I 
119TH CONGRESS 
1ST SESSION H. R. 4140 
To provide protection, support, and humanitarian assistance to Rohingya 
refugees and internally displaced people in Burma as well as promote 
accountability and a path out of genocide and crimes against humanity 
for Rohingya. 
IN THE HOUSE OF REPRESENTATIVES 
JUNE 25, 2025 
Mr. MEEKS (for himself, Mr. MCCAUL, Mr. BERA, and Mr. HUIZENGA) intro-
duced the following bill; which was referred to the Committee on Foreign 
Affairs 
A BILL 
To provide protection, support, and humanitarian assistance 
to Rohingya refugees and internally displaced people in 
Burma as well as promote accountability and a path 
out of genocide and crimes against humanity for 
Rohingya. 
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE. 
This Act may be cited as the ‘‘Burma Genocide Ac-
countability and Protection Act’’ or the ‘‘Burma GAP 
Act’’. 
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SEC. 2. FINDINGS. 
Congress finds the following: 
(1) In its report dated September 17, 2018, the 
United Nations Independent International Fact- 
Finding Mission on Myanmar (FFM) found that im-
punity was a ‘‘root cause of continued human rights 
violations in Myanmar’’ that ‘‘has significantly and 
demonstrably contributed to the validation of deeply 
oppressive and discriminatory conduct, enabled re-
currence of human rights violations and atrocity 
crimes, and emboldened perpetrators and silenced 
victims’’, and concluded that ‘‘ensuring account-
ability for crimes’’ was ‘‘the key to disrupting pat-
terns of oppression and cycles of violence’’ as well as 
a legal obligation for Burma. 
(2) On December 13, 2018, the United States 
House of Representatives passed H. Res. 1091, by 
an overwhelming majority of 394 to 1, expressing 
the sense of the House of Representatives that 
atrocities committed against Rohingya by members 
of the Burma military and security forces since Au-
gust 2017 constitute crimes against humanity and 
genocide. 
(3) On September 16, 2019, the FFM reported 
that it ‘‘has reasonable grounds to conclude that the 
evidence that infers genocidal intent on the part of 
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the state, identified in its last report, has strength-
ened that there is a serious risk that genocidal ac-
tions may occur or recur’’. 
(4) On February 1, 2021, the Burma military 
conducted a coup d’e´tat, derailing Burma’s transi-
tion to democracy and disregarding the will of the 
people of Burma. 
(5) Since the February 2021 military coup, the 
Burma military and certain local armed groups have 
continued to commit crimes and abuses against 
Rohingya. In Rakhine state, over 600,000 Rohingya, 
including at least 130,000 confined in internally dis-
placed persons (IDP) camps face heightened risks. 
The military continues to target Rohingya with laws 
and policies that criminalize the exercise of human 
rights, as well as with arbitrary arrest and deten-
tion, torture, sexual violence, and murder. 
(6) On March 21, 2022, Secretary of State 
Antony Blinken announced the Secretary had deter-
mined that ‘‘members of the Burmese military com-
mitted genocide and crimes against humanity 
against Rohingya’’. 
(7) The United States has been the leading 
contributor of humanitarian assistance in response 
to the Rohingya crisis. 
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(8) The United Nations High Commissioner for 
Human Rights said in a June 2023 report that the 
Burma military’s restrictions on aid access by local 
and international organizations seeking to respond 
to Cyclone Mocha in Rakhine state in May 2023 
may amount to gross violations of international 
human rights law, and serious violations of inter-
national humanitarian law. 
(9) According to the World Food Program, over 
15 percent of young children in the Rohingya ref-
ugee camps in Bangladesh are suffering from mal-
nutrition. The World Food Program estimates that 
it needs another $83,000,000 in funding to maintain 
full rations and meet the basic minimum nutritional 
needs of refugees through May 2026. 
(10) Funding cuts and rising commodity prices 
have exacerbated protection concerns for Rohingya 
refugees in Bangladesh, especially with respect to 
gender-based violence and child protection, wors-
ening health outcomes and fueling unsafe and irreg-
ular migration throughout the surrounding region. 
(11) Combined with rising food insecurity, 
Rohingya are increasingly unsafe in Bangladesh as 
a result of growing competition between armed and 
criminal groups in the refugee camps. These factors 
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have driven thousands of Rohingya to flee to mari-
time Southeast Asia by boat only to face obstacles 
from regional navies and growing resentment from 
local populations. 
