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Electricity tariff: Rational approach needed

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By Eng Parakrama Jayasinghe
parajayasinghe@gmail.com

The Ceylon Electricity Board (CEB) and the Ministry of Power and Energy have called for a further 66% increase in the electricity tariff, citing an increased cost of generation in the year 2023. This coming on top of the 75% increase already granted in august 2022 can hardly be logical or warranted. While the previous increase may be justified due to lack of any attempts by the CEB to seek a revision of tariff for many years since the last tariff declaration in 2014, a further claim for tariff cannot be accepted unless the claim and the supporting documentation are clearly evaluated and verified.

The Electricity Act of 2009 and the subsequent amendments as well as the PUCSL Act provide clear guidelines on the procedure to be adopted for such an evaluation process. Accordingly, the PUCSL (Public Utilites Commission of Sri Lanka) has called for public comments on the proposed increase in tariff by public announcements, which is part of the set down procedure. There is no provision in either of the above Acts to bypass this procedure. As such, attempts by the Minister and the Cabinet of Ministers to bypass this procedure and declare increased tariff as well as to back date such an increase is illegal.

The comments below are provided for the PUCSL to consider carefully the data provided by the CEB in support of their claim of increased costs and the lack of justification of the assumptions made.

The following comments take precedence in addressing the sales and generation forecasts, as it is the fundamental issue which would support or debunk the claim for a tariff increase.

Basis for claim for increased

cost of generation

It is pertinent to note that the calculations offered in support of the proposed increase in tariff purportedly to dig the CEB out of the financial hole that they dug for themselves over the years, needs to be evaluated carefully. The data submitted by the CEB cannot be accepted without independent review by those with wider and in-depth insights to the national economic issues, not merely limited to the ill-conceived forecasts of the Utility.

Predictions from CEB Generation Requirements for 202

Many different numbers have been quoted by the CEB on the forecast demand for electricity in the year 2023 as noted below as per the submission by CEB.

However, the PUCSL has published the actual demand for electricity for the year 2022 as 13301.12 GWh which with the transmission and distribution loss of 9.7% requires a generation of only 14578.02 GWh. As such the forecast of an increase of 16,520 GWh even excluding the power cuts which is 13% increase over the demand in 2022 is highly questionable in view of the continually depressed state of Sri Lanka Economy.

As the CEB is fond of declaring, there is a direct correlation between the Electricity Demand and the GDP growth as shown in the graph below. (See Figure 1)

The slight gain of 3.6% seen in year 2021 has been more than offset by the 9.3 % contraction of the GDP in 2022. This is expected to reduce further by 4.2 % in the year 2023. The equivalent reduction in electricity demand in 2023 Vs 2022 already seen over the first few weeks is shown below. (See Figure 2)

The CEB has proven time and again its inability to correctly forecast the generation needs as proven in the several LTEGP plans and shown below.

Such assumptions make one wonder if these planners are living in Sri Lanka or in some mythical land. This is not surprising considering the kind of assumptions made in preparing their latest long-term generation plan. This document submitted for review to the PUCSL in July is based on the dollar parity and other financial parameters prevailing in December 2021. Obviously, the financial tsunami which submerged Sri Lanka in March 2022 has escaped their attention.

As such, the CEB projection of an electricity demand of over 16520 GWH leading to an estimated cost of Rs 722 Billion for the year 2023 is highly overrated. Hence the call for the 66% escalation of the consumer tariff is clearly not acceptable.

In contrast, the PUCSL has recommended the reality of downturn in demand seen during the year 2022, needs to be accepted as the reality for the year 2023 as well driven by both the continued downturn in the economy coupled with the reduced demand electricity caused by the already heavy tariff imposed in August 2022. These are data readily available and cannot be ignored.

The Power Cuts Cannot be avoided.

The unpalatable truth of the severe shortage of forex to pay for coal and oil imports cannot be ignored. Any amount of increase of tariff in rupees is not going to solve this problem. As such some degree of power cuts will be inevitable until the rains set in after April. This will further reduce the actual generation using the expensive coal and oil and thereby the total cost to the CEB. While each unit generated with coal at Rs 70.00 and oil at Rs 120.00 means a loss of Rs 41.00 and Rs 91.00 respectively, all the RE based power generation would result in a substantial surplus.

Even though the use of coal with whatever funds allocated cannot be avoided in the dry months of the year to limit the number of hours of power cuts, no such justification can be made for continued use of oi for power generation. It may be recalled that Sri Lanka managed to do without any oil on a number of days in the past year aided by good rain fall.

The consumers will however reluctantly accept the reality and discomfort of the extended power cuts, if they recognise that the authorities are taking reliable action to prevent such being a continued problem over the years. This is what is not happening now by the continued over dependence on imported fossil fuels, the cost of which is totally outside the control of Sri Lanka and is a severe drain on the forex reserves and the economy. There is no longer any question that any type of resources available abundantly in Sri Lanka are much cheaper and more importantly does not drain the scarce forex.

Of course, in contrast, there are attempts already underway to bridge the generation deficit using Emergency Power running on oil at an enormous cost. This option which also requires dollars to import the oil in addition to rupees to pay the generation companies is fraught with the danger of reactivating the dreaded fuel queues an experience best forgotten. The gain made by the introduction of the QR system for which the Minister should be congratulated, will fly out of the window.

Recent history has shown that we can do without oil for power generation, even if it means the continued power cuts, provided that positive action is taken to ensure the rapid expansion of renewable resource based power generation, particularly roof top solar PV to remove such power cuts at the earliest possible date.

