Revision of the Northern Provincial voter registry - 2010

Observation Report

1. Introduction

The revision of the voter registries throughout the country commenced on June 1 st 2010 by the
Department of Elections. Since its been a long time since a comprehensive revision is being conducted
in the north CaFFE visited all five districts of the Northern Province, Jaffna, Kilinochchi, Vavuniya,
Mulativu and Mannar to monitor how this process is unfolding. This report is based on the
observations and investigations CaFFE made during the fact finding missions and the data survey.

Unique features observed

1. There is no functional grass root level civil administrative structure in many parts specially in
Kilinochchi, Mulativu and Mannar because they were under the LTTE control for a long period
2. The revision of the registry is hampered by the lack of manpower, proper training and resources
3. Traditional research methodologies can not be applied
4. The dire and immediate need of mobile units and additional staff
5. The necessity to educate the residents on the process since many people have not participated in
the voting process during the time under LTTE control
6.

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2. Background

Because of the 25 year long civil war a proper revision of the voter registries has not occurred in many
part of Jaffna and Vanni districts. Although department of elections officials conduct such revisions in
other parts of the country during the months of June and July this has not happened in the North for
many years.

This has deprived the voting rights of many eligible individuals in the province while the names of
many individuals who have either died, left the country or do not live in the area are included in the
current voter registry. furthermore Jaffna electoral district, which is a combination of Jaffna and
Kilinochchi administrative districts, is the ONLY area in Sri Lanka where the national identity card
numbers are not included in the voters registry.

A proper and an accurate voter registry is a must to ensure a free and fair election. International and
local experiences have proven over and over again that the inaccuracies in the voter registry can be
used to carry out election malpractices.
CaFFE has continuously emphasized the importance of revising the voter registry in the North during
the local council, presidential and general election periods. We believe that the right to vote is a
fundamental human right that we must try to protect as a nation. Considering the uniqueness of the
circumstances CaFFE has also stressed on the necessity for a ‘change’ in the revision process.

The department of elections promised CaFFE that they will take steps to address the issues we have
raised through the 2010 revision of the voter registry.

3. Voter registry revision process of the Northern Province

Organizational and administrative structure

Apart from a few areas in the Colombo district the initial steps during the revision of the voter registry
is taken through the Grama Niladaris by the Divisional Secretariats in all parts of Sri Lanka. The same
procedure is followed in the North.

Although the Commissioner of Elections has opened a special coordinating office in Kilinochchi in all
the other districts the Grama Niladaris carry out the distribution of the registration forms and conduct
the base survey for the voter registration.

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4. Lack of civil administrative structures

There is no functional grass root

level civil administrative structure
in the North specially in
Kilinochchi, Mulativu and some
parts of Mannar because they were
under the LTTE control for a long
period. There is also a grave
shortage of Grama Niladaris who
are essential in implementing
government policies in the grass
root level.

Photo - Paranthan GN office in

Kilinochchi District : No facilities

There should be 153 Grama Niladaris in the five divisional secretaries in the Mannar district but when
the revision process commenced on June 1st there were only 122 Grama Niladaris in the District which
means that there are vacancies at 20% of the Grama Niladaris divisions and that there is no proper
mechanism to carry out the base survey effectively for the voter registry revision process in those
areas.

A list of divisional secretaries which has a dearth of Grama Niladaris in Mannar District

Divisional The number Number of Grama Grama Percentage

Secretariat of vacancies Niladaris on Niladaris of Grama
recommended leave attached to Niladaris on
Grama the voter duty
Niladaris registration
The city of 49 10 02 39 79.6%
Mannar
Nanattan 31 02 29 93%
Musali 20 20 100%
Mandei 36 14 03 22 61%
West
Madu 17 05 01 12 70%
Total 153 31 06 122 79.7%

There are 81 acting Grama Niladaris in the Jaffna District because the vacancies have not been filled
by the government. There are 11 vacancies in Kopay Divisional Secretary alone.

