VZCZCXYZ0000
PP RUEHWEB

DE RUEHLM #0854/01 2431054
ZNR UUUUU ZZH
P 311054Z AUG 09
FM AMEMBASSY COLOMBO
TO RUEHC/SECSTATE WASHDC PRIORITY 0469
INFO RUEHKT/AMEMBASSY KATHMANDU PRIORITY 7129
RUEHBK/AMEMBASSY BANGKOK PRIORITY 3944
RUEHNE/AMEMBASSY NEW DELHI PRIORITY 3263
RUEHIL/AMEMBASSY ISLAMABAD PRIORITY 8890
RUEHKA/AMEMBASSY DHAKA PRIORITY 1869
RUEHGV/USMISSION GENEVA PRIORITY 3700
RUCNDT/USMISSION USUN NEW YORK PRIORITY 1287
RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC
RHHMUNA/CDR USPACOM HONOLULU HI//J3/J332/J52//
RHMFIUU/CDRUSARPAC FT SHAFTER HI//APCW/APOP//

UNCLAS COLOMBO 000854 
 
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 TWO ON INTERAGENCY POLICY COMMITTEE 
(IPC)BENCHMARKS FOR SRI LANKA 
 
REF:  A) Colombo 753 B) State 69689 C) Colombo 691 
 
¶1. (SBU) SUMMARY: This is the second of three monthly reports on the 
Government of Sri Lanka's progress in meeting benchmarks as outlined 
in Ref B.  The start of pre-monsoonal rains this month has created a 
heightened urgency among all humanitarian actors, in terms of 
accelerating the release of people from Manik Farm and other camps, 
accelerating the return of people to their communities of origin 
and/or host families, and developing contingency plans for the tens 
of thousands of people who will undoubtedly remain in Manik Farm 
during the monsoon season.  Information sources for this August 
report are the Government of Sri Lanka (GSL), United Nations (UN), 
and international non-governmental organizations (INGO), as well as 
two USAID/OFDA (Office of Foreign Disaster Assistance) technical 
experts currently on short-term assignment in Vavuniya town and 
Manik Farm. 
 
PRE-MONSOONAL RAINS:  On August 14, ten centimeters of rain fell on 
Vavuniya District, including the large IDP (internally displaced 
persons) complex known as Manik Farm.  These first, pre-monsoonal 
rains in August caused temporary flooding in several zones of Manik 
Farm and considerable concern among humanitarian organizations and 
the GSL.  Over the past two weeks, there has been a flurry of 
activity by both GSL and international organizations.  The GSL has 
stated their intent to return large numbers of IDPs by September (an 
estimate of 100,000 people has been suggested), and has also said 
they plan to release members of vulnerable groups from Manik Farm 
and other IDP camps.  The UN and INGOs are attempting to anticipate 
the timing of these events, as well as developing contingency plans 
for the probable tens of thousands of IDPs who will remain in Manik 
Farm throughout the monsoon season (generally late September through 
December).  Because of a lack of capacity, or simple refusal, on the 
part of the GSL to do coordinated planning, international 
humanitarian agencies continue to operate in a reactive mode. 
 
CAMP MANAGEMENT AND ACCESS:  Acute humanitarian needs continue to be 
met in internally displaced persons camps (IDP) camps, but few 
sectors are up to SPHERE standards.  Most zones of Manik Farm 
continue to be overcrowded, affecting the quality, quantity, and/or 
timeliness of service delivery.  Along with day-to-day needs, with 
the upcoming monsoonal rains, camp management must put more emphasis 
on decongestion (through releases and accelerated returns) and on 
contingency planning for the monsoons.  Although the Sri Lankan Army 
(SLA) has generally withdrawn to the external periphery of the 
camps, where it provides perimeter security and controls access to 
the camps, there are occasional reports of armed military personnel 
inside the camps.  Local police are visible in the camps, but 
maintain a low-key presence.  It is also assumed that plainclothes 
intelligence personnel operate in camps, to gather information about 
LTTE ex-combatants and sympathizers.  Each Manik Farm zone has a 
civilian zonal commander who is ex-military.  No major decisions 
about camp management or releases of IDPs are made without the 
concurrence of military authorities. 
 
The GSL does not restrict access of the U.N. agencies, INGOs, and 
NGOs that are delivering donor-funded goods and services and/or 
carrying out relief activities in the IDP camps.  In general, these 
organizations are satisfied with access.  Because of sensitivities 
about protection activities with Sri Lankan authorities, access for 
protection monitoring remains a concern.  A recent attempt by USAID 
officials to visit Zones 0 and 1 for comparative analysis was turned 
down, with the explanation by the soldier at the entrance gate that 
all services in those zones are provided by the GSL. 
 
