By Maheesha Mudugamuwa
Thousands of archaeological remains around the country are at severe risk due to the irregularities and mismanagement of the Department of Archaeology, as revealed by the National Audit Office (NAO).
[caption id="attachment_106099" align="alignleft" width="300"]
The ancient city of Polonnaruwa, a famous archaeological site in Sri Lanka[/caption]
In its latest performance audit report, the NAO has uncovered that the archaeological sites in Trincomalee, Batticaloa, Ampara, Polonnaruwa, and several other areas around the country are facing a huge threat as the Department failed to properly complete the excavation and preservation of the archaeological monuments in those areas.
Furthermore, it is revealed that the Department was operating without a proper database of the sites excavated by archaeologists for more than a century.
The NAO stated in its recent audit report on archaeological sites of Sri Lanka, that even though the excavation activities were carried out since the Department of Archaeology was established in 1890, to identify the archaeological heritage of Sri Lanka, no formal data files or system had been prepared.
Details of the ancient and protected monuments, reserved archaeological forbidden lands, and archaeological reserves of the 25 districts of Sri Lanka issued by the Government Gazette during the period of 128 years from 1890 are inclusive of 2,712 protected and ancient archaeological monuments, 227 reserved forbidden archaeological lands, and 174 archaeological reserves.
Poor performance
Auditor General (AG) W.P.C. Wickramaratne had stated in the recent audit report that the Department of Archaeology had failed to obtain a sum of Rs. 2,640.46 million allocated by the Central Cultural Fund (CCF) for archaeological heritage for the last four years.
As described, it is one of the main functions of the CCF to finance the expenses incurred in the development of cultural monuments in terms of Section 8 of the Central Cultural Fund Act No. 57 of 1980.
The NAO, in its report titled “Management of the Archaeological Heritage of Sri Lanka” and bearing No. CAS/C/PER/A/ARC/2019, observed the failure to implement departmental projects on a proper plan; delays in implementation of antiquities management projects initiated; delays in publication of identified archaeological monuments, ancient monuments, and archaeological reserves in the Government Gazette; problems arising in the protection of antiquities due to the destruction of antiquities caused by human activities; difficulties in funding; delays in availability of materials for conservation; inadequate human resources and other resources for the protection of archaeological resources; and inadequate expertise in archaeological resource management and research.
In addition, under the section on the utilisation of funds, the NAO stated that it observed delays in the implementation of projects related to the funds allocated for the management of archaeological heritage, delays in execution, and non-receipt of funds due to legal provisions.
Additionally, the report read: “It was further observed that the funds received from the CCF had been kept in the general deposit account for a long time without utilisation due to poor performance.
“As at 31 December 2018, a sum of Rs. 83.66 million for a period of three to five years and a sum of Rs. 16.20 million for a period of one to three years, had been retained in general deposit for a long time without use,” the audit report revealed.
Exploration slowing down
Furthermore, according to the audit report, the exploration activities have not been carried out during the year 2018 in the Polonnaruwa District in order to identify the places and areas where archaeological evidence such as protected monuments and archaeological reserves exist.
It is revealed that a sum of Rs. 300,000 had been allocated to the Polonnaruwa District in the Budget of 2018 for the role of the exploration division, and the ways of utilising those provisions on exploration activities had not been specifically identified. Therefore, it was observed that priority had not been given to exploration activities, as the provisions had not been made for the year 2019.
As explained in the report, even though the Archaeological Department had stated to the NAO that the financial progress was 54% and physical progress was 95% in the year 2018, the financial provisions were utilised for the issuance of mineral and rock extraction permits and unauthorised excavation inspection, and had been shown under the progress within the exploration division.
Cracks in exploration activities in the island
Polonnaruwa
It was revealed in the National Audit Office (NAO) report that the archaeological monuments and artifacts in eight out of the 21 sites explored in 2017 in the Thamankaduwa, Dimbulagala, Welikanda, Lankapura, Elahera, and Bakamuna Divisional Secretariat Divisions in the Polonnaruwa District had been destroyed and distorted.
