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Rebuilding housing post-Ditwah: Lessons from Sri Lanka’s Tsunami experience

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Dr Nisha Arunatilake

The Ditwah Cyclone ranks second only to the December 2004 Tsunami in terms of damage to housing in Sri Lanka’s recent history. According to the government’s Disaster Management Centre, as of 9th December 2025, 86,488 houses were partially or fully damaged due to Ditwah. This is only slightly fewer than the nearly 100,000 houses affected by the 2004 Tsunami. The government has announced a redevelopment programme to assist affected families in rebuilding their homes in safer locations. It has many similarities to the 2005 post-Tsunami housing programme and holds important insights as outlined in the Post-Disaster Housing: Lessons Learnt from the 2004 Tsunami of Sri Lanka, to inform the Ditwah Cyclone housing initiative.

The Tsunami housing study was based on two surveys by the Institute of Policy Studies of Sri Lanka (IPS) covering 600 affected families across six districts in the Southern and Eastern Provinces to evaluate the efficiency and effectiveness of the post-Tsunami housing programme. The first was done in April 2005 and the same households were re-surveyed after 18 months to assess progress.

The Post-Tsunami Housing Programme

A key feature of the 2005 post-Tsunami housing programme was the no-build buffer zone in the beachfront of affected areas, as it was deemed unsafe to build within this zone. Given this demarcation of the no-build zone, the post-Tsunami housing programme took a two-pronged approach. Families living outside the zone received cash grants to rebuild their homes (owner-driven rebuilding), while those residing inside the zone were provided with houses in alternative areas closer to their original residences (donor-driven relocation).

Owner-driven rebuilding: All affected individuals living outside the no-build buffer zone could receive a government grant to rebuild their homes. The grant, given in stages based on the extent of damage, required households to prove ownership. They could choose to rebuild their old home or construct a new one on land they owned. Families that effectively used their grant could also qualify for a LKR 500,000 concessionary loan to meet additional housing needs.

The selection of beneficiaries and the assessment of grant amounts followed a three-stage process. The Divisional Secretariat (DS) established a Damage Assessment Team (DAT) in each Grama Niladhari Division (GND) to support this process. The DAT included representatives from the relevant GND, donor agencies active in the area, members of the village rehabilitation committee (VRC), and technical officers from the DS. VRCs were created explicitly in each GND to incorporate community input during reconstruction. In the first stage, DAT compiled a list of households eligible for housing assistance. During the second stage, the GND and DS published preliminary lists of eligible families. Any disputes about eligibility were recorded and resolved at VRC meetings. Conflicts that could not be settled locally were escalated to a designated grievance committee at a higher level. After finalising the list, beneficiaries received certificates to confirm their eligibility.

Donor-driven relocation: All those living within the no-build buffer zone were promised a house built with the assistance of donors on land designated by the government. The households were not required to prove land ownership. The new homes needed to have at least 500 sq ft of space and access to electricity, running water, sanitation, and drainage facilities according to guidelines set by the Urban Development Authority (UDA).

The main challenge of this scheme was to find suitable land for relocation. The District Secretary and the UDA were responsible for identifying land for the move.

Post-Ditwah Housing Programme

The post-Ditwah housing programme too employs a two-pronged approach. Families living in unsafe locations are to be provided with either land or LKR 5 million to purchase new land, along with another LKR 5 million to construct a new house. In contrast, houses damaged by Ditwah are to be allocated up to LKR 2.5 million for rebuilding, depending on the extent of the damage.

Lessons for Ditwah from the Tsunami Housing Programme

Identifying beneficiaries

One main issue in the post-Tsunami housing programme was defining a ‘household’. A ‘household’ was understood as all individuals living together before the Tsunami. Clarifying this early on was important because, in some cases, extended families consisting of several nuclear families shared the same dwelling. The three-stage beneficiary identification process described earlier helped select beneficiaries transparently, with the involvement of a representative group of stakeholders.

Initially, during the post-Tsunami reconstruction phase, donors lacked an effective system for selecting beneficiaries. As many distributed donations by directly visiting affected places, those near main roads received most of the donations, while less visible groups received less. The eligibility lists were a valuable means of providing information on the needs of the affected.

