A Bi-Nationalist Perspective for Sri Lanka: Prospects for State Transformation in the Post- War Context

Asanga Welikala, Senior Researcher in the Legal & Constitutional Unit, delivered a lecture in Jaffna on 19th December 2012 on the topic of “A Bi-Nationalist Perspective for Sri Lanka: Prospects for State Transformation in the Post- War Context”. The lecture was organised by the Centre for Civil Society, and was held at ‘Kalaikottam’, Jaffna.

Asanga’s lecture drew on his ongoing doctoral research at Edinburgh Law School into the concept of the plurinational state and its relevance for Sri Lanka in constitutionally accommodating multiple nations and conceptions of nationality within the framework of a united state. It concerned the theoretical possibilities for the better constitutional organisation of the Sri Lankan state in view of the island’s national pluralism, i.e., the empirical fact of the existence of more than one (ethnic) nation within the territorial and historical space of the polity.

The lecture, which was simultaneously translated into Tamil, was followed by a session of questions and answers in which the idea proposed and its political and legal prospects were robustly investigated and critiqued.

Selected photographs of the event are attached.

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The Sri Lankan Republic at 40: Reflections on Constitutional History, Theory and Practice

Access the dedicated site for the book here.

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It represents an experiment with publishing scholarly thinking on issues of constitutional significance in the public interest, which I hope will be successful in informing the way we approach, and think critically about, the great political issues of the day in our country. These debates are too often conducted in an environment of apathy or a lack of comparative and theoretical insights; or, in what is a disconcerting new development, straightforward untruths and deliberate disinformation, as the recent constitutional crisis with regard to the impeachment of the Chief Justice has shown. Your patronage of the site therefore is greatly appreciated and I hope it will lead to similar initiatives in the future.

In 2012, Sri Lanka marked the fortieth anniversary of the founding of its republic. With the promulgation of the first republican constitution on 22nd May 1972, Ceylon severed its remaining constitutional links with Britain that had survived the grant of independence as a dominion in 1948.

Both the process adopted in the making of that constitution as well as its substance were historic – a decisive ‘constitutional moment’ – reflecting dramatic political currents that had dominated the late-colonial and post-independence period. It established a constitutional order that has, despite being replaced by a second republican constitution in 1978, retained its essential substantive character as a highly centralised unitary state to the present.

In terms of both the consolidation of constitutional democracy and in addressing the challenges of ethnic, religious and cultural pluralism that post-war Sri Lanka must settle in order that causes of past conflict are not reproduced in the future, the historical, political and constitutional issues that prevailed in 1972 are as relevant as ever.

This two-volume edited collection brings together a series of reflections on those issues – now available in electronic form through this site – by a distinguished group of Sri Lankan and international scholars from multiple disciplines as well as political practitioners, with a view to informing the contemporary debate on strengthening democracy, constitutionalism, and reconciling the constitutional form of the Sri Lankan state with its rich societal pluralism.

I have acknowledged in my Editor’s Introduction to the book, albeit inadequately, the support I have been fortunate to receive from my colleagues at the Centre for Policy alternatives (CPA). However, this dedicated website for the book – its inspiration, creation, activation, and indeed, maintenance – has been something that has been led by my old colleague and even older friend, Sanjana Hattotuwa. Sanjana has assisted me with his technical expertise in every book I have published with CPA, and it has been no different with Republic at 40. I perceived, however, a greater sense of enthusiasm on his part with this project, and it was perhaps from this that the idea for the website flowed. He deserves much praise for all his efforts in putting this site together, and my grateful thanks. Our partnership is one that commenced as co-editors of The S. Thomas’ College Magazine in the mid-1990s – and purely from self-interest, I earnestly hope it continues.

I hope you enjoy the site and its contents, and I look forward to receiving your comments. I hope even more that the many excellent chapters in it will receive the scholarly and critical attention they deserve.

Thank you.

Asanga Welikala

Editor, (2012) The Sri Lankan Republic at 40: Reflections on Constitutional History, Theory and Practice (Colombo: Centre for Policy Alternatives).

