Beruflich Dokumente
Kultur Dokumente
1B 5092
PMPP
2017
ii
Contents
Introduction ..................................................................................................................... 1
Literature Review............................................................................................................ 2
Background ..................................................................................................................... 3
Challenges ....................................................................................................................... 9
Collaborative Process................................................................................................ 12
Recommendation .......................................................................................................... 14
Conclusion .................................................................................................................... 16
References ..................................................................................................................... 17
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Abstract
Civil-Military Coordination in the operation of disaster relief and resettlement. Thus, this paper
explores a case that includes the Tatmadaws Civil-Military Coordination (CMC) in disaster relief,
and resettlement in Myanmar especially in the case of floods and landslides in 2015. The study
examines what the role of Tatmadaw in coordination with multi-stakeholders in the operation and
explores the case with collaborative governance approach and contingency theory. Primarily, this
paper focuses on the challenges of Civil-Military Coordination in disaster relief, and resettlement
between Tatmadaw and multi-stakeholders, and also provides a solution to achieve effective Civil-
Introduction
The global environments are increasingly unstable, dynamic, and complex. The greatest
devastation to life and property is an unpredictable natural disaster. Such natural disasters caused
great socio-economic loss. In general, not only Myanmar but many places in the world are also
facing natural disasters due to the climate change. Myanmar also frequently experiences cyclones,
floods, landslides and earthquakes. Typically, Myanmar is one of the countries at highest risk of
natural disasters in South East Asia. Thus, protecting Myanmar from natural disasters has never
been more important as it is today. Nowadays, Myanmar ranks 2 out of 187 countries in the Global
Climate Risk Index (Kreft, Eckstein, and Melchior, 2017) and the country ranks 12 out of 191
countries in the Index of Risk Management (INFORM, 2017, p.24). Thus, the country needs to
In fact, the Military Organization so-called Tatmadaw (Myoe, 2009) has been serving
the interests of the people in political, economic and social sectors in accompanying with the
government, the parliament and the public organizations in Myanmar (Myoe, 2014). During the
last 10 years, Myanmar has been impacted by three serious cyclones, three major earthquakes, and
floods. Thus, the Tatmadaw has been taking part in rescue and rehabilitation works for the natural
Thus, this paper explores a case that include the Tatmadaws Civil-Military Coordination
(CMC) in disaster relief, and resettlement in Myanmar especially in the case of floods and
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landslides in 2015. The core objective of this study has to scrutinize what the role of Tatmadaw in
coordination with the multi-stakeholders in disaster relief, and resettlement and explores the case
with the contingency theory and collaborative governance approach in this study. Mainly, this
paper emphases on the challenges of CMC in disaster relief and resettlement between Tatmadaw
and multi-stakeholders, and also provides a recommendation to achieve effective CMC of the
Tatmadaw.
Literature Review
In contemporary organizational theory and practice, Ansell and Gash (2008) have explored
collaborate governance and it consists of the government, communities and private sectors by
communicating with each other and working together to succeed more than any one sector and
also could achieve on its particular mission. Particularly, it is a type of governance in which public
and private actors work collectively in distinctive ways, using particular process, to establish laws
and rules for the provision of public goods (Ansell & Gash, 2008, p. 545). This approach of
governance could bring multi-stakeholders together in common opportunities and its support to
collaborate in the operation for getting effective outcome in the process. Moreover, Stoker (1998)
also argued that the using of baseline agreement and collaboration is refers to the development of
governing styles between and within public and private sectors (p. 17).
Stalker (1961) argued that mechanistic organization was appropriate for stable conditions while
the organic type was better suited to changing conditions. On the other hand, Thompson (1967)
argued that organizations deal with uncertainties in their environment by creating specific elements
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(e.g. more flexible and decentralized structures and procedures) are able to focus on the rational
Background
In general, Tatmadaw has been extensively engaging in several disasters relief and
resettlement as well as donate by cash for disaster victims in real time. As the article-341 of
Myanmars constitution, it has stipulated that Tatmadaw shall render assistance when calamities
that affect the Union and its citizens occur in the Union (The congress of Myanmar, 2008, p.149).
Moreover, Tatmadaw plays a principle role in times of emergency and also one of the main duties
of Tatmadaw is serving the interest of the people perpetually (Than, 2001, p.167). Generally,
although all the military organization have same organizational characteristics, some are difference
among them. Also, Tatmadaw has the following characteristics as shown in Figure 2.
