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This series of articles was designed to draw attention to systemic problems in governance in Sri Lanka. They deal with the absence of clear guidelines in Parliament, in local government and for administrators at all levels. Many of the ideas spring from difficulties found during Divisional Secretariat Reconciliation meetings which have been conducted in all Divisions in the Northern and Eastern Provinces.

 

Strengthening institutions and organizational capacity 1 - Parliamentary responsibilities and the need to enforce them

Having written a hundred and more articles on Human Rights, I thought it time now to turn to another subject where the Sri Lankan state could do better. As I found with regard to many areas in which Rights could be strengthened and protected more effectively, problems arise more from incompetence and carelessness rather than deliberate wrongdoing.
 
In order to improve things, it seems to me vital that we ensure greater discipline and efficiency in all organs of government, and in particular the administration. I am not sure that writing about it will improve things, because I am sure that others too are aware of shortcomings and wish to improve things, it is simply that the will and energy are lacking. Sometimes then it seems much easier to just let things be. 
 
But often one does come across situations in which ignorance or a lack of clarity are the reasons for systemic failure, and I hope that at least in these areas some reforms can be swiftly put in place by those in charge. Often the failure to hold officials accountable for their shortcomings contributes to further shortcomings, until in time the officials do not even realize that they have failed to do their duty.
 
An obvious example of this came up in Parliament recently. Since, if we wish to strengthen our institutions and ensure that they function more effectively, the best place to start is the supposed fountainhead of all authority, the Legislature, it seems then a good idea to start with this.
 
One of the problems with Parliament was highlighted recently when it turned out that Bills to be discussed and approved in Parliament had not been distributed in time. The Chief Government Whip was reported as having said that a legal officer should be appointed to overlook the legal affairs of Parliament, while the Speaker declared that ‘he would not have hesitated to take punitive action against ministry officials responsible for the delay in presenting complete copies of 21 financial bills to Parliament had he been vested with powers to do so’.
 
These statements are indicative of the administrative culture we now suffer from. It seems to me that appointment of a separate legal officer would be a retrogade step because it indicates that the Secretary General of Parliament is not able to fulfil his duties effectively. The Secretary General of Parliament, and his assistants, are lawyers, and they are supposed to be the Legal Advisors to the Speaker. Unfortunately, in part because of the political culture that was developed after 1977, appropriate advice has not always been given, and sometimes it has been ignored when given. 
 
One case that springs to mind, and should be recorded, occurred when the Member for Kalawana was unseated on a election petition. A bye-election had to be held, but meanwhile, in yet another of J R Jayewardene’s machinations, the original member had vacated his seat by being away without leave. He had then been reappointed to the vacancy under the constitutional provision Jayewardene had introduced to abolish bye-elections. The Speaker, ignoring the advice of the then Secretary General, ruled that Mr Pilapitiya, as the man was called, sat in Parliament by virtue of that appointment, and therefore the court ruling that he was unseated had no validity.
 
 
I wrote last week about the need to amend the Standing Orders of Parliament so that they provide clearcut guidelines about how Parliament should proceed. This is particularly important with regard to Consultative Committees, which now do very little of consequence.
 
Most Parliamentarians think they are a place to raise problems related to their electorates. Thus in the Education Committee questions are raised about Principals of schools, in the Justice Committee questions about whether there is a functioning lift in a particular Court, in the Cultural Affairs Committee whether Cultural Centres have been set up in particular places. Rarely are there discussions about policy.
 
It seems that no one has bothered to explain, either to Members of Parliament, or to the Ministers who function as Chairmen of these Committees their actual function. According to the Standing Orders, ‘The duty of a Consultative Committee shall be to inquire into and report upon such matters as are referred to it by the chairman or by Parliament, including any Bill, proposals for legislation, supplementary or other estimates, statements of expenditure, annual reports or papers.’
 
Reports I should note are referred to Committees, but they are never circulated in advance so that they are generally adopted without discussion. Bills are rarely referred for consultation, but are presented when they are about to be placed before Parliament, sometimes after they have been put on the Order Paper. There is hardly ever discussion of policy with regard to legislation, nor opportunities to make suggestions. Recently, when I advanced some ideas about how the Resettlement Authority Bill could be amended to make it more effective, and responsive to people’s needs, the Chairman – who is a very sensible man, and understood along with his Deputy the shortcomings of the current Act – suggested I propose an Amendment on the floor of the House. My point though was that these suggestions should be discussed constructively in what is termed a Consultative Committee, and not left to the mercies of the generalizations that pass for debate in Parliament.
 
 
After the recent fiasco over the delay in providing Members of Parliament with bills they were supposed to discuss and vote on, I engaged in some study of practice here and in other countries, and also referred to relevant authorities. What became clear is that Sri Lanka has in essence taken away from Parliament its power over legislation, and the neglect the Speaker diagnosed in Parliamentary officials, claiming that he would have taken firm action if he had the power to do so, is not seen by them as neglect. They see Parliamentarians simply as lobby fodder, fulfilling their functions simply by speaking and voting for or against a Bill, with no responsibilities to actually ensure that Parliament produces fit and proper legislation.  
 