We have demonstrated this possibility on many days during 2022, one example of which is shown below. (See Figure 3)

This is a trend that should have been accepted as the way forward by planning for alternative sources even during the dry months such as the rapidly growing Solar PV on rooftops, which are implementable in a very short time with no cost to the state or the CEB and does not require continued drain on Dollars.

The CEB and the Ministry lacked the perspicacity and the vision or the mere competence to understand this reality. They were also obdurate to reject the many proposals made by those who have the vision and the ability to accelerate this change. The consumers cannot be burdened with the unnecessary expenditure on continued use of oil, both in rupee terms and forex. The standard ruse of awarding contracts for use of emergency power is being repeated this year as well and cannot be allowed.

The installation of rooftop Solar PV is the fastest option and has shown remarkable progress over the years presently at 700 MW. There would be even more interest by consumers to increase this penetration which can and should be promoted most aggressively leading to further reduction in the demand. While the CEB has made some relaxation of the barriers for this industry in recent times and have declared various targets, there is still no concerted effort to make use of the opportunity which will make significant impacts in a short time. The Ministry, which can play an even bigger role by policy level interventions, does not seem to understand this opportunity.

Role of Demand Side Management and Energy Conservation

The importance of reducing the demand by avoiding waste of energy as well as other means of efficient use of electricity cannot be overemphasised. The Ministry and the Sustainable Energy Authority have abdicated their responsibility in this regard. The mere replacement of all incandescent bulbs and even the CFL bulbs presently in use, can result in a reduction of demand of over 782 GWh annually. The SLSEA has adequate data and experience in making much greater impact, instead of watching from the sidelines.

The market price of LEDS is about Rs 1,000 whereas the fair price should be below Rs 300, which the state has failed to establish. Other countries including India have provided consumers with LED bulbs at prices well below the cost to encourage this change. (See Figure 4)

What is the demand to be expected in year 2023?

The charts below which appeared in the media few weeks back, are most revealing. (See Figure 5)

Figure 5

The need for a cost reflective consumer tariff.

There is no argument on this requirement.

The provisions of the Electricity Act are quite clear on the procedure for processing any requests by the Utility for tariff revisions. The PUCSL is obliged to follow such procedure and award any justifiable claims, after following such procedures. No one including the Cabinet or the President has the legal right to bypass such procedures. However, the PUCSL is not obliged to accept any cost declared by the transmission licensee, unless it is proven to be the Least Economic Cost of generation using efficient use of resources and systems as provided in the Clauses 3 (1) d, 4(1)a , and 4(1)d of the Electricity Act No 20 of 2009 and subsequent amendments.

The PUCSL has already initiated this process and should be allowed to continue same. The outcome will determine if an increase in consumer tariff is justifiable, taking into account the national interests in addition to maintaining the state monopoly utility in a viable state.

The acceptability of the predicted demand forecast

The information made available in public media point to many doubtful deals on import of coal and oil. It is clear that there is no transparency in these deals, which is also leading to greater cost of generation being forced on the consumers. The Auditor Generals reports themselves provide the evidence.

However, this kind of corrupt practices are perpetuated mainly due to the continued dependence on imported fossil fuels. While Sri Lanka cannot completely avoid their use in the short term, the reality is that none of the RE sources, the feasibility of such is without question, are either devoid of use of any fuels such as Solar and Wind, or only require the use of locally available fuels such as fuel wood and agricultural waste, which also do not open the path for corrupt practices. This reality is being ignored continually placing the country in continued economic problems as well and the financial pressure on consumers.

Even in the present dire circumstances when much greater transparency and due diligence are required, they seem to be totally lacking. The PUCSL has already published some data on the unacceptability of the fuel costs submitted by the CEB. The ministry which is expected to over see these transactions has failed completely in their duty to the consumers, raising doubts of their own complicity in such corrupt practices.

CEB Proposed Tariff Structure

This may be a moot point, if the above issues on the need for a tariff adjustment based on a false prediction of demand forecast are resolved. As stated above there are many ways where by the demand can be maintained at 2022 level or even lower for the year 2023. If such is the case the PUCSL has already demonstrated that the income levels of CEB after the tariff increase in Aug 2022 are adequate to cover the reasonable costs of the CEB. It is known by data over many years and supported by many reports by the Auditor General and other agencies that there are many ways the accountability and efficiency of the CEB can be improved. These could lead to substantial surplus of income for the CEB to cover their past dues and be profitable.

While the long-delayed tariff adjustment did make some changes in the level of tariff for different strata of consumers, it has now reduced the purported, heavy subsidies on the lower end consumers and religious institutions. This will be and incentive for such consumers to engage in energy conservation and even to install roof top solar systems. These are some positive outcomes of the last tariff revision which is now in place.

The level of tariff payable by each segment is a national issue and the concept of an average paid by all segments is not acceptable, in the light of the huge difference in cost of generation. Sri Lanka as a whole paid for the installation of the large number of major hydro system using national funds. Such costs have now been recovered many time over. As such the benefits should accrue to the vast majority of the low-end consumers, up to a reasonable limit of consumption. This is already reflected in the last revision and there is no call for any further changes.

It is already stated the increased cost if any, are due to the use on now vastly increased cost of fossil fuels. The increased generation in the margin if any, are to serve the high-end consumers. As such if any such cost recovery is needed such costs should be recovered from those consumers only. The present arguments on competitiveness of industries vis a vis the neighboring countries due to cost of electricity has been debunked, with Sri Lanka even now subsidizing the industries and commercial establishments.

