Beruflich Dokumente
Kultur Dokumente
Note
This
note
is
an
introduction
to
the
legal
framework
governing
places
of
religious
worship
in
Sri
Lanka,
with
specific
focus
on
the
ownership
and
control
of
such
land.
Recent
events
such
as
the
attack
on
the
Jumma
Mosque
of
Dambulla,
the
claim
that
the
Mosque
and
other
buildings
in
the
area
are
situated
in
a
sacred
area
and
the
contestation
regarding
the
ownership
of
the
property
and
legality
of
the
construction 1
have
intensified
a
larger
debate
beyond
the
specific
problem
in
Dambulla
to
legal
and
other
challenges
pertaining
to
religious
freedoms,
religious
institutions
and
related
land
rights.
This
debate
needs
to
be
situated
in
a
wider
discussion
on
religious
tolerance
in
Sri
Lanka
and
the
guarantees
provided
in
the
present
Constitution.2
At
the
outset
it
must
be
noted
that
the
legal
and
policy
framework
pertaining
to
land
goes
back
decades
and
is
in
some
instances
archaic,
requiring
reform.3
The
plethora
of
laws,
regulations,
gazettes
and
policies
in
this
area
contributes
to
the
confusion.
This
is
exacerbated
by
practical
problems
such
as
the
loss
or
lack
of
legal
documentation,
fraudulent
documentation,
boundary
disputes,
contestation
of
ownership
and
occupation
by
others,
particularly
in
the
war-affected
areas
that
demand
urgent
legal
and
policy
initiatives
in
the
post-war
context.
This
is
further
compounded
by
the
confusion
over
whether
individual
plots
have
been
classified
as
state
and
private
land,
which
directly
impacts
ownership
and
control
of
the
particular
land.
In
the
instance
of
the
Dambulla
Mosque,
contradictory
reports
have
created
confusion
as
to
the
rightful
owner
of
the
land
due
to
the
contestation
of
ownership
and
the
lack
of
clarity
regarding
which
laws
are
applicable
to
the
specific
case.4
This
has
exacerbated
tensions
among
the
affected
groups
in
the
Dambulla
1
Religion
and
Peace,
Minister
says
mosque
located
outside
sacred
area,
Newsfirst.lk,
26
April
2012,
(http://newsfirst.lk/english-news/?view=talk_town_more&id=46),
last
accessed
on
28
April
2012;
Supun
Dias,
JHU
says
disputed
mosque
at
Dambulla
not
a
mosque,
Daily
Mirror,
25
April
2012,
(http://epaper.dailymirror.lk/epaper/viewer.aspx);
Premier
says
Dambulla
Mosque
is
illegal;
Muslim
Congress
against
government
decision,
Hirunews.lk,
23
April
2012,
(http://www.hirunews.lk/32751),
last
accessed
on
28
April
2012.
2
The
constitutional
provisions
which
have
a
direct
bearing
on
religious
freedom
in
Sri
Lanka
are
Article
9,
10
and
14(1)
(e)
of
the
constitution.
Article
9
relates
to
the
foremost
place
of
Buddhism
and
the
States
duty,
subject
to
the
provisions
of
Articles
10
and
14
(1)
(e),
to
protect
and
foster
Buddhism.
Article
10,
which
is
an
absolute
right
by
being
exempt
from
the
limitations
on
fundamental
rights
set
out
in
Article
15,
states
that
every
person
is
entitled
to
freedom
of
thought,
conscience
and
religion,
including
the
freedom
to
have
or
to
adopt
a
religion
or
belief
of
his
choice.
Article
14
(1)
(e)
provides
that
Every
citizen
is
entitled
to
the
freedom,
either
by
himself
or
in
association
with
others,
and
either
in
public
or
in
private,
to
manifest
his
religion
or
belief
in
worship,
observance,
practice
or
teaching.
This
right
is
subject
to
certain
restrictions
that
may
be
prescribed
by
law
under
Article
15
(7),
for
the
purpose
of,
inter
alia,
securing
recognition
and
respect
for
the
rights
and
freedoms
of
others.