I say this because a former Secretary General of Parliament has written a book which is supposed to set out the functions of Parliament, in which the chapter on making laws completely omits the role of Parliamentarians. Indeed she even claims that Bills are usually given to Parliamentarians after what is termed the First Reading – when they are placed before Parliament. She has obviously not understood that the First Reading takes place precisely when Parliamentarians have the Bill placed before them, and to see that as a sought of afterthought is a complete denigration of the Legislature as it is constituted, by Representatives of the People.
 
The book in question is handed out as a sort of bible to new Parliamentarians, but I suspect no official in Parliament has actually studied it and set it against what goes on in other Parliaments. Perhaps no one there now has either the capacity or the inclination to engage in such studies, given the contumely with which J R Jayewardene treated Parliament and Parliamnentarians when he imposed the current Constitution on the country, and also its several amendments, which subverted any possible principles the Constitution may have contained.
 
The chapter on Law Making in this simplistic book, which obviously was not vetted by a Secretary General who understood what Parliament is about, suggests that legislation is the business basically of the Executive and the Judiciary. There is no mention at all in the whole chapter of the need to consult Members of Parliament in preparing legislation. This is the purpose of Standing Order 109 which lays down that it is the duty of a Consultative Committee to inquire into and report on matters referred to it by the chairman or by Parliament, including any Bill and proposal for legislation.
 
 
 
I have looked thus far at the Sri Lankan Parliament, and its failure to fulfil properly the essential duties of a Legislature. These are the making of Laws, and financial oversight, through both the Budget and control of financial expenditure. 
 
Most Members of Parliament do not however understand that these are their main responsibilities. Rather they believe that their principal function is representational, ie that they are in Parliament to represent the interests of those who voted for them. 
 
This is true, but the problem is that they do not understand their collective responsibilities as Parliamentarians, to make sure that laws are made, and public funds are expended, in the interests of the people. Rather, they think only of their individual responsibility, which is connected with the need to continue to be Parliamentarians. 
 
This explains the fact that most interventions in Parliament relate to the individual needs of constituents. There are exceptions in the questions asked by opposition Members, which are intended sometimes to draw attention to general problems, but even they often lapse into personal considerations. The fact that hardly any government Members ask questions is indicative of the general view that policy – and its practice on a wider scale – is not their business. 
 
 
The manner in which our Executive is constituted ensures that administrative or professional capacity are not taken seriously when portfolios are allocated. Of course many Members of Parliament have skills that will allow them to contribute to formulating policy and making decisions, but that is not a prerequisite. Given too the need to continue in Parliament by ensuring popularity in their electorates, Ministers naturally see their constituency responsibilities as more important than the claims of the Ministerial responsibilities they are given.

I suppose this is a necessary part of the Westminster system, but in Britain and other countries where that system continues, there are systems to ensure that capable people with understanding of the ministries to which they are appointed can also be selected. Most countries having a Westminster style system, of allocating portfolios to Parliamentarians, have a second chamber to which proven administrators can be appointed – as with for instance Manmohan Singh or Kapil Sibal in India. In addition, on a first past the post system, competent people can be allocated safe seats, and do not have to worry unduly about electoral considerations in fulfilling their Ministerial responsibilities. And some countries such as Thailand have gone beyond this, in allowing for portfolios to also be filled by those with proven executive capacity without them having to enter Parliament.
 
 
One of the more worrying aspects of the mess we have got ourselves into recently is the revival of talk of a homeland for the Tamils of Sri Lanka. This involves treating the North and the East as a single unit, a matter that should have died a natural death following both the Supreme Court decision demerging the two provinces as well as the practical demonstration, in successive elections, that the East was a very different entity from the North. 
 
I can however understand the renewed demand for a homeland, given our failure to build on the positive factors above after the conclusion of the war against the Tigers. I was worried then by the TNA continuing to talk about the merger, even though it was argued in their defence that this was simply a bargaining point, and of course they would accept the Province as the principal unit of devolution. Unfortunately, now that we hear more and more frequent references to abolishing the 13th Amendment, it is quite understandable that the TNA and its allies – which are now more formidable than they were two years ago – feel they might as well push the merger more forcefully.
 
When in 1987 the Liberal Party welcomed the Indo-Lankan Accordand the introduction of Provincial Councils, we also made it clear that we thought the merger a fatal error, that would destroy the whole idea of devolution. We said this because we believed that devolution was needed on the principal of subsidiarity, which means decisions should be made in any sphere by the smallest unit affected by such decisions. Obviously there should be provision for consultation where others would be affected, and for National Policy to ensure consistency with regard to services available to the people, but the main purpose should be empowerment of people with accountability in units that were readily accessible to them.
 
