Asian Development Bank

Myanmar Civil Society

Consultation and Participation Plan

June 2015

TABLE OF CONTENTS

I.

Executive Summary..............................................................................................4

II.

Background...........................................................................................................5

III.

Methodology.......................................................................................................... 6

IV.

Civil Society Participation in Asian Development Bank Operations.................7

V.

Emerging Themes from Civil Society Consultations..........................................9

VI.

Consultation and Participation Plan Overview..................................................11

Appendix 1 Detailed Consultation and Participation (C&P) Plan..........................16

Appendix 2 Guidelines for Consultation Practice in Myanmar..............................20
Appendix 3 Overview of Civil Society in Myanmar.................................................23
Appendix 4 ADB Reengagement in Myanmar.........................................................24
Appendix 5 List of Consultations............................................................................26

ACKNOWLEDGEMENTS
This consultation and participation (C&P) plan, which is based on extensive discussions with a
wide range of stakeholders, was supervised by Lainie Thomas, ADB Social Development
Specialist (Civil Society and Participation), with major contributions from team members Paul
Donowitz and Aung Kyaw Phyo. Civil society expert Thein Swe provided valuable advice. The
C&P plan was produced under the Strengthening Civil Society Participation in ADB-Financed
Operations technical assistance (TA8289-MYA).
Winfried Wicklein, ADB Myanmar Country Director, initiated the C&P plan in 2012 as ADB was
preparing to resume lending in Myanmar, and over two years of consultations and developing
the plan, he provided valuable guidance and inputs. Peter Brimble, ADB Myanmar Deputy
Director also provided valuable guidance, inputs and enthusiastic support throughout the C&P
plan development process. The team is grateful to Alex Nyi Nyi Aung, External Relations Officer
for useful support, and to Pavit Ramachandran, Senior Environment Specialist and Jamie
Leather, Principal Transport Specialist for including them in consultations with project
stakeholders.
The team gratefully acknowledges the civil society members, business leaders, and government
counterparts whose advice and inputs are essential elements of this plan.

I.

Executive Summary

1. The Asian Development Bank (ADB) consults broadly and works in partnership with a diverse
range of civil society organizations (CSOs) across its developing member countries (DMCs).
This approach is a key part of ADB Strategy 2020, which emphasizes the need for broad
engagement with civil society, and is crucial to the success of ADB-financed projects.
2. In 2012, in response to ongoing reforms by the Government of Myanmar, ADB began a phased
reengagement that led to developing an interim country partnership strategy (ICPS), which has
since been extended to the end of 2016. This strategy provides a framework for reengaging in
Myanmar, including extensive consultations to develop a full country partnership strategy (CPS)
for implementation in 2017.
3. In 2012, ADB staff consulted broadly with civil society and other key stakeholders in Myanmar
on the design of the ICPS to ensure that the strategy suited complexities across the country. In
all of these consultations, participants stressed the need for ADB to engage broadly and
meaningfully with civil society, and make investment decisions that take account of both the
history and current challenges in different parts of the country. In response, in 2013, ADB
provided a technical assistance (TA) grant to formalize the banks commitment to civil society
consultation and participation in investment decisions. This TA drew on lessons from civil society
participation in other countries, ADBs pledge to respect local needs in Myanmar, and civil
society representatives call for ADB to adhere to its high social and environmental standards in
all of its operations in Myanmar.
4. The TA projects objective was to collaborate with key stakeholders in designing a C&P plan and
strategy that will ensure that civil society plays a meaningful role in helping to shape all aspects
of ADBs work in Myanmar and that ADB undertakes development that is environmentally and
socially sustainable.
5. The C&P plan outlined in this document is the result of extensive consultations held between
2012 and 2014 with a wide range of stakeholders to enhance the mutual understanding
between civil society groups and ADB. These stakeholders, both inside and outside Myanmar,
include representatives from civil society groups, communities affected by development
projects, officials in various branches and levels of government, the private sector, development
partners, political parties, ethnic armed organizations, and ADB staff and consultants. ADB
recognizes that civil society includes a wide range of interests and perspectives, and that
government structures, relationships, capacities, and challenges vary greatly in Myanmar.
Achieving success in ADB operations in Myanmar requires strong and comprehensive
partnerships with civil society.
6. The C&P plan identifies six target areas, with implementation actions, for active civil society
participation in ADB-financed operations in Myanmar: (1) developing country programs; (2)
preparing projects; (3) implementing projects; (4) improving capacity and internal coordination;
(5) developing consultation guidelines and protocols; and (6) improving the enabling
environment for civil society participation.
7. During the course of preparing the C&P plan, some civil society representatives stated strongly
that they will stop participating if they find that a development agencys consultations take place
too late in program or project development to have an impact, or worse, consultation is only a

formality, held to meet a requirement or just for good publicity. Critics stressed too that
notifications about consultations should be given well in advance, and if the subject is unfamiliar
to participants, easily-understandable briefing materials should be provided in local languages,
along with the invitation. During consultations, presentations and any handouts must be easy to
understand and adequate time allowed for discussion and debate. The C&P plan includes
guidelines on how to prepare for, conduct, and follow up on consultations.
8. The TA project to develop the C&P plan had broad government as well as civil society support.
The Ministry of National Planning and Economic Development facilitated activities, and a wide
range of civil society organizations engaged with ADB to support inclusive development in
Myanmar. These included community-based organizations, womens groups, labor unions, think
tanks, student groups, and political parties, as well as local and international advocacy,
environmental and human rights organizations.
9. This C&P plan aims to increase civil society participation as well as cooperation between
government and civil society in ADB-financed operations. This should promote transparency,
accountability, and empowerment for civil society and project-affected communities.

II.

Background

10. ADB recommenced operations in Myanmar in 2012 after an absence of nearly 25 years. ADB
did not provide direct assistance to Myanmar between 1988 and 2012, although it continued to
engage Myanmar through its participation in the Greater Mekong Subregion Program, regular
staff missions for economic monitoring, and participation in an assessment of damage and
needs following a major cyclone in 2008 (see Appendix 4). With offices in Nay Pyi Taw and
Yangon, ADB is supporting the key priorities articulated in the governments Framework for
Economic and Social Reform.1 These are sustainable and inclusive economic development, job
creation, and poverty reduction.
11. The ADB ICPS for 20122014,2 which has since been extended to 2016, matches both
Government of Myanmar and ADB priorities. These are building human and institutional
capacity, promoting an enabling economic environment, and creating access and connectivity
for rural livelihood and infrastructure development.3
12. ADB also adopts the approaches agreed to in the Busan Partnership for Effective Development
Cooperation.4 These emphasize building strong partnerships with diverse stakeholders,
including civil society, in order to ensure the relevance, efficiency, and effectiveness of ADBs
engagement. ADB consults with civil society, along with other key internal and external
stakeholders, both in developing ADB country policies, strategies and projects, and in evaluating
the success of these.

1 Government of Myanmar. 2012. Framework For Economic and Social Reforms . Nay Pyi Taw.
2 The CPS is the primary planning instrument guiding ADB operations in a DMC, as well as the monitoring and
evaluation tool that will track performance over the CPS period. The CPS identifies the priority areas where ADB will
provide support to the countrys development strategy and poverty reduction goals. Planning for a CPS is undertaken
in consultation with the government, development partners, and other stakeholders, including civil society.
3 ADB. 2012. Interim Country Partnership Strategy: Myanmar 20122014. Manila.

4 The Busan Partnership for Effective Development Cooperation. 2012.

5

13. ADB recognizes that CSOs have valuable expertise as well as relationships with local
communities that can add considerable value to ADBs country strategy and project planning,
and contribute to project implementation, monitoring and evaluation. By adopting best practices
in consulting with civil society organizations and encouraging their participation and
collaboration in ADB projects and operations, ADBs project success rates will rise and so will
overall development effectiveness.
14. ADB consulted with local stakeholders as soon as it began re-engaging in Myanmar and the
consistent message from civil society was that ADB needs to conduct responsible and inclusive
operations, and hold both itself and the government accountable in meeting the high standards
in ADBs public communication and safeguard policies.
15. Based on recommendations from civil society, in December 2012, ADB approved the technical
assistance (TA) grant Strengthening Civil Society Participation in ADB-Financed Operations. 5
The outputs of this grant were a Myanmar civil society brief that provides an overview of the
current state of civil society, stakeholder analyses of civil society in Myanmar, project-level
support so ADB teams can engage effectively with civil society, and this civil society C&P plan
for ADB in Myanmar.
16. This grant also supported ADBs efforts to understand the complexities of civil society in
Myanmar and aimed to ensure that the voices of diverse and often-marginalized stakeholders
are heard and taken into consideration in all ADB-financed operations. ADB experience has
shown that effective consultation and civil society participation builds local ownership of ADBfinanced projects, and provides critical, local-level feedback to both ADB and government that
improves project results.
17. To implement the TA grant and develop the C&P plan, ADB engaged a team of civil society
experts to lead a series of consultations and one-on-one meetings with a wide variety of
stakeholders. These included local and international CSOs, the private sector, development
partners, non-state armed organizations, and political parties, as well as government officials
and ADB staff and consultants. The goal in carrying out this TA was to gather recommendations
on how to strengthen civil society participation in all ADB-financed operations in Myanmar. In
conducting consultations on effective community-level engagement strategies, the team
targeted stakeholders in sectors and geographic areas relevant to ADB operations, as well as
project-affected communities.