REGISTRATIONS AND SURRENDEES:  As of August 27, the Government of 
Sri Lanka (GSL) had completed data entry of approximately 155,000 
IDPs and printed ID cards for 105,000 IDPs.  Given the current 
capacity of producing 15-20,000 cards per week, issuance of data 
cards will continue well into October.  This ID card appears to be a 
prerequisite for permanent release from an IDP camp, although does 
not guarantee an IDP will be released.  A separate registration 
 
process, conducted by the Ministry of Resettlement and Disaster 
Relief Services with technical support by the International 
Organization for Migration (IOM), has been completed for all 
265,000+ IDPs displaced since 2008.  The Ministry shared the 
database this week with UNHCR, which is using it for planning 
purposes related to returns and release of vulnerable groups.  Once 
it is more widely distributed, it will be a useful planning tool for 
other sectors, such as de-mining. 
 
Over 11,000 LTTE ex-combatants, or surrendees, have been separated 
from the general IDP population.  They reside in 13 camps in 
Vavuniya District.  IOM is preparing to begin socio-economic 
profiling of ex-combatants, as the first step of the 
rehabilitation/reintegration process, once funding is secured.  If 
an OFAC license is approved, USG funds may support this first step 
and be available in September.  Part of the GSL's justification for 
slow releases of IDPs is their concern that ex-LTTE combatants 
remain at large in the IDP camps.  Post had been told previously 
that up to 10,000 of these additional ex-combatants might remain 
among the general IDP population.  The Commissioner General of 
Rehabilitation told a recent meeting of donors that he estimated an 
additional 3-4,000 ex-combatants were still among the IDPs.  As part 
of this apparently ongoing screening process for LTTE sympathizers, 
intelligence services reportedly bring surrendees into the general 
camps to point out additional ex-cadres. 
 
RETURNS: Given the added pressure of upcoming rains, the GSL has 
announced the accelerated resettlement in September of up to 100,000 
IDPs.  These would be people whose homes of origin are outside the 
Vanni, including places like Jaffna, cleared areas of Vavuniya and 
Mannar, and the East.  The Army Commander in Vavuniya said that 
criteria for the release of vulnerable people from camps would be 
relaxed, to include those disabled since birth, young children and 
their caregivers, pregnant women, the mentally handicapped, and 
severe medical cases (with doctor approval).  There is considerable 
skepticism that returns of such magnitude will actually occur. 
However, though timeframes and planning are unpredictable, these 
numbers are more plausible now that the Ministry of Resettlement has 
a complete database of the homes of origin of all IDPs.  Although 
the GSL also talks about a 180-day resettlement plan, no details 
have been released to the international community.  However, GSL 
engineers and technical specialists have made several trips into the 
Vanni to develop infrastructure damage assessments, as part of an 
overall reconstruction plan financed by multilaterals such as the 
World Bank and Asian Development Bank, to support resettlement. 
Based in Vavuniya town, there are periodic meetings involving local 
district authorities, Government Agents, representatives of line 
ministries, and the SLA.  The GSL remains adamant that returns (and 
supporting operations such as de-mining) will be according to a 
"home-grown solution."  Although access by foreigners to the Vanni 
has been limited, the mine action agencies are slowly being invited 
to begin surveys.  For example, next week, one USG partner will 
travel to Kilinochchi town to plan out work in seven priority grama 
sewaka divisions.  In the month of August, less than 12,000 of the 
pledged 75,000 for the month actually returned home.  About two 
thirds of them are new IDPs from Manik Farm.  There are sometimes 
small movements of people from the IDP camps, such as the three 
busloads of IDPs observed by USAID officials this week, heading 
north out of Manik Farm. 
 
DEMINING:  The GSL has still not released a comprehensive mine 
action strategy.  Given the increasing (and to a considerable degree 
unutilized) capacity among USG-funded mine action organizations, 
frustration is mounting at the failure to provide additional 
taskings and better access to the Vanni.  There are indications that 
the GSL is developing a de-mining approach based on a south-to-north 
strategy, presumably reflecting the first phase of IDP returns that 
will include some areas in Mannar.   GSL leadership in this sector 
and use of available resources remains uncoordinated and ad hoc. 
Already, the US Embassy is beginning to think that the 
recently-signed four grants with INGOs will require no-cost 
 
extensions next July, due to slowness on the part of the GSL to 
assign both survey and de-mining tasks.  Demining operations 
continue in Jaffna District and in the Rice Bowl area of Mannar 
District, and have begun in Northern Vavuniya.  Access to 
Kilinochchi and Mullaitivu Districts, at this point, is still to be 
negotiated and unlikely to occur soon at any sizeable scale.  The US 
Embassy continues to play a major coordination role among donors and 
mine action NGOs, advocating for a more strategic framework and a 
planning horizon that will enable our partners to develop at least 
three to six months work plans. 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 most sectors are 
not up to SPHERE's standards.  As part of the rush to prepare for 
monsoon rains, people are being moved between different zones of 
Manik Farm, as well as from camps still operating in Vavuniya town 
public buildings.  The overall Manik Farm strategy seems to be to 
release large numbers of people for returns or to host families, 
move some people to higher ground within zones, and to move other 
people to Zones 6A, 6B, 7, and 8 (still under construction). 
 
