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Our rice crisis: A holistic solution – I

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By Emeritus Professor Ranjith Senaratne
Department of Crop Science, University of Ruhuna (ransen.ru@gmail.com)


Present scenario

Recent prohibitive prices of rice and its unavailability caused untold hardships and inconveniences to the people of the country. The problem was so severe that it posed a serious constraint even on celebrating the new year and Thai Pongal this year, which was unprecedented in living memory. Given the complex, intractable multi-faceted and multi-dimensional nature of the problem, there are no quick fixes. The value chain of rice encompasses the entire process of production, from the initial planting of rice by the farmer to the final sale of processed rice to the consumer. This chain involves many stages, such as land preparation, planting, fertilization, irrigation, weed management, pest and disease control, harvesting, threshing, drying, milling, grading and sorting, storage, packaging, distribution, and retail. This invariably entails a large number of diverse actors and players, including farmers, traders, millers, wholesalers, distributors and retailers and a host of public sector institutions, including the Dept. of Agriculture, Meteorological Department, Agrarian Services Department, Paddy Marketing Board, Consumers Affairs Authority and banks. Besides, the rice value chain is closely linked to several sectors, including land, water, environment, energy, transport, machinery and fertiliser which further exacerbate the issue, adding to its immensity and intractability.

There have been a plethora of newspaper articles and discussions, including useful and constructive ones, on how to deal with the rice crisis. However, they have mainly addressed only certain aspects of this huge, multi-dimensional and complex problem. Given the nature, magnitude, urgency, complexity and far-reaching social, economic, health and political implications and ramifications of the issue, a holistic systems approach is essential, without further delay, in order to prevent the recurrence of such untoward situations in future and to find a sustainable solution to this “island–shaking” issue. This article attempts to define this critical problem and outline the interventions needed to address it effectively.

Key problems and challenges and proposed interventions

A problem well defined is half solved. Therefore, I wish to identify the key factors contributing to this multi-dimensional problem and outline the interventions needed.

= Lack of required data and databases and unreliability and non-interoperability of the data available.

= Uncontrolled and unregulated cultivation of rice in almost all districts without paying due attention to land suitability and potential yield and cultivation of varieties for profit maximization without regard for the consumer preference and national demand.

= Inefficient and indiscriminate use and management of resources.

= Low and stagnant yields, resulting in high cost of production and high prices of rice.

= Presence of a large number of economically non-viable fragmented paddy fields and small holders (more than 70% of paddy holdings are less than 1 ha and only about 5% of farmers have holdings greater than 2 ha).

= Prohibitive prices of the imported pesticides and weedicides and the lack of controlled prices. As in paints, discounts up to 40%, or even more, are given to large scale farmers, while the resource-poor small farmers, who are the vast majority, get only a measly discount, resulting in higher cost of production and less profit.

= Inadequate adoption of modern technology.

= Inefficient, inadequate and outdated field advisory service with hardly any application of digital technology.

= Heavy post-harvest losses up to 15-20%, including during storage.

= Lack of satisfactory marketing channels and failure of the governments to date to regulate the oligopolistic competition resulting in unfair prices for the farmers and consumers.

= Announcing the guaranteed price of paddy by the government only after the harvest, instead of prior to the beginning of the cultivation season; this provides no opportunity and space for the farmers to decide whether to go into commercial production and, if so, to what extent.

= Voiceless farmers and toothless farmer organizations.

= Lack of robust laws governing the hoarding of essential food commodities, including rice, by some large scale millers, traders and farmers

= Extreme climatic conditions.

Defining the problem

Agriculture consumes over 80% of fresh water and occupies around 40% of land in the country which is not sustainable given the other important competing considerations. Moreover, of the 8 million national workforce, about 2 million (25%) is engaged in the agriculture sector of which around 1 million is in the paddy sub-sector. Paddy, with a total extent of over 700,000 ha, is cultivated in over 20 districts in the county and an appreciable yield variation is observed between districts, i.e. from 3 to over 7 metric tons/ha depending on the soil and climatic conditions, management regime, variety used, etc. As the national average is only about 4.3 metric tons/ha, there is considerable scope for yield improvement by cultivating rice in high potential areas and improving crop management. Besides, in order to produce 1 kg of rice, nearly 2,000 litres of water is generally required in Sri Lanka, which is extremely high and unsustainable.

