Online edition of Sunday Observer - Features: "
This is the text of a speech delivered at the lecture/panel discussion series titled 'Facing tsunami challenge' organized jointly by the Sunday Observer and the Sri Lanka Foundation Institute (SLFI). Associate Research Fellow Paul Steele of the Institute of Policy Studies spoke on 'Practical problems and recommendations to assist the public sector in the process, of restoring tsunami affected areas.
In many ways, the response of Sri Lankan citizens including the public sector towards the tsunami has been unprecedented in its scope and commitment. Many public servants both in Colombo, and particularly in tsunami affected areas have been literally working round the clock.
The government swiftly took key decisions to rapidly mobilise relief and create a central body for coordination of relief, the Centre for National Operations (CNO). Initial fears of post tsunami epidemics were addressed by fast action. Swift presentation by the government of the relief and reconstruction costs has helped mobilise significant international funds.
At the local level, many divisional secretary offices and grama sewekas have worked without a break, even though in some cases, they also have lost their homes and been affected in other ways. They are often under tremendous strain-indeed in one case, a grama seweka seems to have committed suicide because of the pressure.
The People's Bank has been opened extended hours in the affected areas to process the Rs. 5000 allowances for affected households. So this article is meant in no way to undermine the very impressive response by many in the public service.
The focus here is on the shortcomings of the Sri Lankan public sector. But the international community also has its short-comings. Some development agencies and international non governmental organisations (INGOs) are competing to have 'their' tsunami projects. This promotes an uncoordinated ad hoc approach-and makes the government's task more difficult. INGOs have sometimes sidelined Sri Lankan non governmental organisations who have a better understanding of local needs and sensitivities.
Finally this article is based on involvement with tsunami issues in Colombo and discussions on the South coast and the East coast. The way people in tsunami areas are responding, can vary quite differently from one location and one village to the next. So generalisations can be misleading, and others who have been involved on the ground, may have a quite different perspective.
Impact of the tsunami Impacts of the tsunami include those who died or were injured, those who lost their loved ones those who lost their houses, or property and those who lost their livelihoods or whose employment was indirectly affected.
Deaths The latest death toll is 30,957 people, with an additional 5644 missing (www.statistics.gov.lk). This makes a grim total of 36,600. This leaves many who lost their loved ones-their children, mothers and fathers, relatives and friends.
Displacement Initially about 800,000 people were displaced, following the destruction and damage of about 119,000 houses. The figure of displaced has gradually fallen to about 500,000 (at the end of January) as people who return to their homes even if they are destroyed or damaged are removed from the statistics.
The number of people living in camps had fallen by the end of January to 169,000 or one third of the total displaced. Smaller temporary camps are now being converted into larger semi-permanent camps with corrugated sheets and other materials.
But we should not forget that for the other 333,000 or two thirds of the displaced living with host families (relatives or friends) this is often in very over-crowded accommodation, with much potential for conflict and tension.
Livelihoods There are many others who lost their livelihoods-boats and nets, places of business, tools and other assets. This includes both the owners of these assets and those who were hired as labourers to work. There are also those who were indirectly affected-those whose markets have been affected, whose customers have died or been displaced. Finally there are many who lost their few savings-their gold and their jewellery.
13 of the country's districts were affected, but the North and East were particularly hard hit suffering over two thirds of the deaths and almost 60 per cent of the displacement (as at end of January). The pattern of death and displacement were slightly different with Ampara suffering one third of the deaths (dead and missing), while Galle has suffered a quarter of the displacement (as at 25 January 2005)
Disaster for North East is compounded conflict related problems-the north and east have already been negatively impacted by the 20 year civil conflict and related economic marginalisation. Infant mortality is over double in the North and East compared to the rest of Sri Lanka, maternal mortality is three times as high. The 500,000 people displaced by the tsunami at the end of January is less than the 600,000 registered as displaced by the ethnic conflict in late 2004.
Uneven livelihood impacts of the disaster and danger of deepening poverty
While the economic impact of the tsunami to the national economy is likely limited to 1 per cent of GDP, it may have significant impacts in terms of increasing poverty particularly among the already impoverished groups.