The exploration activities had revealed that the unauthorised excavations by treasure hunters, unauthorised encroachment of land by local residents, removal of stone slabs and bricks from monuments by nearby residents for their personal use, cultivation of paddy and chena lands, granting of land for cultivation by the Mahaweli Authority, government development activities, etc. had caused the destruction of the antiquities.
Accordingly, the NAO has observed that 94 protected monuments, ancient monuments, and archaeological reserves that had been identified in Polonnaruwa only in 2016 and 2017, had not been published in the Government Gazette.
Although those archaeological sites and areas were identified in 2016 and 2017, and more than two years had gone by, it was observed in the audit that not declaring those items had caused an increase of the destruction and impacts on archaeological monuments.
Ampara
Similarly, it was also revealed in the audit report that the exploration programmes were not carried out during the period of 2019 and the last four years, to identify the places and areas where archaeological monuments, protected monuments, archaeological reserves, and archaeological sites exist in the Ampara District.
As revealed, although a sum of Rs. 315,000 had been allocated for site and field inspections in 2018, the exploration activities had not been identified.
Instead, a sum of Rs. 307,109 had been spent out of that amount during the year as travelling expenses for field inspections in connection with the issuance of mining and mineral extraction permits. But those expenses were cited as financial and physical progress of the exploration division.
An amount of Rs. 200,000 had been allocated for site inspection and field work in the year 2019 as well and a sum of Rs. 60,594 had been spent until the month of September. Those expenses were also borne as travel expenses incurred in connection with the field inspections of unauthorised excavation and issuance of mineral extraction permits, it is noted.
Millions in funds wasted
It is also highlighted that the special exploration project which was launched in the Ampara District in the year 2013 that was supposed to be completed in six months, at an estimated cost of Rs. 11.81 million (the Ministry of National Heritage had provided Rs. 6.67 million and the Department of Archaeology had provided Rs. 5.14 million), had failed to fulfil its objectives.
It is revealed that work on protecting a total of 40 archaeological sites that were identified through exploration activities in 2013 had not yet begun. Plans were set in 2018 to install boundary posts by 31 March 2018 at a cost estimate of Rs. 1.88 million.
The report also noted that although 259 archaeological sites, 54 reserves, and 170 monuments were identified as at 17 October 2013 within the 14 divisional secretariats, no action was taken to record or declare the archaeological places, monuments, and reserves identified through exploration activities from that date to the end date of the project.
Out of the reserved lands proposed to be declared during these exploration activities, two were gazetted as reserve lands in the Ampara District up to 2019.
Although these places have been identified as the Muhudu Maha Viharaya and the Nuwaragala Reserve, their boundary issues are still unresolved. Lands belonging to the Muhudu Maha Vihara were distributed by the Divisional Secretary of the area in 2002 with licenses. Furthermore, the distribution of land has led to violations of the Archaeological Ordinance, the report noted.
Recommendations
Following the revelation of massive irregularities, the Auditor General (AG) has recommended the evaluation of the role of the Department of Archaeology in the management of archaeological heritage in Sri Lanka.
The Department of Archaeology, which holds the post of Director General of Archaeology, has been empowered by the Archaeological Ordinance No. 9 of 1940 to be the supreme institution for policymaking and implementation of the archaeological heritage management process in Sri Lanka.
The AG recommended taking necessary actions to amend the Antiquities Ordinance No. 9 of 1940 and the National Archaeological Policy, including necessary amendments to ensure better management of archaeological heritage; the establishment of the Archaeological Heritage Management Trust Fund in accordance with the Cabinet Memorandum No. 11/016/555/004 dated 18 January 2011; and obtaining 25% of the proceeds from the Central Cultural Fund (CCF) and utilising it properly only for the purpose of the management of Sri Lanka’s archaeological heritage.
The Auditor General has also recommended taking immediate steps to declare the identified archaeological protected monuments, ancient monuments, and archaeological reserves in the Government Gazette.