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Numbe Divisional Name of the Grama Sewa Code
r Secretariat division
1 Delft Delft- South J/02
2 Delft West J/03
3 Velanei Mandeitivu South J/09
4 Velanei North East J/13
5 Pungudativu South West J/24
6 Pungudativu North J/27
7 Kytes Pungudativu J/39
8 Karampam North J/52
9 Karampam west J/54
10 Naranthnai North J/55
11 Sunruwil J/59
12 Kareinagar Kareinagar J/40
13 Kareinagar North J/42
14 Kareinagar Central J/48
15 Jaffna Nedunkulam J/61
16 Pasaiur west J65
17 Thirunagar J67
18 Reclamation west J/69
19 Gurunagar West J/71
20 Kuda Kadawediya J/72
21 Fort J/81
22 Nawanthurei North J/85
23 New Moor street J/88
24 Nallur Ariyalei South West J/89
25 Ariyalei East J/90
26 Kantharmadam North East J/103
27 Sankiliyan Thoppu J/109
28 Sandilippai Chawathkadu J/131
29 Manippai East J/138
30 Manippai South J/139
31 Mareshankadal J/154
32 Mullanei J/156
33 Sankanai Arali North J/164
34 Silipuram East J/174
35 Siththankeni J/177
36 Uduwil Uduwil Central J/184
37 Uduwil North J/186
38 Shanguweli J/187
39 Inuwil East J/189
40 Thawadi East J/193
41 Sunnamaham West J/199
42 Irlai East J/204
43 Punnaleikaduwan North J/208
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 44 Telippalei Mallaham North J/214
45 Kankasanthurwi South J/235
46 Mailadi North J/246
47 Mailadithurei South J/248
48 Thaiyedi South J/250
49 Palai North J/254
50 Kopay Irupalei East J/258
51 Kopay South J/260
52 Kopay North J/262
53 Urumburai North J/264
54 Neerweli west J/270
55 Puthur North J/274
56 Nawatikiri J/274
57 Awaranankal East J/276
58 Puthur East J/278
59 Thambalei Kadirappai J/282
60 Acchuweli North J/285
61 Mathenmarachchi Thaiyadi Central J/290
62 Marawanpulavu J/298
63 Chawakachcheri Town J/300
64 Chawakachcheri North J/303
65 Mesalei North J/231
66 Karambaham J/330
67 Mirusuwil South J/336
68 Nawatikadu J/338
69 Karaweti Karanawei south J/348
70 Uduppidi J/352
71 Thunalei South J/370
72 Thunalei East J/371
73 Alwei South J/379
74 Point Pedro Welwetithurei North West J/338
75 Welwetithurei South west J/392
76 Polikandi West J/393
77 Point Pedro J/401
78 Palali South west J/411
79 Manthikai J/215
80 Maradankeni Nagar Kovil East J/423
81 Nagar Kovil South J/425

There are four (4) divisional secretary units in the Vavuniya District. In Vavuniya divisional Secretary
(DS) there are vacancies in many Grama Niladari (GN) Divisions, for example: four vacancies in
Vavuniya South (Sinhala) divisional secretariat and one in Settikulam divisional secretariat. The table
below shows the details of the Vavuniya Divisional Secratrary division.

Divisional Divisions which does not Code

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 Secratary have a permanent Grama
Division Niladari
Vavuniya Velankulam 217 D
Salambaikulam 217 D
Vavuniya South 214
Nochchemottei 215
Paranattakallu 216 A
Kallikulam 215 C
Omanthei 220 D
Panrikkeithankulam 220 C
Arumuhanthan Pudukkulam 220 E
Mahilankulam 220 F
Semamadu 220 A
Palamottei 219 A

There are eight (8) vacancies in 42 Grama Niladari divisions in Karachchi Divisional Secretariat in
Kilinochchi district.

Grama Niladari Code

divisions without a
permanent officer
Aneiwilundan KN/02
Kannaheipuram KN/03
Akkarayankulam KN/05
Malayalapuram KN/ 09
Ambal town KN/ 19
Thiruweiyaru West KN/21
Maruda Nagar KN/24
Pudumarippu KN/37
Civic Centre KN/39

The Grama Niladari is the most important component of the base survey for the voter registry revision
and has been entrusted with this since June 1st 2010 after a training session. They are also responsible
for the coordination of the resettlement and reconstruction of the North.

5. Mannar District

Mannar district is divided into 5 Divisional Secretary's (DS) Divisions, Madhu, Nanattan, Mannar,
Manthei west and Musali, and the DS Divisions are further sub-divided into 153 Grama Niladhari
Divisions. CaFFE identified Nanattan as the DS Division which had most efficiently and effectively
carried out the voter re-registration process.

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 Photo Caption- Nanattan DS Division- a success story.
Survey forms of Sirikkanna GN division waiting to be
returned to the District Secretariat

Given below are details of some of the success stories in Nanattan DS division.

