Features
Post-election Dimensions of Governance—Revival, Reconstruction and Reconciliation
by C. Narayanasuwami
(A member of the former Ceylon Civil Service and Retired Senior Professional of the Asian Development Bank, Manila, Philippines)
There has been substantial discussion in recent weeks on what follows next after a convincing victory by the JVP/NPP. Informed and analytical articles have appeared in the country’s main media outlets outlining the varied tasks at hand for the new government to fulfil its mandate to the people. This Paper is intended to highlight a few priority areas for initiating development guided by the principles of good governance.
Components of Good Governance
Good Governance has been singled out as the most important criterion for sound development management. A World Bank Report on Governance and Development (1992), states that “good governance is central to creating and sustaining an environment which fosters strong and equitable development”. This concept has been reiterated several times subsequently in recent years.
The components of good governance are identified as follows; (i) an effective policy framework that incorporates both growth and equity-oriented policies, (ii) a corruption free management system that rewards good performance, (iii) a well-founded institutional framework, including a good public administrative structure with sound recruitment and retention policies for civil servants, (iv) a qualified, competent and skilled workforce at different implementation levels and (v) overall politico-legal framework that supports non-discriminatory policies, and promotes initiative and dynamism in project and program execution.
Sri Lanka has suffered substantially in upholding many of these requirements/values in the last few decades largely due to the adoption of ill-conceived policies and implementation structures, which combined with entrenched corruption in the entire body politic, seriously undermined effective execution of planned development interventions. Today we are at the crossroads because of the rampant misuse of public funds, flagrant violations of the rule of law and inefficient delivery of public services.
Prioritising and formulating developmental interventions
The tasks that lie ahead are formidable – the government must start working on areas requiring immediate intervention. The writer offers his views based on his own personal experience as a senior public servant in Sri Lanka and as an international civil servant who offered his services to 24 countries in the Asia- Pacific Region as a senior professional of the Asian Development Bank (ADB). The suggestions that follow may evoke controversy but every citizen has the right to offer his/her thoughts on subjects of national importance.
In his first policy speech in the Parliament, the President identified key areas that require intervention, specifically drawing attention to agriculture, rural development, poverty reduction, fisheries, tourism and elimination of corruption, among others. The state of the country warrants simultaneous action on many of these areas. The question that arises is whether the country’s current implementation framework and public service orientation will be conducive to support initiatives in this regard without system change.
System change
was strongly endorsed during the elections and remains the key issue for the government today. Changing highly entrenched practices and procedures require commitment, accountability and a high sense of integrity. As the President himself noted in a recent public speech, corruption has seriously undermined the effectiveness of even the Anti-Corruption Watchdog. Several interrelated issues must be addressed on an urgent basis if system change is to become a reality.
Reforming Public Service
Reforms cannot be instituted unless systems inimical to change management and development are drastically modified or changed. Mr. Lee Kuan Yew, former Singapore Prime Minister is credited with the statement that a “little bit of totalitarianism is essential to develop countries which have remained lethargic for years”. This is undeniably an apt statement in the context of Sri Lanka which needs to adopt strong policies to make the public service deliver.
There was a recent statement that the public service is overstaffed with around 750, 000 of the 1.3 million staff considered redundant. A ‘needs review’ should be undertaken as soon as possible to carefully evaluate the scope for reduction and possible retirement and redundancy payments. This should be done in consultation and coordination with staff unions to ensure that the overall scope for redundancies is mitigated by re-employment in new ventures, transfers or changes in roles.
The issues relevant to this phenomenon have been addressed in several documents in the recent past – the writer addressed this problem in a Paper published by the Centre for Policy Alternatives, Colombo in April 2016 entitled, “Public Administration in Sri Lanka and the 19th Amendment to the Constitution: Prospects for the Future”. This was further elaborated in his book, ‘Managing Development: People, Policies and Institutions’ published in 2019. Several strategies were identified to redeploy and retrain superfluous staff, merge staff functions and retire unproductive staff through ‘Golden Handshakes’ or similar incentive filled approaches. Unfortunately, very little has been done up to date.
It may be prudent to look at the historical context and learn from lessons to determine changes required to deepen developmental thrusts.
Phases in Sri Lanka’s Development Trajectory
The history of Sri Lanka’s development is characterised by several phases closely following the thoughts and actions of leaders who controlled its destiny since independence. The immediate post-independence period, 1948-1956, much of it under the first Prime Minister, Mr. D.S. Senanayake was the first development phase. This phase arguably was the period of agricultural reawakening with priority accorded to the renewal of the tank civilization. Several initiatives were taken to build, renovate and revive ancient tanks for agricultural development. Simultaneously, colonization schemes or tank-based settlements were established in hitherto underdeveloped areas such as Anuradhapura and Polonnaruwa. Epoch-making changes in the social sphere such as the establishment of the free education system and an equally accessible health system greatly beneficial to the citizens of Sri Lanka, created new opportunities for revitalising the tradition-bound social structure.
The second phase from 1956-1965,
turned out to be a period of mixed development in agriculture and industry with a substantial loss in the tempo of development due to the 1958 racial riots, the Sinhala Only Bill, and poor political leadership which undermined social cohesion and economic stability.
The third phase -1965-1970-
saw some progress in accelerating agricultural production with emphasis given to both plantation and domestic agriculture. No concerted efforts were made however, to address some of the fundamental problems affecting the industrial sector.
The next phase-1970-1977
-witnessed some success in enhancing agricultural productivity with equal emphasis given to paddy and subsidiary food production. This period saw the country moving toward self-sufficiency in subsidiary food production but unfortunately it did not last long because of rebel activity – JVP insurrection and LTTE activism- resulting in increased suppression and damage to life and property island wide.
The 1977-1989
phase was a turning point for private sector involvement in development activities which embraced garment industries, telecom and tourist-oriented ventures, in addition to development of small and medium scale enterprises. The private sector emerged as an engine of growth for the first time. Despite these positive developments, the country had to encounter significant downturn in agricultural productivity and social mobility, again due to civil conflicts and insurgencies, both in the north and south. The burning of the Jaffna Public Library, an insensitive and abhorrent event in Sri Lanka’s history, added to increased ethnic tensions.
