Military junta government of Myanmar from 2021 to 2025
This article is about the military junta set up in Myanmar after the 2021 coup d'etat. For the military government established in 1988, seeState Peace and Development Council.
TheState Administration Council (Burmese:နိုင်ငံတော်စီမံအုပ်ချုပ်ရေးကောင်စီ; abbreviatedSAC or နစက) was amilitary junta[3] that governedMyanmar from 2021 to 2025, established by Commander-in-Chief of Defence ServicesMin Aung Hlaing following theFebruary 2021 coup d'état and the declaration of a state of emergency by theNational Defence and Security Council.[4][5] Under the constitution, the Commander-in-Chief holds absolute legislative, executive, and judicial power during astate of emergency. Min Aung Hlaing delegated his legislative power to the SAC, which hechaired.[6] It has formed aprovisional administration, also led byMin Aung Hlaing asPrime Minister of Myanmar.[7] It was dissolved with the conclusion of the state of emergency at the end of July 2025, though Min Aung Hlaing's military dictatorship continued through his role on the NDSC, with all powers of the State Administration Council being taken up directly by that body.[8][9][10]
The State Administration Council was formed byMin Aung Hlaing on 2 February 2021 with 11 members in the aftermath of the2021 Myanmar military coup d'état.[1][12][13] On 3 February, five civilian members were added to the council.[14][15][16] On 17 March, a civilian joined the council.[17] On 30 March, a military officer and a civilian joined the council.[18] As of late August, in total, the council comprises nine military officers and ten civilians.[19]
In the leadup to and in the aftermath of the coup d'état, the military had made overtures to political parties allied with theUnion Solidarity and Development Party (USDP), the military proxy party.[20][21] On 14 August 2020, 34 pro-military parties including USDP had met with Min Aung Hlaing to seek assurances from the military to intervene in the event of electoral integrity issues during the upcoming2020 Myanmar general election.[22][20] Min Aung Hlaing's remarks during the meeting raised concerns that the military had threatened to stage a coup.[23]
Several organisations have distanced themselves from civilian members of the SAC. Following Mahn Nyein Maung's appointment, the KNU distanced itself from him, and reiterated its opposition to the military coup.[26] On 4 February, KySDP announced it had dismissed Saw Daniel from the party for accepting the appointment, and called for the Burmese military to honor the 2020 election results.[24]
On 5 February, SAC formed a press team led by Major GeneralZaw Min Tun and deputy Thet Swe.[27]
On 11 February, theUnited States government imposed sanctions on six military officers of the SAC, namelyMin Aung Hlaing,Soe Win,Mya Tun Oo,Tin Aung San,Aung Lin Dwe, andYe Win Oo. On the same day,Soe Htut, who later became a member of the SAC, was also sanctioned.[28] On 22 February, the United States government imposed sanctions on two military officers,Maung Maung Kyaw andMoe Myint Tun.[29] On 17 May and 2 July, the U.S. government imposed sanctions on four and three civilian members of the SAC, respectively.[30][31] On 17 May, the United States government designated the SAC as an object to sanctions.[30]
As of late August 2021, of all SAC members, only three civilians, Jeng Phang Naw Taung, Moung Har and Shwe Kyein, have not been sanctioned by the United States government.
On 11 February, SAC formed State and Region Administration Councils and their leaders for Myanmar's 14 states and regions.[47][48] It also appointed military officers to run Self-Administered Zone Councils for the country's autonomous zones.[49]
Under Order No 57/2023, the State Administration Council was reformed with 18 members.
Under Order No 55/2023, U Maung Ko and Dr Aung Kyaw Min were retired from their duty assignment as SAC members.
Under Order No 56/2023, Dr Kyaw Tun is transferred and assigned as a member of the SAC's Central Advisory Body.
Under Order No 58/2023, Union Chief Justice U Htun Htun Oo is retired from duty assignment.
Under Order No 59/2023, Union Minister for Religious Affairs and Culture U Ko Ko, Union Minister for Electric Power U Thaung Han, Union Auditor-General U Tin Oo, Anti-Corruption Commission Chairman Dr Htay Aung and Myanmar National Human Rights Commission Chairman U Hla Myint were retired from their duty assignment.
