You are currently browsing the tag archive for the ‘devolution’ tag.

I was away during the visit of the Indian Prime Minister and, with internet limited in Turkmenistan, could not follow what happened nor what was said. But enough came through to remind me of what happened 30 years ago, at the time of the Indo-Lankan Accord.

The recently founded Liberal Party found itself in a unique position on that occasion, since we welcomed the Accord but regretted three elements in it. One was the proposed merger of the Northern and Eastern Provinces, which we predicted would prove divisive. That regret is not my subject here, but it may be worth noting that, in addition to the practical problems we saw, we bewailed the fact that the whole concept of devolution was being perverted.

We had long promoted devolution on the grounds that government should be closer to the people. That is why we would have preferred District Councils, and why even recently we extolled the virtues of Divisional Secretariats for practical support to the people, given that Provincial Councils cannot now be abolished. In passing, I should note that the failure of the President to push through the commitment in his manifesto about Divisional Secretariats is another example of the sidelining of the structural changes this country so badly needs.

In 1987, President Jayewardene squandered the opportunity to streamline administration and, by proposing a merger, promoted the idea that devolution was about ethnic enclaves. That was a sure recipe for further dissension. Indeed what happened in the world afterwards has proved that. In the early eighties one could think of Federalism as a mechanism to bind different parts of a country closer together while allowing independent initiatives based on local needs (as with for instance the United States or Germany), But now it is seen as a precursor to separation, as has happened in the former Soviet Union or Yugoslavia – and which is why India needs to be careful, not least with regard to one of the largest of its component states to still remain undivided.

But all that is another story. More relevant here is another of our caveats about the 1987 Accord, namely the elements in the Annexures which placed Sri Lanka firmly under Indian suzerainty. We had previously argued that the adventurism of the Jayewardene government with regard to India was potentially disastrous, and the manner in which India responded – which included strong condemnation using Argentina at the then equivalent in Geneva of the Human Rights Council – ensured our subjugation.

The Liberal Party had no quarrel at all with the actual restraints put upon Sri Lanka, for Jayewardene’s games with Trincomalee (including leasing the oil tanks to a Singapore based company, having cancelled the tender which an Indian company had won on good grounds), and the setting up of a Voice of America station at Iranawila, were unnecessary provocations. Given the then unremitting hostility of America to India, seen as a Soviet ally – and hence fair game for the terrorists being trained in Pakistan to attack not just the Soviets in Afghanistan – our getting involved in this latest version of the Great Game was idiotic. Read the rest of this entry »

Political Principles - majoritanismFinally, in this Chapter on Democracy and Representation, I look at how countries can avoid the impression that their governments look after only particular sections of society. Making it clear that government is inclusive, and bears equal responsibility for all groups in a country is an important part of ensuring the unity and thus the sovereignty of any country.


Avoiding Majoritarianism

The idea that the winner takes all after an election has caused serious problems in many democracies. It reduces the need for constant consultation that will contribute to continuity of policy. In pluralistic societies, in particular, it leads to neglect of the needs and aspirations of minorities. Minorities need not just be racial and religious minorities. Particular regions and social groups, even though they are a part of the racial or religious majority in a country, can be neglected by a government based on a parliamentary majority that springs from a limited proportion of the vote.

Constitutional safeguards, in the form of entrenched provisions, can ensure to a certain extent that discrimination is limited. However, in order to satisfy the needs of all these groups, constitutional safeguards alone will not suffice. Increasingly therefore, states have begun to realise that regional structures of governance are necessary, if the needs of particular segments of society are to be addressed. A central government cannot be expected to appreciate and respond actively to the special needs of smaller units with the same devotion that a government concentrating on that unit alone can supply.

The argument that devolving power to smaller units will cause problems cannot be sustained if the process of devolution is systematic and coherent. Certainly, there are issues that are best handled centrally, and will have to remain the prerogative of the central government. But assuming that all issues are best handled centrally is a fallacy. Also, the argument that devolution of power can lead to separation is no more valid than the argument that failure to devolve also leads to separation. Historically, the latter has caused separatist movements more often than the former.

