Advisory Commission on Rakhine State

Advisory Commission on Rakhine State was an independent body formed to examine the protracted conflict and humanitarian crisis in Rakhine State, Myanmar. It was established in August 2016 at the initiative of State Counsellor Aung San Suu Kyi and was chaired by former United Nations Secretary-General Kofi Annan. The commission's mandate was to provide recommendations on issues related to citizenship, freedom of movement, and socioeconomic development, culminating in a final report released in August 2017.

Background and establishment

The commission was created against a backdrop of long-standing ethnic and religious tensions in Rakhine State, primarily between the Buddhist Rakhine people and the predominantly Muslim Rohingya people. Historical grievances, including disputes over citizenship stemming from the 1982 Burmese citizenship law, and cycles of violence, such as the 2012 Rakhine State riots, had created a deep humanitarian and political crisis. In 2016, following a political transition that brought the National League for Democracy to power, Aung San Suu Kyi sought international expertise to address the situation. She formally invited Kofi Annan to lead the effort, leading to the commission's launch on 23 August 2016, with support from the Kofi Annan Foundation and the Myanmar government.

Mandate and objectives

The commission's primary mandate was to provide recommendations for preventing future violence, fostering reconciliation, and ensuring sustainable development in Rakhine State. Its specific objectives included analyzing the underlying causes of the conflict, assessing the implementation of the Rakhine State Action Plan, and proposing measures to strengthen inter-communal relations. Key thematic areas of focus were citizenship verification, ensuring basic rights and freedoms as outlined in the Universal Declaration of Human Rights, security sector reform, and equitable access to services like education and healthcare. The commission aimed to offer practical, implementable solutions to the Myanmar government.

Membership and leadership

The commission comprised nine members: six Myanmar nationals and three international experts. It was chaired by Kofi Annan, the former United Nations Secretary-General and Nobel Peace Prize laureate. The international members included Ghassan Salamé, a Lebanese academic and former advisor to the UN, and Laetitia van den Assum, a Dutch diplomat. The national members were prominent Myanmar figures such as U Win Mra, then-chairman of the Myanmar National Human Rights Commission, and U Aye Lwin, a founding member of the Religions for Peace initiative in Myanmar. This mixed composition was designed to balance local insight with global expertise.

Key activities and findings

Between its establishment and the release of its final report, the commission conducted extensive fieldwork, including multiple visits to Rakhine State, Yangon, and Naypyidaw. It held consultations with a wide range of stakeholders, including community leaders from both the Rakhine and Rohingya communities, civil society organizations, political parties like the Arakan National Party, state and regional governments, and members of the Tatmadaw (Myanmar military). Its interim findings highlighted the severe humanitarian conditions, systemic discrimination, and the critical need for a clear and voluntary path to citizenship for all communities. The commission also noted the detrimental impact of restrictions on freedom of movement and access to livelihoods.

Final report and recommendations

The commission's final report, titled "Towards a Peaceful, Fair and Prosperous Future for the People of Rakhine," was presented to the Myanmar government and the public on 24 August 2017. It contained 88 specific recommendations across several pillars. These included urgent measures to end violence and ensure humanitarian access, a comprehensive review of the 1982 Burmese citizenship law, the closure of internally displaced persons camps, and investment in infrastructure and development projects. Critically, it called for the verification of citizenship for all eligible residents, the full implementation of the Rakhine State Advisory Commission's earlier suggestions, and cooperation with neighboring countries like Bangladesh and international bodies such as the United Nations High Commissioner for Refugees.

Reception and impact

The report was initially welcomed by Aung San Suu Kyi and the Myanmar government, which pledged to implement the recommendations. However, its release was quickly overshadowed by a major security crackdown by the Tatmadaw following attacks by the Arakan Rohingya Salvation Army in August 2017, which escalated into what the UN described as a campaign of ethnic cleansing. While the commission's work provided a widely endorsed framework for a long-term solution, the immediate crisis led to a mass exodus of Rohingya people to Bangladesh. The recommendations subsequently became a key reference point for international diplomatic efforts, including those by the Association of Southeast Asian Nations and the Office of the United Nations High Commissioner for Human Rights, though implementation by Myanmar authorities remained limited and contested.