Food (USAID/FFP report).  Dry rations (with the USG being the major 
donor) are supplied by WFP to all IDPs at Manik Farm and at other 
camps.  WFP is increasing the daily per capita kilocalorie total to 
2100, as a partial response to high rates of malnutrition. 
Generally, the transport, storage, and distribution of dry rations 
works reasonably well, though there has been some concern related to 
the changeover from communal cooking to individual cooking in 
several zones.  With the August rains, the need for better, 
air-tight food storage containers at the household level was 
underscored.  Along with other NFRIs, the U.N. will be providing 
waterproof food storage units in preparation for the monsoon season. 
 Complementary food - mostly condiments, along with some fresh 
produce and other protein sources - is in short supply and, in some 
locations, no longer available.  Donors (including the USG) do not 
consider complementary food a lifesaving priority, and, since it is 
costly, most INGOs have depleted their resources.  There is concern 
that the lack of complementary food for those people who can't 
afford to purchase it from camp stores will heighten an already 
growing sense of frustration among IDPs.  Along with other UN 
agencies, WFP is developing a plan to respond to GSL announcements 
that there will be a large exodus of IDPs from camps over the coming 
weeks. 
 
Water (USAID/OFDA report).  Manik Farm is far from ideal from a 
water supply standpoint.  However, generally, people are receiving 
adequate quantities of water, though this varies by zone and within 
zones, and water quality is a potential concern, especially looking 
ahead to likely sanitation problems resulting from increased 
rainfall.  The difficulty of providing water for 260,000 people has 
led to a unique and fragile system.  Three primary sources of water 
exist within Manik Farms camps: tube wells, bowser delivery, and a 
raw water pipe.  The raw water pipe provides water for bathing 
purposes only and is non-potable.  Most zones have all three types 
of sources available, but access varies by block, even within a 
zone.  Each block manages its own water distribution and is 
protective of its water.  In cases where neighboring blocks lack 
water, some sharing between blocks does occur, though usually 
limited to a few liters per family. 
 
Groundwater sources currently only produce enough water to sustain a 
small population.  UNICEF is investigating the local 
hydro-geological structures to attempt to identify a higher 
production aquifer in the area.  Bowsering water to Manik Farms is a 
 
large scale operation and is very expensive and labor intensive.  In 
recent months, there has only been one significant interruption to 
the provision of water, occurring during the recent rainfall two 
weeks ago.  At that time, the turbidity of the river drastically 
increased due to runoff.  The additional particle load caused 
problems for both the river pumps and the filtration operation.  The 
pumps could not handle the additional sediment and had to be shut 
down for a reported 30 hour period.  Before the pumps were shut 
down, the water treatment plants were also unable to deal with the 
change in raw water quality.  The additional sediment overloaded the 
filters, and the treatment plants too had to be shut down.  Thus, 
the rain shut down the bowser operation and the piped water supply, 
leaving only tube wells to supply all of Manik Farm.  Since the tube 
wells do not supply enough water and many IDPs lack access to tube 
wells, there was a water shortage. 
 
There are other risks to the water supply system during periods of 
intense rain, and water shortage will likely become a significant 
problem as rainfall increases.  It is expected that the road 
conditions will deteriorate rapidly, affecting a bowser operation 
already stretched to fill each of the 1,000 liter tanks scattered 
throughout Manik Farm once per day.  The GSL is expected to put 
weight restrictions on vehicles entering Manik Farm to reduce the 
impact on the road surface.  When larger bowsers are prohibited, 
more trips will need to be made by smaller ones.  As the roads 
become impassable, there will be fewer deliveries to some blocks 
within the zones (in Zones 2 and 4, blocks contain from 900 to 2400 
individuals). 
 
Chlorinated water contains measureable residual chlorine which 
prevents drinking water from becoming contaminated during collection 
and storage.  The bowsered water is all chlorinated, and IDPs are 
encouraged to use it for drinking water.  However, most IDPs prefer 
drinking water from tube wells, because it is not chlorinated and 
tastes better.  This water is much more likely to become 
contaminated during collection and storage than the chlorinated 
water supply and significantly increases the likelihood of the 
spread of contagious waterborne disease.  Additionally, with rising 
groundwater and flooding during the monsoons, there is increased 
likelihood of groundwater (and tube well) contamination from 
overflowing latrines.  The WASH Cluster is considering chlorination 
of the tube well water.  IDPs will likely attempt to catch rainwater 
during water shortages.  Collected rainwater will also contain no 
chlorine and be susceptible to contamination by dirty hands or dirty 
storage containers. 
 
The WASH Cluster in Vavuniya is very active and functioning well. 
It is developing a "Monsoon Contingency Plan" to identify potential 
problems in the delivery of safe drinking water due to heavy 
rainfall, and to analyze and compare options to mitigate the impact. 
 The cluster is doing everything it can to resolve these problems, 
considering physical limitations with the site and complications of 
working with the GSL. 
 