III.

Methodology

18. In developing the C&P plan, the team began its work with a review of similar plans in other
countries, the consultation practices of other development partners in Myanmar, and successful
consultation practices in related contexts.
19. From October 2013 through October 2014, the team conducted informal one-on-one
consultations with local and international NGOs, primarily in Yangon, Pathein, Dawei, and
several rural townships. These consultations introduced the project and began identifying
challenges and opportunities for civil society participation.1

5 http://adb.org/projects/details?page=details&proj_id=46478-001
1 See Appendix 5.
6

20. In the course of developing the C&P plan, ADB conducted stakeholder analyses with relevant
Myanmar civil society organizations. The groups surveyed were HIV/AIDS-affected persons, as
well as people in the geographic areas targeted for ADB-financed operations (Bokepyin in
Tanintharyi Region, Ngaputaw and Thabaung in Ayeywady Region, and Hpa An in Kayin State).
These analyses provided ADB project teams with a greater understanding of civil society
activities, capacity, and dynamics, and made possible increasing civil society engagement in
project development.
21. As an important part of developing this C&P plan and related guidelines 2 on best practices, the
project team observed selected civil society consultations of ADB and other development actors
in Myanmar.3 The ADB project consultations were for the Comprehensive Education Sector
Reform project, Rural Livelihoods and Income project, energy master plan project, and the
Country Diagnostic Study. The team also observed World Bank consultations on community
driven development and its Country Partnership Framework, as well as the consultations of the
Myanmar Centre for Responsible Business for its impact assessment on Myanmars oil and gas
sector.4
22. In July and August of 2014, the team observed ADBs public civil society consultations in
Mandalay and Yangon in Myanmar, and Chiang Mai and Maesot in Thailand. In addition, the
team met with a few representatives of ethnic armed organizations and ethnic political parties to
gather their advice on how to conduct effective civil society consultations. In February 2015, a
team of ADB staff and consultants again met representatives of ethnic armed organizations and
ethnic political parties in Maesot and Hpa An.
23. Based on the desk research, consultations and one-on-one interviews, a draft C&P plan was
prepared and shared in consultations and seminars held in September and October 2014 with
civil society groups and representatives from the Government of Myanmar in Yangon, Mandalay,
Nay Pyi Taw, Chiang Mai, Maesot, and Washington, D.C. Feedback gathered during these
consultations was incorporated into the C&P plan.
24. The ADB briefed the Government of Myanmar about the results of the civil society consultations
and its proposed way forward during a series of ADB awareness seminars in late 2014 and
subsequent programming meetings in 2015.

IV.

Civil Society Participation in Asian Development Bank Operations

25. Since the overarching goal of ADB in Asia and the Pacific is to achieve sustainable results in
reducing poverty, development operations must respond to the needs of people, and especially
the poor. In order to achieve this, engagement with stakeholders at all levels must take place
throughout the operational cycle, including policy and strategy formulation, project development,
implementation, monitoring, and evaluation.
26. Over the years, ADB has been improving its approach to stakeholder engagement. ADB
Strategy 2020 states that, in order to achieve positive results that are sustainable, participation

2 See Appendix 1 for guidelines on consultations that came from participants during the ADB-facilitated TA
consultations.
3 See footnote 10.

4 Myanmar Centre for Responsible Business. 2014. Sector-Wide Impact Assessment (SWIA) of Myanmars Oil &
Gas Sector, draft for Consultation.

of relevant stakeholders in ADB operations should result in stakeholders developing a sense of

ownership that improves quality during all project phases, and playing a key role in providing
knowledge and expertise on how to best conduct participatory processes.
27. ADB defines meaningful consultation as a process that (i) begins early in the project
preparation stage and is carried out on an ongoing basis throughout the project cycle; (ii)
provides timely disclosure of relevant and adequate information that is understandable and
readily accessible to affected people; (iii) is undertaken in an atmosphere free of intimidation or
coercion; (iv) is gender inclusive and responsive, and tailored to the needs of disadvantaged
and vulnerable groups; and (v) enables the incorporation of all relevant views of affected people
and other stakeholders into decision making, such as project design, mitigation measures, the
sharing of development benefits and opportunities, and implementation issues.1
28. ADB works with a broad range of CSOs in fighting poverty and promoting prosperity in the Asia
and Pacific region. ADB's partners in the region include NGOs, community-based organizations,
labor unions, research institutes, and foundations, and ADB cooperates with these at the policy,
country strategy, and project levels. Over two-thirds of ADBs sovereign loans, grants, and
related project preparatory technical assistance (PPTA) have included elements of civil society
participation. Generally, ADB does not finance NGOs directly, but instead lends money to its
client governments which in turn may employ NGOs to implement components of its projects.
NGOs may also be selected by ADB as consultants on its projects.
Participation at the policy level
29. Civil society, along with other key internal and external stakeholders, provides inputs during the
development and review stage of institution-wide ADB policies and strategies. This includes
consultations on new polices at ADB headquarters as well as in developing member countries.
This consultation process aims to identify the views of CSOs and advocacy groups and ensure
that these groups can participate in formulating policy and strategy papers. During ADB Annual
Meetings, a civil society program enables CSOs to engage with ADB staff on a variety of issues,
contribute to policy discussions, and network with CSO participants from across the region.
Country-level civil society participation
30. The country partnership strategy is the medium-term development strategy and operational
program that guides ADB operations in each developing member country. National-level CSOs
and advocacy networks are typically engaged during the development and review of each
countrys program. However, in recent years, ADB has included more local NGOs, communitybased organizations, and other stakeholders from outside the national capital in the consultation
process.
Participation at the project level
31. In ADB developing member countries across Asia and the Pacific, civil society participates in
ADBs loan, grant, and technical assistance projects. These projects, which span a number of
sectors, engage a broad range of CSOs and their networks at all stages of ADBs project cycle.
This engagement ranges from sharing information informally, and participating in structured
consultations on project design, to collaborating with ADB and its counterparts on project
implementation by serving as project advisors, partners, co-financiers, or evaluators.
32. During project identification, CSOs familiar with a projects geographic area and residents can
provide invaluable information about local conditions and community priorities. At the fact-

1 ADB. 2009. Safeguard Policy Statement. Manila.

8

finding stage of project development, CSOs, and especially those working at the grassroots
level, can contribute to the initial stakeholder analysis that identifies which local groups have an
interest in the project, what capacities they have, and whether they are likely to support or
hinder project implementation.
33. Civil society and local communities also contribute to ADB projects through participating in
formal consultations. Although, as required by ADBs safeguards, the borrower/cliente.g., the
government, state enterprise or private company, or a combination of thesehas primary
responsibility for undertaking consultation, ADB is responsible for ensuring that borrowers and
clients meet this obligation.2

V.

Emerging Themes from Civil Society Consultations

34. The extensive consultations and analysis that led to developing this C&P plan 1 and positive
feedback from participants confirms the value of these efforts, as does the wealth of useful
information gathered through these consultations. Some of the recommendations validated
ADBs activities or planned activities in consultation and participation, while other
recommendations were new and have been subsequently integrated into the C&P plan.
35. Civil society stakeholders familiar with the major development partners in Myanmar noted that
although ADB is not the largest development partner in Myanmar in terms of its budget, the
Government of Myanmar regards ADB as an influential player. Civil society groups made the
following recommendations:

ADB should make a concerted effort to understand and take into account the long
history of distrust between the government and civil society, and especially between the
government and ethnic minorities.
ADB should not look for quick wins, but should instead make its decisions very
carefully, especially when working in conflict-affected areas such as Kayin State.
Taking a cautious approach does not mean that ADB should not operate in Myanmar or
not fund projects in conflict-affected communities, rather that ADB must recognize that
extensive consultation is necessary to ensure ADBs development vision aligns with that
of local communities.
In communities where achieving security continues to be a challenge, ADB should take
great care to avoid heightening tensions or conflict.
Since the situation in conflict-affected areas is often much more complex than it appears
initially, ADB should ensure a strong understanding of the local context and dynamics;
this could be addressed by engaging more ethnic minority national staff or consultants
and also cooperating with local CSOs that understand the local context well and can
serve as intermediaries in local communities.
ADB should take care to promote convergence in service delivery and not finance
activities that usurp or disrupt non-state service delivery which has evolved over time to
bridge the gap in services that are traditionally provided by the state.
Civil society groups are eager to participate in ADB programming and operations
provided that their participation begins at the design stage and that they can help to
ensure that projects really do meet the needs of the intended beneficiaries. However,

2 ADB. 2009. Safeguard Policy Statement. Manila.

1 See Appendix 5.
9

ADB needs to ensure that civil society groups understand how ADB operates. Also ADB
should be prepared to provide financial support to enable civil society participation when
ADB requests this.
Because civil society groups and local communities are often unfamiliar with, or
confused about, ADB policies, projects, timelines, and responsibilities, as well as what
steps will follow consultations, ADB needs to address this lack of information.