The argument that devolution suits only large countries is also incorrect, since rational devolution supposes that authority is devolved in accordance with convenience rather than abstract principles. Larger units may require more powers, but smaller units can also exercise some powers in a manner that will benefit their people. One of the most successful examples of a country that has remained unified despite marked differences among its people is Switzerland. It is a relatively small country which allocates considerable power to the several cantons that constitute it. Read the rest of this entry »

political principlesIn Political Principles and their Practice, which Cambridge University Press in India published some years back, the 3rd chapter (after chapters on the State and the Powers and Functions of Government) was about the Law. However I thought that I would leave that till later, and move on to Chapter 4 because of current concerns about changing the electoral system. This chapter explores systems of representation, but before we look into that, it makes sense to consider what me mean by Democracy, and how it has developed over the years.

The origins of democracy

The word ‘democracy’ comes from two Greek words, ‘demos’ and ‘kratos’, which mean ‘people’ and ‘power’. Thus, by democracy is meant a political system in which power belongs to the people. This is now generally accepted as the best system of government, inasmuch as it is the people who constitute the state, and therefore the government of a state should be in the hands of its people. However, numerous disagreements arise when we try to work out the best mechanisms through which people can exercise their power of government.

Clearly, all the people cannot rule together. Therefore, in a democracy, at any given period some of the people have to rule on behalf of the rest. But choosing some people as representatives of all the others has its problems.

Athens was the first state to have adopted the democratic system of government. They found that when there were elections the wealthy were chosen as leaders. They, therefore, instituted a system in which the representatives were chosen each year by drawing a lot from among all the citizens. This, they felt, led to a more truly representative government rather than the system of elections which gave advantages to the more influential members of society.

Athens functioned effectively for several years in the fifth century BC under this system. But a terrible defeat in 404, in the thirty-year war against the Spartans, led to the downfall of its political system. Some of its citizens felt that the defeat was due to their existing system of government. Since then this system of participatory democracy has never been put forward as a model.

In any case it would be difficult to put the system into practice in larger societies with vast differences among people. Athens was, after all, only a small city-state with a relatively educated population which prided itself on the capabilities of all its citizens. It also excluded women, slaves and foreigners dwelling in the city, from involvement in the democracy. So, the number of those from whom the choices were made was limited. Still, the experiment was interesting, and has since provided a mode of sorts for all democratic societies which aim to maximise participation of people in government.

The next important experiment in democracy was conducted by the Romans. It was a significant stage in the development of democracy, since final authority lay with the representatives elected by the people. Though systems of administration in other parts of the world at the time have been described as democratic, inasmuch as there were councils of elders in villagers or regular consultation of bodies of citizens, these were not institutionalised as ultimate authorities. Power, in the end, lay with kings, and it was from them that others—governors, advisers or elders—derived their authority. In Athens, however, as later in Rome, for nearly five hundred years from the fifth century BC onwards, power actually belonged to the people and to the representatives they chose. Read the rest of this entry »

qrcode.26820116So too it was individuals associated with Gotabhaya who made the Indian government feel it had been betrayed, which contributed to India supporting the American resolution against Sri Lanka at the Human Rights Council in Geneva in March 2012. After a meeting with the President, the Indians issued a statement to the effect that a commitment had been made to proceed with devolution in terms of the 13th Amendment, but a Presidential spokesman denied this. There was no effort by the Foreign Ministry to reassure the Indians, and a letter sent by the Indian Prime Minister seeking clarification went unanswered – or, rather, the Minister of External Affairs, having sent an answer, then withdrew it, with a lack of professionalism that would have been startling had this not by then become endemic in that Ministry (which, as a shrewd observer put it, was territory occupied by the Ministry of Defence, which in turn was territory occupied by the Israelis).

Gotabhaya’s fatal misunderstanding of the way the world functions became apparent when, in 2009, he was instrumental in having our Permanent Representative to the UN in Geneva removed. Dayan Jayatilleka, handpicked by the President for the job, had initially been close to Gotabhaya, and indeed helped him with procuring arms from different sources at a time when some Western nations were trying to impose an embargo of sorts. But it soon became clear that they had very different perspectives on the purpose of winning the war, and Gotabhaya proved the decisive factor in enabling the then Foreign Minister, Rohitha Bogollagama, to have Dayan unceremoniously dismissed. This was in July 2009, just a couple of months after he had staved off a forceful attack on Sri Lanka in the form of a Special Session requisitioned by the West.