 

Strengthening institutions and organizational capacity 7 - Increasing the impact of Local Government

 
The unity of this country will be immeasurably enhanced by giving the regions a greater say in decisions made at the Centre – for even the proponents of maximum devolution grant that certain decisions, in particular those relating to national security issues, must be made at the Centre. That is why the Liberal Party has long advocated a Second Chamber, and that doubtless is why the President made that a feature of his manifesto.

Unfortunately implementation of the President’s manifesto has been left to politicians who exercise power by virtue to the current Constitution. This perhaps is the reason they have not moved on the President’s more imaginative proposals. The position of the Executive Head of the country will not be affected by the reforms this country so urgently needs, but Parliamentarians might think a Second Chamber would take away from their authority – though in fact, as the assessment of the role of Parliamentarians by a former Secretary General makes clear, they have no authority at all any more as Parliamentarians.

Given this lack of a role as far as legislation is concerned, it is not surprising that they spend an excessive amount of time and energy on constituency issues. This is well and good, but unfortunately, unless the MP is sensitive, this can take away from the role of local government. That in turn may explain why there has been no attempt to move also on another idea the President has advanced, which is to revive local government, in particular through the idea of Gramya Raj, village empowerment.

Unfortunately, because no one in government has skills of conceptualization, it has not been pointed out that this is the most productive way of fulfilling the President’s commitment to what is termed 13 plus. He has recognized that the current system of devolution is inadequate, but obviously he would not want to increase the powers of regional politicians in a way that would threaten the hard won unity of the country.
 
 

Strengthening institutions and organizational capacity 8 - Ensuring systematic action at Grama Niladhari level

In discussing the ways in which governmental institutions can be strengthened so as to provide a better service to the people, it is obviously essential to look carefully at what happens at the first level at which officials interact with the citizenry. This is in Grama Niladhari Divisions.

Unfortunately the duties, and the responsibilities, of Grama Niladharis are not clearly defined. Their role was expanded in the nineties by President Premadasa, and there are different views as to the efficacy of his theory of consolidating government input at this basic level. Recently I heard one of our more thoughtful Ministers, Mahinda Yapa Abeywardena, complaining that the close attention to agriculture paid by officials at village level had been done away with when such positions had been suppressed, and Grama Niladharis given responsibility in all spheres.

This echoed a view I had heard from Asoka Gunawardena, probably the most knowledgeable official in Sri Lanka now about the various layers of government we have and their history. My own view is that a single official in overall charge at GN Division level makes sense, but such an appointment should be accompanied by mechanisms to ensure consultation, and the possibility of referral to professionals in specific fields.
 
 

Strengthening institutions and organizational capacity 9 - Promoting development through consultation

My own concerns, both with regard to aspects of Reconcilation that are not being addressed adequately, and also in terms of my responsibilities as Convenor of the Task Force to expedite implementation of the Human Rights Action Plan, were more with Protection issues. I therefore concentrated initially on these in the consultations, with Ministries and officials from the North, that the UN has kindly facilitated.

However I recognize that the vast majority of people in the North are much more concerned with livelihood issues. It is vital therefore that the initial nexus between government and the people, namely the Grama Niladhari, concentrate also on development, construing that term in the broader sense.

The Grama Niladhari then should have regular discussions with the people for whom he is responsible, so as to find out their pressing needs, and then put these forward to the relevant authorities. In the North I am regularly asked about roads and transport, about electricity and water supply, about irrigation and the marketing and storage of produce. The more perceptive members of Rural Development Societes also raise issues of credit and better training.

I am told that many of these matters are discussed at District Development Committee meetings, but while government officials put forward this fact as though it meant the problems had been solved, more often than not the people said that no action had been taken, This is understandable, because the forum that is supposed to address such issues is far too large, and it is dominated by politicians who are more concerned with popularity than development.

Rather what government should do is develop professional teams at Divisional Secretariat level, to whom problems should be referred by the Secretary, when these have been brought to his attention by the Grama Niladharis. With the support of his Planning Officers, he should then ensure that blueprints are drawn up to address issues, and that the people are kept informed of proposed action. If they are kept in the loop, they will generally understand why all the facilities they request cannot be supplied straight away – and most people have a sense of fairness that means they will accept the prioritization of more urgent cases. But government should keep them informed of decisions, and also of reasons, and realistic time frames when action is decided upon.
 
 

Strengthening institutions and organizational capacity 10 - Increasing productivity in the public sector

Some of the issues I have raised in recent columns in this series came up in a different form in a presentation made by Indrajith Coomaraswamy during one of the discussions the Liberal Party has been conducting on Reform. Though initially we had thought of concentrating on Constitutional Reform, it soon became clear that that alone was not enough, and questions of change had to be looked at holistically.

Given Sri Lanka’s current status, as a Developing Country that has got over the hump of under-development (the only Under-developing country that was still under-developing, as the Economist I think once sharply put it), it is obvious that economic issues are of particular concern. We were fortunate therefore to get four speakers who dealt, in short and succinct presentations that were amongst the best I have heard, on political economics, and the issues we now face.