36. Overall, ADBs efforts to engage civil society have been well received in Myanmar and ADB is
seen as genuinely attempting to increase consultation and participation in its work. Groups wellknown for criticizing development agencies, including ADB, have expressed pleasant surprise at
the efforts ADB has been making to live up to the ideals of its safeguard policies. In the course
of consultations on this C&P plan, one international advocacy NGO representative stated:
It is important and is recognised that the ADB is proactively engaging with civil society
on the development of a broader engagement process, on building understanding of the
ADB operations and processes and on future investments in Myanmar. In this respect, it
seems to me that the ADB is ahead of the curve.
37. However, such support for ADBs approach is not universal and some in civil society groups
continue to believe that while most development actors talk about responsible investment,
stakeholder engagement and meaningful consultation, in fact, their consultations are
perfunctory, token exercises. These critics believe that agencies only engage in consultation so
that they can claim to have done so. Civil society groups have repeatedly complained that
consultations come too late in a projects development phase, and rarely ever occur during
strategy formation. Also consultations are often conducted without giving civil society groups
and communities adequate information or time to prepare and participate in a meaningful way,
and the consultations very rarely change outcomes. Civil society groups have expressed
concern as well that the structure of ADB consultations is one-sided, including mainly
presentations by ADB and insufficient time for meaningful discussion. The director of a leading
local CSO, Paung Ku, summarized these concerns in a public online forum:
There is a difference between meaningful and meaningless consultations! The
consultation meetings are very meaningful from the side of organizers as they are
intentionally designed to prevent true participation of civil society. The common
strategies or tactics used by organizers are: Provide loads of information usually with
technical jargon and in English mostly, and available online with only very short advance
in time. If Burmese version is available, it is usually with bad quality language and
usually does not match with English version. Information is never in ethnic languages.
The sessions are designed with long presentations from organizer side with very short
session on Q&A In all cases, organizers do not include discussion points in meeting
minutes. Overall, they are designed only for the legitimacy. World Bank and Asian
Development Bank are experts on such consultations.2
38. Civil society groups expressed frustration that they are overburdened with development agency
and private sector consultations that often concern subjects that are beyond their expertise.
Since civil society groups are provided with little helpful information in advance of consultations,
they are forced to spend a great deal of time and resources on preparation, but do not achieve
results to justify their continued engagement. In fact, some civil society groups are so frustrated

2 Paung Ku forum. January 9, 2015. Available online. https://www.facebook.com/PaungKu?fref=nf

10

with myriad consultations that result in few or no modifications to strategies or projects, they are
considering refusing any future engagement with development actors.
39. Another key point concerned government-civil society cooperation. Although in the past, civil
society and government have often been at odds with each other in Myanmar, participants told a
number of positive stories about recent successes in government-civil society cooperation.
While distrust of government remains, civil society groups were consistent in emphasizing that
ADB should cooperate with the Government of Myanmar in order to encourage a peoplecentered approach to project governance and sector and thematic reforms. This desire for
better cooperation was also voiced by some government implementing agencies which are
actively encouraging civil society participation in ADB-financed operations.
40. For example, the Department of Rural Development of the Ministry of Livestock, Fisheries, and
Rural Development (DRD), the implementing agency for the Enhancing Rural Livelihood and
Income project, has stated on numerous occasions that it welcomes more civil society
participation in the project. Responsible officials from DRD specifically requested that ADB work
with civil society to increase its participation in the township selection process.
41. However, this eagerness to collaborate with civil society is not uniform across all ministries at
the national level, or at all levels of government. While some changes in government-civil
society relations are evident, especially when compared to pre-2012 levels, civil society groups
expressed concern that ADB may not hear what local people have to say if consultations are
arranged by the government. In rural areas, in particular, people may be afraid to speak out
against the governments development plans. Some civil society interviewees stressed that a
trust gap remains between some local communities and the government. They recommended
that ADB works through trusted local organizations when engaging with communities as these
CSOs should be able to increase local awareness and participation in ADB-financed operations.
42. Civil society representatives felt strongly that there is unique opportunity in Myanmar for CSOgovernment collaboration due to the governments openness to change and to embracing new
models of development and participation. However, government staff are overwhelmed by the
demands of participatory development approaches, and they also have little experience with
them. Civil society interviewees asked ADB to engage with the Government of Myanmar as the
best way to support an enabling environment for civil society. During an ADB civil society
awareness seminar in Yangon in 2014, a participant summarized this position, stating,
Experience shows that government is not fully listening to the voice of civil society. We want the
ADB to exert influence on government regarding policy reforms that reflect the voice of the
public.

VI.

Consultation and Participation Plan Overview

43. Under six broad headings, this plan outlines strategies, objectives and activities to increase civil
society participation in ADB-financed operations in Myanmar. These headings are country
programming, project preparation, project implementation, capacity development and internal
coordination, consultation guidelines and protocols, and an enabling environment for civil
society participation.
Increase civil society engagement in ADB country programming

11

44. Civil society already plays a crucial role in ADB Myanmars country programming and
operations, and the C&P plan describes mechanisms for widening civil society consultation and
participation in all major ADB programming activities.
45. To embed civil society participation in ADB programming, ADB will convene a representative
civil society advisory body comprising respected leaders from different sectors. This body will
advise ADB on country programming and operations on an ongoing basis, and facilitate
communication between civil society and ADB. The advisory body will also advise ADB
Myanmar about geographic areas or projects of potential concern, and help ADB to identify
opportunities for greater civil society participation.
46. The civil society advisory body will begin its work by advising on the preparation of the Myanmar
CPS 20172021, scheduled for ADB Board consideration in 2016. Over the course of CPS
design and implementation, the civil society advisory body will advise ADB how to consult and
collaborate as effectively as possible with relevant stakeholders, and especially local
communities, so that the results of the CPS are beneficial and sustainable.
47. To increase transparency, information disclosure, and understanding of ADBs operations in
Myanmar, ADB Myanmar will improve mechanisms for regular communication with civil society.
ADB policies and knowledge products will be translated and made widely available in Myanmar
and other relevant ethnic languages, and information on upcoming consultations will be posted
on the ADB website and Facebook page, and also sent out via Twitter. Additional ADB Myanmar
resources will be dedicated to supporting consultation and participation, including hiring a
national safeguards officer and consultants who are knowledgeable about sensitivities in conflict
areas.
48. To address the challenges of operating in a country with a long history of conflicts, some of
which are still under way or under negotiation, ADB will carefully assess whether to undertake
new activities in conflict-affected areas. To ensure that ADB Myanmar staff understand
Myanmars complex history and have the knowledge and skills necessary to work in conflictaffected areas, ADB staff will receive special training. The initial use of conflict-sensitive
approaches will be applied in ADBs work in Kayin and Mon States.
Strengthening project planning and implementation engagement
49. To support civil society engagement in all phases of ADB project development and
implementation, ADB will tailor its communications materials to the needs of its diverse
audiences. This includes developing publications in relevant local languages that explain ADB
policies and procedures and distributing them widely in project-affected communities. ADB will
also organize seminars and other awareness-raising programs on ADB strategy and operations
for diverse stakeholders, including civil society groups, the private sector and other key
development actors.
50. During a projects preparatory stage, ADB will hold consultations with relevant civil society
groups and local communities and, where possible, develop partnerships with trusted local
CBOs. Also, during the preparatory stages of projects, ADB will conduct stakeholder analyses
and facilitate civil society participation in project planning, including seeking civil society inputs
on the choice of monitoring and evaluation methods and indicators. In line with ADBs Public
Communications Policy, as early possible in a projects development, ADB will ensure that