I used to think that this was mainly because Dayan had articulated forcefully the need to proceed with devolution immediately after the war, and got involved in protracted argument in newspaper columns with journalists close to Gotabhaya. But it transpired later that the Israelis had long been pressurizing Gotabhaya to have Dayan dismissed, given the leadership he provided in Geneva to the Palestinian cause. Once there seemed no further need for Dayan, since he had prevented interventions that might have stopped the war and let the Tigers off the hook, Gotabhaya obliged his patrons.

That Dayan’s dismissal upset the Indians, and indeed the vast majority of countries that had been in the forefront of support for Sri Lanka during the war, meant nothing to Gotabhaya. In fairness to him, what amounted to adherence to an ultimately Western agenda may have seemed to him sensible, since he had also obtained support for the war from the United States Defence Department, during the hawkish days of George Bush. Certainly, even as late as 2013, he was expressing confidence that the United States would not press a case against Sri Lanka, since he felt the Defence Department was fundamentally on his side. He seems not to have understood that the Defence Department in the United States carried much less influence on government than he himself did in Sri Lanka. And he certainly did not understand that Israel’s primary motive was self-preservation, and that they had no worries about the consequences for Sri Lanka of Dayan’s dismissal, provided they got rid of a potential threat to their own power. Read the rest of this entry »

Moving forward India SLText of a presentation by Prof Rajiva Wijesinha

At the Maulana Abul Kalam Azad Institute of Asian Studies, Kolkata

At an international seminar held on November 6th and 7th 2014 on

An Appraisal of India’s Neighbourhood Policy: Way Forward


In the period leading up to the victory over the terrorist Tigers of Tamil Eelam in 2009, India and Sri Lanka enjoyed an excellent relationship. It was clear that, despite the opposition of politicians in Tamilnadu, India was supportive of the military initiatives of the Sri Lankan government. More importantly, it assisted Sri Lanka in dealing effectively with the efforts of some Western countries to stop the Sri Lankan offensive, and then to condemn it after the military success of May 2009. This was most obvious in Geneva, where the Indian Permanent Representative, together with his Pakistani counterpart, comprised the negotiating team that accompanied the Sri Lankan Permanent Representative, Dr Dayan Jayatilleka, into discussions with Western nations that had wanted a resolution critical of Sri Lanka.

Since then the relationship deteriorated. In 2012 India voted in favour of a resolution put forward by the United States that was strongly critical of the Sri Lankan government. And though much aid and assistance was given to Sri Lanka for reconstruction after the war, India seems to feel that this is not properly appreciated – as evinced by recent remarks by the Indian High Commissioner.

Conversely, a response to his speech in a Sri Lankan newspaper displays even great angst, culminating in the complaint that ‘In the more recent past, India repeatedly voted against Sri Lanka at the UNHRC in Geneva whereas in view of India’s domestic political constraints, all India had to do was abstain which Sri Lanka would have appreciated immensely.’ Before that there had been a catalogue of the support offered in the eighties by India to terrorist movements in Sri Lanka.

That support is a fact, and India must recognize not only the damage done to Sri Lanka by its support for terrorists in the eighties, but also the continuing exploitation of that support by forces in Sri Lanka that I would describe as racist. But Sri Lanka too must recognize that those actions were committed thirty years ago, and also that there were reasons for India to behave as it did. Though I think it is important to affirm the moral principle that assistance to terrorists is totally beyond the pale, we have to understand that India felt threatened at the time by the hostility evinced by the United States during the Cold War period.

When the government of President J R Jayewardene abandoned Sri Lanka’s traditional policies of Non-Alignment and close understanding with India, to the extent of offering facilities in Sri Lanka to a country that made no secret that India was the principal target of its military adventurism in the Indian Ocean, India reacted aggressively. As your current Deputy National Security Adviser, Mr Gupta, put it succinctly, though such a response was not justifiable, it was understandable.

