2010 UNHCR country operations profile - Sri Lanka

Working environment

The context

The Government-led military operations in northern Sri Lanka which ended in May 2009 displaced some 280,000 people, most of whom fled their homes in the last few months of the fighting. The majority of these internally displaced persons (IDPs) now live in closed camps in Vavuniya district, as well as in camps in Mannar, Jaffna and Trincomalee. An additional 300,000 IDPs, some of whom have been displaced since 1990, are also in need of durable solutions.

The IDPs originate mainly from the Mannar, Vavuniya, Kilinochchi, Mullaitivu and Jaffna districts in northern Sri Lanka, as well as from some areas in the east of the country. Though the end of hostilities has paved the way for the voluntary return of displaced people, some key obstacles to return remain. For instance, many of the areas of return are riddled with mines and unexploded ordnance. Not all are considered to be of high risk, particularly those away from former frontlines, but mine-risk surveys and the demarcation of no-go areas are urgently needed.

Other key obstacles to return include the need to re-establish administrative structures in areas formerly held by the Liberation Tigers of Tamil Eelam; the destruction or damaged condition of public infrastructure and private homes; and the breakdown of the economy - including agriculture and fisheries.

The Government of Sri Lanka is planning the return framework, and it has called on UNHCR for support with return transport, non-food items, return shelter, livelihoods support and assistance in building the capacity of local authorities.

With some progress having been recently achieved, it is hoped that a substantial number of IDPs will be able to return to their places of origin in the latter half of 2009, but a large portion of new IDPs are also likely to remain in the camps and with host families until well into 2010.

The needs

The speedy return of IDPs will be the greatest need in 2010. At the same time, a significant number of IDPs will remain in the camps in Vavuniya district pending de-mining, particularly in the districts of Mullaitivu and Kilinochchi.

Return is contingent on the completion of de-mining, the ability of returnees to resume livelihood activities, the setting up of adequate infrastructure and the availability of government services in areas of return. IDPs returning to their areas of origin who find their buildings damaged, looted or occupied by security forces, will require shelter assistance. The Office will monitor the return process to ensure that protection concerns are addressed.

Sri Lanka is not party to the 1951 Refugee Convention or its 1967 Protocol and there is no national policy or legislation directly related to refugees and asylum-seekers. This results in a lack of local integration opportunities for refugees. For those who cannot return to their countries, resettlement remains the only available durable solution.

In 2010, an estimated 1,000 facilitated returns are expected to take place from India to Sri Lanka, most to the east of the country. The returnees will require reintegration assistance in the form of non-food items and initial livelihood support.

Main objectives

Favourable protection environment

• Monitor and advocate for IDPs' rights and assist them with individual protection interventions.

Security from violence and exploitation

• Prevent and respond to sexual and gender-based violence and expand awareness-raising, training and capacity-building activities.

• Support confidence-building and stabilization measures to reduce tension between host communities, returnees and the military.

Basic needs and services

• Ensure protection, emergency shelter and non-food items for IDPs in camps and those living with host families.

• Provide return assistance in the form of protection monitoring, shelter assistance and non-food items.

Durable solutions

• Find durable solutions through return, local integration and relocation of IDPs.

• Facilitate voluntary repatriation for refugees from India.

External relations

• Raise awareness of the situation of IDPs in Sri Lanka.

Key targets for 2010

• IDPs benefit from greater physical security and freedom of movement in return areas, in camps and among host families.

• The provision of shelter assistance and distribution of relief items is effectively coordinated with the authorities and partners in camps and return areas.

• Returnees and host communities are supported with quick-impact projects.

• IDPs have civil documentation and access to national protection mechanisms, including free legal aid.

• Protection interventions and advocacy assist individuals with specific needs.

• Protection risks and human-rights abuses, including sexual and gender-based violence, are identified and reported.

• Workshops and trainings provide information on human rights, the guiding principles on internal displacement, and good governance to the authorities, security forces, NGOs, IDPs and returnees.

• Confidence-building and stabilization measures ensure communities, government institutions and security forces gain more trust in each other.

• The facilitation of voluntary repatriation from India.

• Asylum-seekers have access to fair and efficient refugee status determination (RSD), and refugees receive care and maintenance and assistance in resettlement procedures.

Strategy and activities

In 2010, UNHCR's primary focus is on the voluntary return of IDPs. It includes return assistance in form of non-food items and basic shelter. Protection monitoring in return areas will also be a strategic priority. UNHCR and its protection partners will organize go-and-see visits and monitor the return and relocation process.

The Office will implement quick-impact projects to reconstruct community infrastructure, rebuild community-based organizations and to improve livelihood opportunities.

With the end of the conflict, UNHCR will continue to facilitate the repatriation of refugees in India who are originally from the northern and eastern regions of Sri Lanka, on a case by case basis. Some refugee returnees will need assistance with livelihoods and also with building or repairing their homes.

The aim will be to build confidence between IDPs and host communities, as well as between communities, the civil administration and security forces. UNHCR will encourage governmental partners to continue developing the reconciliation framework of "Confidence-Building and Stabilization Measures for the North and the East".

UNHCR will continue its emergency protection activities in the north to enhance monitoring of the newly displaced and interventions in close coordination with the Government. It will also advocate for freedom of movement, the option to leave the camps and reside with host families, and returns in safety and dignity.

The Office will continue to guide shelter activities and the distribution of non-food items through the Shelter Coordination Cell. It will also dismantle camps once returns pick up.

In the east, more recovery and development is needed to secure sustainable returns. UNHCR will continue to build strategic alliances to ensure that development actors take over. In Batticaloa, UNHCR will cautiously phase down its operations in 2010.

Constraints

In the north, the difficulty in carrying out protection activities and the lack of freedom of movement for IDPs, particularly in Vavuniya will continue.

Humanitarian access to return areas will likely be a challenge, especially for NGOs. In 2010, high security zones in certain areas in Jaffna and the east, and possibly in Mullaitivu and Kilinochchi, will prevent IDPs from returning to their homes.

The main constraint to early return will be the rate at which de-mining is completed. De-mining has started in various districts and the Government as well as international de-mining agencies have scaled up their activities.

Organization and implementation

Coordination

UNHCR has the lead role within the inter-agency coordination mechanism in the sectors of protection, shelter and non-food assistance for IDPs. The IDP protection working group in Colombo, chaired by UNHCR, plays a vital coordination role, with similar structures in the districts. In close collaboration with its partners, UNHCR has created a shelter coordination cell to monitor and guide shelter interventions. The cell develops policies on emergency shelter, host-family support, return assistance and decommissioning of camps. Similar structures have been set up in the districts.

UNHCR implements activities directly and indirectly to ensure the access of returnees and displaced communities to assistance. To ensure the sustainability of the programmes, UNHCR works with partners at national, district and divisional governmental levels, as well as with national NGOs.

Financial information

The financial requirements have increased since 2005 primarily due to new displacements in 2006 and 2007, and especially because of the emergency in 2008-2009. The needs increased significantly in early 2009 with the emergence of 280,000 newly displaced people. Substantial assistance, especially for shelter, has been the main factor for the increase in the overall budget. In 2010, UNHCR may have to explore the possibility of more direct implementation due to lack of access to return areas for NGOs, which would increase the Office's staffing needs.

Source: UNHCR Global Appeal 2010-2011