Lack of reliable data related to the rice sub-sector

This issue has been highlighted time and again and the high priority accorded by the government to transform Sri Lanka into a digital economy should prove very useful in this regard. Given below are some key indices that need to be determined with reasonable accuracy through digital interventions in order to address the rice issue.

= Extent of paddy fields cultivated district-wise during Yala and Maha seasons, including information on ownership and mode of production, whether self or “anda”? Each holding and its owner should be given a QR code so that the vital statistics and facts could be digitally recorded, which should then be used in providing the fertiliser subsidy, bank loan, crop insurance, etc., and selling the produce. This should be updated at the beginning of each season. In addition to the staff of the Department of Agriculture, Agrarian Services Department, Mahaweli Development Authority and the Vidatha Resource Centres (260) across the island, the Universities in the respective provinces could also be harnessed in this regard.

= Distribution of paddy holdings district-wise based on size, i.e. small (< 0.5 ha) , medium (> 0.5 and < 5 ha) and large (> 5 ha).

= Extent cultivated district-wise identifying the holdings cultivated for personal consumption and commercial production

= Level of usage of fertilisers, weedicides, pesticides, labour, water, machinery, etc.

= Average yield, district-wise, for Yala and Maha for the major types cultivated, i.e. Red Kakulu, White Kakulu, Nadu and Samba.

At present, a standard procedure is not followed when reporting yield, thus the figures reported cannot be compared because of different sampling procedures, sample sizes, moisture content, etc., and rice is sold in different forms, i.e. with husk. after milling, or after both milling and polishing.

In order to ensure interoperability of data, the procedure recommended by the FAO must be followed. (https://openknowledge.fao.org/server/api/core/bitstreams/909e539d-60eb-49d1-9539-192d262176ec/content)

= National requirement of the said types of rice with district-wise break-down and data on fluctuations in demand and price across the year.

=Classification and mapping of rice cultivating areas/fields (i.e. low, moderate and high potential) in each district/AGA division using digital technologies. such as GIS and remote sensing. Commercial paddy cultivation should not be permitted in low potential areas/fields and no subsidies should be provided for those cultivating in marginal fields for home consumption.

=Identification of outstanding lead farmers in each AGA division and district, so as to obtain their services to improve paddy production in the area.

= Identification of districts with excess, adequate and deficit rice production showing the degree (%) of excess/deficit.

= Paddy storage capacity of public sector and private sector institutions district-wise. (Information gathered under 9 and 10 will prove useful in minimising the “food mileage”, carbon footprint, cost of transport and market price of rice, and in identifying areas where storage capacity should be expanded and new storage facilities should be established.

= Quantities of rice used by industry, including SMEs, for making noodles, confectionaries, beer and other major rice-based products

Inefficient use and poor management of resources

Agriculture, as said earlier, consumes over 80% of water and occupies around 40% of land in the country; this is excessive and disproportionate, given the needs of the other sectors. For instance, paddy is grown in over 20 districts in Sri Lanka with a total extent over 700,000 ha. Besides, more or less the same amount of fertilisers and pesticides are used in the paddy production across the country, irrespective of the yield potential, i.e. 2,500 or > 7,500 kg ha-1. Consequently, a considerable variation in the cost of production (CoP) of a kilo of rice is evident among districts, i.e. between in Ampara and Kalutara. Therefore, every attempt should be made to expand the cultivation of paddy in high potential areas as far as possible so as make to rice available to the consumer at a cheaper price and improve the socio-economic standard of the paddy farmers.

