Myanmar election process advances with 83% township coverage
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Phyo Lin Aung (NP News) - Sep 23
On September 14, the Union Election Commission (UEC) announced the constituencies where the upcoming 2025 multi-party general elections will not be held. According to the announcement, elections will be excluded in 56 Pyithu Hluttaw First Past the Post (FPTP) constituencies, 9 Amyotha Hluttaw FPTP constituencies, and 56 Region or State Hluttaw FPTP constituencies, as these areas do not meet the conditions required for free and fair elections scheduled for December 28, 2025.
Earlier, the UEC announced the constituencies to be contested for the 2025 multi-party democratic general election on August 15, 2025. According to the announcement, the constituencies for the various parliaments are:
à Pyithu Hluttaw: 330 constituencies under the FPTP system
à Amyotha Hluttaw: 84 FPTP constituencies and 26 Proportional Represent
ation (PR) constituencies, totaling 110
à Region/State Hluttaw: 322 FPTP constituencies and 42 PR constituencies,
totaling 364, under the Mixed Member Proportional Representation
(MMP) system
à Ethnic Constituencies: 29 constituencies in Region/State Hluttaw
These announcements provide a clear framework for the 2025 elections, identifying both the constituencies eligible for voting and those excluded due to security, administrative, or logistical challenges. The list underscores the complex political and security landscape in Myanmar, highlighting the challenges the UEC faces in organizing nationwide election under current conditions.
After excluding the constituencies deemed ineligible, 274 Pyithu Hluttaw constituencies remain for the 2025 elections. Then, according to the respective election law, no more than 110 Defence Services personnel nominated by the Commander-in-Chief of the Defence Services will be added. Therefore, it is expected to get a maximum of 384 Pyithu Hluttaw members in the 2025 election.
Likewise, for Amyotha Hluttaw, the UEC designated 110 constituencies with 168 seats mixed by FPTP and PR. Of these 159 seats can be elected, excluding the 9 constituencies with 9 seats that the UEC designated as non-election areas. Then, according to the Amyotha election law, 56 Tatmadaw representatives will be nominated by the Commander-in-Chief of the Defence Services in accordance with the Constitution, with four representatives for each region or state, including the relevant Union territories. This brings the total to 215 Amyotha Hluttaw members for the 2025 election.
Political and strategic considerations
Analysis of the UEC’s constituency data reveals significant strategic considerations. Some townships currently controlled by ethnic armed groups have been included in the election plan, suggesting the Tatmadaw intends to reclaim these areas before the vote. To show it clearly, Kyaukme and Hsipaw, which are currently controlled by the Palaung armed group TNLA, were not included in the list of non-election constituencies. The Tatmadaw’s current heavy offensive in these townships may be linked to this objective.
At the same time, some townships that are not remote and appear to be under Tatmadaw control remain excluded. Despite the Tatmadaw recapturing Madaya and Theikbaikkyin forcibly, townships such as Mogok, Natoegyi, and Singu. located in the central part of the country and along major highways remain outside the list of constituencies slated for elections. This raises questions about the UEC’s criteria for exclusion, since these areas are strategically important and more accessible compared to remote conflict zones.
Furthermore, the UEC also excluded self-administered zones designated by the 2008 Constitution. This includes the Palaung self-administered zone, Kokang self-administered zone, and Wa self-administered zone, except Matman, which is the smallest town in Shan State. This decision reflects the long-standing practice of excluding self-administered areas from nationwide elections, largely due to their special administrative status and ongoing security concerns.
In Rakhine State, the situation is particularly notable. Although the Arakan Army armed group holds 14 townships among 17, the UEC designated 10 as non-election areas. Of these, the three townships held by the Tatmadaw and the remaining four; Thandwe, Ann, Gwa, and Toungup though currently held by the AA, will hold elections. Therefore, the Tatmadaw’s determination to retake these 4 townships before the elections is apparent.
If elections are to be held in these townships, the Tatmadaw will need to occupy them quickly. Operations are already underway, and additional townships may be included either in the main election or in by-elections later.
Approaching election phases
Out of the 330 Pyithu Hluttaw constituencies, 56 will not hold elections, leaving 274 constituencies for the vote. The UEC announced that the first phase of elections will be conducted in 102 townships, covering 37% of the total. The remaining 172 townships will be divided into two additional phases.
As no business is ever 100% successful, no election in Myanmar has ever covered all townships. Looking back at Myanmar’s election history:
2010: elections were held in 325 of 330 townships
2015: elections were held in 323 of 330 townships
2020: elections were held in 315 of 330 townships
In the 2020 general election, elections were not held in Pauktaw Township, Ponnagyun Township, Rathedaung Township, Buthidaung Township, Maungdaw Township, Kyauktaw Township, Minbya Township, Myebon Township, and Mrauk-U Township; a total of 9 out of 17 in Rakhine State.
In addition, the 2020 general election was not held in Mongla Township, Panghsang (Pangkham) Township, Namphan Township, Mongmao Township, Pangwaun Township, and Mong Kung Township in Shan State.
Therefore, compared with the previous elections, the 2025 numbers are not significantly different. Overall, about 83 percent of townships are expected to hold elections in 2025. This shows that the political objective of holding nationwide elections will continue as announced, even though some areas remain excluded.
Political future
The current initiatives by the government and Tatmadaw indicate an intention to gradually incorporate the 56 excluded townships into the democratic framework via subsequent by-elections. Townships that fail to hold elections are often left with political instability, which will hold back governance and local development. Successful holding of elections in major constituencies is therefore crucial for purposes of acquiring legitimacy and political stability. An elected government with legitimacy through multi-party participation can strengthen national institutions, improve governance, and enhance Myanmar's international image.
Political stability is especially important in a country grappling with multi-ethnic populations and protracted armed conflicts. By conducting free and fair elections, even if in phases, Myanmar demonstrates a critical commitment to democratic principles. This commitment is the cornerstone for securing foreign investment, unlocking development aid, and fostering broader regional integration. –