12

information on the project is available and accessible, 1 and also establish local complaints
mechanisms to address any project-related concerns.
51. Through thematic working groups and other civil society networks, ADB will identify civil society
groups that have extensive experience in the sectors and geographic areas of proposed ADB
projects and who are interested in advising and collaborating with ADB over the length of the
project. Also, early in a projects development, ADB will support government efforts to engage
with civil society by providing relevant training and other support, and by helping to conclude
agreements between government and civil society on how consultation will be carried out.
52. A national safeguards officer, who will be recruited by ADB, will work with project teams,
government implementing agencies, civil society groups and local communities to support full
implementation of ADBs communication and safeguard policies, as well as local grievance
mechanisms. In addition, ADB Myanmar staff will conduct periodic site visits to consult with local
communities to ensure that ADB staff understand and can address any negative impacts of
ADB-financed projects.
53. To demonstrate the value of project-level civil society participation, ADB will explore
implementing a pilot consultation and participation project, in collaboration with supportive
government stakeholders. An essential component of this pilot would be consulting with leading
womens and gender-focused organizations.
Capacity development and internal coordination
54. ADB team leaders, specialists, ADB Myanmar staff, and consultants are all responsible for
implementing effective engagement with civil society. To ensure that they all have the necessary
knowledge and skills to conduct meaningful consultations with civil society groups and local
communities, and especially those in conflict-affected areas, ADB Myanmar will provide its staff,
consultants, borrowers, and partners with appropriate training and other resources.
55. Internal coordination and information sharing is key to efficiently and effectively engaging with
civil society. ADB Myanmar will develop better ways to communicate information about
upcoming consultations, strive to keep up to date contact information on CSOs, and make sure
information about civil society engagement is shared more efficiently within ADB.
56. To take account of the complex environment in Kayin and Mon States, two historically conflictaffected regions where ADB has several ongoing and planned projects, ADB has adopted a
deliberate and conflict-sensitive strategy.
57. ADB is consulting broadly in conflict-affected areas, working with the state government, civil
society and, with the governments encouragement, consulting with ethnic armed organizations.
To facilitate this consultation and project participation, ADB is engaging organizations that have
trusted relationships with local communities in conflict-affected areas, including the Karen
Peace Support Network in Kayin State.
58. ADB has developed an informal, internal coordination mechanism as well, the Karen-Mon
Working Group, which comprises ADB Myanmar staff, project team leaders and context experts.
This group will coordinate overall strategy and project activities in Kayin and Mon States, and
ensure that all ADB staff and consultants are trained and have ongoing guidance on working in
conflict-affected areas.

1 ADB. 2011. Public Communications Policy. Manila.

13

59. However, as the human and financial resources of ADB Myanmar are limited, it is important not
to raise expectations beyond what ADB can provide.
Guidelines on practices that promote effective consultation and participation
60. Establishing and implementing best practices for consulting with project-affected communities
and civil society, and supporting the governments engagement efforts are essential for
increasing effective civil society participation in ADB-financed operations in Myanmar. Towards
this, ADB has drafted guidelines on good consultation and participation practices. 2 This is based
on best practices in civil society and community engagement in Myanmar and other countries;
the recommendations made during extensive consultations with civil society, development
partners, the private sector, and the Government of Myanmar; and discussions within ADB. After
distributing ADBs draft guidelines in Myanmar language and English, getting feedback from the
ADB civil society advisory body and other stakeholders, and harmonizing the guidelines with
those of other development partners, ADB will publish the guidelines in English, Myanmar, and
relevant ethnic languages. The guidelines will also be posted on ADBs website and distributed
to civil society and project-affected communities during public consultations.
61. The goal of the ADB civil society consultation guidelines is to make ADB and its borrowers and
partners engagement with civil society and project-affected communities as effective as
possible, while at the same time minimizing the amount of time that stakeholders spend
preparing for and taking part in consultations. The ADB guidelines attempt to address these
issues, including demonstrating how civil society recommendations are incorporated into ADBfinanced projects/operations. For projects in conflict-affected areas, a consultation and
engagement strategy is being developed by ADBs Karen-Mon Working Group.
62. For project-affected communities that have little experience in taking part in consultations, ADB
will encourage stakeholders to nominate a representative group to advise ADB on how to plan
and carry out effective consultations.
Strengthening the enabling environment to support participation in governance 3
63. ADB is committed to supporting an enabling environment that gives civil society a meaningful
seat at the development table and which treats CSOs as development actors in their own right.
A key area for civil society participation is the Government of Myanmars Sector Working
Groups (SWGs). The SWGs were set up by the government at the first Myanmar Development
Cooperation Forum in 2013 to ensure effective coordination of relevant stakeholders at the
sector level, and to improve development effectiveness overall in Myanmar. In response to calls
from civil society, ADB will continue to facilitate meaningful civil society participation in the
SWGs.
64. ADB is committed to supporting the governments call for people-centered development, in line
with the Framework for Economic and Social Reform which was adopted under the Nay Pyi Taw
Accord for Effective Development Cooperation. 4 In cooperation with executing agencies and
implementing departments, ADB will promote civil society partnerships, participation,

2 See Appendix 1, Guidelines for Civil Society Consultations in Myanmar.

3 An enabling environment is a set of interrelated conditions, such as legal, organizational, fiscal, informational,
political, and cultural ones, that impact on the capacity of development actors, including civil society organizations, to
engage in development processes in a sustained and effective manner. See World Bank Social Development Family,
CDD Learning Module, Thindwa, J. 2001. Enabling environment for civil society in CDD projects.
4 See Footnote 1.

14

consultation, and engagement in overall ADB Myanmar strategy and project design,
implementation, and monitoring. In cooperation with government implementing agencies, ADB
will prioritize civil society participation, information disclosure and transparency, and develop
communication and participation plans for all of its projects. To achieve this, ADB will conduct
awareness-raising activities for relevant Union, state/region and township-level agencies on the
ADB public communication and safeguard policies, the consultation guidelines, and ADBs
overall approach to civil society participation. Critical to this effort will be support from ADB
management.
65. Where appropriate, ADB will facilitate civil society participation by embedding participation into
loan and TA documents, and when possible, ADB will also provide reimbursement for civil
society participants in ADB-financed project consultations.
Conclusion
66. As ADB reengages in Myanmar, it places a high priority on engaging diverse stakeholders to
increase ADBs understanding of the complex and dynamic operating environment in the
country and also to ensure that ADBs strategies, policies, and operations are relevant, effective,
efficient and sustainable.
67. ADB recognizes the unique challenges present in Myanmar: diverse ethnic groups and cultures;
weak and under-resourced governance, particularly at the local level; conflict within and
between state and non-state actors; non-state service delivery in some conflict-affected areas; a
dynamic and rapidly evolving political and economic transition; a tradition of distrust between
civil society and government, and especially between ethnic groups and government; and a long
history of conflict in many areas of Myanmar and ongoing conflict in some.
68. There are many positive developments in Myanmar. Many government officials support
decentralization and participatory development, particularly at the grassroots level, and seek
community-based organization participation. ADB should support these stakeholders through
training, capacity building, and direct, project-level support, so that they can continue to
contribute effectively.
69. Both opportunities and challenges lie ahead for ADB in Myanmar. With support from Myanmar
civil society, the Government of Myanmar, other development partners, and ADB management
and staff, this consultation and participation plan can be successfully implemented promptly and
achieve ongoing civil society participation in ADB projects and operations. It should also
contribute to understanding and support from local communities in the design, implementation
and monitoring of ADB-financed projects, and ultimately result in projects that truly benefit the
people of Myanmar.

15

Appendix 1 Detailed Consultation and Participation (C&P) Plan

A. Country Programming: Increase Civil Society Engagement in ADB Country Programming
Action
1. Develop the means for on-going
civil society participation in all
operations.
2. Engage civil society in the
development of the Country
Partnership Strategy.
3. Solicit civil society feedback on
current programming.
4. Raise awareness of ADBs
policies and practices.

5. Develop communication tools

appropriate for Myanmar civil
society and project-affected
communities.

B.

Activity
Convene an ADB civil society advisory body comprising well-respected representatives
from diverse backgrounds and sectors.

Timeline
2015

With the ADB civil society advisory body, develop a CPS consultation plan and include
civil society reviews of the draft.
Implement CPS consultations with a wide range of stakeholders, including civil society
As part of Country Programming Missions, on an annual basis, convene consultations
with civil society.
Convene quarterly civil society roundtables in the key areas around ADB projects.
Convene training, workshops, and seminars on ADB operations and policies for diverse
stakeholders throughout Myanmar.
Produce and widely distribute local language information products on ADB, and its
policies and activities in Myanmar.
Publish a calendar of upcoming consultations two weeks in advance.
Publish, in a timely manner, summaries of completed consultations with next steps.
Maintain a public, regularly-updated matrix of all planned and approved projects.
Publish project updates on ADBs website, Facebook page, & send by Twitter.
Develop a map showing ADB projects in Myanmar.

20152016

20152017

20142017

20152016

Projects: Increase Civil Society Engagement in Project Planning

Action
1. Develop specific strategies and
actions during the project design
phase to increase civil society
participation in projects.

2. Provide ongoing civil society

engagement advice and support to
project teams.
3. Support strategies for

Activity
Project teams should identify, through a civil society stakeholder analysis, relevant civil
society organizations (CSOs) to facilitate community consultations during project design
and fact-finding missions as well as for monitoring over the course of the project.
During PPTA feasibility studies, PPTA teams should conduct consultations with both
project-affected communities and relevant CSOs per the projects C&P plan.
ADB Myanmars external relations officer should support project teams and the
implementing agency in implementing the Stakeholder Communication Strategy.
Depending on the resources available, ADB Myanmar should provide value-added
services for project teams.

