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TRANSCRIPT
1
SERIAL
NUMBER
CHAPTER PAGE
1. Introduction and background
2. Legal Provisions
3. Deployment of forces in an election - purpose
4. ECI Directions: List of directions so far on the subject and
Keywords
5. PLANNING: An introduction
6. PLANNING: Role and responsibilities of ECI, Central
Ministries and Agencies, State, and Observers
7. PLANNING: Role and responsibilities at District level
8. PLANNING: Role and responsibility of CPF and State Police
9. PLANNING: OVERALL PLANNING OF RESOURCES &
BUDGETING - FOR CPF
10. PLANNING: OVERALL RESOURCE ASSESSMENT &
BUDGETING - For state police and SAP
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11. PLANNING: TOOLS FOR PLANNING AND DEPLOYMENT -
Vulnerability mapping
12. PLANNING: TOOLS FOR PLANNING AND DEPLOYMENT -
Criticality Assessment
13. PLANNING: TOOLS FOR PLANNING AND DEPLOYMENT -
Force Multipliers
14. POLL CYCLE PLANNING: Pre-Poll Planning
15. POLL CYCLE PLANNING: Poll Planning
16. POLL CYCLE PLANNING: Post Poll Planning
17. PLANNING: Standard of providing facilities /amenities to
CAPF on deployment by state /district administration
This must be revisited by CPF members of the Committee
18. EXECUTION: An introduction
19. EXECUTION: FORCE DEPLOYMENT AND EXECUTION – IN
GENERAL
20. EXECUTION: DEPLOYMENT OF FORCES IN LWE AFFECTED
AREAS
21. EXECUTION: Forming clusters of states for pooling state
police manpower in place of CAPF in non LWE areas
22. OTHER CRUCIAL ACTIONS:
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a) Motivation of the forces
b) Risk Mitigation
c) Confidentiality
d) Electoral registration of the forces and Postal Ballots
23. MISCELLANEOUS:
a) Ex- gratia payments on injury/death on
election duty – Commission’s directions and
checklist of actions to be taken by state in case
of any ex-gratia payments
b) Frequently Asked Questions
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CHAPTER 1
INTRODUCTION AND BACKGROUND
Elections in a democracy are a legitimate method meant for gaining legitimate power
through a political process. There will be conflicts and confrontations of some kind or the
other in its conduct. It therefore becomes incumbent on the EMB to provide a safe and
secure atmosphere not only as a goal of election but also to instill confidence in the most
important stakeholders – the voters. In the conduct of elections, it is the police forces
including those at the Center and the States that have the primary responsibility for
election security. The personnel of the State Police and Central Police Forces stand
deputed to the Election Commission of India and they come under its superintendence,
direction and control for all purposes during this period.
In variable degrees the electoral stakeholders knowingly or unknowingly also do end up
playing a part in enhancing the security atmosphere during elections. These are:
1. Political parties/candidates – as they follow a Model Code of Conduct, wherein
many instructions/codes directly impact on the security environment (such as the
ECI instruction that no political functionary who is not a voter or elected
MP/MLA/candidate of that Constituency shall stay in the constituency beginning
from the last 48 hours till the end of polls)
2. CSOs/NGOs – voter education campaigns run by them particularly in the areas
where the weaker sections reside go a long way in creating a tension-free
atmosphere.
3. Media – by giving the correct picture of the safety environment and the
confidence building measures undertaken by the ECI.
4. ECI Observers – their very presence, accessibility and fast tracking of inquiry into
any complaints lends an atmosphere of trust.
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However, as mentioned above it is the police forces who have the primary responsibility
for securing of an election and such responsibilities include:
● Protecting of electoral stakeholders viz; voters, candidates, election staff, poll
personnel, party workers, Media, Observers.
● Ensuring safety of the poll material, the polling stations, and the counting center.
● Ensuring that overall law and order is conducive enough to ensure a level playing field
for election campaigning
Series of instructions of the ECI exist on this matter. However, given the huge gamut of
responsibilities and activities that are to be undertaken by the security personnel for the
conduct of an election; it was decided to prepare a consolidated Force Deployment –
Planning and Execution Manual; that will not only systematically place the existing
instructions within it; but also augment it based on past experiences and the reports of
the Working Groups. This Manual is a product of that decision. In the area of Planning it
clearly gives the framework for resource assessment and planning, area of command,
command relationships with other security forces/agencies, roles and responsibilities,
budgeting, logistical planning, etc. For the purpose of execution guidelines, the manual
gives details of force deployment and how optimal utilization of forces can be done in
difficult areas in terms of terrain, weather, etc.; in special/disturbed areas in terms of
naxal movements; and in generally peaceful areas.
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CHAPTER 2
LEGAL PROVISIONS
PART A: LEGAL PROVISIONS W.R.T TO PERSONNEL, INCLUDING POLICE PERSONNEL
ON ELECTION DUTY
1.1 Representation of the People Act, 1950
Section 13CC. Chief Electoral Officers, District Election Officers, etc., deemed to be on
deputation to Election Commission.—The officers referred to in this Part and any other
officer or staff employed in connection with the preparation, revision and correction of
the electoral rolls for, and the conduct of, all elections shall be deemed to be on
deputation to the Election Commission for the period during which they are so employed
and such officers and staff shall, during that period, be subject to the control,
superintendence and discipline of the Election Commission.
1.2 Representation of the People Act, 1951
Section 28A. Returning officer, presiding officer, etc., deemed to be on deputation to
Election Commission. —The returning officer, assistant returning officer, presiding
officer, polling officer, and any other officer appointed under this Part, and any police
officer designated for the time being by the State Government, for the conduct of any
election shall be deemed to be on deputation to the Election Commission for the period
commencing on and from the date of the notification calling for such election and ending
with the date of declaration of the results of such election and accordingly, such officers
shall, during that period, be subject to the control, superintendence and discipline of the
Election Commission.
PART B: LEGAL PROVISIONS RELATING TO ELECTIONS
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The deployment of police forces – Central or state – is done in the backdrop of a legal
framework that exists for securing elections. The important legal provisions are listed
below:
2.1 Laws relating to elections are:
(i) Indian Penal Code
(ii) Representation of the people Act, 1951
(iii) Cr.P.C.
(iv) Special & Local Acts.
2.2 Indian Penal Code
2.2.1 Cognizable offences
(i) 171-D. Impersonation at elections.
(ii) 171-F. Punishment for personation at an election.
2.2.2 Non- Cognizable offences
(i) 171-B. Bribery .
(ii) 171-E. Punishment for bribery.
(iii) 171-C. Undue influence at elections.
(iv) 171-F. Punishment for undue influence at an election.
(v) 171-G. False statement in connection with an election.
(vi) 171-H. Illegal payments in connection with an election.
(vii) 171-I.Failure to keep election accounts.
(viii) 505. {1}(b) with intent to cause, or which is likely to cause, fear
or alarm to the public, or to any section of the public whereby any
person may be induced to commit an offence against the State or
against the public tranquility; or
(a) with intent to incite, or which is likely to incite, any class or community of
persons to commit any offence against any other class or community;
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2.2.3 Other important sections of IPC
(i) Sec-153A - Promoting enmity between different groups on grounds of religion
race, place of birth, residence, language, etc. and doing acts prejudicial to
maintenance of harmony.
(ii) Sec-153AA - Punishment for knowing by carrying arms in any procession or
organizing, or holding or taking part in any mass drill or mass training with arms.
(iii) Sec-153B - Imputations, assertions prejudicial national integration
2.3 Representation of the People Act, 1951
2.3.1 Section 123. Corrupt practices - Which can be agitated in Election Petitions before
High Court. Corrupt practices are: -
(i) Bribery
(ii) Undue influence
(iii) Appeal on ground for religion, race, cast etc.,.
(iv) Promoting hatred between different classes
(v) Propagating / glorification of Sati
(vi) False statement in relation to personnel collector/ conduct of any
candidate.
(vii) Use of vehicles for conveyance of Electors.
(viii) Incurring expenditure in contravention of Sec. 77
(ix) Taking assistance of Govt. Servants.
(x) Booth capturing.
2.3.2 Cognizable offences
(i) 125. Promoting enmity between classes in connection with
election.
(ii) 127. Disturbances at election meetings.
(iii) 129. Officers, etc., at elections not to act for candidates or to
influence voting.
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(iv) 130. Prohibition of canvassing in or near polling station.
(v) 132. Penalty for misconduct at the polling station.
(vi) 134. Breaches of official duty in connection with election.
(vii) 134B. Prohibition of going armed to or near a polling station.
(viii) 135. Removal of ballot papers from polling station to be an
offence.
(ix) 135A. Offence of booth capturing.
(x) 136. Other offences and penalties therefore.
2.3.3 Non- Cognizable offences
(i) 125A. Penalty for filing false affidavit, etc.
(ii) 126. Prohibition of public meetings during period of forty—eight
hours ending with hour fixed for conclusion of poll.
(iii) 127A. Restrictions on the printing of pamphlets, posters, etc.
(iv) 128. Maintenance of Secrecy of voting.
(v) 131. Penalty for disorderly conduct in or near polling stations.
(vi) 132A. Penalty for failure to observe procedure for voting.
(vii) 133. Penalty for illegal hiring or procuring of conveyance at
elections.
(viii) 134-A. Penalty for Government servants for acting as election
agent, polling agent or counting agent.
(ix) 135B. Grant of paid holiday to employees on the day of poll.
(x) 135-C. Liquor not to be sold, given or distributed on polling day.
2.4 The Conduct of Election rules, 1961
(i) Rule-49-G Facilities for women electors.
(ii) Rule-49-H Identification of electors
(iii) Rule-49-I Facilities for public servants on election duty
(iv) Rule-49-J Challenging of Identity
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(v) Rule-49-K Safeguards against personation
(vi) Rule-49-L Procedure for voting by voting machines
(vii) Rule-49-M Maintenance of secrecy of voting by electors within the
polling station and voting procedure
(viii) Rule-49-N Recording of votes of blind or infirm electors
(ix) Rule-49-P Tendered votes
2.5 Criminal Procedure Code
(i) Sec-20 Executive Magistrates
(ii) Sec-21 Special Executive Magistrates
(iii) Sec-22 Local jurisdiction of Executive Magistrates
(iv) Sec-23 Subordination of Executive Magistrates
(v) Sec-41 When police may arrest without warrant
(vi) Sec- 42 Arrest on refusal to give name and residence
(vii) Sec-57 Person arrested not to be detained more than Twenty Four hours.
(viii) Sec-58 Police to report apprehensions
(ix) Sec-100 Person in charge of closed place to allow search
(x) Sec-102 Power of police officer to seize certain property
(xi) Sec-103 Magistrate may direct search in his presence
(xii)Sec-106 Securing for keeping the peace on conviction
(xiii) Sec-107 Security for keeping the peace in other cases
(xiv) Sec-108 Security for good behaviour from persons disseminating
seditious matters
(xv) Sec-109 Security for good behaviour from suspected person
(xvi) Sec-110 Security for good behaviours from habitual offenders
(xvii) Sec-116 Inquiry as to truth of information
(xviii) Sec-121 Power to reject securities
(xix) Sec-122 Imprisonment in default of security
(xx) Sec-123 Power to release persons imprisoned for failing to give security
(xxi) Sec-124 Security for unexpired period of bond
(xxii) Sec-129 Dispersal of assembly by use of civil force.
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(xxiii) Sec-130 Use of armed forces to disperse assembly
(xxiv) Sec-131 Power of certain armed force officers to disperse assembly
(xxv) Sec-133 Conditional order for removal of nuisance
(xxvi) Sec-144 Power to issue order in urgent cases of nuisance or
apprehended danger
(xxvii) Sec-144-A Power to prohibit arms in procession or mass drill or mass
training with arms
(xxviii) Sec-149 Police to prevent cognizable offences
(xxix) 150 Information of design to commit cognizable offence
(xxx) Sec-151 Arrest to prevent the Commission of Cognizable offences.
(xxxi) Sec-154 Information in cognizable cases.
2.6 SPECIAL & LOCAL ACTS.( These should be inserted by the concerned state – an
example is given below)
2.6.1 The State Police Act
Example - The Gujarat Police Act, 1951
(i) Sec-33 Power to make rules for regulation of traffic and for preservation of order
in public
(ii) Sec-34 Competent authority may authorize erecting of barriers on streets.
(iii) Sec-36 Power of commissioner or the District Superintendent and of other
officers to give direction to the public.
(iv) Sec-37 Power to prohibit certain acts for prevention of disorder.
(v) Sec-38 Power to prohibit, etc. continuance of music, should or noise
(vi) Sec-41 Police to provide against disorder, etc. at places of amusement and public
meetings.
(vii) Sec-56 Removal of persons about to commit offence
(viii) Sec-57 Removal of persons convicted of certain offences.
(ix) Sec-62 Procedure on failure of person to leave the area and his entry therein after
removal.
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(x) Sec-63 Temporary permission to enter or return to the area from which a person
was directed to remove himself.
(xi) Sec-116 Disregard of notice in public building
(xii)Sec-117 Penalties for offender under Section 99 to 116.
(xiii) Sec-123 Carrying weapon without authority
(xiv) Sec-131 Penalty for contravening rules, etc., under section 33.
(xv) Sec-134 Penalty for contravention of rule etc., under section 36.
(xvi) Sec-135 Penalty for contravention of rules or directions under
section 37, 39 or 40.
(xvii) Sec-136 Penalty for contravening rules, etc., made under section
38.
(xviii) Sec-137 Penalty for contravening rules, etc. under section 41.
(xix) Sec-141 Penalty for contravention of directions under section 55,
56, 57, or 63AA
(xx) Sec-142 Penalty for entering without permission area from which a person
is directed to remove to remove himself or overstaying when permitted to return
temporarily
2.6.2 The Prevention of Antisocial Activities Act, if any
2.6.3 The State Noises Control Act, if any
2.6.4 State Excise Act, if any
2.6.5 State Prevention of Defacement of Property Act, if any
2.6.6 Defacement of private/ public property other than municipal areas
(i) Attracts sec. 171-H and 426/427 IPC.
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2.6.7 The State Treasury Rules if any regarding strong room
For example, The Gujarat Treasury Rules-2000
(i) Rule-50- Security of Strong Room.
2.7 OTHER CENTRAL ACTS
2.7.1 The Arms Act, 1959
Sections
(i) 3. License for acquisition and possession of firearms and
ammunition.
(ii) 4. License for acquisition and possession of arms of
specified description in certain cases.
(iii) 5. License for manufacture, sale, etc., of arms and
ammunition.
(iv) 6. License for the shortening of guns or conversion of
imitation firearms into firearms.
(v) 7. Prohibition of acquisition or possession, or of
manufacture or sale, of prohibited arms or prohibited
ammunition
(vi) 8. Prohibition of sale or transfer of firearms not
bearing identification marks
(vii) 9. Prohibition of acquisition or possession by, or of sale or
transfer to young persons and certain other persons of fire arms,
etc.
(viii) 10. License for import and export of arms, etc.
(ix) 17. Variation, suspension and revocation of licenses
Powers and Procedure
(i) 19. Power to demand production of license, etc.
(ii) 20. Arrest of persons conveying arms, etc., under
suspicious circumstances
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(iii) 21. Deposit of arms, etc., on possession ceasing to be lawful
22. Search and seizure by magistrate
(iv) 23. Search of vessels, vehicles for arms, etc.
(v) 24. Seizure and detention under orders of the Central
Government
(vi) 24A. Prohibition as to possession of notified arms in
disturbed areas, etc.
(vii) 24B. Prohibition as to carrying of notified arms in or
through public places in disturbed areas, etc.
2.7.2 Motor Vehicle Act, 1988
Sections-
(i) 177. General provision for punishment of offences.
(ii) 179. Disobedience of orders, obstruction and refusal of
information.
(iii) 180. Allowing unauthorized persons to drive vehicles.
(iv) 181. Driving vehicles in contravention of section 3 or
section4.
(v) 183. Driving at excessive speed, etc.
(vi) 184. Driving dangerously.
(vii) 185. Driving by a drunken person or by a person under the
influence of drugs.
(viii) 186. Driving when mentally or physically unfit to drive.
(ix) 187. Punishment for offences relating to accident.
(x) 188. Punishment for abetment of certain offences.
(xi) 190. Using vehicle in unsafe condition.
(xii) 192. Using vehicle without registration.
(xiii) 192A. Using vehicle without permit.
(xiv) 194. Driving vehicle exceeding permissible weight.
(xv) 196. Driving uninsured vehicle.
(xvi) 197. Taking vehicle without authority.
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(xvii) 200. Composition of certain offences.
(xviii) 201. Penalty for causing obstruction to free flow of traffic.
(xix) 202. Power to arrest without warrant.
(xx) 203. Breath tests.
(xxi) 205. Presumption of unfitness to drive.
(xxii) 206. Power of police officer to impound document.
(xxiii) 207. Power to detain vehicles used without certificate of
registration permit, etc.
2.7.3 The Scheduled Caste and the Scheduled Tribes (Prevention of Atrocities) Act,
1989.
(i) Section 3
Punishments for offences of articles
(1) Whoever not being a member of a scheduled caste, or a Scheduled
Tribe.
(vii) Force or intimidates a member of a Scheduled Caste or a Scheduled
Tribe not to vote or to vote a particular candidate or to vote in a manner
other than that provided by law; shall be punishable with imprisonment
for a term which shall not be less than six months but which may extend
to five years and with fine.
2.7.4 The Religious Institutions (Prevention of Misuse) Act, 1988
(i) Sec-1 Short title, extent and commencement
(ii) Sec-2 Definitions
(iii) Sec-3 Prohibition of use of religions institution for certain purposes.
(iv) Sec-4 Restrictions on carrying arms and ammunition into a religious institution
(v) Sec-5 Prohibition of use of funds of religious institutions for certain activities
(vi) Sec-6 Prohibition of religious for propagating political ideas.
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(vii) Sec-7 Penalties.
ANY OTHERS THAT WE MAY HAVE MISSED OUT, PLEASE ADD
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CHAPTER 3
DEPLOYMENT OF FORCES IN AN ELECTION - PURPOSE
The purpose and manner of deployment of forces have been laid down by various
instructions of the ECI. The prevalent system that has been developed over several years
has proven to be very effective. A brief summary of the crucial purposes for which state
or central forces are deployed is given below:
3.1 Pre-polls- deployment of CPF is for:
• CPF arrives in advance for area domination
• Takes out flag marches, point patrolling and other confidence building
activities (mostly on foot).
• They are provided with area-wise list of anti-social elements to undertake
spot verification (of their whereabouts, presence and activities).
• They also interact with local population with a view to enhance the public
confidence.
3.2 Poll day – deployment of CPF is for:
• Guarding the polling stations, poll materials, poll personnel and the poll
process.
• Static guarding of trouble spots
• Patrolling duty on assigned routes covering a fixed cluster of polling stations;
• Patrolling duty as ‘flying squads’ in a defined area with surprise element;
• Escorting duty of polled EVM
• Guard duty of Polled EVMs until counting
3.3 Pre-poll – deployment of State Police is for:
• Responsible for maintenance of the general law and order in the catchment
area of the polling stations and generally in the constituency/district/state
• Take preventive actions
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• Establish check-posts and prevent illegal movement of cash, liquor, drugs,
anti-social elements, etc.
• Vulnerability mapping
• Implement Model Code of Conduct
• Implement Election Expenditure Monitoring Guidelines
• Handle VIP movement
• Implement Deployment Plan
• Provide logistical support to CPF
3.4 Poll day and post poll day - deployment of State Police is for:
• Maintenance of the general law and order in the catchment area of the polling
stations and inside and outside of the polling premises (as different from
polling stations).
• Ensure safety of Voters, polling personnel and polling material
• Continue implementation of Model Code of Conduct
• Continue implementation of Election Expenditure Monitoring Guidelines
• Polled EVM strong room (outer cordon) and counting center safety.
• Victory procession after counting
The deployment of police forces on poll day is generally done in 4 forms:
a. Static deployment – that is, at the Polling Stations, EVM storage room, counting
center, trouble spots, etc. Here both Central and State police forces are deployed.
b. Mobile deployment – on sector routes, for accompanying polling parties, as FSTs,
QRTs, as striking forces, etc. Here both Central and State police forces are
deployed.
c. Police station/control room deployment and other forms of “supportive”
deployment done by state police – to take care of unforeseen security issues on
poll day and to establish an effective communication system that is centrally
managed.
d. Reserve deployment – certain forces such as the Rapid Action Force battalions
are not actually deployed on election duty, but kept on reserve for immediate
utilization for emergent circumstances.