The declared commitment that access to clean energy at affordable prices is an SDG Goal (Goal No 7) ratified by Sri Lanka, is being ignored. Sri Lankan economy is driven by the SMEs and individuals and it is they who should receive such affordable energy to contribute more to the economy. As stated above they have already paid for such low-cost systems and have all the rights to enjoy the benefits. As such the notion that they are being subsidized cannot be accepted.

Who should decide the Electricity Tariff?

It must be accepted that the decision on final consumer tariff must necessarily be a national economic issue and thus cannot be left to the Public Utilities Commission of Sri Lanka or even the Ministry of Power, both of which address it from a narrow financial view point pertaining to the institutions under them only. Neither of them is competent to do so and have proved to be a total failure over many years subjecting the national economy to such grave crisis in many ways.

At least now, there should be a pragmatic approach by competent individuals and agencies with the necessary back ground and insights and the ability to appreciate the wider impact on the national economy.



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Features

Trials-at-Bar in Sri Lanka: Use and abuse

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It is reported that a Trial-at-Bar is being contemplated in respect of allegations against former President Ranil Wickremesinghe regarding misuse of state resources for a visit to a British university on his return from attending sessions of the United Nations in New York and an official visit to Cuba. If this is correct, it would make legal history in our country, because there has been no previous instance of the procedure of a Trial-at- Bar being invoked against a former Head of State.

In view of the constitutional importance of the issues involved, the attempt is opportune to consider the conceptual and statutory foundations of our law relating to Trials-at-Bar, the boundaries of its application in practice, and the nature of the responsibilities attributed to the principal functionaries with regard to the conduct of these proceedings.

I. The Statutory Framework

A Trial-at-Bar is an extraordinary procedure operating over and above proceedings in regular courts exercising criminal jurisdiction at first instance. Its form is that of three judges of the High Court, sitting usually without a jury, to try an indictable offence. The main provision is contained in Section 12 of the Judicature Act, No. 2 of 1978: “Notwithstanding anything to the contrary in this Act or any other written law, a Trial-at-Bar shall be held by the High Court in accordance with law for offences punishable under the Penal Code and other laws”.

The law of Sri Lanka makes provision for Trials-at-Bar in two different contexts.

(a) Mandatory

The trial of any person for the gravest offences against the State, constituted by Sections 114, 115, and 116 of the Penal Code, must in all circumstances be held before the High Court at Bar by three judges without a jury, despite any other law. This is the effect of Section 450 of the Code of Criminal Procedure, Act No. 15 of 1979.

The gist of offences to which this provision is applicable is conspiracy or preparation to overthrow, by unlawful means, the Government of Sri Lanka. This provision was applied in the case of 24 persons alleged to have attempted a coup d’état against the Government of Prime Minister Sirimavo Bandaranaike, a year after its election in July 1960 (R v. Liyanage).

(b) Discretionary

Outside this category, where recourse to a Trial-at-Bar is compulsory, there are other situations in which, as a matter of discretion, the Chief Justice may order use of this procedure. This course of action may be resorted to “in the interest of justice and based on the nature or circumstances of the offence”.

Trials-at-Bar, which may proceed either on indictment or on an information exhibited by the Attorney-General, are required to be held as speedily as possible, and generally in the manner of a High Court trial without a jury.

The power of appointment of High Court judges conducting a Trial-at-Bar is specifically vested in the Chief Justice. The Court, once appointed, has full authority regarding summoning, custody, and bail, subject to the restriction that bail may usually be granted only with the consent of the Attorney-General.

II. Appropriate Parameters

A useful point of departure, as a means of determining the proper limits of this judicial procedure, is to examine the character of offences which have led in our country throughout the post-Independence era to the constitution of Trials-at-Bar. A classification of the decided cases during this entire span of more than seven decades is attempted here for this purpose.

(1) Murder

Several Trials-at-Bar in Sri Lanka have been concerned with charges of murder, not per se, but invariably combined with circumstances which impart to the offence the added element of exceptional public importance, in terms of grave jeopardy to established institutions, public tranquillity, or seminal values underpinning governance.

The following are examples:

(a) the murder of a High Court judge engaged in the trial of five persons accused of capital offences pertaining to trafficking in drugs (Sarath Ambepitiya);

(b) the murder of a Member of Parliament in the midst of mob violence on a street, in the throes of widespread protests aimed at bringing down the incumbent government (Amarakeerthi Athukorala);

(c) the killing of two youth while in police custody (the Angulana case);

(d) the killing of villagers by Army personnel during a public demonstration (the Rathupaswala case);

(e) the disappearance of a social activist and human rights defender (Prageeth Ekneligoda).

(2) Offences involving State security and possible contravention of International law

* charges pertaining to firearms and ammunition and their use on the high seas (the Avant Garde case).

(3) Alleged gross dereliction of duty by senior government officials, including a former Secretary to the Ministry of Defence and a former Inspector-General of Police, leading to the death of a large number of persons by explosions in public places such as churches and hotels (Easter Sunday Bombing case).

