Asian Development BankMyanmar Civil Society

Consultation and Participation Plan

June 2015

1

TABLE OF CONTENTS

I. Executive Summary................................................................................................4II. Background.............................................................................................................5III. Methodology............................................................................................................6IV. Civil Society Participation in Asian Development Bank Operations.................7V. Emerging Themes from Civil Society Consultations..........................................9VI. Consultation and Participation Plan Overview..................................................11Appendix 1 – Detailed Consultation and Participation (C&P) Plan...........................16Appendix 2 – Guidelines for Consultation Practice in Myanmar..............................20Appendix 3 – Overview of Civil Society in Myanmar..................................................23Appendix 4 – ADB Reengagement in Myanmar..........................................................24Appendix 5 – List of Consultations..............................................................................26

2

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.

3

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 bank’s commitment to civil society consultation and participation in investment decisions. This TA drew on lessons from civil society participation in other countries, ADB’s 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 project’s 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 ADB’s 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 agency’s consultations

4

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, women’s 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 government’s Framework for Economic and Social Reform.1 These are sustainable and inclusive economic development, job creation, and poverty reduction.

11. The ADB ICPS for 2012–2014,2 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 ADB’s 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 country’s 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 2012–2014. 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 ADB’s 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, ADB’s 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 ADB’s 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 ADB’s 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 ADB-financed 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=46478-0011 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 guidelines2 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 Myanmar’s oil and gas sector.4

22. In July and August of 2014, the team observed ADB’s 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 Myanmar’s Oil & Gas Sector, draft for Consultation.

7

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 ADB’s 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 participation30. 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 country’s program. However, in recent years, ADB has included more local NGOs, community-based organizations, and other stakeholders from outside the national capital in the consultation process. 

Participation at the project level31. In ADB developing member countries across Asia and the Pacific, civil society participates in ADB’s 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 ADB’s 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. 

1 ADB. 2009. Safeguard Policy Statement. Manila.

8

32. During project identification, CSOs familiar with a project’s geographic area and residents can provide invaluable information about local conditions and community priorities. At the fact-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 ADB’s safeguards, the borrower/client—e.g., the government, state enterprise or private company, or a combination of these—has 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 plan1 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 ADB’s 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 ADB’s 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

2 ADB. 2009. Safeguard Policy Statement. Manila.1 See Appendix 5.

9

ensure that projects really do meet the needs of the intended beneficiaries. However, 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, ADB’s 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 well-known 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 ADB’s 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 project’s 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

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

10

do not achieve results to justify their continued engagement. In fact, some civil society groups are so frustrated 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 people-centered 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 government’s 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 CSO-government collaboration due to the government’s 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 Myanmar’s 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 2017–2021, 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 ADB’s 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 Myanmar’s complex history and have the knowledge and skills necessary to work in conflict-affected areas, ADB staff will receive special training. The initial use of conflict-sensitive approaches will be applied in ADB’s 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 project’s 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 ADB’s Public Communications Policy, as early possible in a project’s development, ADB will

12

ensure that 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 project’s 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 ADB’s 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 women’s and gender-focused organizations.

Capacity development and internal coordination54. 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 conflict-affected 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 government’s 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

1 ADB. 2011. Public Communications Policy. Manila.

13

States, and ensure that all ADB staff and consultants are trained and have ongoing guidance on working in conflict-affected areas.

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 participation60. Establishing and implementing best practices for consulting with project-affected communities and civil society, and supporting the government’s 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 ADB’s 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 ADB’s 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 ADB-financed projects/operations. For projects in conflict-affected areas, a consultation and engagement strategy is being developed by ADB’s 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 Myanmar’s 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 government’s call for people-centered development, in line with the Framework for Economic and Social Reform which was adopted under the Nay

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.

14

Pyi Taw Accord for Effective Development Cooperation.4 In cooperation with executing agencies and implementing departments, ADB will promote civil society partnerships, participation, 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 ADB’s 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 ADB’s understanding of the complex and dynamic operating environment in the country and also to ensure that ADB’s 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.

4 See Footnote 1.

15

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

A. Country Programming: Increase Civil Society Engagement in ADB Country ProgrammingAction Activity Timeline

1. Develop the means for on-going civil society participation in all operations.

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

2015

2. Engage civil society in the development of the Country Partnership Strategy.

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

2015–2016

3. Solicit civil society feedback on current programming.

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.