This was in the context of an attempt by one of his subordinates at the Institute of Defence and Strategic Analysis to defend Indian support for terrorists. I appreciated Mr Gupta’s forthrightness at the time, and I believe this should be shared by Indian analysts of the current relationship. At the same time it is even more important that Sri Lankan analysts, such as they are because we do not have a tradition of intellectual rigidity, recognize the seminal damage done to the relationship by the adventurism of the then Sri Lankan government.

The current Sri Lankan government must also recognize that today, thirty years later, India might be worried by what seems total commitment to China. I do not think this is what China wants, and I do not think any serious thinker in Sri Lanka would argue that the relationship with China must be developed with no regard for Indian sensitivities. But sadly Sri Lanka currently has no coherent foreign policy, and the practices and pronouncements of many of those in positions of influence create the impression that we are putting all our eggs into the China basket. This impression is fuelled by the United States, ironically so, given that in the eighties it saw China as a tool to be used against its great enemy at the time, the Soviet Union, with which India was closely allied. Read the rest of this entry »

sleepy 4Enemies of the President’s Promse: Mahinda Rajapaksa and the Seven Dwarfs – Sleepy (Part 1)

Enemies of the President’s Promse: Mahinda Rajapaksa and the Seven Dwarfs – Sleepy (Part 2)

Enemies of the President’s Promse: Mahinda Rajapaksa and the Seven Dwarfs – Sleepy (Part 3)

Meanwhile GL was also making a mess of the other task that had been entrusted to him, namely negotiations with the Tamil National Alliance, which had done well in local elections for the North, and could credibly claim to represent the Tamils. The main components of the Alliance had seemed to support the Tigers during the war, but this was obviously because they were fearful of what would happen to them otherwise, given that the Tigers were ruthless in eliminating any Tamils opposed to them.

However, while careful not to engage in overt condemnation of the Tigers, its principal leadership made it clear after the war that they were not unhappy the Tigers had been destroyed. In this context they were able to hold discussions with the various groups that had opposed the Tigers, and almost all of these now joined the TNA.

The Tamils of Indian extraction whom the British had brought over during the colonial period were an exception. Though the Ceylon Workers Congress, the main party that represented them had been part of the Tamil United Liberation Front, that had contested the 1977 election as a united group, it had soon afterwards joined the Jayewardene government. Its exceptionally able leader, SauviamoorthyThondaman, had won for his people much that they wanted and needed and, after the UNP lost, he had joined the SLFP led government led by Chandrika Kumaratunga. After his death his grandson took over the leadership of the party, and remained with government, though with nothing like the effectiveness of the older Thondaman.

The principal exception with regard to the TNA of Tamils from the north of the country was Douglas Devananda. Sadly he and the other Tamil groups that had been opposed to the Tigers had not got on, and government failed to build up a solid alliance either before or immediately after the war. Perhaps enmities lay too deep, but given Douglas’ dependence on the government, and the brave stand taken against the Tigers by the others, some serious effort would surely have produced dividends.

Unfortunately, caught up also in its own electoral agenda, government did not expedite negotiations with the TNA immediately after the war, while conversely the TNA explored other options, including support in the 2010 Presidential election for Sarath Fonseka. This was not conductive to trust between them and the government. Given the general approach of Fonseka to Tamils during the war, the message this move sent out was that the TNA was implacably opposed to the President.

Despite this, agreement to negotiate was reached by the beginning of 2011. The government team consisted of the Leader of the House, Nimal Siripala de Silva, former Prime Minister Ratnasiri Wikramanayake and GL. Added to these was Sajin Vas Gunawardena, ostensibly to maintain records, a task he singularly failed to accomplish. Instead he was seen as an influential member of the team, given his close relationship with the President. Certainly the others were nervous of him, and GL clearly assumed that he knew the President’s mind. Read the rest of this entry »

7 dwarfs introIn May 2009, Sri Lanka seemed on top of the world. Under President Mahinda Rajapaksa, the Sri Lankan government and forces had defeated the Liberation Tigers of Tamil Eelam, a terrorist movement that had dominated Tamil politics in Sri Lanka. It had survived conflict with not just successive Sri Lankan governments, but even the might of India.

