On the Edge of ‘No Man’s Land’
Chronic Emergency in Myanmar
Mark Duffield
Department of
Politics, University of Bristol
© Mark Duffield
英国留学生论文Centre for Governance and International Affairs
University of Bristol
Working Paper No. 01-08
Mark Duffield is Professor of Development Politics in the Department of
Politics at the University of Bristol. During the latter part of the 1980s, he wasOxfam’s Country Representative for Sudan. He has completed extensiveresearch and consultancy work for a variety of UN agencies, NGOs and donorgovernments in the fields of humanitarian intervention, internal war and socialreconstruction. Professor Duffield has published widely in these fields and hisbook, Global Governance and the New Wars: The Merger of Development andSecurity (2001) is currently in its fourth impression. His current researchcontinues to explore the linkages between humanitarianism, development and security. His new book, Development, Security and Unending War: Governingthe World of Peoples, was published by Polity Press in 2007.
On the Edge of ‘No Man’s Land’:Chronic Emergency in Myanmar
Abstract:
Myanmar, or Burma as it is still usually known, remains little understood in the West.Existing knowledge mostly comes from the plight of the refugees living on the Thai borderand the violence of the military regime that put them there. Rather than reworking thisfamiliar territory, this working paper looks at the chronic humanitarian emergency withinMyanmar. This is analysed in relation to the existence of a colonially-derived design ofpower operating through emergency and the exercise of arbitrary personal authority. Thedynamics of totalitarian rule are examined and, in particular, how people and communitiesare wantonly exposed to danger and the irrelevance of their being. When coupled with the
absence of an effective system of social welfare, the result is a chronic emergency that now
grips Myanmar as a whole. The working paper also describes how aid agencies, includinglocal NGOs, operate inside Myanmar. Despite being a difficult working environment,through an innovative application of the humanitarian principles of neutrality, impartialityand transparency, aid agencies have succeeded creating a space for independent action. They
have, for example, altered local social dynamics and improved the precarious levels ofprotection enjoyed by many communities. Regarding policy, rather than strengtheningcapacity as such, concerns should focus more on how to push back, contain or domesticaterule through emergency and the exercise of arbitrary person power.
CONTENTS
Preface
Acronyms
Executive Summary
1. Introduction
2. From Exception to Anomaly
2.1 A structural aid orphan
2.2 Blurring inside/outside
2.3 A restricted aid
architecture3. The Nature of Power
3.1 Separating development and underdevelopment
3.2 Colonialism and emergency
3.3 Governing through uncertainty
4. Chronic Emergency
4.1 The political economy of information
4.2 The contours of a chronic emergency
4.2.1 The September 2007 unrest
4.2.2 Ethnic coexistence
4.2.3 The absence of public welfare
5. Operating Environment
5.1 Below the radar
5.2 The possibility of protection
5.3 The problem with development
6. Conclusion
6.1 Containing power rather than reconstructing states
6.2 From human security to social security
4
ACRONYMS
CAP Consolidated Appeals Process
CBO C
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