2015–2017

4. Raise awareness of ADB’s policies and practices.

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.

2014–2017

5. Develop communication tools appropriate for Myanmar civil society and project-affected communities.

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 ADB’s website, Facebook page, & send by Twitter. Develop a map showing ADB projects in Myanmar.

2015–2016

B. Projects: Increase Civil Society Engagement in Project PlanningAction Activity Timeline

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

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 project’s C&P plan.

ADB Myanmar’s external relations officer should support project teams and the implementing agency in implementing the Stakeholder Communication Strategy.

2015–2017

2. Provide ongoing civil society engagement advice and support to project teams.

Depending on the resources available, ADB Myanmar should provide value-added services for project teams.

2015–2017

3. Support strategies for cooperation between government

Provide support to the government implementing agency in its work to design and carry out consultations on ADB-financed projects.

2015–2017

16

and local communities in project planning, implementation and monitoring.

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 ADB’s

policies and in their conducting project monitoring.4. Adopt and implement a conflict-sensitive plan for programming in conflict-affected areas.

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.

2015–2016

C. Increase Civil Society Engagement in ADB Project ImplementationAction Activity Timeline

1. Integrate local civil society groups’ participation into project implementation.

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.

2015–2017

2. Continuously adapt project-level communication strategies to meet stakeholder expectations.

During consultations with affected people, identify areas of concern and develop relevant communication tools to address local information gaps.

2015–2017

3. Support government delivery of meaningful consultation.

ADB’s national safeguards officer should support the government implementing agency through periodic site visits and by providing support on the government’s consultations.

2015–2017

D. Capacity Enhancement and Internal Coordination: Support ADB Project Teams’ Engagement with Civil SocietyAction Activity Timeline

1. Increase the capacity of ADB staff and consultants to effectively engage with civil society.

Conduct training for all ADB team leaders, ADB Myanmar staff, and selected specialists and consultants on ADB’s Myanmar engagement, as well as ADB consultation guidance and protocols.

2015–2016

2. Support government For specific projects, project teams and ADB Myanmar should jointly develop strategies 2015–2017

17

implementing agencies in conducting meaningful consultations and implementing C&P plans.

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.

3. Update and develop protocols for information sharing and coordination.

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.

2015–2016

4. Develop coordination mechanisms within ADB Myanmar.

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.

2014–2016

E. Establish ADB as a Leader in Best Practice Consultations in Myanmar Action Activity Timeline

1. Establish and implement best-practice consultation guidelines for ADB consultations in Myanmar (See Appendix 1).

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.

2015–2016

2. Incorporate civil society recommendations and feedback into ADB-financed operations.

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. Implement feedback procedures for all civil society consultations.

2015–2016

3. Engage civil society through sector, issue-based, and regional coordinating bodies, networks and

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.

2015–2016

18

other multi-stakeholder initiatives.4. Conduct additional consultations and adopt enhanced consultation protocols in conflict-affected areas.

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.

2015–2017

F. Strengthening the Enabling Environment: Support Civil Society Participation in GovernanceAction Activity Timeline

1. Increase civil society participation in Development Sector Working Groups.

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

2015–2017

2. Mainstream civil society participation, transparency and disclosure in project design and implementation with executing and implementing agencies and departments.

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.

2015–2017

3. Support convergence between government and non-state service providers during project planning and implementation phases.

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.

2015–2017

4. Increase support and resources for civil society engagement.

Solicit senior ADB management support for civil society engagement. Increase financial and staff resources for civil society engagement.

2015–2017

5. Strengthen capacity of CSOs to participate as service providers in ADB-financed projects, including through procurement training.

Hold seminars (s) on ADB procurement and business opportunities. Communicate project-related business opportunities to civil society groups through civil

society networks.

2015–2017

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

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.

2015–2017

19

20

Appendix 2 – Guidelines for Consultation Practice in Myanmar

70. Objective: Provide recommendations for conducting best-practice consultations for ADB-financed 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 information-sharing 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 participant’s 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 Myanmara. Initial public awareness campaign including transparent, timely, and accessible disclosure of

all information well in advance of the eventb. Informative, inclusive, well moderated public consultationsc. Integration of feedback and communication of consultation feedback to participants

Specific Elements of Best-Practice Civil Society Consultations in MyanmarConsultation preparations1. 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.

