VZCZCXYZ0000
PP RUEHWEB

DE RUEHLM #0753/01 2120731
ZNR UUUUU ZZH
P 310731Z JUL 09
FM AMEMBASSY COLOMBO
TO RUEHC/SECSTATE WASHDC PRIORITY 0306
INFO RUEHKT/AMEMBASSY KATHMANDU PRIORITY 7067
RUEHBK/AMEMBASSY BANGKOK PRIORITY 3918
RUEHNE/AMEMBASSY NEW DELHI PRIORITY 3199
RUEHIL/AMEMBASSY ISLAMABAD PRIORITY 8828
RUEHKA/AMEMBASSY DHAKA PRIORITY 1812
RUEHGV/USMISSION GENEVA PRIORITY 3651
RUCNDT/USMISSION USUN NEW YORK PRIORITY 1273
RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC
RHHMUNA/CDR USPACOM HONOLULU HI//J3/J332/J52//
RHMFIUU/CDRUSARPAC FT SHAFTER HI//APCW/APOP//

UNCLAS COLOMBO 000753 
 
SENSITIVE 
SIPDIS 
 
DEPARTMENT FOR SCA/INS AND PRM 
STATE ALSO PASS TO USAID 
AID/W FOR ANE/SCA 
AID/W FOR DCHA/FFP FOR JDWORKEN, JBORNS 
AID/W FOR DCHA/OFDA FOR ACONVERY, RTHAYER AND RKERR 
BANGKOK FOR USAID/DCHA/OFDA WBERGER 
KATHMANDU FOR USAID/DCHA/OFDA MROGERS AND POL SBERRY 
USMISSION GENEVA FOR NKYLOH 
USUN FOR ECOSOC DMERCADO 
 
E.O. 12958: N/A 
TAGS: EAID PREL PREF PGOV PHUM MOPS ASEC CE
SUBJECT: Report Number One on Interagency Policy Committee (IPC) 
Benchmarks for Sri Lanka 
 
REF:  A) Colombo 691 B) State 69689 
 
¶1. (SBU) SUMMARY: This is the first of three monthly reports on the 
Government of Sri Lanka's progress in meeting benchmarks for as 
outlined in Ref (b). 
 
CAMP MANAGEMENT AND ACCESS:  Acute humanitarian needs are being met 
in internally displaced persons camps (IDP) camps, although all 
sectors are not up to Sphere standards.  Camps have stabilized and 
efforts to decongest them are reducing population pressures and 
helping to close gaps.  The Sri Lankan Army (SLA) has withdrawn to 
the external periphery of the camps where it provides perimeter 
security and controls access to the camps.  Local police are visible 
in the camps but maintain a low-key presence.  Despite public 
pronouncements by Minister of Resettlement and Disaster Relief 
Services Rishad Bathiudeen that the transition from military to 
civilian authority over day-to-day management of IDP camps had 
occurred, it is unclear whether the SLA will continue to exercise 
the authority granted previously as the Competent Authority (CA) or 
this authority will be transferred to the civilian Government Agent. 
 The GSL does not restrict the access of U.N. agencies, 
international non-governmental organizations (INGOs), and 
non-governmental organizations (NGOs) that are delivering 
donor-funded goods and services and/or carrying out relief 
activities in the IDP camps.  However, due to the fact that there 
are no written procedures on access to the IDP camps and the 
tendency of zonal commanders to make their own decisions on the 
spot, access is at times inconsistent.  Although the GSL has 
provided permission and access for donors and implementing partners 
to address some protection issues, access for protection monitoring 
remains a concern. 
 
