VZCZCXYZ0108
PP RUEHWEB

DE RUEHLM #0931/01 2780932
ZNR UUUUU ZZH
P 050932Z OCT 09
FM AMEMBASSY COLOMBO
TO RUEHC/SECSTATE WASHDC 0590
INFO RUEHKT/AMEMBASSY KATHMANDU PRIORITY 7196
RUEHBK/AMEMBASSY BANGKOK PRIORITY 3960
RUEHNE/AMEMBASSY NEW DELHI PRIORITY 3336
RUEHIL/AMEMBASSY ISLAMABAD PRIORITY 8958
RUEHKA/AMEMBASSY DHAKA PRIORITY 1922
RUEHGV/USMISSION GENEVA PRIORITY 3753
RUCNDT/USMISSION USUN NEW YORK PRIORITY 1305
RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC
RHHMUNA/CDR USPACOM HONOLULU HI//J3/J332/J52//
RHMFIUU/CDRUSARPAC FT SHAFTER HI//APCW/APOP//

UNCLAS COLOMBO 000931 
 
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 THREE ON INTERAGENCY POLICY COMMITTEE (IPC) 
BENCHMARKS FOR SRI LANKA 
 
REF:  A) Colombo 753  B) State 69689  C) Colombo 691 
D) Colombo 854 
 
 
SUMMARY 
 
¶1.  (SBU) This is the third of three monthly reports on the 
Government of Sri Lanka's progress in meeting benchmarks, as 
outlined in Ref B.  With a policy dialogue more focused on freedom 
of movement and issues associated with closed IDP camps, this report 
is shorter than its predecessors and focused on changes since the 
August report.  Information is provided by UN and INGO partners. 
 
The monsoonal rains for Vavuniya District (location of Manik Farm 
closed IDP camp complex), predicted to start in October, have not 
yet begun.  Nonetheless, infrastructure improvements - primarily 
drainage - continue apace in anticipation of heavy rains that could 
last as long as three or four months.  Citing continuing security 
and safety (de-mining) concerns, the Government remains behind 
schedule in relation to its predictions regarding early releases 
from Manik Farm and other closed camps. 
 
Frustration among the international community is growing, in light 
of this slow progress and apparent unwillingness on the part of the 
GSL to engage donors and implementing partners in a constructive, 
strategic dialogue concerning de-mining, releases of IDPs to host 
families or other options, and returns/resettlement of IDPs to their 
homes of origin. 
 
Over the past weeks, in an apparent effort by the GSL to show 
progress in de-congesting Manik Farm and returning IDPs home, a new 
issue has emerged:  closed transit camps.  In the short-term, many 
predict that a normal or heavy monsoon season will cause major 
disruptions in Manik Farm.  In the medium to long term, it is 
becoming increasingly apparent that returns/resettlement are likely 
to take at least two years to complete, given the current slow pace 
in opening the Vanni to de-mining and reconstruction work. 
 
¶2.  (SBU)  ENSURING LIVEABLE 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 some 
sectors are not up to SPHERE's standards.  In Manik Farm, the major 
focus is on building drainage works to drain anticipated heavy rains 
during the October - January monsoon season.  However, an oft-heard 
opinion among the international community is that these prophylactic 
measures will be insufficient in the event of severe weather.  In a 
recent press release, a UNHCR official stated: "Additional efforts 
are urgently needed to decongest overcrowded camps, particularly as 
the monsoon season approaches.  The rains will lead to flooding of 
low lying areas of the camps, causing further deterioration of 
living conditions and posing possible threats to IDPs' health and 
safety."  The UN has advised the GSL that, in the event of a 
large-scale natural disaster such as a cyclone, the Sri Lanka Army 
(SLA) will be the only organization able to respond, to move IDPs to 
safety and to help with emergency services. 
 
Food (WFP report).  By September 10th, NGOs ran out of funds to 
provide communal cooking and complementary rations.  WFP now 
distributes the basic, dry ration directly to all families in all 
the zones of Manik Farm.  Issues related to individual, family 
cooking continue to be fire danger and access to fuel wood.  The 
Vavuniya NGO consortium undertook a food security vulnerability 
assessment in September, identifying almost 60,000 people who are 
considered vulnerable and in need of complementary food resources, 
over and above the dry ration distribution.  Two NGOs provide cooked 
meals to the IDPs in the two staging areas of Vavuniya, before they 
proceed to their districts of origin. 
 
 
Water and Sanitation.  UNICEF undertook a groundwater table survey 
during September.  In many areas of Manik Farm, it is predicted that 
the water tables may rise several meters during the monsoon season, 
possibly up to ground surface level.  This will require 
de-commissioning of latrines where inundation would otherwise spread 
contamination.  UNICEF predicts that up to 65,000 people will be 
affected by rising groundwater, especially in Zones 1, 4, and 5 of 
Manik Farm, and in a smaller IDP camp nearby.  People in low-lying 
areas of Manik Farm will be moved to tents vacated by IDP families 
that have been released for returns/resettlement. 
 
Health.  As the Manik Farm complex expands to include Zones 6A, 6B, 
7, and 8, additional health facilities - such as primary health care 
centers - are being constructed.  There continues to be a shortage 
of trained medical staff to deal with IDP needs, with some people 
having to wait several days for a routine consultation.  In Zone 2 
of Manik Farm, for example, there are five doctors for approximately 
55,000 IDPs. 
 
Shelter.  Shelter maintenance activities, in preparation for the 
monsoon season, are ongoing. 
 
Protection.  The major protection issues are concerned with closed 
camps (and new, closed transit sites), the everyday limitations of 
vulnerable groups (especially the elderly and handicapped), family 
reunifications, and over-crowding.  Protection work is constrained, 
due to restrictions on interaction with IDPs.  Generally, organized 
meetings with IDPs, and assessments by international organizations 
are not permitted by the SLA.  A widely reported altercation between 
IDPs and the military on September 26 resulted in weapons being 
fired and civilians wounded. 
 
b.  Benchmark:  The Sri Lankan Army is withdrawn to the external 
periphery of camps and local police provide law and order within 
camps. 
 
Status:  No change since last report. 
 
c.  Benchmark:  Civilian government agents are placed in charge of 
IDP camps. 
 
Status: Decision-making processes remain with the SLA, with most 
decisions regarding camp management requiring the approval of 
military authorities.  IDP protests and demonstrations inside the 
camps have been dealt with by military officers, instead of by 
civilian police officers. 
 
¶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 since the last report.  Access to existing, 
closed camps (like Manik Farm) is improving, though some 
case-by-case delays occur.  The Human Rights Commission has limited 
access to the IDP camps in Vavuniya, but better access in Pulmoddai. 
 Access for the UN to new transit sites is inconsistent, with some 
sites (for example, in Trincomalee) totally restricted. 
 
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:  No change since the last report.  ICRC does not have access 
to camps for IDPs or for LTTE ex-combatant surrenderees. 
 
 
c.  Benchmark:  The GSL provides permission and access for 
international organizations and implementing partners to address 
protection issues. 
 
Status:  There is access for some protection agencies, though more 
than short interviews with IDPs is difficult. 
 
¶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:  As of September 24, 174,000 people had been registered for 
their IDP cards, and 120,000 cards had been printed. 
 
b.  Benchmark:  ID cards and other documents are issued to IDPs with 
safeguards to prevent corruption. 
 
Status:  Except for the number of IDP cards, no change since the 
last report. 
 
c.  Benchmark:  All possible family reunifications take place. 
 
Status:  No change since the last report. 
 
¶5.  (SBU)  EFFECTIVE DISPOSITION OF COMBATANTS 
 
a.  Benchmark:  Combatants are identified, disarmed, and separated 
from the general IDP population. 
 
Status:  No change since the last report.  The GSL continues to use 
the excuse of ex-combatants in IDP camps as the primary reason for 
not allowing freedom of movement.  There are approximately 10,500 
adult ex-combatants in 13 sites. 
 
b.  Benchmark:  A formal process of demobilization, in line with 
international commitments, is initiated. 
 
