Myanmar: Private Meeting*
On Monday morning (22 December), the Security Council will convene for a private meeting on Myanmar. Special Envoy of the Secretary-General on Myanmar Julie Bishop and Special Envoy of the Association of Southeast Asian Nations (ASEAN) Chair on Myanmar Tan Sri Othman Hashim are expected to brief. The Republic of Korea (ROK) and the UK, the penholder on the file, requested the meeting.
The situation in Myanmar has continued to deteriorate throughout 2025. In his 27 October statement at the 15th ASEAN-UN Summit, Secretary-General António Guterres noted that the ongoing conflict in the country, which was sparked by the February 2021 military coup that overthrew the democratically elected government led by the National League for Democracy (NLD), has killed thousands, displaced millions, and threatened regional stability. Guterres called for an immediate end to the violence, inclusive dialogue, a return to civilian government, and the release of arbitrarily detained prisoners, as well as unhindered humanitarian access. He also welcomed improved cooperation between Bishop and Othman and expressed full support for ASEAN’s Five-Point Consensus (5PC). (Agreed during an April 2021 ASEAN leaders’ meeting, the 5PC called for the immediate cessation of violence, constructive dialogue, a special envoy of the ASEAN chair to facilitate mediation of the dialogue process, humanitarian assistance, and a visit to Myanmar by the ASEAN Special Envoy to meet with all parties concerned.)
Bishop is expected to convey similar messages during her briefing at Monday’s meeting. She is likely to update Council members on her engagements with key stakeholders, such as her September meeting with the leader of Myanmar’s military Min Aung Hlaing in Naypyidaw and her interactions with opposition groups. She is also expected to refer to recent developments in Myanmar, including preparations for the upcoming elections organised by the military, which are scheduled to begin on 28 December. During a 28 October briefing to the General Assembly’s Third Committee, Bishop noted that opposition groups and political parties excluded from the polls, including the NLD, have rejected them as a “sham attempt” by the military to gain legitimacy. She also highlighted the risk of a new outbreak of violence connected with the elections, noting that “it is difficult to envision how any voter, election worker or observer can be guaranteed protection” in the current climate.
The planned elections have been strongly criticised by other UN officials. In a 28 November statement, representatives of the Office of the UN High Commissioner for Human Rights (OHCHR) said that the polls will be held in an environment “rife with threats and violence”, in which the military “is actively suppressing participation”. The statement also highlighted discrimination against different ethnic groups in the electoral process, the exclusion of civil society and independent media, the possible use of mass electronic surveillance, and the limited geographical scope of the elections. During a press conference held as part of the recent ASEAN-UN Summit, Guterres said “I don’t think anybody believes that those elections will be free and fair” or “contribute to the solution of the problems of Myanmar”.
At Monday’s meeting, some Council members are likely to express concern regarding the upcoming elections; emphasise that they must be free, fair, and inclusive; and highlight the risk of increased violence in connection with the polls. Other members might indicate that they support the military’s plan to hold elections and argue that they provide a viable pathway for resolving the crisis in Myanmar.
The humanitarian crisis in Myanmar is also expected to be discussed during Monday’s meeting. According to a 17 November update from the UN Office for the Coordination of Humanitarian Affairs (OCHA), 21.9 million people, approximately 40 percent of Myanmar’s population, currently require humanitarian assistance. Food security remains a particularly concerning issue, with Myanmar classified as a hotspot of “very high concern” in the latest hunger hotspots report issued by the Food and Agriculture Organization of the UN (FAO) and the UN World Food Programme (WFP). OCHA’s 17 November update also highlights the food security crisis in Myanmar, noting that it has been exacerbated by funding shortfalls, extreme access constraints, and substantial livelihood losses caused by monsoon flooding.