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In the typical disaster management cycle, it usually consists of prevention, response and
recovery. Due to the enactment of the Natural Disaster Management Law on 31 July 2013,
Tatmadaw shall commit to disaster preparedness before the disaster, search and rescue, emergency
response during disaster and rehabilitation and resettlement after the disaster. Thus, Tatmadaw
also has drawn up systematic disaster management plan in each disaster management operation in
cooperating with the multi-stakeholders such as government, relevant ministries, the regional
In July 2015, Myanmar faced heavy seasonal rains and storm winds from Cyclone Komen.
It resulted flooding in twelve States and Divisions out of fourteen in Myanmar. Unfortunately,
nearly 1.7 million people and 399,913 households were directly affected by the flooding
(UNOCHA, 2017), which displayed in Figure 3. Also, it has inundated more than 1.2 million acres
of farmland and some of public services infrastructures in the disaster-affected areas also have
been damaged by the floods and Landslides. By the end of October, almost all of the displaced
people had returned to their villages of origin. However, many roads and bridges were destroyed
by the flood in the most of disaster-affected areas and it has been as a major logistical challenge
In the operation, Tatmadaw has utilized massive resources such as manpower, military
vehicles and equipment power, which could assist in the flood relief mission to the possible degree
in carrying out rescue and relief work. Specifically, Tatmadaw has assigned five Light Infantry
Divisions (LID) and Regional Air Force Squadrons which were closely commanded by Regional
Military Command. Each of the LID was commanded by a Brigadier-General and each with 10
as shown in Figure 4.
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In the operation of Tatmadaw, the first phase included evacuations, providing emergency
relief such as purified water, foods, household items, and shelter materials. Military aircraft of
Regional Air Force Squadrons also supported in the delivering emergency relief supplies to the
disaster-affected Regions. However, the military aircraft could carry only 6 tons per flight and
transported continuously to the disaster-affected regions. For places where there are no airfields,
the airbase has deployed some helicopters. In addition, the airbase headquarters has arranged the
delivery way of supplies and decided whether the aid should be sent by air or by boat based on not
only reports of chief ministers of disaster-hit regions and states but also the information of other
stakeholders.
After relief operation, the Tatmadaw operation units have focused on supporting the longer
term recovery of flood affected regions of the country with livelihood activities, cleaning of
contaminated ponds and infrastructure rehabilitation. Moreover, Tatmadaw has provided several
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physical, financial and transport assistances to all relief and rehabilitation undertakings to the best
of its ability. In order to more effectively carry out the tasks, it has operated with the regional
governments, local governments, police force, fire brigades, social organizations, humanitarian
organizations and NGOs. Moreover, Tatmadaw has coordinated with the relevant ministries
regarding for prompt repairs of communication systems and public service infrastructure such as
markets, schools, hospitals, roads and bridges and religious buildings, which were damaged by the
flood.
Typically, the operation has required an inclusive approach through the cooperation of
government, Tatmadaw, civil society organizations, INGO and NGOs. Firstly, at the macro level,
the Myanmar government has a National Committee for Natural Disaster Management (NCNDM)
and the aim of the committee is best to deliver aid and help for disaster victims in Myanmar. Some
of the members of the NCNDM are representatives of the Tatmadaw (Army, Navy and Air Force).
At the micro level, to ensure effective and timely humanitarian assistance to the disaster-
affected areas, Tatmadaw has operated with mobilizes operation units, resources and technology
assets that may assist to insufficient local resources. However, when Tatmadaw has practiced the
CMC in the operation, it has confronted several general environmental conditions as shown in
Figure 5. For instance, focusing on legal condition, although the operation units have a chance to
choose other options in the operation, the units need to follow emergency rescue order of military
command. Moreover, whether the operation units collaborate with other stakeholders, the units
need to follow the aim of the Tatmadaw to maintain a good political condition. As the demographic
condition of the Tatmadaw, although it has specialize human resource, they are not ready to well
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communicate and collaborative with other stakeholders. For instance, some soldiers are not willing
to follow the order of the regional administrative officer and some military officers are want to
control on the other stakeholders whether they willing to follow or not. Furthermore, regarding the
cultural condition, as the realistic structure of the Tatmadaw, the commander of the each operation
with the liaison officers and liaison offices as shown in Figure 6. To strengthen CMC in the
operation, despite the Tatmadaw deeply cooperated with the multi-stakeholders and also
participated in the operation, it has faced a lack of closer coordination and mutual understanding
among them in the reality (Aye, 2017). Moreover, collaborative action also delayed as the strong
vertical structure of the Tatmadaw and horizontal coordination is also required with all levels of
Tatmadaws operation units as the applying of limited regulation and procedure (e.g. INGOs and
NGO are could not directly connect to the commander of operation units or regional commander
and they can only connect with the appointed liaison officers of the Tatmadaw).