Today water is a growing source of global conflict in nearly 50 countries in the world. Climate change and the ever-increasing population combined with growing economic and social imperatives and needs will create intense competition for water. Therefore, it is important to manage water efficiently. If suitability mapping is done and agro-climatic and soil potentials are optimized and matched with the agronomic requirements of rice, then the same level of production could be achieved from the dry zone with about half of the current extent cultivated. However, in order to ensure food security, commercial paddy cultivation in high potential areas in the wet zone should be maintained and necessary steps should be taken to remove the legal impediments for the cultivation of other crops in marginal paddy fields in the wet zone. As around 70% of the fertilisers and pesticides imported are used for paddy, the above proposal will help not only to reduce the price of rice and the imports to save much needed foreign exchange, but also to cut down environmental and health issues associated with paddy cultivation.

Excess of unproductive labour

In Malaysia, only 11.1% of the labour force is in agriculture, which contributes nearly 8 % to the GDP. On the other hand, Sri Lanka with over 25% of its labour force in agriculture contributes only around 7% to the GDP. While factors such as greater value addition in agriculture in Malaysia have contributed to the above situation, the low productivity of Sri Lankan agricultural labour is a major contributor to it. Therefore, by improving the land and labour productivity, about 50% of the agricultural labour force, i.e. about one million, can be transferred to the manufacturing and service sectors after reskilling and retooling without affecting rice production and offering better socio-economic conditions to the marginal farmers. (To be continued)



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Partnering India without dependence

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President Dissanayake with Indian PM Modi

Indian Prime Minister Narendra Modi once again signaled the priority India places on Sri Lanka by swiftly dispatching a shipload of petrol following a telephone conversation with President Anura Kumara Dissanayake. The Indian Prime Minister’s gesture came at a cost to India, where there have been periodic supply constraints and regional imbalances in fuel distribution, even if not a countrywide shortage. Under Prime Minister Modi, India has demonstrated to Sri Lanka an abundance of goodwill, whether it be the USD 4 billion it extended in assistance to Sri Lanka when it faced international bankruptcy in 2022 or its support in the aftermath of the Ditwah cyclone disaster that affected large parts of the country four months ago. India’s assistance in 2022 was widely acknowledged as critical in stabilising Sri Lanka at a moment of acute crisis.

This record of assistance suggests that India sees Sri Lanka not merely as a neighbour but as a partner whose stability is in its own interest. In contrast to Sri Lanka’s roughly USD 90 billion economy, India’s USD 4,500 billion economy, growing at over 6 percent, underlines the vast asymmetry in economic scale and the importance of Sri Lanka engaging India. A study by the Germany-based Kiel Institute for the World Economy identifies Sri Lanka as the second most vulnerable country in the world to severe food price surges due to its heavy reliance on imported energy and fertilisers. Income per capita remains around the 2018 level after the economic collapse of 2022. The poverty level has risen sharply and includes a quarter of the population. These indicators underline the urgency of sustained economic recovery and the importance of external partnerships, including with India.

It is, however, important for Sri Lanka not to abdicate its own responsibilities for improving the lives of its people or become dependent and take this Indian assistance for granted. A long unresolved issue that Sri Lanka has been content to leave the burden to India concerns the approximately 90,000 Sri Lankan refugees who continue to live in India, many of them for over three decades. Only recently has a government leader, Minister Bimal Rathnayake, publicly acknowledged their existence and called on them to return. This is a reminder that even as Sri Lanka receives support, it must also take ownership of its own unfinished responsibilities.

Missing Investment

A missing factor in Sri Lanka’s economic development has long been the paucity of foreign investment. In the past this was due to political instability caused by internal conflict, weaknesses in the rule of law, and high levels of corruption. There are now significant improvements in this regard. There is now a window to attract investment from development partners, including India. In his discussions with President Dissanayake, Prime Minister Modi is reported to have referred to the British era oil storage tanks in Trincomalee. These were originally constructed to service the British naval fleet in the Indian Ocean. In 1987, under the Indo Lanka Peace Accord, Sri Lanka agreed to develop these tanks in partnership with India. A further agreement was signed in 2022 involving the Ceylon Petroleum Corporation and the Lanka Indian Oil Corporation to jointly develop the facility.