The post-Ditwah housing programme could also benefit from clarity regarding who is eligible for different types of housing assistance.

Identifying house ownership

The lack of documents to prove ownership and identity was one of the main factors delaying the progress of the housing programme. According to the IPS Survey, 23% of those surveyed reported losing their deeds, and 41% reported losing their national identity cards during the Tsunami. Furthermore, the requirement to show land ownership made several households ineligible for a new house because some of the damaged homes were built on land that had been encroached upon.

The post-Ditwah reconstruction can avoid delays by establishing mechanisms to replace lost documents and, where that is not possible, other means of proving ownership, which is essential for accelerating beneficiary identification.

Process oversight and governance

The government formed the Task Force for Rebuilding the Nation (TAFREN) to ensure proper procedures in beneficiary identification and fund distribution in accordance with accounting standards. According to the IPS’ 2008 follow-up survey, the no-build buffer zone, difficulties in finding suitable land for family relocation, and issues with donor coordination were the primary reasons for delays in providing houses for the affected. The buffer zone was later relaxed to speed up reconstruction. In March 2006, the Reconstruction and Development Agency (RADA) was established to improve coordination between DSs and donors.

Effective donor coordination was essential to ensure that all beneficiaries received support without overlap, thereby optimising donation utilisation. During the post-Tsunami reconstruction phase, some donors’ reluctance to register with the DS led to ineligible people receiving houses, while eligible people did not. To resolve this, all donors – whether national, international, multinational, or private – supporting the reconstruction phase had to register with the DS. This enabled the government to match donors with affected individuals using eligibility lists. Even donors outside the official reconstruction programme were encouraged to register with the DS to avoid duplicate assistance.

Taking measures to register potential donors and map donor assistance to eligible lists helps to highlight gaps in the reconstruction programme. Such information helps attract new donors and ensures that all eligible persons receive assistance.

It is vital for the Ditwah-housing programme also to ensure that an identified agency is given authority to ensure proper governance and coordination.

Skills, materials for rebuilding

The lack of skills, materials, and labour for building their own houses was a primary obstacle to the progress of the owner-driven housing programme. The IPS 2005 survey revealed that 62% of the affected households were unable to manage the rebuilding of their own houses. The reconstruction boom following the Tsunami increased the input prices, making the initial allocation of funds insufficient. Further, identifying land for relocation was a central issue during the post-Tsunami relocation period.

Ensuring the availability of necessary inputs and skills is essential for speeding up reconstruction in the post-Ditwah reconstruction phase. Early identification of suitable land for relocating families and ensuring that allocated plots are ideal for beneficiaries’ lifestyles are essential to expedite reconstruction and ensure beneficiary welfare.

The measures announced by the government to provide grants to Ditwah Cyclone affected households to move to safe locations and rebuild their houses are commendable. Expediting the reconstruction process by minimising bottlenecks and clarifying beneficiary eligibility is essential to speed up reconstruction, as described above, thereby improving the welfare of those affected.

By Dr Nisha Arunatilake, Director of Research, Institute of Policy Studies of Sri Lanka (IPS)



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Arvind Subramanian: Why hasn’t Sri Lanka’s democracy acted as a hedge against economic chaos?

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Dr. Arvind Subramanian

In a sobering and intellectually provocative lecture delivered yesterday at the Central Bank of Sri Lanka, Dr. Arvind Subramanian, former Chief Economic Advisor to the Government of India, posed a “haunting” question to the nation’s policymakers: Why has one of the world’s oldest democracies outside the West failed to leverage its political system to ensure economic stability?

Titled ‘Reviving Growth While Maintaining Stability,’ the lecture moved beyond technical prescriptions. Dr. Subramanian, now a Senior Fellow at the Peterson Institute for International Economics, admitted that his experience with the complexities of the Indian economy had made him “humble and somber,” leading him to focus on the broader socio-political structures that dictate a nation’s fate.

Dr. Subramanian argued that in India, democracy acted as a vital pressure valve that prevented both extreme political violence and economic chaos. He noted that while the process of nation-building is historically violent – citing the West’s decimation of populations and China’s estimated 40–75 million deaths between 1950 and 1976 – India managed to maintain a relatively low degree of mass violence.