The ensuing phase-1989-1993
witnessed continued civil conflicts leading to subdued development activities. The major thrust in development during this period was in state sponsored housing and urban development.
The next phase 1993-2004 and thereafter from 2005- 2020
could be categorised as the infrastructure era with roads, railways and airports given considerable investment support along with substantial private sector investment in export-intensive garment industries and agricultural products. Despite these efforts, the country’s growth remained stagnant because of corruption and mismanagement particularly after 2005, altering the pace, direction and durability of investment operations. This led to significant decline in valuable international goodwill and support. Variations in governance, including diminished trust and accountability in government operations, and the establishment of less impact projects such as airports created widespread dissatisfaction among the general populace.
Lessons of Development Learned during the past seven decades.
The foregoing analysis suggests that during the past seven decades Sri Lanka witnessed uneven, isolated and disjointed development efforts and substantial break up of social cohesion
that led to significant exodus of the population to western countries in search of greener pastures. The level of dissatisfaction and disenchantment was convincingly proven in the overwhelming support given by the people to JVP/NPP and Anura Kumara Dissanayake (AKD) in particular, at the recent elections.
The major lessons of development could be summarised as follows:
· Development operations were centred on programs and projects that reflected the ideals, political philosophies and the entrenched thought processes of the ruling elite and was not assessed in a holistic manner taking into consideration the diverse needs of a multi-ethnic nation. There was no long-term vision although several 10 year and five-year plans, and a ‘Regaining Sri Lanka’ planning document were prepared. The tragedy of planning in Sri Lanka was that at no time did any of the development plans enlist all-party support and were not viewed as development visions representing overall national perspectives.
·Planning and executing development projects require mature skills in project development and consistency and continuity in implementation. Malaysia adopted a singularly successful monitoring system in the sixties and seventies. Relevant operations came under the direct purview of the then Prime Minister of Malaysia. The establishment of an ‘Operations Room’ in the Planning Secretariat of Sri Lanka in the late 1960s to monitor implementation, including identification of shortfalls with a view to taking remedial action, was an innovation that was adapted from the Malaysian model. This worked well initially but the momentum declined in subsequent years when enthusiasm waned with the change of governments. The concept was revived in 2022 but its operational performance has not yet been evaluated. It is widely recognised that development requires continuity, enlightened monitoring strategies and thoughtful mid-term interventions for achieving good outcomes.
· The three-decade civil war led by the Liberation Tigers of Tamil Eelam (LTTE) severely damaged development operations, and the impact of this was noted in destroyed infrastructure, dilapidated irrigation systems, neglected agricultural activities, and destruction of small-scale industries, all of which resulted in increased poverty and distress among the affected population.
· Social cohesion was destroyed, and ethnic tensions had a pernicious effect on communal activities destroying peace, trust and happiness among well-bonded village communities.
· Unbridled corruption was pervasive from the level of the grass-roots level institutions to heads of institutions/departments making investments costly, unattractive and less profitable. This has had serious repercussions making investors run away from future investments. This was epitomised by a recent statement made by the departing Japanese Ambassador. The result unfortunately was less development and more social dislocation and suffering.
The above analysis confirms how governance approaches, including contradictory socio-economic policies, and lack of a long-term vision contributed to less effective and disjointed development over seven decades. The country continues to remain a developing nation while some of its neighbours have graduated to a first world status. Singapore followed by Malaysia are two examples of countries which had similar beginnings like Sri Lanka but developed fast to overcome their developing country status. Times have changed and a new mandate has been given to revive, review and reconstruct a nation bedevilled by past policies of mismanagement. Past mistakes should serve as solid lessons to promulgate a revitalised approach to development.
Delivering development amidst challenges and opportunities
Policy and Implementation Framework
While policies are framed at the political level the support mechanism for policy planning and implementation are orchestrated through administrative structures. It is axiomatic that an overarching super ministry is given the responsibility for planning and implementing development projects and programs. This has generally been the case in Sri Lanka and many other countries in the region. The President of Sri Lanka has taken over the responsibility for overall management of the ministry of finance, planning and economic development. Plan implementation should be considered central to planning and development and accorded high priority.
The ministry is expected to have overall supervision and oversight in the following areas;
· Support for Policy formulation,
· Designing implementation strategies, including setting of targets, establishing monitoring mechanisms and coordinating delivery of outputs,
· On-going monitoring and post-evaluation of projects and programs.
The current implementation strategies follow a centralised pattern utilising existing decentralized administrative structures at the provincial, district, divisional and grama sevaka levels. The adequacy of the existing administrative structure for planning and implementation needs to be reviewed, restructured and adapted to focus on project/program results/outcomes.
While individual ministries are responsible for implementation of sector-specific programs, it is important that there is proper oversight and coordination at the level of the ministry of plan implementation to ensure that implementation proceeds as originally proposed and that there are no impediments to achieving the intended outcomes. As the functions of monitoring and evaluation are key aspects of project management, it is essential that a highly professional team is set up at the planning ministry level with responsibilities for designing an implementation strategy that accords high priority to achieving targeted results. At the same time, it is important that the ministry also establishes sectoral oversight units or committees consisting of two or three senior staff to oversee implementation at sectoral ministry level by closely monitoring, interacting, and coordinating delivery of anticipated results.
Evaluation of projects/programs
periodically is another management exercise that goes hand in hand with regular monitoring to assess impact and ascertain the level of achievement of anticipated and actual outputs and outcomes. Countries which succeeded in maintaining a rigid, well-coordinated and supervised monitoring and evaluation system such as Malaysia, Singapore, South Korea, Peoples’ Republic of China and currently Vietnam have lessons to offer in this regard. Although Sri Lanka had received considerable multilateral assistance, including from the Asian Development Bank (ADB), to set up good monitoring and evaluation systems since the nineties, and staff were trained, the results achieved fluctuated over the years due largely to management shortcomings and limited enthusiasm displayed by sectoral ministries and departments.
Agriculture, rural development and poverty alleviation
Over 75 percent of Sri Lanka’s total population resides in rural areas and agriculture remains the backbone of the economy. Domestic agriculture has for decades remained traditional with a few innovations here and there. Though considerable success was achieved in providing improved seeds, better extension services, including advanced fertilizer and agro-chemicals (except during the period of President. Gotabaya Rajapaksa who was misguided to change over to the use of organic fertilizer), further technological improvements are necessary to help modernise agriculture.