REGISTRATIONS, SURRENDEES AND RETURNS:  As of July 14, the 
Government of Sri Lanka (GSL) had only registered 101,260 IDPs and 
has only issued 50,000 IDP cards.  The Office of the President's 
National Data Center estimates that it will complete the IDP 
registration process by mid-September.  The GSL had reunited 5,841 
families within the IDP camps as of mid-July.  The International 
Committee of the Red Cross (ICRC) has completed the registration of 
9,186 surrendees.  The surrendees have been separated from the 
general IDP population.  A steering committee on reintegration, 
chaired by the Ministry of Disaster Management and Human Rights, on 
July 30 approved a National Framework Proposal for Reintegration of 
Ex-Combatants into Civilian Life in Sri Lanka that had been under 
development since April.  As of July 15, the U.N. Children's Fund 
(UNICEF) had registered 455 former child combatants who are now 
living at a child-only rehabilitation center in Vavuniya.  The GSL 
continues to define "no-risk" IDPs as only the elderly, people with 
learning disabilities and other vulnerable groups such as the 
handicapped and disabled.  As of July 17, the GSL had released 5,852 
"no-risk" persons from IDP camps into host families and elders' 
homes.  The GSL has not released a voluntary returns strategy for 
the North, nor has it begun voluntary returns to areas of high 
priority. 
 
DEMINING:  The GSL has not released a mine action strategy. 
However, the humanitarian community anticipates that the GSL will 
provide a strategic plan and/or make decisions on de-mining in 
Mannar, Jaffna, northern areas of Vavuniya and parts of Kilinochchi 
and Mullaitivu Districts by the end of July.  Demining operations 
are underway in Jaffna District and in the Rice Bowl area of Mannar 
District which will support high priority IDP returns.  The GSL has 
begun coordinating a strategic approach to demining with 
international and local demining organizations.  A public 
information/signage campaign has not been launched to local 
communities in mined areas.  END SUMMARY. 
 
¶2. (SBU) ENSURING LIVABLE CONDITIONS IN IDP CAMPS 
 
a. Benchmark:  Acute humanitarian needs are met with dignity.  Key 
areas are food, water/sanitation, health, shelter, and protection. 
 
 
Status: 
Acute humanitarian needs are being met, although all sectors are not 
up to Sphere's standards.  Camps are stabilized and efforts to 
decongest them are helping to reduce population pressures and to 
close gaps. 
 
-Water.  Water bowsering (tankers) and bore holes provide 
approximately 3 million liters of potable water per day - an 
estimated 10 liters per IDP per day - to Manik Farm for drinking and 
cooking.  International Sphere standards are three and six liters 
per IDP per day, respectively.  In addition, the National Water 
Supply and Drainage Board and UNICEF pipeline from the Malwathu Oya 
River to zones 2 and 3 of Manik Farms provides up to 1.4 million 
liters of non-potable water a day for washing and bathing or 5 
liters per IDP per day. The Sphere standard is six liters per day. 
Although the water system's capacity is sufficient to meet IDP 
needs, water distribution per block can be inequitable as IDPs who 
arrive at water points earlier in the day collect more water than 
IDPs arriving later in the day.  In order to make water distribution 
more equitable, UNICEF has initiated a water awareness campaign on 
the proper use of water and Vavuniya Government Agent (GA) Mrs. 
P.S.M. Charles is establishing a water monitoring mechanism in each 
zone to track water use patterns.  UNICEF believes that when IDPs 
feel more secure in the camp environment they will not feel a need 
to collect more water than needed and thus more water will be 
available for the camp population as a whole. 
 
- Sanitation.  As of July 18, the GSL, in collaboration with UNICEF, 
U.N. and NGO partners had built 9,743 latrines.  Although the ratio 
of latrines per IDP averages 28 and is above Sphere standards of 20 
latrines per IDP, limited space is available to build additional 
latrines in the overcrowded camps.  The ongoing process to decongest 
Manik Farm, however, will reduce overcrowding and will, over time, 
increase the ratio of latrines to IDPs.  As the GSL prepares new 
camp sites, the GSL and relief agencies are planning for and 
building latrines to accommodate new arrivals. 
 
- Health.  Although the GSL Ministry of Health (MOH) publicly 
proclaims that IDPs "are provided with round the clock medical 
facilities with doctors and nurses available on call," not enough 
doctors and nurses are available to staff the 17 primary health 
centers (PHCs), 21 UNICEF planned nutritional centers, and 4 
referral hospitals located in Manik Farm.  Currently only 17 of 21 
planned PHCs and only 17 of 21 planned nutritional centers are 
operational.  The critical shortage of professional medical staff at 
the referral hospitals and PHCs results in IDPs receiving only 
sporadic, inadequate medical care.  Despite the shortage of medical 
staff, the GSL declined an offer from the ICRC to establish a field 
hospital and did not allow French military doctors or staff from 
Medecins Sans Frontiers (MSF) to work inside the camps. 
 
