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Save Parakrama Samudraya!

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By Bandula Kendaragama, Dam Safety Consultant, Melbourne, Australia

This article is written based on information collated through consultations that were submitted as a technical report recently to President Gotabaya Rajapaksa and other relevant government authorities. The consultations were among those who had been interested in dam safety and directly involved in managing the “Narrowly-Missed” breach and in the reconstruction of the Parakrama Samudraya bund after the Cyclone in 1978. They considered it appropriate in sharing concerns and acquired knowledge with the public at this crucial juncture of decision-making on the safety of the aging irrigation infrastructures in Sri Lanka.

The Parakrama Samudraya Reservoir was built by King Parakramabahu the Great, during his reign (1153-1186 AD) and it has a reservoir capacity of 116,000 acre-feet, feeding approximately 25,000 acres of paddy cultivation. This reservoir has a bund 52 feet high and 10 miles long.

The study on the Parakrama Samudraya bund was undertaken owing to information and misinformation that had been widely shared and debated in the formal media, and especially in the social media, concerning the Parakrama Samudraya bund being proposed as a site to construct an 8-feet wide walking path. Further, it is noted that similar walking paths will be constructed on bunds of other reservoirs such as Kantale, Udukirala Wewa, etc.,

Cyclone in 1978

The 1978 Cyclone started with the onset of the storm formed on 20 November 1978 over the southwest Bay of Bengal. It intensified gradually, reaching Super Cyclonic Storm Status Category 4 Cyclone on 23 November with a gusty wind speed of 220 kmph. The 1978 Cyclone was the second strongest Super Cyclonic Storm to strike Sri Lanka’s Eastern Province since modern records began. The cyclone attained peak intensity on November 23, before making landfall in Batticaloa. The Eastern Province was heavily affected by the cyclone.

The cyclone had devastating impacts in Sri Lanka, killing about 915 people and an unaccounted number of cattle and other animals. An estimated more than one million people were affected, with over 250,000 buildings damaged, and one-fifth of Batticaloa’s fishing fleet destroyed. Nine of the 11 paddy stores were destroyed and 90 % of the coconut plantation (about 28,000 acres) in the Batticaloa district were destroyed. Also, in Polonnaruwa District, the public and private infrastructure, paddy, and rice stored in Food Commissioners and Cooperatives, coconut cultivation, etc., were devastated.

Cyclone 1978 and Parakrama Samudraya

The Cyclone reached the Parakrama Samudraya bund at about 6:30 pm on 23 November and lasted till about 4:00 am on 24 November. According to eyewitnesses, the height of the waves was 10 to 12 feet. Knowing the imminent catastrophic danger of overtopping leading to a breach of the bund, the Irrigation Engineer in charge of Polonnaruwa A. D. S. Gunawardana, the Government Agent Polonnaruwa Austin Fernando, and a few other officials, on duty, decided to be ready with a few bulldozers and retain them standby at strategic locations such as at the sluice and spillway, to breach the bund at these locations if the need arises.

The idea behind this decision was if the predicted overnight rainfall occurred and the anticipated inflow to the Parakrama Samudraya did really eventuate, the inflow would have been greater than the outflow with all 10 radial gates and the sluice gates kept open. Then there was a risk of overtopping and breaching the bund. Hence, an artificially introduced breach of the bund to discharge floods along the existing channels would prevent a haphazard catastrophic breach at an unknown and unwanted location, which could inundate the heavily populated downstream areas. Such an emergency rapid drawdown is the standard practice to prevent a dam breach. Fortunately, predicted overnight rainfall was low. However, the drawdown of the reservoir continued overnight.

Following the overnight drawdown, about 2/3 of the 12-feet wide bund top road and a fair portion of the upstream shoulder were found to be slipped into the reservoir, leaving only about 1/3 of the bund top road intact. There were widespread such slips along the full length of the bund. The damaged areas were repaired with earthfill and Ralapanawa reinstated as a short-term risk reduction measure. The upstream face of the Ralapanawa was not flattened to improve the safety margin (i.e., Factor of Safety) of the bund in case of future similar drawdowns as it was a long-term risk reduction measure to be implemented by the Government Authorities. Therefore, consideration should be given to implementing appropriate long-term risk reduction measures.

