictest controls on the rice market. In August 1997 rice had risen to 15 kyat per kilogram, the highest price since the 1960s. Fearing possible famine, in September the government lifted the ban on harvest-time rice trading, in place since 1962. The market price of rice was cut in half.

The post-socialist era has retained central planning and control of food production. Farmers are still required to sell a percentage of their rice to the government at discount prices. This paddy procurement system is implemented by Myanma Agricultural Produce Trading (MAPT), a state agency which, along with other arms of the bureaucracy, inherited the duty from its socialist predecessor, State Corporation No 1. MAPT’s national structure reaches down to the village, where it designates paddy land and collects a fixed quota based on land area. This quota rose steadily from 1988 until 1995, when it was fixed at 12 baskets per acre in high rice-producing areas such as Irrawaddy Division (reports of quotas set at 15 or even 18 baskets are not unknown). Around this time the government paid one-third to one-fifth the going market price for rice purchased under the quota system.

An inherent flaw in this system is the government’s quota calculation based on arable land area rather than amount of rice actually planted or harvested. Farmers who work poor land or for other reasons produce an imperfect crop are not exempt from the quota. They fulfil their obligation by supplying paddy bought on the market. In these cases, the difference between the relatively high market price and the low government purchase rate results in a net loss for farmers.

Households which fail to fill the quota face a variety of consequences. While arrests and beatings have been reported, more common is the confiscation of paddy land, for redistribution to other farmers more likely to produce. Farmers have also been sent to labor camps to work off their debt. In Irrawaddy Division, local military authorities are said to have ordered no milling of harvested rice for consumption or trade until entire villages filled their quotas. Lastly, farmers have been threatened, scolded and publicly abused by government rice procurers dissatisfied with their quota.

Quota rice is not only used to provision the army and the civil service, but sold on the international market. Since 1988 there has been a renewed emphasis on agricultural production for export. The main strategies are to increase the land area under cultivation, increase productive capacity through a variety of irrigation and agricultural development projects, and license commercial ventures to grow rice for export.

In 1994 the government announced a major new drive to increase rice exports fourfold, but in the first years of its plan was forced to buy rice at market value to make up for the shortfall of MAPT-procured quota rice. The World Bank estimates that in 1994-95 rice farmers lost about one quarter of their gross income because of MAPT procurement. This mass purchase of an additional 3% of the nation’s rice over and above the quota raised its domestic market value. Following this experience, the government became slightly more cautious in purchasing rice for export. In 1997 government purchase rates rose to almost one half the market price for top-quality rice. A temporary relaxation of the strictest aspects of the quota rule and a reduction in land confiscation also saw the total amount of rice procured fall by 21% in 1996-97.


Picture 4: Corruption and quota pressures mean sometimes farmers must sell even more paddy than calculated.

The government may have accepted that its export plans will only be realized when the total amount of paddy produced in Burma increases to satisfy the both the domestic market and the MAPT quota, and leaves a surplus bound for foreign shores. In a speech to mark World Food Day 1997, Minister for Agriculture and Irrigation, Lt-Gen Myint Aung, explained:

Being endowed with equitable weather conditions and abundance of land and water resources, Myanmar has made great accomplishments in the production of food through the joint effort of the Government and the people... A tremendous amount of capital has been invested for the implementation of increased food production programs. We have been engaged [in] the development of virgin lands, expansion of cropping areas and increasing the cropping intensity...Food policy adopted for the country is aim[ed] at supplying [a] sufficient amount of food for the entire nation and at the same time to guarantee better health and social well being of the populace. 3


Picture 5: "They took video where the crop looked good, where it was green and ripe."

The government has launched agricultural development schemes throughout the country, but especially in the Irrawaddy Delta. The centerpiece is the summer paddy program, in which the traditional single rice crop per year, sown in the rainy season and reaped in the cool season of October-December, is followed by another crop raised and reaped in the hot season. The summer paddy scheme has several elements: development of irrigation systems such as dams and canals, introduction of high yielding hot-season rice strains, and use of new fertilizers, pesticides and machinery to cope with the technical complications of the new crop.

