Working with the Sri Lankan bureaucracy
(the art of •gmuddling through•h)
Jan Sørensen, NIBR
Odd Arnesen, NORAD
Project experience from
Sri Lanka
• Hambantota Integrated Coastal Zone
Management Project (HICZMP I and
II), 1997-2005
• Institutional Strengthening of the Oil
Spill Contingency Management
(INSTCOM), 2000-2003
A tropical paradise with a fascinating history
Sri Lankan hospitality
and friendliness!
Nice and spicy food
(curries and cakes)!
“We are a highly political society,
where everything is looked at
from a political angle…”
Political and administrative set-up
1.
Central: President, Prime Minister and Cabinet of
Ministers
Province: Provincial Councils
Divisions: Local government: Pradeshiya Sabhas (PS)
State/Ministry administrative representation at:
2.
3.
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District: District Secretariat
Divisions: Divisional Secretariat
Village level: Grama Niladaris
Coordination of decision-making:
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Provincial Planning Councils
District Coordinating Committees
Divisional Planning Councils
Solving problems “on the spot”
• The Government is under pressure to deliver results,
especially in the less developed areas
• Rapid solutions, solving problems “on the spot”,
operating with wide media coverage
• To enhance development, promote public and private
investments, deal with unemployment, social unrest,
ethnic conflicts
• Presidential Task Force for the Southern Area, later
Southern Development Authority (SDA)
• Central government follow in the same path through
the establishment of regional ministries (a
continuation of the Southern Development Authority)
Regional development
• The key pillars of government are the Ministries and
the corresponding implementing levels, the District
and the Divisional level
• Development planning usually takes place at these
levels based on policy directions and budget
allocations from Colombo
• Integrated master planning at District and Division
level is not well developed
• Public involvement in planning is limited
Role of local government
• Local government system in Sri Lanka has been well
established for a long period of time
• Local government (Pradesiya Sabha) mainly deal
with devolved issues such as health, water supply,
sanitary and cleaning services
• Some functions are handed over to government
boards, corporations or statutory authorities, such as
the Water Supply and Drainage Board, Ceylon
Electricity Board
• The links between state administration and local
government institutions are weak
• Local government play a very limited role in the
political process and in development planning
Government finances
• Funding of activities at the District and Division levels
arrives from various sources. e.g. Provincial Council
Budget, based on a “shopping” list of activities
• The Pradeshiya Sabha (PS) generate their own small
funds through the collection of fees from markets etc.
• In addition the MPs have their decentralised budget to
be spent in their own constituencies (Districts)
• MP often funds new facilities that can increase their
popularity, e.g. markets, playgrounds, roads etc.
• Local authorities are left with maintenance of facilities
they did not ask for or for which they do not have
finances
Political – social dynamics
• An overarching feature of the political system is the
need for political leaders to reach down to their
constituencies/supporting villages to show that they
can do something directly for them
• MPs has substantial power in their electorates
(districts), partly based on a “social contract” with the
people:
– Strong influence on the public and private sector, e.g.
through public finances, permits, employment,
promotions etc.
– Unconditional support is demanded in return
– The system is disliked, but people adapt
– Partly invisible dynamics that may be difficult to
understand for outsiders
Political interference in
programmes and projects
• Ceremonial inauguration by high level politicians and
religious leaders
• Pressure from MPs to gain political benefits, e.g. changing
project content without proper justification, redistribution of
project funds
• Inappropriate interference, e.g. misuse of project
resources (equipment, cars etc.) and political employment
of project personnel, not based on qualifications
• Programmes and projects are dependent on political
support; need to find flexible solutions and try to prevent
(e.g. refer to donor policy, transparency, lease instead of
buying equipment etc)
Enforcement of laws and
regulations
• Legal framework for e.g. the
coastal zone is well developed,
building activities are regulated
through permit system, setback areas etc.