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CHAPTER 4
ECI DIRECTIONS: LIST OF DIRECTIONS SO FAR ON THE SUBJECT AND KEYWORDS
Sl.no Subject Number Date of instruction
(chronological)
Subject
Key
components
Keywords
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CHAPTER 5
PLANNING: AN INTRODUCTION
Planning is the most crucial ingredient for the maintenance of law and order and conduct
of smooth and peaceful election. Planning broadly takes into account the following steps:
1. Assessment of purposes of requirement of security forces: The mission of peaceful
election requires effective preventive measures for building confidence among the
people as well as sufficient police personnel for security of EVMs and polling personnel.
Planning takes into account the requirement of security personnel, which in turn, largely
depends upon the guiding principles for deployment, number of Polling Station
Locations, law and order situation, LWE areas and phases of election.
2. Assessment of availability versus requirement: Next step of planning is the
assessment of available police/security personnel against the requirement, which can be
internally mobilized in case of staggering of election within the State. The gap analysis is
thereafter determined for the requisition of CPF or other State police personnel.
3. Assessment of as-is situation and gap analysis: An assessment of the as-is situation is
done with the help of available information, vulnerability mapping, criticality assessment,
etc.
4. Assessment of resources: The assessment of security related materials like
Helicopters, Air Ambulance, Sat Phones, Arms and ammunitions, RAF, Mounted Police,
Bomb disposal squads, anti-landmine vehicles, bullet proof jackets, Motor Boats, HHMD,
DFMD, NDRF, SDRF, Motor bikes etc. is crucial.
5. Preparation of plan for force deployment: These assessments become the basis for
preparing implementation and deployment plan for earmarking of forces for specific
purposes, movement of forces, its logistics like vehicle, POL, accommodation,
communication & other facilities, training, pre/during/post-poll deployment etc.
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The planning should be based upon SMART principles of election administration, i.e., the
plan should be:
Specific – Plan should be as specific as possible. Every person should know about his task
specified in the plan and the responsibility given to him for accomplishment of the task.
Measurable – There is an adage ‘what gets measured, gets done’. So, every step of the
plan should be measurable within the timeline decided in the plan. Specific timeframes
must be included for accomplishment of each task to be done.
Achievable – The assigned task of the plan must be achievable within the timeline and
the budget allocated for the purpose. Planning must be done with sufficient
consideration upon the timeline to be fixed and required expenditure for the
accomplishment of the task so that it should be achievable within the fixed timeline and
allocated budget.
Realistic – Plan should be realistic and it should be prepared by considering past
experience and environmental factors and its impact upon other stakeholders like users,
political parties, candidates, media, voters etc.
Time-phased – Some tasks in the plan may require to be phased sequentially, whereas
some tasks may require to be done in parallel/simultaneously. So phasing of time should
be kept realistic so that there should not be any delay in execution of the plan.
CHAPTER 6
PLANNING: Role and responsibilities of ECI, Central Ministries and Agencies, State, and
Observers
The role and responsibilities of various organisations/Ministries/agencies/designations
are briefly summarized below:
1. Role of ECI/DEC
a) Assessing national availability of Central and State security forces
b) Assessment of national requirements of Central forces
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c) Allocation of CAPF to the states
d) Preparing national movement plan of CAPF
e) Ensuring the optimization of state security forces
f) Having a system in place to avail of data regarding force multipliers
g) Coordination with MHA, security agency heads
h) Giving directions to Ministry of Railways
i) Coordinating with Telecom Ministry for webcasting, internet provision,
etc.
j) Consolidating instructions
k) Issuing directions for force multipliers among others
l) National Plan for movement and deployment
m) Overseeing implementation
2. Role and responsibility of MHA.
a) To make available CPF for election as per requisition after assessment of
requirement and availability.
b) To make available on-third of the sanctioned CPF at least one month
before the election for confidence building measures
c) To nominate a nodal officer for election related activities
d) To co-ordinate / ensure arrival / induction / departure / de-induction of
CPF in election going States.
e) To make available Helicopters / RAF / NDRF and other logistics to the
States in case of requirement.
f) To co-ordinate inter-state issues of security required for peaceful conduct
of election
g) To inform States about any intelligence inputs regarding security
3. Role and responsibility of state CEO.
a) Review & Assessment of daily Law & Order situation in the state and
taking/ ensuring that timely and adequate measures are taken in this
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regard, by taking into account the specific law and order concerns of the
state/ UT in the context of elections.
b) Arranging for inter-border talks with bordering states and doing the
needful for Inter-State coordination and sealing of borders.
c) Ensuring that Control-Room, Help-Line, Complaint- Cell, Call- Centre (if
required) etc. are functioning at CEO level and at different levels in
districts
d) Ensuring Vulnerability Mapping is completed by DEO in consultation with
Police Officers, Sector Officers and field officers as per ECI instructions
e) Ensuring identification of Critical Polling Stations as per ECI instructions
f) Assessment of availability of State Police Force and requirement of total
force for election.
g) Communication of Availability and Requirement of Security Forces (Police/
Para-Military) to ECI & Planning the Deployment of Security Forces (while
referring to the deployment plans of the previous elections)
h) Ensuring preparation of District Security Deployment Plan and State
Security Deployment Plan as per ECI directions
i) State deployment plan to be prepared by State in consultation with CEO;
taking into account the available forces of State Police/SAPF and CPF
which will be made available by the MHA.
j) Ensuring the optimization of state security forces
k) Review Meetings/Video conferencing with DMs/IGPs/SPs/CPs
l) Obtaining proposals for conferment of Executive Magistrate powers on
others officers and ensuring conferment of the same
m) Periodical meeting with State Police Nodal Officer, State CPF Nodal Officer
and other officers to review State Security Plan / Force Deployment and
other security related issues
n) Planning and implementing Force multipliers
o) Ensuring communication equipment in shadow areas
p) Overseeing the preparation of State level plan for movement and
deployment
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q) Implementing State Deployment Plan effectively
4. Role and responsibility of state Chief Secretary, Home Secretary and DGP
a) Holding inter-border talks with bordering states and doing the needful for
Inter-State coordination and sealing of borders.
b) Appoint State level Nodal Officer for Law and Order
c) Appoint State level Nodal Officer for Center and State force coordination
d) Appoint State level Nodal Officer for Election Expenditure Monitoring
e) Appointing ADGP/IGP training as State level Nodal Officer for police
training and training/briefing of CPF
f) Every state has a position in the police forces called ADG/IG
Communications who is responsible for procuring and managing the
communication system in state police. This officer may be officially
appointed as the Nodal Officer Communication for each state and should
be responsible for assessing requirements and providing communication
systems at each PS and also for coordinating with neighboring states and
the center for procurement, etc. This officer should be appointed as Nodal
at least 6-8 months prior to the due date of elections, so that he has
enough time for also issuing purchase orders wherever necessary.
g) Assessment and Communication of Availability and Requirement of
Security Forces (Police/ Para-Military) to ECI & Planning the Deployment
of Security Forces (while referring to the deployment plans of the previous
elections)
h) Obtaining proposals for conferment of Executive Magistrate powers on
others officers and ensuring conferment of the same
i) Home department shall send a consolidated report on entire State in
format LOR-2 to the CEO for onward submission to ECI - Daily report
regularly from notification of elections till completion of elections.
j) Assessment of availability / requirement of forces for elections
k) To send the requisition for CPF / other State Police in case of deficit
l) To mobilize all types of forces within the State for conduct of election
m) To create a conducive environment for peaceful conduct of election
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n) To make arrangement of other logistics like Bomb disposal squad,
Mounted Police, Boats, ammunitions, vehicles, accommodation etc. for all
security forces.
o) To plan and make available necessary communication equipment
p) To impart training to all forces for their conduct, safety, role etc. in
election
5. Role and responsibility of State Police Nodal Officer.
a) Preparation of State Deployment Plan in consultation with CEO
b) Review & Assessment of detailed daily Law & Order situation in the state
and taking/ ensuring that timely measures are taken in this regard, Taking
into account the specific law and order concerns of the state/ UT in the
context of elections – submission of daily Law & Order report to CEO
c) Training of all Police personnel
d) Preparation of induction/ de-induction plan of CPF in consultation with
State Nodal Officer, CPF
e) Preparation of phase-wise movement plan of forces and its monitoring
f) To make arrangement of Helicopters, Air Ambulance, Bowser, Mounted
Police, Motor bikes, Motor Boats, SDRF, NDRF, Sat-phones etc. by
coordinating with different Departments / Agencies
g) To convene meeting with bordering States for inter-state border sealing,
joint operation etc.
h) Monitoring of deployment of forces and confidence building measure
i) Monitoring of election related cases
j) Preparation of database of Helipads / Airfields
k) Preparation of Communication Plan for Communication Shadow Zone in
the State
l) Preparing SOP for LWE areas, election duty, Bomb disposal, election
related offences, MCC, EEM, Check-post/Border sealing, Counter Centre /
Strong Room
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6. Role and responsibility of State Force Coordinator.
a) Appointment of Nodal/ Sub-Nodal Officer for each district to facilitate
induction of forces
b) Advance planning for accommodation of CPF in consultation with district
administration and its compilation at the State level
c) To ensure reception at de-boarding points along with vehicles in
coordination with district authorities
d) Pre-induction training of all CPF
e) Identification of probable IED prone routes in the State for its circulation
to the CPF
f) Advance planning, preparation of route chart etc. for induction and de-
induction of CPF
g) To set up State Control Room for coordination with various type of CPF
coming in the State
h) Preparation of communication plan for smooth communication among all
stakeholders including State Police, CPF, SAP, Hospitals and election
related officials
i) To ensure optimum utilization of CPF for confidence building measures
j) Circulation of checklist, do’s and don’ts, election booklets and other
relevant materials to all incoming forces
k) To ensure anti-LWE operations, regular demining operations, movement
by foot / motorcycle etc. in LWE infested areas
l) To coordinate with State Police Nodal Officer and Chief Electoral Officer
for deployment and optimal utilization of CPF in election
7. Role of General Observer
a) To observe the preparedness for conducting elections
b) They will observe all aspects for a fair, free and peaceful election
c) General Observer will observe process of nomination and scrutiny and security
arrangements for the same; visit Polling Stations; inspect at random electoral
27
rolls, Polling material and arrangements of polling booths, vulnerable segments;
and also do Random checking of EVMs.
d) Security arrangements and force deployment plan - Observers to be consulted.
e) Counting Centre is finalized in consultation with Observer
f) Directions of ECI regarding model code of conduct - Compliance to be observed
g) Randomization of polling personnel, counting personnel in the presence of
Observer.
8. Role of Ministry of Railways
9. Role of Telecom Ministry
At least six months before Elections, the BSNL should be given the responsibility of linking
the unlinked Polling stations, so that they get enough time to procure materials, set up
infrastructure and coordinate their activities. Last minute instructions bring excuses that
they do not have enough funds, manpower, etc. Further, it is also suggested that
particularly in very remote areas, or areas with difficult terrain, instead of putting the
entire burden on BSNL, other Private Players in the field like Reliance, Vodafone, Airtel,
Airtel, etc. should also be made to provide the missing links wherever it is necessary so
that to that extent the burden on BSNL could be reduced.
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CHAPTER 7
PLANNING: Role and Responsibilities at District Level
ROLE AND RESPONSIBILITY OF DM/SP.
A. To take preventive actions:
a) Special drives to be launched from the date of announcement –
(i) To compile list of persons indulged in electoral offences
during past two elections
(ii) Updating list of history sheeters, declared absconders,
fugitive criminals
(iii) To give affect the service of pending warrants/challans
and updating list of pending warrants,
(iv) To expedite the investigation/prosecution of pending
electoral offences
(v) Unearthing of illicit liquor factories
(vi) Seizure of illegal arms and ammunition etc.
b) Fortnightly updated constituency wise information on above special
drives to be kept ready with DEO to be forwarded to CEO, if and when
asked for.
c) Prohibitory orders u/s 144 CRPC banning the carrying of licensed arms
- 100% scrutiny of arms licenses.
d) Order relating to use of loudspeakers.
e) Immediately after announcement of election, review of license
holders – physical verification of arms in the district
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f) Depositing of arms and ban on issuing of new arms license after
announcement of elections – as per ECI direction
g) Strict vigil and thorough checking of vehicles to ensure that no
undesirable elements or arms and ammunitions are being transported
from outside.
h) Preventive actions u/s 107/116/109 CRPC against identified source of
trouble
i) Sending proposals to Law Department for vesting powers of special
executive magistrates and appointment of special executive
magistrates.
j) Daily Law and Order report for the district in format prescribed in
format LOR-1 be sent to Home department and not directly to ECI
k) Expenditure monitoring as per guidelines
l) Taking all action including preventive action for maintaining law and
order
B. To prepare and implement District Security Deployment Plan
a) Full and optimal utilization of CPFs and SPFs to be ensured.
b) District Deployment Plan - To be prepared under the chairmanship of
DM/DEO - and to be approved by Observers.
c) Preparation of local deployment plan based on state plan – containing
micro-detailing and based on local situation/requirements
d) To ensure that there is no deviation without express prior approval of
Observer.
e) Observers to be given draft force deployment plan on their arrival.
f) CAPF must not be deployed in less than half section strength in normal
areas, whereas in Naxal affected/ Disturbed areas/ hypersensitive
booths, the minimum strength should not be less than 1 section (Added
by Rajiv Krishna).
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g) The plan should have sketch map of each sector and identify vulnerable
pockets and critical PSs.
h) Security cover to contesting candidates to be provided only as per
assessment of threat, and not in routine manner - Observers should be
provided with adequate security.
i) Three tier cordoning system to be set up in counting centers.
j) Sealing of inter-state borders/inter district borders, well in advance.
k) Deployment of CPF for guarding strong rooms after the poll.
l) Deploying forces at the PSs in the following order of sensitivity - CPF
followed by SAP followed by DAP.
m) To ensure additional measures/force multipliers at critical polling
n) Arranging logistics for the security forces
o) Arranging the Training and briefing of 100 % personnel
p) Preparing in advance day to day plans of utilization of central forces for
area domination from their date of arrival; giving schedule of all areas to
be covered.
q) Ensuring complete implementation of district deployment plans
C. To provide amenities to CPF personnel
(a) Packed lunch on poll/counting duty
(b) Accommodation - as prescribed – planned in advance with
provisions of drinking water, electricity, generators, sandbags,
toilets etc.
(c) Vehicle / transportation – dedicated vehicle for the entire election
(d) SIM card to Coy. Commanders
(e) For more details, please see chapter 16
D. To identify critical polling stations (please see details in Chapter 11)
Factors to be taken into account -
(i) PSs of high % of Non-EPIC voters.
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(ii) PSs of high % of missing voters without family links.
(iii) PSs having vulnerable pockets - SO's, Police's and candidate's
"worry list".
(iv) PSs where polling was more than 75% and where more than 75%
of votes have been polled in favour of one candidate in last
election.
(v) Re-poll reported due to malpractices, and where electoral violence
taken place during last election.
(vi) Anti-social elements and their areas of influence.
(vii) Observer will be consulted while finalizing the list of critical PS.
(viii) Categories of critical PSs - like S-1, S-2, S-3 and S-4. Weight-ages to
be assigned to each category of criticality.
E. To undertake various measures at Critical Polling stations for securing elections
One or all of the following measures are to be undertaken:
a. CPF to safeguard the PS.
b. PrOs be briefed to ensure that the EPIC / approved identification
document are properly verified and reflected in the remarks col. of Form
17A
c. List of such PSs be given to Commanding / Assisting Commanding Officer
of CPF to keep an eye on such PSs.
d. Digital/Video camera/live webcasting be positioned at identified PSs as
directed by the ECI - Photography be carried inside the PS to capture
photos of all electors in same sequence as in Form 17A and cover poll
proceeding without compromising the secrecy of voting - Special care
about the faces of all electors without EPIC or other ECI approved photo
identity card.
e. Micro Observer to be deployed - with consultation / approval of Observer.
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f. Critical events in and around the PS should also be
captured/photographed
g. Digital cameras/video cameras will be issued by DEO to the trained
officers for such PSs - The officer shall submit a certificate (format
enclosed) after the poll.
h. Media persons not to be allowed to capture photograph inside the PS.
F. To undertake Mapping of vulnerability for prevention of intimidation to the
voters – (please see details in Chapter 10)
a) For identification of the areas Sector officers, should do exercise
by visiting the area soon after declaration of election - SHO and
local administrative officers be consulted before the finalizing
the list - Candidates' "Worry List" also to be considered.
b) Source of such threat / intimidation and names of persons who
likely to spearhead such offence of undue influence be
identified - Past incidence and current apprehensions.
c) Contact points within the habitats / community vulnerability, be
identified - Mapping for entire constituency polling station
wise in a format (enclosed)
d) Preventive measures by DEO and SP and confidence building
measures for free and fair poll - Frequent visit at such locations
by senior officials and CPF.
e) Regular feedback by district intelligence - DEO / RO shall interact
with candidates / political parties.
f) Details of PS wise vulnerability mapping be given to Observer also
on his arrival.
g) Action plan by DEO and SP to deal with potential threats and
intimidation points - action under 107 / 116 / 151 CRPC, forcing
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trouble mongers' appearance in police station, placement of
police pickets, visits by officers etc.
h) On the day of poll special attention be given - In case some section
of voters is conspicuously absent special squad will be sent to
ascertain that there is no hindrance.
i) At the end of poll SO to submit special report to RO that voters
from vulnerable habitats were able to vote or not.
j) Polling parties should also be briefed about the vulnerable centers
- section in electoral part of the area be marked specially.
k) CPF shall be given a list of such vulnerable locations - CPF shall also
make it a point to visit for confidence building measures.
l) If ordered by ECI, Observer will make a reading of the Form 17A
and the marked copy of the electoral roll used at the PS.
G. To prepare Last 48 hour’s Management Plan:
● The campaign period closes 48 hours before the time of the close of polls.
This period requires heightened force presence and show of force not only
to ensure that illegal activities (such as intimidation, bribing, purchasing of
votes, etc.) do not take place but also as a very important confidence
building measure.
● At this point of time there is joint deployment of both central and state
police forces.
● This also requires a great deal of coordination and application of mind on
the part of the district authorities to ensure that each and every PS area is
protected, intimidation and influencing of voters does not take place and
a level playing field is in place for ensuring a free and fair and peaceful
elections.
● A separate, standard and very action-oriented “Last 48 hours
management Plan” should therefore be in in place defining role of crucial
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election functionaries, role of security forces at various levels; list of dos
and don’ts for all stakeholders; the manner of publicizing the plan; and
manner of speedy handling of complaints, etc.
● This should be jointly prepared by DM and SP for the whole district.
H. Single window system
● Though the primary spirit behind establishing this system was to make it
a smooth process for the political parties/candidates to obtain permission
in a timely manner within the limited campaign period, however, it goes
without saying that such a system contributes hugely towards securing
elections.
● This should be established not only at District HQ level, but also at Tehsil
level, and the contact details of each official at all levels must be put on
CEO website.
● Procedure for helicopter landings and the details of the Nodal officers for
obtaining permission must also be finalized and placed on CEO website
giving details for each district.
I. Do’s and don’ts for the utilization of CPF by DM/SP
a. CPF not to be kept as strike reserve
b. CPF will be used for the purpose of area domination, conducting flag
march (should be more on foot), confidence building among electors,
checking of border etc., till 2 days before the poll.
c. On day prior to poll, they shall be dispatched along with polling teams or
ahead of polling teams to respective Polling stations.
d. For the poll day the CPF shall be assigned duties of guarding PSs, poll
material, poll personnel and the poll process and not to look after law and
order - CPF may be deployed in any of the following manners: -
● Static guarding of chosen polling stations solely and exclusively by
CPF;
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● Static guarding of polling stations as part of a mixed (composite)
team with local state forces;
● Patrolling duty on assigned routes (election sectors) covering a
fixed cluster of polling stations;
● Patrolling duty as ‘flying squads’ in a defined area with surprise
element;
● Escorting duty of polled EVM with polling personnel back to the
receipt centre/strong room after polls are over;
● Any other duty which is necessitated to ensure the purity and
fidelity of the election process.
e. In static duty at chosen PSs - One CPF Jawan from the CPF party posted at
PS will be stationed at the entrance of PS to watch on the proceedings
inside the PS - he will cover other PS also in same building.
f. Where CPF has been assigned static guard duties but could not reach the
assigned PS, the poll shall not commence.
g. Local State Police for maintenance of general law and order.
h. Local police not to replace the CPF at PS where the CPF has been assigned
duties solely and exclusively - Supervision and control over the CPF at PS
not by local Police Officer.
i. Hamlets/habitations with in polling area that are vulnerable to threat,
intimidation and undue influence shall be identified and confidence
building and preventing measures be taken in advance by local state
police.
j. Only if enough CPF is not available, local State Police can be deployed at
PS.
k. A minimum two unarmed local State Police personnel/Home Guard for
each PS - When a PS is covered with CPF unit, only one local police will be
deployed.
l. CPF mobile patrolling party will be provided sketch map and list of critical
polling stations.