These tactics have created two new burdens for farmers. The first is the labor needed to build roads, small dams and irrigation ditches. State-directed, uncompensated labor is common practice in Burma. Farmers who work on these development projects have less time to tend their crops or other subsistence activities. Secondly, the chemical ingredients of the summer rice program are not distributed free to poor farmers, but are sold to them. Farmers who don’t buy the necessary materials can not participate in the program; their unproductive land, officially designated for double-cropping, is reassigned to a more able household.

The socialist-era reassign-ment of arable land to productive farmers has taken a new twist in the late 1990s: corporate rice farming. In January 1999 the government announced that 200,000 acres of paddy land in the Irrawaddy, Rangoon and Magwe Divisions had been transferred to nine unnamed entrepreneurs licensed by the government to reclaim "wetlands and vacant, fallow and virgin lands." It further added that "More wetlands and vacant, fallow and virgin lands are being reclaimed to extend cultivation to ensure rice sufficiency for the people" in a campaign to increase wet-season paddy land by two million acres, and summer paddy by an additional four million. 4


Picture 6: Development schemes never challenge the assumption that Burma needs to recruit, feed and equip a huge army.

Recent US Department of Agriculture statistics affirm statements by the Burma government that in 1998-99 rice export once again drove national farming policy. There was a substantial export increase in 1998; by November, 86,233 metric tons of paddy had been exported, compared to only 15,328 for the whole of 1997. 5 These reports coincide with rising national production targets, to be achieved in part by contracting big parcels of land to entrepreneurs.

"Militarism is distinguished as being of a more material, physical quality…while militarization is predominantly an ideological orientation..." Despite efforts to increase rice production, independent reports indicate that in the early 1990s, over 30% of Burma’s children were suffering from malnutrition. Furthermore, anecdotal reports from throughout the country confirm that many people simply don’t have enough to eat. AHRC has provided some of these reports to the Tribunal; most are publicly available. Perhaps one million Burmese refugees and migrant workers reside in neighboring Thailand, many reporting food scarcity as their primary reason for flight.

Return to Top Militarization Next

The Asian Human Rights Commission has submitted that food scarcity and hunger exist because of militarization. In defining this term, AHRC has distinguished between militarism and militarization, the critical difference being the social and ideological force the latter exerts on the normative life of society: Reports indicate that in the early 1990s, 31% of Burma’s children were suffering from malnutrition

Militarization should be understood as the process whereby military values, ideology, and patterns of behavior achieve a dominating influence on the political, social, economic, and external affairs of the State; and as a consequence, the structural, ideological, and behavioral patterns of both the society and the government are "militarized." 6

Thus, the distinction between militarization and militarism:

militarization… denote[s] the spread of military values (discipline and conformity, centralization of authority, the predominance of hierarchical structures, etc.) into the mainstream of national economic and socio-political life. Militarism is distinguished as being of a more material, physical quality…while militarization is predominantly an ideological orientation, often leading to military leadership of civilian organizations and institutions. 7

So we have been presented with a distinction between militarism as a visible characteristic of state and militarization as a more abstract interpretation of how those characteristics affect the nation. From these definitions the Tribunal understands that a degree of militarism is already known to exist. Burma’s military government, armed conflict and suppression of political dissent are all facts which we recognize at the outset. However, a large and active army, the State’s use of violence and even military rule are traits of militarism which can exist without extreme pervasion of military culture and polarization of people from the state. AHRC has sought to establish before us that what has taken place in Burma is not mere militarism, but militarization in the full sense. This is the issue we will consider. AHRC has sought to establish that what has taken place in Burma is not mere militarism, but militarization in the full sense

Return to Top Rise of the Tatmadaw Next

The AHRC has outlined Burma’s modern political history to help define the scope of the Tribunal. This history can be summarized as follows.

The modern nation of Burma was forged when a variety of feudal states were consolidated by British colonial rule. Before colonial times, there were no fixed boundaries around a single encompassing nation or kingdom. Instead, peoples living in and around the Irrawaddy River basin existed under the rising and falling influence of Burman, Mon, Shan, Arakan, Siamese and other kingdoms. Furthermore, huge highlands were home to various peoples without large-scale polities, especially Kachin, Chin, and Karen peoples, as well as numerous related and unrelated groups. Throughout the 19th century, however, England fought a series of wars with the Burman empire in a campaign to make Burma the easternmost province of British India. By 1890, the last Burman king went into exile, and colonial administration was established. The eastern border with Siam was more or less demarcated, Assam and Manipur were retained as parts of India, and the northern and northeastern frontiers with China roughly set. Burma was created not as a sovereign nation, but as a colonial province of British India.