Timeline
20152017

Provide support to the government implementing agency in its work to design and carry

20152017

20152017

16

cooperation between government

and local communities in project
planning, implementation and
monitoring.

4. Adopt and implement a conflictsensitive plan for programming in

conflict-affected areas.

C.

20152016

Increase Civil Society Engagement in ADB Project Implementation

Action
1. Integrate local civil society
groups participation into project
implementation.
2. Continuously adapt project-level
communication strategies to meet
stakeholder expectations.
3. Support government delivery of
meaningful consultation.

D.

out consultations on ADB-financed projects.

As early as possible, design and implement effective communication mechanisms for
reaching project-affected people and the wider audience of stakeholders.
During the early project planning stages, prior to consultations, prepare information
about the project and use appropriate communications mechanisms to ensure these
communicate effectively.
Consult with and reach consensus among government, ADB and civil society on
consultation and participation plans.
At all project stages, hold consultations that encourage the participation of key
stakeholders, including civil society, community, and government.
Develop mechanisms that allow affected people to communicate directly, easily and
privately with ADB project teams.
Respond rapidly to arising issues and be flexible and creative in designing solutions.
Support local civil society groups in their engaging with local communities about ADBs
policies and in their conducting project monitoring.
Improve the knowledge and capacity of ADB country staff on conflict-related issues, in
general, as well as those which are project specific.
Develop guidelines and protocols on working in conflict-affected areas.
Through consultations with diverse local stakeholders, evaluate whether or not, and
how to undertake activities in conflict-affected areas.
Integrate conflict sensitive approaches in ADB projects in Kayin and Mon States.

Activity
Identify local civil society groups that could partner with ADB on project implementation.
Where appropriate, support civil society participation in project-related procurement and
consultancies by providing them with comprehensive workshops on ADB procurement
and contracting opportunities.
During consultations with affected people, identify areas of concern and develop relevant
communication tools to address local information gaps.

Timeline
20152017

ADBs national safeguards officer should support the government implementing agency
through periodic site visits and by providing support on the governments consultations.

20152017

20152017

Capacity Enhancement and Internal Coordination: Support ADB Project Teams Engagement with Civil Society

Action
1. Increase the capacity of ADB
staff and consultants to effectively

Activity
Conduct training for all ADB team leaders, ADB Myanmar staff, and selected specialists
and consultants on ADBs Myanmar engagement, as well as ADB consultation guidance

Timeline
20152016

17

engage with civil society.

2. Support government
implementing agencies in
conducting meaningful
consultations and implementing
C&P plans.
3. Update and develop protocols
for information sharing and
coordination.

4. Develop coordination
mechanisms within ADB Myanmar.

E.

and protocols.
For specific projects, project teams and ADB Myanmar should jointly develop strategies
and activities that support implementing agency consultations.
ADB Myanmar should provide training to implementing agencies to fulfill the
requirements of the ADB Safeguard Policy Statement for meaningful engagement and to
implement C&P plans that are developed as elements of Initial Environmental
Examinations, EIAs, and Resettlement Plans.
Collect and share within ADB lists of civil society and other contacts classified by project,
sector and issue, as well as lists of those who participate in consultations.
Share information across ADB project teams on all project-related civil society
consultations.
Ensure back-to-office reports include information on any civil society consultations held
during missions as well as necessary follow-up activities.
At the conclusion of their missions, all project teams should debrief relevant ADB
Myanmar staff on the outcomes of their civil society consultations.
Establish the internal Karen-Mon Working Group in ADB Myanmar led by key team
leaders who coordinate activities in Kayin and Mon States.
Based on the civil society engagement strategy and conflict-analysis, develop and
implement a plan for engaging diverse stakeholders in areas of ADB project clusters.
Identify civil society and local community development priorities through conflict-sensitive
research that feeds into comprehensive Kayin and Mon State strategies.
Consider similar a coordination mechanism for future ADB project clusters.

20152017

20152016

20142016

Establish ADB as a Leader in Best Practice Consultations in Myanmar

Action
1. Establish and implement bestpractice consultation guidelines for
ADB consultations in Myanmar
(See Appendix 1).

2. Incorporate civil society

recommendations and feedback
into ADB-financed operations.

Activity
To ensure culturally-appropriate design and implementation, develop guidelines through
consultations with civil society, development partners, government, and other
stakeholders.
Where possible, harmonize guidelines with other development partners.
Communicate consultation guidelines to all key stakeholders in relevant local languages.
Support ADB project teams and government implementing agencies in adopting the
guidelines through providing them with training and on-going support during project
planning and implementation.
Develop standardized consultation documentation protocols and templates.
Include feedback from consultations in all Initial Environmental Examinations and
Resettlement Plans by adding in information on whether and how feedback is used, and
how this feedback should be communicated to all consulted stakeholders.
Provide guidance to project teams on feedback procedures.

Timeline
20152016

20152016

18

3. Engage civil society through

sector, issue-based, and regional
coordinating bodies, networks and
other multi-stakeholder initiatives.
4. Conduct additional consultations
and adopt enhanced consultation
protocols in conflict-affected areas.

F.

Implement feedback procedures for all civil society consultations.

Explore linkages with the Local Resource Center, the INGO Forum, and the ADB civil
society advisory body to identify thematic and issues-based civil society networks that
could convene project and operations-level consultations by issue and geographic area.
In areas under the control or influence of ethnic armed groups or ethnic representatives,
when possible, consult directly with these actors.
Consult directly and repeatedly during all project stages with project-affected people as
well as their broader community.
Conduct community-level consultations with a facilitator who is knowledgeable about the
local context, as well as known and trusted by the community.
In areas where there is distrust between government and local communities, holding
separate consultations may be appropriate; in such cases, prior to the consultations,
consult with ADB Myanmar.

20152016

20152017

Strengthening the Enabling Environment: Support Civil Society Participation in Governance

Action
1. Increase civil society
participation in Development
Sector Working Groups.
2. Mainstream civil society
participation, transparency and
disclosure in project design and
implementation with executing and
implementing agencies and
departments.

3. Support convergence between

government and non-state service
providers during project planning
and implementation phases.

4. Increase support and resources

for civil society engagement.
5. Strengthen capacity of CSOs to
participate as service providers in

Activity
Help facilitate meaningful civil society participation in the Development Sector Working
Groups.

Timeline
20152017

Ensure initial and consistent discussion of civil society participation, information

disclosure, and transparency with implementing agencies.
Identify opportunities for formal or informal participation of local civil society and affected
communities, together with government and national-level CSOs, including the ADB civil
society advisory body.
Cooperate with development partners on supporting government executing and
implementing agency engagement with civil society through trainings, seminars, and
other awareness raising and capacity building initiatives.
On ADB-financed projects, participate in, and support efforts to increase convergence
between non-state and government service delivery agencies.
Hold consultations with experts on convergence related to ADB-financed operations.
Consult early with non-state service delivery providers together with government.
As required in the SPS, do not fund projects that usurp or bypass existing, non-state
service delivery mechanisms without broad community support.
Solicit senior ADB management support for civil society engagement.
Increase financial and staff resources for civil society engagement.
Hold seminars (s) on ADB procurement and business opportunities.
Communicate project-related business opportunities to civil society groups through civil

20152017

20152017

20152017
20152017

19

ADB-financed projects, including

through procurement training.
6. Enable civil society group
participation in ADB-financed
activities through reasonable
reimbursement measures.

society networks.
Develop standard reimbursement guidelines for civil society participants who attend ADB
activities.
Allocate sufficient budget for reimbursing civil society participants.
Prioritize reimbursing civil society participants who come from outside urban areas.