Hygiene Promotion (USAID/OFDA report).  Hygiene promotion is very 
active in Manik Farm.  Hygiene kits are distributed to families and 
education is provided.  At Manik Farm, Hygiene promotion is a 
subcategory of the overall health promotion activities.  There are 
both paid health promoters and un-paid health volunteers.  They 
monitor hygiene conditions, observe IDP practices, and provide 
targeted messages through direct education and theatrical 
productions.  Volunteers visit tents as well as public facilities 
during their daily activities.  The WASH Cluster provides direction 
to these activities. 
 
Sanitation (USAID/OFDA report).  SPHERE standards set a goal of 20 
IDPs per latrine.  At Manik Farm, the number of IDPs per latrine 
varies from block to block.  In most blocks there are more than 20 
IDPs per latrine, the number is particularly high in many blocks of 
zone 2.  In these locations, there is limited space for the 
construction of additional latrines.  They are congested, and the 
 
latrine pits fill quickly.  "Gully Suckers" (sewage pumper trailers 
pulled by tractors) empty latrine pits and transport the wastewater 
to an outside disposal site (wastewater ponds) approximately 3 km 
away from IDP camps.  The number of gully suckers is known to be 
very insufficient to empty full latrine pits in a timely manner, and 
many full pits remain full for long periods of time.  In some 
blocks, people stop using latrines that have full pits; in others, 
the full latrines continue to be used and overflow.  Full pits put 
many blocks even further out of compliance with SPHERE guidelines 
and all too frequently lead to open sewage above ground around 
latrine blocks.  Because soils at Manik Farm have a very low 
percolation rate, water in the latrine pits does not seep into the 
soils very quickly.  Latrine construction includes "pour-flush squat 
toilets" mounted in either a plastic or a cement latrine slab.  IDPs 
use water to flush the toilet, adding additional volumes of water 
into the pit.  This practice causes the pits to fill more quickly. 
Since the GSL continues to state that they plan to release large 
numbers of IDPs from Manik Farms, the WASH Cluster is hesitant to 
purchase additional gully suckers as these are costly items that 
would not be needed once IDPs are moved out of Manik Farm.  UNICEF 
is currently doing groundwater mapping to identify the blocks of 
each zone where rains will cause a rising water table to flood 
latrines.  In these areas, latrines will likely be decommissioned. 
Subsequently, shelters will likely be decommissioned due to the lack 
of latrines, effectively vacating some blocks and putting greater 
numbers of IDPs into others. 
 
The current wastewater pond is reaching its capacity.  There have 
been five holding ponds constructed since March to hold the 
wastewater from the latrine pits.  Each of the constructed ponds has 
filled within a month.  When one fills the GSL builds a new one. 
These actions are unplanned and reactionary.  Since the clay soils 
in the Manik Farm area have a very slow percolation rate, the ponds 
hold and store the wastewater with very little infiltrating into the 
ground.  Reportedly a new wastewater lagoon with an engineering 
design is being constructed at a new location, but this lagoon is 
not expected to be completed for at least a few weeks.  It is not 
expected that the current pond will be able to handle the capacity 
of wastewater until the new lagoon is completed, so it is likely 
that another pond will be constructed.  One pond has already leaked 
a significant amount of wastewater into the surrounding jungle when 
its berm breached.  It is feasible that if a large volume of 
wastewater were to escape the ponds it could find its way to the 
river upstream from the main water intake points. 
 
Storm drainage is now being constructed in Zones 0 - 4 to mitigate 
flooding, and will be constructed in all zones.  Engineers have 
designed the storm drains and expect them to be able to handle most 
rainfalls in monsoon season.  The storm drains are simply trenches 
dug with backhoes around each block with culverts under roadways. 
If these storm drains fail, resulting flooding could expose IDPs to 
wastewater from flooded latrines.  Roads could be washed out if 
culverts do not function properly, limiting access to some blocks. 
A significant amount of maintenance on the drainage system will be 
required. 
 
Trash is being collected within the camps and transported via 
tractor for burning and disposal to the vicinity of the wastewater 
ponds, approximately 3 km from the IDP camps.  Final disposal is not 
well coordinated and large quantities of burned and partly burned 
trash is scattered throughout the area surrounding the wastewater 
ponds.  The trash does not pose any direct threat to IDPs at this 
time.  If trash collection in the camps were to cease, trash could 
block culverts and affect drainage. 
 
Health (USAID/OFDA report).  Health care services.  Each zone has an 
appropriate number of primary health care centers (PHCC), typically 
two to four per zone.  Aside from clinical care, the PHCCs also act 
as a referral point to each zone's referral facility (essentially an 
ad-hoc field hospital), which provides acute inpatient care and 
basic, once-daily laboratory services.  If further care is needed, 
 
referrals are made to one of three hospitals located outside the 
camps (one of which is operated by an NGO with ex-patriate staff). 
Despite the cumbersome security measures, the referral services are 
reasonably intact (to prevent escape attempts, security clearance 
and a security chaperone are required for each out-of-camp 
referral). 
 
