Executive summary The United Nations Programme of Action to Prevent, Combat and Eradicate the Illicit Trade in Small Arms and Light Weapons in All Its Aspects (UNPoA), sets out a series of commitments to be implemented by all states to address Small Arms and Light Weapons (SALW) proliferation and misuse. As part of the UNPoA, governments agreed to establish National Commissions to co-ordinate the approach to small arms- related problems taken at the national level. In Sri Lanka, the National Commission Against the Proliferation of Illicit Small Arms (NCAPISA) was established for this purpose and remains the only such body in South Asia. In order for the National Commission to respond effectively to the safety and security concerns associated with SALW, a comprehensive national survey is to be undertaken in order facilitate a greater understanding of the problems and to suggest policy options to address them. In early 2006, NCAPISA decided to commission a pilot SALW survey in advance of the full national survey to test possible research methodologies. The venue for this pilot survey was identified as Hambantota District. Findings and recommendations of the pilot project are outlined in this confidential report. It also aims to provide lessons learned regarding the structure of the research process that will help to ensure that the full national survey, which will begin in November 2006, is as effective and useful as possible. This survey aims to assess the distribution of illicit weapons, examine the impact of SALW on safety, security, development and governance and outline the capacity of the state to control them more effectively. Information included in this survey was gathered using four methods: a desk review; six focus group discussions which were held to gain a detailed qualitative insight into the perceptions of local people in relation to small arms, security and development; a media analysis; and key informant interviews, to gauge the views of stakeholders. These methods were supported by the inspection of evidence and infrastructure relevant to the survey. Notable by its absence is the household questionnaire which, by preference, Saferworld would normally use to generate data when conducting research of this kind. The methodology would have included this component had it not been for tight time and resource constraints. The planned national survey should, however, include such a questionnaire. The following represents a summary of the key findings and recommendations from the pilot survey. It is intended as a positive and collaborative contribution to the work of the National Commission and relevant government agencies. Distribution and impacts of firearms in Hambantota District Situated along the Southern Coast of Sri Lanka, Hambantota District covers an area of 2,609 square kilometres and has a population of 525,370. Official statistics state that the District population is 97 percent Sinhalese, 2 percent Muslim and 1 percent Tamil.1 There is widespread illegal possession of home made guns (galkatas), muzzle- loading guns, and shot guns in the District. Additionally, there are small but growing numbers of ‘T-56s’ in criminal hands, apparently concentrated in the western end of 1 Statistics obtained from the District Secretariat in Hambantota dated 01 September 2005. the District, which contribute significantly to a high level of armed violence.2 Illicit hand grenades are also increasingly in circulation in the district, apparently from state stocks. The shift to galkatas which fire T-56 ammunition (7.62 x 39mm) possibly indicates that T-56 ammunition is more readily available. Refilled empty cartridges are also a source of ammunition for criminal misuse and therefore it is suggested that increased effectiveness in collecting and destroying used cartridge cases from all authorised gun users is important for the future. The primary sources for galkatas production are local blacksmiths, of whom there are a large number in the district. While a clampdown on blacksmiths is an important measure for controlling the numbers of home made guns in circulation, it is important to recognise that the presence of domestic production of firearms on a large scale amounts to an almost limitless supply. It may be more important to work on the root causes of the demand for weapons in the District. These include: poverty and lack of access to opportunity, disputes partly resulting from administrative malpractice, mistrust of police and dysfunction of the law and justice system, non-integration and criminal behaviour among army deserters and the perception of corruption among police and other agencies. The firearms homicide rate in Hambantota for 2005, at 4.95 per 100,000 of the population, is more than double the rate for the rest of the country (2.06) and is higher than in most countries where the rate has been measured. No evidence could be found of any significant level of firearms suicide in the District. The areas of the District worst affected by firearms misuse are: Suriyawewa, Beliatta, Walasmulla, Weeraketiya, Tissamaharama and Angunakolapelessa. Organised crime with links to politicians is perceived to be a catalyst for armed violence in the District. Armed activities of organised criminals include contract killings, inter-gang vendettas, cannabis cultivation/trading, armed robbery and personal protection of VIPs. The use of T-56s and sophisticated weaponry appears to be the hallmark of organised criminal activity in the district. Army deserters are highlighted as being a group involved in both the supply of high- powered weapons and the perpetration of serious crime in the district. The survey was unable to prove conclusively whether this assertion was true, however, it is still recommended that a concerted effort be made to reduce what criminality there is among army deserters through more effective preventative policing and reintegration initiatives. Reintegration programmes to help former military personnel return to civil society would empower former military personnel to choose to pursue legitimate livelihood opportunities. Improvements to the treatment and recognition of army personnel should also be considered, to encourage their retention. The misuse of firearms in the District also occurs in relation to slash and burn (chena) cultivation, cattle farming, illicit logging and firewood gathering, disputes over land, irrigation and other entitlements, and illicit alcohol production (and consumption). It appears that 18-35 year old males are the predominant victims and perpetrators of armed violence in the District, although this may in part be due to a lack of comprehensive data assessing the impact of SALW. For example, there is very little 2 The ‘T-56’, or Type 56, is a Chinese version of the Kalashnikov AK-47 assault rifle, however in Sri Lanka T-56 has also become a generic term for automatic, military style assault rifles. 5 information available on the extent to which weapons are used to threaten within a domestic environment – which is often a notable feature of SALW misuse in other parts of the world. The disparity between the involvement of men in small arms misuse, and that of women, suggests the need for a gendered response strategy. Women clearly offer a potential supporter base for any initiatives to change attitudes to firearms. The challenge of altering the pattern of firearms misuse among young males requires a focussed attempt to provide attractive non-violent alternatives to them at the structural level, as well as restricting their access to firearms. The key social issue facing people in Hambantota, and a key root cause for armed violence pointed out by many interviewees and focus group participants, was the lack of education, training and opportunities to earn a living. The long-term priority areas for overcoming the social causes of armed violence in the District were thus said to be: education, especially university places, training, job creation, enterprise support, and community development. However, criminals are perceived to benefit from unfair protection from powerful sponsors. If this is the case, the creation of opportunities for legitimate work will do little to outweigh the attractions of a criminal lifestyle. Consequently, there must be a more effective system for warning and penalising potential offenders, in addition to effective development work to provide alternatives to a criminal lifestyle. High-powered weapons appear to have entered circulation from the North and East of Sri Lanka. It is unclear what proportion originated from LTTE or GoSL stockpiles, but there is evidence that both are a source for some illicit weapons. Loopholes in the system of checking service personnel travelling to the South from operational areas need to be identified and closed. This would aid in the reduction of supplies of high- powered weapons to Districts such as Hambantota. Moreover, a substantial number of illicit armaments are known to have entered public circulation in Hambantota District, as a result of two JVP uprisings. State capacity to control SALW Policing The survey identified pro-active work by specific police stations to foster community relations and reduce violence using preventative methods. Such efforts are urgently needed in areas where mistrust of police and levels of violence remain high. Increased wages and allowances for officers would also diminish the temptation to take bribes. Police also noted the need for awareness raising to encourage public co- operation with police,