Incomplete Citizenship of the Plantation Community: Access to Governance Institutions and Public Service Delivery human potential and realise their life goals. However, as we see in Sri Lanka, many laws and policies have historically been explicit in singling out specific groups for favourable treatment and limiting or denying another section to enjoy social rights. In such contexts, formal citizenship may continue to remain as a nominal entitlement. As indicated in the Human Development Report 2016 (UNDP 2016), this kind of detrimental treatment mainly takes place based on identity, social class, and profession or based on their ascribed characteristics. It is not the only driver of exclusion, but also subverts social citizenship, human capability and rule of law in particular, and quality of government in general. One could also argue that institutions cannot be understood simply through their formal rules, since actual practices often differ from these rules. Institutional behaviour is dynamic, taking different shapes based on discretionary power, informal networks, and relationships. For instance, there are formal rules and regulations which generally prohibit bribes and unethical practices in the working of public institutions in Sri Lanka, but “rules in use or informal practices” commonly require a bribe in exchange for service delivery. Thus institutions are more likely to produce and reproduce social and power inequalities by serving only those who fulfil certain informal requirements, perpetuating entrenched discrepancies in terms of gender, ethnicity, race, caste, religion, and so forth. This simply indicates how formal institutions are structured by informal networks, power, relationships, and elite capture. Public institutions often claim to be serving all citizens with common goods and services, but they actually reproduce unequal relationships and tend to marginalise the needs and demands of 35