All attempts to contact State Minister of Defence Chamal Rajapaksa, Defence Secretary Maj. Gen. (Retd.) Kamal Gunaratne, and Archaeology Department Director General Prof. Senarath Dissanayake were futile.
The ancient city of Polonnaruwa, a famous archaeological site in Sri Lanka[/caption]
In its latest performance audit report, the NAO has uncovered that the archaeological sites in Trincomalee, Batticaloa, Ampara, Polonnaruwa, and several other areas around the country are facing a huge threat as the Department failed to properly complete the excavation and preservation of the archaeological monuments in those areas.
Furthermore, it is revealed that the Department was operating without a proper database of the sites excavated by archaeologists for more than a century.
The NAO stated in its recent audit report on archaeological sites of Sri Lanka, that even though the excavation activities were carried out since the Department of Archaeology was established in 1890, to identify the archaeological heritage of Sri Lanka, no formal data files or system had been prepared.
Details of the ancient and protected monuments, reserved archaeological forbidden lands, and archaeological reserves of the 25 districts of Sri Lanka issued by the Government Gazette during the period of 128 years from 1890 are inclusive of 2,712 protected and ancient archaeological monuments, 227 reserved forbidden archaeological lands, and 174 archaeological reserves.
Poor performance
Auditor General (AG) W.P.C. Wickramaratne had stated in the recent audit report that the Department of Archaeology had failed to obtain a sum of Rs. 2,640.46 million allocated by the Central Cultural Fund (CCF) for archaeological heritage for the last four years.
As described, it is one of the main functions of the CCF to finance the expenses incurred in the development of cultural monuments in terms of Section 8 of the Central Cultural Fund Act No. 57 of 1980.
The NAO, in its report titled “Management of the Archaeological Heritage of Sri Lanka” and bearing No. CAS/C/PER/A/ARC/2019, observed the failure to implement departmental projects on a proper plan; delays in implementation of antiquities management projects initiated; delays in publication of identified archaeological monuments, ancient monuments, and archaeological reserves in the Government Gazette; problems arising in the protection of antiquities due to the destruction of antiquities caused by human activities; difficulties in funding; delays in availability of materials for conservation; inadequate human resources and other resources for the protection of archaeological resources; and inadequate expertise in archaeological resource management and research.
In addition, under the section on the utilisation of funds, the NAO stated that it observed delays in the implementation of projects related to the funds allocated for the management of archaeological heritage, delays in execution, and non-receipt of funds due to legal provisions.
Additionally, the report read: “It was further observed that the funds received from the CCF had been kept in the general deposit account for a long time without utilisation due to poor performance.
“As at 31 December 2018, a sum of Rs. 83.66 million for a period of three to five years and a sum of Rs. 16.20 million for a period of one to three years, had been retained in general deposit for a long time without use,” the audit report revealed.
Exploration slowing down
Furthermore, according to the audit report, the exploration activities have not been carried out during the year 2018 in the Polonnaruwa District in order to identify the places and areas where archaeological evidence such as protected monuments and archaeological reserves exist.
It is revealed that a sum of Rs. 300,000 had been allocated to the Polonnaruwa District in the Budget of 2018 for the role of the exploration division, and the ways of utilising those provisions on exploration activities had not been specifically identified. Therefore, it was observed that priority had not been given to exploration activities, as the provisions had not been made for the year 2019.
As explained in the report, even though the Archaeological Department had stated to the NAO that the financial progress was 54% and physical progress was 95% in the year 2018, the financial provisions were utilised for the issuance of mineral and rock extraction permits and unauthorised excavation inspection, and had been shown under the progress within the exploration division.
Cracks in exploration activities in the island
Polonnaruwa
It was revealed in the National Audit Office (NAO) report that the archaeological monuments and artifacts in eight out of the 21 sites explored in 2017 in the Thamankaduwa, Dimbulagala, Welikanda, Lankapura, Elahera, and Bakamuna Divisional Secretariat Divisions in the Polonnaruwa District had been destroyed and distorted.
