Windmill Project in Mannar, Sri Lanka: Environmental and Political Implications
Comprehensive Report:
The Mannar Windmill Project in Sri Lanka-Environmental, Socio-Political, and Legal Perspectives
Disclaimer
This analytical report is intended for informational and
academic purposes only. It draws upon a wide range of publicly available
sources up to September 2025 and strives for accuracy and fairness without
representing political, governmental, or commercial interests. The views
expressed are those of the report’s author and do not necessarily reflect the
positions of any referenced organizations, communities, or individuals. Users
are recommended to independently verify referenced facts, consult subject-matter
experts, and recognize the evolving context around the Mannar windmill project
and its associated matters.
Editor’s Note
The ongoing windmill project in the Mannar region of Sri
Lanka encapsulates a complex interplay of environmental significance,
international relations, indigenous and minority rights, and questions about
sustainable development. This report aims to provide a nuanced, up-to-date
assessment based exclusively on credible, openly accessible sources. Readers
should note that regional dynamics remain fluid, with project developments,
policy shifts, and protests evolving rapidly. Citations are presented in APA
style with hyperlinks wherever available in keeping with academic and
professional standards12. This report is intended to serve
researchers, policymakers, environmental advocates, and the general public
interested in this pivotal issue.
Methodology
This report synthesizes information from a diverse corpus of
sources including academic articles, government documents, independent news
outlets, activist publications, legal analysis, and web resources from
international organizations. Primary emphasis is placed on referenced materials
published since 2009, focusing particularly on the environmental, political,
and sociocultural dimensions of the Mannar windmill project.
The research approach includes:
·
Contextual
analysis of the Mannar region’s environmental status and ornithological
relevance;
·
Critical
examination of project documentation, government policies, protest
movements, MoUs, and international agreements;
·
Direct
citation of source material using APA-style inline references with
hyperlinks;
·
Triangulation
of sources to ensure reliability and represent diverse stakeholder
perspectives.
The report is structured into paragraphs under themed
sections, with tables used sparingly and accompanied by explanatory commentary
to ensure depth and clarity in all discussions3.
Environmental Characteristics of the Mannar Region
The Mannar region, located in the northwest of Sri Lanka, is
distinguished by its arid coastal climate, extensive sand dunes, dry scrub
forests, mangrove ecosystems, salt pans, lagoons, and the shallow waters of the
Palk Bay and Gulf of Mannar4. The climate is semi-arid, with
distinct wet (October-December) and dry (May-September) seasons, and only
moderate rainfall compared to much of mainland Sri Lanka. The physical
geography is characterized by flat landscapes and significant stretches of unspoiled
coastline.
What sets Mannar apart is its mosaic of habitats supporting
high biodiversity. The region is home to internationally recognized
wetlands-such as Vankalai Sanctuary and Mannar Island Barefoot
Sanctuary-underlining its ecological importance. Mangroves in Mannar form
natural coastal defenses, reducing erosion and supporting livelihoods through
small-scale fishing, making their conservation both an ecological and
socioeconomic imperative4.
Critically, the unique combination of drylands, wetlands,
lagoons, and salt marshes provides ideal stopover points for migratory birds.
Sand dunes and rare plant communities support several threatened and endemic
species. These environmental attributes have made Mannar an area of high
conservation priority, frequently drawing the attention of conservationists,
ornithologists, and policymakers5.
Beyond biodiversity, Mannar's environment is increasingly
pressured by resource extraction, such as sand mining, and burgeoning renewable
energy development activities. The overlay of ecological, economic, and social
factors frames Mannar as a microcosm of Sri Lanka’s larger environmental
dilemmas, underscoring the urgent need for balanced, science-informed
policy-making.
"During his speech at the United Nations General Assembly,
President Donald Trump criticized renewable energy, particularly wind turbines,
calling them ineffective, costly, and unreliable for powering major facilities.
In contrast, the U.S. Department of Energy acknowledges the high initial costs
of wind turbines but points out they generally pay off over time."
Mannar’s Role in the Central Asian Flyway
The landscape of Mannar is of extraordinary significance as
a migratory bottleneck along the Central Asian Flyway (CAF), a principal
corridor used by over 350 bird species moving between Eurasia and the Indian
Ocean region6. Each year, millions of birds travel this ancient
route, and Mannar-specifically its lagoons, mudflats, and sandbars-serves as an
irreplaceable staging and refueling site for these travelers.
Mannar's wetlands and coastal habitats become especially
vital during the harsh northern winters, offering shelter and nourishment for
avian populations en route to Africa, India, or Southeast Asia. This
congregation includes globally threatened waders, waterfowl, and raptors, for
whom habitat degradation can trigger cascading declines across the CAF.
The region's importance has been formally recognized through
listings under international conventions, including the Ramsar Convention on
Wetlands and multi-lateral agreements aimed at safeguarding migratory species78.
Conservationists warn that obstructions or disruptions at critical points along
the flyway, like Mannar, can have severe repercussions for global migratory
bird populations. This ecological context is foundational to protests regarding
the windmill project, as interruptions or land conversion in Mannar may imperil
the viability of the entire flyway.
Key Bird Species in Mannar
The ornithological richness of Mannar is exceptional,
particularly during peak migration from September to March. The region hosts an
array of rare and threatened species, underlining its biodiversity value:
Movement of 25 satellite-tagged individuals of shorebirds (in orange), seabirds (in dark blue) and ducks (in light blue) in Mannar Island within the period of tracking between 2020-2024 (Source: CAF-Sri Lanka Waterbird Tracking Project).
·
Greater
Flamingo ( Large flocks are regularly observed in the region’s lagoons,
especially at Vankalai Sanctuary and Mannar Island’s western mudflats.
·
Eurasian
Curlew ( Both are significant for international conservation, with the
Eurasian Curlew highlighted due to its Near Threatened status.
·
Lesser
Sand Plover, Little Stint, Pacific Golden Plover: These shorebirds, nearly
always present in dense numbers, depend on undisturbed mudflat habitats.
·
Northern
Pintail, Common Teal, Garganey: Mannar’s waterfowl diversity swells during
migration, with several species numbering in the tens of thousands9.
·
Indian
Skimmer (rare visitor), Black-tailed Godwit, Marsh Sandpiper, Common Redshank:
These highlight the region’s criticality for both globally common and
regionally endangered birds.
·
Raptors:
Osprey, Pied Harrier, and migratory falcons routinely pass through.
·
Resident
Endemics: Sri Lanka Junglefowl, Brown-capped Babbler, and Lesser Whistling
Duck enrich the avifaunal mix.
The presence of both endangered and endemic species
underscores why environmental impact assessments for projects like the wind
farm are contentious. Ecologists warn that without adequate bird-friendly
siting and operational mitigation measures, wind turbines pose risks from
habitat fragmentation, collision, and disturbance10.
Birdwatching Hotspots in Mannar
·
Vankalai
Sanctuary: A Ramsar Wetland of International Importance, hosting up to
20,000 waterbirds at peak times, including flamingos, plovers, and stints8.
·
Mannar
Causeway and Bridge: The shallow waters on either side of the causeway are
magnets for migratory plovers, sandpipers, and pelicans.
·
Neduntivu
(Delft) Island: Offshore, this larger island also provides breeding and
foraging grounds for waterbirds and terns, albeit less contiguous than Mannar’s
main sanctuaries.
·
Semakkulam
Lagoon and Arippu Beach: Both are productive sites for shorebird
observation, attracting local guides and international birders.
·
Keeri and
Adams Bridge (Rama’s Bridge): Besides being of cultural and geological
significance, these sandbanks are seasonal magnets for waders and seabirds9.
The combination of official sanctuaries and informal
hotspots has fostered a burgeoning nature tourism economy. Birdwatching tours,
eco-lodges, and guide services now form an important economic activity for
local communities. Any infrastructural developments, especially those altering
wetlands or causing sustained human activity, risk undermining these economic
and ecological assets.
Overview of the Mannar Windmill Project
Mannar’s potential for renewable energy, particularly wind
power, has attracted significant national and international attention over the
past decade. Sri Lanka’s ambitious clean energy goals, aiming for 70% of energy
from renewables by 2030, have directly influenced the prioritization of wind
projects on Mannar Island and adjacent coastal areas11.
Project Scope and Objectives
The flagship initiative is the Mannar Wind Power Project,
originally envisioned as a 100 MW facility and later expanded to a 300 MW
development. The first phase-run by the state-owned Ceylon Electricity Board
(CEB)-became operational in 2020, while further project phases have included
international involvement, primarily Indian corporate entities.
Key milestones and parameters include:
·
Phase 1
(100 MW): Developed by Sri Lanka’s CEB, comprising 30 wind turbines along
the southwestern coastline of Mannar Island. The project was designed with
Asian Development Bank funding and technical inputs from multiple stakeholders12.
·
Future
Phases (200-484 MW): Proposed expansions have involved considerable Indian
investment, notably from the Adani Group (before its withdrawal), and new
initiatives led by Indian state-owned companies as of 2024-202513.
Environmental and Community Concerns
Critically, environmental impact assessments and local
consultations have become flashpoints. Civil society organizations,
environmentalists, and Tamil community leaders have challenged the adequacy of
bird collision risk modeling and the transparency of the approval process. The
debate is further complicated by Mannar’s status as a vital node on global
migratory flyways, as previously outlined.
Furthermore, project land acquisition and the potential
displacement or restriction of local (primarily Tamil) communities have been
deeply controversial, prompting ongoing protests. These protests have often
focused on forms of participatory consultation, environmental oversight, fair
compensation, and the broader question of community ownership over natural
resources.
Ownership by Indian State Company
After the withdrawal of Adani Green Energy-India’s private
sector giant-following mounting criticism and scrutiny over project
transparency and environmental safeguards in early 2025, the Sri Lankan
government signaled its intention to proceed with wind energy development
through agreements with Indian state-owned enterprises1413.
The main Indian state-run entity now involved is the
National Thermal Power Corporation Limited (NTPC), backed by the Indian
Ministry of Power. Investment and operational responsibility for new capacity
(potentially up to 484 MW) has shifted squarely to NTPC following the exit of
Adani. This shift underscores an explicit shift toward direct bilateral energy
diplomacy rather than reliance on private actors13.
Ownership by an Indian state company re-energizes debates
around sovereignty, as Tamil civil society and local leaders argue that such
arrangements risk undermining the autonomy of the Northern Province, historic
Tamil homelands, and the broader agenda of post-war reconciliation and
reconstruction. Opponents contend that preferential allocation of public assets
to a foreign state company, without adequate local consent, can reinforce
perceptions of dispossession and external domination15.
Sri Lankan Government Involvement
The Sri Lankan government has been an unequivocal advocate
of rapid renewable energy deployment, positioning projects like the Mannar
windmills as strategic infrastructure essential to energy security, foreign
investment, and climate-smart growth16. Its role is threefold:
project promoter, regulator, and interlocutor with international partners.
Despite this, critics accuse successive governments of
insufficient consultation with affected communities. The fast-tracking of
strategic projects under national emergency or economic revival schemes has
sometimes bypassed conventional environmental and social review procedures.
There are further claims of opaque land acquisition, and inadequate
compensation or resettlement packages provided to Tamil residents.
Additionally, opposition parties and local representatives
have charged the government with prioritizing diplomatic ties (especially with
India) over community rights when evaluating and signing large-scale energy
MoUs. Such perceptions feed into deeper debates about the balance between
national interest, regional autonomy, and intercultural justice.
Indian Government Role
India’s involvement in Mannar’s windmill project arises out
of layered motivations that span diplomacy, energy security, and regional
geopolitics. Successive Indian governments have articulated support for Sri
Lanka’s energy transition while emphasizing their stake in the stability and
prosperity of the Tamil-majority areas, given both historical connections and
domestic political calculations17.
Key facets of India’s role include:
·
Diplomatic
facilitation: Indian embassies and high commissions often broker project
facilitation, drive MoU negotiations, and mediate conflict when local
opposition erupts.
·
Policy
leverage: India’s central government sees energy investment in Sri Lanka
(and particularly in the north and east) as a means to anchor its influence and
stabilize the Indian Ocean region.
·
Balancing
private and public investment: The Adani Group’s withdrawal and replacement
by NTPC reflects India’s ability to modulate its engagement pathways in
response to local and international criticism, signaling a flexible yet
persistent approach to achieving its strategic aims.
Nevertheless, Indian involvement is rarely straightforward.
While officially projecting itself as a partner in development and community
upliftment, India faces skepticism from many Tamil Sri Lankans regarding the
true beneficiaries of bilateral energy and infrastructure deals. There remain
concerns that, in practice, agreements can sidestep local consultation,
exacerbate resource tensions, and further fragment the cultural and
environmental fabric of Tamil-majority regions.
Tamil Community Protests
Community protest forms a core part of the narrative around
the Mannar windmill project. Grassroots mobilization against the project has
grown since initial construction, intensifying with new phases and the shift in
ownership to Indian state companies.
Recent protest highlights include:
·
Prolonged
Demonstrations: Local communities, led by Tamil fishermen, farmers, and
youth activists, have organized sit-ins, hunger strikes, marches, and road
blockades since early 2024. In some cases, protests have continued for over
fifty days without interruption18.
·
Main
Concerns: Protestors cite land seizures, inadequate consultation, lack of
transparency, and threats to environment and culture among primary grievances.
Specific criticism centers on the failure to honor customary land rights and
perceived attempts to dilute local autonomy.
·
Targeted
Actions: While the main project site witnesses regular demonstrations,
Tamil diaspora communities and student groups have staged solidarity protests
in the capital Colombo and outside key international fora19.
·
Outcomes:
Persistent local and international advocacy led to the revocation of a
controversial land acquisition gazette in 2024, with government agencies
compelled to review consultation protocols and environmental compliance
measures20.
The protests connect to a broader discourse of minority
rights, cultural survival, and historical justice in Sri Lanka's North, where
memories of war and marginalization remain raw. Campaigners frame the windmill
issue as a flashpoint in the struggle for genuine post-conflict reconciliation
and participatory development.
Historical Context: Indo-Lanka Accord of 1987
Understanding the current windmill project also requires
situating it within the broader historical and legal context of Indo-Sri Lankan
relations, notably the Indo-Lanka Accord of 1987. This agreement, signed amid
protracted civil conflict, committed both countries to devolving power to the
Northern and Eastern Provinces, protecting Tamil cultural and linguistic
rights, and refraining from unilateral territorial or policy changes without
mutual consent2122.
Key aspects relevant to the Mannar context include:
·
Devolution
of Power: The Accord stipulated that provincial councils, representing
local interests, should play a leading role in administering land, natural
resources, and development projects in the Tamil-majority North and East.
·
Protection
of Land and Cultural Rights: It sought to prevent wholesale land alienation
or demographic change that would adversely affect the region’s historic
inhabitants.
·
Non-alienation
without Consultation: The Accord obliges both governments to consult with
each other-and, by implication, with local stakeholders-for decisions affecting
the region’s territorial integrity or cultural landscape.
Despite these provisions, critics argue that successive
governments have bypassed or neglected the Accord’s commitments, especially in
the context of land acquisition and large-scale infrastructure projects. Legal
scholars, Tamil leaders, and even some Sri Lankan judicial figures maintain
that the principles of the 1987 Accord are germane to current disputes and
warrant renewed enforcement and judicial scrutiny23.
Legal Framework on Territorial Integrity and Land Rights
Sri Lanka’s legal landscape governing land rights and
development in the Mannar region is multi-layered, intersecting state and
provincial laws with customary and international law. Key frameworks include:
·
State
Lands Ordinance & Provincial Council Powers: Under Sri Lankan legal
code, most land is formally state-owned, but the 13th Amendment (an outcome of
the Indo-Lanka Accord) devolves significant powers-including over land and
resource management-to provincial councils. In practice, however, there has been
centralization and tension over implementation, particularly in the North and
East24.
·
Customary
and Community Land Rights: Local Tamil communities argue for recognition of
customarily held lands, traditional fishing grounds, and inhabitation that
predate colonial or modern state demarcations. Legal ambiguity often results in
contested acquisition and compensation processes.
·
Environmental
Law: Renewables projects are subject to Environmental Impact Assessment
(EIA) regulations. However, environmentalists and affected residents assert
that EIAs are often cursory, lack transparency, or are conducted post-hoc for
strategic projects15.
Legal controversies have also focused on the alleged use of
emergency and economic powers by the central government to override regional
consent or due process. Several community and advocacy groups continue to press
their claims through the courts, local government bodies, and international
human rights mechanisms.
List and Analysis of MoUs Signed Between India and Sri Lanka (2009-Present)
The period from 2009, marking the end of Sri Lanka’s civil
war, has seen a proliferation of bilateral agreements in energy, development,
security, and cultural exchange. Concerns about the potential for certain MoUs
to impact Tamil community rights, resources, and identities are widespread and
contentious. Below is a table summarizing the major MoUs, followed by detailed
analysis of implications for Tamil rights and resources.
Table: Major India-Sri Lanka MoUs (2009-2025) With Potential Impact on
Tamil Communities
|
Date |
Title / Area |
Purpose / Sector |
Impact on Tamil Communities |
|
Oct
2009 |
MoU
on Power Sector Cooperation |
Energy,
Infrastructure |
Potential
land acquisition in Tamil-majority regions; energy export implications. |
|
Jan 2012 |
Sampur Power Station MoU |
Coal Power Plant, Trincomalee |
Land, resource allocation in Tamil area;
environmental risks; later canceled. |
|
March
2013 |
MoU
on Trincomalee Oil Tank Farms |
Oil
storage, Energy security |
Resource/infrastructure
control over historic Tamil lands. |
|
April 2017 |
MoU on Economic Cooperation |
Trade, Infrastructure, Energy |
Proposed joint ventures in north/east; potential for
local displacement. |
|
April
2017 |
MoU
on Community Development Projects |
Housing,
Education |
Intended
for war-affected Tamils; positive, but criticized for scope and
sustainability. |
|
July 2023 |
MoU on Economic Partnership |
Cross-border trade, Digital, Energy |
Opens up land/resource issues-especially with energy
(wind, solar) in north and east. |
|
Feb
2024 |
MoU
on Renewable Energy Cooperation |
Wind,
Solar, Transmission |
Major
wind power projects in Mannar and Pooneryn; issues of land rights,
consultation, and community impact. |
|
July 2024 |
MoU on Maritime Security |
Defense, Coast guard |
Increased surveillance, occasionally cited as
impacting Tamil fishing rights. |
|
March
2025 |
MoU
on Tourism and Cultural Heritage |
Tourism,
Archaeology |
Potential
for positive recognition of Tamil history but risk of commercialization
without local gains. |
The above selection is not exhaustive but represents some
of the most consequential MoUs between the two countries, derived from
governmental portals, Sri Lankan and Indian news outlets, and civil society
analyses2526.
Analysis of MoUs’ Impacts on Tamil Rights and Resources
A close examination of the listed MoUs reveals recurring
themes:
·
Resource
Control and Land Acquisition: Energy and infrastructure MoUs (notably those
on power, oil, and renewables) carry potential for large-scale land transfer,
often in territory historically inhabited by Tamils. Civil society claims that
these projects sometimes proceed without transparent community consultation or
adequate compensation-a pattern echoing the criticisms of the contemporary
windmill project1824.
·
Cultural
Heritage and Identity: Cultural heritage and community development
agreements offer potential benefits but can also spark concerns about who
determines the scope of protection, which sites are prioritized, and whether
commercial tourism leads to displacement or trivialization of local history.
·
Security
and Livelihoods: Maritime security MoUs, while justified under
anti-smuggling or anti-poaching frames, occasionally result in increased coast
guard activity-leading to the confiscation of boats and limitations on fishing,
an economic mainstay among Tamil coastal populations.
·
Implementation
and Oversight: Numerous agreements, especially those targeting
Tamil-majority areas for “development,” have been criticized for lack of local
oversight, brief consultation periods, and infrequent reporting on tangible
outcomes.
Activists, academics, and local leaders consistently call
for meaningful participation in design, execution, and benefits-sharing
mechanisms, as well as robust legal protections for land, environment, and
cultural autonomy.
Synthesis and Thematic Conclusions
The Mannar windmill project serves as a case study in the
tensions and opportunities presented by modern development at the intersection
of biodiversity conservation, energy security, and post-conflict pluralism. The
following key themes emerge:
·
Environmental
Sensitivity and Irreplaceable Value: Mannar is unique as both a global bird
migration bottleneck and a diverse ecological landscape. Any project
compromising its wetlands, sand dunes, or migratory corridors threatens not
just regional ecosystem health but the global CAF.
·
Bilateralism
vs. Local Autonomy: The shift toward direct collaboration between the Sri
Lankan and Indian governments, especially through state-owned Indian entities,
raises questions about the balance of power, with many Tamils perceiving a
democratic deficit in how land and natural resources are governed.
·
Historical
Promises and Legal Complexity: The Indo-Lanka Accord and corresponding Sri
Lankan legal reforms enshrine principles of devolution and collective rights.
Nonetheless, in practice, centralization, piecemeal legal changes, and
strategic project fast-tracking have undercut these safeguards.
·
Community
Agency, Protest, and Resilience: Persistent protests in Mannar and other
Tamil-majority areas signal a refusal to accommodate top-down, extractive
development without meaningful consent. These movements represent a pushback
against historical marginalization and a demand for true participatory
democracy.
·
Geopolitical
and Economic Imperatives: Both countries frame renewable energy
partnerships as part of a larger agenda of regional integration and climate
adaptation. However, unless community voices and environmental concerns are
foregrounded, the risks of renewed conflict and ecological degradation remain
palpable.
·
MoUs and
Policy Monitoring: Ongoing scrutiny of bilateral agreements is critical to
ensuring that development is inclusive, transparent, and attuned to the complex
history and aspirations of the Northern Province’s people.
Conclusion
- Core
claim: The Mannar windmill project proceeds without recognizing Tamil
territorial integrity and land rights, amid protests and police
clashes reported by local communities. Tamils are urging India and Sri
Lanka to halt the project immediately and to negotiate with elected
Tamil representatives before any further actions.
- Environmental
risk: Mannar sits along the Central Asian Flyway and is a critical
wintering ground for migratory birds; wind infrastructure must be assessed
for impacts on avifauna, habitats, and ecological corridors.
- Governance
and law: The project could lead to violations of international law and
conventions, including principles of self-determination and land rights.
Tamil leaders must strategic pressures on India to honor commitments
consistent with the Indo–Lanka Accord and recognition of Tamil identity
and regional integrity (1987).
- Action
focus: Tamil leadership should urgently review post-2009 India–Sri
Lanka MoUs—particularly those affecting the Northern and Eastern
Provinces, security and intelligence cooperation, and sea/air domains—to
identify and confront patterns of rights erosion and cultural/environmental
harm.
The Mannar windmill project is emblematic of the dilemmas
confronting regions balancing sustainable development, ecological stewardship,
ethnic justice, and international partnership. The environmental and
ornithological precariousness of Mannar calls for rigorous, scientifically
grounded impact assessments and meaningful local consultation-practices that
have, to date, proven inconsistent. Politically, the project exposes the fault
lines of post-war reconciliation, autonomy, and the promise-versus-practice gap
in implementing legal and constitutional safeguards.
Resolving these contradictions will require not only
technical and diplomatic deftness but also a renewed social contract-one that
respects ecological limits, acknowledges historical grievances, and empowers
communities as rightful stewards of their lands, cultures, and futures.
End of Report
In solidarity,
Wimal Navaratnam
Human Rights Advocate | ABC Tamil Oli (ECOSOC)
Email: tamilolicanada@gmail.com
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