British Burma was thus a mosaic of peoples and places brought for the first time under a single state. The peoples of Burma received the new regime with varying reactions, some resisting colonialism outright and others welcoming it as a turn in their political favor. British interest lay in profitable export of teak and rice, and in controlling the eastern extreme of British India. European expansion ended with World War II and the invasion of Burma by Japan. A group of Burman nationalists known as the Thirty Comrades seized the war as an opportunity to oust Britain. They established the Burma Independence Army (BIA), led by General Aung San, which assisted Japan on the understanding that once the British had been routed, Burma would achieve independence. However, doubts about the sincerity or viability of the Japanese pledge led the BIA to switch sides, and by the end of the war Burma remained a British colony.


Picture 7: The
Tatmadaw developed a political identity as defender of Burma’s unity…
World War II also crystallized modern ethnic nationalism. Burmans saw the war as the beginning of a drive for independence, a campaign which was ultimately successful. Chins, Kachins and Karens provided pivotal support to the Allies throughout the war, raising their status within the colonial administration and exposing them to techniques of modern warfare. Furthermore, the BIA’s initial cooperation with Japan entailed retribution against those who aided the British, including the ethnic minorities. Thus the war created, renewed or intensified ethnic tensions between Burmans, whose monarch had been banished and who had been subjugated under colonial rule, and the minorities, whose subjugation under the Burman kings had been somewhat relieved by the British.

When Britain granted independence to Burma in 1948, questions over autonomy for ethnic-minority inhabited areas remained unresolved. General Aung San, who headed a controversial provisional government, was assassinated along with his entire cabinet just before the British withdrew. Within months the country was covered with nationalist and communist movements. The Burma army, or Tatmadaw, was thus born into the role of suppressing the disunity of a nation which had never been unified to begin with.

Throughout the 1950s the Burma army’s power grew steadily, while political inroads to resolving Burma’s many conflicts were few and led nowhere. In 1958 a military-led caretaker government assumed control, led by General Ne Win, one of the Thirty Comrades. In 1962 Ne Win consolidated his power through a complete military coup. For three decades of Ne Win’s rule, the Tatmadaw developed a political identity as defender of Burma’s unity against internal enemies. The Burma army cast itself as savior of the nation’s integrity.

Politically, the period between 1962 and 1988 was Ne Win’s experiment with socialism. Single party rule fell to the Burma Socialist Programme Party (BSPP), which nationalized agriculture and industry and turned Burma into a "closed" country. BSPP legalized itself in 1974 through a new constitution. In 1988, with Burma facing economic ruin, Ne Win retired from his leading role in national politics. In August many people took to the streets calling for greater reform, invoking a harsh military response. Thousands of demonstrators, including students and workers, were killed or fled to the frontier areas. A junta of hard line military officers staged a coup, reasserting the army’s prominence. In September 1988, the State Law and Order Restoration Council (SLORC) replaced the BSPP and its pretensions to both socialism and quasi-civilian rule. Despite holding a promised election in 1990, the military refused to cede power to an elected parliament, persecuted its rivals, especially the National League for Democracy (NLD), and maintained tight control on all political dissent. The 1990s saw the Tatmadaw expand, modernize, and begin to open the nation’s economy to foreign capital.

Insurgency continued throughout the BSPP and SLORC eras. The Karen rebellion, which broke out near Rangoon in 1949, gradually drifted eastward to the Thai frontier. The Kachin Independence Organization maintained control over the highlands in northern Burma. Meanwhile, the adjacent Shan State was home to ethnic nationalist movements, drug warlords and the once-powerful Communist Party of Burma. In 1974 the Tatmadaw expanded the "Four Cuts," an anti-insurgency program designed to cut civilian support for guerrillas. The brutality of this campaign fuelled further resistance and cemented the belief that the Tatmadaw was intent on genocide, making total autonomy of minority peoples the only secure political destiny. SLORC’s determination to quash Burma’s insurgency saw a series of political and military successes throughout the 1990s. It concluded cease-fire agreements with several opposition groups and won significant military victories, especially along the Thai border.



Picture 8: In 1974 the Tatmadaw expanded the "Four Cuts."