• But enforcement and control is
relatively “lax”
• Illegal practices can continue
• Consented by politicians
• Undermines people’s respect
• Examples: Illegal constructions
within coastal setback area in
Hambantota, coral business
A burdened bureaucracy
• Government structures are overburdened by large
numbers of demands from a multiplicity of donors and aid
organisations, that are not always well coordinated
• Agencies are often managed by politically appointed
chairmen or directors, hierarchic structure
• Frequent changes in organisation due to political instability
• Overlapping jurisdictions, unclear roles
• Lack of long-term policies and strategies
• Lack of continuity - officials leave for more attractive and
better paid jobs
• Need to have good contacts and to “push” in order to get
things through (personal attendance)
• Allocate sufficient response time for administrative
processing (applications, permits etc)
The “operative” community level
• The communities are resourceful with strong CBOs
and NGOs
• But plans are still being implemented (imposed) by
state officials that are not very responsive to local
needs (top-down approach)
• The plans are often seen as interference from
“outsiders” and therefore opposed or not followed
• Local participation and ownership is a key to better
(self-)management, need to involve the civil society
• Control and “policing” will be less required
• Community based initiatives at community level has
shown promising results
“SAM” - example of community
based coastal management
• Special Area Management (SAM)
• SAM is a community-based, collaborative process
between residents (CBOs/NGOs) and local, regional
and national government departments
• Allows for intensive, comprehensive management of
coastal resources in a well-defined geographic area
• Central to the concept is the premise that •git is possible
to organize local communities to manage their natural
resources, and they will continue to do so if they
perceive that they derive tangible benefits from better
management•h
SAM process in two coastal communities:
Mawella and Kudawella
• Establishment of a SAM Coordination
Committee
• Participation from community groups,
NGOs and relevant local and national
level agencies (collaborative
management)
• Awareness creation
• Identification of management issues
• Surveys (improve knowledge base)
• Search for solutions (a number of
community workshops)
• Development of zoning plan and action
programme
• Implementation of tangible actions
• Larger investments covered by CRMP
(ADB), responsible authorities etc.
Mawella lagoon and Kudawella (Blowhole)
Mawella
lagoon
Kudawella
Blowhole
SAMCC: Priority actions
(a few selected)
• Improve the environmental quality of the
Mawella lagoon; opening of canal to the
sea, reduce pollution, encroachment etc.
• Create revenues from tourism, e.g.
Environmental Information Centre at
Kudawella
• Alternative income-generating activities for
“resource abusers”
Environmental
Information
Centre at
Kudawella
Blowhole
Environmental Information Centre
• Promotion of coastal conservation, workshops,
teaching, community activities
• 375 000 visitors annually (to the Blowhole)
• Economic valuation carried out (willingness to pay)
• Revenues from entrance fee will cover the operational
costs (self-financing)
• Surplus funds will be used for other purposes
benefiting the community
• Management by stakeholder trust, headed by the PS
• Operation and maintenance leased out to private
company
Reduce pollution in the lagoon
• Construction of toilets
• 45 households selected
• Latrine;
– superstructure, septic tank &
soakage pit
• The beneficiaries
(households) provide labour
• HICZMP provides materials
and supervises construction
Promoting sustainable income generating activities as
an alternative to resource abuse
from
resource
abuse to...
new
business
activities
Micro credit - revolving fund
• Revolving fund administered by a selected
commercial bank and two co-operative societies
• Size of loans: ~1500 US$
• Part of the interest goes back to the fund
• Main target groups: Coral and shell miners and
bottom-net users
• Emphasis on the poor, women and disabled
• Minimum 50 beneficiaries/families
• Difficult to mobilise some of the groups
• Training in entrepreneurship is provided
• Pay-back is positive
Key challenges
(in working with the bureaucracy in Sri Lanka)
• Work (“muddle through”) in a politicised
environment
• Overcoming the bureaucratic constraints
• Work with the local, operative level
based on their premises and needs:
– The local government
– The communities
– The stakeholders
Teamwork is required…
Thank you, and…