GramaNiladhari Date of the arrival The date the Number

Divisions of the survey forms GN can return of
and the voter the forms to the Families
registry Divisional
Secretariat
st
Murungan (118) June 1 July 6
Parikarikandan (123) June 1st July 6 216
st nd
Mottakadei (106) June 1 and 22 July 22 89
Ilandamottei (112) June 2nd July 12 43
st
Eseimuleiththakallu June 1 July 8 98
Weikeinattan Kandal (109) st
June 1 July 12 470
Sundikkuli (119) June 1st July 5
Ihalapiddi (111) June 1st July 12 127
Umanahari (103) June 1st July7 139
st
Wankalei North (97) June 1 July 12 275
Puliyankulam (122) June 1st July 5 98

But in some Grama Niladari (GN) divisions in Madu, Musali and Mannar DS Divisions the
distribution of forms have not commenced although a month has passed since the beginning of the
initiative. The District Secretariats have only distributed the voter
registries among the Grama Niladaris only on June 28th and six
Grama Niladari Divisions in Mannar DS Division have not
received the registries by July 2nd.

The Grama Niladari in Uppukulam South who has set up his

office right in front of the Mannar District Secretariat had not
received the voter registry of his area, which is an essential
document to carry out the base survey, until June 28th. Without

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the registry they can not identify the people he has to meet and verify whether they are still residents of
the area. The Grama Niladari, Mr. M.R. R Rathnaraj said that he will begin distributing the survey
forms on July 2nd and he expected it would take at least 8 days for the distribution of survey forms.

Photo Caption – Marks of success- document signed by the Grama Niladari of Ganeshanpuram, Settikulam
certifying that he received the survey forms to be distributed among the people.

6. Kilinochchi District

Kilinochchi district is divided into 4 Divisional Secretary's (DS) Divisions and the DS Divisions are
further sub-divided into 96 Grama Niladhari (GN) Divisions.

Undelivered application Forms at the

GN office in Kilinochchi and
Mulathive

Resettlement is still underway in

the Uriyan (No. 49) and
Murusamota (no 50) GN Divisions
in the Kandawalai DS division and neither GN divisions had received the survey forms by July 2 nd.
241 and 265 families have been resettled in Uriyan and Murusamota respectively. K. Nallamma who
has been resettled at No 242/3, 5th mile post, Uriyan is a former resident of Menik Farm and she told
CaFFE that she did not receive the survey forms. Many of the residents who spoke to CaFFE were not
aware about the revision of the voter registration process.

Although the Grama Niladari of the Rathnapuram GN division

in the Karachchi DS division told CaFFE that he has
commenced the distribution of the survey forms by June 28th we
were unable to find any house which has received the said
forms. And there are many residents like M. Mahendran of 2 nd
Mile post, Poram Kattu, Kandawadi GN division and Mr.
Selvarasi of Paranthan GN division (no 44) who said that they

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had no idea about what’s going on. Although families have been resettled in Kandawadi almost four
months ago they have yet to receive the survey forms.

The revision process has not kicked off in many of the 96 GN divisions in the Karachchi, Kandawalai,
Pooneryn and Pachchilaipalli DS Divisions in the Kilinochchi District. And even in GN divisions that
have started distributing the forms are facing many administrative difficulties.

Given below are GN divisions that have commenced the distribution of survey forms but not
completed the work yet.

GN Division GN Division #
1 Wannerikulam KN/01
2 Anewilundan KN/02
3 Kannaharpuram KN/03
4 Skandhapuram KN/4
5 Akkarayanpuram KN/05
6 Konawil KN/06
7 Ottupuram KN/36
8 Pudumurippu KN/37
9 Selwa nagar KN/15
10 Urutthipuram West KN/34
11 Sivanagar KN/35
12 Urutthipuram North KN/32
13 Urutthipuram East KN/33
14 Kanahapuram KN/26
15 Jayanthi Nagar KN/30
16 Periya Paranthan KN/31

The above mentioned GN divisions were significantly behind in distributing, completion and re
collecting the survey forms and the process had come to a standstill by July 3 rd. Even the Grama
Niladari of Karachchi who runs his office in a rundown old building in the Kilinochchi railway station
which is in front of the Karachchi DS office had not distributed the survey forms to the houses nearby
and this shows that the revision process is not properly underway even in the urban areas of
Kilinochchi.

7. Jaffna District

Jaffna district is divided into 15 DS Divisions and the DS Divisions are further sub-divided into 435
Grama Niladari (GN) Divisions. In many of the electorates including Kopay, Chavakachcheri, Manipai
and Kankasanthurei electorates the base survey had not commenced even by July 2 nd. The main reason
for the delay is the non availability of the voter registries for the Grama Niladaris which is caused by
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the lack of resources at the Jaffna Election Office. CaFFE observed that they had only one photocopy
machine which significantly delays the preparation of the necessary documents.

Photo caption - A story of

dedication - the operation
in Jaffna is conducted
with minimum resources.

Despite the lack of material resources the officers at the Jaffna Election Office is doing all they can to
ensure that the operation carried out and meet the deadline. Some elections officials work on weekends
despite the fact that they do not get paid over time for working on weekends. This shows the
dedication of the Jaffna election officials who seem to understand the importance of this project much
better than their colleagues in other districts.

504 families live in Koddadi GN division and 90% of the families have
received the survey forms by July 2nd and the GN is expected to collect
them by the second week of July. But even in Jaffna there are GN divisions
which are lagging behind. The Grama Niladari of Vannar Ponni (J/82) at
the Jaffna DS division received the voter registry only on June 30 th and
CaFFE noted that the operation was still not underway in Nedunkulam
(J/61.)

Residents of Aththiyadi (J/78) told us that the distribution of survey forms

commenced only on July 2nd. Ms. Rasikala, the Grama Niladari of
Aththiyadi had received the voter registry only on June 30th.
Wigneshwaran, Grama Niladari of Urumpirai east (J 266) in Kapay DS
division told CaFFE that he only received the voter registry on July 3rd.

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S. Sellamma of Themmaradchi South (J/291) and Nithyananada Murthi of
Themmaradchi South East (J/292) told us that they have not received the survey
forms even by July 3rd and they added that most of the residents are not aware
whats going on and the purpose of this operation.

And then there are Grama Niladaris like N. Sunthararajan who has to look after
two GN divisions, Navanthurai South (J/84) and Navanthurai North (J/85.) he told
CaFFE that it is extremely difficult to handle the workload and he is finding it hard
to properly commence the operation still. We hear the same story from M.
Sundaralingam who administrates both Eachchamoddai (J/66) and Thirungar
(J/67) GN divisions.

8. Kilinochchi Special Election Office

The Department of
Elections has
established a special
election office at the
Kilinochchi District
Secretariat and five
officials have been
appointed for this
office. But three of
these men are from
Vavuniya while the
other two are
residents of Jaffna
and are officers
attached to election
offices in Vavuniya
and Jaffna. Because
they have to travel

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long distances they only come to office two to three days a week and the office is only open on these
days.

Although the special election office has been fitted with comfortable furniture there are no stationary,
files or signs that some kind of work is being done in it. There are no systematic operations being
carried out and we noticed that there is no proper coordination with the Kilinochchi and Mulativu
District Secretariats which is vital for the successful completion of the survey.

8.1 Statement of the Commissioner of the Kilinochchi Special Election Office

CaFFE team spent six days in Kilinochchi but was unable to meet the officials at the Special
Election Office despite their continuous efforts. The team visited the office on six occasions but
there were no officials available for comment or to receive information. CaFFE was finally able
to contact Mr. Karunanidi, the Commissioner, through a phone call at 10.35 am on July 6 th and
these were his comments on the survey and election monitoring bodies.

 “CaFFE is misleading the public about the real situation in Kilinochchi for publicity.
Tell the people what really happens in Kilinochchi, not what you think is happening.”

 “We have held work shops for Grama Nildaris and have given them the necessary
documents. I have told them that there is no hurry and they can even take two or three
months and that they have time till everyone is resettled.”

 “We (department of Elections) know how to revise the voter registry. Please try to
provide food, water and housing facilities to the people.”

 “We have a limited staff. Only five staff members including the driver and three of
them work outside the office.”

 “The office is open five days a week.” After the CaFFE team told him that this is not
what they saw he changed his statement to, “I come to office 2-3 days a week but the
others come all five days.”

When we questioned the commissioner on the registration of the IDPs and the newly resettled
the commissioner disconnected the phone.

9. Mulathive District

In any of the six (6) DSs, Mallavi, Ouddusudan, Pudukuduirippu, Vishwamadu, Mulathive and
Thainnimutthur distribution of forms has not been taken place yet.

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10. Common problems faced by the Grama Niladaris

1. Some GNs have to administer another GN division because of the lack of staff

2. Most GNs do not have proper offices, specially in Kilinochchi and Mulativu. For example the
Paranthan GN (KN 44) office is established in a small hut covered by two roofing sheets.
Another office is situated at the dilapidated Kilinochchi Railway station. GNs can not leave
documents at these buildings and have to take the documents home. In many cases the GN
comes to these offices once or twice a day from home and they lack transportation facilities.