20152017

20

Appendix 2 Guidelines for Consultation Practice in Myanmar

70. Objective: Provide recommendations for conducting best-practice consultations for ADBfinanced operations in Myanmar. These recommendations will be continuously improved
through stakeholder inputs.
71. Definition of meaningful consultation: a process that (i) begins early in the project
preparation stage and is carried out on an ongoing basis throughout the project cycle; (ii)
provides timely disclosure of relevant and adequate information that is understandable and
readily accessible to affected people; (iii) is undertaken in an atmosphere free of intimidation or
coercion; (iv) is gender inclusive and responsive, and tailored to the needs of disadvantaged
and vulnerable groups; and (v) enables the incorporation of all relevant views of affected people
and other stakeholders into decision making on project design, mitigation measures, the sharing
of development benefits and opportunities, implementation and other concerns issues.
72. Consultations are not meetings about a project or initiative with a question and answer
session on topics such as how resettlement will take place; nor are they only informationsharing meetings. Consultations are also not held only to fulfill a requirement or to suit public
relations purposes.
73. Consultations are an element of participation: Participation encompasses four main
approaches: information generation and sharing, consultation, collaboration, and partnership.
These four cover a range of relationships between decision-makers and stakeholders, and the
extent of each participants initiative and activity may differ considerably. How rigorously each
approach is implemented may vary too. While consultation is an element of participation, it does
not, on its own, rise to the standard of formal collaboration or partnership.
74. What are the benefits of consultation? Consultations have many benefits. They can
contribute to improving project design and implementation, and thus to the sustainability of
projects; they can provide useful information, insights and recommendations that ADB would not
otherwise know about; and they can reduce the likelihood of undesired project outcomes, and of
complaints arising during project implementation. Consultations can also raise awareness and
understanding, and reinforce beneficiaries ownership of a project.
75. Key Features of Best-practice Civil Society Consultations in Myanmar
a. Initial public awareness campaign including transparent, timely, and accessible disclosure of
all information well in advance of the event
b. Informative, inclusive, well moderated public consultations
c. Integration of feedback and communication of consultation feedback to participants
Specific Elements of Best-Practice Civil Society Consultations in Myanmar
Consultation preparations
1. Be clear in advance about the objective(s) of the consultation, the issue(s) about which civil
society input is being sought, and keep the meeting focused on these specific issues and
questions.
2. Prior to scheduling a consultation, contact ADB Myanmar and local civil society
organizations to ensure that the venue, timing, and other considerations are appropriate,
and there is no conflict with other events. The place for the consultation should be
convenient to the participants, as well comfortable and commonly used by them.

3. Consider having a pre-consultation meeting with a local group or network to learn about the
local context and discuss the consultation methodology. This step may be particularly useful
in rural areas, areas with a unique ethnic identity, and conflict-affected locations. Local civil
society groups can advise too on issues such as the best day and time of day to hold a
consultation to ensure representative attendance, which location will make participants will
feel most comfortable, and other dynamics such as the effective engagement of traditionallymarginalized groups. Discuss how to solicit feedback on the consultation process, including
from illiterate participants, if applicable.
Consultation invitations
4. Announce the consultation two weeks in advance, at the very least. More prior notice should
be provided in rural areas, given the longer times required for sharing information and
making logistical arrangements.
5. So that participants are informed and can prepare well for the consultation, the initial notice
should go out well in advance and be accompanied by comprehensive project-related
information in local languages.
6. Invitations should be in the language or languages that are widely understood by the
intended participants.
7. In Yangon, e-mail invitations are common; however, where possible, phone and word-ofmouth are better, especially if the sources are trusted civil society and community networks.
Do not rely exclusively on e-mail to communicate with local groups and communities.
8. At least two weeks in advance, information regarding public consultations and meetings
should be posted in appropriate languages on the ADB Myanmar website and Facebook
page.
Consultation participants
9. Include diverse, representative, and marginalized stakeholder groups on the participant list.
There may be a need to consult separately with some stakeholder groups so that they can
express themselves without embarrassment or other concerns.
10. Where possible, consult both directly and indirectly with communities that will be affected,
and also with local organizations and others working with the same project-affected people.
11. Where possible, reimburse people for any reasonable costs associated with their
participation.
Consultation Implementation
12. Ensure that the consultation is well moderated. For civil society consultations, use a
moderator who is a well-respected member of civil society, is perceived as neutral and has
facilitation skills.
13. Structure the consultation to promote inclusive discussion. This may include seating
stakeholders in clusters, holding small group discussions, and using a facilitator skilled in
participatory approaches. Also, consider changing the methodology if something seems to
be inhibiting participants from contributing.
14. For civil society and community audiences, presentations should be no longer than 20
minutes without an opportunity to ask questions or make comments, and the presentations
and any supporting materials such as PowerPoint slides, flip charts and video should readily
understandable to the ordinary person.
15. Consultations should be well-focused and avoid overwhelming participants with too much or
irrelevant information.
16. When beginning a consultation, the facilitator should carefully explain the full consultation
process, including whether other inputs will be sought from stakeholders. Participants
should also be told how their inputs will be taken into account along with technical

requirements, practical concerns, ADB and government priorities, and when and how they
will be informed about the results of the consultation.
17. During the consultation, do as much listening as possible. Ensure interpretation is accurate
and comprehensive and also allow adequate time for participant feedback and further
clarification, if needed.
18. Engage a capable minute-taker who can keep up with the discussion and summarize it well.
19. Collect the participant sign-up sheets for providing to ADB Myanmar.
20. Evaluate the consultation with a feedback instrument that asks participants for their opinions
on both substantive and process issues. Consider how to solicit feedback from illiterate
participants, if applicable.
21. Establish a mechanism for soliciting contributions from those unable to attend the
consultation, including adequate time for submission of these contributions and their
incorporation into the consultation summary.
Consultation follow-up
22. Produce a short, comprehensive report that summarizes the main outputs of the
consultation for providing to ADB Myanmar as well as posting on the ADB or project web
page.
23. In a timely manner, in writing or in a short meeting, follow up with participants to explain how
their contributions will be used in the program or project decision-making process.
Other Issues to Consider when Conducting Consultations
Take into account the development context, as well as Myanmars history of conflict.
Take into account statecivil society and non-state actorcivil society relations, the complex
relationships among ethnic minority groups, the Burman-majority and Union-level, state or
region and local authorities, with particular focus on the historic as well as the current
context in and around ADB-project areas.
Conduct sector and local stakeholder analysis to ensure representative and appropriate
participation in the consultation process.
When operating in ethnic minority and conflict-affected areas, adopt a conflict-sensitive
approach to consultations.
Understand where non-state actors deliver traditionally state-provided services (in
particular health and education). In these areas, support efforts to bring these services
together through consulting directly with these non-state service providers and groups
exercising administrative control over service providers.
To reduce the consultation burden on stakeholders, coordinate with other ADB project
teams and other development partners so that, where possible, joint consultations are
held and information shared on issues or projects of a similar nature.

Appendix 3 Overview of Civil Society in Myanmar 0

1. Broadly speaking, there are three types of civil society organizations (CSOs) in Myanmar. Those
at the grassroots are community-based organizations (CBOs) and informal, voluntary groups
that perform social and religious functions at the village level, including the provision of
healthcare, education, and other social services. Many CBOs are religious and provide support
for funerals and community emergencies. The members of a CBO are typically from the
beneficiary community and do not normally have paid staff. While no government or other
official statistics exist, one estimate put the number of local community-based organizations in
Myanmar at 214,000.0
2. Local nongovernment organizations (LNGOs), often from cities, townships or population
centers, generally have staff from, and connections with, local communities. These groups are
usually, but not always, unregistered with the government, often have paid and skilled staff, and
are increasingly connected to regional and national NGO networks, and at times with
international NGOs. In ethnic areas, many LNGOs have links to ethnic armed groups and
deliver what are traditionally state-provided social services, including healthcare and education.
Several large LNGOs in Myanmar are registered with relevant government ministries and at
times work with the government and development partners to implement projects in diverse
sectors, including healthcare, rural development, education, and agriculture.
3. Estimates vary widely on the number of LNGOs in Myanmar. A recent article claimed there were
over 10,000 LNGOs,0 a total that differs dramatically from a study of LNGOs that Save the
Children conducted in 2003. That first detailed look at civil society in Myanmar estimated only
270 LNGOs in the whole country.0 Whatever the total today, throughout the country there is a
vibrant and growing number of LNGOs that encompass a wide range of interests and
approaches to development.
4. INGOs are increasingly active in Myanmar, working in humanitarian response and longer-term
development, in sectors that include environment, health, education, livelihoods, rule of law,
advocacy, civil society capacity building, and many others. INGOs, present in small numbers
since the 1990s, entered Myanmar in two recent waves: in the aftermath of Cyclone Nargis in
2008, and since the new government took over in early 2011.

5. Domestic civil society groups are increasingly networked into the community of international
development and rights-based organizations, and since 2011, a large number of INGOs have
started up or expanded operations in Myanmar. These INGOs pose a significant challenge for
domestic civil society groups who must compete with foreign organizations that are seeking
local partners, skilled staff, training participants, and practical advice. As indicated previously, a
common complaint heard in Yangon from civil society groups is that they spend more time in
meetings and training than they do in implementing their work. However, coordination is
improving at all levels of civil society, and new working relationships and networks are
developing across the country.

0 Adapted from Asian Development Bank, Myanmar Civil Society Brief (2015).
0 B. Heidel. 2006. The Growth of Civil Society in Myanmar. Bangalore. p. 43.
0 The International Center for Not-for-Profit Law, NGO Law Monitor: Myanmar (Burma) (source: Local Resource
Center). Available online at http://www.icnl.org/research/monitor/Myanmar.html (Accessed 21 August 2014).
0 B. Heidel. 2006. The Growth of Civil Society in Myanmar. Bangalore. p. 11.