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Challenges
decision rights, restricted distribution of information, and constrained interaction among members.
Thus, as the organizational characteristic of Tatmadaw, its practice become inflexible, formalized,
Moreover, despite the Tatmadaw has established and enhanced linkages between its
operation units, the civil administrations and other relevant stakeholders, Tatmadaw have faced
several challenges in term of the mutual trust, collaboration and communication in the operation.
It resulted that not only postponing in relief operation but also significantly impacted on the CMC.
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Specifically, the leadership practices of Tatmadaw has restricted the numerous effort of the other
civil organizations. For instance, as the practice of the military centralized decision making and
the motivation of some military officers of the operation units who are willing to control the action
of other stakeholders, it has become as a restriction for the collaboration effort of the stakeholders.
challenges to the overall collaboration between the stakeholders and Tatmadaw. Furthermore, due
to the differing of not only organizational identity, organizational culture, but also communication
and information management, Tatmadaw has faced several challenges in the CMC and it has been
strongly impacting on the CMC of Tatmadaw. For instance, some stakeholders have kept their
information regarding the flood and they dont willing to collaborate information gathering with
the operation units. Moreover, some NGO practice small working groups in the dangerous area as
their job mission, this action has made as a burden to the operation units because Tatmadaws
operation units are the responsible unit to take care not only disasters victims but also those groups.
By considering on collaboration and coordination, some INGO and NGO are not willing
to fully participate as their organizational unique culture and system. Moreover, as having a higher
power of the Tatmadaw (e.g. member of NCNDM and responsible for regional operation) and
having huge general resources (e.g. human resources, relief equipment and technology) also
emerge as a power and resource asymmetries between Tatmadaw and the stakeholders.
Furthermore, as the actual practice of the Tatmadaw, it resulted in limited collaboration between
Tatmadaw and the stakeholders. Thus, whenever Tatmadaw has been coordinating and
collaborating in disaster relief, and resettlement, Tatmadaw had not achieved the optimal level of
CMC. Thus, the all challenges of CMC in disaster relief and resettlement have demanded the
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Tatmadaw to practice innovative ideas for not only collaborative arrangement but also
should be reexamined.
Collaborative Governance
In the CMC in the disaster relief and resettlement, it could be seen that what the general
environmental conditions had happened, which relevant stakeholders had participated, and which
challenges had occurred in the case. Specifically, it could be realized that how power and resource
imbalances between Tatmadaw and the stakeholders had happened and what constraints had
occurred in the collaboration for the stakeholders in the case. Thus, for getting an effective
outcome or optimal level of CMC, Tatmadaw should practice collaborative governance in the
further disaster relief and resettlement operation. So, if Tatmadaw practices collaborative
governance in the disaster relief and resettlement operation, the organization is necessity to
emphasize the following three elements as the model of collaborative governance. Among them,
before considering to practice the collaborative process, Tatmadaw should start to practice
facilitative leadership and institutional design reforming for the operation units.
Facilitative Leadership
when collaboration and coordination are weak, and power and resources are asymmetrically
distributed, then leadership becomes as a serious component. Because, leadership is essential for
setting and maintaining clear rules, building trust, facilitating dialogue, and exploring mutual gains.