“Democracy had a key role to play in that,” he asserted. “It is one of India’s major achievements.”

The speaker extended this logic to the economic sphere, suggesting that Indian democracy created a “societal demand” for low inflation.

In India, he noted, there is a pervasive political belief that if inflation crosses the 5 percent threshold, the government is likely to lose the next election. This political accountability forced the Central Bank and the State to maintain macro-stability.

The crux of Dr. Subramanian’s address was the “intellectual puzzle” of why Sri Lanka, which received universal franchise well before India, did not experience the same stabilising effects of democracy.

He presented two charts that he described as “haunting.” The first revealed that Sri Lanka has spent 60 percent of its time under IMF programmes, indicating a state of “perennial macro-economic stress.” In contrast, India has not sought an IMF programme in the 35 years following its 1991 reforms.

“Why does Indian society demand low inflation and macro-stability, while the same doesn’t happen in Sri Lanka?” he asked. Despite its long democratic tradition, Sri Lanka has consistently seen higher inflation and greater financial instability than its neighbour.

Dr. Subramanian also highlighted a stark difference in how both nations treat foreign capital. Pointing to data on external debt stock as a share of Gross National Income (GNI), he illustrated that Sri Lanka has been consistently and significantly more reliant on foreign capital than India or China.

While some argue that Sri Lanka’s small size necessitates a reliance on foreign capital, Dr. Subramanian remained unconvinced, noting that India also suffered from low domestic savings for decades but chose a more cautious path.

“India has been much more cautious in opening up to foreign capital,” he explained. While foreign capital can drive growth, it brings the “downside of risk and volatility” as capital flows in and out – a reality that came to haunt Sri Lanka in recent years through its high exposure to foreign currency-denominated debt.

The lecture concluded not with a list of “1, 2, 3 points” for recovery as the wider audience had expected, but with a challenge to the Sri Lankan intelligentsia. If democracy is meant to be a safeguard against political and economic disorder, the breakdown of that mechanism in Sri Lanka requires deep introspection.

“Different societies differ,” Dr. Subramanian concluded. “But if democracy had a key role in avoiding volatility in India, why shouldn’t it have been so in such an old democracy as Sri Lanka? It is worth pondering over,” he said.

By Sanath Nanayakkare

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HSBC kicks off ‘Clean Waterways’

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HSBC will launch ‘Clean Waterways’ in partnership with the Beira Lake Restoration Task Force that was convened by the Governor of the Western Province to restore Beira Lake. HSBC in partnership with Clean Ocean Force will build and operate two solar powered, zero emission, waterway cleaning boats, which are the first of their kind in Sri Lanka. They will be used extensively in support of restoring the Beira Lake ecosystem and its surrounding environment.

Once a picturesque centerpiece in Colombo, Biera Lake is now suffering from significant pollution. Urbanization and lack of effective waste management practices have led to large volumes of plastic and floating organic debris, untreated sewage and industrial effluents contaminating the water. Resultant algal blooms, unchecked hyacinth growth and water stagnation further give the lake a detrimental odour and appearance. The pollution has degraded water quality, harmed aquatic life posing health risks to residents living in proximity by attracting disease-carrying fauna.

The Biera Lake Restoration Task Force was convened by the Governor of the Western Province with the purpose of delivering cleaner waterways in the urban environment. It is vital to educate and support change for communities that reside near the Beira Lake. To achieve this, a dedicated community outreach programme will reach over 5000 wider residents through awareness building and education which is anticipated to reduce ‘waste at source’.

Mark Surgenor, Chief Executive Officer, HSBC Sri Lanka stated “With over 130 years presence in Sri Lanka, HSBC understands the importance of Beira Lake to Colombo’s urban environment. Supporting cleaner waterways is a vital step towards restoration of that environment. Through this first ever public-private partnership, multiple stakeholders are coming together to work towards restoring this iconic lake. We have committed to support the Beira Lake Restoration Task force, not just with the much-needed funding, but also bringing best practices through our experience with similar projects in other markets that we operate in. The community outreach programme planned alongside the project is a critical step towards making this impact sustainable. HSBC has always been at the forefront of innovation in Sri Lanka and we look forward to continuing that for our next 130 years here”