All of them should be widely disseminated, but in particular what Indrajith Coomaraswamy said should be studied by all decision makers. Pointing out that we were now in a better position than ever in the last half century to go forward, he pointed out the severe institutional constraints we face.

Getting over these would however be easy, if we had the will to go ahead. Though there are always electoral worries about unpopular decisions, given that the benefits of such will kick in within a couple of years, government can easily go ahead, since the President does not need to go to the electorate for another 3 ½ years. Though Parliamentarians who are concerned about their own futures are pushing him to go earlier, falling victim thus to the strategy J R Jayewardene introduced with the 3rd Amendment to the Constitution, he has no reason to sacrifice any portion of his current term, when there is so much to do.
 
 
 

Strengthening institutions and organizational capacity 11 - The rationale for and impact of multiple Ministries

In his brilliant account of our current economic situation, delivered at the Liberal Party discussion on Economic Reform, Indrajith Coomaraswamy spent some time in discussing the budget deficit, and why it is particularly worrying in the current context.

He noted that the current account of the balance of payments has been in deficit since 1957, while the current account of the budget has been in deficit since 1987. He made it clear that it is not a new phenomenon that government has been borrowing to meet some of its recurrent expenditure and all of its capital expenditure over the last 25 years. But he also noted why Sri Lanka needs now to be even more worried than before about living beyond its means.

A budget deficit is a principal source of instability in the system. High budget deficits lead to inflation by creating excess demand. The inflation differentials between Sri Lanka and its competitors and trading partners that result exert pressure on the exchange rate. But, given the high import component in our basic consumption bundle, it is politically difficult to maintain a flexible exchange rate policy.

 

 

Strengthening institutions and organizational capacity 12 - Improving the services offered by local authoritie

The last series of Divisional Secretariat Reconciliation meetings in the North brought out even more clearly than before the failure of the various institutions of government to work with each other. At a previous consultation, which the UNDP had funded as part of an ongoing initiative to improve coordination, I had realized what might be termed the political problem in the areas in which development is most essential, namely the Divisions in which local government bodies are controlled by the Tamil National Alliance.

Some of their members, and in particular the community leaders they had appointed to lead their lists in many places, thus avoiding the general unpopularity of those who had been engaged on either side in the confrontational politics of the previous decades, were willing to engage. But they were not sure if this would be acceptable to their more political leaders, given that it is much easier to complain that to try to work. Conversely, government representatives were not sure whether active cooperation with elected leaders from an opposition party would lead to criticism from those who thought government should belong only to them.
 
 


Strengthening institutions and organizational capacity 13 - The role of oversight committees of Parliament

Transparency International recently held a workshop on how Parliamentarians could contribute to reducing corruption. Though it was mainly opposition members who attended, government too was represented, in the form of Rev Athureliya Rathana of the JHU, as well as Thilanga Sumathipala, Vidura Wickramanayake and Manusha Nanayakkara, apart from myself.

Much discussion centred around the oversight role of Parliament, following an informative introduction by former Auditor General Mayadunne. He noted that Parliamentary questions should be an important tool of ensuring financial probity, while there were several forms of Committees that could also do much to reduce corruption. Unfortunately, as almost all speakers noted, questions have little impact, since there are innumerable delays in answering most questions of consequence – while even more seriously, the Committee system in Parliament has almost completely collapsed.

We tried to correct the former problem in what proved the abortive attempt by the Committee on Standing Orders to amend them. With the full approval of the Speaker, we planned to introduce a provision that made prompt answers to questions mandatory, with a requirement that the Speaker call on the head of the Executive for remedial action if there were delays. Unfortunately this, like all our other suggestions, fell by the wayside when the Consultant Parliament had hired behaved foolishly, and drew an equally excessive reaction from a member.
 
 

Strengthening institutions and organizational capacity 14 - Revising how oversight committees of Parliament function

 
Following the discussion organized by Transparency International on the role of Parliament in reducing corruption, I thought that perhaps there was more I could and should do to strengthen this role. I had been complacent about the fact that I seemed to be the only one writing about the need for action, and urging the Speaker to reconvene the Committee on Standing Orders, to go ahead with the reforms that had been initiated way back in 2010. In this context I was pleased that the Chief Oppositon Whip, who represented the UNP on the Committee, agreed that he should have done more about this, and also that Eran Wickramaratne, who can be relied upon to pursue reforms without partisanship, asked to see the Standing Orders and what had been agreed on already.

But I realized then that I too had been at fault in relying on the Speaker to move,when he has so much else to do. I therefore checked the Standing Orders again, and found that any individual could give a notice of motion for  the amendment of the Standing Orders’ and that such a motion ‘when proposed and seconded shall stand referred without any question being proposed thereon to the Committee on Standing Orders’ which meant that that Committee would have to be convened.  

