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!

STATEMENT ON THE POSTER ATTACKS AGAINST CPA EXECUTIVE DIRECTOR

16 October 2012, Colombo, Sri Lanka: The Centre for Policy Alternatives (CPA) views with very serious concern the appearance of posters in Sinhala on Monday, 15th October 2012 in the environs of Colombo, the English translation of the text of which states: “Let us save the pro-people Divineguma Act that builds the lives of fifteen lakhs of low income families from the Paikiasothy gang that aids and abets the separation of the country.” Photographs of the poster are attached. The chilling import of the reference to CPA Executive Director, Dr. Paikiasothy Saravanamuttu, requires no emphasis in the current political climate of violence against critics of the government and the culture of impunity for perpetrators. This is the most recent attack against CPA and its Executive Director. It must be unreservedly condemned.

The context of the reference in the poster to the Divineguma Bill, which is currently in the enactment process, and CPA’s legal challenge to its constitutionality, is as follows. When the Bill was placed on the Order Paper of Parliament on 10 August 2012, both CPA and Dr. Saravanamuttu in his capacity as Executive Director, filed petitions challenging the Bill in the Supreme Court, bringing to the Court’s attention a number of substantive and procedural grounds on which the Bill was potentially inconsistent with the Constitution. There are several substantive areas of constitutional concern in what is envisaged in the Bill, including the doctrine of the separation of powers, the possible reversal of certain subjects devolved to Provincial Councils, Parliament’s control over public finance and its general oversight over the executive, and public access to information held by government. We will make no further comment at this stage on these issues as the matter is pending before the Supreme Court.

On the procedural issues, however, the Supreme Court agreed with the averment in our initial petitions that the substance of the Bill impacts on a number of devolved subjects in such a way as to require it to be passed in terms of the special procedure laid down in the Constitution, which involves the consent of the Provincial Councils. Pursuant to this determination by the Supreme Court, the government sent the Bill to the Provincial Councils where consent has been forthcoming, except in the case of the Northern Province, where there is no elected Provincial Council. There is currently a legal challenge by a Member of Parliament for the Jaffna District to the consent provided on behalf of that Province by the Governor. Regardless of the matter being referred to the Supreme Court on the question of the role of the Governor, the Bill was tabled for the second time in Parliament on 9 September 2012. CPA and Dr. Saravanamuttu have challenged the Bill yet again, with the matter to be taken up in the Supreme Court this week.

Aside from these attacks, CPA also wishes to disclose that the military visited CPA on the morning of Monday 15th October, the same day the posters appeared. The military personnel informed CPA security that they in turn had been told by the Postal Department that the CPA address was one that had a connection to the Elections Department, which they were checking. Whether there is some causality between the appearance of the poster and the visit by the military, or whether it is mere coincidence, we are at a loss to understand how the military has a role in the conduct of such inquiries in terms of the law of the land.

Beyond the vilification and incitement of public hatred against an individual, we are concerned that these developments signify deeper changes that seem to be occurring in our post-war political culture. The government seems increasingly to regard not only critique and dissent from civil society, but also any constitutional restraints on its power as unacceptable to its agenda, and its stock response to any form of democratic dissent is to accuse opponents of a lack of patriotism. It seems to regard populism and majoritarianism as the only legitimate elements and forms of democracy, and needless to reiterate, CPA is founded on a set of beliefs, which are directly contrary to such perspectives on democracy.

We believe that forms of electoral democracy that are unrestrained by constitutional controls, checks and balances, the rule of law and the independence of the judiciary, fundamental rights and minority protections, devolution, and a vibrant and sceptical electorate, media and civil society, constitute no democracy at all. The emasculation of these fundamental principles in the purported interests of economic development is not only a false dichotomy, but also serves to corrode the traditions of choice and change we have enjoyed as part of the democratic way of life since 1931.

As the history of many countries which have had the unfortunate experience of populist authoritarianism has shown, the attenuation of legal and political restraints on political power that is exercised, at first instance, in the form of purportedly ‘pro-people’ policies have an alarming tendency to turn anti-people before long, when governments get used to centralisation and an absence of controls. In the light of recent manipulations of the Constitution, the strengthening of the executive at the expense of both Parliament and democracy, the undermining of established arrangements for ensuring good governance, the treatment of political opponents, violence against protestors, activists and journalists, enforced disappearances, attacks on the independence of the judiciary, the militarisation of civic life, and the pervasive culture of impunity, we wish to state categorically that we see a process taking place in Sri Lanka today which is aimed at dismantling surviving liberal democratic institutions and norms, including through the demonisation of critical voices.

These developments are taken lightly at the peril of our democratic future.

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Download images of the poster here and here.

Download PDF of this Press Release in English here, Tamil here and in Sinhala here.