(12) The long, systemic denial of the exercise of 
certain rights, including education, freedoms of ex-
pression, movement, and rights related to nationality 
have had enduring effects on many Rohingya per-
sons’ mental and physical well-being and perpetuate 
the risk of future genocidal violence until these root 
causes are addressed. 
SEC. 3. STATEMENT OF POLICY. 
It is the policy of the United States— 
(1) to uphold Article I of the Convention on the 
Prevention and Punishment of the Crime of Geno-
cide, to which the United States is a party, to pre-
vent the crime of genocide and punish its perpetra-
tors; 
(2) to prevent and end atrocities committed 
against Rohingya by addressing the root causes of 
the genocide and crimes against humanity com-
mitted against them, holding the perpetrators of 
these crimes accountable, supporting solutions to re-
spect the human rights and uphold the dignity of 
Rohingya, and to ensure Rohingya involvement and 
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representation in decision making and implementa-
tion processes to address these needs; 
(3) to support the empowerment of Rohingya 
civilian leadership in diaspora communities, refugee 
camps in Bangladesh, and inside Burma through 
consultation and collaboration with Rohingya com-
munity representatives; 
(4) to provide holistic support to the Rohingya 
community to overcome decades of systematic perse-
cution and discrimination and to best support the 
desires of all communities in Burma to achieve last-
ing peace and an inclusive, Federal democracy in-
cluding through credible transitional justice proc-
esses; 
(5) to collaborate with other countries to pursue 
and implement coordinated, comprehensive, and sus-
tained measures for upholding the dignity and pro-
tecting the human rights of Rohingya; 
(6) to engage in a coordinated manner with the 
United Nations High Commissioner for Refugees 
other relevant United Nations agencies, govern-
ments, and intergovernmental entities to establish 
protocols and respond to protection concerns and to 
prevent and protect Rohingya from further atroc-
ities; and 
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(7) to isolate the Burma military junta dip-
lomatically and economically until such time that 
there is a return to civilian rule in Burma. 
SEC. 4. SENSE OF CONGRESS. 
It is the sense of Congress that— 
(1) the United States has a moral and legal re-
sponsibility to prevent and punish genocide, includ-
ing against Rohingya; 
(2) the Secretary of State’s determination in 
March 2022 that genocide and crimes against hu-
manity have been committed against Rohingya by 
members of the Burma military should lead to sup-
port for Rohingya to overcome decades of systemic 
persecution, marginalization, and violence; 
(3) the Rohingya crisis and the broader Burma 
crisis must be addressed simultaneously to ensure 
that history does not repeat itself; 
(4) the United States should work with other 
donor nations to ensure that Rohingya refugees in 
refugee camps in Bangladesh receive a ration suffi-
cient to meet the humanitarian minimum standards 
for food and nutrition needs; 
(5) the United States should encourage other 
countries to contribute additional assistance and fol-
low United States leadership in protecting Rohingya 
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through humanitarian assistance, political and eco-
nomic empowerment, accountability for genocide, 
crimes against humanity, and any other inter-
national crimes committed by the Burma military 
and other armed groups in Burma, as well as sup-
porting the voluntary resettlement or eventual safe 
repatriation of Rohingya refugees to Burma when 
conditions allow; and 
(6) the United States should continue not to 
recognize the Burma military junta as the legitimate 
political representative of the Burmese people given 
the genocide, crimes against humanity, and coup 
that it has perpetrated. 
SEC. 5. UNITED STATES SPECIAL REPRESENTATIVE AND 
POLICY COORDINATOR FOR BURMA. 
(a) IN GENERAL.—In the absence of a United States 
Ambassador to Burma, the Secretary of State is author-
ized to appoint a career Foreign Service Officer of Senior 
Foreign Service rank as Special Representative and Policy 
Coordinator for Burma. 