To date, the GSL MOH has not established an effective early warning 
disease surveillance system or a mechanism to monitor and report 
morbidity and mortality rates.  In addition, data provided by the 
MOH on the prevalence of infectious diseases or medical conditions 
such as rates of malnutrition in children cannot be relied on. 
Without an effective surveillance system to monitor diseases, it is 
difficult to evaluate the effectiveness of disease prevention and 
control measures or to ascertain the overall state of health of the 
IDPs. 
 
A rapid deterioration of conditions in the camps could occur if an 
adequate drainage system is not developed to draw water out of the 
camps during the upcoming rainy season that starts in October.  Any 
flooding would most likely lead to a significant increase in water 
borne disease.  Presently there are already cases of dysentery, 
hepatitis A, infectious diarrhea, typhoid, measles, chickenpox and 
meningitis/encephalitis in the camps. 
 
- Shelter.  Since the major influx of IDPs in April and May 2009, 
 
the Office of the U.N. High Commissioner for Refugees (UNHCR) has 
reported that UNHCR, NGOs, and the GSL have constructed 
approximately 22,000 emergency shelters and erected 21,000 tents 
with a goal of providing one living unit per family.  Although the 
objective was difficult to obtain over the past two months due to 
overcrowding, camp decongestion is now allowing single families 
access to individual tents.  As the GSL creates new sites in the 
coming months, most IDP families will be given their own tent or 
emergency shelter.  However, the emergency shelters, which consist 
of a wood frame covered in plastic sheeting, were only intended to 
last for a three-month emergency period and are not holding up to 
the high temperatures, humidity, and wind.  Thus, the humanitarian 
community is now facing the challenge of finding additional 
resources to maintain and repair the shelters so that they will 
afford adequate cover for the IDPs during the rainy season that 
begins in October. 
 
- Protection.  Although improvements have been made on protection 
issues over the past two months, access for protection monitoring 
remains a concern.  UNHCR, however, has five protection officers who 
have been able to monitor protection risks and serve as IDP 
advocates with the GSL.  The GSL has released 5,852 elderly and IDPs 
with learning disabilities from the camps.  The GSL has also cleared 
the departure of an additional 9,000 IDPs.  The GSL has also 
reunified more than 5,000 families within the camps.  However, major 
protection issues remain, including freedom of movement; 
consideration of the host family option; systematic and transparent 
registration of IDPs; transparent screening and feedback to families 
on the location of family members separated; family reunification; 
right to information about family members, services and information 
about future developments; and open access to freely interact with 
IDPs to ensure their concerns and needs are considered. 
 
b. Benchmark:  The Sri Lankan Army is withdrawn to the external 
periphery of camps and local police provide law and order within 
camps. 
 
Status: 
- The Sri Lankan Army (SLA) has withdrawn to the external periphery 
of the camps where it provides perimeter security and controls 
access to the camps.  Local police are visible in the camps but they 
maintain a low-key presence.  The police have not established police 
stations, nor do they actively patrol the camps to maintain law and 
order. 
 
- On June 28, IDPs in Zone 2 of Manik Farm organized a demonstration 
in response to new restrictions on IDP movement between zones 1, 2, 
and 3 imposed by the SLA.  No one was injured during the incident, 
despite reports of stone throwing and shots fired in the air by the 
SLA to disperse the crowd.  The SLA, not the police, entered Zone 2 
to end the demonstration. 
 
c. Benchmark:  Civilian government agents are placed in charge of 
IDP camps. 
 
Status: 
- Despite public pronouncements by Minister of Resettlement and 
Disaster Relief Services Rishad Bathiudeen that the transition from 
military to civilian authority over day-to-day management of IDP 
camps had occurred, it is not clear whether the SLA will retain this 
authority, which had been granted to the previous Competent 
Authority, Major General G.A. Chandrasiri, or whether day-to-day 
management of the camps will be transferred to the Vavuniya 
Government Agent. 
 