It will particularly affect small scale fishermen and the inhabitants of the North and East. Around one third of the affected population depended pre-tsunami on fishing for their livelihoods. Even before the tsunami, 6 per cent of the affected population depended on government welfare (samurdhi etc.) and 3 per cent on remittances as their main source of income.
Vulnerable groups
The problem of alcoholism and harassment of women is likely in any camp situation. In some cases, the semi-permanent camps are too far from existing schools for children to attend and alternatives have not yet been put in place. In other cases, women have to travel long distances to wash in privacy.
Recommendations to assist the public sector in the process of restoring tsunami affected areas Importance of ongoing debate over public service reform-Public sector problems and shortcomings in the context of tsunami highlight many well known and long running challenges to the public service. These include lack of a service culture or consultation, weak procurement and hiring and firing policies, politicisation, limited Ministerial coordination, unclear relationship between the center and local levels and weak oversight of public funds. Some reforms are under discussion or underway to address these failings. The tsunami should provide an added impetus to take these reforms forward.
To date focus by the government and many donors has been on funds for reconstruction. This has resulted in long lists of capital projects for roads, schools, housing etc. However thanks to the generosity of both Sri Lankans and the international community, funds are less of a constraint.
The challenge now is the process of using these funds to rapidly and equitably restore tsunami affected areas so that people are at least as well off as they were before the tsunami. The objective should be to promote equitable and pro-poor growth in tsunami affected areas, addressing the special challenges of the North and East.
Reconstruction process must have active involvement of the poor and affected people. The reconstruction process must build on the existing capacities and strengths of the poor affected people eg. building roads and houses with local skills, constructing fishing craft with local boat builders, and rehabilitation of the destitute through community-level centres.
Rehabilitation staffs are often in short supply, recruiting and training local volunteers from the villages can improve communication and ensures that some of the skills gained remain after the support leaves. Likewise, local people are well-suited to the local situation and they know best what they want. This also provides income, may reduce depression and helps people engage in constructive activities to rebuild their lives. Local skills are being used in some locations and by some organisations, but major training programmes are required to ensure that affected households have the skills to engage in house building and other activities.
While targeting of the tsunami affected population is important, it must recognise the needs of other poor groups: The reconstruction must avoid the impression of a two tier situation developing between tsunami survivors and other poor groups such as those displaced by the conflict and other low income households.
National policy makers must not lose sight of regenerating the economies of all low-income areas in Sri Lanka. Already there are anomalies developing as the rations provided to those living in tsunami camps are slightly higher than the rations given to the people living in conflict affected camps. The conflict affected internally displaced persons (IDPs) have in some cases been in camps for over a decade, so their needs for housing must not be forgotten in the desire to build houses for those affected by the tsunami.
Reconstruction process must be focused on serving the need of the affected people with minimum bureaucracy: The recovery programme needs to consider all interventions from the point of view of the affected population. People want as little bureaucracy and simple accessible procedures.
The decision to use the state banks-the People's Bank and Bank of Ceylon-for the Rs.5000 allowance as well as micro-credit and housing funds-may be a good way of ensuring access through the wide rural banking network. However there are concerns that each of the 50 or so Ministries are keen to launch their own tsunami relief schemes and programmes, so coordination is vital.
There is an urgent need to start a dialogue with beneficiaries about house design, land selection and agreed criteria and priorities to allocate land to beneficiaries. The government is understandably focused on rapidly providing permanent shelter to those who lost their houses. There is also pressure from those 'donors' offering to build houses-many of them Sri Lankan companies-to provide land as fast as possible.
The government is signing agreements with these donors as fast as possible. However, this leaves little time or scope to consult with the beneficiaries themselves, Township plans are often drawn up by Colombo based architects with minimum consultation of those who will live in these schemes.
For example many of the low income households can only afford firewood, and this needs to be taken into account in kitchen design. A more demand driven approach may save time and money, and reduce conflict in the long run. In many cases, lands for housing have been identified without consulting the beneficiaries-who often have strong views or their own suggestions about the most suitable land.