(b) DUTIES.—The Special Representative shall— 
(1) promote a comprehensive international ef-
fort, including multilateral sanctions, direct dialogue 
with all parties, including democracy advocates, and 
support for nongovernmental organizations operating 
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in Burma and neighboring countries, designed to re-
store civilian democratic governance to Burma and 
address the urgent humanitarian needs in the re-
gion; 
(2) consult broadly, including with the Govern-
ments of Thailand, Bangladesh, India, the Republic 
of Korea, Japan, the member states of ASEAN, the 
European Union, and other nations to coordinate 
policies toward Burma; 
(3) assist efforts by the United Nations Special 
Envoy to secure the release of all political prisoners 
in Burma and to promote dialogue among all par-
ties, including leaders of Burma’s democracy move-
ment; 
(4) consult with Congress on policies relevant to 
Burma and the future and welfare of all the Bur-
mese people, including refugees; 
(5) coordinate multilateral sanctions efforts 
against Burma among United States allies and part-
ners; and 
(6) support protection, humanitarian assistance, 
and accountability efforts for Rohingya and other 
Burmese ethnic minorities in Burma and the sur-
rounding region. 
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(c) SUNSET.—This section shall terminate on the 
date that is 5 years after the date of the enactment of 
this Act. 
SEC. 6. SUPPORT FOR PROTECTION EFFORTS AND DURA-
BLE 
SOLUTIONS 
WITH 
RESPECT 
TO 
ROHINGYA. 
(a) IN GENERAL.—The Secretary of State, in con-
sultation with the Special Representative (if so designated 
under section 5(a)), should support efforts to protect 
Rohingya and prevent further atrocities against Rohingya 
and other Burmese ethnic minorities. 
(b) PROTECTION EFFORTS.—In carrying out sub-
section (a), the Secretary should seek to engage in crisis 
response efforts and efforts to maximize the safety, secu-
rity, and well-being of Rohingya in Burma and throughout 
South Asia and Southeast Asia, by— 
(1) supporting Rohingya refugees access to 
international protection as well as international asy-
lum and refugee mechanisms, and preventing indefi-
nite detention and nonrefoulement; 
(2) facilitating greater access for Rohingya fac-
ing ongoing abuse, including human trafficking and 
gender-based violence, to appropriate legal support 
services; 
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(3) supporting a monitoring mechanism, rapid 
response team, legal assistance, and communication 
mechanisms to overcome military-imposed internet 
and telecommunication restrictions for Rohingya liv-
ing in Burma; 
(4) working with other governments in the re-
gion to strengthen regional mechanisms and overall 
coordination on lifesaving search and rescue, safe 
disembarkation, effective receiving and comprehen-
sive assistance for Rohingya refugees; 
(5) supporting host communities to facilitate a 
safer, more supportive, and welcoming environment 
for Rohingya refugees through the provision of tech-
nical assistance and cooperation with local organiza-
tions and governments; and 
(6) engaging the Government of Bangladesh 
and the international community to establish the 
necessary mechanisms for Rohingya refugees to file 
protection claims, and seek accountability by— 
(A) improving Rohingya refugees ability to 
access justice within Bangladesh through legal 
aid, simplifying the process for filing cases, fa-
cilitating the access of lawyers involved in inter-
national legal proceedings involving Rohingya, 
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and enabling Rohingya to travel abroad to par-
ticipate in legal proceedings in other courts; 
(B) 
supporting 
enhanced 
coordination 
among Bangladesh security forces on investiga-
tions and accountability; 
(C) supporting training for Bangladesh’s 
Armed Police Battalion (APBn) and any other 
units providing security for Rohingya refugee 
camps on humanitarian protection principles 
and community safety; and 
(D) encouraging the Government of Ban-
gladesh and other host governments to allow 
safe houses for Rohingya human rights activ-
ists, as well as defectors, insider witnesses to 
atrocities against Rohingya and other refugees 
facing imminent threats. 
(c) PROMOTING DURABLE SOLUTIONS.—In carrying 
out subsection (a), the Secretary should seek to promote 
durable solutions with respect to Rohingya by— 
(1) supporting the inclusion of Rohingya across 
various sectors in Burma; 
(2) facilitating training and capacity building 
on atrocity prevention for the National Unity Gov-
ernment (NUG), the National Unity Consultative 
Council (NUCC), the Committee Representing 
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(E) including Rohingya across administra-
tion and governance mechanisms of Burma, in-
cluding Rakhine state; and 
(F) developing a comprehensive transi-
tional justice strategy; 
(4) working with United States allies and part-
ners to broaden resettlement programs and sup-
porting the voluntary resettlement of the most vul-
nerable individuals within Rohingya populations, as 
well as defectors, deserters, and insider witnesses 
participating in justice processes; and 
(5) supporting repatriation of Rohingya refu-
gees only when conditions are conducive for a safe, 
voluntary, and sustainable return with full rights re-
stored. 