I have therefore given notice of such a motion, suggesting changes to several areas in the Standing Orders, including the questions procedure and the manner in which impeachment procedures should be carried out. It may be remembered that it has been universally agreed, on several occasions, that the Standing Orders with regard to impeachment are inadequate, and various commitments have been made about amending them. However, despite the controversy over the recent impeachment of the Chief Justice, which illustrated practically what had previously been seen in the abstract, the matter has been forgotten.
 
 

Strengthening institutions and organizational capacity 15
Enhancing the impact of Consultative Committees of Parliament


In addition to discussion of the role of oversight committees of Parliament in reducing corruption, two other important issues were raised at the Transparency International consultation with Parliamentarians, where structural reforms are required if corruption is to be reduced. One is an area in which the system we have increases the temptation, or perhaps even the need, to be corrupt.


This is our current electoral system, where those seeking election to Parliament, and indeed to any political body, have to campaign over a vast area, and combat members of their own party as well as the opposition. The obvious solution is to change the electoral system, but another method proposed was to have strict caps on election expenses, with funds provided by the state. I am not sure this will work, given the many ways in which money can be spent with no direct connection to the candidate, which indeed might increase corruption. But I was happy that the issue had been considered, and some sort of remedy thought essential.


The other structural problem we have is the vast size of the Cabinet. There may be no direct link between the plethora of Ministerial positions and corruption, but it certainly makes financial controls more difficult. In addition to the natural desire of any Minister to make a mark, which requires spending money, the number of Ministers means that Parliament cannot properly exercise financial controls over the Executive, since it is holders of Executive office who dominate Parliament and all its committees. 
 
 
 

Strengthening institutions and organizational capacity 16 - Increasing the responsibilities and powers of local authorities

After nearly 100 meetings at Divisional Secretariats, with the participation often of Pradeshiya Sabha representatives, I am more than ever convinced that the future of this country lies in strengthening local government institutions. However, if they are to do more, they also need to consult the local citizenry.
 
At present there are no formal structures to ensure such consultation. Some local bodies do have provision for Standing Committees, and I have been told that for Pradeshiya Sabhas there is provision for members of the public to participate, but this is not the case with Municipal or Urban Councils. The latter indeed do not seem to have provision for such Committees.
 
This is quite contrary to the premises on which the Mahinda Chintanaya is based, and I was happy to find that efforts to amend the Acts have progressed considerably in the last couple of years. Unfortunately the same old trend of simply amending earlier Acts has continued, instead of repealing previous legislation and replacing it with a clearly comprehensible new Act. This will mean that those elected to such bodies will find it difficult to understand what their powers are, and lawyers will have a wonderful time interpreting the Acts.
 

 

Strengthening institutions and organizational capacity 17 - The relative lack on interest in Local Government

I was quite flattered recently when I was told by a former public servant, for whom I had the greatest regard, that I was probably the first politician since S W R D Bandaranaike to be so interested in Local Government. I am not sure that this is quite correct, not only because I am not really a politician, but also because I think President Premadasa did a lot of work in this field. But nevertheless it set me thinking on why the subject has not had the attention it deserves.

This is sad because other countries have moved forward significantly in this sphere. Indeed some of the hot air now being blown about with regard to India and its role in our introduction of the 13th Amendment would I think be dissipated if we looked at what India has actually done, since that Amendment was introduced, to bring government closer to the people.

The 13th Amendment came about quite simply because centralized government had been too distant from the people. While this was obviously the case with regard to the needs of minority communities, which also suffered because of exclusivist language policies, we should also remember that rural majority communities also suffered because of a majoritarianism that did not take the concerns of the marginalized into account. Hence indeed the two Southern youth insurrections.

In the eighties, when command structures still dominated thinking in the sub-continent, the only alternative available to excessive centralization was the empowerment of large subordinate units. India had the States and we had Provinces. The option of Districts, which seemed at the time also to make sense, had been destroyed by the bad faith with which the Jayewardene government held elections to District Development Councils and then stymied their work.
 
 
The way in which government can be careless when there are no clear systems in place became clear to me last week, at a Reconciliation meeting at the Weli Oya Divisional Secretariat. This Division was allocated a year or two back to the Mullaitivu District. I gathered that some parts of it had been in that District previously, but had been transferred to the Anuradhapura District when Tiger attacks had left the Sinhala population there feeling defenceless.
 
I am glad therefore that the transfer was made, because the idea of provinces belonging to different communities is preposterous. It should be confined to racists such as the Tigers, as when they drove Muslim populations from the North. But in making the transfer government should also have thought of the services that should go along with such units.
 
Education for instance still seems to be run from the Kebetigollewa Zone. At a meeting next day with Northern Province Education Ministry officials, I was told that Weli Oya had in fact been transferred to a Zone in Mullaitivu, but the people of Weli Oya were not aware of this. They had sought question papers for term tests from Kebetigollewa, and been promised these, and then the offer had been withdrawn. 
 