The Centre for Policy Alternatives Vs. Attorney General (Appropriation Bill) (SC SD 15/2012)

The Bill titled ‘Appropriation’ was placed on the Order Paper of Parliament on 9th October 2012. The Centre for Policy Alternatives (CPA) and its Executive Director Dr P. Saravanamuttu filed a Petition on 16th October 2012 in the Supreme Court (SC SD 15/2012) challenging the constitutionality of certain clauses of the Bill.

CPA contended that clause 5 and 6 of the Bill were inconsistent with the provisions of Articles 3, 4, 148 and 150 of the Constitution and that clause 2(1) (b) and 7 of the Bill were inconsistent with Articles 3, 4 and 148 of the Constitution. In these circumstances CPA submitted that the said clauses cannot be enacted into law unless if approved by the People at a Referendum in addition to a two-thirds vote of the whole number of the members of Parliament in favour as required by Article 83(a) of the Constitution.

The matter was taken up in the Supreme Court on 22nd October 2012. Written Submissions were filed on the 26th. The Supreme Court sent its determination on this matter to the Speaker in early November. The Appropriation bill was passed in Parliament on 8th December, 2012.The Bill passed in Parliament on 9th of April 2013 with amendments.

The Centre for Policy Alternatives Vs. Attorney General (Divineguma Bill (2)) (SC SD 6/2012)

A Bill titled ‘Divineguma’ was placed on the Order Paper of the Parliament (for the second time) on 9th October 2012.On presenting the Bill to Parliament the Hon. Speaker informed Parliament that the Governors of all 9 Provincial Councils had informed H.E the President that the respective Provincial Councils had no objection to the enactment of the said Bill.

The Centre for Policy Alternatives (CPA) and its Executive Director Dr P. Saravanamuttu filed a Petition on 11th October 2012 in the Supreme Court (SC SD 06/2012) challenging the constitutionality of the Bill.

CPA reiterated its contention that the Bill violated Article 148, Article 150 and Article 4(A) read together with Article 3 of the Constitution.  In its earlier determination the Supreme Court held that it did not need to examine the said inconsistencies as Bill had not been properly placed on the order paper of Parliament.

CPA contended that in light of the Northern Provincial Council not being constituted the procedure set out in Article 154(G) 3 could not have been followed and hence the Bill could not have been placed on the order paper for the second time. CPA further contended that the Governor was not empowered under the constitution to “express his views” on behalf of the Provincial Council and that such an usurpation by an executive actor of legislative power would be in violation of the doctrine of separation of powers.

The matter was taken up in the Supreme Court on 18th, 22nd and 23rd October 2012. Written Submissions were filed on the 24th.Media reports indicate the Supreme Court having sent its determination on this matter to the Speaker. The determination was presented to Parliament on 6th November 2012.

Divi Neguma bill was debated in Parliament on 8th January 2013.It was passed in Parliament with 2/3 majority and 160 voted for the bill while 53 voted against it.

Statement on the assault of the Secretary of the Judicial Services Commission (JSC), Mr. Manjula Tillakeratne

10 October 2012, Colombo, Sri Lanka: CPA strongly condemns the assault on the Secretary of the Judicial Services Commission (JSC), Mr. Manjula Tillakeratne on 7th October and demands an immediate end to intimidation and physical violence against the judiciary and all other dissenting voices. This attack is the latest episode in a series of intimidating and sometimes violent attacks on the judiciary and a direct threat to its independence in post-war Sri Lanka. Subsequent to the assault, the authorities stated that action will be taken against any perpetrators. This is a standard response following violent incidents. There is no genuine follow up in most cases and perpetrators are not held to account. As in the past, CPA calls for a full and speedy investigation and action to bring the perpetrators to justice. There has to be an end to the culture of impunity.

CPA has been disturbed by a spate of incidents in recent days targeting the judiciary and its officers. Mr. Tillakeratne himself has been publicly vilified, including by the President himself at a meeting with journalists on 27th September, after the JSC issued an unprecedented press statement alleging that the independence of the judiciary was under threat. More recently, Mr. Tillakeratne predicted violence when he alerted the media to threats to the security of members of the JSC and their families.

This incident must, therefore, not be viewed in isolation. The attacks on the judiciary are the culmination of a systematic effort to intimidate and silence all critics of the government. It further demonstrates that a fundamental premise on which our democracy, indeed any democracy, is supposed to be built – the rule of law and the independence of the judiciary – are under severe threat. CPA has consistently highlighted the systematic breakdown in the rule of law and of independent institutions, and among others, challenged the Eighteenth Amendment to the Constitution. It is of paramount importance that the authorities immediately arrest these dangerous trends and adhere to the commitments made by the government to preserve and protect the fundamental elements of a functioning democracy in our country.

Download this press release in Sinhala here.

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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.