All health programs in the camps must be operated and staffed by the 
MoH/GSL - no ex-patriate individuals are allowed to provide clinical 
care to IDPs within the camps.  (NGOs play purely a supportive role: 
health facility structures, referral transport, medical supplies, 
etc.)  This has been a source of tension between the MoH and health 
agencies, as there are concerns about the quality and experience of 
the clinicians in the health facilities, many of whom have been 
recruited from other districts on a short-term rotational basis.  It 
has been a challenge to recruit national physicians as many are 
reluctant to trade their lucrative private practices for the 
austerity and workload of the IDP health facilities. 
 
Only recently have significant efforts been made to ensure adequate 
staffing in all the camps' health facilities - yet, on occasion it 
possible to still find PHCC's without clinicians.  Clinicians are 
consistently seeing approximately 100-125 patients per day, far 
above the SPHERE standard of 50 per day.  Patient utilization rates 
have not been reported, and provisions for 24-hour on-call 
clinicians in each zone's referral site have only recently been 
made. 
 
Also, a majority of the national staff are of Sinhalese descent, and 
do not speak Tamil (the language of the IDPs) - this requires the 
use of mostly unskilled translators, which is highly inefficient and 
can compromise quality and patient confidentiality.  This system 
does, however, allow for familiarity with national clinical 
protocols.  Overall, the residents appear to have reasonably 
equitable access to health care without discrimination, the main 
limitation being the burden of the high patient-to-clinician case 
load. 
 
Reproductive health is being addressed reasonably adequately 
according to standard MoH guidelines and services.  For nutrition, 
supplementary feeding commodities are being distributed largely by 
local and international NGO's on referral basis only (one NGO 
reports only being allowed to distribute supplementary foods, but 
not to weigh and measure the children).  Most agencies are 
experiencing a heavy but decreasing caseload over the past several 
weeks.  Measures to address other pertinent health conditions such 
as psychosocial health, chronic diseases, and trauma-related 
physical disabilities will be critical to address in the upcoming 
months. 
 
Health surveillance and indicators.  The foundation of the weekly 
disease reporting system has just been bolstered by the "permanent" 
installation public health inspectors (PHI).  The mandate of these 
retired MoH public health service personnel is to collect and 
collate case counts, supervise home follow-up for various "diseases 
of suspicion," identify environmental public health risks such as 
water and sanitation conditions, and improve the reporting for 
outbreaks for the early warning disease detection system.  Despite 
skepticism from health agencies, only over the coming weeks will it 
be determined if this helps to improve the perceived inefficiency, 
inaccuracy, and opacity of the camps' public health reporting. 
 
Although many communicable diseases have been reported by the MoH, 
only a few have been confirmed by laboratory testing (shigella, 
hepatitis A, and varicella).  Others, such as typhoid, diarrhea, 
respiratory infections and pneumonia, measles, and meningitis cases 
have been clinically diagnosed, but without adequate laboratory 
confirmation.  All reported disease trends are at much lower levels 
than eight to twelve weeks ago, and are decreased or stable over the 
past four weeks.  However, mortality and proportional morbidities, 
age and sex breakdown, and utilization rates are not being reported 
 
 
(part of the difficulty is that the GSL/MoH has been reluctant to 
provide even basic demographic data, such as sex and age breakdowns, 
but instead has confirmed only total population numbers). 
 
Benchmark health data comes from a single survey in mid-late May. 
There were significant methodological and analytical inconsistencies 
in the survey which resulted in an under-estimation of key 
indicators.  Nonetheless, the reported 3-month recall crude 
mortality rate (CMR) was 2.8 deaths/10,000 persons/day (South Asia 
baseline and emergency threshold according to SPHERE/UNICEF are 0.25 
and 0.5, respectively).  The under-5 mortality rate (U5MR) was 1.3 
deaths/10,000 persons/day (South Asia baseline and emergency 
threshold are 0.6 and 1.2, respectively).  Both of these indicators 
are well above the emergency thresholds.  (The CMR is typically 
lower than the U5MR, except in circumstances when much of the adult 
population, typically young male combatants, have recently been 
affected by medium to large scale violent conflict.  This ratio 
should reverse in the follow up survey.) 
 
Also indicative of a critical humanitarian emergency, the global and 
severe acute malnutrition prevalences were 35.6% and 8.8%, 
respectively; and the two-week incident diarrhea and respiratory 
infection rates for childQ under 5 were 42.0% and 61.9%, 
respectively.  Also, household sizes are 2-3 times largerQan 
allowed for in SPHERE guidelines, an environment conducive to the 
spread of communicable diseases.  A follow-up survey will be 
performed in early September, which will be critical to monitor 
since all of these main indicators were at considerably alarming 
levels. 
 