 
 

Strengthening institutions and organizational capacity 19
Developing and enforcing sensible policies

Coincidentally, after I had written last week about the complications caused by Zonal Education Offices setting termly examination question papers for schools, the Minister of Education himself raised the question at the fortnightly Parliamentary Group Meeting. He was hurt, understandably so, at the harsh criticism of errors in a number of papers set by a number of Zones.

His point was that there were many important things to think about, including obviously, most recently, the introduction of a Technological Stream for major public examinations. This is indeed a laudable development, though I cannot understand why the Ministry does not go further and promote a free mixture of subjects, with greater breadth as is happening in examination systems round the world which are being emulated in more and more countries. But while such innovations are beyond the scope of the Ministry now, given that its officials are stuck – and allowed to stick – in mindsets long superseded elsewhere, we must be thankful for small mercies such as the long overdue recognition of the importance of technology.

I sympathized with the Minister’s irritation, especially when he pointed out that there were only three examinations that were important in a child’s life, namely the Year 5 Scholarship Examination, and the Ordinary and Advanced Level Examinations. This is true, though it is a pity that the education system puts so much pressure on children at the age of 10, when putting more energy into ensuring that rural schools provide better services at secondary level too would be more equitable for all children.
 
 
 

Strengthening institutions and organizational capacity 20 - Promoting attention to the grass roots

I wrote last week about the understandable irritation of the Minister of Education regarding media stress on mistakes in term test papers set by Zonal Offices of Education. He thought they should instead have been talking about much more important developments such as the introduction last month of a Technological Stream into schools. I agreed with him in principle, though I felt that mistakes in papers are not acceptable and he should reduce the possibility of this happening – and pressures on students – by allocating more responsibility to schools.
 
Last week I realized that, had the media really taken the new Technological stream seriously, as indeed they should, there would have been even more criticism of the Ministry. I found to my great disappointment that the manner in which this very worthy innovation has taken place means that areas that most need it have been left out. Up in the Gomarankadawala Education Zone, which covers four Divisions, Gomerankadawala and Kuchchaveli and Padaviya Sripura and Morawewa, there is not a single school which has started this stream.
 
 
The recent incidents at Weliveriya raise a number of questions which should not be confused. Most important is the fact that three civilians died at the hands of the army. As the new Army  Commander has indicated, this is not acceptable. Measures must be taken for a full and credible inquiry, with appropriate penalties as well as the institutionalization of safeguards to prevent repetition. 
 
But it is also important to look at the way in which a simple problem escalated out of control. The preliminary inquiry of the Human Rights Commission has indicated that there was no coordination amongst the various agencies responsible, both for the technical questions as well as the representational ones.
 
Several weeks ago I wrote to the President about this situation, and suggested some remedial measures. What I said then is worth quoting – ‘At present there is little possibility of particular shortcomings with regard to basic services receiving the full attention of authorities at a higher level, whether the Province or the Centre. This amendment will focus the attention of local bodies on important services, and allow them leeway to take corrective action if none is forthcoming from other authorities. As Your Excellency has noted, this is vital with regard to transport, but it should also extend to educational and vocational training services, and to basic health facilities.’ 
 
I was referring to some amendments I had suggested with regard to the Local Government Act. Unfortunately I have not as yet had a response to my letter, or the detailed proposals I made, despite these having been discussed beforehand with the President. I suspect that, like all else I have suggested, they have been passed to others for comment, and been duly buried.
 
 

Strengthening institutions and organizational capacity 22 - Suggestions for constitutional reform and strengthening grass roots decision making

Eartlier this month the Liberal Party sent some suggestions for reform to the Parliamentary Select Committee meant to recommend solutions to current national problems. They are based on a vital principle that should be followed in all discussions, namely that we should try to assuage the fears of others rather than seek to assert one’s own desires. Through sensitivity to the concerns of others, one can often also ensure sensitivity to one’s own concerns. 
 
Our suggestions reaffirm the primary obligation of the State to fulfil the objectives detailed in Chapter VI of the current Constitution. Safeguarding the independence, sovereignty, unity and territorial integrity of Sri Lanka are vital and all those wishing to broadbase the decision making process should recognize that these principles should be paramount. But equally those concerned with national integrity must also appreciate the importance of decentralizing the administration and affording all possible opportunities to the People to participate at every level in national life and in government. National unity should be strengthened by promoting co-operation and mutual confidence, while discrimination and prejudice should be eliminated.
 
To avoid concentration of power, the doctrine of Separation of Powers should be followed. The different layers of government should be sensitive to the needs of other layers and the People they represent, and this needs to be encouraged by structures that enhance accountability. Some suggestions below need to be entrenched in the Constitution. Others are more appropriately fulfilled through legislation, but the Constitution should direct that such legislation be put in place. I should reiterate here the importance of the first suggestion, since it is little recognized that we have the only Executive Presidential system in the world in which the Executive President is tied down to a Cabinet that is hamstrung by its Parliamentary responsibilities – which means electoral concerns in the main.
 