However, progress has been slow and the project remains only partially implemented. The value of these oil storage tanks has become clearer in the context of global energy uncertainty and tensions in the Middle East. Energy analysts have pointed out that strategic storage facilities can provide countries with greater resilience in times of supply disruption. The Trincomalee tanks could become a significant strategic asset not only for Sri Lanka but also for regional energy security. However, historical baggage continues to stand in the way of Sri Lanka’s deeper economic linkage with India. Both ancient and modern history shape perceptions on both sides.

The asymmetry in size and power between the two countries is a persistent concern within Sri Lanka. India is a regional power, while Sri Lanka is a small country. This imbalance creates both opportunities for partnership and anxieties about overdependence. The present government too has entered into economic and infrastructure agreements with India, but many of these have yet to move beyond initial stages. This has caused frustration to the Indian government, which sees its efforts to support Sri Lanka’s development as not being sufficiently appreciated or effectively utilised. From India’s perspective, delays and hesitation can appear as a lack of commitment. From Sri Lanka’s perspective, caution is often driven by domestic political sensitivities and concerns about sovereignty.

Power Imbalance

At the same time, global developments offer a cautionary lesson. The behaviour of major powers in the contemporary international system shows that states often act in their own interests, sometimes at the expense of smaller partners. What is being seen in the world today is that past friendships and commitments can be abandoned if a bigger and more powerful country can see an opportunity for itself. The plight of Denmark (Greenland) and Canada (51st state) give disturbing messages. Analysts in the field of International Relations frequently point out that power asymmetries shape outcomes in bilateral relations. As one widely cited observation by Lord Parlmeston, a 19th century prime minister of Great Britain is that “nations have no permanent friends or allies, they only have permanent interests.” While this may be an overly stark formulation, it captures an underlying reality that small states must navigate carefully.

For Sri Lanka, this means maintaining a balance. It needs to clearly acknowledge the partnership that India is offering in the area of economic development, as well as in education, connectivity, and technological advancement. India has extended scholarships, supported digital infrastructure, and promoted cross border links that can contribute to Sri Lanka’s long term growth. These are tangible benefits that should not be undervalued. At the same time, Sri Lanka needs to ensure that it does not become overly dependent on Indian largesse or drift into a position where it functions as an appendage of its much larger neighbour. Economic dependence can translate into political vulnerability if not carefully managed. The appropriate response is not to distance itself from India, but to broaden its partnerships. Engaging with a diverse range of countries and institutions can provide Sri Lanka with greater autonomy and resilience.

A hard headed assessment would recognise that India’s support is both genuine and interest driven. India has a clear stake in ensuring that Sri Lanka remains stable, prosperous, and aligned with its broader regional outlook. Sri Lanka needs to move forward with agreed projects such as the Trincomalee oil tanks, improve implementation capacity, and demonstrate reliability as a partner. This does not preclude it from actively seeking investment and cooperation from other partners in Asia and beyond. The path ahead is therefore one of balanced engagement. Sri Lanka can and should welcome India’s partnership while strengthening its own institutions, fulfilling its domestic responsibilities, and diversifying its external relations. This approach can transform a relationship shaped by asymmetry into one defined by mutual benefit and confidence.

by Jehan Perera

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The university student

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A file photo of a university students’ protest against private medical colleges

This Article is formed from listening to university students from across the country for two research initiatives, one on academic freedom and another on higher education policy. In speaking with students, the fears they carry could not be ignored. Students navigate university education, with anxieties about their future and fears that they and their university education are inadequate, all while managing their families’ daily struggles. I explore students’ anxieties and the extent to which we, the public, and higher education policies must take responsibility for their experiences.

The Neoliberal University

For decades, universities have been transforming. Neoliberal policies, promoted by the World Bank, have reduced public education expenditure and weakened the State’s commitment to public institutions. These policies frame individuals as responsible for their success and failure, minimising structural realities, such as poverty and precarity. They instrumentalise education, treat students as “products” for a “competitive’ job market, while education markets feed on students’ insecurities. Students are made to feel lacking in “soft skills”, or skills seemingly necessary to navigate classed-corporate structures, and lacking in technical skills, or those needed to operate technologies used within the private sector.

Student activists and, sometimes teachers, have challenged this worldview, demanding State commitment to free education. Governments sometimes yield but also fear the consequences of student politics and have long waged campaigns to discredit student activism. It is within this context that students pursue education.

Portrayal of students

A Peradeniya student told me student-organised events must meet “high standards”, because of the negative public perceptions of university students. I understood what she meant; I had heard of our ‘ungrateful’, ‘wasteful’, ‘unemployable’, and ‘entitled’ students. The media and decades of government propaganda have reinforced these depictions.

About 10 years ago, when government moves to privatise higher education were strong, a corporate executive, complaining about traffic caused by “yet another useless protest”, was unable to explain why they protested. News coverage, I realised, framed these protests as public inconveniences, rarely addressing students’ demands. A prominent advocate, of neoliberal educational policy, reinforced this narrative, saying “state university students make up just 10 percent of their cohorts”, gesturing dismissively as if to say their concerns were insignificant. Such language belittles student activists and youth, renders them voiceless and allows their concerns, such as classed worldviews, and access barriers to and privatisation of education, to be easily dismissed.

It is in this environment that the conception of the useless university student, fighting for no reason, has developed. Students must carry this misrepresentation, irrespective of their own involvement in activism.

Not being good enough

Attacks on free higher education and the absence of meaningful reforms designed to address students’ problems, now weigh on students’ minds. Students question whether their education is relevant and current, pointing to outdated equipment, software, and curricula. University administrators acknowledge these constraints, which reflect Sri Lanka’s ranking as one of the lowest in the world for the public funding of education and higher education.

Rarely has the World Bank, so influential in driving educational policy, highlighted the public funding crisis and, instead, emphasises technological deficiencies, the public sector’s “monopoly” of higher education and limited private sector involvement. It downplays the reality that few families can privately afford such funding arrangements.

Students are also bombarded with fee-levying programmes, promising skills and access to jobs, preying on students’ insecurities. Many, while struggling to make ends meet, enrol in off-campus pricy professional courses, such as in accountancy, marketing, or English.

The arts student

Some students worry their education is too theoretical and “Arts-focused.” A student from the University of Colombo described having to justify her decision to pursue an arts degree. The public, she said, saw this as a waste of her time and the country’s resources. She courageously wore this identity, yet questioned if she was, in fact, unemployable as she was being led to believe.

She does not, however, draw on the fact that arts education has long been the “cheap” option that governments have offered when pressured to expand higher education. While arts education may need fewer laboratories and equipment, they require adequate investments on teachers, strong on content and pedagogy, to closely engage with individual students; aspects of arts education which have systematically been disregarded.

As access broadens, particularly in the arts, more students from marginalised backgrounds have entered universities; students who may feel alien in systems aligned with corporate interests. Thus, students quite different from the classed conception of the “employable graduate,” whose education has systematically been under-funded, graduate from arts programmes frustrated, diffident, and ill-suited for jobs to which they are expected to aspire.

The dysfunctional university

Students voice criticisms of their teachers, as myopic, unworldly, and unfair. Their perspective reflects the universities’ culture of hierarchy and its intolerance of difference, on the one hand, and the weak institutional structures on the other. They are symptoms of years of neglect and attempts by governments to delegitimise universities, to shed themselves of the burden of funding higher education through anti-public sector rhetoric.

Some students, marginalised for being anti-rag, women, or ethnic minorities, feel an added layer of burdens. Anti-rag students, or more often, students who do not submit to university hierarchies, whether enforced by students or staff, are ostracised, demeaned and sometimes subjected to violence. Students unable to speak the institution’s dominant language face inadequate institutional support. Women describe being ignored and silenced in student union activities and left out of student leadership positions.

Furthermore, quality assurance processes rarely prioritise academic freedom or students’ right to exist as they wish, except when they complement the process of creating a desirable graduate for the job market. These processes focus on moulding professionals and technicians, as one would form clay, disregarding students’ anxieties from being alienated from themselves by such efforts.

Problems at home

Beyond the campus, parents face debt, illness, and precarious work. Students are acutely aware of these struggles. Some describe parents collapsing from the strain and sometimes leaving them to carry the family’s difficulties. A student described feeling guilty for being at the University while his family struggled to survive. To ease the burden on their families, students earn incomes by providing tuition, delivering food, and carrying out microbusinesses.

Tied to their concerns over having to depend on their families, is their fear of being “unemployable”, a term that places the blame of unemployment on students’ skill deficiencies. Little in this discourse connects the lack of decent work and jobs for them and their parents to the weak economy and job markets into which successive batches of graduates must transition. Much of the available jobs in the country are those that require little in the form of education, and those, too do little to provide a living wage. Students must, therefore, compete for a limited number and breadth of frankly not very desirable work. Yet, it is they who must feel the weight of unemployability.

Committing to students

Universities frequently fail to recognise students’ worries. Instead, we, coopt neoliberal discourses, telling students to become more marketable and competitive, do and learn more, be confident, improve English, learn to inhabit those classed spaces with ease; often without the support that should accompany these messages.

We expect these students, insecure and anxious, to think critically, and demonstrate curiosity and higher-order analyses. When they collapse under the pressure, universities respond by providing mental health services. While such services are needed, they risk individualising and pathologising systemic problems. They represent yet again the inherent flaws with solutions that emerge from neoliberal ideological positions that treat individuals as the source of all success and failure. Such perspectives are likely to reinforce students’ anxieties, rather than address them.

As Sri Lanka revisits education policy reforms, there is an opportunity to change our framings of education and to recognise these concerns of students as central to any policy. The state must renew its commitment to free education and move from the neoliberal logic that has guided successive reform efforts; we, as the public, must restore our hope and expectations from free education. Education across disciplines, the arts, as well as STEM (science, technology, engineering and mathematics), must be strengthened. Students’ freedom to inhabit university spaces as they wish, must be respected and protected by institutions. Education policies must be tied to broader economic and labour reforms that ensure families can safely earn a living wage and graduates can access a rich range of decent meaningful work.

(Shamala Kumar teaches at the University of Peradeniya)

Kuppi is a politics and pedagogy happening on the margins of the lecture hall that parodies, subverts, and simultaneously reaffirms social hierarchies.

by Shamala Kumar

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On the right track … as a solo artiste

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Mihiri: Worked with several top local band

Mihiri Chethana Gunawardena is certainly on the right track, in the music scene.

The plus factor, where Mihiri is concerned, is that she has music deeply rooted in her upbringing, and is now doing her thing in the Maldives.

Her father, Clifton Gunawardena, was a student of the legendary Premasiri Kemadasa and former rhythm guitarist of the Super 7 band.

Mihiri took to music, after her higher studies, and her first performance was with her father, while employed.

Mihiri Chethana Gunawardena

After eight years of balancing both worlds – working and music – she chose to follow her true calling and embraced music as her full-time profession.

Over the years, Mihiri has worked with some of the top bands in the local scene, including D Major, C Plus from Negombo, Heat with Aubrey, Mirage, D Zone Warehouse Project and Freeze.

In fact, she even put together her own band, Faith, in 2017, performing at numerous events, and weddings, before the Covid pandemic paused their journey.

What’s more, her singing career has taken her across borders –performing twice in Dhaka, Bangladesh, with the late Anil Bharathi and the late Roney Leitch, and multiple times in the Maldives, including a special New Year’s Eve performance with D Major.

In the Maldives, on a one-month contract

Last year, Mihiri was in Dubai, along with the group Knights, for the Ananda UAE 2025 dance.

She continues to grow as a solo artiste, now working closely with the renowned Wildfire guitarist Derek Wikramanayake, and performing, as a freelance musician, travelling around the world.

Right now, she is in the Maldives, on a one-month contract, marking a new chapter in her evolution as a solo vocalist.

On her return, she says, she hopes to create fresh cover songs and original music for her fans.

Mihiri believes in spreading joy and positivity through her singing, and peace and happiness for everyone around her, and for the world, through music.

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