21

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 traditionally-marginalized groups. Discuss how to solicit feedback on the consultation process, including from illiterate participants, if applicable.

Consultation invitations4. 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-of-mouth 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 participants9. 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 Implementation12. 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

22

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-up22. 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 Myanmar’s history of conflict. Take into account state–civil society and non-state actor–civil 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.

23

Appendix 3 – Overview of Civil Society in Myanmar0

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.

24

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 Myanmar’s 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, 2012–2014 (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. ADB’s country strategy – aiming to improve peoples’ lives. ADB’s 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 government’s 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 ADB’s 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 e-governance, 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

25

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 People’s 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 ADB’s first full country partnership strategy for Myanmar, 2017–2021 has commenced, which is scheduled for approval in 2016. The strategy will be fully aligned with Myanmar’s national development strategy from 2016, ADB’s 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.

26

Appendix 5 – List of Consultations

Name Type of Organization Coverage

C&P Consultation, 5 February 2014, Pathein (AM)Alindan Social Development Organization CBO AyeyarwaddyDaedayae Township Fisherman Development Association CBO Ayeyarwaddy

Ayeyarwaddy Social Development Organization CBO AyeyarwaddyKaruna Myanmar Social Services LNGO NationwideMyan Aung Township Regional Development Organization CBO Ayeyarwaddy

Nga PuTaw Township Farmers and Landless People’s Union CBO Ayeyarwaddy

Network Activities Group LNGO Nationwide0

Pyabon District Fisherman’s Association CBO AyeyarwaddySympathy Hands Organization LNGO AyeyarwaddyYaung Ni Oo Social Development Organization CBO Ayeyarwaddy

C&P Consultation, 5 February 2014, Pathein (PM)Ayeyerwaddy Youth Society CBO AyeyarwaddyCetana Learning Center CBO AyeyarwaddyChance Free Education CBO AyeyarwaddyHelp Age International INGO AyeyarwaddyKaren Youth Unity CBO AyeyarwaddyKaruna Myanmar Social Services LNGO NationwideMarie Stopes International INGO NationwidePathein Myanmar Association LNGO AyeyarwaddyPinya Parami Organization CBO AyeyarwaddySwetaw Legal Services N/A Ayeyarwaddy

C&P / Country Programming Mission Consultation, 22 July 2014, YangonActionAid INGO NationwideIFI Watch Myanmar LNGO NationwideKaren Women's Environment Group LNGO Karen areasLand Core Group Network NationwideLocal Resource Center LNGO NationwideMyanmar Knowledge Society LNGO YangonNetwork Activities Group LNGO NationwidePhoenix Association LNGO NationwideRenewable Energy Association Myanmar LNGO NationwideSpectrum LNGO NationwideThe Asia Foundation INGO Nationwide

C&P Consultation, 24 July 2014, Chiang Mai, ThailandBurma News International Media NationwideBurma Resource Centre INGO Nationwide

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

27

Chiang Mai University, Regional Center for Social Sciences Research institute NationwideChin Human Rights Organization LNGO Chin StateEarthRights International INGO NationwideKachin Women's Association Thailand LNGO Thailand, Kachin StatePyidaungsu Institute Research institute NationwideRadio Free Asia Media NationwideShanni Development Party: Youth Network Political Party Shan StateWomen's League of Burma Network Nationwide

C&P Consultation, 26 July 2014, Maesot, ThailandArakan Human Rights and Environmental Movement LNGO Rakhine State, Maesot

Assistance Association of Political Prisoners LNGO NationwideBack Pack Health Worker Team LNGO NationwideBurma Lawyers Committee LNGO Nationwide

Burma Partnership Network NationwideBurma Women's Union LNGO NationwideFederal Trade Union of Kothoolei Labor union Karen areasFederal Trade Union of Myanmar Labor union NationwideGood Friends Centre LNGO ThailandGrassroots Human Rights Education & Development LNGO ThailandKaren Environmental and Social Action Network LNGO Kayin StateKaren Human Rights Group LNGO Karen areas