Under Order No 60/2023, Union Minister of Energy U Myo Myint Oo and Union Minister for Labour Dr Pwint San were retired from their duty assignment.
On 9 February, a 36-page draftcybersecurity law proposed by SAC was circulated to Myanmar's mobile operators and telecoms license holders for industry feedback.[50] The draft bill would make internet providers accountable for preventing or removing content that "cause[s] hatred, destroy unity and tranquility" and would require ISPs to store user data at a government-prescribed location for a minimum of 3 years.[51][50] A coalition of 150 civil service organizations publicly denounced the bill for violating the fundamental rights tofreedom of expression,data protection, and privacy, and other democratic norms in the digital space, and for granting state authorities the ability to ban unfavorable content, restrict ISPs, and intercept data.[50]
On 10 February, the SAC conducted late-night raids to arrest senior civilian politicians and election officials throughout the country, in an attempt to neutralize theNLD.[52] High-profile arrests include the detentions of the Chief Ministers ofTanintharyi Region,Shan,Chin,Kachin,Karen andRakhine State's, as well as dozens of township- and district-level election officials.[52]
On 11 February, SAC remitted the sentences of 23,314 prisoners.[53] Among those released were supporters of the assassin who killedKo Ni, theNLD's legal advisor.[54] TheAssistance Association for Political Prisoners expressed serious concern that the amnesty was intended to clear prison space in order to detain political prisoners.[55] A recent spate of crimes, including arson, has coincided with the timing of the amnesty.[56]
On 14 February, SAC amended existing privacy protection laws, which effectively enables the Commander-in-Chief to temporarily restrict or suspend the fundamental rights of citizens, including warrantless arrests and searches, until power is transferred to a newly elected government.[56] SAC also enacted Law 3/2021, which requires all residents to register overnight guests outside of their official household with their respective township or ward administrators.[56] The military era law had previously been repealed by the NLD-led government.[56]
On 12 February, theMinistry of Information sent directives to theMyanmar Press Council,[57] a media-adjudication and media-dispute settling body, that the media must report ethically and avoid instigating public unrest but the gradual resignation of twenty three out of twenty six members following the military coup has made it subjected to the cessation of functions. More distinctively, the directives say that the words "regime or junta" cannot be used for the State Administrative Council. Ten days after the directions of the Ministry of Information to the Press Council, Min Aung Hlaing, the military coup leader, threatened publications in Myanmar would lose their publishing licenses for the usage of the military regime or junta. Most local media said terms like "military council, junta or regime" will still be used in their reporting.[58][59]
On 1 March, theCRPH designated the SAC as a "terrorist group".[11]
On 1 August, SAC was re-formed as a caretaker government andMin Aung Hlaing appointed himself asPrime Minister of that government.[60][61] The same day, Min Aung Hlaing announced that the country's state of emergency had been extended by an additional 2 years, until elections were held.[62] On 31 July 2023, the state of emergency was extended another six months for the fourth time,[63] starting from 1 August.[64]
On 10 February 2024, the State Administration Council activatedconscription under the 2010SPDCPeople's Military Service Law in response to anti-juntaethnic militias andpro-democracy rebels capturing massive swathes of territory.[65]
On 31 July 2025, Min Aung Hlaing ended the state of emergency. The National Security and Peace Commission and Union Government formed, with its members appointed by Min Aung Hlaing himself. Junta propaganda hailed this change as a step towards multi-party democracy.[66]
Territorial control during the Myanmar civil war. Territory controlled by the military junta shown in red
In November 2020, the Burmese military negotiated an informal ceasefire with theArakan Army (AA), an insurgent group seeking autonomy forRakhine State.[70] The ceasefire enabled the military to redeploy allowing thousands of troops between January and early February 2021 to the country's heartland, in the leadup and wake of the February coup.[71] In this vacuum, the AA established its own governing institutions in Rakhine State, including in Rohingya-majority areas.[70] In August 2021, the AA announced a parallel judicial system for state residents.[72] By September 2021, the AA and its political wing, theUnited League of Arakan (ULA) effectively controlled 75% of the state's townships.[70]