Appendix 4 ADB Reengagement in Myanmar

1.Reengagement process Myanmar joined ADB in 1973. However, ADB was not directly
engaged in the country from 1988 to 2011, but did stay involved through Myanmars
participation in the Greater Mekong Subregion Program, regular staff missions for economic
monitoring, and participation in the damage and needs assessment that followed the major
cyclone of 2008. ADB commenced reengagement with Myanmar in early 2012. In a phased
approach, ADB undertook intensive dialogue with government, civil society, the private sector,
and other development partners; prepared comprehensive economic and sector studies;
developed an interim country partnership strategy for Myanmar, 20122014 (recently extended
to 2016); mounted an extensive capacity development and policy advisory technical assistance
program; resumed lending operations, both sovereign and non-sovereign; established the ADB
Myanmar Resident Mission, with offices in Nay Pyi Taw and Yangon; and mobilized a strong
team of dedicated staff to provide support to Myanmar.
2.
ADBs country strategy aiming to improve peoples lives. ADBs interim country
partnership strategy focuses on (i) building human resources and capacity, (ii) promoting an
enabling economic environment, and (iii) creating access and connectivity. Through its
operations, ADB promotes good governance, environmental sustainability, private sector
development, regional cooperation and integration, gender equity, and new knowledge and
partnerships. ADB has established a pipeline of projects covering transport, energy, education
and training, urban development, and rural development. The program includes a regional focus
on corridor development in Kayin and Mon States, and the Mandalay region.
3.
Capacity development investing in people and institutions. ADB is implementing a
wide-ranging technical assistance program to enhance the governments capacity to deliver
services to the people and absorb external assistance effectively and efficiently. During 2012
2014, ADB approved a total of 37 technical assistance projects totaling about $36 million and
financed by ADBs resources, trust funds, and bilateral cofinancing. These cover education, the
finance sector, public financial management, external debt management, private sector
development, trade and investment policy, energy, power, transport, information and
communication technology, statistics, tourism, environmental and social safeguards, community
and civil society participation in development, urban development, and municipal infrastructure.
Myanmar is also participating in some 35 regional technical assistance projects, covering issues
related to participation in ASEAN and other regional groupings, trade facilitation, agriculture,
biodiversity conservation, regional power grid development, human resources and leadership
development, railway development, and communicable disease surveillance, as well as egovernance, country safeguard system development, community-based disaster response
management, and economic surveillance.
4.
ADB loan and grant projects investing in Myanmar's future. For the period 2013
2016, ADB expects to approve total sovereign and nonsovereign loans of around $1.7 billion (an
annual average of $430 million), investment grants of $41 million, and technical assistance
grants of $46 million. A total of $170 million in non-sovereign projects were approved in 2014
alone.
5.
Partnerships ADB works with all stakeholders towards common goals. ADB
emphasizes close engagement with stakeholders, including civil society, business, and other
development partners. In particular, ADB has developed this C&P plan which will guide

engagement with civil society on issues ranging from future strategies to project implementation
and conflict sensitivity. ADB in Myanmar has mobilized technical assistance cofinancing from
the governments of Australia, France, and Norway, and from trust funds established at ADB
from the Peoples Republic of China, the Republic of Korea, and the Water Financing
Partnership Facility. In late 2014, the Mandalay Urban Services Improvement project attracted
cofinancing from the French government for $60 million, and the Support for Public-Private
Partnerships Framework Development technical assistance project received $2 million from the
United Kingdom Department for International Development.
6.
Looking ahead ADB is engaged for the long run to help realize a brighter future
for Myanmar. The preparation of ADBs first full country partnership strategy for Myanmar,
20172021 has commenced, which is scheduled for approval in 2016. The strategy will be fully
aligned with Myanmars national development strategy from 2016, ADBs long-term strategic
framework, and the next Asian Development Fund allocation cycle. ADB will seek to tighten the
sector focus and selectivity, and adopt a long-term, programmatic approach in the proposed
priority sectors of energy, transport, and education, and skills development. Regional
cooperation and integration as well as private sector development are anticipated to be key
areas of focus under the new CPS.

Appendix 5 List of Consultations

Type of
Organization
C&P Consultation, 5 February 2014, Pathein (AM)

Name

Coverage

Alindan Social Development Organization

Daedayae Township Fisherman Development
Association
Ayeyarwaddy Social Development Organization

CBO

Ayeyarwaddy

CBO

Ayeyarwaddy

CBO

Ayeyarwaddy

Karuna Myanmar Social Services

Myan Aung Township Regional Development
Organization
Nga PuTaw Township Farmers and Landless Peoples
Union
Network Activities Group

LNGO

Nationwide

CBO

Ayeyarwaddy

CBO

Ayeyarwaddy

LNGO

Nationwide0

Pyabon District Fishermans Association

CBO

Ayeyarwaddy

Sympathy Hands Organization

LNGO

Ayeyarwaddy

Yaung Ni Oo Social Development Organization

CBO

Ayeyarwaddy

C&P Consultation, 5 February 2014, Pathein (PM)

Ayeyerwaddy Youth Society

CBO

Ayeyarwaddy

Cetana Learning Center

CBO

Ayeyarwaddy

Chance Free Education

CBO

Ayeyarwaddy

Help Age International

INGO

Ayeyarwaddy

Karen Youth Unity

CBO

Ayeyarwaddy

Karuna Myanmar Social Services

LNGO

Nationwide

Marie Stopes International

INGO

Nationwide

Pathein Myanmar Association

LNGO

Ayeyarwaddy

Pinya Parami Organization

CBO

Ayeyarwaddy

Swetaw Legal Services

N/A

Ayeyarwaddy

C&P / Country Programming Mission Consultation, 22 July 2014, Yangon

ActionAid

INGO

Nationwide

IFI Watch Myanmar

LNGO

Nationwide

Karen Women's Environment Group

LNGO

Karen areas

Land Core Group

Local Resource Center

Network
LNGO

Nationwide
Nationwide

Myanmar Knowledge Society

LNGO

Yangon

Network Activities Group

LNGO

Nationwide

Phoenix Association

LNGO

Nationwide

Renewable Energy Association Myanmar

LNGO

Nationwide

Spectrum

LNGO

Nationwide

The Asia Foundation

INGO

Nationwide

C&P Consultation, 24 July 2014, Chiang Mai, Thailand

Burma News International

Media

Nationwide

Burma Resource Centre

INGO

Nationwide

0 Nationwide coverage signifies operations or activities in more than two regions.

Chiang Mai University, Regional Center for Social

Sciences
Chin Human Rights Organization

Research institute
LNGO

Nationwide
Chin State

EarthRights International

INGO

Nationwide

Kachin Women's Association Thailand

Pyidaungsu Institute

LNGO
Research institute

Thailand, Kachin State

Nationwide

Radio Free Asia

Media

Nationwide

Shanni Development Party: Youth Network

Political Party

Shan State

Women's League of Burma

Network

Nationwide

C&P Consultation, 26 July 2014, Maesot, Thailand

Arakan Human Rights and Environmental Movement

LNGO

Rakhine State, Maesot

Assistance Association of Political Prisoners

LNGO

Nationwide

Back Pack Health Worker Team

Burma Lawyers Committee

LNGO
LNGO

Nationwide
Nationwide

Burma Partnership
Burma Women's Union

Network
LNGO

Nationwide
Nationwide

Federal Trade Union of Kothoolei

Labor union

Karen areas

Federal Trade Union of Myanmar

Labor union

Nationwide

Good Friends Centre

Grassroots Human Rights Education & Development

LNGO
LNGO

Thailand
Thailand

Karen Environmental and Social Action Network

LNGO

Kayin State

Karen Human Rights Group

LNGO
Ethnic Armed
Organization

Karen areas

Karen Student Network Group

LNGO
LNGO

Thailand
Karen areas

Karen Women's Organization

LNGO

Karen areas

Karen Youth Organization

LNGO

Karen areas

Mae Tao Clinic

Migrants Assistance Project (MAP)

LNGO
LNGO

Maesot, Thailand
Thailand

Palaung Women's Organization

LNGO

N. Shan State

Physicians for Human Rights

The Burma Environmental Working Group

INGO
LNGO

Nationwide
Nationwide

Thoolei Foundation

Foundation

Karen areas

Karen National Union

Karen Refugee Community Education Entity

Karen areas

C&P Plan Consultation, 16 August 2014, Mandalay

3N

LNGO

Upper Myanmar

Asean Community Myanmar

LNGO

Upper Myanmar

Chan Mya Thu Kha

LNGO

Upper Myanmar

Gender Balance Network

LNGO

Nationwide

Karuna Myanmar Social Services

LNGO

Nationwide

Mandalay Volunteer Network

LNGO

Mandalay

Mandalay Youth Network

LNGO

Mandalay

Myanmar China Pipeline Watch Committee

Network

Upper Myanmar

MEPDA

LNGO

Upper Myanmar

MSEC

LNGO

Mandalay

MVG

LNGO

Mandalay

Myanmar Health Assistant Association

LNGO

Nationwide

New Strength

LNGO

Mandalay

Nine Treasures

LNGO

Mandalay

Paung Ku

LNGO

Nationwide

PEACE

LNGO

Mandalay

PILG

LNGO

Mandalay

Population Services International

INGO

Nationwide

Rainbow

LNGO

Nationwide

LNGO

N/A

Sein Yaung So (Mandalay)