(4) Grave corruption allegations in respect of procurement or other major misdemeanours

* two Trials-at-Bar were appointed to hear cases arising from the Central Bank bond scam in 2016, alleged to involve a former Minister of Finance, a former Governor of the Central Bank, his son-in-law and others (Central Bank bond case);

* charges against a previous Minister of Health, senior officials of the Ministry, and others in connection with the procurement of substandard immunoglobulin vials, leading to deaths and grievous bodily harm (Keheliya Rambukwella);

* charges filed by the Financial Crimes Investigation Division against the Chief of Staff of a former President and a former Chairman of the Sri Lanka Insurance Corporation for alleged large-scale misappropriation of public funds (Gamini Senerath, Priyadasa Kudabalage).

(5) Sedition involving communal overtones and potential disturbance of the public peace (S.J.V. Chelvanayakam and others).

(6) Allegations relating to extra-judicial executions

* the trial of a previous Army Commander for statements made by him regarding unlawful execution of surrendering LTTE cadres (Sarath Fonseka White Flag case).

(7) Criminal defamation in volatile contexts

In 1954, in the earliest of this series of cases, allegedly defamatory remarks were published by the defendant in a newspaper known as Trine. The gist of the allegations was that Sir Oliver Goonetilleke, who had just relinquished the position of Minister of Finance to accept appointment as Governor-General, had engaged in “swindles on an international scale” (R v. Thejawathie Gunawardena).

The heinous character of the offences alleged, and the scope of their potential ramifications in all these settings, are evident at a glance. The distinguishing feature is not merely the gravity of the offence, but imputation of a wider dimension to it, typically in the form of a serious affront to the public wellbeing.

In the Thejawathie Gunawardena case, for instance, where the propriety of recourse to a Trial-at-Bar was vigorously challenged, the Supreme Court held that there was no ground for complaint because of the predominant element of public mischief apparent from the circumstances. This was due to the inflammatory content of the statements published, which could foreseeably “disturb or endanger the government” by igniting public feeling. Gravity of the allegations, from this point of view, and their probable impact on public confidence in the integrity of basic institutions of governance, were the factors relied upon to take the case out of the regular category of defamation litigation and justify use of the Trial-at-Bar procedure.

This characteristic of a high threshold of public importance, accompanied by complexity and volatility of the surrounding circumstances, is the central thread which runs through the diverse situations in which Trials-at-Bar have been constituted in Sri Lanka.

III. The Roles of Pivotal Functionaries

The principal responsibility is that of the Chief Justice and the Attorney-General. The essential nexus between their statutory functions is a salient feature of the law.

(i) The Chief Justice

In Somaratna Rajapaksa v. Attorney-General, it was clearly recognised that the repository of power to constitute a Trial-at-Bar is the Chief Justice, but subject to the requirement that an indictment or information “furnished by the Attorney-General” operates as the material basis for exercise of the Chief Justice’s authority in this regard.

An explicit trajectory is established, linking the initiative by the Attorney-General with the Chief Justice’s decision.

(ii) The Attorney-General

Action by the Attorney-General is located within the overall ambit of prosecutorial discretion vested in him in respect of a wide range of matters, including assessment of the sufficiency and probative value of evidence to warrant institution of criminal proceedings, the decision to indict, and withdrawal of a prosecution by means of the entering of a nolle prosequi. The recommendation in respect of a Trial-at-Bar falls into place within the field of this broad authority.

The crucial attribute of the Attorney-General’s functions in this area is that he acts in a quasi-judicial capacity. A basic anomaly in the role of the Attorney-General in our constitutional system is that he combines, in his office, a variety of functions and responsibilities which entail some degree of conflict with one another. Despite this lack of institutional coherence and consistency, what is beyond doubt in the present condition of the law is that, throughout the whole gamut of prosecutorial decision making, the Attorney-General is required to eschew all political and other extraneous considerations and to arrive at his decisions in a spirit of total objectivity.

This is one of the cornerstones of our system of criminal justice. Although there is a statutory choice or discretion built into the Attorney-General’s responsibility, H.N.G. Fernando C.J. has aptly commented: “Our law has conferred on the Attorney-General powers which have been commonly described as quasi-judicial and traditionally formed an integral part of the system of criminal procedure” (Attorney-General v. Don Sirisena). In similar vein, the Supreme Court, in Victor Ivan v. Sarath N. Silva, Attorney-General, observed: “The Attorney-General’s power is a discretionary power similar to other powers vested in public functionaries, held in trust for the public, and not absolute or unfettered”.

While the purview of prosecutorial discretion residing in the Attorney-General, by virtue of enacted law as well as inveterate tradition, is strikingly extensive, it is not an untrammeled power: it is not beyond the reach of the courts. In a trilogy of progressive decisions by the Court of Appeal, Sobitha Rajakaruna J., (prior to his elevation to the Supreme Court), asserted the principle that the Attorney-General’s decisions, in appropriate circumstances, are amenable to judicial review: Sandresh Ravi Karunanayake v. Attorney -General (CA/Writ/ 441/2021), Duminda Lanka Liyanage v. Attorney-General (CA/Writ/323/2022), Nadun Chinthaka Wickremaratne v. Attorney-General (CA/Writ/523/2024).

In Attorney-General v. Karunanayake, Samayawardhana J ( with the concurrence of Thurairaja and Janak de Silva JJ.) declared: “Politically motivated indictments following regime change pose a serious threat to the rule of law and public confidence in the office of the Attorney-General and the entire justice system. Judicial oversight plays a vital role in ensuring that prosecutorial discretion is exercised independently, fairly, and in compliance with the law”.

The Supreme Court of our country has shown no inhibition in directly addressing the question whether the Attorney-General has properly exercised his discretion in laying the information which served as the basis of a Trial-at-Bar.

