Context

• India's decision to name the Jaffna Cultural Centre after the Tamil poet-philosopher Thiruvalluvar is a symbolic move that underscores its deep historical and cultural ties with Sri Lanka.
• This gesture not only acknowledges the Tamil heritage but also serves as a diplomatic tool to reinforce India's influence in Sri Lanka, particularly among the Tamil-speaking population.
• However, beyond the cultural significance, the relationship between the two nations has been shaped by decades of political complexities, particularly regarding the Tamil issue and the implementation of the 13th Amendment (13A) to Sri Lanka’s Constitution.

Historical and Political Context of 13^th Amendment and India’s Stance

• Historical and Political Context of 13^th Amendment
  • India’s involvement in Sri Lanka’s Tamil issue dates back to the 1983 anti-Tamil pogrom, which led to its role as a mediator and later as an active player in resolving the ethnic conflict.
  • This culminated in the Indo-Lanka Accord of 1987, which resulted in the 13th Amendment, introducing Provincial Councils with limited autonomy.
  • However, the amendment has remained a contentious issue, facing resistance from both Sinhalese nationalist groups and Tamil separatist forces.
  • The Janatha Vimukthi Peramuna (JVP), the party of Sri Lankan President Anura Kumara Dissanayake, has traditionally opposed 13A, viewing it as an imposition by India.
  • Similarly, the Liberation Tigers of Tamil Eelam (LTTE), though advocating Tamil autonomy, rejected the amendment as inadequate.
• India’s Stance on the 13th Amendment
  • Despite over 35 years since its introduction, the full implementation of 13A remains elusive, especially in Tamil-majority areas.
  • Successive Indian governments have consistently urged Sri Lanka to implement the amendment fully.
  • However, recent developments, such as Indian Prime Minister Narendra Modi’s omission of any direct mention of 13A during Sri Lankan President Dissanayake’s visit in December 2024, have raised questions about whether India is shifting its stance.
  • While Foreign Minister S. Jaishankar reiterated India’s call for devolution, Modi’s silence suggests a possible recalibration of India's approach, potentially influenced by Sri Lanka’s evolving domestic politics.

Sri Lanka’s Political Landscape and Devolution Debate

• The JVP and the NPP’s Stance on Devolution
  • A critical factor shaping the debate on devolution today is the stance of the JVP, a left-wing nationalist party that has historically opposed 13A.
  • The party, which played a significant role in two armed uprisings (in 1971 and 1987-89), viewed the Indo-Lanka Accord and its resulting constitutional amendment as an infringement on Sri Lanka’s sovereignty.
  • This position has persisted even as the JVP evolved into a mainstream political force.
  • Currently, the JVP leads the National People’s Power (NPP) coalition, which has emerged as a dominant political force in Sri Lanka.
  • President Anura Kumara Dissanayake, who hails from the JVP, has not explicitly stated whether his government will fully implement 13A.
  • During his 2024 parliamentary election campaign in Jaffna, he largely avoided discussing the issues of power devolution and a political settlement for the Tamils, raising concerns that his administration may not prioritize Tamil autonomy.
• The Ambiguity in the NPP’s Constitutional Promises
  • The NPP’s 2024 election manifesto promised to draft a new constitution that strengthens democracy and ensures equality for all citizens.
  • However, it did not explicitly mention greater autonomy for the Tamil-majority Northern and Eastern provinces.
  • Instead, it proposed a "devolution of political and administrative power to every local government, district, and province", suggesting a broader but less concrete approach to decentralisation.
  • The manifesto also committed to holding provincial and local government elections within a year, a crucial step given that provincial councils have been defunct since 2019.
  • However, it remains unclear whether these elections will lead to meaningful devolution or if they will merely reinforce existing administrative structures without addressing Tamil political demands.
• The Risk of Local Government Supplanting Provincial Councils
  • One of the key debates in Sri Lanka’s devolution discourse is whether local government bodies can serve as an alternative to provincial councils.
  • Local bodies, such as municipal and district councils, have a much longer history in Sri Lanka than provincial councils and are responsible for grassroots governance.
  • However, they lack the financial and administrative capacity to address broader regional challenges, particularly in the Tamil-majority areas, which continue to struggle with post-war reconstruction and economic underdevelopment.
  • The fear among many Tamil leaders is that the government may prioritise strengthening local government institutions while ignoring provincial councils, thereby sidestepping the core issue of regional autonomy.
  • Unlike provincial councils, which were established as a direct outcome of 13A, local bodies function under a different administrative framework with limited powers.
  • If the government focuses only on local bodies without empowering provincial councils, Tamil aspirations for meaningful self-governance may remain unfulfilled.
• The Role of Sinhalese Nationalism in the Devolution Debate
  • The broader devolution debate in Sri Lanka is also influenced by Sinhalese nationalist sentiment, which opposes granting more autonomy to Tamil-majority regions.
  • Many nationalist groups fear that implementing 13A fully—especially provisions related to land and police powers—could lead to a gradual push for separatism.
  • This sentiment has historically shaped government policies, leading to reluctance in implementing devolution measures despite repeated Indian diplomatic pressure.

The Way Forward: Towards a Durable Solution

• For Sri Lanka to achieve long-term stability and reconciliation, the ruling coalition must recognize that the Provincial Councils are not merely an Indian creation but a product of Sri Lanka’s own political evolution.
• The country’s constitutional framework has historically drawn from global models, including British, American, and French systems.
• Therefore, dismissing 13A as an external imposition overlooks its potential to provide a democratic solution to the ethnic conflict.
• With a two-thirds majority in Parliament and a popular President, the NPP has a unique opportunity to enact meaningful reforms.
• A balanced approach that respects the aspirations of the Tamil population while maintaining national unity is essential.
• Implementing the full provisions of 13A, including holding provincial council elections, would be a significant step in addressing Tamil grievances and reinforcing Sri Lanka’s democratic credentials.

Conclusion

• India’s decision to rename the Jaffna Cultural Centre after Thiruvalluvar symbolises its commitment to cultural diplomacy and its historical ties with Sri Lanka, however, the deeper issue of Tamil political rights remains unresolved.
• The 13th Amendment, despite its flaws, remains the most viable framework for addressing Tamil aspirations within a united Sri Lanka.
• While India’s stance on the issue may be evolving, Sri Lanka’s leadership must recognise that meaningful devolution is not merely a diplomatic obligation but a necessity for national harmony.