3
B.
Fonseka
and
M.
Raheem,
Land
Issues
in
the
Northern
Province
Post-War
Politics,
Policy
and
is located on private land whereas the Buddhist clergy and their supporters claim it to be sacred land. The District Secretary of the area is reported to have said that the particular plot of land was
issue
and
has
had
a
ripple
effect
in
other
parts
of
the
country.5
As
to
how
this
issue
is
addressed
can
have
a
far
reaching
impact
on
other
instances
of
disputes
related
to
land
issues
related
to
religious
institutions
and
also
on
relations
between
communities.
In
this
regard,
the
Centre
for
Policy
Alternatives
(CPA)
has
produced
this
short
note
to
outline
specific
laws
that
have
a
relevance
over
lands
and
property
where
religious
buildings
are
situated
and
owned
by
religious
entities.
Relevant
Legislation
There
are
a
number
of
laws
that
deal
in
some
detail
with
the
regulation
of
the
administration
places
of
religious
worship.
Those
relevant
to
the
specific
case
of
Dambulla
include
the
following:
The
Muslim
Mosques
and
Charitable
Trusts
or
Wakfs
Act
of
1950
The
Buddhist
Temporalities
Ordinance
of
1921
as
amended
The
Buddhist
Temporalities
(Amendment)
Act
1981
The
Trusts
Ordinance
There
are
also
other
laws
applicable
to
Christian
denominational
and
non- denominational
churches. 6
Furthermore,
some
places
of
religious
worship
are
incorporated
through
Acts
of
Parliament,
which
in
turn
govern
their
administration. 7
However,
these
laws
do
not
place
any
restriction
on
the
proliferation
of
places
of
religious
worship
or
the
locations
where
they
are
to
be
acquired
in
1984,
although
no
reasons
are
given
as
to
the
reason
for
acquisition,
whether
steps
were
taken
as
provided
by
legislation
including
compensation
for
affected
parties
and
whether
the
land
was
subsequently
vested
to
another
party
(Wasantha
Ramanayake,
Dambulla
mosque
dispute
now
in
Presidents
court,
The
Sunday
Times,
29
April
2012,
http://sundaytimes.lk/120429/News/nws_35.html
)
5
As
evidenced
by
the
hartal
in
parts
of
Ampara
and
Batticaloa
on
26
April
2012.
6
Calvary
Church
of
Sri
Lanka
(Incorporation)
Act
No
2
of
1999;
The
Church
Of
The
Gospel
Ministries
In
Sri
Lanka
(Incorporation)
Act
No
17
of
1994;
Society
Of
The
Apostolic
Church
Of
Sri
Lanka
(Incorporation)
Act
No
6
of
1991;
Church
of
the
Foursquare
Gospel
in
Sri
Lanka
(Incorporation)
Act
No
37
of
1986;
Christian
Assembly
of
Sri
Lanka
(Incorporation)
Act
no
20
of
1984;
Fellowship
of
Free
Churches
of
Sri
Lanka
(Incorporation)
Law
Act
No
47
of
1975;
Church
of
Ceylon
Act
No
6
of
1972;
Church
of
Ceylon
(Incorporation)
Act
No
43
of
1998;
Ceylon
Pentecostal
Mission
Act
No
21
of
1970;
Sri
Lanka
Baptist
Sangamaya
Ordinance
No
54
of
1944;
Methodist
Trust
Association
of
Ceylon
Ordinance
No
54
of
1935;
Dutch
reformed
church
ordinance
No
9
of
1926;
Church
of
England
ordinance
No
6
of
1885;
7
New
St.
Andrew's
Church
Ordinance
No
16
of
1916;
Non-Episcopalian
Churches
Ordinance
No
5
of
1864; Episcopal churches ordinance No 12 of 1846; Presbyterian Church (Kandy) Ordinance No 13 of 1845; Kandy Church Ordinance No 11 of 1842;
established.
Instead,
they
merely
govern
the
administration
of
such
places
of
worship
(i.e
property
rights,
leadership
structure,
regulation
of
monies
etc).