Though the Tigers had been banned by several countries, there was some sympathy for them in many Western nations who could not make a clear distinction between them and the Tamils of Sri Lanka, who they felt had been badly treated by successive Sri Lankan governments. Fuelled by a powerful diaspora that sympathized with and even supported the Tigers, several Western nations had tried to stop the war being fought to a conclusion. When this attempt did not succeed, they initiated a special session against Sri Lanka at the Human Rights Council in Geneva, but the condemnation they anticipated of the Sri Lankan government did not occur.

Instead, Sri Lanka initiated a resolution of its own, which passed with an overwhelming majority. It received the support of most countries outside the Western bloc, including India and Pakistan and China and Russia and South Africa and Brazil and Egypt.

Less than three years later however, the situation had changed, and a resolution critical of Sri Lanka was carried at the Council in Geneva in March 2012, with India voting in its favour. The resolution had been initiated by the United States, and it won support from several African and Latin American countries, including Brazil, that had been supportive previously. The following year an even more critical resolution was passed, with a larger majority. This was followed in 2014 by a Resolution which mandated an investigation by the Office of the High Commissioner. India, it should be noted, voted against this Resolution, but it still passed with a large majority.

Meanwhile international criticism of Sri Lanka has increased, and it had a very tough ride in the days leading up to the Commonwealth Heads of Government meeting held in Colombo in November 2013. Though the British Prime Minister withstood pressures to boycott the event, the Indian Prime Minister did not attend. Though the Indians did not engage in overt criticism, the Canadian Prime Minister was extremely harsh in explaining why he would not attend. And the British Prime Minister made it clear that he would raise a number of issues suggesting that Sri Lanka needed to address several grave charges.

How had this happened? How had a country that dealt successfully with terrorism, and did so with less collateral damage than in other similar situations, found itself so conclusively in the dock within a few years? How had it lost the support of India, which had been strongly supportive of the effort to rid the country of terrorism? Read the rest of this entry »

Join us in calling on His Excellency The President of the Democratic Socialist Republic of Sri Lanka to introduce a Constitutional Amendment to limit the size of the Cabinet to 20, with no more than 20 Cabinet Ministers and no more than 20 other Ministers of Junior Ministerial rank.

You can sign the petition by clicking here.

Short link –


First published – Daily News 24 Dec 2012

Last month I judged the semi-finals of the MTV Debating Competition. I don’t usually accept such invitations, given the time these engagements take, but the topic was whether the 13th Amendment should be abolished, and I thought I should get an idea of what young people were thinking.

To my surprise, both teams expressed the view that the 13th Amendment was a mess because it did not sufficiently empower people at the periphery. Those who did not want to abolish it granted that it needed amendment, to which the Proposition said that there was no point in amending it out of recognition, and that it made more sense to replace it altogether.

Of course the views expressed could not be taken as representative of the country as a whole, since the debate was in English, and it was two Colombo schools which were in the Semi=Final. But I remembered then the nationwide polls taken at the time I took over the Peace Secretariat in 2007, when the government had come to the realization that it had to deal with the Tigers militarily. Even polls taken by NGOs that had been in favour of the Peace Process initiated by the UNP government – as I had been, until I realized, very soon I should add, that this was not likely to lead to peace but to further confrontation and suffering as the Tigers used that period to build up their military strength – indicated that the vast majority of the people were in favour of getting rid of the Tigers. But they also advocated a peaceful political settlement with greater devolution.

I should add that the need for this is universally agreed, though as I have noted it is expressed as decentralization by many who urge getting rid of Provincial Councils as they now stand. My own view is that, if we go on discussing the matter in terms of Provincial Councils and emotive terms such as devolution and decentralization, we will lose sight of what is generally agreed, that we must develop mechanisms to ensure more power to the people, with greater accountability. Read the rest of this entry »

පාර්ලිමේන්තු මන්ත්‍රි මහාචාර්ය රජිව විජේසිංහ-බලය බෙදිම ගැන අනෙකුත් පක්ෂ වල ඇති බිය සැක අප දුරු කල යුතුයි1. Indian External affairs Minister SM Krishna has said that President Rajapaksa agreed to go beyond the 13th amendment. However the government has not yet confirmed nor denied it. What is the stance of the government regarding the 13th amendment and the possibility of going beyond it?