SEC. 7. HUMANITARIAN ASSISTANCE AND SUPPORT FOR 
ROHINGYA REFUGEES AND INTERNALLY DIS-
PLACED PERSONS. 
(a) IN GENERAL.—The Secretary of State, in con-
sultation with the Special Representative (if so designated 
under section 5(a)) and other relevant United States Gov-
ernment agencies, should continue to provide assistance 
to Rohingya refugees, internally displaced persons, and 
host communities receiving such refugees and persons. 
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(b) ACTIVITIES SUPPORTED.—Assistance provided 
under subsection (a) shall include the following: 
(1) Protection programming, including interven-
tions focused on Rohingya civil society leaders, 
human rights activists, and others threatened by 
armed groups. 
(2) Support for Rohingya civil society and com-
munity-based organizations, including diplomatic en-
gagement to encourage the Government of Ban-
gladesh to allow the operation of Rohingya-led civil 
society and community-based organizations in the 
refugee camps in Bangladesh. 
(3) Programs to prevent and respond to gender- 
based violence, trafficking, forced marriage, as well 
as specialized training programs for vulnerable 
groups. 
(4) Support for education, including higher edu-
cation, for Rohingya refugees in Bangladesh. 
(5) Support for displaced Rohingya to access 
livelihoods through vocational training and volunteer 
programs organized by international organizations 
and nongovernmental organizations. 
(6) Support for meeting basic needs, including 
food, nutrition, health care, protection, shelter, 
water, sanitation, and hygiene support. 
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(7) Support to Rohingya in Burma, refugee 
camps in Bangladesh, and the diaspora to preserve 
Rohingya culture, history, and memory. 
SEC. 8. PROMOTING ACCOUNTABILITY FOR GENOCIDE AND 
CRIMES 
AGAINST 
HUMANITY 
COMMITTED 
AGAINST ROHINGYA IN BURMA. 
(a) IN GENERAL.—The Secretary of State, in con-
sultation with the Special Representative (if so designated 
under section 5(a)) and other relevant United States Gov-
ernment agencies, should take the actions described in 
subsection (b) to promote accountability for genocide and 
crimes against humanity committed against Rohingya in 
Burma. 
(b) ACTIONS DESCRIBED.—The actions described in 
this subsection are the following: 
(1) Support comprehensive justice and account-
ability for genocide and crimes against humanity 
committed against Rohingya, including through con-
sultation with and participation by the Rohingya 
community. 
(2) Support for the efforts of entities, including 
the 
Independent 
Investigative 
Mechanism 
for 
Myanmar, in their work to safely collect and pre-
serve evidence of genocide and crimes against hu-
manity committed against Rohingya, including 
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through open-source research and by cultivating in-
sider, defector, deserter, and survivor witnesses, and 
to develop the chain of evidence, for potential use in 
prosecutions in domestic, hybrid, and international 
courts. 
(3) Provide assistance, particularly financial 
and technical assistance, to efforts led by Rohingya 
to monitor and document evidence to lead, assist, or 
inform other investigative mechanisms and justice 
processes. 
(4) Encourage the development of an intergov-
ernmental fund to support reparative justice for 
Rohingya victims and survivors and identify sources 
of funding from foreign governments and within the 
United States Government that have already been 
appropriated. 
(5) Engage with Burma’s civilian leadership 
and any subsequent democratic leadership in Burma 
to officially acknowledge genocide and crimes against 
humanity committed by members of the Burma mili-
tary, restore Rohingya’s citizenship and equal rights 
in Burma, and ensure compensation by the Govern-
ment of Burma and restitution for their land and 
property, and by providing support, including tech-
nical and financial assistance, for efforts to memori-
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alize genocide and crimes against humanity in 
Burma, particularly those efforts led by the affected 
communities. 
(6) Provide support for institutional reform and 
other guarantees of nonrecurrence by civilian leader-
ship in Burma, including the security sector, legisla-
ture, and education system, and the inclusion and 
equal participation of Rohingya in all areas of ad-
ministration and governance, under an eventual 
Federal democratic system. 
(7) Use convening authority to directly bring 
together various ethnic groups and other related 
stakeholders in Burma to promote truth, justice, 
nonrecurrence, and reconciliation, to support facilita-
tion of related efforts by civilian leadership in 
Burma, and to provide both technical and financial 
support to entities, especially the civil society of 
Burma, to implement work aimed at strengthening 
rule of law and initiatives aimed at atrocity preven-
tion. 