As of October 2021, over a hundred local SAC-appointed administrators inSagaing,Magwe, andYangon Regions have also resigned from their posts, following threats fromPeople's Defence Force groups.[73] Local administration offices have been used to strengthen the military's administrative power, revive neighbourhood surveillance networks, and enforce SAC mandates, including registration of household guests with local authorities.[73]
On 5 September 2022, the Special Advisory Council for Myanmar (SAC-M) reported that the junta has stable territorial control in 22% (72 of 330) oftownships in Myanmar, comprising only 17% of Myanmar's land area.[74] The report also noted that the regime's governance functions and administrative capacity were collapsing throughout the country, with much of Myanmar's townships now becoming contested territory, and resistance forces having effective territorial control in 39% of townships.[74] Armed resistance has been most endemic in theBamar heartland, particularly inMagwe andSagaing Regions, as well as parts ofKachin,Kayin,Mon, andRakhine States.[74] On 7 September,NUG acting presidentDuwa Lashi La stated that the regime had lost control of half of the country, with the NUG having formed over 300People's Defence Force battalions, and township public defence forces in 250 of the country's townships.[75]
By end of September 2021, the SAC meeting had been held 15 times. It is unclear what an ordinal number of the coordination meeting held on 15 February 2021 was. The SAC meetings reported by state-run English newspaper are as follows.
An increasing number of foreign governments have curbed diplomatic ties with the military-led government, following the coup.[90] In February 2021, theGovernment of New Zealand officially announced it does not recognise the legitimacy of the military-led government, shortly after the coup.[90] TheGovernment of Japan does not recognize the military-led government as Myanmar's legitimate governing body.[91] In August 2021, it refused to issue visas for two military-appointed diplomats intended to replace two Japan-based diplomats fired in March for protesting the coup.[91]
Since the coup,ASEAN has been circumspect in avoiding the impression of givingde jure recognition to SAC in official and legal communications.[92] Indonesia's foreign ministerRetno Marsudi has led efforts to exclude SAC at the political level from all ASEAN meetings until democracy was restored through an inclusive process.[93] In April 2021, ASEAN member states adopted a Five-Point Consensus with respect to the Myanmar situation, calling for the immediate cessation of violence in the country, commencement of constructive dialogue for a peaceful resolution, appointment of a special ASEAN envoy to mediate on ASEAN's behalf, the provision of humanitarian assistance via the AHA Centre, and ASEAN's ability to meet with all concerned parties.[94]
On 4 October 2021,ASEAN leaders, including Indonesian foreign minister,Retno Marsudi, and Singaporean foreign minister,Vivian Balakrishnan, publicly expressed disappointment about the Burmese military's commitment to a peace plan.[95] Malaysian Foreign MinisterSaifuddin Abdullah expressed the possibility that the SAC chairman,Min Aung Hlaing and the junta could be excluded from the upcomingASEAN Summit.[95][96] ASEAN ultimately barred Min Aung Hlaing from attending the October summit.[97] As of 1 November 2021, ASEAN's official website continues to listKyaw Tin, appointed by the civilian-led government, as Myanmar's foreign minister, and civilian-appointedWin Myint as Myanmar's head of state.[92][98]
As Myanmar's humanitarian situation has continued to decline after the coup, particularly with the execution of four political prisoners in July 2022, ASEAN member states have expressed dissatisfaction with the SAC for its intransigence in implementing ASEAN's Five-Point Consensus.[99][100] In August 2022, Indonesia's foreign minister publicly criticized SAC's failure to implement the peace plan and its broken promises.[101] In September 2022, Singapore's foreign minister expressed its disappointment in SAC's progress against the consensus.[102] On 20 September 2022, Malaysia became the first ASEAN member state to publicly engage with the competing NUG.[103]
In 2021, theUnited Nations General Assembly adopted a resolution condemning Myanmar's military leaders and calling for a halt in arms sales to the country. The resolution calls on the Myanmar's military to respect democratic election results and release political detainees as well as urging non-recognition of the junta.[105]
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