Press Release on the impeachment proceedings against Chief Justice Dr. Shirani Bandaranayake

13 November 2012, Colombo, Sri Lanka: The Centre for Policy Alternatives (CPA) expresses grave concern over the initiation of impeachment proceedings against Chief Justice Dr. Shirani Bandaranayake. A number of reports in the press reveal that several charges against her have now been placed before Parliament in the form of a Resolution presented to the Speaker. The context within which these proceedings have been instituted, the procedure established by Parliament for impeachment hearings in Standing Order 78A, and the content of a number of charges against the Chief Justice are deeply troubling.

Context

The context and timing of the institution of impeachment proceedings strongly point to a deliberate effort by the government to extinguish any embers of resistance to the executive from the judiciary. In the Town and Country Planning (Amendment) Bill and the Divineguma Bill Determinations, the Supreme Court held that the Bills in question required prior reference to all Provincial Councils before being placed on the Order Paper of Parliament. The Chief Justice presided over the nominated bench in both cases. These judgments halted the government’s attempt to weaken the meagre extent of devolution provided by the Thirteenth Amendment to the Constitution by attempting to pass laws that were in respect of Provincial Council subjects. A brief narration describing the events following the communication of the Court’s decision in respect of the Divineguma Bill is telling.

The Supreme Court’s Determination in respect of Supreme Court (Special Determination) 1 – 3/2012 challenging the Divineguma Bill was communicated to the Speaker on or about the 17th of September 2012. Thereafter, a statement issued by Mr. Manjula Tillekeratne, Secretary of the Judicial Services Commission – of which the Chief Justice is the Chairman – was published in the Sinhala press on the 19th of September[1]. This statement alleged that efforts were underway to destroy the independence of the judiciary, and made veiled references to what was later revealed by the President himself to be an effort by him to summon the members of the Commission to a meeting at Temple Trees. The statement was issued in the context of a sustained effort by some commentators on state television and radio to vilify the Chief Justice and the Court for ruling against the government in the Divineguma Determination. Subsequent to the JSC’s first statement, on or around the 28th of September 2012, Mr. Tillekeratne made a chilling revelation that he believed that “[a] situation has arisen where there is a danger to the security of all of us and our families beginning from the person holding the highest position in the judicial system.[2]” This fear materialised on the 7th of October, when in a brazen attack in broad daylight, Mr. Tillekeratne sustained serious injuries after being stabbed repeatedly by unidentified assailants while he was inside his parked car on Hotel Road, Mount Lavinia. CPA condemned this attack and drew attention to the intimidation of dissenters and the prevailing climate of impunity in a statement released on the 10th of October 2012. On the 16th of October, we drew attention to the appearance of posters in Sinhala the previous day vilifying CPA Executive Director Dr. Paikiasothy Saravanamuttu as one seeking to divide the country, for his opposition to the Divineguma Bill. Meanwhile, the Secretary of the Ministry of Defence and a number of influential members of the government have publicly called for the repeal of the Thirteenth Amendment.

We are convinced therefore, that the institution of impeachment proceedings against the Chief Justice is the regime’s latest – and most dangerous – effort to stifle dissent, destroy the independence of the judiciary and undermine any prospects for the implementation of the minimal guarantees of devolution in the Thirteenth Amendment.

Procedure

CPA is also concerned that the procedure laid down in Standing Order 78A of Parliament for impeachment proceedings are incompatible with the principles of natural justice. Under this procedure, the Speaker refers the allegations in the Resolution containing the allegations to a Select Committee of Parliamentarians, which is tasked with investigation and reporting to Parliament. The process of investigation and decision making in relation to charges of misbehaviour are clearly judicial, or quasi-judicial in nature. Thus, the accepted rules of natural justice should and must apply. However, there is no explicit bar on Members of Parliament who signed the ‘Notice of a Resolution’ functioning in the Select Committee, or voting in Parliament to present an address to the President for removal of the Chief Justice. Moreover, although removal of a Judge can be carried out only or “proved misbehaviour or incapacity,” by placing the investigation process in the hands of Members of Parliament themselves, the Standing Orders open a wide door for partisan decision making, which fundamentally undermines the rule against bias. In other jurisdictions, the right to natural justice in impeachment proceedings is preserved by ensuring the independence of those tasked with inquiring into the alleged charges. In India, for instance, the Judges Inquiry Act of 1968 provides that the Speaker shall constitute a three member committee including a sitting judge of the Supreme Court, a sitting judge of one of the High Courts and a distinguished jurist to investigate allegations during an impeachment proceeding.