- Mrs. P.S.M. Charles, the Government Agent (GA) for Vavuniya 
District, has remained in the background since the CA position was 
established in April.  The GA's district offices, however, are fully 
engaged in developing and coordinating the infrastructure necessary 
to support the camps, and have offices established in each of the 
zones in Manik Farm.  It has been widely anticipated that the 
 
day-to-day camp management activities will be handed over to the GA 
once the SLA fulfils security imperatives and finishes building the 
remaining camps. 
 
- On April 24, 2009, Major General G. A. Chandrasiri was appointed 
the Competent Authority (under emergency law) and given 
responsibility for coordinating and implementing all assistance 
provided to IDPs.  On July 12, he was appointed by President 
Rajapaksa as Governor of the Northern Province.  The GSL has named a 
new Vanni Commander, Major General Kamal, who at a July 26 lunch for 
PRM Assistant Secretary Eric Schwartz at Manik Farms, introduced 
himself as the new CA.  However, in a subsequent meeting with A/S 
Schwartz, Senior Presidential Advisor Basil Rajapaksa stated that a 
new CA will not be appointed and the Government Agent will take over 
responsibility for day to day management of the camps.  Post will 
update developments in this area in the next benchmarks reporting 
cable at the end of August. 
 
¶3. (SBU) ENSURING ACCESS TO INTERNALLY DISPLACED PERSONS (IDP) 
CAMPS 
 
a. Benchmark:  If the GSL cannot provide adequate goods and services 
within the camps, the GSL facilitates the provision of donor-funded 
goods and services to meet humanitarian needs. 
 
Status: 
- The GSL does not restrict access of U.N. agencies, INGOs, and NGOs 
that are delivering donor-funded goods and services and/or carrying 
out relief activities in the IDP camps. However, due to the fact 
that there are no written procedures on access to the IDP camps, and 
the tendency of zonal commanders to make their own decisions on the 
spot, access is at times inconsistent. 
 
b. Benchmark:  The GSL provides reasonable permission and access for 
doors and implementing partners, such as the UNHCR, ICRC, and NGOs, 
to monitor distribution of donor-funded goods, programs, and 
services in camps. 
 
Status: 
-The GSL does not have a policy that restricts access by 
humanitarian agencies that deliver emergency relief commodities and 
other materials to the camps.  In addition, the GSL provides 
reasonable access for donors and implementing partners, such as 
UNHCR and NGOs to monitor distribution of donor-funded goods and 
services in the camps.  ICRC reports that their access to IDP camps 
in Trincomalee, Mannar and Vavuniya Districts has been restricted 
since early July and they are currently in discussions with the GSL 
about future access. 
 
c. Benchmark:  The GSL provides permission and access for 
international organizations and implementing partners to address 
protection issues. 
 
Status: 
- Although the GSL has provided permission and access for donors and 
implementing partners to address some protection issues, access for 
protection monitoring remains a concern. ICRC reports that their 
access to IDP camps in Trincomalee, Mannar and Vavuniya Districts 
has been restricted since early July and they are currently in 
discussions with the GSL about future access. 
 
UNHCR and NGOs, however, have been able to conduct 39 participatory 
assessments in the camps with women, men, boys, and girls of 
different ages to gain a better understanding of protection issues 
and to explore possible solutions with the GSL.  UNHCR protection 
officers continue to monitor potential protection risks associated 
with camp overcrowding and are in close liaison with authorities at 
all levels.  Protection issues raised include family separations, 
maintaining law and order, as well as reducing risks associated with 
sexual and gender based violence. 
 
¶4. (SBU) FULLEST POSSIBLE REGISTRATION OF IDPs 
 
a. Benchmark:  The GSL completes a database of all IDPs and shares 
the database with the United Nations. 
 
Status: 
- From March 15 through July 14, the Office of the President's 
National Data Center registered 101,260 IDPs out of approximately 
266,000 IDPs.  The data center anticipates completing the IDP 
registration process by mid-September.  The data base has not been 
shared with the U.N. 
 
b. Benchmark:  ID cards and other documents are issued to IDPs with 
safeguards to prevent corruption. 
 
Status: 
- As of July 14, the GSL had issued only 50,000 ID cards to IDPs. 
 