Procurement, sale and marketing strategies have not progressed adequately to ensure timeliness, efficiency and improved prices to the farming community. Milling continues to remain an oligopoly constricting the emergence of small and medium scale millers. Rice prices are manipulated by the millers to the detriment of both producers and consumers. Reorganisation of agricultural marketing, including activation of modern tools, methods and practices, require more sophisticated government support.
Agricultural and rural development activities complement each other
and provide scope for advanced initiatives in other areas such as construction of rural roads and bridges and setting up of small-scale agro-industries. Improving the scope and content of rural development activities with focus on employment and income generation would constitute important transformative activities in line with the JVP/NPP manifesto and its public announcements during the election. The success of endeavours will depend on the commitment, direction and leadership provided by the different ministries and departments tasked with varied sectoral activities such as agriculture, industry, irrigation, rural development and transport.
Poverty cuts across sectors and territorial boundaries and affects about 26 percent of the population in Sri Lanka.
There is therefore a critical need to address poverty on a holistic basis. Both agricultural and rural development initiatives should be targeted to address extreme poverty in the first instance followed by other vulnerable groups. Infrastructure and industry related projects should also seek to improve the livelihood of rural people whose income levels are below the poverty line.
A separate unit in the ministry of plan implementation should ideally be responsible to initiate, monitor, evaluate and document poverty alleviation efforts undertaken by all ministries.
While sectoral ministries will target special programs for poverty alleviation, the role of the special unit in the ministry of planning should be to ensure that there is no overlap and duplication of efforts and that the final outcomes match originally proposed results. Success stories of other countries such as South Korea and Malaysia clearly suggest that direct interventions and targeted approaches brought about convincing improvement in the livelihood of the rural people.
Reconciliation
One of the hallmarks of the last election was the unity achieved among all communities to elect a new government to work towards equality and fairness in delivering the fruits of development. Having set out openly to achieve development for all, the President has a Herculean task now to complete it. He is aware that missed opportunities, lost ethnic harmony and resultant civil war, and rising corruption levels eroded the benefits of development and made people to wish for change. The nation is now looking for redemption and resolution of the ethnic conflict once and for all.
The question of whether the solution lies in implementing the 13th amendment to the Constitution in full or adopt a new variation ultimately lies in the hands of the government. The President has reiterated that he is for devolution of power and functions to the periphery. The writer considers that substantial devolution of power and functions to the periphery without prejudice to the powers and integrity of the central government would go a long way to satisfy ethnic aspirations.
Question arises as to what kind of structure is viable and justifiable. Looking at the countries around us and beyond, substantial devolution should involve decentralized power to manage education, health, land, police and revenue operations. While the aim of the government should be to ensure equality, justice and fairness for all, a structure is warranted to give legal status to this commitment. Whether this should be achieved through improved delegation to the existing provincial councils or through a new structure could only be settled at the political level with the participation of the concerned ethnic communities. Lack of progress in achieving a consensus can further delay development and hamper efforts to reaching economic stability and social transformation.
Review and revision of existing regulatory provisions for attracting foreign investment and promoting tourism.
Restrictive regulatory policies and practices have hindered the development process considerably in the recent past. Sri Lanka must set up a special overarching institution that will cut red tape, ease restrictions inimical to investment, and provide easy access to investment opportunities. Our embassies, and consulates should be instructed to raise the image of the new Sri Lanka that is willing to engage in fair and reasonable international trade cutting across red tape and corruption.
Tourism has great potential in Sri Lanka because the country is endowed with significant natural resources, including scenic landscapes with beautiful mountains and valleys, moderate climate, and pristine beaches. Tourism cannot be promoted merely through advertising and related promotional activities. Thailand attracts millions of tourists (32 million in 2024), and Vietnam 12.5 million in 2023, because of the exclusive tourist-oriented policies and well-coordinated institutional framework servicing the tourist industry. Improved administrative structure for tourism should facilitate easy entry and exit formalities for tourists. For example, easing of visa restrictions, reduction of cumbersome immigration procedures, improved airport and aviation facilities, and strengthened hotel services serve as important packages for attracting tourists and making them feel welcome to the country. The country has the resources – intellectual and financial – to formulate a new image that will promote tourism and expand trade potential that would help enlarge its foreign reserves.
Conclusions
This paper serves to provide a synopsis of developmental interventions over the last seven decades and identifies issues that constrained development over this period. It also highlights some of the pervasive impediments to development such as ineffective governance, mismanagement, public service inefficiencies and corruption. Some of the more pressing developmental areas that require intervention in line with the proclaimed policy statements of the current government are outlined and discussed with the objective of drawing the attention of the government to move forward decisively.
There is commitment and leadership to steer the country toward the path of development. Priorities therefore need to be accorded to (a) reforming the public service, (b) mitigating if not altogether eradicating corruption in the short term, (iii) moving forward to restructure agricultural and rural development policies to alleviate poverty, improve productivity and generate better employment and income, (iv) promoting international trade and investment, (v) attracting more tourists and (vi) resolving the ethnic conflict by promoting reconciliation and making structural changes through constitutional arrangements.
(To be continued next week)
Features
Ditwah: A Country Tested, A People United
When Cyclone Ditwah roared across the island on November 27 and 28, 2025, it left behind a landscape scarcely recognisable to its own inhabitants—homes reduced to rubbles, vital infrastructure torn apart and entire communities engulfed by floodwaters that surged with terrifying speed. The storm’s ferocity carved deep scars into the island’s social and economic fabric, displacing thousands and severing lifelines that families had relied upon for generations. In its aftermath, the air hung heavy not only with the scent of mud and debris, but also with a palpable collective grief—a profound sense of loss etched on every face. As of December 9, the day of writing, the death toll had reached 635, with an additional 192 individuals reported missing. In Kandy alone, one of the most severely affected districts, 234 lives were lost. Island-wide, 12,123 families—amounting to 1,776,103 people—were displaced.