In Thejawathie Gunawardena’s case, in proceedings before the Supreme Court, it was strenuously contended on the defendant’s behalf that the Attorney-General had acted ultra vires for a collateral or improper purpose. The submission was that the person allegedly defamed was no longer holding public office, and invocation of the extraordinary procedure associated with a Trial-at-Bar was, therefore, unjustifiable. The Supreme Court, sitting in appeal, having considered the issue in depth, rejected the submission on the ground that his tenure had been very recent, and that the proximity of his connection with the incumbent government gave rise to the likelihood of intensifying public feeling because of the volatility and range of the allegations made against him.

These trends of judicial opinion have the effect that the principle of justiciability of the Attorney-General’s initiative in this regard is firmly embedded in our law.

IV. Conclusion

Trials-at-Bar serve a salutary purpose, but within stringently circumscribed limits. The decided cases in our country, spanning more than 75 years, indicate with exemplary clarity the confines within which this extraordinary procedure has legitimacy. The essential consideration is that there should not be room for the slightest doubt that immaterial factors may have come into play in the exercise of discretion.

This far transcends the entitlement of individuals to due process and impinges upon the health and vitality of procedures central to the administration of justice. My teacher, Professor Sir William Wade, pre-eminent among exponents of administrative law in our time, who had the distinction of holding Chairs of Law successively in the Universities of Oxford and Cambridge, told me that if he were asked to identify succinctly, in one sentence, the substance of the common law tradition, he would have no hesitation in replying that it consisted of robust hostility to unbridled discretion in public functionaries. Even the appearance of neglect of this rudimentary principle places in jeopardy the fulfilment of public aspirations about the quality of criminal justice.

By Professor G. L. Peiris ✍️
D. Phil. (Oxford), Ph. D. (Sri Lanka);
Former Minister of Justice, Constitutional Affairs and National Integration;
Quondam Visiting Fellow of the Universities of Oxford, Cambridge and London;
Former Vice-Chancellor and Emeritus Professor of Law of the University of Colombo

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Extended mind thesis:A Buddhist perspective

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After listening to Prof. Charitha Herath deliver his lecture at the World Philosophy Day Conference at the University of Peradeniya and then reading his excellent article, “Buddhist insights into the extended mind thesis – some observations” published in The Island (14.01.2026) I was prompted to write this brief note to comment on the Buddhist concepts he says need to be delved into in this connection. The concepts he mentioned are prapañca, viññāṇasota and ālayaviññāṇa. 

Let us look at the Extended Mind Thesis in brief. “The extended mind thesis claims that the cognitive processes that make up the human mind can reach beyond the boundaries of an individual to include as proper parts aspects of the individual’s physical and sociocultural environment” … “Such claims go far beyond the important, but less challenging, assertion that human cognition leans heavily on various forms of external scaffolding and support. Instead, they paint the mind itself (or better, the physical machinery that realises some of our cognitive processes and mental states) as, under humanly attainable conditions, extending beyond the bounds of skin and skull.

Extended cognition in its most general form occurs when internal and external resources become fluently tuned and deeply integrated in such a way as to enable a cognitive agent to solve problems and accomplish their projects, goals, and interests. Consider, for instance, how technological resources such as pens, paper, and personal computers are now so deeply integrated into our everyday lives that we couldn’t accomplish many of our cognitive goals and purposes without them (Kiverstein J, Farina M, Clark A, 2013).

It may be seen from the above that the Extended Mind Thesis is mainly concerned with human cognition. It seems that the tools that humans use to help them in the cognitive process are actually components of the extended mind. This is mentioned in Prof. Herath’s article as well. Though Buddhist theory of cognition does not imply such a relationship that involves the implements utilised in the process of acquiring knowledge, it proposes an inextricable relationship between the cogniser and the cognised. For instance, the eye-consciousness does not arise unless the object of cognition is present.

Reality of the world according to Buddhism is based on the relationship between the cogniser and the cognised. This theory is supported by the way in which Buddhism analyses the complex formed by the human personality and the world, which it does in three systems, expounding the bond between the two. First is the five aggregate analysis, second is the 12 bases (ayatana), and the third is the eighteen elements (dhatu). Whether this kind of entanglement is possible without some means of extending the  mind is an interesting question.

According to Buddhism, the mind is not a substance but rather a function that depends on it. There are three terms that are used to refer to mind and possibly these may indicate different functions though they are very often used as near-synonyms. The terms are mano, citta and viññāṇa. The term mano is used to refer to the aspect of mind that functions as one of the six sense-faculties. Mano is responsible for feelings and it also coordinates the functions of the other sense-faculties. Citta generally means consciousness or combinations of consciousness and the other mental-factors, vedanā, saññā, sankāra as seen in the Abhidhamma analyses.

The term Viññāṇa means basic awareness of oneself and it is also used in relation to rebirth or rebecoming. It has a special responsibility in being the condition for the arising of nama-rupa, and reciprocally nama-rupa is the condition for consciousness in the paticcasamuppada formula. Further, the term “consciousness-element” is also used together with five other items; earth-element, water-element, fire-element, air-element and space-element which seem to refer to the most basic factors of the world of experience, indicating its ability to connect with the empirical world (Karunadasa, 2015). In these functions, consciousness may assume some relevance in the Extended Mind Thesis.

Further if we examine the role of consciousness in rebirth we find that a process called the patisandhi-viññāṇa has the ability to transmit an element, perhaps some karmic-force, from the previous birth to the subsequent birth. In these functions the enabling mechanism probably is the  viññāṇasota, the stream of consciousness that Prof. Herath mentions, and which apparently has the ability to flow even out of the head and establish links with the external world.

