US embassy cable - 05COLOMBO317

UNCLAS SECTION 01 OF 08 COLOMBO 000317 
 
SIPDIS 
 
STATE ALSO PASS TO USAID 
STATE FOR TSUNAMI TASK FORCE 1 
USAID/W FOR A/AID ANDREW NATSIOS, JBRAUSE 
DCHA/OFDA KISAACS, GGOTTLIEB, MMARX, RTHAYER, 
BDEEMER 
AID/W FOR DCHA/OFDA 
TSUNAMI RESPONSE MANAGEMENT TEAM 
 
SIPDIS 
DCHA/FFP FOR LAUREN LANDIS 
DCHA DEPUTY ASSISTANT ADMINISTRATOR WILLIAM 
GARVELINK 
ANE DEPUTY ASSISTANT ADMINISTRATOR MARK WARD 
BANGKOK FOR OFDA SENIOR REGIONAL ADVISOR TOM 
DOLAN 
KATHMANDU FOR OFDA REGIONAL ADVISOR WILLIAM 
BERGER 
GENEVA FOR USAID KYLOH 
ROME PASS FODAG 
NSC FOR MELINE 
CDR USPACOM FOR J3/J4/POLAD 
USEU PASS USEC 
 
E.O. 12958: N/A 
TAGS: EAID, AEMR, PREL, PGOV, CE, Tsunami 
SUBJECT: SRI LANKA - EARTHQUAKE AND TSUNAMIS: 
USAID/DART SITREP #14 - ASSESSMENTS TO EASTERN 
AND SOUTHERN PROVINCES 
 
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SUMMARY 
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1.  From January 31 to February 3, the USAID 
Disaster Assistance Response Team (USAID/DART) 
deployed teams to tsunami-affected districts to 
visit USAID's Office of U.S. Foreign Disaster 
Assistance (USAID/OFDA) programs.  The purpose 
of these trips was to monitor the progress of 
USAID/OFDA implementing partners, to assess 
whether existing programs are meeting current 
needs, and to evaluate coordination among non- 
governmental organizations (NGOs), the 
Government of Sri Lanka (GOSL), and local 
government officials.  The USAID/DART Water and 
Sanitation Officer (WSO) traveled to the eastern 
districts of Ampara and Batticaloa, while the 
USAID/DART Field Officer (FO) and the Director 
of USAID/Sri Lanka's U.S.-Asia Environmental 
Partnership Program (US-AEP) traveled to the 
southern districts of Galle, Matara, and 
Hambantota. 
 
2.  The USAID/DART concluded that the lack of 
clarity regarding buffer zones along coastal 
areas is delaying efforts to implement shelter 
programs.  The USAID/DART also noted that 
organization, coordination, and communication 
remain challenges for emergency response 
activities at the national, district, and sub- 
district levels.  End summary. 
 
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Key Observations of USAID/DART Visits to Eastern 
and Southern provinces 
--------------------------------------------- --- 
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3.  According to the USAID/DART, the primary 
challenges to an effective response are in the 
implementation of shelter programs and the 
overall organization and coordination of 
response efforts.  The sector requiring the most 
urgent attention is shelter for several reasons. 
The camps, while providing emergency temporary 
shelter, are inadequate for sustained 
habitation.  Although the number of camps is 
decreasing daily, the GOSL's delay in 
establishing guidelines for return and 
resettlement is hindering the provision of 
adequate transitional shelter. 
 
4.  Water and sanitation programs are also tied 
to the resolution of the shelter question. 
While conditions appear to be adequate in most 
camps and settled areas, some organizations are 
reluctant to invest in latrine rehabilitation in 
coastal areas that might be in the buffer zones, 
despite the fact that people are already 
returning to those areas. 
 
5.  Organization, coordination, and 
communication remain challenges at the national, 
district, and sub-district levels.  The lack of 
coordination means that the affected population 
in many cases remains without adequate 
assistance and without critical information 
necessary to make informed decisions.  Although 
the resources to provide appropriate quantities 
of assistance appear to be available, targeting 
the most underserved populations and those who 
are increasingly leaving the transit camps are 
becoming more critical issues. 
 
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USAID/DART Visit to Ampara District 
---------------------------------------- 
 
6.  On January 31, the USAID/DART WSO traveled 
to Ampara District in eastern Sri Lanka and met 
with implementing partners USAID's Office of 
Transition Initiatives (USAID/OTI), the 
International Organization for Migration (IOM), 
Sri Lankan Red Cross Society (SLRC), the U.N. 
Children's Fund (UNICEF), Christian Children's 
Fund (CCF), Mercy Corps, and CARE.  The biggest 
challenges facing implementing partners are 
resettlement of internally displaced persons 
(IDPs) and coordination and competition among 
NGOs. 
 
7.  USAID/OFDA implementing partners coordinated 
and agreed on a daily wage for cash-for-work 
programs based on local practices.  Partners 
noted that some relief agencies are paying up to 
three times this amount in their programs. There 
is concern among farmers that they will not be 
able to compete for labor as the rice harvest 
approaches. 
 
8.  According to the USAID/DART WSO, partners 
reported that there appears to be no mechanism 
in place to bring the concerns of affected 
populations to the government.  Although local 
authorities at the village level visit affected 
populations, concerns are not addressed at 
higher levels of government authority. 
 
9.  According to the USAID/DART WSO, the U.N. 
Children's Fund (UNICEF), Action Contre la Faim 
(ACF), GOAL, and Oxfam coordinated and shared 
information on water and sanitation activities 
in Ampara during the initial phase of the relief 
effort.  With approximately 25 NGOs now 
reportedly working in the water and sanitation 
sector, coordination has become more difficult. 
Instances of lack of coordination among NGOs, 
UNICEF, and local authorities have been 
reported, resulting in duplication of services 
and an increase in potential gaps. 
 
10.  On the technical side, implementing 
partners noted concern that the overpumping of 
wells is resulting in their increased salinity 
and potential damage to the aquifers.  The U.N. 
World Health Organization (WHO) and NGOs with 
experience in this area, in coordination with 
the Water Board, are developing guidelines for 
well pumping.  These guidelines will be 
available for general distribution. 
 
11.  The USAID/DART WSO also met with a local 
government official in Ampara District, who 
noted that existing governmental information- 
sharing and coordination systems were weak, 
leading to the distortion of information and to 
gaps in the coordination of policy and 
activities.  According to the government 
official, future challenges include the 
identification of suitable land for resettlement 
and of labor to build the large number of homes 
necessary. 
 
12.  The USAID/DART WSO reported that at a 
shelter meeting in Ampara NGOs expressed 
frustration about the lack of clarity regarding 
reconstruction in coastal areas, or buffer 
zones.  Although NGOs have indicated readiness 
to build shelters, inconsistent messages from 
different governmental authorities about the 
buffer zones are causing confusion and delaying 
the identification of land for housing. 
[Comment: In late January, the GOSL issued 
guidelines stipulating a 100-meter buffer zone 
for construction along the western and southern 
coastal areas and a 200-meter zone for the 
eastern and northern coastal zones.  However, 
confusion remains regarding the implementation 
and enforcement of these buffer zones.  End 
comment.] 
 
13.  On February 2, the USAID/DART WSO visited 
two IDP camps in the Kalmunai Division in Ampara 
District that are currently not served by 
USAID/OFDA partners.  One of the camps houses 
fishermen who are living in tents.  Residents at 
the camp complained about the composition of the 
food rations, noting that they were used to fish 
and meat and that rice and dhal were not 
satisfying.  The IDPs noted that food assistance 
was their largest need despite receiving the 
standard GOSL food assistance package and 
requested cash-for-work programs to repair and 
replace their boats and equipment.  In the 
second IDP camp, approximately 90 Tamil families 
live in a school that appeared to be in session 
at the time of the USAID/DART visit.  Land for 
the relocation of the IDPs has been identified, 
tents are being distributed, and the families 
expect to move with the assistance of the 
Canadian military.  The USAID/DART WSO observed 
a poster on a school wall informing tsunami- 
affected populations of the GOSL assistance 
package and stated that the residents at this 
camp are well informed of their entitlements; 
many residents have received this assistance. 
However, residents claimed that food rations 
were not always sufficient in quantity and that 
a collection was necessary to purchase 
additional food.  IDPs requested cash-for-work 
programs and reported that a weaving mill had 
been destroyed by the tsunami, resulting in the 
loss of income for women.  The USAID/DART will 
follow up with implementing partners in Ampara 
District to establish cash-for-work programs for 
residents of these camps. 
 
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Current Situation in Batticaloa District 
----------------------------------------- 
 
14.  On February 2, the USAID/DART WSO traveled 
to Batticaloa District and met with USAID/OFDA 
implementing partners, including Catholic Relief 
Services (CRS), IOM, and Mercy Corps' local 
partner Foundation for Coexistence (FCE). 
Partners stated that the lack of communication 
and coordination at the different governmental 
levels is hindering the provision of 
humanitarian assistance. 
 
15.  IOM is providing transitional housing for 
552 families in three divisions of Batticaloa 
and is involved in livelihood projects focused 
on women, farmers, and fishermen.  In addition, 
IOM has eight field offices in IDP camps where 
residents can receive assistance and information 
and express their concerns.  According to IOM, 
an estimated 75 percent of the affected 
population in Batticaloa is not aware of the 
GOSL assistance package provided to tsunami- 
affected people.  IOM also noted an unequal 
distribution of relief supplies between IDPs 
living in camps and those living in individual 
houses. 
 
16.  The USAID/DART WSO attended the shelter 
coordination meeting, where NGOs expressed 
concerned about local government authorities 
strongly encouraging IDPs to relocate from camps 
and schools without providing these populations 
sufficient information on their options.  The 
shelter policy working group in 
Batticaloa-comprised of a small number of U.N. 
agencies and NGOs-has drafted a document with 
recommendations to the GOSL, including the need 
to ensure that adequate time is allowed for full 
information to be disseminated and for people to 
make an informed choice.  During the meeting, 
NGOs selected a lead NGO for each of the 
affected divisions to coordinate with local 
authorities and with relief agencies in the 
shelter sector.  The Urban Development Authority 
(UDA) announced plans to assist district 
government authorities in identifying sites for 
permanent relocation.  UDA can design layouts if 
needed but noted that the process could be 
expedited if NGOs already have a design. 
 
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USAID Visit to Galle District 
------------------------------- 
 
17.  On January 31, the USAID/DART FO and the 
Director of US-AEP traveled to the southern 
districts of Galle, Matara, and Hambantota. 
According to local government authorities, as of 
January 31, there were 36 official IDP camps in 
Galle District.  Although the number of camps is 
consistently dropping, it is unclear where 
people are moving. 
 
18.  USAID's Office of Transition Initiatives 
(USAID/OTI) continues to work in a USAID/OFDA- 
funded cash-for-work debris removal project 
north of Galle.  As of January 31, the project 
employed on a rotational basis an average of 
1,200 people for three days to clean and sort 
debris into re-usable, recyclable, and waste 
materials.  The target of the program is to 
employ 6,000 people during 20 days of work. 
 
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Situation in Matara District 
------------------------------ 
 
19.  According to the USAID team, local 
government authorities in Matara reported that 
the GOSL is conducting a survey of land and 
housing needs with the aim of allocating GOSL 
land or acquiring private land for settlements. 
According to the survey, approximately 200 of 
the 1,592 affected residents do not want to 
leave their land and the rest have agreed to 
relocate.  [Note: It is unclear what information 
was provided to the area's residents when the 
survey was done.  End note.]  In addition, 2,000 
houses in the district were reported to be fully 
damaged; this figure is lower than 2,600 
reported by the U.N. High Commissioner for 
Refugees (UNHCR).  Local government authorities 
indicated that all the land for temporary 
shelter settlements has been identified; this 
contradicts the understanding of UNHCR and 
USAID/OFDA implementing partner CHF 
International. 
 
20.  On February 3, the USAID team met with 
implementing partner Save the Children/U.K. 
(SC/UK) in Matara.  SC/UK has distributed 
plastic sheeting, but reports receiving vague 
guidance on shelter from local authorities. 
SC/UK is working with IOM to distribute plastic 
sheeting in an IDP camp located at a school 
site.  The camp was initially expected to be 
opened for three months, but SC/UK believes that 
the camp will likely be there longer.  SC/UK 
noted that no official government information 
was available to affected populations.  SC/UK 
reported that GOSL coupons for food rations have 
only recently begun to be distributed in Matara. 
 
----------------------------------- 
USAID Visit to Hambantota District 
----------------------------------- 
 
21.  On February 2, the USAID team visited 
Hambantota District and met with implementing 
partners.  Due to local government authorities' 
lack of clarity about transitional shelter 
policies, GOAL estimates that it may have to 
scale back on its planned target for 
transitional shelter units. 
 
22.  The USAID team attended a shelter 
coordination meeting organized by Hambantota's 
Government Agent (GA) on February 2.  Meeting 
attendees discussed appropriate designs for 
permanent solutions to housing problems.  Some 
of the organizations in attendance emphasized 
the need to look at housing solutions more 
inclusively with particular attention on 
livelihoods and social structures that could be 
disrupted due to relocations.  A local 
government official emphasized that the 
district's policy is that no one should return 
to live within 100 meters of the coast and that 
a 300-meter buffer zone would be enforced in 
some unspecified areas.  The government 
officials reported that the UDA would be 
carrying out a survey to determine what land 
could be safely occupied close to the coast. 
The officials conceded that transitional 
shelters would be needed until permanent 
solutions are available but were unable to 
specify where those shelters could be built. 
The government representative from the Prime 
Minister's Office committed to producing a one- 
page information sheet for NGOs that would 
outline the procedures for temporary and 
permanent shelter in Hambantota. 
 
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USAID/OFDA Cash-for-Work Activities in Matara 
and Hambantota districts 
--------------------------------------------- --- 
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23.  USAID/OFDA implementing partner GOAL is 
engaged in a cash-for-work program focusing on 
damaged infrastructure in both districts.  GOAL 
identifies community leaders, such as teachers, 
who select 30 affected people to clean debris 
and repair roads for 10 days on a rotational 
basis.  The program currently employs between 
600 to 700 people daily for 10 days.  Some of 
the projects are carried out in coordination 
with the Road Development Authority. 
 
24.  The USAID team reports that CCF is 
beginning to implement cash-for-work programs in 
Matara and Hambantota.  CCF plans to work with 
German Technical Cooperation (GTZ), who has 
requested training for partners.  CCF would help 
with stipends for apprentices learning new 
skills. 
 
25.  Sarvodaya is conducting cash-for-work 
activities in Hambantota as well as Galle and 
Ampara districts.  Sarvodaya's activities 
include clean up of debris, repairs of schools 
and infrastructure, latrine construction, water 
and sanitation. 
 
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Comment 
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26.  Until such time as there is clarity from 
the GOSL on land use issues, such as the coastal 
buffer zones, and an understanding on the part 
of the GAs about issues surrounding the use of 
tents, transitional shelter, and the 
construction of permanent housing, there will 
continue to be confusion and delays in finding 
shelter solutions for IDPs.  On several 
occasions, the USAID/DART has suggested to 
central GOSL officials that a meeting with GAs 
from the affected districts be convened to 
discuss land use, shelter, and coordination 
issues.  End comment. 
 
LUNSTEAD