Saturday, January 16, 2010
Sri Lanka: A Bitter Peace
Asia Briefing N°99
International Crisis Group
since the decisive military victory over the Liberation Tigers of Tamil Eelam (LTTE), Sri Lanka has made little progress in reconstructing its battered democratic institutions or establishing conditions for a stable peace. Eight months later, the post-war policies of President Mahinda Rajapaksa have deepened rather than resolved the grievances that generated and sustained LTTE militancy. While the LTTE’s defeat and the end of its control over Tamil political life are historic and welcome changes, the victory over Tamil militancy will remain fragile unless Sinhalese-dominated political parties make strong moves towards a more inclusive and democratic state. The emergence of retired General Sarath Fonseka to challenge Rajapaksa in the 26 January presidential election has opened new space to challenge repressive government policies. But neither has offered credible proposals for political reforms that would address the marginalisation of Tamils and other minorities. Whoever wins, donor governments and international institutions should use their development assistance to support reforms designed to protect the democratic rights of all of Sri Lanka’s citizens and ethnic communities.
The government’s internment of more than a quarter million Tamils displaced from the Northern Province – some for more than six months – was further humiliation for a population brutalised by months of ferocious fighting. The return by the end of 2009 of most of the displaced to their home districts, and the increased freedom of movement for the nearly 100,000 still in military-run camps, are important steps forward. However, the resettlement process has failed to meet international standards for safe and dignified returns. There has been little or no consultation with the displaced and no independent monitoring; many returns have been to areas not cleared of mines and unexploded ordnance; inadequate financial resources have been provided for those returning home; and the military continues to control people’s movements. These and other concerns also apply to the estimated 80,000 Muslims forcibly expelled from the north by the LTTE in 1990, some of whom have begun to return to their homes.
The UN and donor governments should insist more strongly that all resettlement is done according to established guiding principles. Donors should end assistance to any camps where full freedom of movement is not allowed and condition additional aid on an effective monitoring role for UN agencies and NGO partners. India, Japan, Western donors, the World Bank and the Asian Development Bank should tie additional development assistance to an inclusive and consultative planning process for the reconstruction of the north. Access by the International Committee of the Red Cross (ICRC) to the more than 12,000 Tamils held in irregular detention centres on suspicion of ties to the LTTE is also essential.
The government’s approach to the development and reconstruction of the north and east is contributing to minority fears and alienation. Government plans remain unclear, with local communities and political leaders not consulted and even donors not informed of overall reconstruction plans. Strong military influence over policies, tight military control over the population and restrictions on local and international NGOs increase the risk of land conflicts, with the strong possibility of demographic changes that would dilute the Tamil character of the north. No real space has been given to Tamil and Muslim political or community leaders in the north and very little in the east.
The Rajapaksa government has initiated no political reforms to address Tamil and other minorities’ concerns. The government-sponsored All Party Representative Committee (APRC) designed to craft constitutional reforms has in effect ended with no sign of an alternative process. Tamil and Muslim parties remain weak and divided, although recent encouraging initiatives to develop a common platform and build trust among Tamil-speaking parties deserve support. Inside and outside Sri Lanka, many Tamils remain angry at the lack of accounting or justice for the thousands of civilians killed in the final months of the war. Most of the million-strong diaspora is still committed to a separate state and many would be willing to support renewed violence.
The brutal nature of the conflict, especially in its closing months, has undermined Sri Lanka’s democratic institutions and governance. All ethnic communities are suffering from the collapse of the rule of law. Disappearances and political killings associated with the government’s counter-insurgency campaign have been greatly reduced since the end of the war. Impunity for abuses by state officials continues, however, and fear and self-censorship among civil society activists and political dissidents remain widespread. Rajapaksa’s government continues to maintain and use the Prevention of Terrorism Act and Emergency Regulations to weaken its political opposition.
The campaign of retired General Sarath Fonseka has put the Rajapaksas on the defensive and united a long-dormant opposition. Alleging corruption and other abuses of power by the Rajapaksa family, Fonseka and the parties supporting him promise major reforms, including the end of emergency rule and the abolition of the Executive Presidency itself. However, Fonseka’s candidacy suffers from contradictions and poses grave risks. Promises made to Tamil parties to restore civilian control over land policies and the resettlement process in the north threaten to put Fonseka at odds with his allies in the military and run directly counter to Fonseka’s consistently Sinhala nationalist policies over the course of his career. The numerous allegations that General Fonseka was involved in attacks on journalists and other human rights violations undermine his calls for reforms and an end to impunity. It remains an open question whether the ideologically diverse set of parties that have endorsed Fonseka will be able to work together or influence his policies should he win.
International actors need to press for accountability for abuses by both sides during the war as well as challenge the government’s post-war policies. Numerous states with insurgencies have begun to look at Sri Lanka as a model. India and Western governments may yet come to regret giving Sri Lanka the green light – and even assisting it – to fight a “war on terror” prior to the government agreeing to political reforms or showing any commitment to the rule of law, constitutional norms or respect for human rights. The precedent can and should be challenged. Donors should condition further development assistance on governance reforms designed to curb impunity and make government accountable to citizens of all communities. This could eventually help open the space for Tamil and Muslim political leaders to organise effectively now that the LTTE is no longer there to control their agenda.