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m. When the CPF is assigned duty in a "flying squad" mode, it shall be
accompanied by a Zonal Magistrate.
II. ROLE AND RESPONSIBILITY OF DISTRICT NODAL & SUB-NODAL OFFICER.
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CHAPTER VIII
PLANNING: ROLE AND RESPONSIBILITY OF CPF AND STATE POLICE
The Commission has, in the past, issued various instructions regarding the role of CPF and
state police in conduct of polls, and also for amenities to be provided for CPF, from time
to time, to ensure conduct of peaceful, free and fair elections. These instructions which
are applicable for both general and bye-elections to Lok Sabha and various State
Legislative Assemblies have now been consolidated for the convenience of all concerned.
The standards for providing amenities are discussed in detail in chapter; the role of CPF
and state police are as discussed below:
1. STATE/CENTRAL POLICE FORCES STAND DEPUTED TO ECI:
During elections the Commission deploys significant number of Central Police Forces into
the election going State/s on the basis of its assessment of the ground realities. The Local
State Police (including all its variants) and Central Police Forces at the time of elections
stand deputed to the Election Commission of India and they come under its
superintendence, direction and control for all purposes. The Commission conducts
election with the help of all these organs. (Please refer to details in Chapter 2)
2. FORCE DEPLOYMENT PLAN FOR ELECTION DUTY INCLUDING THAT OF THE CPF :
The polling station wise and constituency-wise force deployment plan for election duty
(including that of the CPF, the state police as well as the sector plan through sector
officers - SO) shall be vetted and finalized by the Observer of the constituency concerned.
For the purpose, the Observer shall be handed over a draft of the election plan including
the force deployment plan immediately on arrival in the state. The Observer shall take
review meetings with the DEO/SP/RO and SO on the draft proposals and based on his
assessment of the ground realities make necessary changes before finally approving the
plan. The plan as approved by the Observer shall be implemented by the DEO and SP on
the ground, without any deviation. Any subsequent changes that may be necessitated for
38
any reason should be brought to the notice of the Observer and his/her approval
obtained before effecting such change.
3. RESPONSIBILITY OF THE GENERAL LAW AND ORDER WITH THE LOCAL STATE
POLICE:
The Local State Police shall remain responsible for maintenance of the general law and
order in the catchment area of the polling stations, as well as the inside and outside of
the polling premises (as different from polling stations). The Commission has instructed
that hamlets/habitations within a polling station area that are vulnerable to threat,
intimidation and undue influence shall be identified and all necessary confidence building
and preventive measures shall be taken in advance. The Local State Police shall attach
utmost importance to this task and shall also ensure that there is no hindrance to voters
of such pockets in exercising their franchise on the day of poll.
4. PRE-POLL AREA DOMINATION BY CPF:
Wherever the CPF arrives in advance for area domination, it shall take out flag marches,
point patrolling and other confidence building activities. The flag marches should be
focused. In order to make them effective, the CPF contingent should be provided with
the list of anti-social elements area-wise, about whom the CPF contingent during flag
marches, can undertake a verification (of their whereabouts, presence and activities).
Such flag marches by CPF should be more on foot; and there should be some interaction
with local population with a view to enhance the public confidence with regard to
election arrangements for law and order.
5. POLL DAY DUTIES OF CPF:
For the poll day, the CPF shall be assigned duties of guarding the polling stations, poll
materials, poll personnel and the poll process. For the purpose, the CPF may be deployed
39
in any of the following manners:
a. Static guarding of chosen polling stations solely and exclusively by CPF;
b. Static guarding of polling stations as part of a mixed (composite) team
with local state forces;
c. Patrolling duty on assigned routes (election sectors) covering a fixed
cluster of polling stations;
d. Patrolling duty as ‘flying squads’ in a defined area with surprise
element;
e. Escorting duty of polled EVM with polling personnel back to the receipt
centre/strong room after polls are over;
f. Any other duty which is necessitated to ensure the purity and fidelity
of the election process.
6. MINIMUM STATE POLICE DEPLOYMENT AT PS:
Minimum guaranteed arrangement of two unarmed Local State Police personnel / Home
Guards shall be made for each of the polling stations. However, when a polling station is
covered with static CPF unit, only one local police would do, if there is shortage of force.
7. MANNER OF STATIC GUARDING OF POLLING STATIONS BY THE CPF:
For the duty of static guarding of polling stations, the CPF shall take positions in the
assigned polling stations on the poll-eve (day prior to the poll). The CPF shall be primarily
responsible for protecting the polling stations and regulating the entry inside the polling
stations. In such cases one Jawan of the CPF shall position himself at the door of the
polling station (either in static or oscillating mode) in order to observe the proceedings
that are going on inside the polling station, as per the directions of Hon’ble Supreme
40
Court. ‘Static guard duty in an oscillating mode’ is a situation when a building has multiple
polling stations and CPF deployed is not sufficient to cover every polling station (door).
In such a situation, the CPF Jawan on duty at the entrance of the polling station may be
asked to oscillate from one polling station door to the other and keep an eye on what is
going on inside these polling stations and report to the officer in-charge of the CPF or the
Observer, if anything unusual is observed by him.
8. IN THE EVENT OF CPF NOT REACHING ASSIGNED PS:
In all cases where CPF has been assigned static guard duties but could not reach the
assigned polling stations due to any reason, the poll shall not commence.
9. SOLELY AND EXCLUSIVELY CPF ASSIGNED POLLING STATIONS:
In all such solely and exclusively CPF assigned polling stations, in any case, Local State
Police shall not replace the CPF at polling stations and no senior officer of the local state
police, with or without contingent shall position himself at such polling station and
exercise any supervision and control over the CPF at the polling stations.
10. COMPOSITE TEAMS IN CERTAIN CASES:
In some cases CPF and the local state police can be mixed to form composite teams in
the ratio of 1:1 to maximize the static coverage of polling stations by CPF. In such cases,
the CPF Jawan will take position at the door of the polling station and CPF will continue
to report to its Company Commandant, without any interference from the state police
contingent.
11. POSTING UNARMED LOCAL POLICE PERSONNEL AT EACH PS WHERE CPF IS ON
41
STATIC DUTY:
Wherever CPF is on static guard duty (whether exclusively or compositely with local
police), it is advised that two unarmed local state police personnel/Home Guards (and in
any case, a minimum of one) be posted at each polling station premise so that in case of
any requirement, reinforcements of local police can be called.
12. CPF ASSIGNED DUTIES ON MOBILE PATROLLING DUTIES:
When CPF is assigned duties of mobile patrolling on assigned routes (election sectors)
having a cluster of polling stations, the CPF contingent shall ensure the supervision and
guarding of polling stations falling on that sector (route). They will be moving from one
polling station to another polling station, ensure the fidelity of the election process in the
polling stations and assist (or join) the sector officers to accomplish it in a more effective
manner. In such mobile mode, the CPF mobile shall be provided a list of critical polling
stations (and the uncovered polling stations) falling on that route. The CPF mobile, while
patrolling, should maintain constant and close supervision on such polling stations. For
the purpose, it should also be in constant touch with election sector officer on that route
as well as the micro-observers or even the Presiding Officers of the Polling Stations.
13. PROVIDING INFORMATION TO CPF FOR ROUTE PATROLLING:
For such mobile patrolling duty, the CPF shall be provided sector route maps (sketch) of
each sector/route which is under their charge. The sketch should indicate the polling
station’s locations, their sensitivity gradation, the sector officer’s name and contact
number, RO’s and Observer’s name and contact numbers etc.
14. ASSIGNING FLYING SQUAD DUTIES TO CPF:
When CPF is assigned duty in a ‘flying squad’ mode, the CPF contingent will only be
42
indicated an area. The squad will be fully and constantly mobile and undertake random
surprise checks on polling stations falling within the area and report to the district control
room on their findings. They shall not be attached to any polling station or sector in
particular. The flying squad shall be accompanied by a ‘zonal magistrate’.
15. EVM ESCORTING BY CPF POST-POLL:
After the poll is completed, the polled EVMs and the polling personnel shall be escorted
by CPF contingent to the Receiving Center.
16. GUARDING EVM STRONG ROOM BY CPF:
CPF may also be assigned the duty of guarding the strong room where the polled EVMs
shall be stored and kept till the day of counting.
17. IN CASE OF NON-AVAILABILITY OF SUFFICIENT CPF:
The local state armed police can also get deployed exclusively at polling stations, when
enough CPF is not available. This shall however be done under the specific instructions of
the Election Commission through its Observers. In such cases the local police shall not
stand at the entrance door of the polling stations and instead would be positioned away
from the line of sight of the polling personnel inside the polling station. He shall stand at
such distance from the door that there is no scope of any apprehension about his
interference in the poll proceedings going on inside the polling station.
18. MOBILIZATION OF CPFS TO THE ADJOINING STATES FOR SUBSEQUENT PHASES
OF POLLING/REPOLLING :
In the event of requirement of mobilization of CPFs to the adjoining states for subsequent
43
phases of polling of re-polling, the CS/CEO of the states from where the Force is being
mobilized shall provide appropriate and adequate road transport for the move of the
Force (along with their weapons and other materials) to their destination(s), up to a limit
of 500 Kms. If the distance is more than 500 Kms, rail transport be arranged. This will
facilitate not only timely movement of the troupes but also save lot of inconvenience to
the CPF personnel.
19. BRIEFING OF CPF:
CPF personnel should be properly briefed by the concerned officer in charge. If the
deployment is in a Police Station, the SHO shall brief. If it is in a district, the DM and SP
will do so with respect to the challenges in the area, the appropriate responses, the do’s
and don’ts etc.
20. BRIEFING ABOUT CPF DEPLOYMENT TO OTHER ELECTION FUNCTIONARIES:
Some sort of briefing may be given to the Observers and Returning Officers about the
role and duties, structure & functioning of Security Forces before deployment of the
Forces for elections. Polling parties may be strictly advised to travel along with the
security Forces.
21. DEPLOYMENT PLAN TO ENABLE SMOOTH INTRA-STATE/INTER-STATE
MOVEMENT/DEPLOYMENT:
The State government may be instructed to prepare the deployment plan well in advance
in consultation with the Nodal Officers of concerned Forces to enable smooth intra-
state/inter-state movement/deployment of the troops.
44
22. STATE LEVEL NODAL OFFICER FOR FORCE COORDINATION:
The Commission desires that an officer of the rank of inspector General of Police in state
Govt. in each & every state may be appointed as Nodal Officer with immediate effect to
look into the matter of CPF facilities like accommodation. Logistic, welfare measures,
compensation/insurance, packed lunch or payment for refreshment charges etc.
45
CHAPTER IX
PLANNING: RESOURCE PLANNING & BUDGETING - BY CPF
a) Role & responsibility MHA/CPF/state administration.
(i) MHA must hold a coordination meeting with State administration, at
least 02 months in advance, to assess the requirement of Coys as per
threat perception in the area of deployment.
(ii) Representative of Intelligence Agencies must also be involved in
deliberation to strike a realistic requirement of Force.
(iii) After that a coordination meeting to be held by MHA with CPFs and
State administration, to decide actual Force wise Coys required to
be deployed based on the availability of the Coys with CPFs, without
compromising their primary role.
b) Review of resources/equipment/accommodation availability and budgeting
for central forces before election.
The CPF organizations must plan and assess the following in advance of an impending
election:
● manpower availability
● arms and ammunition
● uniform and uniform items
● communication equipment
● budgeting and making budget available to the commandants
● transportation of the forces
● Messing for the deployed personnel
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c) Logistics.
Once the resources, equipment, etc. have been reviewed and budget provided, the
gaps will require to be filled. According to Webster dictionary, ‘logistics’ is defined as
the aspect of military science dealing with procurement, maintenance, and
transportation of military materiel, facilities, and personnel. In the conduct of election
parlance, logistics would be related to the following:
A. Procurement: Procurement of all required material including communication
equipment, arms and ammunition, transport, uniform and related items, etc; that
may be area specific if required.
B. Maintenance: Systems to be put in place for maintenance of all
equipment/tentage/vehicles, etc.
C. Transportation: In general, the transportation of CPF from outside state is to be
coordinated by CPF with Railways Ministry and the State Government concerned.
Interstate and intrastate transportation of CPF for deployment in state is to be
taken care of by state government.
d) Suggested Formats for planning and assessment:
47
CHAPTER X
PLANNING: RESOURCE PLANNING & BUDGETING - FOR STATE POLICE AND SAP
a) Role & responsibility of state administration in assessment and planning.
(i) The Department of Home and the DGP must hold a coordination
meeting with District administration, at least 4 months in advance,
to assess the availability and requirement of local police forces and
CPF Coys as per threat perception in the area of deployment.
(ii) Representative of Intelligence Agencies of the state and the center,
and ADGPs of Armed Units, etc. must also be involved in the
deliberations to strike a realistic requirement of Force.
(iii) After that the state must consult the CEO and the CEO is expected to
take inputs from the DEOs before finalizing the demand of the state.
(iv) The state must then project its demand through the ECI to MHA;
including justification of why demand has been made for a specific
CPF.
(iv) The state must also attend coordination meeting to be held by MHA
with CPFs and State administration, which is the precursor to the
decision of actual Force wise Coys required to be deployed, based on
the availability of the Coys with CPFs, without compromising their
primary role.
b) Review of manpower/other resources/equipment/transportation availability
and budgeting for forces before election.
The state government is required to review the situation of availability of:
48
● arms and ammunition
● uniform and uniform items
● communication equipment
● vehicles
● well equipped vehicles
● Proper mapping of PS as per their and route maps
● well-equipped control rooms
● budgeting and making budget available to districts; both for state personnel
and CPF personnel
● accommodation/tentage for State Armed Police and CPF with proper
amenities
● Mess for the forces and procurement of ration, etc.
c) Logistic planning.
A. Procurement: Procurement of all required material including communication
equipment, arms and ammunition, transport, uniform and related items, etc. In
particular, the following needs to be procured or arranged for CPF and state
police:
(i) Area specific equipment such as Jammers, Mine protected vehicles for CPF
Coys.
(ii) Accommodation and other logistic requirement of CPF Coys such as SIM cards
and packed lunch/remuneration for lunch on polling day. (Ref Chapter XVII, Para-
C)
(iii) Budgetary requirement, if any, to meet out deficiency or shortcomings must
be projected to MHA in advance.
B. Maintenance: Systems to be put in place for maintenance of all equipment and
facilities such as accommodation/tentage/vehicles, etc.
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C. Transportation: Transportation of CPF interstate and intrastate for deployment in
state is state government’s responsibility; similarly transportation of state police
personnel and SAP for deployment within state, transportation for monitoring MCC,
EEM, political campaigns/rallies, and transportation for ensuring general law and order,
has to be taken care of by state government. In particular, based on the deployment of
CPF Coys in the State, State administration must plan the availability of following as
already detailed in the previous chapter:
(i) Adequate transportation from the de-boarding Station to designated place of
deployment for CPF Coys @: Buses -02, Truck -01, Medium vehicle -01, Light
vehicle -01; for TAC HQ @ Light vehicles -03. In addition 03 Light vehicles @ 01
per platoon if deployment is less than 01 Section strength.
(ii) Adequate fuel for above vehicle as these vehicles will remain with the Coys till
de-induction.
d) Border sealing.
● Border meetings are held between states sharing borders, to seal interstate
land borders. The state is also expected to take steps to ensure review of
present arrangements of sealing of international borders, if any, and of coastal
security in states having coastline either in Arabian Sea, Bay of Bengal or Indian
Ocean.
● The border meetings have to be initiated by the state Nodal Officer for Law and
Order and must be held at two levels - state and district.
● Each concerned state must give complete cooperation with regard to sealing of
border prior to elections
● Effective checking at interstate Nakas must take place for anti-social persons,
liquor and illegal arms
● States must make efforts for neutralizing major suppliers of liquor and drugs to
election going states. Here it may be pointed out that sometimes the Border
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States are only transit points, while supply of liquor and drugs may be from a
state which does not share a border with the election going states.
● Control on manufacturing of illegal arms and their supply from bordering states
to poll going state.
● If need be, Border states should also assist in the arrest of absconders/ history
sheeters especially who are involved in election related offences in the poll
going states.
● For curbing muscle power, Border States must ensure that they keep a watch
on hiring and bringing in men having criminal background from their states to
the poll going states.
● Border States to assist in the arrest of persons wanted in prohibition related
offences, if they have sneaked into their state.
● Border states must ensure availability of dedicated forces in bordering police
stations in case of any eventuality and requirement
● Strict Excise Department vigil in border states at distilleries so that no
proliferation take place in poll going state
e) Inter-state coordination.
For the purpose of smooth and effective interstate coordination, the following steps
need to be taken:
f) Suggested Formats
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CHAPTER XI
PLANNING: TOOLS FOR PLANNING DEPLOYMENT - VULNERABILITY MAPPING
INTRODUCTION
The Election Commission of India has issued instructions regarding various measures to
be taken to ensure free and fair elections. An atmosphere in which each and every elector
is able to access the polling station without being obstructed or being unduly influenced
by anybody is an important prerequisite to a free and fair election. In the interest of this
prerequisite that is for ensuring a free, fair, and safe atmosphere for the voters at large,
the Election Commission of India has devised tools for taking advanced, preventive and
planned action. One such tool is the tool of Vulnerability Mapping (herein referred to as
VM).
Taking due cognizance of the role being played by the muscle power in elections and
taking into account of certain prevailing socio economic realities of electoral politics, the
Commission had initiated a mechanism called 'Vulnerability Mapping' in 2007.
Subsequently, following series of instructions were issued to curb the menace of threat
and intimidation at elections by identifying the locations within a polling station area
vulnerable for such threat and intimidation:
Date of
instruction
Number Subject Key components
12/10/2007 464/INST/
2007-PLN-I
Measures to ensure free
and fair elections –
Prevention of
intimidation to the
voters of vulnerable
sections of electorate –
Mapping of Vulnerability
- regarding.
● Identifying vulnerable
villages/hamlets/ habitats
● Preventive measures
● Joint review of DEO and SP
● Area domination
● Reporting
52
16/10/2010 464/BR-
LA/2010
General elections to
Bihar Assembly –
security cover for
vulnerable areas -
regarding.
● Visit of Sector Magistrates
and PCCP
● Providing security cover to
vulnerable voters
23/03/2011 464/INST/
2011/EPS
General elections to
Legislative Assembly to
Assam, West Bengal,
Kerala, Tamil Nadu and
Puducherry - security
cover for vulnerable
areas - regarding.
● Visit of Sector Magistrates
and mobile state forces
● Providing security cover to
vulnerable voters
30/12/2011 464/INST/
2011/EPS
Vulnerability Mapping ● Vulnerability Mapping
● Visit of Sector Officer
● Format VM-SO
● Format VM-RO
● Format VM-DEO
21/10/2015 464/L&O/
2015/EPS
Instruction of Press
Conference during
elections – regarding
● No Press Conference-Media
briefing – sharing of details
of deployment of security
forces in public domain.
● Any information to media
will be given by Commission
or the CEO/s, if required.
The tool of VM has been effectively utilized since 12/10/2007 and depending
upon the emerging requirements, it has been modified/adapted from time to time. After
over eight years of experience of utilizing this tool in every General election,
Parliamentary or Assembly; and in every state of the country, the systems of VM have
now become institutionalized. Drawing from these experiences and from best practices
53
from across the country, the series of instructions issued by the ECI on VM have been
consolidated hereinafter, and also augmented and placed in a systematic framework.
THE LEGAL FRAMEWORK:
1. Section 171C of the Indian Penal Code - Undue influence at elections is an electoral
offence under section 171C of the Indian Penal Code. Any voluntary interference or
attempt at interfering with the free exercise of any electoral right constitutes the crime
of undue influence at an election.
2. Section 123 (2) of the Representation of the People Act, 1951 – This section defines,
any direct or indirect interference or attempt to interfere on the part of the candidate or
his agent, or of any other person with the consent of the candidate or his election agent
with the free exercise of any electoral right, as a corrupt practice.
VULNERABILITY IN ELECTIONS
Vulnerability in the context of elections is defined as the susceptibility of any voter or
section of voters, whether or not living in a geographically identifiable area, to being
wrongfully prevented from or influenced upon in relation to the exercise of his right to
vote in a free and fair manner, through intimidation or use of any kind of undue influence
or force on the voter.
The exercise of Vulnerability Mapping (VM) in the context of the elections is to be
undertaken with the objective of clearly identifying, in advance, such voters or section of
voters who are likely to be "vulnerable", the persons or other factors causing such
vulnerability and taking adequate corrective action well in advance on the basis of such
identification.
PARAMETERS OF VULNERABILITY
Before a Sector Officer begins the exercise of Vulnerability mapping, certain basic data
must be provided to him/her by the DEO/RO to enable him/her to appreciate the
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historical and current perspective of the Ac in which the PS falls and the PS area in terms
of issues that might have a bearing on vulnerability. This basic set of information to be
provided is given at Annexure-11.1. This information should be collected at least six
months in advance as it is very detailed information and updated before handing over to
Sector Officer.
During visits to the Polling Stations, the proforma for checking and determining
vulnerable areas, particularly in non-LWE areas, is enclosed herewith at Annexure 11.2
that may be used for undertaking the exercise of VM by Sector officer.
Other important parameters that are also to be taken into consideration by DEO/RO
while carrying out vulnerability mapping exercise and while giving written briefs to
Sector Officers include the following among others:
(i) Pre-poll complaints: - Pre-poll complaints may be considered as an important
input of Vulnerability Mapping. Complaints are important on many counts. It is a
live phenomenon showing depth of political competitiveness much before the
poll day. Complaints are not always genuine. However, number of complaints
verified true by election machinery may be taken as an indicator of vulnerability.
Pre-Poll complaints have usually two dimensions. One relates to MCC, the other
political rivalry of diverse nature primarily concerned with
maintaining/consolidating/losing of political ground by leaders of political parties.
Indeed, the second variety of activity starts taking place much before the Poll day.
Complaints are a manifestation of tremors felt by political parties in the run-up to
the elections.
(ii) Act of political parties: - Number of complaints related to violation of MCC cases,
prior to poll, are also important. Experience suggests that political parties are
reluctant to take permission of household owners for wall-writing on private
property. In rural areas, it is almost taken as granted. The voters may not muster
courage to raise voices against the much organized body called political party, in
particular, ruling political party. This creates sense of vulnerability in voters.
Indeed, giving permission to political parties to allow private property put on
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graffiti may be silently forceful. In this context, the propensity of MCC violations
has a strong bearing upon vulnerability of the Polling Station and should,
therefore, be taken into consideration in mapping of vulnerability.
Aside from the Sector Officer’s VM report the DEO must also ensure the following:
(i) Cross-verification of vulnerability report: - There must be some additional
mechanism of collecting, cross verifying and collating information at a relatively
higher level of the Sub-divisional Magistrate (SDM). Some more inputs may be
added thereon, from SDPOs/other sources/ district intelligence inputs, making
vulnerability plan rationalized and realistic. During General Assembly Elections,
SDMs should coordinate with ROs of the assembly constituencies within the sub-
divisional jurisdiction.
(ii) Other avenues for collecting inputs: - The Commission has issued instructions
that ROs will take into consideration the worry lists submitted by candidates
before force is deployed. The interface in having inputs from political parties may
be taken at the SDM level (and not below it) so that validation may be done at
this level first before it goes up to the level of DEO/RO.
(iii) There should be some outlet for information sharing from the voters also, they
being the largest stake holders. The helplines/Call centers/ Control Rooms should
be activated and given sufficient publicity. The Sector officers should be well
versed with these details.
THREE STAGES OF VULNERABILITY MAPPING (VM) EXERCISE:-
In all the Constituencies going to poll the Vulnerability Mapping (VM) exercise shall be
carried out without exception. The VM exercise takes place in three stages:
i. Identification of the voters/voter segments (village/hamlets/ area wise)
vulnerable to threat or intimidation
ii. Identification of the persons causing such vulnerability
iii. Initiating preventive measures against the persons responsible for causing
vulnerability.
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TIMELINE FOR VULNERABILITY MAPPING:
Sr.No. Activity Time-limit
1. Appointment/Selection of hand-
picked Sector Officers
About six to four months before the
election.
2. Appointment/Selection of
designated Police Officer at police
station level
About six to four months before the
election.
3. Training of Sector Officers &
Designated Police Officers
Four to two months before the election.
4. Making Law and Order Portal of
state functional
Four months before the election.
5. Identification of vulnerable area/
segment/ village/ hamlet
After the issue of Press Note by the
Commission and before the issue of the
gazette notification.
6. Identification of the persons causing
such vulnerability
Within 5 days of issue of gazette
notification.
7. Action against the persons
responsible for causing vulnerability
At least before 5 days before day of poll.
8. Reporting and monitoring As per Formats in Annexure
9. Plan and execute joint confidence
building visits by DM/SP; SDM/DySP;
Tehsildar/PI in areas identified as
most vulnerable.
Within 2 weeks prior to poll day
10. Pre-poll area domination by CPF At least before 3-5 days before day of
poll.
The exercise of Vulnerability mapping should begin six to four months in advance so that
District Magistrates/ Superintendent of Polices are fully aware of the situation at the time
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the same is reviewed by the Commission. It may be noted that Vulnerability Mapping
exercise is a pre-poll exercise and has no relevance post-poll; therefore all activities as
laid down are to be completed as per laid down schedule.
ACTION TO BE TAKEN FOR VULNERABILITY MAPPING:
1. APPOINTMENT OF HAND-PICKED SECTOR OFFICERS AND THEIR
RESPONSIBILITIES
a) Appointment process:
Depending on the terrain and availability of manpower resources, one Sector Officer or
Sector Magistrate as per directions of Commission is to be appointed to supervise an
average of 10 to 12 Polling Stations; that can be covered in 1 to 2 hours. Since this is one
of the most responsible positions; the best officers are to be identified. If required central
Govt. officers can also be deployed. All help, including vehicular and fuel support if
needed, should be extended to the Sector Officer for this purpose.
It may be noted that Sector Officers are appointed to look after the VM work related to
the specific sections covered under each of the 10-12 Polling Station; hence this must not
be construed as 10-12 Polling Station Locations. After announcement of election
schedule till the poll process – Sector Officers shall be designated as Zonal Magistrates
for the same area at least 7 days before poll day. They will be provided powers of Special
Executive Magistrates also.
b) Pre-poll responsibilities:
The pre-poll responsibilities of the Sector Officers related to vulnerability Mapping
include:
(i) Initiating Vulnerability Mapping exercise as per timeline
(ii) Frequent visits for confidence building measures and fine tuning the vulnerability
mapping;
(iii) Identification of villages, hamlets and segments of voters vulnerable to threat and
intimidation.
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(iv) Identification of persons who make it vulnerable - It is not about numbers it is about
names - Information to be given in prescribed format to the RO/DEO without having to
disclose the source.
(v) Accountability for ensuring free access of voters for voting.
(vi) Contact points within the vulnerable community with their telephone numbers.
(vii) SO will act as Zonal Magistrate, therefore will be accompanied by police officer.
(viii) Since SO will act as Zonal Magistrate, he will prepare a Zonal Magistrate Plan with a
sketch map for PSs, list of telephone numbers of PSs and election related officers, police
stations, list of responsible persons, list of anti-social elements etc.
c) Poll day responsibilities:
On Poll day the Sector Officer is expected to:
(i) Frequently check if the vulnerable sections identified earlier, are voting or not
(ii) In case of any alarm in this regard he/she has to alert the RO and district
administration immediately.
2. APPOINTMENT OF TEAM MEMBER FOR VM; AND DESIGNATED POLICE OFFICER
AT POLICE STATION LEVEL
Every Police Station covers a certain area of the Assembly Constituency. For the purpose
of VM; the SP of the district shall arrange for a policeman who will act as Sector Police
officer, to accompany the Sector Officer and jointly conduct the exercise of VM in the
given area. The Sector Police officer should not be below the rank of Assistant Sub-
Inspector or Head Constable of police.
For tracking the individual trouble mongers and for ensuring that the troublemakers are
kept under watch, a specific officer should be designated at Thana (Police Station) level
for ensuring the proper law and order and peaceful poll. He will be called the
Designated Police Officer for Vulnerability Mapping.
3. TRAINING OF SECTOR OFFICERS & DESIGNATED POLICE OFFICERS
59
Basic amenities such as vehicle, fuel, magisterial power etc. should be provided to Sector
Officer. Apart from these basic amenities, Sector Officers and Designated Police Officers
should be well trained on following aspects to make them able to carry out their duties
smoothly. They should be trained jointly and each should be provided the following
details during training:-
● Electoral roll of each of the PS; with hamlet name etc. to enable them to
contact voters of every section in the part.
● Gender ratio to be alert to abnormal ratios
● Voter turn-out (in last 2 general elections)
● MCC violation cases (in last 2 general elections)
● Polling Station wise Basic Minimum Facilities (last updated)
● A route map of their area, giving the broad layout and location of polling
stations falling in their sector (it could be a sketch map, need not be a scale
map)
● And other details as per Annexure-11.1
Their joint visit programme should be drawn up and be provided at the time of training.
During joint training session of RO & DSP as well as DEO & SP the topic of VM should be
covered. The RO & SDPO as well as DEO & SP should take periodical joint review with
these officers to monitor the work done by them and review the action taken on points
highlighted during their joint visits.
4. MAKING LAW AND ORDER PORTAL OF STATE FUNCTIONAL
As per the direction of the ECI instruction No.464/INST/2009/EPS dated 1/9/2009, every
state is expected to give two reports daily to the Commission – Law and Order Report-1
and Law and Order Report-2 or LOR-1 and LOR-2. These reports are a cumulative gist of:
• Preventive action taken
• Seizure reports – illegal arms, liquor, drugs, etc.
• Vulnerable areas, persons and intimidators and action taken
• LOR-1
• LOR -2
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• NBW cases
• Listed bootleggers
• PASA detainees
• Externment cases
The detailing of each of the cases mentioned here is done on the law and order portal
maintained by the state. This portal is expected to maintain PS wise details of persons
causing vulnerability and the action taken by the administration. This portal should
become functional well in time before announcement of elections.
5. IDENTIFICATION OF VULNERABLE AREA/ SEGMENT/ VILLAGE/ HAMLET
(i) The first stage in the exercise of Vulnerability Mapping by the Sector Officer or
the Sector Magistrate has to be undertaken with immediate effect after the
declaration of election by the Commission. Sector Officer and HC/ ASI/Police
Officer should take visit of every area jointly.
(ii) The journey programme for them will be decided jointly by the Returning Officer
and Dy. Superintendent of Police.
(iii) The Sector Officer and team must necessarily visit every Locality/ Pocket in the
area of every Polling Station in his Sector, hold widespread discussions with
people there, collect intelligence, and enlist the vulnerable households and
families, as well as the persons and factors causing such vulnerability there.
(iv) While carrying out this exercise they shall take into account the past incidents and
current apprehensions.
(v) After the visit they will prepare information for point numbers 1 to 20 in Performa
enclosed herewith in Annexure 11.2, and also fill relevant forms at Annexure 11.3,
11.4 and 11.5.
(vi) The local police officer and local civil authorities such as TDO/ Mamlatdar/ Police
Inspector etc. shall also be consulted and their inputs taken in to account before
finalizing the list.
(vii) The format at Annexure 11.2 is only meant as an enabler; and information
collected may not be restricted to it; any information may be added if it has a
bearing on the vulnerability of the PS.
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(viii) Upon the arrival of the Observer in the Constituency, the DEO/RO shall hand over
the details of polling station-wise Vulnerability Mapping for the relevant
Assembly Constituency to the Observer (Please see Annexure 11.6 and 11.7).
(ix) The Observer will also visit such locations and interact with the voters and
constantly monitor the developments.
6. IDENTIFICATION OF THE PERSONS CAUSING SUCH VULNERABILITY
This exercise of identifying the persons responsible for making the voters / villages
vulnerable shall be undertaken polling station wise-indicating the name of village,
hamlet, names of the potential troublemakers, including their address, and so on. This
work has to be done by maintaining complete confidentiality of the informers/source, if
so desired.
7. ACTION AGAINST THE PERSONS RESPONSIBLE FOR CAUSING VULNERABILITY
(i)The DEO and Superintendent of Police of the District should hold a joint review
on the subject and finalize a focused action plan to deal with the potential
threats and intimidation points identified. The action plan may be included,
inter-alia, binding the identified trouble mongers under appropriate section
of the law, preventive detention if required, forcing their appearance in local
police stations at reasonable intervals to ensure their good behaviour,
placement of police pickets, regular confidence building visits etc.
(ii)The DEO and SP shall initiate all preventive measures to ensure that intimidation/
obstruction do not really happen on the poll day.
(iii) It has to be ensured that all such measures are undertaken in absolutely non-
partisan manner without fear or favour towards any particular party.
(iv) Names of contact persons from within the vulnerable groups shall also be
identified and their contact numbers / mobile numbers, if any, should be
noted down.
(v) For tracking the individual trouble mongers and for ensuring that the
troublemakers are kept under watch, the Designated Police Officer for
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Vulnerability Mapping is to be appointed in each Thana, as already
mentioned.
(vi) EPIC snatching from Vulnerable Voters and the incidences of people being
induced to deposit their EPIC on payment of money to prevent them from
exercising their franchise should be stopped. The DEOs/SPs/ROs shall closely
monitor the situation and promptly take all appropriate action in this regard.
(vii)DEO/SP shall initiate confidence-building measures to bolster the voters'
confidence about the arrangements for free and fair poll.
(viii)DEO/SP shall undertake tours, preferably jointly, to such locations and meet the
communities and explain the arrangements made for the free and fair poll.
(ix) Confidence building visits should be made by other senior officers also. Joint
visits by SDM/DySP; Tehsildar/PI will be very effective and should be planned
in the areas identified as most vulnerable. The visiting officers should hold
meetings with the vulnerable persons / groups and issue warning to the
troublemakers that they will be tracked individually. These actions shall be
taken in a focused manner.
(x)Joint patrolling by civil and police authorities:- There should be joint patrolling of
civil and police authorities starting from TEN days before the poll to TWO
days before the poll [P(-10) to P(-2)]. Introducing presence of civil authorities
of reasonably higher rank will instill confidence, other than providing
important inputs for finalizing Force Deployment Plan.
(xi)The DEO/RO shall interact with the candidates and representatives of political
parties to gather regular feedback.
(xii)Regular feedback on the subject may also be obtained from the District
Intelligence (L.I.B.).
(xiii)Where there is a cluster of such vulnerable pockets, the DEO shall arrange for
dedicated police teams/squads and locate them at convenient locations in the
vicinity, to be pressed into service for action on the day of poll without any
loss of time. It should invariably form part of the District Security Plan.
(xiv)Awareness generation among female voters: Awareness generation among
female voters on voting without fear and influence is essential as they tend to
63
be soft targets of intimidation and undue influence, not only from outsiders
but also from the family within.
8. REPORTING FORMATS
a) Reporting by Sector Officer:
The Sector Officer should carefully fill the following formats:
● VM/SO –I: Performa for checking and determining vulnerability by
Sector Officers (Annexure 11.2)
● VM/SO – II A:Polling Station wise Format for enlisting Vulnerable
Localities / Pockets / Voter Segments and list of intimidators by Sector
Officer (Annexure 11.3)
● VM/SO – II B: Summary of Polling Station wise enlisting of Vulnerable
Localities / Pockets / Voter Segments and of intimidators by Sector
Officer (Annexure 11.4)
● VM/SO-II C: Certificate by the Sector Officer / Sector Magistrate / Head
Constable / Assistant Police Sub Inspector (Annexure 11.5)
These formats are to be necessarily filled for each such locality / Pocket, while Sector
Officer is touring the locality. The Sector Officer must retain copies of the filled Formats
and submit all filled in Formats to Returning Officer within three days of issue of gazette
notification.
In case no such vulnerable hamlet or village is identified in a district or in a Parliamentary
Constituency, the DEO concerned should obtain a certificate from the field functionaries
from the Thana / block level and sub divisional level and finally submit a certificate to the
CEO that no such vulnerable village or hamlet or voter segment is available / identified
within this district. Such certificate should be sent within three days of issue of gazette
notification.
b) Table for Returning Officer:
64
The RO of the constituency should compile all above information and finalize the VM for
the entire constituency and make it available to DEO, within five days of issue of gazette
notification after retaining a copy of the same, in the following format:
● Format VM/RO: Summary of vulnerability and list of persons causing vulnerability
by Returning Officer (Annexure 11.6)
c) Table for DEO:
The DEO, on the same lines, must collect the Formats VM/RO and prepare and make
available, the Format 'VM/DEO' to the CEO. The CEO must compile all the district Formats
VM/DEO of the state into a book and make this compliance available to the Commission.
The format prescribed for DEO reporting is:
● Format VM/DEO: Report on identification of vulnerability, and action taken at
district level (Annexure 11.7)
The Commission has made it very clear that in case of the ATR not being submitted by
any DEO within the stipulated time, it may be brought to the notice of the Deputy
Election Commissioner concerned by the CEO for immediate follow up action.
9. AREA DOMINATION PLAN FOR CPF AND POLL DAY DEPLOYMENT
● The Commanders / Assistant Commanders of the CPF shall be given a list of such
vulnerable locations.
● Wherever CPF arrives in advance for area domination, special attention shall be
given to such locations.
● On the day of poll the Commanders/Assistant Commanders shall make it a point
to visit such vulnerable pockets as a confidence building measure.
● In case they come across any obstruction they shall take note of it and
immediately inform any of the electoral officials such as
RO/DEO/SP/Observer/Sector Officer and keep a note of the time of their
intimation.
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10. MONITORING OF VULNERABLE AREAS/PERSONS ON THE DAY OF POLL
Following actions need to be taken to ensure that the vulnerable persons, if any, are able
to vote without fear, threat or intimidation:
● At the time of dispatch of the polling parties from the dispatch canters, the RO
should brief the Presiding Officer concerned about the vulnerable locations within
the polling station area.
● In the electoral roll the section within the part should also be marked for proper
monitoring.
● The Presiding Officers shall submit a report indicating abnormally low percentage
of voter turnout, if any, within any section / sections particularly, with reference
to the vulnerable locations.
● On the day(s) of poll, the Sector Magistrates and the mobile forces should visit at
least twice such villages / hamlets / dwelling areas which are identified as
vulnerable areas and where there are reports of possible intimidation of the
voters. The Sector Magistrates and mobile forces during their visit to these areas
will ensure that wherever required, adequate security cover is provided to such
vulnerable voters.
● During the poll, the Observers and other senior officers while visiting the polling
station shall pay a special attention to this problem and find out whether any
undue influence, intimidation / obstruction is being caused.
● The police patrolling parties should keep track of the vulnerable locations and
keep the control room informed. Wherever necessary, police pickets shall be
established to ensure free and access to all voters to cast their votes without fear.
● The Commanders / Assistant Commanders of the CPF shall make it a point to visit
such vulnerable pockets as a confidence building measure on the day of polls. In
case they come across any obstruction they shall take note of it and immediately
inform any of the electoral officials such as RO/DEO/SP/Observer/Sector Officer
and keep a note of the time of their intimation.
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11. ROLE OF RO/DEO/OBSERVERS AFTER THE POLL.
a) The RO/DEO shall take the inputs on mass scale intimidation/ threat/obstruction
if any into consideration while submitting their report after the poll.
b) The Observers shall give their full attention to the issue and verify at every stage.
A special mention shall be made about the issue in their final report. Apart from
this, they should make an intelligent reading of the Form 17A and the marked
copy of the electoral roll used in the polling stations at the time of scrutiny of
Form 17A, ordered if any, by the Commission after the poll.
12. ACCOUNTABILITY AND CONFIDENTIALITY:
The Commission directs that accountability of various police and civil officials for
Vulnerability Mapping and follow up at every stage shall be clearly defined with reference
to each polling station / constituency. Severe disciplinary action will be initiated in case
of dereliction of duty on the part of any police / civil officials in this matter.
It is advised not to conduct any kind of press conference or to furnish any type of details
relating to Vulnerability Mapping, Vulnerable areas, hamlets, troublemakers etc. or any
type of details relating to deployment of security forces for the purpose, in public domain
during any election. Appropriate instructions to field machineries may be given in this
regard. Any information to media about vulnerability, if required would be given only by
the Commission or by the Chief Electoral Officers of the State/ UTs concerned on
instructions of the Commission.
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CHAPTER XII
PLANNING: TOOLS FOR PLANNING DEPLOYMENT - CRITICALITY ASSESSMENT
68
CHAPTER XIII
PLANNING: TOOLS FOR PLANNING DEPLOYMENT - FORCE MULTIPLIERS
The Commission has issued several instructions, from time to time, on various measures
to keep a watch on the polling process at Polling Stations to ensure conduct of free and
fair elections. These measures include use of Micro Observers, Video/Still cameras and
web casting. Based on the recommendations of Working Groups and the experience of
the past elections; following consolidated instructions are issued in suppression of all
existing instructions on Force Multipliers; including among others the instructions on the
use of Micro Observers, Video / Still cameras and web casting. It may be noted that all
earlier instructions found applicable have been incorporated in the following
instructions.
INTRODUCTION: FORCE MULTIPLIERS AND NON-CAPF MEASURES:
Force multiplication/multiplier is a term commonly used in armed forces parlance; and
refers to those attributes which when applied to or utilized by a given force, make its
impact much huger and also makes it much more effective. Therefore latest and effective
equipment, training, good transport logistics, etc., are considered force multipliers in
their case.
However, in elections, the Central Police Forces (CPF) are considered the main force
multipliers due to their perceived neutrality, superior training and discipline, and
experience of dealing with very challenging situations, etc.. With our population
increasing at the decadal growth rate of 17.64 % ( 2011 Census), it is leading to increase
in the number of electors every year; and this calls for an increase in the number of
polling stations also. With an estimated voter population touching almost 1 billion in
2025; the number of polling stations in the country is likely to cross 11 lakhs as compared
to the 9.3 lakhs today. Given the fact that the manpower available with CPF is likely to
remain more or less constant; it is essential that the Commission appreciate the limitation
of this resource, and delineate certain non CPF measures that can become effective force
multipliers.
In elections therefore certain non-CPF measures that have worked as effective force
multipliers; and certain others that have been utilized but not recognized as such, are
hereby categorized as follows:
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1. Technology – Use of Technology such as Webcasting, CCTV, Still Cameras,
Videography, SMS monitoring, etc.
2. Micro-observer
3. Transportation – Efficient use of transport and effective route planning
4. Recruitment - to fill gaps in resources that are to be utilized
5. Capacity Building – standardized, high quality and need- based training
6. Deployment Planning – Advanced and effective Deployment Planning in
complete confidentiality and with elements of surprise (such as randomization)
7. Pre-poll deployment – Effective pre-poll utilization of state police and CAPF based
on advanced planning
8. Knowledge of Geography, terrain, weather – Good knowledge of Geography and
efficient deployment of resources in accordance of geography, weather and
terrain (such as SAT phones, wireless, boats, etc.)
9. Communication Plan – Robust and thoroughly tested communication plan
10. Tapping additional resources - from various departments of State and Central
Government.
11. Manpower Audit
12. Equipment - well- equipped Police resources
13. Active Call Centers, Complaint Cells, and Control Rooms
14. Inter-state cluster for sharing of State police manpower in a pre-determined
manner
15. Motivation and Welfare of forces
16. Media as a force multiplier
A list of existing instructions on each of the above categories issued by the ECI is given
below in ascending order of date:
Force Multiplier
Date of instructi
on
Number Subject Key components
Technology 15/10/2005
464/INST/ 2005-PLN-I
Photography/videography of electors and poll proceedings inside the polling stations.
● Photography/videography inside the polling stations
● Use of digital cameras
17/01/2007
447/2007-PLN-IV
Use of Videography and digital cameras during elections- consolidated instructions thereon.
● Video cameras and crew.
● RO has to decide number of video teams
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● Deployment of videographers
● Items for videography
● Videography clippings
● Critical events to be captured
● Supply of prints of video tapes
29/01/2009
4/2008/ SDR Videography of critical events relating to the conduct of elections – supply of CDs – regarding
● CDs of critical events.
12/04/2009
464/INST/ EPS/2009
Video coverage of rallies/ public meetings
● Security vetting of the videographers
03/05/2009
464/INST/ 2009/EPS
Use of videography and digital cameras during elections – period of retention thereof.
● Films of video digital print out, video cassettes, video tapes
● The period of retention
Micro-Observer
24/10/2008
464/INST/ 2008/EPS
Appointment of Micro Observers – Guidelines and check list
● Guidelines and check-list of Micro Observers
10/12/2008
464/INST/ 2008/EPS
Appointment of Micro Observer
● Alternative arrangements to CPF
● Central Govt. officials as Micro Observers
● Amenities to Micro Observers
21/01/2009
464/INST/ 2008/EPS
Appointment of Micro Observer – additional instructions
● Availability of Central Govt. Staff.
● Inter-district sharing of Micro Observers
● Randomization process
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21/03/2014
464/INST/ 2014/EPS
Multiple measures to keep a watch on polling process at polling stations to ensure free and fair elections- Micro-observers, Video camera, Still camera, Webcasting etc.-reg.
● Micro Observer ● Video camera ● Still camera ● Webcasting
Transportation
- - Final Report of Working Group-2 of CEOs
● Arrangements for whom
● Route charts ● Arrangements of
vehicle ● Requisitioning ● Database.
Recruitment - - - -
Capacity building of security personnel
09/01/2009
464/INST/ 2009/EPS
Training of police officials associated with conduct of elections
● Training of police personnel
Deployment planning
30/09/2005
PS/AK/ 2005 District Deployment Plan and the District Communication Plan to be brought to the notice of ROs, DEOs, SPs and Observers
● Area domination ● Merging of polling
arty and static armed force party
● Duty of patrolling Magistrates
24/10/2008
464/INST/ 2008/EPS
Preparation of District Election Plan
● District profile ● Movement Plan ● Police Deployment
Plan ● Communication plan
Pre-poll deployment
08/01/2007
464/L&O/ 2007/PLN-I
Security Plan and Force Deployment to ensure free, fair and peaceful conduct of elections to Lok Sabha and State Assemblies
● State Deployment plan
● District Deployment plan
● Area domination ● Deployment of
CPMF
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25/10/2007
464/UP-LA/ 2007
Role of CPMF and State Police in conduct of plls – reg.
● Role of CPMF ● Role of State Police
08/01/2007
464/L&O/ 2007/PLN-I
Preventive Law & Order Action to ensure conduct of peaceful, free and fair poll during the General Elections/ Bye-elections-regarding
● Prophylactic measures
● Special drive ● Prohibitory orders ● Seizure of arms
Knowledge of geography, terrain, weather
24/10/2008
464/INST/ 2008/EPS
Preparation of District Election Plan
● District Profile
Communication Plan
28/03/2009
464/INST/ 2009/EPS
General Election to Lok Sabha 2009-Communicaion Plan – regarding
● Revised formats of Communication Plan
06/05/2014
464/INST/ 2014/EPS
Focused tracking of poll day events through dedicated teams – regarding
● Effective communication plan to track the poll day events
● Dedicated teams - - Final Report of
Working Group-2 of CEOs
● Requirement- Pre poll/Poll Day/Post Poll
● Flow of information ● Means of
Communication.
Tapping additional resources within state from state and central government departments
- - Final Report of Working Group-2 of CEOs
● Newly recruited Police
● Use of SRTC Bus drivers
● Forest Guards ● Home Guards ● Industrial
Security Force ● Private
Security Guards
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● NSS volunteers/NCC Cadets
● Excise & Custom Inspectors
Manpower audit
- - Check list for District Election Officers in connection with Conduct of General Elections, 2014
● Requirement to be assessed
● Who can be deployed
● Database to be prepared
● Not to be deployed ● Grouping &
Formation of Polling Parties
● Central Government Employees
● Micro-Observers & Election Volunteers
● Asst. Exp. Observers & EEM Teams
● Engagement of Child Labour.
Equipment - - - -
Active Call Centres, Control room and Complaint cells
22/12/2005
464/Misc/ 2005/PLN-I
Disposal of Grievances/ complaints received on electoral issues.
● Redress the grievances
● Categorization of complaints
● Opening of grievance cells – cum-control rooms
Inter-state cluster for sharing of State police manpower
- - - -
Motivation and Welfare of forces
09.01.2009
464/INST/2009-EPS
Training of police officials associated with conduct of elections.
Motivation ● Proper Training at HQ & district level ● Mandatory briefing by seniors
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● Route maps ● Time gap between deployment ● Local Police Officer as a Nodal Officer ● Effective use of modern technology ● Exigency plan ● Recognition Welfare ● Provision for insurance, best & cashless medical facility, quick evacuation ● Nodal officer for welfare. ● Proper food & accommodation ● Ex-gratia compensation ● Honorarium.
Media as a force multiplier
- - - -
Utilization of above force multipliers and non-CAPF measures are incumbent on the local
requirements and availability of resources. Before every General Election, all States must
identify the available alternate categories of force multipliers at least a year in advance;
and the utilization of these maybe planned based on very detailed/minute planning at
state, district, AC, and PS level.
1. TECHNOLOGY
This includes the use of technology such as Webcasting, CCTV, Still Cameras,
Videography, SMS monitoring, etc. at the Polling Station on poll day.
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It may be noted that considering the limitation on availability of Central Armed Police
Forces (CAPFs), the Commission has decided that critical polling stations shall at least be
covered by one or more of the following measures to keep a watch on the polling process,
as Non-CAPF measures:
(i) Micro Observers (covered later in these instructions)
(ii) Video/Still Cameras
(iii) Web Casting
Allocation of force to polling stations is done on the basis of sensitivity analysis. Even at
those polling stations where CAPF is deployed, the measures given in above paragraph
can be put in place to keep a watch on the polling process.
In this section, on the utilization of technology as a non-CPF force multiplier, the
following four aspects are covered:
● Webcasting
● Videography and still camera use
● Use of CCTV
● SMS monitoring system
(1.1) Use of webcasting at polling stations:
The advent of Information Technology has touched all walks of life and played a
determining role in all major ventures. It has come to have an important say in bringing
transparency and efficiency in the conduct of elections too. In this context, the concept
of webcasting has been introduced for poll day monitoring. Webcasting is a process
where the entire poll day proceedings are captured as a video file, and streamed live, for
viewing at selected locations.
a. Meaning of webcasting :
Web casting simply means live streaming of video on the internet. It does not involve
use of complicated technology. All that is needed is a video camera connected to the
internet.
(i) Any video camera including a webcam capable of being connected to the
internet can be used for web casting.
(ii) Camera can be connected to the internet through a computer, either
desktop or laptop.
(iii) IP cameras with direct connection to the internet are also available these
days, which may be used.
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(iv) Many mobile devices with built- in internet connectivity also have
cameras. These include mobile phones, tablet computers etc. They can
also be used for web casting.
b. Objectives of webcasting:
The main objectives of ‘webcasting’ of the poll proceedings are to:
▪ View the poll proceeding in real time by the Election Commission of India, the
Chief Electoral Officer, the District Electoral Officer, the Returning Officer and
the webcasting team.
▪ By effective monitoring of the polling process, to deter the trouble mongers
and mischief makers; imbibe confidence in the mind of electorates; bring in
transparency and impartiality in the polling process.
Pre-poll activities:
c. Identification of locations for webcasting :
Commission desires that web casting should be done from as many Polling
Stations as possible. Efforts should be made for webcasting from all Polling
Stations where internet connection is possible. For this purpose, DEOs should
check the availability of internet connection through a landline or mobile
broadband connection at each Polling Station.
d. Process of setting up webcasting at Polling Stations –
(i) Webcasting can be done inside the polling station from as many as polling
stations as possible and as resources allow.
(ii) The Commission has not prescribed any maximum or minimum number of
Polling Stations to be webcasted for an Assembly Constituency /
Parliamentary Constituency and has left it to the discretion of the
Returning Officer.
(iii) Many of the Polling Stations are located in Primary Schools, and many of
them have been provided connectivity. Efforts should be made to utilize
this connectivity if it is found adequate.
(iv) In other cases, a temporary landline or mobile broadband connection
should be taken in all Polling Stations where connectivity for such an
internet connection is possible. Other webcasting infrastructure should
then be provided to all such Polling Stations where internet connection is
taken or available.
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(v) Desktop or laptop computers can be borrowed from schools or
Government offices, wherever available for a few days for use at the
Polling Stations for webcasting. Most Polling Stations are located in school
buildings, where computers have been provided under various
Government and Non-Government programmes. These computers can be
used on the poll day for the purpose of webcasting. ln case computers are
not available at the Polling Station building itself, they can be borrowed
from other Government departments or taken on rent for a few days.
(vi) Cameras should then be provided and connected to the computers,
having internet connection, at Polling Stations.
(vii) If mobile devices with cameras and internet connection are available, they
can be provided to Polling Stations for webcasting. Such mobile devices
can also be hired for a few days.
(viii) Some CEOs have suggested that they have access to IP cameras, which do
not require connection with computers for webcasting. These IP cameras
if available can also be used.
e. Preparation for live streaming :
Live streaming of video from Polling Stations will require that the computer, mobile
device or the IP camera at the polling Station is configured for live streaming of video
on some website. Many websites allow free live streaming of videos. These include
YouTube, Ustream, etc. The method of configuration for live streaming of these
websites is given in Annexure-2. It may be noted that no payment of fee etc. is
required for this purpose.
f. Preparation of the CEO website for webcasting in public domain:
With the specific approval of the Commission, the webcasting can be thrown open
for the public view during election. A press release informing the general public may
be issued on the poll day by the Chief Electoral Officer. Wide publicity should be given
to the fact that webcasting can be seen by members of the public and also by political
parties, candidates and their agents. It should also be publicized that if any person
notices any violation of rules and procedures on the webcast, he/she can make a
complaint to the Returning Officer/Observer. Arrangements should be made for an
immediate inquiry on all such complaints. Polling Stations for which complaints have
been received shall also be kept for scrutiny by RO and Observer, on the next day
after the poll.
A special webpage should be prepared on the website of each CEO for the public to
access the webcasting of Polling Stations of that State/ UT. The link to this webpage
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will be prominently displayed on the homepage of the CEO’s website. This page will
have hyperlink to the webpage of each Parliamentary/ Assembly Constituency. The
Constituency webpage will have hyperlinks to the webcasting pages of Polling
Stations. The hyperlink to the Polling Station webcasting will redirect the user to the
webcasting website which could be YouTube, You Stream or any other free video
streaming website.
g. Checking of the webcasting preparation before poll day :
Preparation of the website of CEO, and configuration of computers including taking
of internet connections at Polling Stations should be completed at least 3 days before
the poll. Live test of webcasting from Polling Stations should be carried out at least 2
days before the poll to ensure that nothing goes wrong on the poll day.
h. Additional Staff for Webcasting :
(i) In the CEO office – No additional staff would be required at the CEO office.
The IT team of the CEO office should prepare the CEO website in advance
and should train the team of the DEOs for webcasting.
(ii) In DEO office/RO office – Depending on the number of polling stations
from which webcasting is planned, one or more IT personnel will be
needed in the office of DEO/RO. For this purpose, IT manpower available
in Government offices in the district should be borrowed and trained in
advance. Districts can also plan on involving students of NIITs, Engineering
Colleges, etc.
(iii) In the Polling Stations – One additional Polling Officer will be needed in
Polling Stations where webcasting is done. This polling officer should have
some background in IT and should be trained in the process of webcasting.
(iv) Sector Officers – All Sector Officers must be trained in webcasting. They
should be fully involved in the preparation for webcasting and live
checking of webcasting, two days before the poll.
(v) As a new initiative, IP based camera can be installed to view and record
the movement of the people outside the booths and to monitor for any
untoward incidents.
(vi) During the counting day, IP camera may be installed at the counting
centers and the activities at the counting hall may be recorded.
i. Training :
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Training of all Officers/ Staff associated with webcasting is very important. All Sector
Officers, Presiding Officers and polling officers of the Polling stations where webcasting
is planned must be trained in webcasting. The district IT staff should also be properly
trained.
j. Recording of video in case of webcasting :
In all cases where webcasting is done, the video of the entire day’s proceedings must be
recorded. This can be done locally on the computer in the concerned Polling Station, or
centrally on the server of the CEO; or both. In either case the Polling Station wise
recording of the entire day’s proceeding must be kept in the server of the CEO, and should
be available to the RO and Observer for viewing at the time of scrutiny, on the next day
after the poll; in case of any complaint with respect to that Polling Station.
(1.2) _ Use of Video Cameras and Still Cameras:
In order to enable the Commission to have a true, faithful and concurrent record of the
violations of the election law, and standing instructions of the Commission; and to assess
the impact of its corrective measures; the Returning Officer of each constituency shall
make arrangements to record through videography, the critical events during the process
of electioneering; including but not restricted to the period of public campaign, the day
of poll, the transport and receipt of polled ballot boxes and other materials, counting of
votes and the declaration of results; in an independent, intelligent and purposeful
manner.
The Returning Officer shall, while programming the itinerary of the video teams, take into
account the number of electors, the size of the constituency, the number of sensitive
polling stations, previous history of booth capturing and other malpractices, the general
law and order situation, the likelihood of commission of corrupt practices and electoral
offences and other related factors.
On the basis of his assessment, the Returning Officer should decide the number of video
teams needed taking into account the factors mentioned above. The Commission has not
prescribed any maximum or minimum number of video teams for an Assembly
Constituency / Parliamentary Constituency and has left it to the discretion of the
Returning Officer.
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a. Pre-poll activities: Use of video camera and still cameras at Polling Stations :
Video cameras shall be used at as many Polling Stations as possible to keep a
watch on the proceedings. Still cameras shall be used at all those polling stations,
where Micro-observers, video cameras or web casting is not being used. In this
manner, all critical Polling Stations shall be at least covered by some method to
keep a watch on the proceedings.
b. Pre-poll activities: Inventory of cameras
DEOs shall prepare an inventory of all video and still cameras as well as
videographers/photographers available in the district, for use on the poll day at
Polling Stations. This inventory shall have to be prepared well in advance of the
announcement of elections, preferably six months in advance.
(i) An inventory of all video and still cameras available in all Government
Departments shall be prepared; and they shall be made available to the
DEO.
(ii) In addition, DEO shall also hire video and still cameras from the market
and shall fix the hiring charges, based on prevailing market rates.
(iii) Private videographers or photographers hired by the DEO should not
belong to any political party; should not be known sympathizers or
supporters or close relatives of any of the contesting candidates or leaders
of any political party; and should not have been hired by any political party
or contesting candidate.
(iv) The DEO can also use video and still cameras owned by Government
Employees and shall fix the hiring charges for them as well. These may be
a little less than the hiring charges for video and still cameras hired from
the market.
(v) In case video or still cameras are hired from Government Employees, the
employee from whom the camera is hired shall also be used for
videography/photography using that camera. In these cases, the
instructions for randomization of employees on poll duty shall also apply.
(vi) In case video or still camera is hired from a Presiding Officer or Polling
Officer, it can be used in the Polling Station where they are on put duty.
However, another Polling Officer will be appointed to handle the camera,
so that the Presiding Officer of the Polling Station concerned shall be able
to do his/ her work uninterruptedly.
(vii) In case there is a shortage of video or still cameras in any district, they
shall be taken from the neighbouring district; and the Divisional
Commissioner or the CEO will facilitate such sharing of video cameras
between districts.
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c. Pre-poll activities: Method of placing cameras
Cameras shall be placed in such a manner that they can record the voters in the
queue, and the proceedings in the Polling Station, including the process of
identification of voters, application of indelible ink etc. It must be ensured that
secrecy of voting is not violated by the camera in any manner.
d. Pre-poll activities: Training of videographers/ photographers
Videographers/ photographers should be trained by the Returning Officer on how
videography/photography should be done and what event must be covered. The
videographers / photographers must be told that the principle behind the scheme is
to record critical events which are likely to vitiate the poll and not to just videotape
or photograph in a routine manner only to fill the cassette or camera memory.
e. Pre-poll activities: Before poll day following items should be considered for
special watch and videography
▪ Meeting addressed / attended by Ministers, top national / State level
leaders of recognized parties
▪ Riots or riotous situations or commotions, brick batting, free-for-all etc.
▪ Violent incidents, damaging of property, looting, arson, brandishing of
arms etc.
▪ Intimidation of voters
▪ Inducement / bribing of voters by distribution of items like saree, dhoti,
blankets etc.
▪ Vulgar display of expenditure like huge cut outs etc.
▪ Movement and activities of candidates with doubtful / criminal records
▪ Important events such as nomination, scrutiny and withdrawal of
candidatures
▪ Preparations of EVMs by Returning Officer
▪ Election Expenditure monitoring guidelines enforcement
[These are illustrative and not exhaustive. All video and digital photography
should be done with date and time recording so that the real time and date
can be verified.]
f. Poll day activities: What should be recorded by camera on the day of poll
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The videographer/photographer shall make sure that all important events such as
mock poll, sealing of EVMs, signing by polling agents on the seals of EVMs, etc. are
properly recorded. Any untoward incident at the polling Station must also be
recorded. Especially the following must be recorded: -
(i) Attempts of intimidation of voters.
(ii) Attempts of inducement / bribing of voters.
(iii) Canvassing within 100 metres of polling stations.
(iv) Booth Capturing
(v) Positioning of voting compartment
(vi) Basic Minimum Facilities (BMF) at the polling station
(vii) Presence of polling agents
(viii) Mock Poll.
(ix) Clearing of Mock poll.
(x) Sealing of EVMs.
(xi) Process of identification of voters.
(xii) Voters in queues.
(xiii) The length of queue at the time fixed for close of poll.
(xiv) Any dispute of any nature at the polling Station.
(xv) Visit by Sector Officers, Observers and other electoral functionaries or
any important person including the candidates.
(xvi) Replacement of EVM, if any.
(xvii) Any untoward incident at the Polling Stations.
All video and photography should be done with date and time recording so that the
real time and date can be verified. (Note: The list above is illustrative and not
exhaustive.)
g. Poll day activities: Food for videographers/photographers:
Food shall be provided to videographers and it shall be ensured that the
videographers /photographers DO NOT accept the hospitality of any contesting
candidate or political party or their workers. All video teams should be under the
personal supervision and guidance of a senior election officer.
h. Post-Poll activities: What is to be videographed after the poll process is over
Following may be video graphed
▪ Closure and sealing of strong room after deposit of EVMs therein
▪ Opening of strong rooms before taking out the EVMs for counting
▪ Counting process
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i. Post-Poll activities: Retention of video/still photo recording
The recording made by video and still cameras shall be kept in video tapes, CDs, Pen
drives or other storage devices in the safe custody of District Election Officer. These
recordings shall be retained till the period of filing of Election Petitions is over; and
in case an election petition is filed, then till the final disposal of the Election Petition.
j. Post-Poll activities: Copies of recording to be given
Copies of video and still photo recording should be given on demand, free of cost to
candidates and on payment of a fee of Rs 100/- per CD to any other person.
k. Post-Poll activities: Video recording/ photographs to be scrutinized and
videographers/ photographers to be available at the time of scrutiny
If videography / photography has been done at a Polling Station, it shall be viewed by
the RO and Observer at the time of scrutiny, in case of any complaint with respect to
that Polling Station. Videographers/ photographers shall remain available at the time
of scrutiny so that the RO and Observer can seek any clarification, if they feel it
necessary.
(1.3) Use of CCTV
CCTV as a Non-CAPF measure may be used sparingly as it is comparatively less cost
effective, but it can be used as a very effective tool particularly in the vulnerable areas
where threat perception or rate of breach of Election Laws is historically very high. While
using the CCTV as a Non-CAPF measure, all the instructions/parameters mentioned
above for the use of Video and still cameras are to be scrupulously followed.
(1.4) SMS monitoring
i. SMS based poll Management System for getting updates on the various
milestones on pre-poll day and poll day can be used.
ii. Most important feature of this system is that information at hourly intervals till
the end of polls, of votes polled in PSs, is to be furnished by the BLO, (1 BLO is
dedicated for each PS on poll day) as a formatted SMS message, from his mobile
phone to the Central Server in the CEO’s office.
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iii. The pre-formatted SMS messages on poll day activities, and the pre-scheduled
timings of SMS from the BLOs, are to be and circulated to the BLOs during their
training sessions.
iv. The schedule and type of messages to be sent by the Booth Level Officers (BLOs)
for their respective polling stations are as follows:
Milestones When to send SMS
1. Phone number validation on server From 10 AM to 1.P.M on previous day of the Poll day.
2. Polling Party Reached The instant Polling Party reaches the PS on the previous day of the Poll Day.
3. Presence of- (a) Polling Agents, (b) CPF, (c) Micro –Observers, (d) Digital Camera/ Video Camera
Before the commencement of Mock Poll (7 A.M. on Poll day)
4. Mock Poll conducted Before the commencement of Poll and after completion of mock poll (7 A.M. on Poll day)
5. Poll Started Instant Poll Started (7 A.M. onwards)
6. Poll Interrupted/ Resumed Instant Poll Interrupted/ Resumed on Poll day.
7. EVM issues Instantly
8. EVM change if any Instantly
9. Two Hourly/ Final Vote Cast Reporting 2 Hourly report from 9 AM on Poll day/ Instant Poll closed.
10. Number of voters remaining in the queue at the hour fixed for close of polls
At the hour fixed for close of polls
11. Polling Party Departed Instant Polling Party departed.
v. BLOs are to be provided SIM cards with a no. from a series of nos. dedicated by
BSNL/Service providers preferably for all concerned officials like BLOs, Zonal
Officers, R.O., DEO’s office and CEO’s office. Each SIM should be pre-dedicated
to a polling station – this data will be entered in the Central Server.
vi. Each BLO should preferably be equipped with a cell phone (GSM cell).
Formatted Messages would be sent by the BLOs to a particular number.
Messages would be directly pooled in the Central Server located in the CEO’s
office.
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vii. A team of 4 to 5 persons (Programmers / Asst. Programmers) dedicated in the
CEO’s office to moderate manually the incomplete or wrong messages.
viii. Each BLO may be given a small card (wallet size) in advance with the standard
formatted messages for his reference on pre-poll and poll day. The format and
syntax of the SMS messages may be suitably designed so that the message
received by the system through the GSM modem could be automatically
interpreted and up-dated into the database and made available to all the
stakeholders for monitoring the Polling Stations on line. The following
standardized syntax may be adopted. :
Milestones SMS Syntax
Phone No. Validation P[PC NO]A[AC No]P[PS NO]PV
e.g. P1A8P15PV
Polling Party Reached P[PC NO]A[AC NO]P[PS NO]PR
e.g. P1A8P15PR
Polling Agents, CPF, Micro-
Observer, Digital Camera,
Video Camera
P[PC NO]A[AC NO]P[PS NO]PA[No. of polling Agent]C[CPF
Y/N]M[Micro-observer Y/N]
D[Digital Camera Y/N]V[Video Camera Y/N]
Mock Poll Conducted P[PC NO]A[AC NO]P[PS NO]MC
Poll Started P[PC NO]A[AC NO]P[PS NO]PS
Poll Interrupted / Resumed P[PC NO]A[AC NO]P[PS NO]PI
P[PC NO]A[AC NO]P[PS NO]PR
Hourly/ Final Vote Cast P[PC NO]A[AC NO]P[PS NO]VC800
P[PC NO]A[AC NO]P[PS NO]VM470VF430
Polling Party Departed P[PC NO]A[AC NO]P[PS NO]PD
ix. A separate training session has to be organized for the BLOs by the RO (in small
groups of 30 BLOs), on the messages to be given for different milestones on
pre-poll and poll day. BLOs have to be trained extensively how to use the
standard formatted messages.
x. The instructions/training should be imparted to BLOs in Local language.
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xi. SMPP Port (Short Message Peer to Peer Port) would be the interface between
the Mobile phone and the Server.
xii. For implementation of the SMS based Poll Monitoring System, a licensed software is to be obtained and there should be proper network coverage in PSs.
xiii. In shadow areas, other alternative arrangements for communication have to be made [like furnishing information through a runner/ landline phone / mobile phone from the nearest place having network coverage]
xiv. Orders for SIM cards have to be placed in advance with BSNL/Service providers, after ascertaining the network coverage at the polling station locations and determining no. of officials to be provided SIM cards. The CEO/DEO is to bear SIM cards charges.
xv. The threshold limit for mobile phones could be fixed in advance. BLOs and other
officials should be strictly instructed to not make unnecessary calls prior to the
poll day lest they exhaust the amount.
xvi. SIM card numbers are to be incorporated in the Communication Plan once the
nos. have been allotted.
xvii. BLOs have to send one initial message for validating the no. after which all
subsequent messages will automatically update the information for that PS.
xviii. Software can generate Reports to indicate the poll percentage at specified
intervals, PSs where mock poll has been completed, poll commenced, closure
of poll, departure of polling parties, etc.
2. NON CAPF MEASURES AT POLLING STATION – USE OF MICRO-OBSERVER
Observers have a very crucial role to play in the conduct of an independent, free and fair
election. Micro Observers are appointed for micro observing at the Polling Station
Location level and work directly under control and supervision of the General Observer.
In multi polling station buildings, each location will have one micro observer instead of
one micro observer per polling station. The micro observer can oscillate between the
polling stations within the same campus at frequent intervals. It is made absolutely clear
that in no case the micro observer will act as presiding officer or the polling officer.
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Pre-poll activities:
a. Appointment of Micro-observers :
The following category of persons can be appointed as Micro-observers:
(i) Government of India employees, not below Group C.
(ii)Employees of central public sector Undertaking, not below Group C.
b. Preparation of database of Micro-observers :
District Election officer (DEO) will prepare a database of all Government of India and
Central Public Sector Undertakings employees in the district. The database shall
contain the name, designation and organization of the employee. The database will
also have the elector details of the employee including the Assembly, Part and serial
number in the electoral roll and the EPlC number. In addition to this, the post address,
telephone number, mobile number and email ID of the Micro-observers should also
be included in the database.
c. Sharing of Micro-observer database with other districts :
There may be a situation that some districts do not have adequate number of
Government of India or Central PSU employees to be appointed as Micro-observers.
DEO of such a district shall get the database of Government of India or Central PSU
employees posted in neighboring districts, with the help of the Divisional
Commissioner, in States which have a divisional commissioner system and with the
help of CEO in other States. In case a Micro-observer has to go to another district on
poll duty, arrangement for proper stay of such Micro-observers must be made.
Similarly, arrangements for their travel from the district of their work to the district of
their poll duty must also be made by the DEO.
d. Randomization of Micro-observers:
The list of polling Stations where Micro-observers are to be appointed shall be
prepared by the DEO in consultation with the observer, depending on the sensitivity
analysis of Polling Stations and availability of Micro-observers. The available Micro
observers will then be randomized in the presence of observer, among those Polling
Stations. The conditions for randomization of Micro-observers will be the same as that
of presiding officers, viz. they shall not be posted on duty in a Polling station within
the same Assembly constituency, where they are enrolled as voters or where they are
working. All efforts should, however be made to put them on duty in the same
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Parliamentary Constituency where they are enrolled as voters, to enable them to
exercise their franchise through EDC. They shall be informed about the exact Polling
Station where they will be on duty only on the day of departure.
e. Training of Micro-observers:
Micro-observers should be given detailed training on the rules and procedures of the
entire polling process. In addition, they must also be trained on the work of
observation, which is expected of them, and the method of filling the report which
they are required to submit. There should be at least two rounds of training for Micro-
observers. They should be trained by the Observers. Illustrative training material for
the Micro-observers is available on the ECI website under the link “Training Material
at Sl. No. 14 Micro Observer”.
f. Logistics for Micro-observers:
The District Election Officer shall be responsible for providing logistics to Micro-
observers. One Nodal Officer for Micro-observers shall be appointed for each district
by the DEO. Micro observers will reach the dispatch centers on their own. From the
dispatch centers they will be sent with the polling team to the Polling Station. They
will return to the receipt centre with the polling teams. Each Micro-observer shall be
given a photo identity card by the DEO to ensure his/ her access to the Polling Stations.
g. Exercise of franchise by Micro-observers:
Micro-observers are entitled to EDC or postal ballot like any other person on poll duty.
The DEO shall send Form-12 and Form-12A to every Micro-observer along with the
appointment order. Micro-observers shall be asked to bring the completed Forms on
the first day of training. The completed forms shall be sent to the concerned Returning
Officer by the DEO. The Returning Officer shall issue EDC or postal ballot depending
on eligibility and ensure that it is delivered to the Micro-observer on the second
training day. All instructions of the Commission on Postal Ballots and EDC for
employees on poll duty shall also apply to Micro-observers.
On the day of poll:
a. Reaching the Polling Station in advance:
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The micro observer should reach the polling station at least one hour before the
commencement of the poll. If for certain reason it is not possible to reach in the morning,
he should reach in the evening of the previous day. Having reached the polling station he
should assess the preparedness for the poll.
b. Work to be done by Micro-observers on poll day:
Micro observers will do the following at the polling station –
(i) Assess the preparedness at the Polling Station.
(ii) Check the availability of Basic Minimum Facilities (BMF) at the
Polling Station and certify, before the start of Polling.
(iii) Watch the mock poll and see that it is carried out as per the
instructions of the Commission.
(iv) See that the votes in the CU are cleared after the mock poll and
before the start of actual poll and that mock poll certificate is
signed by the Presiding Officer.
(v) During the poll day he should regularly note down the important
points for his report in the format given at Annexure-2.
(vi) It is made absolutely clear that in no case the Micro observer will
act as Presiding Officer or the polling officer. His task is to observe
that the election process is being carried out in a free and fair
manner and there is no vitiation of Poll.
(vii) During the process of observation on the day of the poll, the Micro
observer shall specially observe and note: -
● Mock Poll Procedures,
● Presence of Polling Agents and observance of ECI instructions
with regards to them,
● The observance of entry pass system and access to Polling
Station,
● Proper identification of electors in accordance with ECI
guidelines,
● Identification and recording procedures for the Absentee,
Shifted and Dead voter’s list (ASD list),
● Application of indelible ink,
● Noting down particulars of electors in register Form 17-A
including the noting down of the alternate identity documents
used for identifying the voter,
● Secrecy of voting,
● Conduct of polling agents, their complaints, if any, etc.
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(viii) If the micro-observer feels that the poll is being vitiated for any reason,
he will immediately bring it to the notice of General Observer through
any means of communication available to him including mobile phone,
police wireless etc.
c. Micro-observers can be used on more than one poll day:
In case of multi-poll day elections and in case of shortage of Micro-observers, they can
be used for poll duty on more than one poll day. The convenience, safety and logistics of
movement must be taken into account while putting them on duty for more than one
poll day.
d. Micro-observers in multi-polling station locations:
In case the location at which a Micro-observer is put on duty has more than one Polling
Station, the Micro-observer shall be responsible for all the Polling Stations at that
location. There is no need to post separate Micro-observers in Polling Stations at one
location. The Micro-observer shall divide his time between Polling Stations and will visit
all the Polling Stations within the same campus at frequent intervals. He shall make it
known to the polling agents at each Polling Station that he is available in case they want
to bring anything to his notice.
e. Supervision of the work of Micro-observers:
General Observers will supervise the work of Micro-observers and shall be in close touch
with them. Micro- observers shall report to the Observer alone and not to any other
election officials.
After the poll process is over:
a.Report to be submitted by Micro-observer:
After the poll process is over, the Micro-observer will submit a report to the General
Observer in the format as enclosed at Annexure-1. He shall hand over the report to the
General Observer at the collection centre in a sealed envelope. He shall also orally brief
the General Observer on anything of importance that had happened during the day.
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General Observers will go through the report submitted by Micro-observers and can seek
any further clarifications required.
b.Honorarium to Micro-observers :
Micro-observers shall be paid an honorarium of Rs 1000/- for each Poll day of duty. This
shall be in addition to the admissible TA and DA, and the food allowance as per the norms
of the State and their parent Department. The honorarium, TA, DA and food allowance
should be paid by the Returning officer, in cash, to the Micro observers at the receipt
center itself.
c.Micro-observers to remain present at the time of scrutiny :
Micro observers’ reports shall also be taken into consideration at the time of scrutiny
after poll for taking a decision on re-poll or disciplinary action against any delinquent
polling staff. Micro-observers should remain available at the time of scrutiny, for the
General Observer to seek any clarifications, if required.
3. TRANSPORTATION
Efficient use of transport and effective route planning ensures that last minute challenges
and risks are mitigated. It is necessary not only to plan but also have fallback measures.
Advance planning is the key for ensuring mobility during election process.
3.1 Introduction
Conducting of an election is a mammoth exercise. Transportation is integral to this
process. There has been tremendous increase in the mobilization of human resources,
over the years, for augmenting the fairness in the process. This entails extra focus on the
issue of transportation.
3.2 Background
Section 160 of the RP Act is the statutory foundation that allows the State to requisition
vehicles including vessel/animal for the conduct of elections. The Deputy Commissioner
/ District Magistrate of the district has been exercising the powers under this section to
ensure the mobility during the process of elections. At least five factors are influencing
the aspect of transportation:
(1) Longer schedules or phases of elections;
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(2) Addition of activities like EEM, SVEEP;
(3) Increased deployment of CPMF;
(4) Increased mobility of poll personnel for fairness; and
(5) Enhanced awareness of franchise rights of drivers, helpers etc.
These factors make the management of transportation complex. This further gets
complicated as most districts lack scientific assessment tools to assess the need, the
availability (inside and outside the system), and the utilization. Also, long duration of
requisitioning impact the normal functioning in the government (in case of government
vehicles) and also in the market (in case of private vehicles). Hence the reluctance of
vehicle owners (including those of other departments) seems to have increased manifold.
3.3 Checklist
The ECI has issued detailed checklist for transportation in part-7 of the DEO’s check list
(2014).
a. Transport arrangements are to be made for the following:
(a) Observers
(b) Area Magistrate / Zonal Magistrate, Polling parties
(d) Sector officers, Micro Observers, Asstt. Expenditure Observer, Flying
Squads, SSTs, VSTs
(d) Police forces (State and Central)
(g) Teams for observance of Model Code of Conduct
(h) Videographers / Cameramen carrying digital cameras.
(i) Various Cells related to Election work
b.Route Chart
(i) Route Chart for every PS; copy to be given to polling party and Sector
Officer.
(ii) Route Chart must indicate the distance of last polling station from HQ;
Routes must be plotted on constituency map also.
(iii) Route chart should be most feasible and convenient
(iv) Separate route chart must be made for:
● Polling parties
● Sector Officers / Zonal Magistrates
● Micro Observers
● Police Parties
c. Arrangements
(i) Availability of Buses, Trucks, Cars, Jeeps etc., (both of private and
government) be assessed.
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(ii) Draft movement programme and ad-hoc ear-marking of vehicles.
(iii) Tentative transport programme of polling parties.
(iv) Police personnel to be deployed at PSs should be accompanied with polling
parties.
(v) Minor repair of roads / routes, if necessary, by PWD or related authorities
/ departments.
(vi) Availability of POL is to be ensured. Need of extra barrel points to be
examined.
d. Requisitioning
(i) Requisitioning of vehicles, private and Government both; under section
160 of RP Act, 1951.
(ii) Vehicles of the following kind should not be requisitioned (ECI’s No.
464/INST/2008-EPS, dt. 26.12.2008)
● Vehicles of BSNL, UPSC and education institutions
(except in unavoidable circumstances)
● Vehicles of Forest department, AIR, Doordarshan, WHO,
UNICEF and Organizations of UN.
(iii) Vehicle should be in good condition and shape and free from dirt and
smell.
(iv) As far as possible truck should not be used for polling parties.
(v) Vehicle should not be retained unnecessarily.
(vi) Check if any boats or such other means would be necessary to be
deployed, and whether any special preparations / precautions would
be required in eventuality of rains or other such events.
(vii) Have the districts’ “Disaster / Flood Contingency / Management Plans”
re-looked into / updated; and due preparations should be made in light
of the same.
e. Database
● Database to be prepared in advance; much before elections are announced. ● All the vehicle owners should be asked to furnish data about drivers /
conductors / cleaners including their enrolment details in electoral rolls. ● Preparation of District Vehicle Movement Plan by DEO shall be done
immediately on announcement of elections. ● Para 3.17 of the Handbook of Returning Officer (2014) under the heading
‘TRANSPORT FOR POLLING PARTIES’; specifies that it is expected that the RO will draw up the Vehicle Movement Plan for each polling party along with sufficient reserve.
● In the existing scheme of arrangements large variation exists on the ground. In some states it is the district authorities who are solely in control of
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management of transportation; whereas in resource scarce states, particularly in the north-east, a large number of districts have to be dependent on the centralized state authority for allocation and management of transportation. In the latter case, DEOs and CEOs both have a role to play for advance planning.
● Other than surface vehicles, helicopters, ships / boats, animals, and porters are also used in logistically-challenged states during the elections. For helicopters, the Commission places common requisitions with the Ministry of Defense for allocation of helicopters in hills state, LWE state, and islands. The deployment of other modes of mobility is planned and executed at the district and the state level based on the requirement.
4. RECRUITMENT
The ECIs standing directions are that all vacancies of employees / officials / police staff,
who shall be involved in the conduct of elections, should be filled up well in advance
before the General Election. However, all vacancies cannot be filled by transfers;
recruitment will be required in many cases. To fill gaps in recruitment for those
manpower resources that are to be utilized in general elections, action will be required
to be taken well in advance. Preferably all recruitments should be completed at least one
year before general elections, to give enough time gaps for recruits to undergo necessary
training.
The manpower that acts as a non-CPF measure and therefore a force multiplier can be
categorized as below:
● State Police Forces
● State Armed Police Forces
● Home Guards
● Industrial Security Force
● Social Forestry Guards
● Bus drivers form State Road Transport Corporations
● Inspectors for Customs and Central Excise Department (though as a last
resort)
It is essential that the CEO engage with the concerned departments at least a year in
advance to review the position and request for recruitment to fill gaps.