As a small island situated in the monsoon-fed waters of the Indian Ocean, Sri Lanka has long lived in intimate coexistence with hydro-meteorological hazards. For centuries, the monsoon winds that swept across the island brought not only life-giving rains to nourish paddy fields, forests, and communities, but also shaped the rhythms of daily life, agriculture, culture and even the island’s civilisation itself. Yet this same monsoon—when delayed, intensified, or disrupted—has had the power to unsettle entire ways of life and inflict widespread human suffering. Over generations, communities learned to read the sky and the sea, developing localised knowledge systems and adaptive skills to cope with the uncertainties of winds and waves. This reservoir of traditional wisdom fostered a form of social resilience deeply embedded in the island’s cultural fabric. At present, however, this traditional resilience is increasingly tested by the new realities of climate change and the growing frequency of severe cyclones.
When Cyclone Ditwah struck on November 27, 2025, it unleashed a force so violent that it reshaped many districts within hours, leaving behind a trail of destruction that stretched as far as the eye could see. Whole neighborhoods were crushed under winds that tore roofs from their foundations, while surging floodwaters swept through villages, carrying away homes, livelihoods, and the fragile sense of security people had built over generations. Roads lay fractured, communication lines collapsed, and families found themselves cut off in pockets of isolation marked by debris and despair. In the storm’s wake, the silence was haunting—broken only by the cries of survivors searching for loved ones and the distant hum of rescue teams navigating the ruins. The scale of the devastation was overwhelming, a human and infrastructural tragedy so profound that it demanded not just an emergency response, but a coordinated, compassionate, and deeply human-centered approach to crisis management.
The most devastating natural disaster Sri Lanka has experienced in recent history remains the 2004 Indian Ocean tsunami, which claimed over 35,000 lives and displaced nearly a million people. Sweeping across two-thirds of the nation’s coastline—more than 1,000 kilometers—it affected approximately 234,000 families and destroyed over a million houses. More than two-thirds of the country’s fishing fleet was obliterated. Beyond the immense human suffering, the tsunami exposed profound gaps in preparedness and underscored the urgent need for a systematic, coordinated approach to disaster risk management.
Over the last decade, Sri Lanka has increasingly confronted hydro-meteorological hazards driven by the accelerating impacts of climate change. Cyclones such as Roanu (2016), Mora (2017), Burevi and Amphan (2020), and Yaas (2021) highlight the growing frequency and severity of extreme weather events. According to the Sri Lanka – Disaster Management Reference Handbook, Cyclone Roanu brought the highest recorded rainfall in more than 18 years, triggering floods in 24 of the country’s 25 districts. Covering 1,400 square kilometers, the flooding affected nearly half a million people and inflicted damages estimated at US$600 million. Just a year later, Cyclone Mora caused severe flooding across 15 southern districts and unleashed landslides that further compounded human and infrastructural losses.
These climate-induced pressures have been accompanied by increasingly destructive monsoon-related disasters. In May 2016, the Aranayake landslide wiped an entire village off the map, killing 144 people, leaving 96 missing, and rendering hundreds homeless as their dwellings were buried under rubble. The following year, unprecedented monsoon rains caused flash floods and landslides that killed more than 210 people and displaced 630,000 across 15 districts. Subsequent monsoon seasons delivered similar devastation: in 2018, floods and landslides resulted in 24 deaths and affected 170,000 people; in 2019, heavy rains left 16 dead and displaced more than 7,000. Even in 2020, despite the successful evacuation of more than 75,000 residents ahead of Cyclone Burevi—an example of improved preparedness—post-cyclone flooding still affected over 100,000 people and destroyed or damaged nearly 4,000 homes.
Compounding this pattern of extreme rainfall and flooding is the paradoxical increase in drought conditions, another manifestation of climate variability. The worst drought in four decades struck between October 2016 and October 2017, affecting 2.2 million people across the North Western, North Central, Northern, and Eastern Provinces. From March to May 2020, another severe drought impacted more than 500,000 individuals in 14 districts, forcing the government to implement emergency drinking water distribution across six provinces. These cycles of excess and scarcity are further aggravated by the seasonal rise in vector and rodent-borne diseases—most notably dengue fever and leptospirosis—adding another layer of complexity to Sri Lanka’s disaster management landscape.
Societal Resilience in Disaster Management
As these converging crises demonstrate, Sri Lanka’s vulnerability to climate-driven disasters is no longer episodic but structural—woven into the lived reality of communities across the island. Yet amid repeated cycles of loss and recovery, what stands out most is not only the scale of devastation but the remarkable capacity of ordinary people to adapt, support one another, and rebuild their lives. This enduring strength points to a deeper truth: effective disaster management cannot rely solely on institutions or technologies; it must draw upon—and reinforce—the social resilience embedded within communities themselves.
Having lived under the influence of monsoons for generations, traditional communities developed sophisticated knowledge and skills to cope with nature’s unpredictability. Long before formal disaster management systems existed, villagers relied on environmental cues and collective action to prepare for seasonal threats. In the upstream and valley areas of the Kalu Ganga, for example, older generations still recall how communities repaired boats and rafts through shramadana well before the rainy season began. They observed the behavior of birds, animals, and changes in wind patterns to decode early warning signs that modern meteorology would later confirm.
Such practices demonstrate that traditional communities were not merely passive recipients of natural hazards; they were active interpreters of their environment. Their resilience stemmed from a deep ecological intimacy, a lived knowledge system refined through experience. Today, there is immense value in unpacking this traditional knowledge and synergising it with modern technology—not to romanticise the past, but to strengthen contemporary preparedness.
The Role of Community and the Political Domain
Building societal resilience requires more than cultural memory; it demands structured collaboration between communities and the political system. While communities are often the first responders in any disaster, the political domain plays a crucial role in mobilising, legitimising, and coordinating their efforts. Transforming political will into national will requires an organic articulation between civil society and political leadership—a partnership where both domains reinforce one another rather than operate in isolation. Within this broader framework, disaster management encompasses three equally critical components:
Disaster Risk Management
In each of these, the state has a vital role—from policy formulation to resource allocation, coordination, and accountability. Yet, the effectiveness of state-led initiatives ultimately hinges on the strength of the relationship between institutions and the communities they serve.
Beyond Culture: Technology and Institutions as Pillars of Resilience
While socio-cultural resilience forms an indispensable foundation, it is no longer sufficient on its own, given the scale and complexity of contemporary climate-induced hazards.
