Walking through the streets of Yangon this January, I saw the futility of U.S. sanctions on every corner. Commerce thrives on steamy streets and markets, and billboards advertising Japanese, South Korean, and European brands are everywhere. Meanwhile, junta leaders targeted by sanctions that prevent their families' travel have contented themselves with retirement in splendid homes, while their grandchildren, denied visas to visit the United States, simply go to college in Europe and Australia. Sanctions have only served to isolate the United States. This is especially unfortunate at a time when the United States should be carefully watching, and even influencing, what might be the most important political year in Myanmar's recent history.
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The date is not set, but the tiny handful of generals who have a monopoly on political power have declared elections will take place in 2010, and no one doubts they will happen before the year's end. Most Burmese citizens are nonplussed, and no one can blame them for assuming that the military junta that runs the country from the isolated capital of Naypyidaw has rigged the process.
But the truth is that the elections will bring change: perhaps not a sudden end to the military junta, but important and underappreciated change nonetheless. And the United States should be fully engaged.
This year's elections will be hotly contested by opposition politicians eager to gain a parliamentary seat. Although far from being a free and fair process, they might represent the start of a long and possibly tortuous road toward a relatively more democratic system. A new government is certain to emerge in Myanmar once the voting is over, one that is expected to include directly elected politicians representing a broader cross section of society than ever before. Rather than dismissing these elections out of hand and calling them a sham, the United States should carefully consider its options and assess this potentially historic opportunity to shape Myanmar's future.
The reason elections are expected soon is the ill health of the detested general known as "Number One," Than Shwe. A leader of the 1988 coup, Than Shwe became the chairman of the State Law and Order Restoration Council (SLORC) in 1992 (in 1997, the SLORC changed its name to the State Peace and Development Council) and has maintained a firm grip on power to this day. He and his family have amassed a fortune, and at nearly age 77 his health is failing and he is ready to retire. Like many dictators before him, however, he realizes that retiring in safety can be more complicated than maintaining an iron grip on power. As the saying goes, "Riding a tiger is easy; getting off is more difficult."
To ensure that he and his family do not face trial or a firing squad once he relinquishes power, Than Shwe has crafted an elaborate retirement plan that replaces his junta with a new government, made up of military personnel and civilians, that will not be powerful enough to exact retribution from him, his family, or his cronies. The only outcome that preserves his wealth and freedom is a relatively weak, inclusive civil-military government that self-balances and checks the power of any one faction or branch. Establishing a durable civil-military government requires elections that confer enough legitimacy to sustain it and bolster the authority of civilians vis-à-vis the more powerful military. Learning from the experiences of many other military dictators, Than Shwe fears an authoritarian successor might bend to populist sentiment and obliterate him.
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