Karen National Union Ethnic Armed Organization Karen areas

Karen Refugee Community Education Entity LNGO ThailandKaren Student Network Group LNGO Karen areasKaren Women's Organization LNGO Karen areasKaren Youth Organization LNGO Karen areasMae Tao Clinic LNGO Maesot, ThailandMigrants Assistance Project (MAP) LNGO ThailandPalaung Women's Organization LNGO N. Shan StatePhysicians for Human Rights INGO NationwideThe Burma Environmental Working Group LNGO Nationwide

Thoolei Foundation Foundation Karen areasC&P Plan Consultation, 16 August 2014, Mandalay

3N LNGO Upper MyanmarAsean Community Myanmar LNGO Upper MyanmarChan Mya Thu Kha LNGO Upper MyanmarGender Balance Network LNGO NationwideKaruna Myanmar Social Services LNGO NationwideMandalay Volunteer Network LNGO MandalayMandalay Youth Network LNGO MandalayMyanmar China Pipeline Watch Committee Network Upper MyanmarMEPDA LNGO Upper MyanmarMSEC LNGO MandalayMVG LNGO Mandalay

28

Myanmar Health Assistant Association LNGO NationwideNew Strength LNGO MandalayNine Treasures LNGO MandalayPaung Ku LNGO NationwidePEACE LNGO MandalayPILG LNGO MandalayPopulation Services International INGO NationwideRainbow LNGO NationwideRoyal0 LNGO N/ASein Yaung So (Mandalay) LNGO MandalaySpectrum LNGO NationwideSYS LNGO Upper MyanmarThe Help LNGO Upper MyanmarThe Seagull LNGO MandalayUNDP UN NationwideUSFPT LNGO N/AYankin Group LNGO N/AYMCA INGO Nationwide

C&P Consultation, Washington, DC, 24 September 2014Bank Information Center INGO NationwideCenter for International Environmental Law INGO NationwideEIRIS Conflict Risk Network Investor services NationwideFreedom House INGO NationwideHuman Rights Watch INGO NationwideInternational Accountability Project INGO NationwideInternational Trade Union Confederation Labor union NationwideNational Endowment for Democracy INGO NationwidePartnership for Transparency Fund INGO NationwideProject 2049 Institute INGO NationwideSierra Club International INGO Nationwide

ADB Awareness Seminar, 28-29 September 2014, Yangon88 Generation Peace and Open Society LNGO NationwideAdventist Community Services LNGO NationwideBrave Heart Foundation LNGO NationwideCivil Society Development Program LNGO NationwideEarthRights International INGO NationwideFood Security Working Group LNGO NationwideIFI Watch Myanmar LNGO NationwideINGO Forum INGO NationwideKaren Community Development Association CBO Kayin State

Karen Department of Health and Welfare Ethnic Armed Organization Kayin State

Karen Teachers Working Group LNGO Kayin StateLand Core Group LNGO Nationwide

0 Incomplete organizational name and coverage

29

Local Resource Center LNGO Nationwide

Mekong Economics INGOMyanmar Educational Professional Development Academy LNGO Nationwide

Myanmar Health Assistant Association LNGO NationwideMyanmar Interfaith Network on AIDS LNGO NationwideMyanmar Legal Aid Network LNGO NationwideMyanmar People's Forum LNGO NationwideOxfam INGO NationwidePaung Ku LNGO NationwidePhoenix Association LNGO NationwidePOINT LNGO NationwidePS Business School Education YangonRegional Development ( Ayeyarwady Region) CBO AyeyarwaddySpirit in Education Movement INGO Thailand, TanintharyiTanintharyi Friends LNGO TanintharyiThint Myat Lo Thu Myarr (Religious Harmony Group) LNGO MandalayWomen League of Burma LNGO NationwideYouth Circle LNGO Kayin State, Yangon

C&P Plan Consultation, 5 October 2014, MandalayMyanmar China Pipeline Watch Committee Network Upper MyanmarMyanmar Educational Professional Development Academy (MEPDA) LNGO Nationwide

Myanmar Interfaith Network on AIDS LNGO NationwidePaung Ku LNGO NationwidePILG LNGO N/APopulation Services International INGO NationwideRainbow LNGO NationwideTamar Yeik CBO MandalayThe Seagull LNGO MandalayThint Myat Lo Thu Myar (Religious Harmony Group) LNGO MandalayUNDP UN Nationwide