Thus, Tatmadaw should practice by appointing the facilitative leadership in the operation units
and should give some level of distributive authority and accountability to the leader of operation
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units. Moreover, good collaborative leaders is a necessity to recognize the participation of the
as of organizational belief and structure which is as a formalized institutes. Thus, Tatmadaw has
been faced several challenges in the operation of disaster relief, and resettlement regarding the
CMC. However, although Tatmadaw is a very formalize and systematic institute, this organization
could not change organizational culture, and behaviors entirely. Thus, to achieve better CMC
between Tatmadaw and the multi-stakeholders, the specific operation units of Tatmadaw should
change as an organic organization due to their relevant operation especially in the future disaster
Collaborative Process
information sharing. Thus, Tatmadaw and its operation unit should practice face-to-face channel
oriented process and it would support to stakeholders for getting more opportunities to participate
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in the collaborative approach and mutual advantage. Moreover, it could reduce the barriers of
communication and which will support effective collaboration process. Also, it could develop not
only the process of building trust, but also mutual understanding, and the commitment of
is not a sufficient condition for effective collaboration process. However, the communication could
Moreover, building trust between Tatmadaw and the stakeholders is also an essential part
in the collaborative governance approach. In general, the collaborative process is not just about
collaboration and coordination but also about building trust among stakeholders and it could be
quite difficult to encourage. However, trust building is a time-consuming process that requires a
manage the consumption of time and budget for implementing effective trust-building. In contract,
if Tatmadaw cannot justify the marginal time and cost, then they would be lost the opportunities
of their collaborative strategy for the CMC in the disaster relief and resettlement.
critical element in the process. Actually, commitments is strongly depend on mutual trust. Thus,
based on the trust level of the stakeholders, they will respect to collaborate with Tatmadaws
operation procedure. High level of trust between Tatmadaw and the stakeholders is likely to
enhance commitment to collaboration. On the other hand, Tatmadaw should develop a shared
understanding of what they can collectively achieve together. The meaning of shared
understanding is to develop common purpose, common aims, common objectives, shared vision
and ideology. Thus, shared understanding can also imply agreement on the definition of the
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problem. Therefore, the development of commitment and shared understanding is also essential in
Lastly, intermediate outcomes from collaborative process is also a crucial part of the
effective collaborative governance and it can feed back into the further collaborative process.
Recommendation
This paper has traced the case of floods and landslides in 2015 and examined which
challenges had occurred in the CMC between Tatmadaw and the multi-stakeholders in that incident.
Thus, it needs to examine how Tatmadaw should respond to conditions of instability and which
approach should practice for the development of CMC in the disaster relief and resettlement.
Theoretically, collaborative governance could cover both formal and informal relationships in
problem solving and decision-making. Thus, Tatmadaw should practice the collaborative
governance approach in the CMC because it directly needs to engage with multi-stakeholders when
the conditions of instability. On the other hand, if Tatmadaw practices collaborative governance
approach for getting the optimal level of CMC and effective Civil-Military Coordination, the
organization should consider the feedbacks of early collaboration process because it could
As the proposed model of collaborative governance for Tatmadaw, the operation unit of
Tatmadaw should practice mechanistic to organic organization structure. Because, the mechanistic
organization could be suitable for stable general environmental conditions, and is very hierarchical.
conditions undergoing change. Generally, when the environment is stable, the mechanistic
organizational structure could work well because there is no need for complex decision-making,
operations could run smoothly without breakdowns. On the other hand, when the environment is
relatively dynamic and uncertain, the organic organizational structure could work best because
tasks are often changing and it would be able to respond quickly in the complex environments and
among the stakeholders. Moreover, in the disaster relief and resettlement operation, as the
requirement of tight integration and collaboration among the responsible stakeholders and different
functional areas, the rapid communication and information sharing is necessary for the operation
units of Tatmadaw.
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units, which should get empowered in making decisions. Moreover, all the operation tasks should
be mutually adjusted, so that each subtask and procedure is balanced with other subtasks and
procedures. Lastly, this study would suggest that Tatmadaw needs to form a specialize operation
units as the structure of organic organization by accompanying with all army, navy and air force
subunits and the operational procedure of specialize operation units should fulfil with collaborative
Conclusion
This study has supposed how Tatmadaw should respond to conditions of instability and
supposed an applicable approach for the CMC in the disaster relief and resettlement. In order to
get effective coordination between Tatmadaw and the multi-stakeholders and to get the optimal
level of CMC in disaster relief and resettlement, Tatmadaw should practice collaborative
governance, as well as the structure of operation units of the Tatmadaw, should apply as an organic
reduce the high costs of CMC in disaster relief and resettlement. Finally, this study would argue
that Tatmadaw ought to adapt its operation unit to organic organization system and should practice
collaborative governance approach in the future disaster relief and resettlement operation.
However, remaining questions for further study is whether Tatmadaw can practice collaborative
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