Walking Track Proposal

Based on information available to date, the proposed walking path will be constructed on the upstream side of the bitumen surfaced bund top road where there was a sliding failure during the 1978 cyclone and floods (See Figure above 1).

Several long tension cracks, sealed with tar, are present on the bitumen surfaced bund top road as seen in videos of Sri Lanka media. Most of them are located along (parallel) the bund top road, thus increasing the risk of sliding failures similar to those that occurred during the 1978 floods. Additional loads due to the construction of a walking path would widen and deepen those tension cracks, compromising the safety of the bund, which is not known.

Therefore, it is the considered view that additional loading on top of the 1978 sliding mass for construction of the walking path would increase the risk of reactivating the 1978 slides during a future rapid drawdown, similar to in 1978.

It is understood and appreciated that the Irrigation Department is currently undertaking geotechnical investigations to assess the safety margin of the bund.

The highest concern is dam-safety

Based on information available, it is understood that there is a period of 741-years (i.e., from 1159 to 1900), where the performance of the bund is not documented and unknown. However, it is reported that the bund was totally breached during the colonial era. According to R L Brohier, the bund and the reservoir were abandoned for more than a century.

Given that the population at risk in case of a dam break is extremely high, it appears that the consequence category of this bund is “Extreme” as per the current international dam safety guidelines. Therefore, the proposed walking path at Parakrama Samudraya cannot be compared to that of the Kurunegala Wewa, Boralesgamuwa Lake, etc., constructed along the reservoir rim, and the walking paths constructed around water bodies in the suburbs of Colombo.

It is understood that the Parakrama Samudraya is formed by combining three reservoirs of unknown history. Therefore, the bund may have been raised in several stages during the 741-years associated with unknown performance. It is not known whether dam safety-related defects of the bund such as slips or slides, cracks, animal burrows, sinkholes, soft areas, root bowls, zones of desiccation cracking, zones of residual shear strength because of historical failures, etc., were repaired to satisfactory standards, or not.

The aging of dams constructed of earth and rockfill material is due to time-related changes in the properties of the materials of the structure and its foundation. As reported in a technical paper published in May 2010 by the United States Society of Dams, the aging or deterioration of embankment dams and their foundations are of concern. These concerns extend throughout the entire life of the dam until safe abandonment or demolition.

Recent interventions on dam-safety

Given the dam safety issues associated with this controversial walking path project, the Water Forum of the Institute of Engineers in Sri Lanka conducted a Webinar on 09 September 2021 on “Usage of Inland Water Bodies for Recreation”. More than 280 personnel, mainly engineers, participated in this Webinar and raised over 100 questions related to the safety of the bund. Several questions were raised on fundamental errors and potential failure modes associated with the proposed walking path. It appears that ad hoc decisions have been taken for reasons unknown. The lack of laws and dam safety regulations in Sri Lanka could be one of the reasons for such ad hoc decisions taken by various individuals and organisations.

As far as dam safety regulations are concerned, India is well ahead of Sri Lanka. Even Ghana in Africa has introduced Dam Safety Regulations to ensure the safe design, construction, operation, and maintenance as well as decommissioning of dams.

Based on statistics of embankment dam failures and accidents, 48% of dam failures are related to overtopping and failures of appurtenant structures, and 46.5% are due to internal erosion. Due to the absence of an internal filter system in this bund, not only the slope instability, but the internal erosion is also likely to be a prominent potential failure mode.

It is understood that planning is underway to construct several fast-food outlets, toilet facilities (including a “changing room”) at the toe of the bund, i.e., within the reservation area of the bund located immediately downstream of it. It is to be stressed that this stretch of land along the bund is a critical area to ensure the safety of the bund. Identification of dam safety features such as heaving the ground, cracks, wet areas, springs, seepage locations, etc., in this area, is critical. Digging of lavatory pits, trenches, etc., could intercept permeable layers in the foundation and may trigger “backward erosion tunnels” leading to piping, which is a major failure mode in embankment dams (or, bunds). Excavations in this area could lead to sides of the downstream face of the bund, compromising its safety margin.