- The Office of the President's National Data Center reported that 
approximately 50 percent of IDPs do not possess a National ID Card 
(NIC).  The National Data Center is taking necessary measures to 
obtain the documentation required to reissue the NICs to IDPs. 
 
c. Benchmark:  All possible family reunifications take place. 
 
Status: 
- Family Reunifications:  As of July 7, the GSL had reunited 5,841 
families within the IDP camps. 
 
¶5. (SBU) EFFECTIVE DISPOSITION OF COMBATANTS 
 
a. Benchmark: Combatants are identified, disarmed, and separated 
from the general IDP population. 
 
Status: 
- The ICRC has completed registration of surrendees and has 
registered 9,186 individuals.  The GSL has separated the detainees 
from the general IDP population and placed them in disarmament, 
demobilization, and reintegration centers, most of which are located 
in Vavuniya and in public buildings such as schools.  In addition, 
since January 1, the GSL has arrested 2,361 former combatants and 
other suspected Liberation Tigers of Tamil Eelam (LTTE) supporters 
under the Emergency Regulations and the Prevention of Terrorism Act. 
 The detainees are located in several facilities around the country, 
including in Colombo.  The ICRC reports that they have not had 
access to the surrendees in Vavuniya since early July and they are 
currently in discussions with the GSL about future access.[c1] 
 
b. Benchmark:  A formal process of demobilization, in line with 
international commitments, is initiated. 
 
Status: 
- A steering committee on reintegration, chaired by the Ministry of 
Disaster Management and Human Rights, approved the National 
Framework Proposal for Reintegration of Ex-Combatants into Civilian 
Life in Sri Lanka on July 30.  The Ministry of Justice has been 
given responsibility for rehabilitation and a new Commissioner 
General for Rehabilitation, Major General Daya Ratnayake, has been 
named.  At the same time, the Ministry of Defense has requested the 
International Organization for Migration (IOM) to assist with 
preparation of facilities to serve as demobilization camps in 
Vavuniya and to begin profiling surrendees to identify counseling 
and training needs.  IOM, with a grant from USAID, has already 
initiated this process in the Eastern Province.  The process will be 
guided by the framework, which defines legal and practical issues 
related to reintegration.  It is anticipated that since the 
framework has been approved and profiling of former combatants is 
underway, an action plan will be drafted in collaboration with 
relevant ministries and international partners. 
 
c. Benchmark:  No new children are recruited and previous child 
 
soldiers are identified, separated, and put into a UN program. 
 
Status: 
No new children were recruited since the end of the war in May 2009. 
 As of July 15, UNICEF had registered 455 former child combatants, 
including 299 males and 156 females, in Vavuniya.  The GSL had 
initially placed the children in six adult detention centers in 
Vavuniya.  UNICEF worked with the GSL Commission General of 
Rehabilitation to establish a child-only center at the Poonthoddam 
Technology Center in Vavuniya.  An additional 200 to 250 former 
child combatants remain in Manik Farms.  These children must go 
through a legal process to obtain a transfer document before they 
can be separated from their family.  (Note: The transfer document 
provides the date at which the child was transferred into custody. 
By Sri Lankan law, a child can only be held in custody for one year. 
 If a child does not have the necessary transfer document, the child 
could remain in custody for an undetermined period of time.  End 
Note) 
 
¶6. (SBU) RELEASE OF "NO-RISK" POPULATIONS 
 
a. Benchmark:  The GSL establishes criteria to define "no-risk" 
IDPs, in addition to the elderly and disabled. 
 
Status: 
- The GSL continues to define "no-risk" IDPs only as the elderly, 
people with learning disabilities, and other vulnerable groups such 
as the handicapped and disabled.  The U.N. continues to advocate for 
the timely release of other persons with specific needs as well as 
for broadening the categories of people eligible for immediate 
release. 
 
b. Benchmark:  Release of "no-risk" IDPs to host families and 
communities continues at an acceptable pace (on track for 25%-50% by 
the end of calendar 2009). 
 
Status: 
- As of July 17, 2009 the GSL had released 5,852 persons from IDP 
camps into host families and elders' homes.  The GSL has also 
approved the departure of an additional 9,000 IDPs. 
 
¶7. (SBU) ESTABLISHING AN IDP RETURNS PROCESS 
 
a. Benchmark:  The GSL widely communicates a voluntary returns 
strategy for the North, including for IDPs. 
 
