One of the problems with Burma—and this is a problem with a few other countries in the world, as well—is that it's not monolithic. No government is monolithic, but Burma has a particularly problematic situation. The NLD won the election and controls the presidency and most of the ministries, but the Ministry of Home Affairs ministry is appointed by the military. That military retains a 25% block in Parliament, and the military still controls de facto the foreign policy and some of the internal security policy of the government.
You essentially have two sovereigns. You have Aung San Suu Kyi and her president, and the NLD, which hold sovereignty over the laws and technically can order parts of the government to do things, or not do things, etc., but the military and Ministry of Home Affairs still police the state. When you talk about the government being complicit in something, the question sometimes is which government, the military or...?