   


Picture 9: Throughout the 1990s the Tatmadaw grew both in size and expenditure

Throughout the 1990s the Tatmadaw grew both in size and expenditure. In 1989-90 the army stood at 175,000 men but doubled to 350,000 in 1995-96. In the same period, the civil service increased by only six percent. Indeed, a 1997 estimate put one in every 32 eligible people in the military. The government’s target is 475,000 troops—larger than the US army and one of the biggest standing armies in the world. The American Embassy estimated defense spending to be at least half of total government expenditure, at 8-10 % of recorded GDP. 8 In 1988-89, the year SLORC formed, Burma spent 1.8 billion kyat on defense, constituting 22.9% of recorded government spending, equivalent to 2.3% of recorded GDP. By comparison, from 1993 to 1996 defense constituted about 40% of government spending. The government reported that in 1995-96 for every kyat spent on development in frontier areas more than 26 kyat went to the Tatmadaw. Beyond this substantial piece of the national budget, the Tatmadaw receives goods and services of uncalculated value:

The Ministry of Defense receives but does not pay for about one-fifth of Burma's centrally generated electricity. The Defense Ministry also purchases large amounts of fuel far below market prices. In FY 95/96, the Defense ministry purchased at least 12 million gallons of fuel, at about 20 kyat per gallon for diesel and 25 kyat per gallon for gasoline, for which the market prices were about ten times higher. In addition, a substantial share of the GOB's declining real expenditures on health is said by health industry experts to be used to provide medical services to military personnel, and is not included in the defense budget. The Defense Ministry also receives large amounts of rice at a steep discount from the market price… 9

Today, despite decades of armed resistance, the military remains in firm control of Burma’s political and economic scene. The Tatmadaw has maintained its leading role in Burma’s government, impervious to growing international concern for human rights and political freedom. The population, at about 45 million, has virtually no legal options for political opposition, although a number of illegal anti-government groups operate throughout the country. Burma’s Tatmadaw continues to pursue its vision of a unified, "peaceful, modern and developed" nation led by strong and vigilant military heroes.


Picture 10: "They burned our houses and food supplies and it’s plain to see that we could never stay on there."

The Tribunal will consider food scarcity and the militarization of Burmese society against this background of a prominent and growing army. Certain political facts are undisputed: Burma has a military government; this government is autocratic; armed conflict exists within the country; and civilians report that atrocities are committed against them in the course of this conflict. Our inquiry is to determine whether the right to food has been denied to the people of Burma, and if so whether the military dictatorship and the administration it controls are responsible. To make this determination, we must evaluate AHRC’s charge that the right to food has been denied, then judge whether there is a nexus between this scarcity and military encroachment.

 


1 Back to Text For more discussion of food scarcity and related terms, se FAO’s The State of Food and Agriculture, and Bread for the World’s Eighth Annual Report, cited in the Bibiliography (Appendix 7).
2 Back to Text Shwe Lu Maung, Burma: Nationalism and Ideology, Dhaka: University Press Ltd., 1989. pp. 56-7.
3 Back to Text "More Food Being Grown to Eradicate Hunger and Malnutrition," New Light of Myanmar, 17 October 1997.
4 Back to Text "Nineteen entrepreneur groups to reclaim 203,000 acres in Ayeyawady Division," New Light of Myanmar, 19 January 1999.
5 Back to Text US Department of Agriculture, "Burma's monthly rice trade and price update for September, 1998," GAIN Report (#BM8013, 8 October 1998).
6 Back to Text Churches Commission on International Affairs, Militarism and Human Rights, Geneva: World Council of Churches, 1982, p. 5.
7 Back to Text Jim Zwick, "Militarism and Repression in the Philippines," Working Paper Series, Montreal: McGill University Developing Area Studies, 1982, p. 4.
8 Back to Text American Embassy Rangoon, Foreign Economic Trends Report: Burma, 1997, September 1997, p. 15.
9 Back to Text The American Embassy’s statistics are not official, but are a compilation of embassy, Myanmar government and World Bank/IMF figures. The embassy’s report outlines the flaws inherent in all statistical data on Burma, including a general incompleteness of all data, exchange rate distortion, omission of defense-related imports and overstatement of international debt service payments.

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PEOPLE'S TRIBUNAL ON FOOD SCARCITY AND MILITARIZATION IN BURMA
Email: tribunal@ahrchk.org

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