Status: 
- The GSL has not widely communicated a voluntary returns strategy 
for the north, including for IDPs.  However, on July 27, Senior 
Presidential Advisor Basil Rajapaksa briefed U.N. heads of agencies 
on the GSL's IDP 180-Day Returns Plan.  Rajapaksa reported that the 
GSL expects to return an estimated 40,000 IDPs to several areas of 
Jaffna, Mannar, and Vavuniya Districts within the month of August. 
The GoSL said that it plans to return 3,000 IDP families, or an 
estimated 15,000 IDPs, to 35 villages in Vavuniya District beginning 
August 7.  In addition, the GSL expects to return an estimated 5,000 
IDP families, or an estimated 25,000 IDPs, to Kilinochchi District 
beginning August 15.  The Vavuniya Government Agent stated that it 
is likely that the GSL will return new IDPs (persons displaced 
during the recent fighting) as well as old IDPs (persons displaced 
in previous years) to Vavuniya District.  The GSL has not asked the 
U.N. to provide any support to facilitate the returns.  Post will 
continue to monitor progress toward these announced numbers and 
report in the next benchmarks cable at the end of August. 
 
b. Benchmark:  The GSL begins voluntary returns to areas of high 
priority. 
 
Status: 
- The GSL has not yet begun voluntary returns to areas of high 
priority. 
 
 
¶8. (SBU) CONDUCTING DEMINING ACTIVITIES: 
 
- Charge d'Affaires met twice over the past month with Senior 
Presidential Advisor Basil Rajapaksa to discuss demining and the USG 
contribution.  Charge informed Rajapaksa of the recent USD 6 million 
contribution from the 
U.S. Department of State's Bureau of Political and Military Affairs 
Office of Weapons Removal and Abatement (State/PMWRA) to 
international NGOs Danish Demining Group (DDG), Swiss Foundation for 
Mine Action (FSD), Halo Trust, and Mines Advisory Group (MAG).  The 
contribution brings State/PMWRA total contribution to USD 6.6 
million to date.  The GSL requested post's suggestions for priority 
demining tasks to be undertaken with these resources, along with 
summary information describing the personnel and equipment to be 
financed, and this information was provided by letter response.  The 
letter also suggested closer collaboration between the SLA and 
INGOs, as well as the formation of a working group to meet 
frequently and to monitor the work plans of the implementing 
partners, with a focus on results tied to the ability of IDPs to 
return home.  The GSL has now established a bi-weekly working group 
with the INGOs and SLA and has responded favorably to Post's request 
for a U.S. representative to attend these meetings.  Charge has also 
supplied Rajapaksa with a draft demining strategy map for the North, 
produced by USAID, reflecting the stated priorities for demining and 
overlain with existing minefield and other contamination data. 
 
a. Benchmark:  The GSL releases mine action strategy for Mannar and 
continues surveys for remaining areas in the North by July 15, 
¶2009. 
 
Status: 
- The GSL has not released a mine action strategy.   However, post 
anticipates that the GSL will provide a strategic plan and/or make 
decisions on demining in Mannar, Jaffna, northern areas of Vavuniya, 
and other parts of Kilinochchi and Mullaitivu Districts in August. 
 
 
b. Benchmark:  Demining begins in support of areas of high priority 
for IDP returns by August 15, 2009. 
 
Status: 
- Demining operations are underway in Jaffna District and the Rice 
Bowl of Mannar District which will support high- priority IDP 
returns. 
 
c. Benchmark:  The GSL coordinates with international and local 
demining organizations on surveys and mine-removal efforts. 
 
Status: 
- The GSL has begun coordinating a strategic approach to demining 
the North with donors, INGOs, the U.N. Development Program (UNDP), 
as well as the Sri Lankan Army and the GSL's Mine Action Center.  By 
early August, post anticipates it will have a better idea of the 
strategic focus for demining, which is now under discussion. 
 
d. Benchmark:  A public information/signage campaign is launched to 
local communities in mined areas. 
 
Status: 
- A public information/signage campaign has not been launched in 
local communities. 
 
MOORE 
[c1]I believe they lost access to them as of july 2 but will double 
check with icrc