Is providing relief just about giving?

Are we really helping people by giving or are we making matters worse?

The desire on or part to ‘give’ does not necessarily bring with it assistance and relief (whether short term or long term) to the affected population. Combine this with an uncoordinated Relief, Reconstruction and Rehabilitation (RRR) effort and the consequences may be far reaching not only for the affected population but also for the country.

1. Is the focus of RRR the relief effort or the affected population – There is a huge difference -

• It is very easy (if you have the funding) to go down to Galle with a hundred boats and boat engines and distribute them to fishermen. This applies to any aspect of RRR. – housing, schools, livelihoods.

Consequences -

* The fishing operation in most areas in the country is based on the ‘Mudalali’ concept. The Mudalali, most often has the necessary local infrastructure to purchase and store fish caught by the fishermen. It is possible that the Mudalali also has a lien over boats in the local area as he may have financed the purchase boats. Repayment of the financed sum is by way of a percentage of revenue generated by the sale of fish.

At the moment (the way boats, engines, nets, etc are being distributed), it is possible that every fisherman will become a Mudalali. The existing Mudalali system may even collapse.

This raises a very serious concern -

How long will the fishermen be able to sustain themselves in the absence of the Mualali system. A Mudalali system also requires storing facilities, distribution networks and contacts. There will also be periods where there is a reduction in revenue (ie. Fluctuating price of fish, off season). The Mudalali is able to survive through these period but the fishermen may not on their own.

It is possible that in the near future fishermen (with enhanced livelihoods) may not be able to sustain themselves. Unfortunately by this time it is possible that the Mudalali system which had hitherto sustained the fishing population may have also collapsed.

* Over fishing and the use of unregulated nets are also matters of concern.

* Inequitable distribution of boats, engines, nets, etc may also lead to conflict.

• You may apply the same principles to any other aspects of RRR – For example reconstruction of houses –

Relief Organisations may be constructing several housing projects on separate lands allocated by various government, provincial, district level, divisional secretariat level and Grama Seweka level (or their equivalent) authorities. It is also possible that each one of these projects are being developed independently of each other. They may not even share a common register. Therefore, it is possible that a family may end up with a house in each of these projects.

Directly connected to housing are land allocation and surveys, water supply and drainage, sanitation, transport, access to roads and road networks, education (be it state schools or national schools), electricity, health (hospitals) and the list goes on and on. Interested parties may say that they will ensure that local infrastructure is supplied. What about the laws that govern the authorities that undertake local infrastructure. Will the statute governing the Water board, provide for the setting up of a water supply and drainage system in a private housing project or for that matter a provincial housing project.

Will displaced persons be willing to live in a house in an area that does not have the required infrastructure. Displaced persons may be burdened with having to construct water system, sanitation, etc.

What about the social aspect. Will the more affluent be willing to live in a house that is similar to other houses.

• Connection between livelihoods and housing –

If you provide a house with related infrastructure to a family that does not have the income to maintain or sustain the costs of the related infrastructure. Will they have the resources to meet electricity bills, water bills, transport costs, etc.

2. Is the present RRR effort sustainable -

• Task Forces and Relief Organisations seem to be operating on the premise that Sri Lanka never had proper governance and central and devolved administration. Task Forces and Relief Organisations seem to be developing/preparing policies, reconstruction plans, environmental impact assessments, data bases, town planning, architectural designs, water supply and drainage systems, sanitation systems, etc and possibly implementing all of these independently of the relevant Government Authorities.

The country has a Central Environmental Authority, Physical Planning Department, Census Departments, National Housing Schemes, Electoral Registers, Water Supply and Drainage Boards, Irrigation Departments, Health Services, etc. that have the resources to undertake all the above and more (and may have already done so).

• Why spend time, money and effort duplicating the roles and functions of Government Authorities. Will the private sector task forces and relief Organisations be able to sustain the effort for the duration of the RRR phase. Is it not far easier to coordinate efforts directly through Government Authorities (is it not their job) with a system of checks and balances so as to ensure that the Government Authorities are functioning properly.