C&P Plan Consultation, 10 October 2014, Chiang Mai, ThailandBadei Thar Moe Civil Society Organization LNGO NationwideBurma Environmental Working Group LNGO NationwideDawei Development Association LNGO TanintharyiDemocracy and Peace of Women Network LNGO NationwideEarthRights International INGO NationwideKachin Women's Association Thailand LNGO NationwideKaren Environmental and Social Action Network LNGO Kayin StateKBA-CSSDD CBO Kayah StateTa'ang Students and Youth Organization CBO Shan StateWomen League of Burma INGO Nationwide

C&P Plan Consultation, 12 October 2014, Maesot, ThailandKaren Agricultural Department EAO Kayin StateKaren Human Rights Group LNGO Nationwide

30

Karen Student Network Group LNGO NationwideKaren Women's Organization LNGO NationwideMigrants Assistance Project (MAP) LNGO Thailand

Individual/One-on-One Consultations, different dates, Yangon (unless otherwise noted)88 Generation Peace and Open Society LNGO NationwideActionAidLocation: Yangon, Pathein INGO Nationwide

Advocates Sans Frontiers / Lawyers Without Borders INGO YangonBank Information Center INGO NationwideBurma PartnershipLocation: Maesot, Thailand Network NationwideBurma Resource CentreLocation: Chiang Mai, Thailand INGO Nationwide

Dawei Development Association CBO TanintharyiFood Security Working Group LNGO NationwideGIZ Donor NationwideHeinrich Böll Stiftung Donor NationwideHuman Rights Watch INGO NationwideIFI Watch Myanmar LNGO NationwideINGO Forum Network NationwideInternational Labour Organization UN NationwideJapanese International Cooperation Agency Development bank NationwideKaren Environmental and Social Action NetworkLocation: Yangon/Chiang Mai/Maesot LNGO Kayin State

Karen Information CenterLocation: Hpa An

Ethnic Armed Organization Kayin State

Karen Literature and Cultural AssociationLocation: Hpa An CBO Kayin State

Karen National UnionLocation: Maesot, Thailand

Ethnic Armed Organization Karen areas

Karen Peace Support Network Location: Yangon, Maesot, Thailand Network Karen areas

Local Resource Center LNGO NationwideLoka Alinn LNGO Nationwide

Mekong Economics Development consultants Yangon, Kayin State

Myanmar Alliance For Transparency and Accountability LNGO NationwideMyanmar Business Coalition on AIDS GONGO NationwideMyanmar Business Executives Association Trade association YangonMyanmar Centre for Responsible Business INGO NationwideMyanmar Environmental Institute LNGO NationwideMyanmar Hotelier Association Trade association NationwideNational League for Democracy (NLD) Political party NationwideNetwork Activities Group LNGO NationwideNLD Training School Political party NationwideOXFAM INGO NationwidePACT Myanmar INGO NationwidePACT WorldLocation: Bangkok INGO Mekong region

Palaung Women's Organization LNGO N. Shan State

31

Location: Maesot, ThailandPartnership for Transparency FundLocation: Washington, DC INGO NationwidePaung Ku LNGO NationwidePeaceNexus INGO Karen AreasPhoenix Association LNGO NationwideRenewable Energy Association Myanmar LNGO Nationwide

Resource and Environment Myanmar Environmental consultants Nationwide

Saferworld INGO Kayah StateSeint Senf Ye Rural Social Development OrganizationLocation: Dawei CBO Tanintharyi

Social Clarity Social consultants YangonSpectrum LNGO NationwideTanintharyi FriendsLocation: Dawei LNGO Tanintharyi

Taw Kaw PahLocation: Dawei LNGO TanintharyiThe Border ConsortiumLocation: Chiang Mai, Thailand INGO Thailand, Border areas

UMFCCI: Myanmar Business Coalition on Aid Trade association NationwideUnited Nations Population Fund UN NationwideVolunteer Services Organization INGO NationwideWelt Hunger Hilfe INGO NationwideWorld Bank Group Development bank NationwideWorld Wildlife Fund for Nature INGO TanintharyiYouth Circle LNGO Kayin StateGovernment of Myanmar, Nay Pyi TawMinistry of Environmental Conservation and Forestry Government NationwideMinistry of Home Affairs Government NationwideMinistry of Livestock, Fisheries and Rural Development, Department of Rural Development Government Nationwide

Ministry of National Planning and Economic Development, Foreign Economic Relations Department Government Nationwide

32