Strengthening institutions and organizational capacity 23 - Pursuing Principles at Consultative Committees

Parliament excelled itself last week when it cancelled three Consultative Committees (of those I had planned to attend – there were others too that were cancelled). The third of these, which I think a vital Ministry though not many others share my views, that of National Languages and Social Integration, was cancelled on the morning of the scheduled day, apparently because the Minister had to go to a funeral outside Colombo. 
 
This did not seem to me proper because, much as Ministers feel obliged to attend funerals, they really should not subject other Members of Parliament to their own convenience. Either they should attend the event at another time, or else they should instruct their Deputies or their Secretaries to go ahead with the meeting. This seems the more urgent, because in any case Committees meet rarely, the plethora of Ministers we have (raised to 69 last week when the Police were entrusted to a newly created Ministry of Law and Order) making it impossible to respect the Standing Order enjoining meetings once a month.
 
 
If my proposed Amendments to Standing Orders are accepted and implemented, this problem will be solved, but I gather that, the Speaker being away, the motion was not taken up at the Parliamentary Business Committee. Since Parliament is going to meet on only two days in September, it looks like I will now have to wait a month and more, though I have pleaded with both the Speaker and the Leader of the House to take the matter up in early September. Since statutorily the matter is not debated but simply referred to the Committee on Standing Orders, this will take up hardly any time, so I hope Party Leaders will agree to this.
 
 

Strengthening institutions and organizational capacity 24 - Local consultation and coordination

 
I was pleased to find last week a Divisional Secretary who had already put in place consultative mechanisms at village level. I have been suggesting these at other Secretariats, where I found an absence of systems to ensure attention to what people needed. Though some Secretaries seemed to take the ideas on board, I fear they will not be entrenched – and therefore will not be productive – unless clear instructions are issued by the Ministry.
 
The innovative Secretary was at Dehiattakandiya, where perhaps the difficulties he faces had led to action on the principle of necessity being the mother of invention. He has only 5 Grama Niladharis, for 13 Divisions, which in fact span 46 villages and nearly 60,000 people. 
 
This is preposterous, and I could not understand why action had not been taken earlier to fill up the vacancies. I am assured now that an examination has been held and interviews will be conducted this month and the vacancies filled, but I was bemused that initiating the process had taken so long. However there was a good explanation, in that I gathered there had been a proposal to appoint Samurdhi officials to the post.
 

Strengthening institutions and organizational capacity 25 - Assessing Parliament

 

While I continue to believe improving consultation as well as efficiency at local level should be the most important priority for government, I will interrupt the discussion of appropriate mechanisms for this briefly, to look at a very interesting initiative that was publicized recently. This was the launch of a website called www.manthri.lk which grades Members of Parliament with regard to their performance in Parliament.This is an interesting effort which could be very useful to the country, but I felt that there had been a lack of intellectual rigour in preparing the website, and it could thus seem to be designed simply to promote particular politicians.
 
Prominence was given to Members of the Opposition, which is understandable since the system is based only on Hansard. Obviously there are more opportunities for Members of the Opposition to speak. The exception that proves the rule is that the only government Member within the first five was Dinesh Gunewardena. While he fulfils his functions admirably, the reason he is ranked so highly is that he spends much time on his feet only because other Ministers are not present to answer questions. 
 
If rankings are to be made, then it would make sense to have three distinct categories,
 
a) Opposition members who have far more time allocated to them proportionately, given their paucity, than those on the Government side
 
b) Ministers who have to answer questions and obviously get more time in debates than backbenchers
 
c) Government backbenchers. I hasten to add, since on the common system of argument used in Sri Lanka, it will be assumed I am critical of the method because I come out badly, that in fact I am in the first half of all, and comparatively high amongst my peers. But this surprises me because, having been the first MP on the government side to ask a question and to move an Adjournment Motion in this Parliament, I rarely do this now because answers took so long to come and were not precise – while hardly anyone ever waits in Parliament for the Adjournment motions that take place after regular Parliamentary business.
 
 
 

Strengthening institutions and organizational capacity 26 - Improving Protection at local levels

 

I had intended to return this week to better coordination at local levels, to promote necessary and desirable actions with regard to the vulnerable. I will use the term protection to cover this, but I should note that it requires not only reactions to situations where suffering has been inflicted, but also positive measures to empower people so they can resist and prevent exploitation.
 
This seems the more urgent, after a very informative meeting conducted at the Ministry of Child Development and Women’s Affairs. This was the second in what the Secretary has set up for regular consultations with regard to children. In addition to representatives of the various institutions under the Ministry, he had invited officials from Ministries involved in the care of children. There were also several individuals from Non-Governmental organizations whose dedicated contribution I have noted through my own work in the field.
 
The lady from the Ministry of Education who attended struck me as particularly enlightened. She understood immediately the problems raised by those present with regard to the tuition culture, lack of extra-curricular activities in schools and of facilities for vocational training, the failure to ensure that Life Skills are taught properly throughout the entire secondary school span and inadequacies with regard to counselling. 
 