• More importantly, there are laws and regulations governing Government Authorities. Are the Task Forces and Relief Organisation taking into account these laws and regulations. For example, a Relief Organisation (desirous of building houses) intends to raise money for a housing scheme in Komari (Ampara) situated on land that is subject to UDA regulations is it not possible that the building plan and cost per unit may have to adjusted in order to comply with such regulations.

3. The 13th Amendment to the Constitution -

4. The impact on the rest of the country -

It is my view that RRR if not properly coordinated will have far reaching consequences for Sri Lanka as a whole. The reliance on donor funds to artificially enhance the economy may sound pretty cozy in the short term, but the consequences in the long term may be grave unless there is coordination and control.

Illustrations -

• Construction –

If you take into consideration the construction of and repairs (and the duplication thereof) to houses, water supply and drainage systems, temporary shelter, roads, schools, hospitals, orphanages, community centers, etc. in connection with the RRR effort is it not possible that the cost of raw materials and labour in Sri Lanka will increase.

It is possible that present construction estimates (based on present cost of raw materials) may fall short of the actual cost at the time of construction. A Relief Organisation/local politician that has undertaken to build 100 houses may find that, at the time of construction, it cannot do so due to increasing costs.

Correspondingly, the cost of construction in Sri Lanka as a whole may possibly increase. Will people be able to meet the increasing cost of construction. Architects that are submitting plan after plan for reconstruction should be concerned as an increase in raw materials may have a drastic impact on the construction industry.

• Exchange Controller – A directive has been issued by the Controller of Exchange that all donor funds should be converted to Rupees immediately.

This may result in one of two things –

* Donors keeping their funds overseas as opposed to foreign currency accounts in Sri Lanka

The benefit of having foreign currency strengthening our Rupees and the security of funds for Reconstruction and Rehabilitation may be jeopardy.

* Appreciating Rupees

The Rupee appreciated considerably during the first week of relief efforts. It has still to readjust to pre tsunami levels. The funds that have been remitted for relief may be negligible in comparison to funds that will be remitted for reconstruction and rehabilitation.

What will the consequences be for exporters, hoteliers and other foreign currency generators (ie. House maids). Will Sri Lanka lose its competitive edge if the Rupees appreciates in the short term.

Will local industries be able to compete with cheaper imported products in the short term.

Is it necessary to convert all foreign currency to Rupees at this stage. It may be prudent to permit donors to maintain dollar accounts which they may access and convert to rupees as and when they need. This will ensure that the conversion is phased out and that the Rupee will appreciate gradually. The economy will be given time to absorb the appreciation of the rupees over a period of time.

6. Suggestions -

Illustrations -

Housing –

Housing should be combined with development of essential and local infrastructure (water, sanitation, schools, hospitals, roads, transport, etc.

Present Situation -

At the moment due to uncoordinated efforts it is possible the various committees and task forces appointed to plan and implement development of essential and local infrastructure are already doing so independently of housing. The department of education and health may be planning to reconstruct schools and hospitals on land that may not be within a close proximity of housing in general. It is possible that the same may apply to other areas as well. Laws and regulations governing the development and installation of essential infrastructure may also be considered. E.g. Is the water board authorized to set up a supply and drainage system in a provincial housing scheme or a private housing scheme.

Solution -

Stage I -

One ministry/department/authority/corporation should be authorized to allocate land for the reconstruction program. No other ministry/department/authority/corporation should be entitled to allocate land for any reconstruction program. Preferably UDA.

However, in making this decision all parties may be consulted. If it is a joint decision, parties may not feel marginalized or isolated.

Stage II -

The UDA together with the Physical Planning Department, Central Environmental Authority, Road development Authority, Water Supply and Drainage Board, Health Ministry (sanitation), Transport Board, electricity Board, Survey Department and such other departments as may be necessary, will provide township plans for all affected areas. It will not be a standard plan, as the requirements, needs and regulations for housing may vary from area to area.