5. CAPACITY BUILDING OF SECURITY PERSONNEL
The police machinery plays a key role in the conduct of elections in a peaceful and orderly
manner. But a peaceful election free from violence need not necessarily be a free and
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fair election. Correct and unbiased implementation of the election laws and Election
Commission’s directions is necessary. That presupposes a familiarity with the laws and
instructions and can come about only through proper and periodic training. Several
directions are issued regarding training of police personnel associated with conduct of
elections, by the Commission; they are consolidated here with additional aspects.
a.At State/Police HQ level:
● State Nodal Officer for Training: The Sate shall appoint a senior officer, not below
the rank of IGP, preferably the ADGP/IG Training; as the Nodal Officer at State
level to arrange, oversee, prepare content, monitor and report the training of the
state police forces. The senior Police officer who would function as nodal officer
should remain in touch with the CEO on day-to-day basis; so that the
Commission’s instructions from time to time are followed up and implemented.
● Levels of training: Training will be organized at two levels: at the state level at
Police HQs; and at the District level, which included Block/Tehsil/Taluka level.
● Trainees in state police: In a general election, all members of the State Police
Force from top to bottom shall undergo relevant training.
● Other trainees: Similarly, all members of the State Armed Police and Home
Guards shall also be given relevant training.
● Content: Standardized, high quality and need- based training should be imparted;
this should include giving of handbooks, and other training material such as
pocket books, Flyers, etc.
● Checklists: A checklist will be prepared/ updated for the key officials associated
with the conduct of election indicating their duties and responsibilities in the light
of instructions being issued from the Election Commission of India from time to
time.
● Reference material: Besides, reference material should also be prepared
indicating the relevant Sections of various Acts that are relevant during the course
of elections. It should indicate the nature of offence and the relevant Sections
whether cognizable or non-cognizable and the action to be taken in case of any
violation and should be made available to all.
● Coordination: Proper coordination between the CEO’s office and the police
headquarters is to be established. Any instruction connected with maintenance
of law and order preparation of State/district level deployment plan of CPF etc.,
the guidelines should be immediately brought to the notice of police
headquarters.
b. At district level
1.Incorporating recent instructions of ECI in Training module:
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The DEO-cum-District Collector/DM will hold a meeting with SP and senior police officials
and apprise them of all the recent instructions of the ECI that must be incorporated for
training at the relevant levels. The attention should be drawn to Commission’s
instructions regarding maintenance of law and order, execution of non-boilable warrants,
seizure of illegal arms, surrender of licensed weapons, enforcement of excise law, action
against bootleggers, restriction on use of vehicles, instruction regarding prior permission
for campaign vehicles, ban on use of any vehicle for transporting voters on the day of poll
etc.
2.Training on enforcement of MCC:
The enforcement of MCC is the joint responsibility of the district electoral administration
as well as the police administration. Clear accountability should be spelt out when the
district administration / RO forms MCC squads/teams. There should be a specific
accountability for the police officials at the Thana level.
3.Training regarding Complaint Monitoring System in the district:
This should also be introduced for tracking election related violence and offence; and
training must take care of this aspect.
4.Training on analysis of offence history of the polls:
The DEO and SP will review the status of the election related cases during the previous
election and expedite follow up action in this regard. Police personnel must be trained to
collect such information and analyse it and take follow up action.
5.Training on concept of vulnerability mapping and identification of critical polling
station and critical clusters is very crucial:
● The Commission has introduced a new concept of vulnerability
mapping and specific process for identifying the critical polling stations
and critical clusters (refer circular no. 464/INST/2008 dt. 24.10.08).
The conventional method of identifying hyper
sensitive/sensitive/normal polling stations adopts the law and order
and past events of violence as the major criteria. However, the new
system of identifying critical polling stations and critical clusters gives
lots of importance for the factors associated with free and fair election
process
● Training to be organized by the district administration (DEO and SP)
for police officials; it should be planned in advance; and proper
training material should be prepared, preferably at the central level,
that can be augmented at the district level. Copies of the relevant
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circulars of the ECI and extracts of relevant law should also be
circulated in the training programme.
● As the vulnerability mapping gives valid inputs for identification of
critical polling stations and critical clusters, the entire concept should
be explained to the cutting edge police officials properly by the DEO
and SP
6.Training on various aspects of misuse of money power and election expenditure;
some essential inputs:
● The misuse of money power has emerged as a big challenge to the free
and fair election process. Feedback has been received about
candidates indulging in various methods to induce the voters which
includes outright payment of cash that amounts to bribery and other
forms of inducements such as supply of liquor, food packets, holding
of lunch and dinner parties in the name of “birthdays” and other
“anniversaries” to give election related inducement, distribution of
gifts in the name of mass-wedding and so on. During the election
process, a close tracking by each and every Thana officer of such
payments and other forms of inducement at their level is essential.
● The field level election machinery/police administration should work
as a team to track such types of malpractices. Whenever such event
takes place, video coverage of such events shall be ensured so that
sufficient documentary evidence is created.
● It is noticed that liquor is transported even from the far away States to
the election going States. Proper checking at the inter-State border
and commercial tax check post will be helpful in tracking such
transportation of liquor. Whenever a consignment of such liquor is
intercepted, proper investigation should follow to trace the origin of
such supply and the destination.
● A proper investigation is essential to establish linkage between the
election process and the supply of such inducements. Media should be
briefed whenever such consignments are seized. A proper orientation
about this should be given to the police officials during training
programmes.
● Information on the Commission’s instructions about ceiling for
expenditure in election, the details of Section 77 of R.P Act regarding
the list of star campaigners to be submitted by the recognized party
and the implications therein should be explained to the police officials.
● Section 171 H which deals with the illegal payment by any person for
furthering interest of a candidate should be explained to the police
officials during training programme.
●
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7.Training on issues related to defacement of Public properties
● The Election Commission has been issuing a detailed instructions
regarding prevention of Defacement of Public Property and other
connected issues. In this regard, the latest Commission’s instructions
vide no. 3/7/2008/JS II dated 07.10.08 needs to be properly studied.
● The steps to be taken to implement the Commission’s order in the
context of prevailing law if any, applicable to the State should be
properly explained.
● The methodology to be adopted for enforcement of Commission’s
instruction should be discussed in the training programme and
explained to the field officials.
8. Training on issues related to discipline during nomination process Commission has
issued instructions to ensure proper discipline during the process of filing of
nomination.
● During the filing of nomination, the candidate can be accompanied by
only the four other persons (refer 464/inst/2007/PS I dated 09.02.07).
This restriction by and large is being strictly followed. However, there
are instances in which these instructions are not followed resulting in
chaotic situation inside the RO’s room.
● In order to ensure that proper discipline is maintained and the
Commission’s instructions regarding restriction of persons, a nodal
officer needs to be identified and trained by the SP of the district; who
would be responsible for sanitizing the area of RO’s premises and
ensure that only the permitted number of people are allowed to go
inside the RO’s room and the entire proceeding should be video
graphed.
● Duties and responsibilities of the nodal officer in this regard, should be
properly explained by the SP to the nodal officer during training
session.
● Publication of election pamphlets in violation of Section 177 A of the
RP Act, 1951 needs close tracking and monitoring.
9. Training on aspects that impact upon communal harmony
● The police administration should remain vigilant about circulation of
campaign material which can affect the communal harmony. A strict
vigil needs to be kept.
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● The provisions of electoral law as well as model code of conduct in this
regard shall be explained to the police officials during training
programme.
10. Training about Poll day and counting day duties
● An orientation should be given to the police officials about the polling
process on the poll day and other connected issues and about the duties
and responsibilities of various police officials on poll day with reference to
security at polling station, patrolling of the catchments areas, tracking of
areas identified as vulnerable, transportation of polled EVMs, sealing and
guarding of strong rooms and the counting day arrangements.
12. Training on how to coordinate with the CPF
● Whenever CPF are deployed in a district/constituency, a proper
coordination has to be ensured so that the deployment of CPF becomes
more effective and functional. Hence, a proper orientation needs to be
given about the role of CPF vis-à-vis State police/local police and other
coordination responsibilities.
● The district should also prepare material to be given to the CPF, that is: list
of vulnerable pockets. Terrain and weather of the district, list of PS and
locations, communication plan, do’s and don’ts for the CPF, plan for pre-
poll deployment, etc.
13. Directory of electoral administration
● A directory of key functionaries of the electoral administration both
civil and police should be prepared indicating the names, designation,
landline and mobile numbers for better coordination between civil &
police authorities.
● This directory should be handed over during training to all key
personnel; and also to the senior CPF personnel
6. DEPLOYMENT PLANNING
● It should be made profoundly clear, much ahead of the announcement of the poll
schedule, that the election machinery of the state shall ensure a peaceful election
in the State where the electorate could come forward to exercise their right to
vote without fear or favor.
● Keeping in view all the challenges, required number of meetings should be held
with the District election machinery and Police department to inject confidence
in the public, political parties and the mass media to ensure violence-free
election.
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● A broad deployment plan should be prepared at the time of announcement; and
then it should be detailed at least 15 days before the poll day in consultation with
the Observer.
● One of the significant measures is to deploy central forces in vulnerable areas,
much ahead of the election with an elaborate day to day deployment plan.
● For daily Law and Order reporting from Districts, a portal (CEO Law and Order
application portal) should be created and used during whole period of Model
Code of Conduct.
● As soon as the Criticality Assessment and Vulnerability Mapping exercises are
over, the deployment plan inclusive of all the available Police Forces (including
State Reserve Police, Local Police, Armed-Unarmed Home Guards, Industrial
Security Force, Gram Rakshak Dal etc.) should clearly spell out Static and Mobile
deployment. This path-breaking measure can have its immediate impact in
ensuring that political clashes prior to poll can be significantly curbed and the
confidence of the voters in the ability of the Election Machinery in conducting free
and fair polls is greatly boosted.
● Senior police officers could also be deployed in all the sensitive districts to help
the SPs but without interfering with the regular chain of command. Advanced and
effective Deployment Planning in complete confidentiality and with elements of
surprise (such as police randomization) is the key to success.
● The Force Deployment – Planning and Execution Manual may be referred to for
more detail.
7. PRE-POLL DEPLOYMENT
● Pre-poll deployment must be very carefully planned, both for the state police
forces as well as for the CAPF.
● State police forces are responsible for maintaining general law and order; thus
their pre-poll deployment shall begin from date of announcement of polls.
● The most important contributing factor for the peaceful polls is the availability of
ample number of Central Armed Police Forces, both for the poll duty as well as
for conducting area domination exercises, route marches and other confidence
building measures, which can surely lead to a significant fall in the incidences of
violence and also ensure that people could cast their vote fearlessly.
● In order to curb pre-poll violence, the deployment of Central Armed Police Force
(CAPF) well in advance of the polls is necessary, which should be strictly deployed
for area domination and conducting route marches and other confidence building
measures.
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● Effective pre-poll utilization of state police and CAPF, if any, is based on advanced
planning.
● Complaints about obstructions/threat on poll day shall be enquired into
immediately.
● Special drive to be undertaken to compile the list of persons who are reported to
have indulged in the offences during the election period. Report must also be
sought from the CPF.
● Essential State police pre-poll deployment:
(a) Flying Squads (FS):
● There shall be three or more dedicated Flying Squads under
each Assembly Constituency/Segment for tracking illegal
cash transactions or any distribution of liquor or any other
items suspected of being used or bribing the voters.
● The Flying Squads will consist of one Senior Executive
Magistrate as the Head of the Team, one Senior Police
Officer of the Police Station, one videographer and 3 to 4
armed police personnel.
● They are to be provided with a dedicated vehicle, mobile
phone, a video camera and necessary Panchnama
documents required for seizure of cash or goods.
(b) QRTs (Quick Response/Reaction Teams):
● In the aftermath of the recent terror attacks, every Police
Force has constituted an elite “Quick Response/Reaction
Team” (QRT) comprising commandos, specially and
rigorously trained i.e. at par with the National Security
Guards (NSG) and armed with sophisticated weapons,
specially designed vehicles and ultra-modern
communication sets to counter any terrorist attack
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● Fanning across each of the districts of the State, QRT
commandos are available who have special training to
tackle any hostage situation or terror attacks in public
places like markets, multiplexes or shopping malls.
● They should be deployed during the election to help the
local police/CAPF.
(c) Static Surveillance Team (SST):
● There shall be three or more surveillance teams under each
Assembly Constituency with one Magistrate and three or
four police personnel in each team and a videographer
each.
● This team shall put check posts and keep watch on
movement of large quantities of cash, illegal liquor, any
suspicious item or arms being carried in their area.
● The entire process of checking shall be videographed.
● CPF area domination:
● Briefing is to be given to CPF personnel about challenges of area; briefing
by SHO if deployed in a Police Station; and by DM and SP if it is in a district.
● Briefing also to be given to CPF personnel by Observer and RO about their
duties, structure, functioning of forces etc.
● Wherever CPF arrives in advance for area domination, special attention
shall be given to vulnerable locations.
● The Commanders / Assistant Commanders of the CPF shall be given a list
of vulnerable locations.
● CPF will be used for the purpose of area domination conducting flag march
(should be more on foot), confidence building among electors, checking
of border etc., till 2 days before the poll.
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● CPF to conduct Patrolling duty on assigned routes (election sectors)
covering a fixed cluster of polling stations. CPF mobile patrolling party will
be provided sketch map indicating PS locations, their sensitive gradations,
name and contact numbers of SO/RO/Observer etc.
● On poll day CPF not to be kept as strike reserve etc.
● CPF to conduct Patrolling duty as flying squad on poll day in a defined area
with surprise element. When the CPF is assigned duty in a “flying squad”
mode, it shall be accompanied by a Zonal Magistrate.
8. GEOGRAPHY, TERRAIN, WEATHER
Good knowledge of Geography and efficient deployment of resources in accordance of
geography, weather and terrain (such as SAT phones, wireless, boats, etc.) is a good non-
CAPF measure. The preparation of District Election Management Plan should invariably
include this in the District Profile and the overall poll day management plan.
9. COMMUNICATION PLAN
Background:
Multiplicity of activities at National, State, District and polling station level is an important
feature of general elections in India. Therefore, robust and thoroughly tested
communication plan will help in many ways. It should be prepared well in advance. Right
from drawing up the State and District Election Management Plan (SEMP and DEMP), up
to counting and result declaration; tracking and monitoring of these multifarious
activities is an important task for all election offices. This is primarily achieved by
establishing reliable and secure communication linkages between the various
stakeholders. The importance of strategic communication planning in elections cannot
be undermined. It is at the heart of successful election planning and management.
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Appointment of state level Nodal Officer Communications:
Every state has a position in the police forces called ADG / IG Communications who is
responsible for procuring and managing the communication system in State police. This
officer may be officially appointed as the Nodal Officer Communication for each state
and should be responsible for assessing requirements and providing communication
systems at each PS and also for coordinating with neighboring states and the center for
procurement, etc. This officer should be appointed as Nodal at least 6-8 months prior to
the due date of elections, so that he has enough time for also issuing purchase orders
wherever necessary.
Levels of Communication:
The following levels of communication (which includes the stakeholders who use them)
are to be established and made operational, during elections:
a. National level – ECI, MHA, MOD, BSNL, Election Observers.
b. State Level – CEO, Chief Secretary, Police Headquarter, Nodal Officers
(Police, Expenditure Monitoring, MCC etc.) Election candidates, Election
Observers.
c. District level – District Election Officers, Superintendents of Police,
Returning Officer/ Asstt. Returning Officers, Election Observers, Election
candidates.
d. Sub Division and Tehsil level – Asst. Returning Officers, field level staff of
Revenue and police departments, Election candidates.
e. Polling Station Level – Sector/Zonal Magistrates, Security Forces deployed,
Polling personnel, BLOs, Polling agents.
Communication network is used during the election period for the following purposes:
A. Pre poll period – this is the period when planning for polls takes place;
and communication network is required for the following tasks:
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1. Information about physical status of polling stations – by Sector
officers and District Revenue Officers to the District and State Level.
2. Information regarding available means of communicating the progress
of poll to district control rooms on poll day from the polling stations.
3. Information regarding possible routes of transportation of polling
parties to and from the polling stations.
4. Input on the Criticality status of polling area by the local police.
5. Sector Officers’ assessment of Vulnerability of polling stations in his
sector.
6. Draft plan for Deployment of Security Forces made polling station
wise.
7. Tracking of election expenditure of candidates, movement of illicit
liquor and cash and general law and order in the field.
8. Receipt of election related complaints, physical verification and
redressal of the same.
9. Information regarding availability of human resources, to be deployed
for various election related work.
10. Information on the dispatch of polling parties to polling stations.
B. Poll Day – for conduct of elections reliable communication network is
required for:
1. Reporting of mock poll and start of poll.
2. Reporting on polling percentage at regular intervals.
3. Reporting any emergency situation in the polling station – EVM
breakdown, security threat, polling personnel welfare etc. and
respond without delay.
4. Monitoring the Law and Order situation, throughout the day and
taking appropriate security measures, wherever found necessary.
5. Monitoring election expenditure and compliance of MCC on poll day
for reporting at appropriate levels.
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C. Post poll period – in the follow up of polling process a good
communication network serves the following purposes:
1. Tracking the polling parties on their way back to the headquarters.
2. Reporting on the final status of men and material, after the
completion of poll.
3. Sending statutory reports to the state and ECI, after the close of
poll.
4. Monitoring and reporting of the status of strong rooms still
counting.
D. Counting Day: A secure and reliable communication system is required
on the counting day for:
1. Reporting the results of counting as prescribed by ECI.
2. Reporting by Election Observers to ECI.
3. Tracking of the progress of counting in the counting halls.
4. Monitoring Law and Order situation on the counting day and taking
appropriate measures.
The flow of information through the communication channels is as follows:
a. In ascending order, upwards:
● Statutory reports (LOR, MCC, Defacement of property,
Expenditure monitoring, Nomination and Affidavits of Candidates,
Result of counting of votes etc.)
● Deployment plans (Polling personnel/ Security Personnel),
Transportation plans, Training plans, Counting plans etc.
● Analytical reports (Vulnerability, Criticality and physical condition
of polling stations).
● Daily reports (permission granted for rallies, meetings, election
vehicles, loudspeakers etc., EPIC distribution, photo voter slip
distribution etc.).
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● Compliance reports (FLC, commissioning of EVMs, meetings with
candidates etc.) Poll day reporting
b. In descending order, downwards:
● Instructions, directions, notifications etc.
c. In composite order:
● Transmission of election related complaints from higher levels to
lower levels and sending of reports regarding the same by lower
levels to higher ones.
d. Lateral flow of information:
● A lot of election related information is made available to the public
at large, through internet (official websites), public display in
election offices and mass media – details of contesting candidates,
permissions granted for electioneering, counting results, abstracts
of election expenditure of candidates etc.
Means of communication, deployed in elections:
a. Technological means:
● Landline phones
● Mobile phones
● Wireless sets
● Satellite phones
● Internet
● Walky-talky sets
b. Non Technological means:
● Sector/Zonal magistrates
● Runners
● Motorcyclists/cyclists
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10. TAPPING HUMAN RESOURCES FROM VARIOUS DEPARTMENTS OF STATE AND
CENTRAL GOVERNMENT.
This should be done to enable identifying of additional manpower resources that can be
tapped from various departments of the state and central government. Due to limited
availability of Central Armed Police Force and State Police, it becomes necessary to
augment police strength by drawing from related agencies such as Social Forestry Guards,
Drivers of State Road Transport Corporation, Gram Rakshak Dal, NSS Volunteers, NCC
Cadets, Inspectors from Custom and Central Excises Department etc.
(1) Newly recruited police :
A special training may be given to newly recruited police force to make
them suitable for deployment.
(2) Use of Bus Drivers of State Road Transport Corporation :
Bus Drivers may be mobilized two or three days before the poll day and
may be used in place of regular police drivers for police vehicles. The
police personnel so spared may be deployed at polling stations and
ancillary parties for maintenance of Law and Order.
(3) Use of Forest Guards :
Forest Guards from Social Forestry Division of Forest Department may be
trained and deployed at par with police constables.
(4) Use of Armed Home Guards :
A large number of armed police personnel that are deployed at currency
chests / Government Treasuries etc. may be replaced by armed Home
Guards two to three days before the poll. Armed police personnel so
relieved may be utilized for maintenance of Law and Order.
(5) Use of Industrial Security Force :
Coys of State Reserved Police Force which are deployed for the industrial
security with ONGC or such other Institute may be replaced by deploying
Industrial Security Force personnel.
(6) Use of private security guards :
Coys deployed for the security of large private refineries etc. (situated in
the State if any) may be replaced by deploying private security guards and
coys so relieved may be utilized for maintenance of Law and Order.