SEC. 9. REPORT. 
(a) IN GENERAL.—Not later than 180 days after the 
date of the enactment of this Act, and annually thereafter 
for 5 years, the Secretary of State, in consultation with 
the Special Representative (if so designated under section 
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5(a)), shall submit to the appropriate congressional com-
mittees a report that includes— 
(1) a description of and an assessment of the 
effectiveness of the efforts of the United States Gov-
ernment, during the year prior to the submission of 
such report, to— 
(A) identify and respond to atrocity risk 
factors that concern Rohingya; 
(B) 
deter 
future 
atrocities 
against 
Rohingya and other Burmese ethnic minorities; 
(C) respond to the need for humanitarian 
assistance for and protection of Rohingya and 
other Burmese ethnic minorities; 
(D) document the nature of and responsi-
bility for atrocity crimes committed against 
Rohingya and other Burmese ethnic minorities; 
and 
(E) promote justice and accountability for 
atrocity crimes committed against Rohingya 
and other Burmese ethnic minorities; 
(2) a detailed description of the actions taken 
pursuant to sections 6, 7, and 8; 
(3) an assessment of the effect of the actions 
described in paragraph (2) on the advancement of 
the policies described in section 3; 
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(4) a list of activities and programs initiated 
pursuant to this Act; 
(5) the number of Rohingya refugees resettled 
in the United States in the year preceding the sub-
mission of such report, segmented by the country 
from which such refugees were resettled; 
(6) the number of Rohingya refugees resettled 
in countries other than the United States in the year 
preceding the submission of such report; 
(7) a description of any new challenges facing 
Rohingya in Burma or in refugee camps in the year 
preceding the submission of such report, including 
an assessment of early warning indicators and risk 
factors for atrocities; and 
(8) a list of recommendations to facilitate the 
implementation of this Act and advance the policies 
described in section 3, which may include rec-
ommended— 
(A) legislative action; 
(B) administrative action; and 
(C) provision of additional resources. 
(b) REPORT FORM.— 
(1) 
CLASSIFICATION.—The 
report 
required 
under subsection (a) shall be submitted in unclassi-
fied form and may contain a classified annex. 
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(2) PUBLIC AVAILABILITY OF INFORMATION.— 
Not later than 45 days after the date on which the 
appropriate congressional committees received such 
report, the unclassified portion of such report shall 
be made publicly available on the website of the De-
partment of State. 
SEC. 10. AUTHORIZATION OF APPROPRIATIONS. 
(a) GENERAL AUTHORIZATIONS.—For each of fiscal 
years 2026 through 2030, there are authorized to be ap-
propriated, from amounts made available to carry out the 
Foreign Assistance Act of 1961 (22 U.S.C. 2151 et seq.), 
such sums as may be necessary to carry out sections 6, 
7, and 8 of this Act. 
(b) SPECIFIC
AUTHORIZATIONS
OF
APPROPRIA-
TIONS.—For each of fiscal years 2026 through 2030, 
there are authorized to be appropriated— 
(1) $5,000,000 for the Department of State to 
support atrocity crime investigations, documentation, 
and casework, transitional justice and accountability 
mechanisms, witness protection measures, and tech-
nical support related to Rohingya and other Bur-
mese ethnic minorities; and 
(2) $4,000,000 to support programs that cap-
ture, analyze, and make widely available evidence of 
the ongoing atrocities against the people of Burma 
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through the documentation, verification, and dis-
semination of open-source evidence. 
SEC. 11. DEFINITIONS. 
In this Act: 
(1) APPROPRIATE
CONGRESSIONAL
COMMIT-
TEES.—The term ‘‘appropriate congressional com-
mittees’’ means— 
(A) the Committee on Foreign Affairs of 
the House of Representatives; and 
(B) the Committee on Foreign Relations of 
the Senate. 
(2) GENOCIDE.—The term ‘‘genocide’’ means 
any offense described in section 1091(a) of title 18, 
United States Code. 
(3) SPECIAL
REPRESENTATIVE.—The term 
‘‘Special Representative’’ means the United States 
Special Representative and Policy Coordinator for 
Burma designated by the President pursuant to sec-
tion 5(a). 
(4) 
BURMA
MILITARY
JUNTA.—The 
term 
‘‘Burma military junta’’ means the State Adminis-
trative Council of Burma or any successor to such 
entity. 
Æ 
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