We are deeply concerned therefore, that in the prevailing climate of threat to the independence of the judiciary and sweeping executive control over Parliament, the lack of due process rights renders the impeachment process little more than a modern inquisition.

Charges

CPA is also troubled by a number of charges contained in the Resolution now placed before Parliament. Some charges appear to fault the Chief Justice for the substance of judicial decisions penned by her. These charges have a chilling effect on members of the judiciary, and point to an effort to systematically dismantle any remaining independence within judicial ranks. We have observed that one of the charges reported in the press appears to refer to CPA. The charge as reported reads, “Whereas, the Supreme Court special rulings petition No. 02/2012 filed by the institution called Centre for Policy Alternatives to which the Media Publication Section ‘Groundview’ that had published an article of the Hon. (Dr.) (Mrs.) Upatissa Atapattu Bandaranayake Wasala Mudiyanse Ralahamilage Shirani Anshumala Bandaranayake, while she was a lecturer of the Law Faculty of the University of Colombo prior to becoming a Supreme Court judge, has been heard and a ruling given.” We note in this respect that the case filed by CPA was in fact SC (SD) 3/2012, that CPA came into existence in June 1996, that our online publication Groundviews was only established in 2006 which was ten years after Dr. Bandaranayake took oaths as a Justice of the Supreme Court, and that Groundviews has to date not received nor published a single contribution by Dr. Bandaranayake. While other charges are also of concern, we desist from publicising our comments at this stage.

Conclusion

In conclusion, we note the widespread expressions of consternation from all strata of society in response to the institution of impeachment proceedings. We are heartened by these expressions of concern over the trajectory of governance in Sri Lanka, and urge that all citizens continue to express outrage over the rapid dismantling of the institutions that sustained our struggling democracy. The independence of the judiciary is fundamental to the architecture of any democracy, and unless we unite to resist these latest attempts to extinguish it, the truncated freedoms and rights we still enjoy are in imminent jeopardy.

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The Centre for Policy Alternatives (CPA) was formed in the firm belief that there is an urgent need to strengthen institution- and capacity-building for good governance and conflict transformation in Sri Lanka and that non-partisan civil society groups have an important and constructive contribution to make to this process. The primary role envisaged for the Centre in the field of public policy is a pro-active and interventionary one, aimed at the dissemination and advocacy of policy alternatives for non-violent conflict resolution and democratic governance. Accordingly, the work of the Centre involves a major research component through which the policy alternatives advocated are identified and developed.

Download this PR as a PDF in English here. Download in Sinhala here.

[1] Lakbima article 19 September

[2] http://www.dailymirror.lk/news/22281-jsc-secretary-says-danger-to-their-security-.html

Impeachment of the Chief Justice: The Sword of Damocles over Democratic Governance?

By Dr. Paikiasothy Saravanamuttu

Accounts, claiming varying degrees of authenticity abound of the impending impeachment of the Chief Justice.  This is not the first time this has been attempted. Denizens of Hulftsdorf within its ranks stopped the UNF government in its tracks from attempting to do this.  A third of the members of parliament are required to sign a motion to this effect, which once entertained by the speaker will go to a select committee. The findings of that committee are reported back to parliament, which votes after a debate on whether to impeach the Chief Justice. All that is required is a simple majority.