Health cluster coordination.  The health sector is widely 
acknowledgedQong the various agencies and sectors to have the 
weakest leadership and coordination capabilities.  The cluster is 
led by a constantly rotating team of MoH/WHO representatives.  Aside 
from concerns about competence, it has been speculated that the 
weakness in cluster coordination is due to an introverted and 
secretive GSL MoH; also of concern is the MoH international 
counterpart, health cluster co-lead (WHO), whose long-term 
relationship with the MoH disallows any true independent leadership 
or advocacy.  (In fairness, the MoH/WHO representatives at the local 
level are severely burdened by administrative duties, limiting their 
ability to pro-actively address urgent health needs). 
 
The health clusters meet every 1-2 weeks in both Colombo and 
Vavuniya where updates from each sub-sector are given and disease 
trend data are disseminated.  The "weekly" disease trends are 
reported inconsistently, and until the week of this assessment, no 
MoH representative has recently been attending the health cluster 
meetings in Vavuniya.  Fortunately, several NGO health agencies have 
been able fill in and address gaps for coordinating and advocating 
for IDP health services.  In terms of personnel for the health 
cluster in general, key health positions within the MoH, pertinent 
UN agencies, and INGO's will be experiencing turnover in the coming 
weeks  potentially creating a gap of critical contextual knowledge 
and experience. 
 
There has not been a widely-disseminated plan from the MoH for 
health services and communicable disease control related to the 
uQming monsoon season.  With the monsoons imminent, health-related 
concerns include structural integrity, water-related communicable 
andQctor-born diseases, health facility staffing, and compromised 
drinking water sources and sanitation.  However, the health cluster 
has recently conducted some large-scale interventions should help to 
reduce the IDPs' vulnerability to public health threats such as 
measles and polio campaigns (rQrted >95% coverage) and de-worming 
therapy and vitamin A supplementation for children; aggressive 
screening and referral of the acutely malnourished; and community 
health and hygiene education campaigns. 
 
Overall, the health sector has just reached a very minimum level of 
adequate capacity.  However, these recent gains are extremely 
 
tenuous and will take a great deal of aggressive effort, 
coordination, and leadership to maintain, especially in light of 
some very imminent challenges such as the upcoming monsoon season, 
pending resettlement and release of IDPs, and turnover of key staff 
from the MoH, UN agencies, and INGOs.  Factors to monitor and 
address include the improvement of environmental health conditions 
such as water and sanitation services and decongestion of households 
and camps; provision of appropriate quantity and quality (including 
language capabilities) of clinical staff; enhancement of laboratory 
capacities for all referral centers and case-confirmation of 
outbreak-prone diseases; and contingency plans for anticipated 
flooding, with consideration of impacts on health facility 
structures, community vector-control, and supply lines for health 
commodities.  Also, the disease surveillance and outbreak reporting 
system will hopefully improve with the placement of the new PHI's - 
but basic demographic data must be shared with health agencies; and 
the aforementioned upcoming health and nutrition survey will provide 
critical follow-up data as to the condition of the health sector and 
the humanitarian emergency as a whole. 
 
Shelter (UNHCR report).  The pre-monsoonal rains resulted in 
flooding and damage to shelters in Zones 1-4. In Zones 1-3, where 
drainage works had commenced, the situation was more manageable. 
Shelter maintenance crews are now doing repair work on shelters, and 
these works tend to be fairly minor.  Zone 4 was the most severely 
affected by the rains, because there were no existing drainage 
works. With coordination by UNHCR, partners have since intensified 
their efforts to complete drainage works in all zones before the 
monsoon starts in earnest. In zones which are to receive people 
moved out of overcrowded conditions, UNHCR is advocating for 
increased involvement of the SLA, IOM and other national actors to 
accelerate the process. Communal buildings, which can be converted 
to emergency shelter areas, have been identified within the zones as 
part of contingency planning for the upcoming monsoon.  These have 
been approved by the SLA and zonal commanders.  Despite ongoing 
drainage and shelter strengthening activities, there is general 
consensus that IDP sites will still be greatly affected by 
persistent rainfall, and evacuation plans are being drawn up to take 
them to public buildings in town. 
 
Protection (UNHCR report). After conducting a mid-term review of the 
UN's "Balance Sheet," the UN Humanitarian Coordinator will submit 
the review to the humanitarian community and to the GSL.  UNHCR will 
contribute findings and recommendations from the IDP Protection 
Working Group. 
 
UNHCR has reached an agreement with the Ministry for Disaster 
Management and Human Rights (MDMHR) to establish community centers 
in Manik Farm. The MDMHR will coordinate these centers and ensure 
that the Ministry for Child Development and Women's Empowerment, 
Human Rights Commission, and the Ministry for Social Welfare have a 
presence. The local NGO, the Consortium of Humanitarian Agencies 
(CHA), funded by UNHCR, will establish information notice boards at 
the centers. The aim of the project is to facilitate the provision 
of information to IDPs and ensure that they are able to access 
government protection services that they may require. 
 