Othman is expected to provide an update on initiatives he has pursued in his role as well as ASEAN’s broader efforts to resolve the crisis. He is likely to refer to the ASEAN leaders’ review and decision on the implementation of the 5PC, which was issued on 26 October. Among other matters, the review and decision expressed deep concern over the lack of substantial progress in implementing the 5PC and called for a ceasefire throughout Myanmar in line with the ASEAN leaders’ 26 May statement on an extended and expanded ceasefire in the country. It also noted that the cessation of violence and inclusive dialogue must precede elections and decided to continue upholding previous decisions barring Myanmar’s political representation at ASEAN summits and meetings of ASEAN foreign ministers until there has been meaningful progress in implementing the 5PC. Council members are likely to be interested in hearing from Hashim regarding recent engagements between Malaysian officials and key stakeholders, including Malaysian Foreign Minister Mohamad Hasan’s 9 October visit to Naypyidaw, where he met with Min Aung Hlaing and other senior military officials.
The ongoing attacks on civilians in Myanmar are another likely topic of discussion. The 20 October report of the Special Rapporteur on the situation of human rights in Myanmar, Thomas Andrews, indicates that the military junta has continued conducting aerial attacks on civilians in 2025, some of which appear to have violated a ceasefire that was declared after a 7.7 magnitude earthquake struck central Myanmar on 28 March. Media reports of aerial assaults targeting civilians, such as the 8 October paraglider attack that reportedly killed at least 24 people and injured dozens more, have also continued to emerge. In discussing this issue, some Council members are likely to condemn these attacks and highlight the importance of accountability for violations of international law.
According to several analysts, the military has made some gains in 2025 after suffering major losses during the previous two years, including by reclaiming previously lost territory and negotiating ceasefires with opposition groups in talks mediated by China. Against this backdrop, the military has also sought to ease its diplomatic isolation and secure support for its upcoming elections. Min Aung Hlaing has held a series of meetings with world leaders this year, including Chinese President Xi Jinping, Russian President Vladimir Putin, and Indian Prime Minister Narendra Modi. Members may be interested in hearing the briefers’ analysis of these developments during the Council meeting.
The situation of the Rohingya may be raised by some members. On 30 September, the President of the General Assembly (PGA) convened the High-level Conference on the Situation of Rohingya Muslims and Other Minorities in Myanmar pursuant to General Assembly resolution A/RES/79/278 of 27 March. According to a summary prepared by the PGA, recommendations relating to three different areas were made during the conference: addressing the root causes of the conflict and achieving a sustainable resolution; creating a conducive environment for safe, dignified, voluntary, and sustainable return of Rohingya Muslims and other minorities; and addressing immediate humanitarian challenges. At Monday’s meeting, members may emphasise the importance of implementing these recommendations.
While the overall situation in Myanmar has continued to deteriorate, the Council has not been particularly active on this issue. The upcoming meeting will be the fourth occasion that Council members have discussed Myanmar this year, following closed consultations in January, a private meeting in April, and a discussion under “any other business” in June. This represents a slight decline compared with the previous year, when members discussed Myanmar on six occasions, including during one Arria-formula meeting.
Recent efforts to pursue a Council product have largely proven unfruitful. While the UK introduced a draft resolution on Myanmar in August 2024, this was ultimately withdrawn after China and Russia expressed opposition and refused to engage in negotiations on the text involving all Council members. The UK subsequently proposed a draft presidential statement focusing primarily on cooperation between the UN and ASEAN, but negotiations on the draft have stalled after China and Russia raised concerns. Council members were able to reach agreement, however, on a press statement relating to the earthquake that struck Myanmar on 28 March. This press statement, issued on 4 April, was the first Council product on Myanmar since resolution 2669 was adopted in December 2022.
Given these difficulties, Council members who favour greater engagement on Myanmar may use the upcoming meeting as an opportunity to urge the Council to take further substantive action, including by holding more regular meetings in an open format.
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*Post-script (5 December, 5:40 PM): Following publication of this story, the meeting was postponed from 8 December until later in the month. The story was amended to reflect the change in timing.
**Post-script (19 December, 2:00 PM): The meeting, which had been originally scheduled for 8 December, was rescheduled to 22 December. At the time of writing, Council members were negotiating a draft press statement regarding the 10 December airstrike that struck a hospital in Rakhine state, killing at least 34 people and injuring dozens more.