The exploration activities had revealed that the unauthorised excavations by treasure hunters, unauthorised encroachment of land by local residents, removal of stone slabs and bricks from monuments by nearby residents for their personal use, cultivation of paddy and chena lands, granting of land for cultivation by the Mahaweli Authority, government development activities, etc. had caused the destruction of the antiquities.
Accordingly, the NAO has observed that 94 protected monuments, ancient monuments, and archaeological reserves that had been identified in Polonnaruwa only in 2016 and 2017, had not been published in the Government Gazette.
Although those archaeological sites and areas were identified in 2016 and 2017, and more than two years had gone by, it was observed in the audit that not declaring those items had caused an increase of the destruction and impacts on archaeological monuments.
Ampara
Similarly, it was also revealed in the audit report that the exploration programmes were not carried out during the period of 2019 and the last four years, to identify the places and areas where archaeological monuments, protected monuments, archaeological reserves, and archaeological sites exist in the Ampara District.
As revealed, although a sum of Rs. 315,000 had been allocated for site and field inspections in 2018, the exploration activities had not been identified.
Instead, a sum of Rs. 307,109 had been spent out of that amount during the year as travelling expenses for field inspections in connection with the issuance of mining and mineral extraction permits. But those expenses were cited as financial and physical progress of the exploration division.
An amount of Rs. 200,000 had been allocated for site inspection and field work in the year 2019 as well and a sum of Rs. 60,594 had been spent until the month of September. Those expenses were also borne as travel expenses incurred in connection with the field inspections of unauthorised excavation and issuance of mineral extraction permits, it is noted.
Millions in funds wasted
It is also highlighted that the special exploration project which was launched in the Ampara District in the year 2013 that was supposed to be completed in six months, at an estimated cost of Rs. 11.81 million (the Ministry of National Heritage had provided Rs. 6.67 million and the Department of Archaeology had provided Rs. 5.14 million), had failed to fulfil its objectives.
It is revealed that work on protecting a total of 40 archaeological sites that were identified through exploration activities in 2013 had not yet begun. Plans were set in 2018 to install boundary posts by 31 March 2018 at a cost estimate of Rs. 1.88 million.
The report also noted that although 259 archaeological sites, 54 reserves, and 170 monuments were identified as at 17 October 2013 within the 14 divisional secretariats, no action was taken to record or declare the archaeological places, monuments, and reserves identified through exploration activities from that date to the end date of the project.
Out of the reserved lands proposed to be declared during these exploration activities, two were gazetted as reserve lands in the Ampara District up to 2019.
Although these places have been identified as the Muhudu Maha Viharaya and the Nuwaragala Reserve, their boundary issues are still unresolved. Lands belonging to the Muhudu Maha Vihara were distributed by the Divisional Secretary of the area in 2002 with licenses. Furthermore, the distribution of land has led to violations of the Archaeological Ordinance, the report noted.
Recommendations
Following the revelation of massive irregularities, the Auditor General (AG) has recommended the evaluation of the role of the Department of Archaeology in the management of archaeological heritage in Sri Lanka.
The Department of Archaeology, which holds the post of Director General of Archaeology, has been empowered by the Archaeological Ordinance No. 9 of 1940 to be the supreme institution for policymaking and implementation of the archaeological heritage management process in Sri Lanka.
The AG recommended taking necessary actions to amend the Antiquities Ordinance No. 9 of 1940 and the National Archaeological Policy, including necessary amendments to ensure better management of archaeological heritage; the establishment of the Archaeological Heritage Management Trust Fund in accordance with the Cabinet Memorandum No. 11/016/555/004 dated 18 January 2011; and obtaining 25% of the proceeds from the Central Cultural Fund (CCF) and utilising it properly only for the purpose of the management of Sri Lanka’s archaeological heritage.
The Auditor General has also recommended taking immediate steps to declare the identified archaeological protected monuments, ancient monuments, and archaeological reserves in the Government Gazette.
All attempts to contact State Minister of Defence Chamal Rajapaksa, Defence Secretary Maj. Gen. (Retd.) Kamal Gunaratne, and Archaeology Department Director General Prof. Senarath Dissanayake were futile.