Modern disaster risk management relies on a robust interface between technology, institutional networks, and community participation. Advanced and accessible communication technologies—early-warning systems, mobile alerts, satellite data, and community-level dissemination platforms—play a crucial role in transforming timely information into effective action.
But technological tools reach their full potential only when supported by strong institutional structures, in both formal and informal, capable of mobilising people and resources rapidly and equitably. Thus, societal resilience can be understood as a system supported by three interdependent pillars.
Societal Resilience
When these elements function in harmony, the collective capacity to withstand and recover from disasters is significantly enhanced. Ultimately, social resilience is not merely the ability to endure shocks—it is the ability to recover with dignity. A humane disaster management system recognizes the agency, knowledge, and lived experiences of affected communities. It integrates cultural wisdom with modern capabilities, fosters trust between citizens and institutions, and ensures that every step of the disaster cycle reflects empathy, inclusion, and respect. 
Immediate Community and Government Responses to the Crisis
Within ten days of the Ditwah disaster, the Sri Lankan government succeeded in rapidly mobilizing the security forces, key institutional structures, political leadership, and community organisations to confront the crisis. Given the scale and depth of the devastation, meeting the challenge and mitigating its effects seem to be a formidable task. The armed forces and government departments, supported by unaffected communities, provided exceptional assistance to meet the initial challenge. People in the South—often guided directly or indirectly by local political/community leadership—volunteered in large numbers, travelling to the hills to support recovery efforts. Much of the initial work of clearing debris and cleaning homes was carried out through community participation. Infrastructure repairs, particularly the restoration of roads, water supply, and electricity, were undertaken through coordinated action by relevant government agencies who worked tirelessly day and night. As a result, nearly 80 per cent of essential infrastructure was restored within ten days, with the exception of the severely damaged railway network, which requires longer-term reconstruction.
In the immediate aftermath, the government declared a nationwide state of emergency under the Public Security Ordinance, enabling the rapid deployment of resources across sectors. Through the Disaster Management Centre (DMC) and relevant ministries, authorities activated emergency operations: evacuation orders were issued in high-risk flood and landslide zones, shelters were established across the country, and search-and-rescue missions commenced immediately after landfall.
Concurrently, the government announced a comprehensive relief and recovery package. Affected households received allowances for cleaning and resettlement, support for temporary accommodation, and financial assistance for the repair or reconstruction of damaged homes. Immediate access to financial resources—including a Rs. 30 billion contingency allocation that did not require prior parliamentary approval—enabled swift implementation. The declaration of this extensive and unprecedented relief package played a key role in restoring hope and strengthening the self-confidence of affected communities.
Recognizing the magnitude of the crisis, the government established a special recovery fund that brings together public and private sector contributions to support long-term reconstruction, infrastructure repair, and livelihood restoration. Involving prominent private sector leaders—including those who are not aligned with the ruling administration—alongside government officials and key ministers is intended to build trust within the business community and reinforce transparency in the fund’s management. The substantial international assistance received and pledged reflects a renewed confidence among external partners in the government’s ability to manage funds transparently and ensure that aid reaches intended beneficiaries. Sri Lanka further collaborated closely with international and humanitarian agencies to scale up multi-sector support. Organizations such as the World Food Programme (WFP), International Organization for Migration (IOM), and World Health Organization (WHO) mobilized food, water, medical supplies, shelter materials, and rapid-response teams—often in coordination with government efforts—to reach displaced persons and vulnerable populations, particularly in remote and landslide-prone areas.
During this ten-day period, the President personally attended the district coordinating committee meetings in all cyclone- and flood-affected areas. These meetings brought together political leaders—both from the ruling party and the opposition—along with key administrative officers and representatives from the relevant line ministries to review disaster response, mitigation measures, and recovery needs. The manner in which the President raised issues, sought clarification, and directed action demonstrated a high level of preparation and a clear understanding of the scope and complexity of the damage. His engagement signaled a proactive and informed approach to crisis governance, contributing to more coordinated and timely interventions across affected districts.
Thus far, these measures largely pertain to confronting the immediate challenge and mitigating its impacts. Yet effective mitigation must ultimately lead into long-term recovery planning and strengthened preparedness for future climate-induced crises. Ditwah is not the first or the last. Climate change has altered the frequency, scale, and unpredictability of extreme weather events, making it clear that Sri Lanka must now learn to live with recurring climate hazards as a structural condition rather than an episodic disruption. This requires a sustained investment in resilient infrastructure, risk-sensitive development planning, and community-level adaptive capacity. In this sense, the response to Cyclone Ditwah should not only be understood as an emergency undertaking, but also as a critical moment to embed long-term climate resilience into national policy and institutional practice.
Lessons learned
The devastation wrought by Cyclone Ditwah has once again tested Sri Lanka’s institutional capacity, the NPP political leadership and peoples’ resilience. Since the 2004 Tsunami, the country has made significant progress in establishing organisational structures and policy frameworks for disaster management, making it a central domain of contemporary statecraft. Yet, the experience of Ditwah underscores the need for further strengthening in four key areas. First, given the multiplicity of ministries and agencies involved—from the Ministry of Disaster Management and the National Council for Disaster Management to the Disasters Management Center, the Meteorological Department and the National Disaster Relief Services Centre—clear mechanisms are essential to avoid overlap and ensure coherent, efficient action.
Second, disaster preparedness and response must harness the collective capacities of state institutions, NGOs, and community-based organisations, whose collaboration is indispensable for effective disaster risk governance. Third, the integration of traditional knowledge systems—rooted in long-standing practices of environmental stewardship and community resilience—should inform planning and implementation, complementing modern technology and institutional expertise. Finally, in a multi-ethnic, post-conflict society, sensitivity to ethno-political dynamics is imperative across all three phases of disaster management: preparedness, emergency response, and post-disaster recovery.
Ultimately, Cyclone Ditwah revealed both the vulnerabilities and strengths of the nation—demonstrating that while Sri Lanka’s systems were tested, its people were united in response, reaffirming the country’s capacity to confront adversity through collective resolve. The spontaneous networks of support that emerged in the cyclone’s aftermath demonstrated that unity is not merely an aspiration but an operational force in moments of crisis. In reaffirming the country’s capacity to confront adversity through collective resolve, the response to Ditwah offers a powerful reminder that the resilience of the people remains Sri Lanka’s most reliable foundation for future challenges.
by Prof. Gamini Keerawella ✍️
Features
Rare Seahorse discovered in Sri Lankan waters sparks urgent conservation debate
Sri Lankan marine researchers have formally documented the presence of the rare and Vulnerable Three-Spot Seahorse (Hippocampus trimaculatus) in Sri Lankan waters for the first time, an important milestone in the country’s marine biodiversity records.
