The military is structurally unable to govern under the 2008 Constitution without controlling the government—because the constitution was designed to ensure that. For a genuine democratic transition to occur, the document would need fundamental amendment or wholesale replacement. But Article 436 requires a referendum and >75% parliamentary approval plus >50% of all eligible voters (not just turnout) for any amendment affecting military’s role—an impossible threshold without military consent.
During this period, a "dual government" system emerged. While the NLD controlled the executive branch and much of the legislature, the military retained control of the security ministries and remained unaccountable to the civilian government. myanmar constitution 2008
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