It may be relevant at this juncture to look at the contribution made by Vasubandhu, the 4th Century Indian Buddhist philosopher. Vasubandhu’s interpretation of saṃskārapratyayaṃ vijñānam (consciousness conditioned by volitional actions) treats the stream of consciousness as the mechanism of continuity between lives. He emphasises that this stream continues without a permanent entity migrating from one life to the next. The “stream” manifests as the subject (ego) and object (external world), which are both considered projections of this underlying consciousness, rather than independently existing entities. Vasubandhu also had proposed a kshnavada  (theory of moments) to explain the stream of consciousness as consisting of arising and disappearing of consciousness maintaining continuity. These propositions may lend support to the Extended Mind Thesis.

Prof. Herath has mentioned the term prapañca (Pali – papañca) which generally means concepts.  In the context of the extended mind thesis it needs to be examined in relation to the Buddhist theory of perception, because the former mainly pertains to cognition. As mentioned by Prof Herath, Ven. Nanananda in his book “Concept and Reality” has discussed this subject emphasising the fact that in Buddhist literature the term papañca is used mainly in the context of sense-perception. He says that “Madhupindika Sutta” (Majjima Nikaya) points to the fact that papañca is essentially connected with the process of sense perception. According to the Buddhist theory of perception the final outcome or the final stage of the process is the formation of papañca. Following the formation of concept there is proliferation of the concept depending on the past experience the individual may have in relation to what is perceived.

This process of perception, as given inthe Madhupindika Sutta, leading to conceptual proliferation is at the beginning impersonal and in the later stages it becomes personal with the involvement of the human personality with its self-ego and craving and finally leading to total bondage. And this bondage is between the human mind and the external world. Whether this entails an extended mind needs to be researched as suggested by Prof. Herath.

The third concept that Prof. Herath referred to in his lecture is the Yogacara idea of ālayaviññāṇa. Yogacara in its analysis of consciousness has added two more types of consciousnesses to the six based on the six senses, which is the classification mentioned in Early Buddhism and the two additional ones are kleshaviññāṇa and ālayaviññāṇa. The latter is called the storehouse-consciousness as it carries the seeds of karma. It is also called the approximating consciousness as it approximates at two levels; in this birth by collection of defilements and in the next birth by carrying them across in rebirth.  The latter function may be relevant to the Extended Mind Thesis as it has the ability of projection beyond the body of the present birth and transmit to the body of the next birth.

If one is interested in researching into the concept of ālayaviññāṇa one must be aware that the three masters of Yogacara, i.e. Maithreyanata, Asanga and Vasubhandhu did not agree with each other on the nature of ālayaviññāṇa. While Maithreyanata was loyal to the early Yogacara idea that appeared in Sandhinirmocana Suthra, Asanga modified it to suit his thesis of idealism. Vasubandhu, however, adhered to the views of Early Buddhism and according to Kalupahana (1992) what he in his Trimsathika describes is the transformation of the consciousness and not the eight consciousnesses in the order in which they appear in Yogākāra texts. Here one is tempted to suggest that Asang’s idealism which propounds that the external world is a creation of the mind may lend support to the extended mind thesis. Idealism in Yogacara Buddhism may be another subject that needs to be researched in the context of the extended mind thesis.

Turning to recent research there is theoretical and speculative support from quantum theory for the idea of extended consciousness, but it remains a controversial area of research within physics, neuroscience, and philosophy. Several frameworks suggest that consciousness is not confined to the brain but is a fundamental, non-local phenomenon rooted in quantum processes that may connect minds to each other or the universe at large. (Wagh, M. (2024). “Your Consciousness Can Connect with the Whole Universe, Groundbreaking New Research Suggests”. Popular Mechanics. Retrieved from https://www.popularmechanics.com/scienc)

Finally, while it may not be clear whether the Extended Mind Thesis, as proposed by A. Clark and others (2013), has anything to do with consciousness it may be worthwhile to research into this matter from a Buddhist perspective, which will have to strongly bring into contention the factor of consciousness, which perhaps may have the potential to develop into an  Extended Consciousness Thesis.

by Prof. N. A. de S. Amaratunga   ✍️
PhD, DSc, DLitt

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Why siloed thinking is undermining national problem-solving

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The world today is marked by paradox. Never before has humanity possessed such extraordinary scientific knowledge, technological capability, and research capacity. Yet never before have we faced such a dense convergence of crises—climate change, biodiversity loss, pandemics, food insecurity, widening inequality, disaster vulnerability, and social fragmentation. These challenges are not isolated events; they are deeply interconnected, mutually reinforcing, and embedded within complex social, ecological, economic, and technological systems. Addressing them effectively demands more than incremental improvements or isolated expertise. It requires a fundamental shift in how we think, research, and act.

At the heart of this shift lies transdisciplinarity: an approach that moves beyond siloed disciplines and engages society itself in the co-creation of knowledge and solutions. As Albert Einstein famously observed, “We cannot solve our problems with the same thinking we used when we created them.” The persistence of today’s global challenges suggests that our prevailing modes of problem-solving—largely mono-disciplinary and compartmentalised—are no longer adequate.