There is considerable speculation as to why the Rajapajsha regime would want to even consider this and as to the charges that will be made in the impeachment motion.  The consensus in general public discourse is that this has everything to do with the initial Supreme Court determination on the Divineguma Bill by which it was required to be first submitted to all provincial councils and speculation with regard to the Court’s determination on the Bill thereafter on the validity of the Northern Governor’s consent to the Bill in the absence of an elected council, as well as its substantive provisions.  The argument here is that the regime and its supporters see the Chief Justice as being too disposed towards the Thirteenth Amendment and devolution and accordingly insufficiently protective of the unitary state.  Underpinning all of this, it is mooted, is the desire of the regime to control everything within its reach and neuter the Thirteenth Amendment if not kill it off altogether, so as to deprive the north of an effective, elected council controlled by an opposition political formation – the only one in that event, in the country.   The abolitionists outing calling for the jettisoning of the Thirteenth Amendment, which involved the Defence Secretary stepping egregiously out of line yet again to make pronouncement on government policy, must be seen in this context.  He is after all, if not the most powerful man in the land, one of three or four.  He is also known to be quite blunt and frank.

There is additional speculation and argument about the spouse of the Chief Justice, the investigations into his financial transactions, the behavior of the Secretary to the Judicial Services Commission and even salacious gossip being disseminated about personal relationships.  All in all, very Sri Lankan – a country like no other in which truth will always be stranger than fiction, be it the private realm or the public.  One point needs to be stressed here and that is as to why appointments in particular are being questioned now and taken exception to, when they were made by and concurred with by those leading the charge to impeach.

Another school of thought maintains that along with investigations into the dealings of her spouse, impeachment is being used as a threat, a form of intimidation to ensure that the Court’s determination on the Divineguma Bill and any others thereafter, is favourable to the regime.  Alternatively that her position will become so untenable that she will have to resign. The point here is that if the Lady is not for turning and sticks to her position and to the constitution, stubbornly protecting her independence and their other Lordships too, the regime will surely have to go through with impeaching her or risk serious embarrassment and loss of political clout in the eyes of the public.

Impeaching the Chief Justice on the eve of the UPR of Sri Lanka at the Human Rights Council and with impending revisiting of the Council resolution on Sri Lanka in March 2013, followed by the Commonwealth Heads of Government Meeting (CHOGM) in a year’s time, begs the question of a regime obsessed with control and not giving a damn as to the fall-out.  The latter is considerable, not just in international terms but in terms of the basic tenets of democratic governance, the integrity and independence of institutions in this country pivotal to its sustenance as a functioning democracy.

The personal issues aside, this is what the public needs to focus on and this is what resistance to the populist authoritarianism of the regime needs to galvanize against. The fundamental relationships between the three arms of the state – the executive, legislature and the judiciary are under grave threat. This is not the first time, yet taken in context and as integral to the regime’s systematic erosion of democratic institutions and processes, checks and balances on its exercise of executive power, this time it is especially dangerous.  There really is no effective structure of government or governance now in this country. What we have is a structure of power to consolidate dynastic rule and underpinned by militarization, populist authoritarianism and majoritarian triumphalism.

Let us not forget too that the bona fides of the regime regarding respect of and for the constitution are manifestly suspect.  At the first UPR of Sri Lanka in 2008, the regime voluntarily and this needs to be underlined, voluntarily pledged to implement the Thirteenth and Seventeenth Amendments!   The former has been in effect, subjected to a prolonged process of extra judicial killing and the latter gutted and consigned to history.   Gotabhaya Rajapksha’s Charge of the Hela Brigade assisted by Brevet Colonels Weerawansa and Ranawaka has only, if Keheliya Rambukwella’s statement on the regime’s position is to be believed, been halted for the time being.  Did India have to tell him and his that they were talking out of turn and way out of line?

Apart from a few, seen by the regime and its apparatchik chorus as traitors and LTTE sympathisers, the public at large were unmoved by the dismantling of the Seventeenth Amendment and its unseemly replacement by the Eighteenth.  The slow death of the Thirteenth is very much on the agenda and now the possibility if not the probability of a frontal assault on founding principles of democratic governance – the separation of power and the independence of the judiciary.

It has been argued that the public -at- large is unmoved by constitutional issues or indeed any outside the cost of living that directly impacts their daily lives.  The regime knows this and through its extensive apparatus of propaganda, coercion and intimidation it will have its way.

L’etat, c’est moi – The state, it is I.

It is time to show the regime otherwise and that time is surely now!