The discovery was made through the examination of four dried specimens collected from fishermen operating off the southern coast near Madiha, nearly 150–200 km offshore. The evidence confirms that the island’s marine ecosystem hosts a greater diversity of seahorses than previously recognized.
Until now, only two species—Hippocampus kuda and Hippocampus spinosissimus—were scientifically confirmed in Sri Lanka, both largely linked to the northwestern lagoon systems. This discovery shifts that narrative southward.
Lead scientist Janamina Bandara emphasised the importance of the breakthrough, saying the identification not only verifies the species’ presence but also extends its known distribution range in the Indian Ocean.
He told The Island:”This is the first authentic record of Hippocampus trimaculatus from Sri Lankan waters. This species was assumed to occur here based on regional presence, but until now, we lacked verified scientific proof.”
Found in an Unexpected Habitat
While seahorses are typically associated with seagrass beds, shallow estuaries, or mangroves, the discovery revealed a surprising observation—these specimens were found attached to floating masses of marine debris.
Bandara described it as one of the most unusual natural behaviours documented in local marine fauna.
“The specimens appear to have utilised drifting debris as habitat, which has not been explicitly recorded before,” he explained.
Photographs obtained from young field biologists show pieces of plastic waste, frayed fishing nets, fabric residues, and other floating refuse entangled into large drifting clusters.
Marine scientists say this phenomenon—informally referred to as “floating artificial reefs”—has been increasingly documented elsewhere in Asia and the Pacific. However, Sri Lanka has lacked records until now.
Bandara added that the drivers behind such habitat use remain unclear, raising questions about whether this behaviour reflects adaptation or desperation.
Specimens Documented, Sexed and Archived
The research team collected four specimens—one male and three females—over two separate encounters, in March 2024 and June 2025. Measurements included head-to-snout ratios, ring counts, and coronet shape, all critical criteria in identifying seahorses.
“All diagnostic features matched published descriptions, including distinct hook-shaped cheek and eye spines,” Bandara confirmed.
The specimens have since been deposited at the University of Ruhuna for long-term academic reference.
Illegal Trade Still Active
The finding has also shed light on the continuing illegal trade of dried seahorses in Sri Lanka—an industry long suspected, but seldom traced with scientific evidence.
The specimens originated from fishermen who admitted they sell dried seahorses to intermediaries and tourists. The team found that prices vary by size and buyer type.
“Smaller specimens sell for roughly Rs. 1,000 locally, while foreign buyers pay up to Rs. 5,000. Larger specimens fetch significantly more,” Bandara said.

Map. Known distribution of Hippocampus trimaculatus with the current study site indicated. Red dots: confirmed research-grade observations (n = 76) of the species from iNaturalist. Blue dot: study site location (Madiha coast, Southern Sri Lanka).
Many dried specimens are reportedly converted into gold-plated pendants, marketed under the claim of bringing luck and prosperity. In some tourist markets, dried seahorses are sold discreetly alongside shells and corals.
While enforcement exists, Bandara says it remains largely symbolic.
“Raids happen, but are limited. Without awareness among fishermen and tour operators, the trade will continue,” she said.
Global Conservation Context
The Three-Spot Seahorse is listed as Vulnerable by the IUCN Red List and is protected under Appendix II of CITES, meaning its international trade requires permits. The species faces high risk from:
Bycatch in trawl fisheries
Rising demand from Asian traditional medicine markets
Rapid habitat decline due to marine pollution
Slow reproductive turnover
Seahorses exhibit monogamous pair bonding and unique male pregnancy, making their populations extremely fragile when harvested.
Sri Lanka, positioned at a central point in the Indian Ocean trade network, remains vulnerable to illegal wildlife trafficking routes.
Bandara emphasised that biodiversity verification has regulatory relevance.
“Scientific records strengthen diplomatic and policy decisions. Without confirmed presence, enforcement remains weaker,” she explained.
Calls for Greater Action
Following the discovery, the research team is urging local authorities and NGOs to prioritise:
Awareness programmes for coastal communities
Monitoring of multi-day fishing vessels
Inclusion of seahorses in biodiversity assessments
Tourism-season enforcement in southern coastal markets
Bandara believes this new evidence allows Sri Lanka to become an active contributor to global seahorse conservation efforts.
A Turning Point for Marine Biodiversity Research
Beyond the immediate conservation implications, this finding marks one of the most scientifically significant marine records of recent years.
It suggests that Sri Lanka’s offshore ecosystems are both understudied and vulnerable to emerging human-driven pressures. Researchers now believe more undocumented marine species may inhabit local waters, awaiting formal identification.
“This discovery is not only a scientific milestone but also a reminder that our oceans hold species that are disappearing faster than we are documenting them,” Bandara said.
As marine debris continues to accumulate and demand for illegal ornamental wildlife persists, researchers warn that scientific discovery alone will not ensure the species’ survival.
Bandara says what happens next will determine the fate of this newly confirmed marine icon.
“If we act now—educate, regulate and monitor—we stand a chance to protect these animals before they vanish unnoticed.”
By Ifham Nizam ✍️
Features
Human-elephant conflict and housing needs of villagers
During the recent Ditwah cyclone, elephants were seen floating in treeless floodplains that were once their forest habitats. On a good-weather day in 2017, near Kokilai, the Navy found a pair of elephants riding waves after a beach outing two kilometers offshore in the high seas. Divers guided them ashore after a 12-hour struggle. Trains barrel through elephant herds regularly, decapitating half a dozen in one tank. A herd of elephants over 100 parades across a highway serenading motorists stuck in a kilometer-long traffic jam. Recently, adding insult to injury, a lone elephant was sitting deep inside a latrine pit behind a small house, and was dug out by a caterpillar tractor. A speeding bus ran over and killed a baby elephant, and police shot dead the mother who stood crying over her baby’s body. The tusker named Sinharaja was still a baby when the Army pulled it out from an agri-well some years ago in Nuwarakalaviya. He is now royalty tasked with carrying the sacred tooth relic at the Dalada Maligawa. These extraordinary events, rubrics of a national drama, show that fates, ours and elephants, are inexorably linked.
Over 7,000 elephants and countless villagers in Sri Lanka are torn apart daily by myriads of unpleasant encounters. Our elephant population is multiplying alongside us, making these encounters even more remarkable. As the government owns all elephants and writes laws for them, it also owns the product of these encounters. Since it has law books for the villagers, too, it cannot disregard the mess its protégé, this patrician in the wild, leaves on the villagers’ doorstep. Only the government can find a lasting solution to blunt the prickly edges of this national emergency, but not without contributions from the villagers.
George Orwell wrote in Animal Farm, “Some animals are more equal than others.” But the sentimentally charged public opinion about our cultural icon cannot outweigh the burden it placed on villagers living on the edges of elephant habitats.
As will be explained later, I propose a Gam Udawa-type house for each newly married couple who choose to remain within their village’s boundaries. If anyone edits this out as impractical, please come down from the ivory towers and visit a village bordering an elephant corridor to see for yourself the internecine damage elephants and villagers cause to each other.
There is no rich body of literature on the kinetics of village housing. But the volume of villagers’ experience is a safe guide to navigate it. I saw, over the span of three decades, how a major elephant corridor, one or two kilometers wide, adjoining my village above Mahakanadarawa reservoir, got swallowed up as villagers built (and still do) homes there. Thus, one way to stop this is to contain the village where it is now. Halting home-building activities in elephants’ homes is a futuristic idea that the government has not tried. This experience also suggests that a study of the environmental impact of new village housing is in order.
Little parts that drive conflict
The government does not hear or see the little parts that drive the human-elephant conflict in the village. The only elephant problem it has is an 8 am to 5 pm thing, caged and tied to concrete stumps with steel chains at a compound in Dehiwala, minutes from Colombo’s urban universe. Together with Dehiwala, provincial compounds like Pinnawala, and a few national parks hold less than 1% of the Sri Lankan elephants, leaving the rest to roam around and harass villagers. Officials who have the power and know-how to resolve this tragedy do not feel it in real time. They do not live anywhere near where elephants live.
Indeed, it is a stretch one may suggest the government can find new space for the elephants like grandiose, unwieldy ideas like port-city-style landfills along the coast. However, we can work with existing landmasses more studiously using other methods. Driving elephants to the current Managed Elephant Ranges (MER) is not one of them. MER seems to lack sufficient food, as evidenced by the emaciated elephants we see in these ranges. An elephant is a big animal and needs a bigger lunch setup.
HOW WE GOT HERE
Until the mid-20th century, abundance of forest accommodated all villages and some more elephants; there was no reason to think villagers were taking elephants’ feeding ground any more than governments had any plans to reduce friction before it reached an unmanageable level. Elephants’ feeding grounds occupied forest area about two kilometers wide in higher ground between two tank cascade systems, each independently sharing water from parallel watersheds.
Islands in the sea of forest
Villages in the North Central, Northwestern, Eastern, and eastern half of the Southern Province remained as islands in this sea of forest. Collective personality embedded in the village was that residents could hunt, harvest timber, and make small chena plots in these forests. The concatenation of many such forest buffers formed elephant highways that were major feeding grounds. Everyone lived happily until the government’s neglect in addressing the population explosion of elephants and our own created the present predicament like a Class 4 wound.
A village community is a swarm, usually numbering around 100 individuals. Increasing membership in a swarm trigger some to move out to new locations. In a colony of bees, for example, an alternate queen bee will lead a part of the overpopulated colony out to set up a new community. Similarly, in the village, where two or three couples marry each year, and if the space for housing sites is limited, as is the case in old villages, a couple might emigrate to another village or town. The one or two with what biologists call the ‘group mind’ stay in the village, becoming the seeds that begin to spawn more warms, amplifying the elephant-human problem.
The new couple is looking to build a house closer to their larger family. But as space for potential housing is gone, the next option is to move beyond the traditional village boundary, where the one- to two-kilometer elephant feeding grounds begin. On these grounds, this family finds not only a spot for a house but also timber that had been the property of elephants and other wildlife since before the village’s genesis. In a nutshell, this is how elephants began to lose their land.
Land grab
With this land grab, though isolated, friction over space ensued, leading to physical confrontation with elephants. The government’s inaction in mediating this problem is telling.
As years go by, this progression has led to the appearance of dozens of new home gardens, each slowly taking up at least a hectare of virgin forest. In a few decades, hundreds of such hectares will have been devoured by these progenitors entering the village marriage fraternity.
Meanwhile, the explosion of the rural population seems to influence the mechanics of elephants’ behavioral evolution. Back then, elephants were shy. I remember a herd disappearing into the woods in seconds after seeing a moving firebrand tipped with glowing embers. Aiming a flashlight made the herd disappear into the woods like blowing smoke into a beehive. In contrast, now a wild elephant caparisoned with a dry crust of mud bath walks casually on a road, duly giving right of way to motorists, and stops by a lonely roadside tea kiosk. He waits patiently, not for tea, but until the kiosk owner offers him a bunch of ripe bananas!
Today, elephants are so common and share our space more often, villagers assign lovely names to identify tuskers. In our childhood, we rarely saw a tusker because he owned a large swath forest, so his contact with us was minimal. Hence, the name tag was the least he needed.
HOUSING IN CITY AND VILLAGE
Whether people live in a crowded city with sprawling multistory housing compounds or in a village with two dozen homes under an irrigation tank, their universal human need is housing. In the city, with limited horizontal expansion, the housing idea must become improvisational. Thus, it grows vertically because it’s the only direction the cramped city can build. Having no such problem, after the old gammedda ran out of space, villagers moved horizontally to new tracts of forest beyond the village borders. Missing in the discussions on the loaded thesis of elephant-human conflict is this premise – the housing need of newly married villagers, the overarching subtext of this problem, not seen by anyone outside of the village. This married couple clear a track of forest, marking the beginning of the gradual encroachment of the village into an existing elephant range.
When it comes to housing, villagers in elephant-roaming areas are left to fend for themselves. Overcrowding in villages had not received the government’s attention because it never put a premium on housing in a village.
Both parties are victims here. Any steps to help them have become untenable due to poor management (of the problem) and the uncontrolled population upsurge of the parties. This drama is what the successive governments have missed seeing. Although the government and private sector have been generous with housing issues in the city, not extending the same kindness to villagers is why they are in this loveless embrace with elephants.
Meanwhile, beginning in the mid-20th century, the city has adapted to meet its residents’ housing needs. The scale ranged from clusters of one-room homes like UC Quarters in Urban Council jurisdictions, to modest multi-unit housing compounds, ‘flats,’ like the eponymous ones at Narahenpita, Maligawatta in Colombo. Over the past couple of decades, towering megastructures catering to the new affluent residents have further diversified the city’s housing options.
The elephants are wanderers and have all the land to move around. But villagers are no longer the itinerant bands they once were in their distant past. Due to their proclivity to acquire acreage from freely growing forests, they become fixed targets for elephants. But don’t accuse the villagers of being xenophobic towards elephants. We see they never show schadenfreude – enjoying an elephant’s misfortune, while it struggles to climb out from an agri-well or a canal. Instead, standing on the edge, they speak kind, encouraging words to the traumatized animal. Some even throw banana stumps at him to eat.
FAILED HOUSING PROJECTS (WIYAPARA) IN THE 1980S
Often, the government itself is the culprit of expanding the village into elephant corridors by introducing new housing projects. Such housing schemes were called wiyapara gewal (project homes). It turned out to be a failed government idea.
Near my village, in the 1980s, the government marked off housing plots along a cart road that ran through a 2-kilometer elephant corridor which began from the end of our tank bund. This stretch separated us from a series of neighbouring villages in the upper reaches of the Mahakanadarawa reservoir, built in 1959. Until then, elephants freely moved between Padaviya, Nachchaduwa, and Kalawewa tanks, using forest corridors between tank cascade systems, including the above, rarely entering villages.
After Mahakanadarawa gobbled up an extensive virgin forest area, elephants circumventing it on the way to Kalawewa stumbled upon a surprise: a society of homes was sitting on the above forest corridor that had always belonged to them. Villagers cut down the verdant forest and started home gardens in their place under the aegis of the aforesaid wiyapara project. It bridged the neighboring village into one extended community. One family even fenced off the kamatha-sised water hole that elephants enjoyed on the rocky outcrop called Wannamgala and enclosed it in the new garden lot with the sign “balla hapai” (dog will bite)!
The Member of Parliament for the area was behind this project, with a piecemeal aid package worth about Rs. 25000 to each land recipient. With that kind of economic magic wand, a half dozen villagers yielded, and now this row of houses bisects what was an elephant highway, sending elephants’ equanimity to coexist with human settlers downhill. Historical blunders like this tell us to reconstruct untested housing concepts to fit the present.
FEW PROPOSALS
Discouraging villagers from spilling beyond village boundaries to build new homes must be a priority in any plan designed to address elephant management issues. It is a way to stop the slow oxidation of elephant corridors where newlyweds continue to stake out claims for home sites.
It is unfair to deny villagers the opportunity to own a piece of their own home garden. On its part, the government can help by creating employment or home-garden opportunities by introducing them to garden crop methods and small-scale industries, which will provide them with a meaningful livelihood and a reason to stay within the village’s borders.
The government must also devise the same plan it uses to address overcrowding in city swarms, by building small irrigation colony-type houses within the village situated for newlyweds in villages on the borders of elephant habitats. New families will appreciate this idea that their government is giving them a hand with a small house within the village limits.
My proposal may sound like a fictive reverie. But math speaks for itself. Consider this: conceivably, if we can prevent that one newlywed couple from carving out its space in a forest tract used by elephants, after a few decades, we would have saved dozens of hectares for elephants by preventing couples from moving there to build new dwellings.
I ask the government not to think of the pink elephant – the cost – in considering this project. If it cannot build the house for free, recover a partial cost from new owners in easy installments based on their verified income.
There are many private and public tracts within a village that remain fallow or undeveloped. The government can offer to purchase these to build new homes. What happened to Alfred House Gardens in Colombo – 3 over a century ago gives us ideas on how to apply the summary of that history to a village where, generally, real estate behaves similarly.
Towards the end of the 19th century, the owners of Alfred House Gardens partitioned the opulent estate, endowing it to the city for a greater purpose. My premise here is that a villager with his own Alfred House estate in the village, parts of which remain fallow, may wish to place a corner of it on the market for ready cash. Suppose the government offers an enticing price. In that case, I have no doubt the owner might consider it. Haven’t we seen this in newly partitioned large coconut plantations elsewhere?
The government will then build a small house here and bestow it on the newly married couple. This is one couple that will not pose a threat to elephants’ right of way. If we can push this simple idea to fruition, in a decade or two, encroachment into elephants’ roaming lanes can be reduced considerably around this village. A fitting paradoxical allegory for this is an African proverb that says: “The way to eat an elephant is to take one bite at a time.”
Furthermore, the government may amend the President’s Fund or create an Elephant Fund to provide small housing loans specifically to newlywed couples in such villages. It must suspend the irrational, sneaky and flagrant absurdity of tax-exempted vehicle imports, now allowed to certain privileged government officials. Tax this exclusive club and use the money for this program. Each new car landing on Sri Lankan soil will pollute the environment and be one more headache for elephants feeding at Minneriya tank.
To identify which villages are likely to encroach on elephant corridors, the wildlife department must survey and designate their boundaries. This step is every bit as essential as declaring stretches of forest as elephant corridors. Also, an accelerated tree-planting program to rehabilitate deforested areas on the edges of elephant corridors must be a government priority.
The government must not reward large farming interests and the solar power industries by allowing them to take up elephant habitats. A papaya plantation has alternatives that an elephant family does not.
Finally, failure to resolve this problem will itch our nation’s conscience and shame us deeper. The few patches of forest we can keep uncleared are the ones that tell us just how many more hectares of them refuse to be cleared.
Lokubanda Tillakaratne chronicled life in a village in Gammadde Ninnadaya, and a defunct traditional judicial system practiced in Nuwarakalaviya villages in Rata Sabhawa (Sarasavi Books).
By Lokubanda Tillakaratne ✍️
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