Women's and Children's Desks have been set up in Zones 0, 1, and 2, 
and Women Development Officers have been assigned.  UNHCR is further 
supporting the Desks through monitoring visits and the provision of 
office equipment.  UNHCR is also working with the management of the 
medical facilities to put in place a Sexual and Gender-Based 
Violence reporting and response system.  The Ministry for Child 
Development and Women's Empowerment opened a Children's home next to 
Zone 4 in Manik Farm.  The home will house unaccompanied minors and 
children on protective orders from Manik Farm and surrounding 
districts.  Help Age, with the support of UNHCR, is conducting 
training for volunteers on care for the elderly in Vavuniya IDP 
sites, to increase the capacity to assist elderly IDPs in the camps. 
 Also in Vavuniya, a bus service has been established to facilitate 
visits to surrendees by their relatives accommodated in Manik Farm 
 
sites. 
 
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 mostly withdrawn to the external 
periphery of the camps, where it provides perimeter security and 
controls access to the camps.  However, there are reports of armed 
soldiers occasionally seen in some of the zones of Manik Farm. 
Local police are visible in the camps, but they maintain a low-key 
presence. 
 
During the night of the first rains in Manik Farm, a few hundred 
IDPs gathered at the entrance to Zone 4 to complain about conditions 
and ask for assistance.  The SLA was quick to respond in assisting 
families to move their belongings to higher ground and to arrange 
for ad hoc feeding and drinking water. 
 
c. Benchmark:  Civilian government agents are placed in charge of 
IDP camps. 
 
Status: 
Each zone of Manik Farm has a zonal commander - an ex-military 
civilian with good ties to the military.  Within each zone, each 
block has representatives from the grama sewaka level (local 
government officials reflecting the normal administrative structure 
outside the camps).  These IDP civilian authorities meet weekly with 
the zonal commanders and SLA personnel. 
 
Mrs. P.S.M. Charles, the Government Agent (GA) for Vavuniya 
District, continues to play a major, day-to-day oversight role for 
the IDP camps in her district.  She has also been extensively 
involved in discussions about releases of IDPs from the camp (for 
example, vulnerable groups) and about returns. 
 
There has been no replacement for the previous competent authority, 
who relinquished his control in July. 
 
¶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: 
No change from July report.  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 
donors 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 continues to discuss a revised mandate 
with the GSL, and has not been involved in the IDP camps in the 
North since the July report. 
 
c. Benchmark:  The GSL provides permission and access for 
 
international organizations and implementing partners to address 
protection issues. 
 
Status: 
Because of participatory assessments conducted over the past months, 
UNHCR has made substantial progress coordinating with GSL 
authorities on a range of protection issues involving women, 
children, and vulnerable groups.  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 August 27, the Office of the President's 
National Data Center entered data for approximately 155,000 out of 
approximately 266,000 IDPs.  This data entry process will likely 
conclude in early October.  Plastic ID cards (or, in the case of 
Jaffna, paperwork) have been issued for approximately 105,000 IDPs. 
No IDPs have been allowed to return without this ID card.  The UN 
does not have access to this database. 
 
A separate database, based on a much more extensive questionnaire, 
has been completed for the 265,000+ IDPs affected by the last round 
of displacement this past year.  This database is with the Ministry 
of Resettlement and Disaster Relief Services, which has shared it 
with UNHCR. 
 
b. Benchmark:  ID cards and other documents are issued to IDPs with 
safeguards to prevent corruption. 
 
Status: 
As of August 27, the GSL had issued approximately 105,000 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).  Working with IOM, the National Data Center is planning to 
reissue NICs to IDPs who do not have them. 
 
c. Benchmark:  All possible family reunifications take place. 
 
Status: 
Family Reunifications:  As of August 10, the GSL had reunited 6,860 
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 Ministry of Justice reports that there are now over 11,000 
ex-combatants in 13 temporary camps (public buildings such as 
schools), mostly in Vavuniya District.  IOM expects to have access 
to these people, once they begin the socio-economic profiling 
exercise, as a precursor to the rehabilitation and reintegration 
programs to be undertaken over the coming year.  There is no update 
on the number of former combatants (2,361) mentioned in the July 
report, as having been arrested under the Emergency Regulations and 
the Prevention of Terrorism Act.  This latter group of detainees is 
located in several facilities around the country, including Colombo. 
 The ICRC reported in July that they have not had access to the 
surrendees in Vavuniya since early July. 
 
b. Benchmark:  A formal process of demobilization, in line with 
international commitments, is initiated. 
 
Status: 
No change since the July report.  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 reintegration to a new Commissioner General for 
Rehabilitation, Major General Daya Ratnayake, has been named.  At 
the same time, the Ministry of Defense has requested the 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 could 
begin soon, 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.  UNICEF will be 
updating data on child combatants in September. 
 