The town plan will take into account hospitals, schools, nurseries, community centers, businesses, fishing infrastructure, livelihoods (ie. Cannot relocate too far from the sea if fishermen are involved or too far from paddy field if paddy farmers are involved), etc.)

Fishermen - The large portion of the structures that have been damaged or destroyed were either wadiyas (used only during the fishing seasons) or illegal structures. Fishermen may have more permanent homes further inland. Therefore will it not suffice to build organised enclaves of wadiyas (without littering the coast) for those who had non-permanent structures. If houses are built for fishermen that only had temporary shelter there may be a possible conflict in the future with fishermen that did not receive houses for temporary/illegal structures.

Stage III -

Once the plan is complete and the land allocated and surveyed, the costs of the township may be ascertained.

In this connection information on the number of houses, schools, hospitals, etc. that have to be built will be required. This information may be obtained through the issuance of reconstruction cards to displaced families (based on a proper screening process.

Stage IV

Funding – Government Authorities, Task Forces, Private Sector, Relief Organisations, etc. may be requested to provide information to a central body on funding E.G. Water board may have funds for water supply and drainage for townships. If so it is not necessary for the other entities to utilize funds for the same water supply and drainage system.

Stage V

Informing all Relief Organization of the townships to be constructed. Details on each township may include the number of houses, schools, hospitals, community centers, etc and local infrastructure (ie. Roads, water supply and drainage, sanitation, electricity, etc that have to be constructed.

A center may be set up to man each township. The center will have updated date on Relief Organisation activity in the township.

Each township center will coordinate with the central body. The Central body may consist of representatives of Government, private Sector, relief Organisations and such other member as may be required 9within reasonable boundaries as to numbers) This will be the central coordinating body.

Contractors and architects and raw material suppliers may be assigned to each township by the central body. Only the contractors so assigned may undertake construction. Costs of raw materials, labour, may be controlled by a proper tender procedure. Relief Organizations may be entitled to supervise and observe construction if necessary and participate in the tender process.

Stage VII

Provisions should also be made for inadequate (how will this be bridged) and excess funding (where can it be directed) –

Conclusion –

There are, in my opinion, two basic principles in the RRR effort in Sri Lanka that many may accept (and may be applied to any aspect of relief at all levels).

  • Assisting the Affected Population (ie. Providing what is needed not what one has)
  • Equitable distribution

The only way these two principles may be achieved is through coordination and the only way coordination will be achieved is if every person involved (and possibly not involved) understands the consequences of an uncoordinated effort.

The solution is straightforward and simple driven purely on the intention to assist the affected population.

I will end this article with an illustration that most may be able to relate to.

Pre Tsunami -

Two families lived next door to each other in a particular area. The families were very close. Both fathers were fishermen. The children went to the same school. One house was within the prohibited zone the other outside. The lands on which the houses were constructed did not belong to either of them. Both families enjoyed the same income levels and amenities.

Following the tsunami one house was completely destroyed the other partly. The family living in the house partly damaged lost one member.

Post Tsunami –

The family that lost their house (within the prohibited zone) receives a new house (possibly of much better quality than the previous one) together with land, water supply (well or pipe) electricity, etc. They are relocated to a housing scheme which also has a school, hospital, community center, etc. The father will receive a fishing boat, nets, engines, etc.

The other family receives Rs. 250,000 plus access to a loan of Rs. 500,000 which they have no hope of repaying. Furthermore, due to the increase in construction costs (owing to the several housing schemes in the area) the family cannot complete all repairs to the existing structure. The children have to also travel to the relocated school situated within a close proximity to the housing complex (ie additional transport cost if its not within walking distance)

This will most likely lead to conflict. If you take this a step further and add a family that was not affected to this equation (lived outside the prohibited zone), you may be able to imagine the possible conflict between affected and the unaffected populations.

SDS – Relief Worker

Rebuild Sri Lanka Trust