I assume Mr Krishna would not have made this statement up,and it fits with the President’s consistent declaration that he would move to 13 plus. This does not mean that we need to stick to everything in 13, since obviously there are some things like the merger of the North and East which most people have realized was absurd. But we need to strengthen the principle of empowerment of all our people so that, if some things are modified, more should be added.

That is the position of most members of the government.  Almost all those in the SLFP whom I have spoken to have this view.  There may be members of other parties who are worried about the implications of any changes, from both sides as it were, and their fears must be assuaged. It is desirable to convince those who fear separatism that any settlement will not promote that, and equally it is desirable to convince those who think any change will strengthen majoritarian tendencies that that will not happen.

2. Doesn’t this stand in contrast with what the government has been saying about devolution? Until very recently they have been completely against giving land and police powers to the Provincial Councils?

There is no contradiction in that government has not opposed Provincial Councils having land and police powers, the point is to ensure mechanisms that will prevent abuse of powers at any level. With regard to land we need to clarify what is meant by the present position that land is vested in the State, but its usage is largely left to the Province. The important thing, I believe, is to assure the Province that land will not be alienated by the Centre for settlement, and equally to assure the Centre that alienation by the Province will be according to established guidelines.

The problem has arisen because for decades we have not formulated a clear policy on land. The impression I get unfortunately is that, apart from the Liberals, no one is interested in policy formulation – for instance this government abolished the Ministry of Policy Planning and Implementation of which I think we now feel the urgent need.

With regard to police, again we need to make sure that security is not threatened,  and given the manner in which the LTTE was built up with international financing, we need to strengthen safeguards. However at the same time we realize that police must have the confidence of the communities in which they function, and that is why most functions of the police have to be administered locally. Developing clear guidelines to fulfil all these objectives will not be difficult, if only, as the very perceptive Indian commentator Mr Sathiyamoorthy put it, both sides stop posturing. Read the rest of this entry »

1.  With the end of the military conflict does the government think that there are more do be done on the social and political front to establish normalcy or does the government feel that the end of the military conflict itself solves all the problems ?

 Not at all, as government always said, a military solution was necessary to deal with terrorism once the LTTE proved intransigent, but political and other problems required other measures.

2. If the government feels more needs  to be done, what steps it has taken so far to accomodate the minority Tamil community?

 Rapid resettlement and economic empowerment is taking place. This proved successful in the East, and is being pursued in the North, though obviously much more needs to be done. Also political empowerment through the resurrection of local and provincial authorities. This was done swiftly in the East, and has been started in the North, with the next tranche of local elections – the third after hostilities concluded and resettlement began – due at the end of July, with Provincial Council elections thereafter, as happened in the East.

3. Does the government seriously think that devolution is a neccessary component for future ethnic harmony?

 Certainly devolution as practiced elsewhere should be implemented in the North, and extending it as appropriate will be finalized through discussions with the TNA as well as the input of that and other parties through the Select Committee that is planned. At the same time, given that the Centre will also continue to exercise power, and in particular in areas pertaining to security issues in the broader sense, it is important to introduce a greater voice for the peripheral units at the Centre too, which is why the President’s manifesto introduces the idea of a Second Chamber based on those units.

4. Does it feel that forming a uniformed society with no consideration for minority ethnic and cultural identities and freedoms to preserve same is part of the solution?

Not at all, uniformity goes against both the government’s commitment to pluralism and the socio-cultural history of this country. After the introduction of Tamil as an official language in 1987, for instance, little was done to enforce this provision, but this government has taken more measures in this regard than any other.

 5. Why there is so much delay in addressing the housing and land problem of the IDPs? Read the rest of this entry »

Rajiva Wijesinha

July 2017
« Jun    
%d bloggers like this: