Sri Lanka, Dec. 8 — Sri Lanka’s recent floods, caused by Cyclone Ditwah, have affected human lives, public and private property, and infrastructure, ultimately triggering a broad public debate. Many politicians and members of the public have questioned and interpreted the cause of the floods, the extent of the damage, and the Government’s response. Quarters of the Opposition, both inside and outside Parliament, have argued that the disaster could have been managed better. These discussions raise natural questions about what constitutes a disaster, what disaster response entails, and how Governments can and should act in such situations.
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Dr. Sunil Govinnage is the first Sri Lankan to be appointed to the Asian Disaster Preparedness Centre (ADPC), which began in the mid-1980s at the Asian Institute of Technology (AIT) in Bangkok. Dr. Govinnage, who later worked as a Civil servant in the Western Australian Public Sector, also held positions in Risk Management and has received various training in risk management and contingency planning.
Dr. Govinnage shared his insights on the disaster with the Daily News via email.
Sunil Govinnage (centre), the first Sri Lankan to join, pictured with colleagues at the Asian Disaster Preparedness Centre in the mid-1980s.Sunil Govinnage (centre), the first Sri Lankan to join, pictured with colleagues at the Asian Disaster Preparedness Centre in the mid-1980s.
Q: Could you outline your professional background in disaster management and describe the path that led you to join ADPC?
A: My first close experience with a human disaster was during Sri Lanka’s 1983 Black July. Overnight, 100,000 people were displaced and had to seek shelter in kovils, schools, and even at the hangars at Ratmalana Airport. At the time, I worked for an international NGO and coordinated essential support for those affected, including some friends and colleagues who had lost everything. Previously, as a primary healthcare worker, I have managed Cholera epidemics and received training in managing preventable illnesses such as Cholera, Typhoid, and even tuberculosis. I have knowledge, training, and experience in managing events that could lead to disasters or public health problems.
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These experiences exposed me to the practical challenges of emergency management. In response to the 1983 July event, I worked closely with the Government and local and international organisations, including Save the Children (UK) and Dr A. T. Ariyaratne of Sarvodaya, to assist displaced families. Over the years, I attended training programmes, read widely, and gained further knowledge in disaster response and risk management. Before joining ADPC, I worked as a Media Consultant to Professor Cyril Ponnamperuma at the Institute of Fundamental Studies. I had applied for a position at ADPC months earlier, and in the mid-1980s, I was selected.
Q: How did your initial role at ADPC involve building regional networks, managing disaster literature, and contributing to public education programmes?
A: I was appointed as the Information Officer at the newly established Centre in Bangkok. My main tasks were to build a regional information network, set up a specialised library, and work with our trainees, who were mainly senior officials from Government agencies and the private sector, including very senior civil servants such as Austin Fernando and Former Government Agents of Batticaloa and Anuradhapura, Anthony Muttu and Dassanayake. I have worked with our participants to develop public education and awareness programmes. I still keep a copy of the training documentary we produced at the ADPC based on a script written by Austin Fernado on the illegal gemming in Sri Lanka. One of my first tasks at the ADPC was to compile a regional bibliography, organise the disaster-related literature we gathered from across the Asia-Pacific countries, and maintain it in a mainframe database
Q: How would you define disaster management, and what disciplines and frameworks does it draw upon?
A: Disaster management is the process of preparing for disasters, responding to them, and learning from their consequences. It involves addressing human needs during and after a disaster, saving lives, providing relief, rebuilding damaged infrastructure, restoring livelihoods, and managing the social, economic, and environmental impacts.
There is no single academic discipline called “disaster management.” It draws on broad disciplines such as engineering, telecommunications, meteorology, geology, geography, medicine, public policy, political science, risk management, communication, and sociology.
Brian Ward, the founding Director of ADPC, often said disaster management is like a table with many legs, and public policy forms the tabletop that holds everything together.
One of the most influential researchers in this field was E. L. Quarantelli, who founded the Disaster Research Centre at the University of Delaware in the United States. I had the opportunity to meet him when he visited ADPC training programmes, and had lengthy discussions, and learnt many lessons from him.
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A: A widely used framework is Fred Cuny’s Disaster Cycle. Cuny, a former US Marine who later became a specialist in disaster management, was a regular resource person at ADPC. In his book Disasters and Development (1983), he describes a cycle that moves from the immediate impact to rescue, relief, rehabilitation, and reconstruction.
Cuny stressed the importance of rapid initial response, search and rescue, organised relief, and using the recovery stage as an opportunity to build better systems. His book includes valuable case studies, such as the Sahel drought and the 1977 Andhra Pradesh cyclone. One day, these ideas will be translated into Sinhala and Tamil for broader use.
Q: You have followed the recent media coverage of Sri Lanka’s floods. How do you assess the government’s response?
A: I fully endorse and support the Government’s response. From what I observed, President Anura Kumara Dissanayake and his team have – knowingly or unknowingly – followed the key principles of Fred Cuny’s Disaster Cycle.
Q: What about the criticisms raised by some politicians and commentators?
A: I noted many comments from opposition parliamentarians and from some social media critics. Many suggested the floods could have been prevented without realising that no country can stop heavy rainfall or prevent flooding entirely.
Most property damage in Sri Lanka resulted from poorly planned construction and illegal housing in vulnerable areas. Many of those who criticised the response seemed unfamiliar with disaster theory and practice. If they genuinely care about the country, they should put aside politics and support the ongoing relief and rehabilitation work.
Q: How would you assess the effectiveness of Sri Lanka’s disaster management legislation in practice?
A: I have read and reviewed Sri Lanka’s Disaster Management Act No. 13 of 2005, which provides a framework. However, legislation alone cannot prevent disasters. What matters is the capacity of institutions – from national to local levels – to act effectively. We need local-level plans to address specific risks at each divisional level, informed by community input. Effective plans cannot be developed using command-control methods. In this regard, local civil societies can undertake a significant but not easy task.
To assess the effectiveness of legislation, I’d like to share my understanding of Australia’s leading environmental law, the Environment Protection and Biodiversity Conservation Act 1999 (EPBC 1999), which was audited in 2014. The Australian National Audit Office (ANAO) found inefficiencies, poorly formulated approval conditions, and weak monitoring systems under the EPBC Act. My point is that even strong legislation needs continuous review.
Brian Ward, the foundation’s Director of the ADPC, often reminded that all Governments must plan for disasters and allocate funds not only for relief but also for preparedness. His final point was clear: disasters never unfold precisely as planned. This is an important thing to remember when assessing and criticising the Government’s response to Cyclone ‘Ditwah’.