In the Indian State of Gujarat following the earthquake there, 2500 houses were built and never occupied due to lack of demand. Finally there is no agreed criteria or policy on how land will be allocated to beneficiaries-other than that it will be the responsibility of the government, which will make such selection in consultation with Divisional Secretaries and other State agencies and groups associated with disaster relief activity.
This provides no role for the beneficiaries to be involved in the process. There are preferences by many fishing households to be near the sea, and by many communities to stay together, while some other households are more flexible. Without clear agreements and dialogue on allocation criteria before the houses are built, major conflicts may develop as tsunami survivors compete for the best land (for example nearest to the sea) and well-designed houses, or reject the worst land (for example in jungle areas or marshy lands far from the sea.)
Communication-both up and down-is crucial
Some tsunami affected people are unaware of government policies and their entitlements. Posters on relief were put up along the South coast and the media have been carrying announcements from TAFFREN, but many people in the camps lack access to the media.
There is a need for grama sewakas. People's Bank, cooperatives and other channels could be used to provide information to people in languages they can understand. Even when people are aware they need to understand the motivation for the policy. For example some people in the North and East see the larger 200 metre buffer zone compared to the 100 metre in the South and West as discriminatory and have not been given any scientific rationale to explain it. There is also a need for much more listening and discussion with the affected people by government and politicians-in the development of policy, in the selection of lands for housing and in the provision of boats and other equipment.
Reconstruction process requires appropriate decision making given to the local level-The District and Divisional Secretaries working with grama sewakas have become the front line in the reconstruction process. This must be given greater public recognition with enhanced administrative support to local level and maximum appropriate decision making powers at this level.
This is especially important over the issue of relocation of land and housing in the north and east as these are key to the ethnic conflict and ill-informed or rushed decisions could lead to long running conflicts. Provincial Councils and pradeshiya sabhas could be given a greater role. To balance these stronger local powers, there must be tough action taken against local officials who fail in their duties, for example a complaints procedure against ineffective or corrupt grama sewakas.
Monitoring of the progress of reconstruction and funds is vital.
Government policy is only as good as its implementation. The government took important steps to monitor the receipt of the Rs. 5000 allowance and when the results were disappointing took action to keep Banks open on all holidays.
This pro-active approach to monitoring and prompt action in response must be continued in other areas-the allocation of micro-credit, housing funds, new houses and lands and boats and nets. NGOs and the media working with the affected people also have an important role to play in monitoring the government and holding it accountable for its promises. Monitoring of funds is especially important. Long running recommendations to strengthen financial oversight by the Auditor General's Department and Parliament through the Committee on Public Accounts are important. Transparency also needs to improve funds handled at the local level. However transparency is not enough without accountability. If any corruption is unearthed over the tsunami funds, action should be taken including resignation by those holding public office.
Reconstruction process needs effective dispute resolution mechanisms. The reconstruction process is riddled with potential conflicts. Conflicts about who is eligible for what-about land, housing, food, boats and nets. Public officials are in positions of enormous power in allocating assets and funds.
Disputes have already appeared and will inevitably worsen as time passes and the larger grants, such as for housing, are implemented. There is a pressing need to introduce a whole host of effective dispute resolution mechanisms and appeal processes for such grievances to be aired and hopefully resolved. There are positive developments in the ongoing discussions to extend existing mediation boards to cover tsunami related disputes.
Need for care in evolving public and private sector relationships
The private sector has played a key role in TAFFREN and this is expected to continue in the planned reconstruction (such as housing). This is an interesting development, given the long running controversy over the role of the private sector in public policy. It will be important to later review whether there were any efficiency gains from private sector involvement.
The public sector remains responsible for standard setting. The public sector will require strong skills in contract negotiation, supervision and management. The private sector while it has many of these skills will need to guard against actual or perceived conflicts of interest. In conclusion, the public sector's rapid response during the relief phase was often impressive, but there is a need to move to a more bottom up, consultative approach to succeed during the more difficult reconstruction phase."