The limits of siloed knowledge

Over the past few decades, global investment in research and development has grown dramatically. Global R&D expenditure exceeded USD 3 trillion in 2022, and the worldwide scientific workforce has expanded to more than 8.8 million researchers, producing millions of academic papers annually across tens of thousands of journals. Indeed, the number of scientists has grown several times faster than the global population itself. This extraordinary expansion reflects humanity’s faith in science as a driver of progress—but it also sharpens an uncomfortable question about returns on this investment. Millions of scientists across the world produce an ever-expanding body of academic literature, filling tens of thousands of specialised journals. This disciplinary research has undoubtedly driven remarkable advances in medicine, engineering, agriculture, and information technology. The positive contributions of science to human civilisation are beyond dispute. Yet its effectiveness in addressing complex, real-world challenges has often fallen short of expectations, with impacts appearing disproportionate to the vast resources committed. Yet the translation of this vast knowledge base into tangible, scalable solutions to real-world problems remains limited.

The reason lies not in a lack of intelligence or effort, but in the way knowledge is organised. Disciplines are, after all, social constructs, each shaped by its own conceptual, theoretical, philosophical, and methodological traditions. While these traditions enable depth and rigour, they also encourage intellectual compartmentalisation when treated as ends in themselves. Modern academia is structured around disciplines—biology, economics, engineering, sociology, medicine—each with its own language, methods, reward systems, and institutional boundaries. These disciplines are powerful tools for deep analysis, but they also act as intellectual blinders. By focusing narrowly on parts of a problem, they often miss the broader system in which that problem is embedded.

Climate change, for example, is not merely an environmental issue. It is simultaneously an economic, social, political, technological, and ethical challenge. Public health crises are shaped as much by social behaviour, governance, and inequality as by pathogens and medical interventions. Poverty is not simply a matter of income, but of education, health, gender relations, environmental degradation, and political inclusion. Approaching such issues from a single disciplinary lens inevitably leads to partial diagnoses and fragmented solutions.

The systems thinker Donella Meadows captured this dilemma succinctly when she noted, “The problems are not in the world; they are in our models of the world.” When our models are fragmented, our solutions will be fragmented as well.

Wicked problems in a hyper-connected world

Many of today’s challenges fall into what scholars describe as “wicked problems”—issues that are complex, non-linear, and resistant to definitive solutions. They have multiple causes, involve many stakeholders with competing values, and evolve over time. Actions taken to address one aspect of the problem often generate unintended consequences elsewhere.

In a hyper-connected world, these dynamics are amplified. A disruption in one part of the global system—whether a pandemic, a financial shock, or a geopolitical conflict—can cascade rapidly across borders, affecting food systems, energy markets, public health, and social stability. Recent crises have starkly demonstrated how local vulnerabilities are intertwined with global forces.

Despite decades of research aimed at tackling such problems, progress remains uneven and, in many cases, distressingly slow. In some instances, well-intentioned scientific interventions have even generated new problems or unintended consequences. The Green Revolution of the 1960s, for example, dramatically increased cereal yields and reduced hunger in many developing countries, but its heavy dependence on agrochemicals has since contributed to soil degradation, water pollution, and public health concerns. Similarly, plastics—once hailed as miracle materials for their affordability and versatility—have become a pervasive environmental menace, illustrating how narrowly framed solutions can create long-term systemic risks. This gap between knowledge production and societal impact raises a critical question: are we organising our research and institutions in ways that are fit for purpose in an interconnected world?

What is transdisciplinarity?

Transdisciplinarity offers a compelling response to this question. Unlike multidisciplinary approaches, which place disciplines side by side, or interdisciplinary approaches, which integrate methods across disciplines, transdisciplinarity goes a step further. It transcends academic boundaries altogether by bringing together researchers, policymakers, practitioners, industry actors, and communities to jointly define problems and co-create solutions.

At its core, transdisciplinarity is problem-driven rather than discipline-driven. It starts with real-world challenges and asks: what knowledge, perspectives, and forms of expertise are needed to address this issue in a meaningful way? Scientific knowledge remains essential, but it is complemented by experiential, local, and indigenous knowledge—forms of understanding that are often overlooked in conventional research but are crucial for context-sensitive and socially robust solutions.

As C. P. Snow warned in his influential reflections on “The Two Cultures,” divisions within knowledge systems can themselves become barriers to progress. Transdisciplinarity seeks to bridge not only disciplines, but also the persistent gap between knowledge and action.

Learning from nature and society

Nature itself provides a powerful metaphor for transdisciplinary thinking. Ecosystems do not operate in compartments. Soil, water, plants, animals, and climate interact continuously in dynamic, adaptive systems. When one element is disturbed, the effects ripple through the whole. Human societies are no different. Economic systems shape social relations; social norms influence environmental outcomes; technological choices affect governance and equity.

Yet our institutions often behave as if these connections do not exist. Universities are organised into departments with separate budgets and promotion criteria. Research funding is allocated along disciplinary lines. Success is measured through narrow metrics such as journal impact factors and citation counts, rather than societal relevance or long-term impact.

This mismatch between the complexity of real-world problems and the fragmentation of our knowledge systems lies at the heart of many policy failures. While societal challenges have grown exponentially in scale and interdependence, organisational structures and problem-solving approaches have not evolved at the same pace. Attempting to address borderless global issues using rigid, compartmentalised, and outdated frameworks is therefore increasingly counterproductive. As former UN Secretary-General Ban Ki-moon aptly stated, “We cannot address today’s problems with yesterday’s institutions and mindsets.”

