In 2012, when plans were initially discussed in Myanmar to carry out the country’s first census in more than 30 years, UNFPA commissioned an expert assessment of the potential political risks and identification of ways to mitigate them. The results were presented to the Government and donors.

As a follow up, in February 2013, UNFPA held in-depth discussions and regular dialogue with senior Government officials about identified risks. As requested by UNFPA, the Government then formed a team of independent international experts and staff from UNFPA and the Ministry of Immigration and Population, to document potential risks during the March-April 2013 pilot census, which would inform the eventual national census. 

After the pilot census was carried out, technical, logistical, administrative and political risk reports were combined into a comprehensive, integrated risk-management framework in June 2013. Afterwards, donors, the Government and other partners monitored the implementation of this framework at monthly meetings. Then, in January 2014, Government officials, UNFPA staff and conflict advisers began meeting more frequently, and eventually weekly, to review risks and advise on contingency planning.

In addition, Government officials and UNFPA organized town hall meetings throughout the country, in both Government-controlled and self-governed areas, reaching a range of political and armed actors. As these town hall meetings progressed, many community leaders took part in these forums, which provided open opportunities to address their concerns. 

After identifying political risks, UNFPA focused on mitigation. For example, the Fund carried out an intensive effort in September and October 2013 to revamp the census training manual to reflect risks that had been identified. The overhaul of the manual also increased awareness of the importance of socially and culturally appropriate communications by census workers. UNFPA encouraged the Government to hire local enumerators who could speak the local language, build trust among the communities and promote participation.

As part of its United Nations mandate, UNFPA plays a critical role in censuses throughout the world. In 2013 alone, with its support, 20 countries completed their 2010 round of population censuses, raising the total to 78. UNFPA has longstanding experience in supporting governments to conduct censuses in politically sensitive situations. All of this was applied in Myanmar.