Should there be a need to improve the safety margin of the bund, additional stabilizing fills are to be constructed in this area over the downstream face of the existing bund. An access road along the downstream toe of the bund is an essential item for repairs and routine maintenance of the bund. Given the proximity to the dam, this reservation area should be used to stockpile materials to be used during dam emergencies such as filter sand, crushed rock, rockfill, etc., and movement of construction machinery for maintenance and repairs. This area is an integral part of the bund, hence should not be used for either permanent or temporary constructions. Therefore, consideration should be given to providing these facilities at an alternate suitable location, perhaps close to the Government Agent’s residence, or thereabouts.

Recommendations to maintain dam safety

Based on dam safety concerns and consequences discussed, it is recommended that,

1) the crest of the bund is reserved for routine maintenance, including replacement of displaced Ralapanawa if necessary, placement of additional boulders if required, and for construction of temporary overtopping protection bund using ‘Sandbags”, as and when required.

2) the stretch between the Ralapanawa and bitumen road be reserved for the construction of a wave wall to meet the dam safety requirements of future hydrological reviews to be undertaken during the service life of the reservoir and bund.

3) a safe “Load Capacity” be imposed on the bund top road, and arrangements are made to stop all heavy trucks plying on the bund top road as the bund has not been designed for such traffic loads.

4) the bund top road is completely closed for all traffic, say from 5:30 am to 7:30 am and then from 6:00 pm to 9:00 pm or as agreed by local authorities, in the preferred 2km long stretch, and then the existing bitumen surfaced bund top road to be used as the walking path (Alternatively, only the upstream-half of the bitumen surfaced bund top road to be used as the walking path while the downstream-half of the bitumen surfaced bund top road to be kept open for one-way light traffic only, subject to nominated maximum speed to ensure the safety of people using the walking path).

5) an alternative walking path (For example, in the reservoir rim), be investigated which will not compromise the safety of the dam.

6) the reservation area located immediately downstream of the bund is not used for developments that are been planned by the Urban Development Authority as this area is very sensitive to dam safety issues.

7) the reservation area located immediately downstream of the bund, which is an integral component of the dam, be a property of the Irrigation Department for inspection and monitoring of critical dam safety features, construction of a toe access road, construction of stabilizing fills if required, stockpiling of construction materials required during dam emergencies, etc.,

8) a potential failure modes analysis and Risk Assessment be undertaken in accordance with international dam safety standards.

9) a Design and Safety Review of the dam and appurtenant structures be undertaken in accordance with the international dam safety standards incorporating review of geotechnical parameters of the bund and foundation, hydrology, wave run-up, seismicity, flood handling capacity, reliability of gates and instrumentation, etc.,

10) sufficient funds must be allocated to undertake Design and Safety Reviews of all “Extreme” consequence category dams in Sri Lanka.

11) sufficient funds must be allocated to routine maintenance of dams (Note: Depending on their nature, some maintenance items, if not addressed in a systematic and timely manner, may eventually become dam safety issues, eventually leading to failure of dams).

12) early arrangements must be made to implement the recommendations of the Cabinet Memorandum No. 11-2020 dated 26 October 2020 on the Establishment of a Dam Safety Consultation Centre and a Dam Safety Regulatory Mechanism.

(The author can be contacted on email: bandula.kendaragama@gmail.com)



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Opinion

Is AKD following LKY?

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by Chula Goonasekera
Rev. Dato’ (Sir) Sumana Siri

We, the citizens of Sri Lanka, have already witnessed significant reforms in governance under AKD’s leadership. This personally led process must continue consistently, free of bias, and within the framework of the law to ensure sustainable governance by the State, not the individual. Such efforts will help minimise the waste of public funds and lay a strong foundation for the nation’s development in the long term. We often look to Lee Kuan Yew (LKY), Singapore’s founding father, as an example of transformative leadership. He united three diverse ethnic groups—Chinese, Malay, and Indian—under the principle of honesty. Today, Sri Lanka faces profound challenges from past political corruption, economic instability, and social divisions. LKY’s leadership serves as a reminder that integrity, accountability, and a commitment to the greater good can redefine a nation’s destiny, regardless of its size or resources, similar to Singapore.

When Singapore gained independence in 1965, it was a small, resource-scarce nation facing political unrest and ethnic divisions. Yet, within one generation, it became a global financial hub and a first-world country. LKY’s leadership was pivotal, centred on three core principles: meritocracy, integrity, and pragmatic governance. He prioritised national security, social cohesion, and economic growth. His efforts to foster ethnic harmony included implementing bilingual education policies and enforcing anti-discrimination laws. Similarly, AKD should consider enacting legislation to prevent racially motivated demands, i.e. anti-discrimination laws, to safeguard the government from evil, selfish minds trying to destabilise the government’s commitment to equality. Such legislation will stop this burden falling on the leadership case by case.

LKY’s policies, though sometimes harsh, were rooted in practicality and long-term thinking. The Internal Security Act ensured peace and stability during critical years. Likewise, his investments in education and infrastructure established a foundation for sustained growth. His focus on political stability, a robust legal system, and zero tolerance for corruption inspired investor confidence. Singapore’s Corrupt Practices Investigation Bureau (CPIB) was empowered to tackle corruption at all levels. Sri Lanka must adopt a similar mindset to revitalise the Bribery and Corruption Commission, moving away from populism and short-term fixes in favour of strategic, future-oriented policies.

AKD’s primary election theme was anti-corruption, reflecting a key aspect of LKY’s leadership. His unwavering stance against corruption defined LKY’s pragmatic governance. He held public officials to the highest accountability standards, ensuring that anyone guilty of corruption faced severe consequences, including dismissal, public exposure, and prosecution. By rooting out corruption, Singapore built domestic credibility and attracted global investment. We in Sri Lanka need such legislation at the earliest opportunity to deal with various kinds of corruption that are appearing again and involving many public officials.

In Sri Lanka, corruption has long undermined public trust in institutions and stifled economic growth. With overwhelming public support, AKD is well-positioned to deliver on his promise to combat corruption. However, this needs to be done early before the government gets entangled with controversy over its own ‘tiered’ standards. Through comprehensive legislative measures, Sri Lanka can rebuild its institutions, restore public confidence, and chart a course toward sustainable development.

LKY was considered “cruel” by some because he treated all races equally without favouring any. AKD shares a similar stance. One of the hallmarks of LKY’s leadership was his unwavering commitment to meritocracy. This created a culture of excellence where the best and brightest minds were responsible for leading the country. In Singapore, recruitment and promotions across all sectors were strictly based on merit—capabilities, skill sets, and abilities—not on connections, nepotism, racial considerations, or personal favouritism. Although challenging to implement, meritocracy can be implemented with the open advertisement of qualifications needed, a transparent appointment process, strict job plans with annual reviews linked to customer feedback, and personal development strategies that are considered a necessity to continue. This approach will foster a culture of excellence and innovation, like Singapore, ensuring that the most capable individuals propel the country forward.

Sri Lanka must break free from the grip of favouritism and focus on nurturing talent through equal opportunities for all citizens, regardless of ethnicity or social background. Early signs of this approach are visible under AKD’s leadership. LKY understood that for a nation to progress, its institutions must be led by those who are truly capable, irrespective of their background. By adopting meritocracy, Sri Lanka could break the cycle of favouritism, nepotism, and ethnic division that has often hindered its development. Establishing a system where opportunities are based on ability and performance could unlock the full potential of Sri Lanka’s people, fostering a culture of innovation, growth, and national unity.

After gaining independence in 1965, during Singapore’s formative years, LKY focused on eliminating corruption, gang activities, and communist threats to create a peaceful and secure nation. The Internal Security Act (ISA) granted his administration discretionary powers to arrest and detain individuals without trial, when necessary, to prevent actions deemed harmful to Singapore’s security, public order, or essential services.

The ISA allowed preventive detention, suppression of subversion, and countering of organised violence against persons and property. Sri Lanka urgently needs a similar act to ensure that politicians and public officials comply with legally binding measures. With its Parliament still in its formative stages, we hope Sri Lanka will soon establish a comparable Internal Security Act. By eliminating corruption at all levels, as LKY did, Sri Lanka can inspire public trust and attract international investors who view stability and a corruption-free environment as prerequisites for investment. This approach could transform Sri Lanka into a manufacturing, business, and financial hub for the Indian Ocean region.

Under LKY’s leadership—often described as strict—Singapore transformed from a third-world nation into a first-world country. Sri Lanka has the potential to achieve even more, given its abundant natural resources, strategic location, and educated population that can be developed into a skilled workforce. With its prime position in the Indian Ocean, Sri Lanka could become a regional economic powerhouse—provided it fosters a stable and investor-friendly environment. Like Singapore, Sri Lanka should adhere to a non-aligned foreign policy to emerge as a crucial node in global trade and finance, maintaining friendly ties with Eastern, Western, and Asian powers while leveraging its strategic location.

While some label LKY’s methods as “cruel,” his leadership was not about oppression but discipline and fairness. Whether these policies were “cruel” or benevolent is debatable, but their results speak for themselves. He treated all races equally, fostering harmony in a diverse society by ensuring everyone felt they had a stake in Singapore’s future. Moreover, LKY’s economic policies were marked by simplicity and foresight. Low personal income taxes, the absence of capital gains and inheritance taxes, and a business-friendly environment encouraged reinvestment and entrepreneurship. By positioning Singapore as a global trade and financial hub, LKY ensured its economic resilience. Sri Lanka, too, must prioritise national unity. Divisive politics and ethnic biases must be curtailed to build a shared vision of prosperity and peace, as AKD is striving to do.

LKY’s leadership was built on three core tenets relevant to Sri Lanka today: meritocracy, integrity, and pragmatism. Encouragingly, AKD appears to be moving in a similar direction. One of LKY’s greatest strengths was his pragmatic, long-term approach to governance. He maintained tight control over domestic finances, preventing the internationalisation of the Singapore dollar and limiting the operations of foreign banks. This created an environment that attracted international firms eager to establish themselves in Singapore. Sound financial policies, a corruption-free environment, and a focus on technological advancement helped Singapore become a hub for multinational companies like General Electric. State-owned enterprises like Temasek Holdings and Singapore Airlines were run with business efficiency, often outperforming private sector competitors. Sri Lanka could adopt a similar model to enhance the performance of its state-owned enterprises and boost economic growth.

Singapore adopted a two-pronged financial strategy: becoming an international financial hub while ensuring its financial sector supported key domestic industries like manufacturing and shipping. Additionally, integrating foreign and local talent fuelled decades of sustained economic growth. LKY’s focus on economic development, making Singapore an attractive investment destination, and drawing world-class manpower offer valuable lessons for Sri Lanka.

To replicate such success, Sri Lanka must invest in state-of-the-art infrastructure, establish excellent air and sea linkages, and maintain a low and transparent tax regime.

Clean and efficient bureaucracy, a strong regulatory and legal framework, and a neutral diplomatic policy—balancing relations with global powers like the US and China—are critical. Developing clean, green cities powered by sustainable energy will also be key to achieving remarkable economic success akin to Singapore’s.

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Opinion

‘A degree is not a title’ – a response

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Reference the above-captioned letter in The Island of 16 Decembe, its writer, Philosophiae Doctor (PD), he is incorrect in his analysis of a Ph. D degree as a title. As Dr. Upul Wijewardena has said, only a Ph. D holder who can use the title ‘Dr’. However, the tradition is for those who have a medical degree to be called Dr. PD has written about the history of universities and quoted chapter and verse about the origin of degrees. We are now in the twenty first century and most universities have their own system of awarding Ph. Ds. For instance, British universities award Ph. Ds based on 100 per cent research whereas in American universities Ph. D degrees are awarded on the basis of 50 per cent research and 50 per cent course work. The research degree is given more weight at interviews.

PD has also said that a Masters’ Degree (MA) is essential to teach in a university.  Many universities including universities in Sri Lanka offer Assistant Lecturer positions to those who have first degrees with classes. Some time ago, the Dean of the faculty of Arts at Otago university, New Zealand had only a B.A. He was appointed Professor because of his publications. In American universities lecturers with a Ph. D are addressed as Assistant Professor. Then a Professor after retirement has to get permission from his university to use the title as Professor (Emeritus). There is no such requirement for a person with a Ph. D to use the title Dr.  Modern universities do not follow procedures that were adopted in old Europe mentioned by PD.

Dr. P. A. Samaraweera

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Opinion

Electricity tariffs cannot be reduced due to CEB Mafia

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Ceylon Electricity Board (CEB) has apparently become a law unto itself; it is increasing the salaries and other perks for senior staff at their will. There are 26,131 employees of CEB and its monthly salary bill is around Rs. 3,000 million, out of which 600 million goes for the salaries of engineers. A special grade engineer’s monthly take-home salary is reportedly about Rs. 919, 432 while an E1 grade engineer draws around Rs. 694,240 a month. These include a vehicle allowance of Rs. 250,000 and other benefits. The CEB has thought it is fit to regularly increase the salaries at the insistence of the powerful engineers’ union every three years without getting the approval of the cabinet or the public accounts committee of the finance ministry.

Out of the total number of employees at least 50% are political appointees recrutied by successive ministers of the power and energy ministry. Even the salary of a meter reader is Rs. 54,420 and it comes to around Rs. 125,000 a month. This is far higher and about 100% more than a graduate teacher. With such an excessive workforce earning exorbitant salaries no wonder that the CEB cannot reduce the electricity bills of consumers. There are 6.29 employees for every megawatt (MW) of power generated by CEB while the Malaysian Electricity Board generates six times more power and has only 1.15 employees for one MW of power generated!

PAYE tax should be borne by the employee and it is against the Inland Revenue Act for an institution to pay the PAYE tax due from its employees.  It has been revealed before the COPE (the Committee on Public Enterprises) that Rs. 5 billion has been paid by the CEB as PAYE tax to its employees during the period 2010-2019 in contravention of a Cabinet decision on 13 December 2007. This, the CEB has been doing at the expense of consumers, who have to pay higher tariffs.

Verite Research has revealed that Sri Lankan households pay 2.5 to 3 times more for electricity than the average cost to their counterparts in South Asian countries. Our rates are much higher than in Bangladesh and Afghanistan. For instance, a consumer using 300 units of electricity has to pay an electricity bill of Rs. 21,860 while the average equivalent rate in South Asia is only Rs. 7,340. This shows how our professional engineers have managed the CEB power generation so inefficiently over the years.

 The reason for this inefficiency is due to the neglect of renewable energies in Sri Lanka. The CEB engineers have always advocated for more and more coal-powered plants. They have deliberately blocked renewable energy projects for obvious reasons.  The Supreme Court has found the CEB guilty of blocking a proposal by Vavuniya Solar Power Private limited for a solar energy plant and ordered it to pay Rs 01 million rupees as damages. This, too, would have been paid from CEB funds and those who took such corrupt decisions have got off scot-free. The technical officers of CEB allege that CEB management has purchased power from private power plants despite an increase in hydro power generation. In case hydropower is insufficient to meet the demand another idling turbine at Norochcholai could have been put into operation. There are serious allegations that CEB engineers are intimately connected to such private power plants and even own all or part of them. The new government should appoint an independent commission to investigate allegations against the CEB.

Concerned Consumer

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