In
addition,
there
are
other
laws
that
are
relevant
to
the
protection
and
management
of
cultural
properties,
which
need
to
be
considered
when
examining
the
legal
framework.
These
include:
The
Central
Cultural
Fund
Act
of
1980
Antiquities
Ordinance
of
1940
as
amended
Cultural
Property
Act
of
1988
Tourist
Board
Act
of
1968
National
Environment
Act
of
1980
Although
there
are
several
laws
as
provided
above,
these
are
mainly
for
the
purpose
of
protecting,
maintaining
and
governing
religious
worship
areas
and
property
owned
by
religious
and
other
such
entities.
Relevant
Legislation
for
Zoning
Purposes
In
the
examination
of
laws
governing
places
of
religious
worship
and
property
owned
by
religious
entities,
attention
also
needs
to
be
focused
on
laws
related
to
zoning8.
There
are
no
specific
laws
in
this
regard
for
religious
property
but
the
general
laws
related
to
zoning
are
applicable.
The
relevant
laws
that
apply
are:
The
laws
governing
local
authorities
include
-The
Urban
Councils
Ordinance
of
1939
(as
amended),
The
Municipal
Council
Ordinance
of
1947
and
the
Pradeshiya
Sabha
Act
of
1987
The
Town
and
Country
Planning
Ordinance
of
1946
as
amended
The
Urban
Development
Act
of
1978
The
Anuradhapura
Preservation
Board
Actis
also
noteworthy
as
it
gives
almost
plenary
powers
over
local
administration
over
Anuradhapura
city
to
the
Anuradhapura
Preservation
Board.
A
number
of
activities
are
prohibited
within
the
area.
CPA
has
not
come
across
any
similar
legislation
for
the
specific
case
of
Dambulla.
The
zoning
laws
relevant
to
Dambulla
are
as
listed
below.
Local
Authority
Laws
The
different
laws
applicable
to
local
authorities
provide
for
the
regulation
of
construction
and
expansion
in
the
specific
areas.
The
Urban
Councils
Ordinance
of
8
Zoning
include land use planning issued by local authorities and applies to how the land is developed including construction and removal of buildings.
1939
(as
amended)
for
instance
regulates
the
construction
of
buildings
along
thoroughfares
(roads
and
streets).9
The
Municipal
Council
Ordinance
of
1947
and
the
Pradeshiya
Sabha
Act
of
1987
respectively
also
have
similar
provisions.
These
provisions
apply
equally
to
a
house
as
they
would
to
a
religious
building,
and
typically
cover
matters
such
as
buildings
permits.
The
Town
and
Country
Planning
Ordinance
The
Town
and
Country
Planning
Ordinance
of
1946
(as
amended)is
described
in
its
long
title
as
inter
alia
an
ordinance
to
authorize
the
formulation
and
implementation
of
a
national
physical
planning
policy;
the
making
and
implementation
of
a
national
physical
plan
with
the
object
of
promoting
and
regulating
integrated
planning
of
economic,
social,
physical
and
environmental
aspects
of
land
in
Sri
Lanka.
The
Town
and
Country
Planning
Ordinance
is
only
applicable
for
private
lands.
The
Ordinance
empowers
the
Minister
concerned
to
declare
and
gazette
lands
as
urban
development
areas
under
Section
6
(2)(b),
trunk
road
development
areas
under
Section
7(1)
and
regional
development
areas
under
Section
8
(1)
which
in
turn
triggers
the
planning
process
leading
to
the
formulation
of
the
National
Physical
Plan
for
such
areas.
Section
47
lays
down
the
rule
that
once
an
area
is
gazetted,
no
construction,
demolition,
alteration
or
repairs
can
be
done
to
any
structure
in
that
area.
Further,
the
Minister
is
entitled
to
make
interim
orders
in
respect
of
the
land
within
a
gazetted
area.10
Thus,
several
restrictions
apply
in
the
use
of
the
land
once
a
Minister
declares
an
area
a
development
area
as
provided
in
the
Ordinance.