This is the text of a speech delivered at the lecture/panel discussion series titled 'Facing tsunami challenge' organized jointly by the Sunday Observer and the Sri Lanka Foundation Institute (SLFI). Associate Research Fellow Paul Steele of the Institute of Policy Studies spoke on 'Practical problems and recommendations to assist the public sector in the process, of restoring tsunami affected areas.
In many ways, the response of Sri Lankan citizens including the public sector towards the tsunami has been unprecedented in its scope and commitment. Many public servants both in Colombo, and particularly in tsunami affected areas have been literally working round the clock.
The government swiftly took key decisions to rapidly mobilise relief and create a central body for coordination of relief, the Centre for National Operations (CNO). Initial fears of post tsunami epidemics were addressed by fast action. Swift presentation by the government of the relief and reconstruction costs has helped mobilise significant international funds.
At the local level, many divisional secretary offices and grama sewekas have worked without a break, even though in some cases, they also have lost their homes and been affected in other ways. They are often under tremendous strain-indeed in one case, a grama seweka seems to have committed suicide because of the pressure.
The People's Bank has been opened extended hours in the affected areas to process the Rs. 5000 allowances for affected households. So this article is meant in no way to undermine the very impressive response by many in the public service.
The focus here is on the shortcomings of the Sri Lankan public sector. But the international community also has its short-comings. Some development agencies and international non governmental organisations (INGOs) are competing to have 'their' tsunami projects. This promotes an uncoordinated ad hoc approach-and makes the government's task more difficult. INGOs have sometimes sidelined Sri Lankan non governmental organisations who have a better understanding of local needs and sensitivities.
Finally this article is based on involvement with tsunami issues in Colombo and discussions on the South coast and the East coast. The way people in tsunami areas are responding, can vary quite differently from one location and one village to the next. So generalisations can be misleading, and others who have been involved on the ground, may have a quite different perspective.
Impact of the tsunami Impacts of the tsunami include those who died or were injured, those who lost their loved ones those who lost their houses, or property and those who lost their livelihoods or whose employment was indirectly affected.
Deaths The latest death toll is 30,957 people, with an additional 5644 missing (www.statistics.gov.lk). This makes a grim total of 36,600. This leaves many who lost their loved ones-their children, mothers and fathers, relatives and friends.
Displacement Initially about 800,000 people were displaced, following the destruction and damage of about 119,000 houses. The figure of displaced has gradually fallen to about 500,000 (at the end of January) as people who return to their homes even if they are destroyed or damaged are removed from the statistics.
The number of people living in camps had fallen by the end of January to 169,000 or one third of the total displaced. Smaller temporary camps are now being converted into larger semi-permanent camps with corrugated sheets and other materials.
But we should not forget that for the other 333,000 or two thirds of the displaced living with host families (relatives or friends) this is often in very over-crowded accommodation, with much potential for conflict and tension.
Livelihoods There are many others who lost their livelihoods-boats and nets, places of business, tools and other assets. This includes both the owners of these assets and those who were hired as labourers to work. There are also those who were indirectly affected-those whose markets have been affected, whose customers have died or been displaced. Finally there are many who lost their few savings-their gold and their jewellery.
13 of the country's districts were affected, but the North and East were particularly hard hit suffering over two thirds of the deaths and almost 60 per cent of the displacement (as at end of January). The pattern of death and displacement were slightly different with Ampara suffering one third of the deaths (dead and missing), while Galle has suffered a quarter of the displacement (as at 25 January 2005)
Disaster for North East is compounded conflict related problems-the north and east have already been negatively impacted by the 20 year civil conflict and related economic marginalisation. Infant mortality is over double in the North and East compared to the rest of Sri Lanka, maternal mortality is three times as high. The 500,000 people displaced by the tsunami at the end of January is less than the 600,000 registered as displaced by the ethnic conflict in late 2004.
Uneven livelihood impacts of the disaster and danger of deepening poverty
While the economic impact of the tsunami to the national economy is likely limited to 1 per cent of GDP, it may have significant impacts in terms of increasing poverty particularly among the already impoverished groups.