3. Since many GNs have a big work load they are unable to properly focus on the voter
registration. Not only do they have to coordinate with the World Food Programme officers and
distribute food among the people but also they have to work with police and judicial officers to
apprehend and carry out their work. Resettlement process is still underway and has added to the
work load of the GNs. And in many occasions their superiors tell them what their priorities are
and this has had a negative impact on the voter registration.

4. Many of the residents in the area are not capable of filling the forms and the GN has to do that
for them. This is a time consuming endeavour. Ms. Praveena, the GN of Rathnapuram (KN 22)
of Karachchi DS division told CaFFE that since she has to fill the forms also she can only
commence the programme after July 3rd.

5. This year’s voter registry revision process is more complex than previous years. A lot of GNs
criticize the Department of Elections for increasing the documentation.

6. The GN reports to the District Secretaries. They have to work with the department of elections
only for this specific project. And the department of elections do not properly monitor the GN
in action.

11. General observations

1. The majority of GNs do not have a proper understanding of the voter registry revision process.
For example five GNs we met at Kilinochchi were not aware of the deadline of the project.

2. A workshop was held to train and educate the GNs in Vavuniya in the last week of May but
most do not possess a proper understanding on how to register the newly resettled and the
IDPs.

3. S. Sudakaran, Assistant Elections Commissioner of Vavuniya told CaFFE that 82 volunteers

attached to the Human Rights Commission are educating the people in Kilinochchi, Mulativu,

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 Nedunkerni and Settikulam areas. But the CaFFE team never came across these volunteers
during their visit and was unable to find anyone who had met or were educated by the
volunteers.

12. Other Issues

1. People who have migrated from the Northern Province to other parts of the country do not wish
to return. While some try to register in the areas they now reside getting the necessary
documents from the GN back home is a difficult and lengthy process. Therefore many don’t
bother to register.

2. If those who now live in Anuradhapura and Puttalam want to register at their original
electorates they need to remove heir names from the voter registry of Anuradhapura and
Puttalam. After doing that they need to get a certification from the GN but many GNs in the
North are not aware of this procedure. This has lead to double registration, the same person
having his/her name on voter registries of different electorates.

3. Many of the residents of the Northern Province do not possess the knowledge to fill the survey
forms and many do not know about the alternative methods when they do not have the national
identity card and other documents.

13. CaFFE Recommendations for a successful revision of the voter registry

1. While deploying the Grama Niladaris (GN) to register the voters in Kilinochchi, Mulativu,
Mannar and Vavuniya, the Department of Elections need to take alternative measures to make
work easier for the GNs.
2. Registering voters through a mobile service has been stopped by the Voter Registration act no
44 if 1980 but the same act has called for the strengthening of the Claim and objections
application process.

2.1  In the Sri Lankan capital of Colombo steps have been taken to appoint ‘counting officers’
for Grama Niladari divisions that does not have a permanent Grama Niladari. CaFFE
recommends that the same should be done in the problem areas of Kilinochchi and Mulativu
districts.  

2.2  We should look at mechanisms used by other countries which faced problems in updating
their voter registry after Civil wars which can be used as a guide for an appropriate registration
mechanism. We can appoint a deputy for each counting officer to quicken the process.

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 3. Unlimited extension of the deadlines for voter registry is not practical or advisable. There is a
serious possibility of the politicization of the process with the upcoming Local Council
elections. Therefore we recommend that the department of elections should quicken the process
using alternative voter registration programmes
4. Appoint a panel of election department officials, state administrative officers and
representatives of the civil society organizations to monitor the revision of the voter registries
and provide immediate solutions to the problems identified by the panel.
5. The deadline should be extended till the end of August. We also request the election officials to
include the national identity card number in the voter registry.
6. Voters should be educated about the electoral process at the Grama Niladari Division level. A
team of volunteers should be built to help the Grama Niladaris to minimize the errors which
occur while filling the application forms and to reduce the number of people who loose their
voter rights due to errors made while filing applications.

 14. Long term recommendations

1. The voter Registration act no 44 of 1980 prevents mobile units from registering voters. We
believe that the time has come to amend the necessary acts to allow voter registration by mobile
units.

Campaign for Free and Fair Elections (CaFFE)

July 7th, 2010

Research and Field assistance by

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