Transdisciplinarity and sustainable development

The United Nations Sustainable Development Goals (SDGs) offer a vivid illustration of why transdisciplinary approaches are essential. The 17 goals—ranging from poverty eradication and health to climate action and biodiversity—are explicitly interconnected. Progress on one goal often depends on progress in others. Climate action affects food security, health, and livelihoods. Education influences gender equality, economic growth, and environmental stewardship.

Achieving the SDGs therefore requires more than sector-by-sector interventions. It demands integrated, cross-sectoral responses that align research, policy, and practice. Transdisciplinarity provides a framework for such integration by fostering collaboration across disciplines and sectors, and by grounding global goals in local realities.

For countries like Sri Lanka, with complex socio-ecological systems and rich cultural diversity, this approach is particularly relevant. In Sri Lanka, more than 6,000 individuals are engaged in research and development, with over 60 per cent based in universities and other higher education institutions. This places a particular responsibility on academic and institutional leaders to create environments that encourage collaboration across disciplines and with society. Policies, assessment schemes, funding mechanisms, and incentive structures within universities can either reinforce silos or actively nurture a transdisciplinary culture. Sustainable development challenges here are shaped by local contexts—coastal vulnerability, agricultural livelihoods, urbanisation patterns, and social inequalities—while also being influenced by global forces. Transdisciplinary engagement can help bridge this global–local divide, ensuring that policies and innovations are both scientifically sound and socially meaningful.

Why transdisciplinarity is hard?

Despite its promise, transdisciplinarity is not easy to practice or institutionalise. Deeply entrenched disciplinary identities often shape how researchers see themselves and their work. Many academics are trained to excel within narrow fields, and career advancement systems tend to reward disciplinary publications over collaborative, problem-oriented research.

Institutional structures can further reinforce these silos. Departments operate with separate budgets and governance arrangements, making cross-boundary collaboration administratively cumbersome. Funding mechanisms often lack categories for transdisciplinary projects, leaving such initiatives struggling to find support. Time pressures also matter: genuine engagement with communities and stakeholders requires sustained interaction, yet academic workloads rarely recognise this effort.

There are also cultural and ethical challenges. Different disciplines speak different “languages” and operate with distinct assumptions about what counts as valid knowledge. Power imbalances can emerge, with certain forms of expertise dominating others, including the voices of non-academic partners. Without careful attention to trust, equity, and mutual respect, collaboration can become superficial rather than transformative.

The way forward: from aspiration to practice

If transdisciplinarity is to move from rhetoric to reality, deliberate institutional change is required. Sri Lanka, in particular, would benefit from articulating a clear national vision that positions transdisciplinary research as a core mechanism for addressing challenges such as climate resilience, public health, disaster risk, and sustainable development. National research agencies and universities can play a catalytic role by creating dedicated funding streams, establishing transdisciplinary centres, and embedding systems thinking and stakeholder engagement within curricula and research agendas. First, awareness must be built. Universities, research institutes, and funding agencies need to invest in dialogue, training, and pilot projects that demonstrate the value of transdisciplinary approaches in addressing pressing societal challenges.

Second, leadership matters. Institutional leaders play a critical role in signalling that transdisciplinary engagement is not peripheral, but central to the mission of knowledge institutions. This can be done by embedding such approaches in strategic plans, allocating seed funding for collaborative initiatives, and recognising societal impact in promotion and evaluation systems.

Third, structures must evolve. Flexible research centres, shared infrastructure, and streamlined administrative processes can lower the barriers to collaboration. Education also has a role to play. Introducing systems thinking and problem-based learning early in undergraduate and postgraduate programmes can help cultivate a new generation of researchers comfortable working across boundaries.

Finally, ethics and inclusivity must be at the forefront. Transdisciplinarity is not merely a technical methodology; it is an ethical commitment to valuing diverse forms of knowledge and engaging communities as partners rather than passive beneficiaries. In doing so, it strengthens the legitimacy, relevance, and sustainability of solutions.

A collective learning challenge

Peter Senge once observed, “The only sustainable competitive advantage is an organization’s ability to learn faster than the competition.” This insight applies not only to organisations, but to societies as a whole. Our collective ability to learn, unlearn, and relearn—across disciplines and with society—will determine how effectively we navigate the challenges of our time.

The shift from siloed disciplines to transdisciplinary engagement is therefore not a luxury or an academic trend. It is a strategic necessity. In a world of complex, interconnected problems, fragmented knowledge will no longer suffice. What is needed is a new culture of collaboration—one that sees connections rather than compartments, embraces uncertainty, and places societal well-being at the centre of scientific endeavour.

Only by breaking down the walls between disciplines, institutions, and communities can we hope to transform knowledge into action, and action into lasting, equitable change.

A final word to Sri Lankan decision-makers

For Sri Lanka, the message is clear and urgent. Policymakers, university leaders, funding agencies, and development institutions must recognise that many of the country’s most pressing challenges—climate vulnerability, public health risks, food and water security, disaster resilience, and social inequality—cannot be solved within institutional silos. Creating space for transdisciplinary engagement is not a marginal reform; it is a strategic investment in national resilience. By aligning policies, incentives, and funding mechanisms to encourage collaboration across disciplines and with society, Sri Lanka can unlock the full value of its scientific and intellectual capital. The choice before us is stark: continue to manage complexity with fragmented tools, or deliberately build institutions capable of learning, integrating, and responding as a system. The future will favour the latter.

by Emeritus Professor Ranjith Senaratne ✍️
Former Vice-Chancellor, University of Ruhuna,
Former General President, Sri Lanka Association for the Advancement of Science
Former Chairman, National Science Foundation

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