Land in the Northern Province Post-War Politics, Policy and Practices
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LAND IN THE NORTHERN PROVINCE POST-WAR POLITICS, POLICY AND PRACTICES BHAVANI FONSEKA AND MIRAK RAHEEM CENTRE FOR POLICY ALTERNATIVES DECEMBER 2011 Land in the Northern Province: Post-War Politics, Policy and Practices Land in the Northern Province: Post-War Politics, Policy and Practices | Page 1 Acknowledgements The principal authors of the report are Bhavani Fonseka and Mirak Raheem. The report is based on field work conducted by the authors and the field researchers who include Shamila Luckshithan, Loshana Sivakumaran, Priya Thangarajah, Suhood Fasleem, M. Rahman, M. Thiruvarangan, among others. The authors would like to acknowledge Aruni Jayakody, Chandula Kumukage, Thilini Peiris and Thenmozhy Kugamourthy for assisting in the desk research; Sujith Kumara for preparing the maps; Nigel Nugawela for assisting with editing the report and Sanjana Hattotuwa for formatting the report. The authors would also like to thank Dr P. Saravanamuttu for commenting on the research and the draft report. The research and report could not have been possible if not for the assistance and support provided by the numerous individuals and organisations in the North, Colombo and elsewhere. CPA is deeply indebted to the individuals who provided information and assistance to verify individual cases in extremely difficult circumstances. Names of these individuals have been withheld due to security reasons, as requested by them. ISBN 978 - 955 - 1655 - 83 - 9 The Centre for Policy Alternatives (CPA) is an independent, non-partisan organisation that focuses primarily on issues of governance and conflict resolution. Formed in 1996 in the firm belief that the vital contribution of civil society to the public policy debate is in need of strengthening, CPA is committed to programmes of research and advocacy through which public policy is critiqued, alternatives identified and disseminated. Address: 24/2 28th Lane, off Flower Road Colombo 7 Telephone: +94 (11) 2565304/5/6 Fax: +94 (11) 4714460 Web www.cpalanka.org Email [email protected] Land in the Northern Province: Post-War Politics, Policy and Practices | Page 2 Land in the Northern Province: Post-War Politics, Policy and Practices | Page 3 Land in the Northern Province: Post-War Politics, Policy and Practices | Page 4 Table of Contents Executive Summary ................................................................................................................11 The Challenges on the Ground ..........................................................................................11 On-going Policy Reform Initiatives .....................................................................................12 Key Trends related to Governance and Land .....................................................................13 Conclusion ........................................................................................................................17 Introduction ............................................................................................................................18 Post-War Land Issues .......................................................................................................18 Scope of Report and Methodology ...................................................................................19 Chapter 1 ...............................................................................................................................21 Governance Issues related to Land ...............................................................................................21 Constitutional and Legislative Framework ...............................................................................22 Constitutional Powers over Land and Devolution ...............................................................22 Legal Framework over Land ..............................................................................................26 Actors ...............................................................................................................................27 Military ..............................................................................................................................31 Non-State Actors ..............................................................................................................34 District and Local Actors ...................................................................................................35 Need for Reform ...............................................................................................................37 Recommendations ...........................................................................................................38 Chapter 2 ...............................................................................................................................39 Challenges in Proving Ownership and Control ...................................................................40 Policy Reform and Implications .........................................................................................44 Importance of Ownership and Control over Land ..............................................................44 Land in the Northern Province: Post-War Politics, Policy and Practices | Page 5 Chapter 3 ...............................................................................................................................46 Land Circular (Circular No: 2011/04) .................................................................................48 Key Guiding Principles ......................................................................................................50 Key Concerns ...................................................................................................................53 Additional Gaps ................................................................................................................58 Other Key Circular and Government Documentation .........................................................59 Problems in Implementation ..............................................................................................60 Recommendations ...........................................................................................................61 Chapter 4 ...............................................................................................................................63 Challenges to Ending Displacement ..................................................................................64 ______________________________________________________________________ ...........74 Challenges to Return and the Rehabilitation of Communities ............................................75 Recommendations ...........................................................................................................80 Chapter 5 ...............................................................................................................................82 Extent of Damage and Levels of Assistance ......................................................................83 Macro Housing Requirements ..........................................................................................85 Proving Ownership for Housing Projects ...........................................................................87 Housing Projects, Humanitarian Standards and Conflict Sensitivity ...................................90 Models of and Challenges to Construction ........................................................................92 Indian Housing Project (IHP) ..............................................................................................93 Conclusion ........................................................................................................................97 Recommendations ...........................................................................................................97 Chapter 6 ...............................................................................................................................99 Extent of Landlessness ...................................................................................................100 Schemes Introduced to Address the Realities of Landlessness .......................................102 Ways Forward .................................................................................................................105 Land in the Northern Province: Post-War Politics, Policy and Practices | Page 6 Recommendations .........................................................................................................106 Chapter 7 .............................................................................................................................107 Women as Heads of Households and Issues related to Land ..........................................108 Key Challenges to Women Accessing and Claiming Land ...............................................111 Policy and Legal Reform in Relation to Women and Land ................................................112 Conclusion ......................................................................................................................114 Recommendations .........................................................................................................114 Chapter 8 .............................................................................................................................115 Major Development Programmes ....................................................................................116