It will particularly affect small scale fishermen and the inhabitants of the North and East. Around one third of the affected population depended pre-tsunami on fishing for their livelihoods. Even before the tsunami, 6 per cent of the affected population depended on government welfare (samurdhi etc.) and 3 per cent on remittances as their main source of income.
Vulnerable groups
The problem of alcoholism and harassment of women is likely in any camp situation. In some cases, the semi-permanent camps are too far from existing schools for children to attend and alternatives have not yet been put in place. In other cases, women have to travel long distances to wash in privacy.
Recommendations to assist the public sector in the process of restoring tsunami affected areas Importance of ongoing debate over public service reform-Public sector problems and shortcomings in the context of tsunami highlight many well known and long running challenges to the public service. These include lack of a service culture or consultation, weak procurement and hiring and firing policies, politicisation, limited Ministerial coordination, unclear relationship between the center and local levels and weak oversight of public funds. Some reforms are under discussion or underway to address these failings. The tsunami should provide an added impetus to take these reforms forward.
To date focus by the government and many donors has been on funds for reconstruction. This has resulted in long lists of capital projects for roads, schools, housing etc. However thanks to the generosity of both Sri Lankans and the international community, funds are less of a constraint.
The challenge now is the process of using these funds to rapidly and equitably restore tsunami affected areas so that people are at least as well off as they were before the tsunami. The objective should be to promote equitable and pro-poor growth in tsunami affected areas, addressing the special challenges of the North and East.
Reconstruction process must have active involvement of the poor and affected people. The reconstruction process must build on the existing capacities and strengths of the poor affected people eg. building roads and houses with local skills, constructing fishing craft with local boat builders, and rehabilitation of the destitute through community-level centres.
Rehabilitation staffs are often in short supply, recruiting and training local volunteers from the villages can improve communication and ensures that some of the skills gained remain after the support leaves. Likewise, local people are well-suited to the local situation and they know best what they want. This also provides income, may reduce depression and helps people engage in constructive activities to rebuild their lives. Local skills are being used in some locations and by some organisations, but major training programmes are required to ensure that affected households have the skills to engage in house building and other activities.
While targeting of the tsunami affected population is important, it must recognise the needs of other poor groups: The reconstruction must avoid the impression of a two tier situation developing between tsunami survivors and other poor groups such as those displaced by the conflict and other low income households.
National policy makers must not lose sight of regenerating the economies of all low-income areas in Sri Lanka. Already there are anomalies developing as the rations provided to those living in tsunami camps are slightly higher than the rations given to the people living in conflict affected camps. The conflict affected internally displaced persons (IDPs) have in some cases been in camps for over a decade, so their needs for housing must not be forgotten in the desire to build houses for those affected by the tsunami.
Reconstruction process must be focused on serving the need of the affected people with minimum bureaucracy: The recovery programme needs to consider all interventions from the point of view of the affected population. People want as little bureaucracy and simple accessible procedures.
The decision to use the state banks-the People's Bank and Bank of Ceylon-for the Rs.5000 allowance as well as micro-credit and housing funds-may be a good way of ensuring access through the wide rural banking network. However there are concerns that each of the 50 or so Ministries are keen to launch their own tsunami relief schemes and programmes, so coordination is vital.
There is an urgent need to start a dialogue with beneficiaries about house design, land selection and agreed criteria and priorities to allocate land to beneficiaries. The government is understandably focused on rapidly providing permanent shelter to those who lost their houses. There is also pressure from those 'donors' offering to build houses-many of them Sri Lankan companies-to provide land as fast as possible.
The government is signing agreements with these donors as fast as possible. However, this leaves little time or scope to consult with the beneficiaries themselves, Township plans are often drawn up by Colombo based architects with minimum consultation of those who will live in these schemes.
For example many of the low income households can only afford firewood, and this needs to be taken into account in kitchen design. A more demand driven approach may save time and money, and reduce conflict in the long run. In many cases, lands for housing have been identified without consulting the beneficiaries-who often have strong views or their own suggestions about the most suitable land.