LNGO

Mandalay

Spectrum

LNGO

Nationwide

SYS

LNGO

Upper Myanmar

The Help

LNGO

Upper Myanmar

The Seagull

LNGO

Mandalay

UNDP

UN

Nationwide

USFPT

LNGO

N/A

Yankin Group

LNGO

N/A

YMCA

INGO

Nationwide

Royal

C&P Consultation, Washington, DC, 24 September 2014

Bank Information Center

INGO

Nationwide

Center for International Environmental Law

INGO

Nationwide

EIRIS Conflict Risk Network

Investor services

Nationwide

Freedom House
Human Rights Watch

INGO
INGO

Nationwide
Nationwide

International Accountability Project

INGO

Nationwide

International Trade Union Confederation

Labor union

Nationwide

National Endowment for Democracy

INGO

Nationwide

Partnership for Transparency Fund

INGO

Nationwide

Project 2049 Institute

INGO

Nationwide

Sierra Club International

INGO
Nationwide
ADB Awareness Seminar, 28-29 September 2014, Yangon

88 Generation Peace and Open Society

LNGO

Nationwide

Adventist Community Services

LNGO

Nationwide

Brave Heart Foundation

LNGO

Nationwide

Civil Society Development Program

LNGO

Nationwide

EarthRights International

INGO

Nationwide

Food Security Working Group

LNGO

Nationwide

IFI Watch Myanmar

LNGO

Nationwide

INGO Forum

INGO

Nationwide

Karen Community Development Association

Kayin State

Karen Teachers Working Group

CBO
Ethnic Armed
Organization
LNGO

Land Core Group

LNGO

Nationwide

Karen Department of Health and Welfare

0 Incomplete organizational name and coverage

Kayin State
Kayin State

Local Resource Center

LNGO

Mekong Economics
Myanmar Educational Professional Development
Academy
Myanmar Health Assistant Association

INGO

Myanmar Interfaith Network on AIDS

Nationwide

LNGO

Nationwide

LNGO

Nationwide

LNGO

Nationwide

Myanmar Legal Aid Network

LNGO

Nationwide

Myanmar People's Forum

LNGO

Nationwide

Oxfam

INGO

Nationwide

Paung Ku

LNGO

Nationwide

Phoenix Association

LNGO

Nationwide

POINT

LNGO

Nationwide

PS Business School

Education

Yangon

Regional Development ( Ayeyarwady Region)

CBO

Ayeyarwaddy

Spirit in Education Movement

INGO

Thailand, Tanintharyi

Tanintharyi Friends

LNGO

Tanintharyi

Thint Myat Lo Thu Myarr (Religious Harmony Group)

LNGO

Mandalay

Women League of Burma

LNGO

Nationwide

Youth Circle

LNGO

Kayin State, Yangon

C&P Plan Consultation, 5 October 2014, Mandalay

Myanmar China Pipeline Watch Committee
Myanmar Educational Professional Development
Academy (MEPDA)
Myanmar Interfaith Network on AIDS

Network

Upper Myanmar

LNGO

Nationwide

LNGO

Nationwide

Paung Ku

LNGO

Nationwide

PILG

LNGO

N/A

Population Services International

INGO

Nationwide

Rainbow

LNGO

Nationwide

Tamar Yeik

CBO

Mandalay

The Seagull

LNGO

Mandalay

Thint Myat Lo Thu Myar (Religious Harmony Group)

LNGO

Mandalay

UNDP

UN

Nationwide

C&P Plan Consultation, 10 October 2014, Chiang Mai, Thailand

Badei Thar Moe Civil Society Organization

LNGO

Nationwide

Burma Environmental Working Group

LNGO

Nationwide

Dawei Development Association

LNGO

Tanintharyi

Democracy and Peace of Women Network

LNGO

Nationwide

EarthRights International

INGO

Nationwide

Kachin Women's Association Thailand

LNGO

Nationwide

Karen Environmental and Social Action Network

LNGO

Kayin State

KBA-CSSDD

CBO

Kayah State

Ta'ang Students and Youth Organization

CBO

Shan State

Women League of Burma

INGO

Nationwide

C&P Plan Consultation, 12 October 2014, Maesot, Thailand

Karen Agricultural Department

EAO

Kayin State

Karen Human Rights Group

LNGO

Nationwide

Karen Student Network Group

LNGO

Nationwide

Karen Women's Organization

LNGO

Nationwide

Migrants Assistance Project (MAP)

LNGO

Thailand

Individual/One-on-One Consultations, different dates, Yangon (unless otherwise noted)

88 Generation Peace and Open Society
ActionAid
Location: Yangon, Pathein
Advocates Sans Frontiers / Lawyers Without Borders

LNGO

Nationwide

INGO

Nationwide

INGO

Yangon

Bank Information Center

Burma Partnership
Location: Maesot, Thailand
Burma Resource Centre
Location: Chiang Mai, Thailand
Dawei Development Association

INGO

Nationwide

Network

Nationwide

INGO

Nationwide

CBO

Tanintharyi

Food Security Working Group

LNGO

Nationwide

GIZ

Donor

Nationwide

Heinrich Bll Stiftung

Donor

Nationwide

Human Rights Watch

INGO

Nationwide

IFI Watch Myanmar

LNGO

Nationwide

INGO Forum

Network

Nationwide

International Labour Organization

UN

Nationwide

Japanese International Cooperation Agency

Karen Environmental and Social Action Network
Location: Yangon/Chiang Mai/Maesot
Karen Information Center
Location: Hpa An
Karen Literature and Cultural Association
Location: Hpa An
Karen National Union
Location: Maesot, Thailand
Karen Peace Support Network Location: Yangon,
Maesot, Thailand
Local Resource Center

Development bank

Nationwide

LNGO

Kayin State

Ethnic Armed
Organization

Kayin State

CBO

Kayin State

Ethnic Armed
Organization

Karen areas

Network

Karen areas

LNGO

Nationwide

Loka Alinn

Nationwide

Myanmar Alliance For Transparency and Accountability

LNGO
Development
consultants
LNGO

Myanmar Business Coalition on AIDS

GONGO

Nationwide

Myanmar Business Executives Association

Trade association

Yangon

Myanmar Centre for Responsible Business

INGO

Nationwide

Myanmar Environmental Institute

LNGO

Nationwide

Myanmar Hotelier Association

Trade association

Nationwide

National League for Democracy (NLD)

Political party

Nationwide

Network Activities Group

LNGO

Nationwide

NLD Training School

Political party

Nationwide

OXFAM

INGO

Nationwide

PACT Myanmar
PACT World
Location: Bangkok
Palaung Women's Organization

INGO

Nationwide

INGO

Mekong region

LNGO

N. Shan State

Mekong Economics

Yangon, Kayin State

Nationwide

Location: Maesot, Thailand

Partnership for Transparency Fund
Location: Washington, DC
Paung Ku

INGO
LNGO

Nationwide
Nationwide

PeaceNexus

INGO

Karen Areas

Phoenix Association

LNGO

Nationwide

Renewable Energy Association Myanmar

LNGO
Environmental
consultants
INGO

Nationwide

CBO

Tanintharyi

Social consultants
LNGO

Yangon
Nationwide

LNGO

Tanintharyi

LNGO

Tanintharyi

INGO

Thailand, Border areas

Resource and Environment Myanmar

Saferworld
Seint Senf Ye Rural Social Development Organization
Location: Dawei
Social Clarity
Spectrum
Tanintharyi Friends
Location: Dawei
Taw Kaw Pah
Location: Dawei
The Border Consortium
Location: Chiang Mai, Thailand
UMFCCI: Myanmar Business Coalition on Aid

Nationwide
Kayah State

Trade association

Nationwide

United Nations Population Fund

UN

Nationwide

Volunteer Services Organization

INGO

Nationwide

Welt Hunger Hilfe

INGO

Nationwide

World Bank Group

Development bank

Nationwide

World Wildlife Fund for Nature

INGO

Tanintharyi

Youth Circle

LNGO

Kayin State

Ministry of Environmental Conservation and Forestry

Government

Nationwide

Ministry of Home Affairs

Ministry of Livestock, Fisheries and Rural Development,
Department of Rural Development
Ministry of National Planning and Economic
Development, Foreign Economic Relations Department

Government

Nationwide

Government

Nationwide

Government

Nationwide

Government of Myanmar, Nay Pyi Taw