Status:  IOM is working with the Commissioner General for 
Reconciliation and the Ministry of Justice to carry out a 
socio-economic profiling of surrenderees in the 13 sites.  So far, 
neither IOM nor ICRC has been allowed access to any of these sites. 
 
 
c.  Benchmark:  No new children are recruited and previous child 
soldiers are identified, separated, and put into a UN program. 
 
Status:  There are 456 LTTE child surrenderees in Poothodam 
Rehabilitation Center, in Vavuniya District.  Of these, 454 have 
been produced before the magistrate, and probation officers have 
started compiling social inquiry reports.  98 boys and 100 girls 
have begun formal education, in classes from Grade 8 through the A 
levels.  Play activities and counseling are ongoing within the 
center. 
 
¶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:  No change since the last report. 
 
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 September 24, 7,835 people have been released from 
camps to host families and elders' homes.  The majority are elders, 
people with learning disabilities, and other vulnerable groups. 
 
¶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 continues to publicly forecast numbers of IDP 
returnees far in excess of reality.  To date, the GSL has not 
coordinated with, or presented to, the international humanitarian 
community a realistic returns strategy that includes timeframes, 
numbers of people, and destinations (places of return). 
 
b.  Benchmark:  The GSL begins voluntary returns to areas of high 
priority. 
 
Status:  The GSL has not yet begun voluntary returns in significant 
numbers.  Between August 5 and September 28, 6,813 people have 
returned to Jaffna, Vavuniya, Mannar, Trincomalee, Batticaloa, and 
Ampara Districts.  Between September 11-28, 3,358 people have been 
released (most from Manik Farm) to their districts of origin, where 
they have been detained in closed transit sites, due to security 
clearance procedures in the districts of origin.  Slowly, some of 
these people are being allowed to leave the transit sites and return 
home.  Limited or no access to these transit sites is provided by 
the GSL to the UN and other humanitarian agencies. 
 
¶8.  (SBU)  CONDUCTING DEMINING ACTIVITIES 
 
a.  Benchmark:  The GSL releases a mine action strategy for Mannar 
and continues surveys for the remaining areas in the North by July 
15, 2009. 
 
Status:  The GSL has not released a comprehensive mine action 
strategy for the North, citing ongoing security concerns in the 
Vanni, especially in Kilinochchi and Mullaitivu Districts east of 
the A-9 highway.  However, there has been steady on-the-ground 
progress by district mine action offices and Government agents in 
issuing more de-mining tasks to mine action agencies, including the 
four USG partners.  This past week, one agency (Halo Trust) received 
task orders to begin survey work in Kilinochchi and Mullaitivu, in 
districts west of the A-9 highway.  The U.S. Embassy is working with 
its partners to develop work plans that will project de-mining work 
(survey and minefield clearance) through July 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, Mannar, and 
Vavuniya Districts, and survey work is also being started in 
Kilinochchi and Mullaitivu Districts.  The GSL is particularly 
focused on the Rice Bowl in Mannar District, requesting that work be 
completed by mid-October, in time for displaced people to return 
home and begin paddy cultivation (to coincide with the start of the 
monsoon season).  Although it is assumed that all de-mining 
operations are related to IDP returns/resettlement, the GSL does not 
indicate - with each de-mining task order - how many people are to 
be affected by completion of the work. 
 
c.  Benchmark:  The GSL coordinates with international and local 
demining organizations on surveys and mine removal efforts. 
 
Status:  Coordination is slowly improving at the field level.  At 
the national level - where all the major decisions are made (by the 
Presidential Task Force) - there is no coordination between the GSL 
and the international community.  Meetings between the Task Force 
and mine action agencies, and sometimes donors, are ad hoc.  The 
Task Force continues to press the international community for 
equipment for SLA demining operations. 
 
d.  Benchmark:  A public information/signage campaign is launched to 
local communities in mine areas. 
 
 
Status:  UNICEF is working with the Ministry of Education and 
international and local NGOs to conduct mine risk education in 
schools and IDP camps. 
 
BUTENIS