In the Indian State of Gujarat following the earthquake there, 2500 houses were built and never occupied due to lack of demand. Finally there is no agreed criteria or policy on how land will be allocated to beneficiaries-other than that it will be the responsibility of the government, which will make such selection in consultation with Divisional Secretaries and other State agencies and groups associated with disaster relief activity.
This provides no role for the beneficiaries to be involved in the process. There are preferences by many fishing households to be near the sea, and by many communities to stay together, while some other households are more flexible. Without clear agreements and dialogue on allocation criteria before the houses are built, major conflicts may develop as tsunami survivors compete for the best land (for example nearest to the sea) and well-designed houses, or reject the worst land (for example in jungle areas or marshy lands far from the sea.)
Communication-both up and down-is crucial
Some tsunami affected people are unaware of government policies and their entitlements. Posters on relief were put up along the South coast and the media have been carrying announcements from TAFFREN, but many people in the camps lack access to the media.
There is a need for grama sewakas. People's Bank, cooperatives and other channels could be used to provide information to people in languages they can understand. Even when people are aware they need to understand the motivation for the policy. For example some people in the North and East see the larger 200 metre buffer zone compared to the 100 metre in the South and West as discriminatory and have not been given any scientific rationale to explain it. There is also a need for much more listening and discussion with the affected people by government and politicians-in the development of policy, in the selection of lands for housing and in the provision of boats and other equipment.
Reconstruction process requires appropriate decision making given to the local level-The District and Divisional Secretaries working with grama sewakas have become the front line in the reconstruction process. This must be given greater public recognition with enhanced administrative support to local level and maximum appropriate decision making powers at this level.
This is especially important over the issue of relocation of land and housing in the north and east as these are key to the ethnic conflict and ill-informed or rushed decisions could lead to long running conflicts. Provincial Councils and pradeshiya sabhas could be given a greater role. To balance these stronger local powers, there must be tough action taken against local officials who fail in their duties, for example a complaints procedure against ineffective or corrupt grama sewakas.
Monitoring of the progress of reconstruction and funds is vital.
Government policy is only as good as its implementation. The government took important steps to monitor the receipt of the Rs. 5000 allowance and when the results were disappointing took action to keep Banks open on all holidays.
This pro-active approach to monitoring and prompt action in response must be continued in other areas-the allocation of micro-credit, housing funds, new houses and lands and boats and nets. NGOs and the media working with the affected people also have an important role to play in monitoring the government and holding it accountable for its promises. Monitoring of funds is especially important. Long running recommendations to strengthen financial oversight by the Auditor General's Department and Parliament through the Committee on Public Accounts are important. Transparency also needs to improve funds handled at the local level. However transparency is not enough without accountability. If any corruption is unearthed over the tsunami funds, action should be taken including resignation by those holding public office.
Reconstruction process needs effective dispute resolution mechanisms. The reconstruction process is riddled with potential conflicts. Conflicts about who is eligible for what-about land, housing, food, boats and nets. Public officials are in positions of enormous power in allocating assets and funds.
Disputes have already appeared and will inevitably worsen as time passes and the larger grants, such as for housing, are implemented. There is a pressing need to introduce a whole host of effective dispute resolution mechanisms and appeal processes for such grievances to be aired and hopefully resolved. There are positive developments in the ongoing discussions to extend existing mediation boards to cover tsunami related disputes.
Need for care in evolving public and private sector relationships
The private sector has played a key role in TAFFREN and this is expected to continue in the planned reconstruction (such as housing). This is an interesting development, given the long running controversy over the role of the private sector in public policy. It will be important to later review whether there were any efficiency gains from private sector involvement.
The public sector remains responsible for standard setting. The public sector will require strong skills in contract negotiation, supervision and management. The private sector while it has many of these skills will need to guard against actual or perceived conflicts of interest. In conclusion, the public sector's rapid response during the relief phase was often impressive, but there is a need to move to a more bottom up, consultative approach to succeed during the more difficult reconstruction phase."