 
 
Soon after I had written last week’s column about improving protection at local levels, I found a structure already in place that was based on a similar idea. This was in relation to the Community Policing that that present Inspector General has instituted.
 
His determination to establish mechanisms for this is in line with the Mahinda Chintanaya commitment to ensuring consultation at village level. Sadly I don’t think any other government department has moved coherently to implement this idea, and I can only hope that the present IGP does not fall prey, as his most illustrious predecessor Osmund de Silva did, to resentment on the part of politicians who want to provide solutions to all problems themselves. Osmund de Silva found that his efforts to develop a productive relationship between the police service and village communities was looked on with suspicion by the politicians of a newly independent country who thought they were the heirs to all the authority that the British had exercised.
 
So, whereas the British hierarchichal system, with the police seeing themselves as representatives of a government that was at a remove from the people, has changed in Britain, with greater understanding of the community basis of democracy, it continues in Sri Lanka. And though the IGP has tried to change things, I suspect old habits will die hard in many parts of the country, not least because of the different layers of politicians who insist on controlling things themselves – as was tragically illustrated in the recent reign of terror in Sabaragamuwa.
 

Strengthening institutions and organizational capacity 28 - The need for Electoral Reform

 

Last week the Marga Institute held a discussion on several sets of proposals that had been forwarded to the Parliamentary Select Committee looking into ‘Political and Constitutional Measures to Empower the People of Sri Lanka to Live as One Nation’. After much animated discussion, it was decided to work with the set of proposals put forward by Vasantha Senanayake, and a couple of groups have been established to flesh these out.
 
Senanayake is perhaps the brightest of the young Members elected newly in 2010, a factor noticed by several embassies that have sent him on delegations of young Members to visit their countries. These proposals sprang from his work with the One Text Initiative which had seen him spearhead a group of Parliamentarians, representing government as well as different opposition parties, who had interacted with members of the Sri Lankan Diaspora, both Sinhalese and Tamil, in Britain. They had sent a report on their visit to the President, though there has been no response to the interesting ideas and suggestions they put forward.
 
Vasantha had worked together with a group of young professionals to put forward the proposals which included some startlingly innovative ideas. Perhaps the most important of them is not however new, because it was one of the principal elements on which three recent documents on constitutional reform agreed, namely those of the Liberal Party, the UNP and the group led by Rev Sobitha. This was the need to get rid of the present system of elections, and I think it would be useful to return to this now, since the last set of elections to Provincial Councils made crystal clear – again – how destructive the current system is.
 
 

Strengthening institutions and organizational capacity 29 - Ensuring an effective Executive

 

As I have noted, the Vasantha Senanayake proposals that have been sent to the Parliamentary Select Committee are to form the basis of the discussions the Marga Institute is facilitating to promote consensus. The most innovative of the ideas put forward in the memorandum submitted to Parliament is the suggestion that we accept the logic of the Executive Presidential system, and therefore bring the Cabinet in line with the executive system in other countries which have Executive Presidents – the United States and Russia and France and the Philippines, to name but a few.
 
On a proper Executive Presidential system, unlike the hybrid perversion J R Jayewardene introduced, those put in charge of the different branches of the executive come from outside Parliament. If they are in the legislature, they have to resign their Parliamentary positions, as Hilary Clinton and John Kerry did. Even when the President has a Prime Minister whose tenure depends on the confidence of Parliament, when that Prime Minister has won election and established a majority, he gives up his seat to take up an executive position. And as we saw with Vladimir Putin in Russia, someone who had been elected to Parliament and thereby been chosen as Prime Minister, can easily, and with greater effectiveness, be replaced by a technocrat.
 

Strengthening institutions and organizational capacity 30 - Promoting responsiveness to local needs

As I shall be away for a few weeks, I thought it best to bring this series to a close. I have tried here to discuss the need

a.for Parliament to be strengthened, through better use of Committees so that its legislative and oversight functions are treated seriously

b.of streamlining the Executive and making it more effective 

c.to strengthen local administration

d.for much greater coordination between government bodies and also elected and unelected officials

e.to provide clear job descriptions and institute and enforce reporting mechanisms

f.of much better training programmes with assessments that privilege efficiency, effectiveness and initiative

I have noted some areas in which best practice is available, as with the Community Policing programmes in the East, or the regular discussions between Divisional Secretaries and Pradeshiya Sabha leaders in some areas in the North, or even the recording in Batticaloa of unused government buildings, in a context in which the thrust is to use more and more cement as yet another intelligent and able Government Agent put it. 

 

 

I have also noted some areas in which reform is long overdue. A common theme of my suggestions is streamlining and targeting, as with the proposals for electoral reform that restore the link (and hence responsibility for and accountability to) between elected representative and the people; or the recommendation that the Cabinet be reduced in number with Ministers chosen for administrative capacity and planning skills rather than electoral success.
 
 
 
 
 
 
 

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