Further,
lands
may
even
be
acquired
from
private
owners
by
the
State
if
required
by
the
Plan.11
In
the
recent
past,
there
has
been
a
practice
of
gazetting
areas
of
religious
significance
under
section
6(2)(b)
of
the
Ordinance
as
urban
development
areas,
but
referring
to
them
as
sacred
areas.
This
practice
causes
significant
confusion
because
while
an
area
is
referred
to
as
a
sacred
area,
in
terms
of
the
law
it
remains
an
urban
development
area.12
In
2011,
The
Town
and
Country
Planning
(Amendment)
Bill
was
introduced
by
the
Government
which
attempted
to
declare
private property as sacred areas,
9
Sections
72
89
10
Section
46
11
Section
58.
Acquisition
of
private
lands
will
be
done
in
accordance
with
the
Land
Acquisition
Act
12
For
example-
Gazette
No
1614/6
of
August
2009,
No
1631/35
of
December
2009,No
1644/34
of
conservation areas, architectural areas and so on with no clear terminology explaining what the implications of these classifications meant. CPA challenged the Bill on the grounds that it was not first submitted to the Provincial Councils for its approval as the subject fell within the Provincial Council List13 and was ultimately withdrawn. CPA was also concerned that the vague terminology used in the Bill could provide broad powers to the Minister to demarcate private property as a specific area with no regulatory control, and may result in the dispossession of many of their private lands.
The
Urban
Development
Authority
Act
The
Urban
Development
Authority
Act
of
1978
(UDA
Act),
empowers
the
relevant
line
Minister
to
declare
areas
as
urban
development
areas.14
Once
an
area
is
so
declared,
the
process
of
formulating
a
development
plan
commences.15
Further,
restrictions
on
the
use
of
land
within
the
gazetted
area,
such
as
the
prohibition
of
any
development
activity
within
that
area
without
a
permit,
also
apply.16
For
the
purposes
of
the
UDA
Act,
development
activity
means
the
parceling
or
sub-division
of
any
land,
the
erection
or
re-erection
of
structures
and
the
construction
of
works
thereon,
the
carrying
out
of
building,
engineering
and
other
operations
on,
over
or
under
such
land
and
any
change
in
the
use
for
which
the
land
or
any
structure
thereof
is
used.17
The
only
exceptions
to
these
restrictions
are
in
respect
of
dwelling
houses.
Thus,
where
an
area
is
gazetted
as
an
urban
development
area,
any
development
activity
in
respect
of
a
place
of
religious
worship
is
prohibited
unless
a
permit
is
obtained
prior
to
such
construction.
In
relation
to
Dambulla,
the
area
was
named
as
the
Dambulla
Urban
Development
Authority
Area
by
a
gazette
dated
24
March
199418
and
expanded
by
gazette
dated
17
November
2005.19
CPA
has
not
come
across
any
legal
documentation
referring
to
the
area
as
a
sacred
area.
13
SC/SD/3/2011
14
Section
3
15
Section
8
(A)
8
(H)
16
Section
8
(J),
8
(K)
17
Section
29
18
No.
811/17-
1994.03.24
19
No
1419/10-
2005.11.17
Conclusion As highlighted in this note, there are several laws that need to be examined when discussing the issue of places of religious worship and ownership of property pertaining to religious institutions. In the present context of the Dambulla case, it is important to establish who the legal owner of the particular land and the laws governing the particular area is. Clarity in this regard is a key element in the resolution of this specific dispute but there also has to be attention to mediating a just settlement for all affected parties. This case has attracted much attention also because of its implications for religious freedom in Sri Lanka and minority rights protection. The involvement of politicians, religious actors and others demonstrates the need for urgently resolving this specific case but to also address the underlining issue of religious coexistence and reconciliation. While the debates will continue on land rights and minority protection, what is clear from the brief examination of laws is that there are specific laws that control the zoning of land. These need to be adhered when developing land. It is also clear that the existing Sri Lanka legal framework does not provide for the declaration of sacred areas, although there is regular practice of such terminology increasing the confusion. It is therefore extremely important that the Government addresses such confusion and initiate steps to regulate land development and protect rights of the people as provided by existing laws.