¶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: 
According to the SLA Commander in Vavuniya, the GSL is in the 
process of expanding its definition of "no-risk" IDPs from just the 
elderly (over 60 years of age) to include the disabled from birth, 
severe medical cases, pregnant women, the mentally handicapped, and 
small children with caregivers.  The U.N. continues to advocate for 
the timely release of 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 August 19, 2009 the GSL had released 6,237 persons from IDP 
camps into host families and elders' homes.  Some people estimate 
that, with the expanded criteria mentioned above, up to 30,000 
vulnerable people could be released in the near future. 
 
¶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 communicated a voluntary returns strategy 
for the north, including for IDPs.  Whereas in July, Senior 
Presidential Advisor Basil Rajapaksa had briefed U.N. heads of 
agencies on the GSL's IDP 180-Day Returns Plan and pledged the 
return of 75,000 people in August, there were no more than 12,000 
returns during the month.  Now, the GSL is estimating that 100,000 
IDPs will return during the month of September.  With unmet promises 
in the past, these predictions of returns are viewed with skepticism 
 
by the international community.  When returns do take place, they 
are unannounced, making it difficult for the UN to respond (UNHCR 
with returns kits, IOM with transport support, WFP with food 
rations).  The UNHCR released two important documents in draft to a 
gathering of major donors this past week: 1) The UNHCR Operations 
Plan Support to Phased IDP Return in Northern Sri Lanka, and 2) 
Resettlement and Decongestion of IDP Camps Prior to Monsoon Season. 
The US Embassy is working with other donors and the UN to develop 
positions regarding support to GSL returns/resettlement, releases to 
host families, and any further assistance to Manik Farm.  A growing 
feeling among donors is that lack of freedom of movement for IDPs in 
camps in the North contravenes international, and possibly Sri 
Lankan, law, in terms of the detention of people without charges. 
In the coming weeks, the international community will discuss the 
options for further assistance to Manik Farm and other "temporary" 
IDP sites, given the context of monsoonal rains, the lack of freedom 
of movement, and progress made on returns/resettlement and releases 
to host families. 
 
b. Benchmark:  The GSL begins voluntary returns to areas of high 
priority. 
 
Status: 
The GSL has not yet begun voluntary returns in significant numbers. 
As of the end of August, likely returns for this month are 11,365 
IDPs, of whom 8,024 are from the new caseload (locations like Manik 
Farm).  Many of these people have returned to homes in the East, and 
none have returned to locations in the Vanni. 
 
 
¶8. (SBU) CONDUCTING DEMINING ACTIVITIES: 
 
The US Government is contributing $6.6 million this year to four 
INGO mine action agencies operating in the North.  In July, this 
additional funding opened the door for US Embassy officials to 
encourage the GSL to be more strategic with its de-mining task 
orders, in support of its proclaimed intent to accelerate IDP 
returns to the North.  However, the GSL did not reveal a strategic 
framework for de-mining or IDP returns which was realistic in its 
timeframe, numerical goals, or locations.  Meanwhile, the US Embassy 
instructed these four INGO partners to ramp up operations (hiring 
survey and de-mining teams to maximum potential), in anticipation 
that there would be an eventual, logical, returns-based push on the 
part of the GSL to increase mine action.  However, two months into 
this 12-month grant cycle, there are 15 unutilized survey teams, 
eight unutilized de-mining teams, and soon-to-be seven additional 
de-mining teams by mid-September, looking for work.  When the US 
Embassy communicated its concern to high levels of the GSL, the 
response was less than courteous. 
 
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.   Slowly, though, 
it is possible to divine a correlation between de-mining and IDP 
returns.  Some of the recent survey and de-mining task orders in the 
Rice Bowl, for example, will support returns to that area. 
Strategically, the mine action agencies have been asked to focus 
their efforts in the Rice Bowl, moving north through Manthai West 
(in Mannar District), and in North Vavuniya, moving north toward 
Kilinochchi.  A reluctance by the GSL to assign more task orders for 
survey work in the Vanni will mean a slower-than-necessary pace of 
area reduction, or releasing land for IDPs whose homes are in the 
districts of Kilinochchi and Mullaitivu.  IDP returns to those 
districts, as a result of mine action work, will not occur in 
significant numbers until 2010. 
 
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.  These districts will receive returning 
IDPs during the first phase of the unfolding GSL 
returns/resettlement strategy. 
 
c. Benchmark:  The GSL coordinates with international and local 
demining organizations on surveys and mine-removal efforts. 
 
Status: 
The GSL has improved its coordination with INGO and NGO mine action 
agencies, and there is a promise of additional work in the month 
ahead.  However, the GSL has not yet utilized many of the increased 
survey and de-mining teams developed as a result of State/WRA 
funding.  Neither has the GSL indicated where SLA de-mining 
operations are taking place, although the assumption is that they 
are working in priority areas of the Vanni where the GSL does not 
feel comfortable admitting INGOs. 
 
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. 
 
COHN