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CORALL Conservation Trust Fund – a historic first for SL

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From left to right – Nigel Bartholomeusz (Director – EFL), Chanaka Wickramasuriya (Trustee), Palitha Gamage (Trustee), Dr Shamen Vidanage (Country Representative – IUCN), Ms. Deshini Abeyewardena (Chairperson – EFL), Nishad Wijetunga (Trustee), Dr. (Ms.) Nishanthi Perera (Trustee), Prof. (Ms.) Sevvandi Jayakody (Trustee), and Nalin Karunatileka (Trustee)

Sri Lanka has moved to strengthen the financial backbone of its marine conservation efforts with the establishment of the country’s first CORALL Conservation Trust Fund, a landmark initiative that positions coral reef protection firmly within the framework of sustainable finance and long-term economic value creation.

The Trust Deed establishing the CORALL (Conservation of Reefs for All Lives and Livelihoods) Conservation Trust Fund was signed on December 31, 2025, by Environment Foundation (Guarantee) Limited (EFL) as Settlor together with the inaugural Board of Trustees. The Fund is designed to support the conservation of Pigeon Island National Park, Bar Reef Marine Sanctuary and Kayankerni Marine Sanctuary, along with their associated seascapes—areas that are central not only to marine biodiversity but also to fisheries, tourism and coastal protection.

From a business and policy perspective, the Trust Fund represents a decisive shift away from short-term, donor-driven conservation projects towards a structured and enduring financing mechanism. It is a key component of the Sri Lanka Coral Reef Initiative (SLCRI), a six-year national programme funded by the Global Fund for Coral Reefs and implemented by the International Union for Conservation of Nature (IUCN), but critically, the Trust itself is structured to continue well beyond the project’s lifespan, offering a permanent vehicle for mobilising state, private sector and international sustainability-linked funding.

Coral reefs within the three targeted seascapes have been increasingly degraded by destructive fishing methods such as blast fishing, overfishing, coastal pollution, unregulated tourism and unplanned coastal development. These pressures carry significant economic consequences, undermining fish stocks, tourism revenues and the natural coastal protection that reefs provide. Project partners note that a major driver of this degradation is the limited understanding among communities and institutions of the true economic value of coral reefs as natural capital that underpins livelihoods and resilience.

EFL, as an implementing partner to IUCN, played a central role in shaping the Trust’s institutional and financial architecture. It carried out a comprehensive legal, policy and institutional review, provided recommendations on the structure of Conservation Trust Funds, and drafted both the Trust Deed and an operational manual embedding governance, accountability and transparency safeguards. These features are seen as critical in building investor and donor confidence, particularly at a time when environmental, social and governance (ESG) considerations are increasingly influencing capital flows.

The Board of Trustees, selected by IUCN and the SLCRI National Steering Committee following a public call for applications, brings together expertise from investment banking, commercial banking and marine science. The Trustees—Palitha Gamage, Prof. (Ms.) Sevvandi Jayakody, Nalin Karunatileka, Dr. (Ms.) Nishanthi Perera, Chanaka Wickramasuriya and Nishad Wijetunga—will oversee grant funding for conservation and restoration proposals submitted by Special Management Area Coordinating Committees, while also ensuring robust monitoring and evaluation to safeguard long-term financial and ecological sustainability.

“This marks a significant step in sustainable financing to conserve coral reef ecosystems which are critical for marine biodiversity conservation, coastal protection, climate resilience, and the livelihoods of coastal communities, said Dr. Shamen Widanage, Country Representative of IUCN Sri Lanka, highlighting the wider economic and social returns expected from the initiative.

EFL chairperson Deshini Abeyewardena said the Trust Fund reflects a broader shift towards innovative financing models for environmental protection.

“EFL is honoured to have been selected by IUCN to implement this landmark initiative. The establishment of the CORALL Conservation Trust Fund reflects EFL’s long-standing commitment to advancing environmental justice through strong governance, legal safeguards and innovative financing mechanisms. As Sri Lanka faces increasing pressures on its marine ecosystems, this Trust provides a credible and transparent platform to secure sustained investment for coral reef conservation, she said.

By Ifham Nizam

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