(7) Use of NSS Volunteers / NCC Cadets :
They may be utilized for the purpose of maintenance of queues at
polling station.
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(8) Use of Inspectors from the Customs and Central Excise Department:
This maybe done only as a last resort; that is, if no other manpower is
available. They can be made in-charge of a group of Polling Stations and
used in mobiles.
11. MANPOWER AUDIT
A detailed man power audit may be carried out four to six months in advance and
maximum man power may be mobilized. This is to be done in the following manners
among others:
● Assessing requirement of every category of election functionary
● Preparing a robust database
● By planning leave period,
● Recalling people from deputation
● Recalling from temporary attachment
● Planning long term training so as not to impact on polls
● Reducing the administrative / support staff in State Reserve Police Force.
(1) Requirement to be assessed:
Deployment of Staff in connection with conduct of election – following categories of
officers/officials will be required in various stages –
(a) Presiding Officers and Polling Officers
(b) Micro observers
(c) Sector Officers
(d) Area/Sector Magistrates
(e) Asstt. Election Observer and other teams to be engaged in Election
Expenditure Monitoring.
(f) Control Room/Help Line Staff
(g) EVM Ground Staff
(h) Officers/Officials to be engaged in Dispersal Counters, Facilitation
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Centers & Receipt Centers.
(i) Assembly Level Master Trainers for imparting training to various
categories of officials.
(j) Officers/Staff required for various election cells.
(k) Police Personnel
(l) Counting Supervisors and Assistants
(m) Additional Counting Staff
(n) Voter Assistance Booth Staff
(o) Digital/Video camera Supervisors
(p) Booth Level Officers
(2) Who can be deployed:
Staff of following authorities can be deployed –
(a) Central Government and State Government
(b) Local Authority
(c ) University established or incorporated by/ under a Central / State
Govt. Act.
(d) Government Company
(e) Institution, Concern or Undertaking which is established by/under
Central/State Act or which is controlled/ financed wholly/substantially by
funds provided directly/ indirectly by Central/State Govt.
(3) Database to be prepared:
District Database of all employees of Central Govt./State Govt., Central/State PSUs, Govt.
Companies shall be prepared.
(a) Software – Supplied by CEO Office.
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(b) Particulars like name, sex, Home AC, work place AC, designation, office,
pay scale, phone No., and Name & No. of AC, where he is enrolled, Part No.,
voter serial No. etc.
(c) Database to be comprehensive – Every employee of all deptts. of
Central/State Govt. and Central/State PSUs must be covered in the database,
irrespective of the fact that an employee will be assigned the election duty or
not.
(d) While deputing the staff on election duty ensure that there should not be
too much of strain on a particular department/ organization.
(e ) Bank employees only in contingency.
(4) Not to be deployed in election duties:
(i) Officials working in CBI, IB and RAW and personnel working in essential
services.
(ii) Contractual workers or Anganwadi workers not to be engaged in elections.
(iii) Sr. officers of Indian Forest Service, Veterinary Doctors and Compounders,
Cattle Extension Officers, Medical Practitioners, Territorial staff of Wild
Life/Sanctuary Deptt., Staff of AIR and Doordarshan.
(iv) Staff of commercial bank in rural area, where the bank has only one
employee.
(v) Operational staff of BSNL, UPSC and educational institutions (except in
unavoidable circumstances)
(vi) Officials against whom ECI recommended disciplinary action or who have
been charged for lapses in election related duties.
(vii) Officials against whom criminal case is pending.
(viii) Physically challenged persons in polling duty
(ix) Where female employees are engaged in polling duty guidelines of ECI be
followed.
(5) Grouping and formation of polling party:
(i) PrO and POs to be classified on the basis of pay, post and rank.
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(ii) PrOs should be Gazetted Officers and failing that officials who are working
in supervisory capacity should be deployed.
(iii) Proper mix up of personnel. Two officials of the same group/category or
from same deptt./office should not be put together
(iv) Certificate regarding proper mix up.
(v) One PrO + three POs in a polling party. In case of simultaneous elections
for Vidhan Sabha & Lok Sabha the norms is One PrO + 5 POs.
(vi) Where electors exceed 1200 one extra PO (ECI No. 464/INST/2008
/EPS dt. 18.12.2008).
(vii) Persons not to be deployed in home AC or AC wherein he is posted.
(viii) Where electors are small in numbers one PrO + 2 PO may be sufficient.
(6) Central Government Employees:
(i) Central employees need not be deployed as PrO and PO. To be kept for
Micro Observer duties.
(ii) Asstt. Expenditure Observer are also to be deployed from Gr. B officers of
Income Tax Deptt., Central Excise, Audit & Accounts or Central PSUs (if
available)
(iii) Separate data base for Gr. A, B, C employee of Central Govt.
(iv) The Gazetted officers/officials of Central Govt. and Central Govt. PSUs be
identified as Micro Observers, which will be deployed randomly after
consultation of Observer.
(v) One Additional Counting Staff drawn from Central Govt./PSUs of Central
Govt., will be deployed for each counting table.
(7) Micro Observers/Election Volunteers:
Following categories of personnel can be considered for use as Micro Observers/election
volunteers in election management (ECI No. 464/INST/ 2008/EPS dt. 10.12.2008) –
(i) Serving GOI officials (Not in Home AC)
(ii) Retd. GOI officials and State Govt. officials within district (not in Home AC)
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(iii) Members of NSS and Bharat Scouts.
(iv) Serving State Govt. officials from other states.
(v) Sr. Dn. members of NCC
(vi) Individual volunteers selected by ECI
(8) Assistant Expenditure Observer & other teams for Expenditure Monitoring:
(i) AEOs to be appointed from the date of announcement by DEO well before
announcement of elections programme and to start work.
(ii) Flying Squads and Static Surveillance Teams
(iii) Video Surveillance Teams & Video Viewing Teams
(iv) Accounting Teams
(v) Liquor Monitoring Team
(vi) Election Expenditure Monitoring Cell
(vii) Complaint Monitoring Cell & Call Centre
(9) Engagement of Child Labour in Election related activities:
(ECI No. 464/INST/2013-EPS dt. 02.05.2013)
(i) Children (below 14 years) not to be engaged for any work connected with
the election process like campaigning, carrying campaigning materials etc.
(ii) Penalty under Child Labour (Prohibition and Regulation) Act, 1986.
12. WELL- EQUIPPED POLICE FORCES
● It shall be the duty of the State Nodal officer for Law and Order to effectively
equip the police forces. Before elections are announced, the IG, Law and Order
shall look after this.
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● Equipping the forces includes the following, (illustrative):
o Equipment,
o Transport,
o Refresher Training
o Self-Study Material
o Uniform Articles
● Equipping shall be planned and undertaken not only for state police, state armed
battalions, but also for Home Guards and Gram Rakshak Dal /Sagar Rakshak Dal.
● A large number of such units may be revived by providing uniform articles and
refresher training.
● This will require advanced planning at least one year before hand and procured
accordingly, if need be.
13. ACTIVE CALL CENTERS, COMPLAINT CELLS, AND CONTROL ROOMS
Call Centers: Wide publicity may be given to ECI helpline number. A press release
informing the general public may be issued on the day of poll by the CEO.
Control Rooms: Establishing Control rooms at District and State level and wide publicity
of phone numbers of key election officers are also effective measures.
14. INTER-STATE CLUSTER FOR SHARING OF STATE POLICE MANPOWER
Since scheduling elections is a very force dependent process, it is extremely important to
optimize the utilization of state police forces. In non-LWE affected areas, clusters of
states should be formed for sharing or pooling the state police resources and manpower
in a predetermined manner. It might be eventually possible in such states to conduct
elections entirely in the absence of CPMF if such sharing is done.
For more details, please refer to the Force Deployment – Planning and Execution Manual.
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15. MOTIVATION AND WELFARE OF POLICE FORCES
Mobilization of forces and conducting the election is a daunting task and a major challenge for the police and the district administration. Pro-active intervention by the district police and the district administration through various initiatives to raise the morale of the forces can help reduce the stress level of the Security Forces.
Following are some of the measures which can motivate the Forces:
● A security audit can be carried out which can help to place in demand the quantum of forces required for the elections, as lack of adequate force leads to extended duty hours which results in fatigue and frustration among the Police forces.
● Proper Pre-induction training is to be imparted, to ensure that the security forces mobilized from outside perform their task without any fault; and also so that they familiarize themselves with the terrain, culture and custom as well as history sheeters, trouble mongers, local criminals and their ideology & tactics.
● All the forces should be briefed and sensitized well in advance on the
precautionary measures and should be instructed to observe it in
letter and spirit.
● Mandatory and personal briefing by DEO-cum-DM and SSP/SP of the
district forces is a huge motivating factor. The teams should be briefed on
routes and other aspects such as patrolling the periphery of the booth,
providing security to the voters and the polling officials and escorting them
safely after the election.
● Route maps are to be prepared before one month taking into consideration the location of polling booths and intensity of anti-social activities with grid reference and be made available to all the operational parties.
● Case study method can be used, photographs, video and films can be
displayed and observed, various case studies can be discussed to
avoid any untoward incidents.
● Sufficient time gap between different phases of poll.
● Participative decision making – coordination meetings at State/
district level.
● Every CAPF team should be provided with a representative of the local
Police from the time of their induction till the completion of electoral
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process so that they could do their duty well because of their
knowledge of terrain and local language.
● Effective role of Railways and IRCTC in taking care of the forces is a motivator.
● Helicopter services can be used to drop the security personnel and the polling officials in the booths located at inaccessible areas. This helps them conserve energy for poll day deployment.
● Effective use of modern technology should be done and the security forces must be briefed about the fact that the district administration is in a position to respond very speedily to any untoward incident. To monitor all the developments on the poll day a control room is to be setup at the district Head Quarters with VHF, Mobile Phones and telephone facilities. The control room has to be made functional 24x7 from pre-electoral process to the completion of electoral process.
● Preparation of pre/during/post-poll daily movement plan for CPF
helps them get organised swiftly leading to less stress. Operational
plans are to be chalked out well in advance and should be personally
supervised by the SP.
● Exigency plans such as evacuation of wounded in case of an
encounter, replacement of EVMs in case of destruction and
reinforcement of forces in case of any emergency are to be prepared
well in advance and all the resources are to be put in place. All these
must be shared with the forces.
● Safe return of the forces to their respective base camps is to be ensured.
● Recognition by ECI for good work and good recoveries.
Following measures for the welfare of forces also contribute to motivating forces:
● The Commission desires that an officer of the rank of Inspector General of Police in state Govt. in each & every state may be appointed as Nodal Officer with immediate effect to look into the matter of CPF facilities like accommodation, Logistic, welfare measures, compensation/insurance, packed lunch or payment for refreshment charges etc.
● Every District must appoint a District level Nodal Officer for Welfare,
not below the rank of Deputy SP; and his contact details must be
circulated to all members of the state and central police forces who
are deployed for polls.
● Provision for Insurance, Proper medical cover earmarking of super
specialty hospitals, cashless Medical treatment, in case of evacuation,
Air ambulance, helicopter support etc. for all policemen on election
duty should be ensured.
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● Enhancement of medical facilities in the areas with deployment of
more Doctors from other parts of the state should also be ensured.
● Essential medicines to be kept in sufficient quantity at centralized
holding area so that requisite dose is administered to each individual
under supervision of the medical officer of local unit.
● Arrangement with Hospitals for Cashless Treatment Specially for super
specialty treatment should be given in advance so that there is no
confusion about where the patient is required to be taken after
medical evacuation.
● Distribution of food packets should be planned in advance.
● Proper accommodations and logistics support. ● Visit of Senior Officials for monitoring the facilities provided to CPF at
the place of accommodations in the district. ● Timely revision of various orders such as ex-gratia compensation,
uniformity in remuneration. ● All the departments of the state government at the district level
should be instructed to facilitate the forces from their side for the
smooth conduct of elections.
● It has been often brought to notice that the forces deployed are not
defrayed honorarium as per instructions of the commission. It will be
desirable that the nominal rolls of all the forces should be acquired
before the dispatch of the polling parties so that the exact amount is
disbursed in time.
16. THE ROLE OF MEDIA AS A FORCE MULTIPLIER
● Commission has always found media as an important ally in election
management. Hence, in conduct of election, an efficient structure for information
dissemination to media has been created at the Commission, State and District
levels.
● Media can play a positive and pro-active role in supplementing election
management in delivery of a free, fair, transparent, peaceful and participative
election.
● To enable Media as a force multiplier, ensure timely and due access to election
related data and information to media.
● Apart from this, designing and producing/procuring various materials
(handbooks, pamphlets, posters, TV spots, radio jingles, documentary films,
newspaper ads etc.) for education of candidates, political parties, media, citizens/
voters etc. is also vital.
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● A proactive information campaign outlining the role of security forces will go a
long way in building confidence in voters and also keeping high the motivation
levels of the men who work under trying circumstances.
● In order to ensure that the exercise of conduct of elections is successful, a well-
coordinated voters’ education campaign is conducted in cooperation with local
media institutions aimed at increasing the voters’ turnout.
● The second objective of media campaigns is to guarantee that all eligible voters
understand and participate in the electoral processes.
● The paramount lesson that the election management body can learn from the
previous elections is to treat the media as a key partner and not a rival in the
promotion of democracy through elections.
● Authority Letters will have to be issued to all accredited Media for the polling day
and the day of counting.
● Further, engagement of the available IT resource in order to inform and motivate
an internet savvy generation and the young mobile users can also act as a force-
multiplier.
● Folk Dance, Festivals, Fairs/Fun Fairs, Films, TV, Radio including local FM channels,
youth and sports icons can be used to promote the culture of voting in an ethical
manner. Identify the existing communication and media infrastructure available
in your area, their utilization, reach and impact. Select the most cost effective
media to reach the target audience at the shortest possible time-frame with the
maximum impact.
● Smooth coordination with Media personnel and other agencies responsible for
conducting the election is essential.
CHECKLIST FOR IMPLEMENTING FORCE MULTIPLIERS:
To plan for the above non- CAPF measures a checklist is given below with suggested
timelines:
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CHECKLIST WITH SUGGESTED TIMELINES
No
.
Activity
Recommended
Action to be Taken Start Date End Date
1 USE OF TECHNOLOGY
1.1 Webcasting Identification of locations
for webcasting
15 Days before
the Poll
2 Days
before the
Poll
Setting up of webcasting at
PS
7 Days before
the Poll
1 Day before
the Poll
Preparation of the CEO
website for webcasting
15 Days before
the Poll
2 Days
before the
Poll
Checking/Trial of the
webcasting preparation
3 Days before
the Poll
2 Days
before the
Poll
Additional staff for
webcasting (borrowing of
IT staff)
15 Days before
the Poll
3 Days
before the
Poll
Training of Officers & IT
staff
15 Days before
the Poll
3 Days
before the
Poll
Recording in case of
webcasting
Day of Poll Counting
Day
If webcasting is to be made
available in public domain
Start of polls Immediately
after the Poll
process is
over.
1.2
&
1.3
Use of Video
Cameras, Still
Cameras & CCTV
Inventory of Cameras &
Videographers/
photographers
Prior to
announcement
of elections
15 days
before the
Poll
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Placing the Camera 1 Day before
the Poll
Poll Day
Training of the
Videographers/
photographers
15 Days before
the Poll
5 Days
before the
Poll
Recording by camera Start of polls Immediately
after the Poll
process is
over.
Logistics for
Videographers/
photographers
1 Day before
the Poll
Poll Day
Retention of video
recording/still photos
Poll Day Up to the
time-limit of
filing the EP
or up to the
disposal of
EP
Copies of recording/photos At the
Receiving
center
Immediately
after the Poll
process is
over.
1.4 SMS Monitoring Preparation of database of
names of BLOs/Sector
Officers
5-6 months
before the Poll
1 month
before the
Poll
Appointment of Nodal
Officer
1 month
before the Poll
15 days
before the
Poll
Inviting tenders from the
service providers
for service/sim cards
4 months
before the Poll
1 month
before the
Poll
Obtaining licensed
software
2 months
before the Poll
1 month
before the
Poll
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Procurement of sim cards 15 days before
the Poll
7 days
before the
Poll
Distribution of sim-cards to
election officials
5 days before
the Poll
2 days
before the
Poll
Preparation of database of
names with contact
numbers of BLOs/Sector
Officers
15 days before
the Poll
7 days
before the
Poll
Formation of team of
programmers/IT experts.
15 days before
the Poll
2 days
before the
Poll
Training to be imparted to
BLOs/Supervisors
1 month
before the Poll
15 days
before the
Poll
Validation of sim
card/mobile numbers
1-2 days
before Poll
-
Alternative arrangements
for covering shadow areas
15 days before
the Poll
5 days
before the
Poll
2 NON CAPF MEASURES AT POLLING STATION – MICRO-OBSERVER
Use of Micro-
Observer
Preparation of database of
Micro-Observers
2 months
before the Poll
1 Month
before the
Poll
Sharing of database with
other districts
1 month
before the Poll
3 weeks
before the
Poll
Appointment of Micro-
observers
3 weeks
before the Poll
15 Days
before the
Poll
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Training 2-3 weeks
before the Poll
10 Days
before the
Poll
Randomization - 1 Day before
the Poll
Logistics for Micro-
Observers
Day before the
Poll
Poll Day
Issue of EDC/PB to Micro-
Observers
During Training 10 days
before polls
Honorarium to Micro-
Observers
Dispatch day Poll Day
3 TRANSPORTATION
Preparation of database of
resources
2 months
before the Poll
1 Month
before the
Poll
Appointment of Nodal
Officer
1 Month
before the Poll
25 days
before the
Poll
Preparation of route charts 20 days before
the Poll
7 days
before the
Poll
Requisitioning of vehicles
required
Announcement
of election
Pre-planned arrangements
for fuel/repairing
1 month before
the Poll
15 days
before the
Poll
Allotment of vehicles As and when
required
Till end of
polls
Logbooks of requisitioned
vehicles to be maintained
During the entire election
period
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Timely release of
requisitioned vehicles
As soon as the election is
over/as and when
requirement is over;
whichever is earlier.
Payment to vehicle owners
to be completed
7 days after the
Poll
1 month
after the Poll
4 RECRUITMENT
All vacant key posts from
the angle of Election should
be filled up
1 year prior to
election
6 months
before the
Poll
5 CAPACITY BUILDING OF SECURITY PERSONNEL
Trainings to be imparted 2 months
before the Poll
1 Month
before the
Poll
Appointment of Nodal
Officer
On
announcement
of polls
1 month
before the
Poll
Criticality Assessment and
Vulnerability Mapping to
be completed
Announcement
of election
Lists of Election Law
offenders/history
sheeters/trouble-
mongers/Local goons or
anti-social elements to be
kept ready
6 months
before the Poll
2 months
before the
Poll
Directory of key
functionaries to be
prepared
2 months
before the Poll
20 days
before the
Poll
6 DEPLOYMENT PLANNING
Preparation of Deployment
Plan
On
announcement
of Poll
2 weeks
before the
Poll
124
Arrangements for
submitting daily LOR- 1 & 2
reports
Announcement
of election
Completion
of election
Appointment of Nodal
Officer
On
announcement
of Poll
1 month
before the
Poll
Demand of CAPF from
ECI/MHA for election
2 months
before the Poll
1 month
before the
Poll
Planning of Logistics &
Food-accommodation for
CAPF
1 month before
the Poll
15 days
before the
Poll
7 PRE-POLL DEPLOYMENT
Formation of FSTs & SSTs Announcement
of election
-
Route charts covering all PS
to be prepared
20 days before
the Poll
7 days
before the
Poll
Prior intimation to Police
Authorities regarding
requirement
1 month before
the Poll
15 days
before the
Poll
Co-ordination with CAPF to
be established
State to begin
coordination
instantly on
allocation of
CAPF; district
to begin
coordination
instantly on
allocation of
CAPF
Completion
of election
8 GEOGRAPHY, TERRAIN, WEATHER
125
Preparation of
DEMP/SEMP
6 months
before the Poll
3 months
before the
Poll
9 COMMUNICATION PLAN
Preparation of database of
available means of
communication
3 months
before the Poll
1 Month
before the
Poll
Assessment of Network
availability and human
resources required
2 months
before the Poll
1 Month
before the
Poll
Appointment of Nodal
Officer
On
announcement
of Poll
25 days
before the
Poll
Procuring additional
requirements by state
3 months
before the Poll
1 Month
before the
Poll
Preparation of database of
operators/key
functionaries
1 Month
before the Poll
15 days
before the
Poll
Formation of Monitoring
Team of IT experts at the
district HQ
15 days before
the Poll
7 days
before the
Poll
10 TAPPING ADDITIONAL RESOURCES WITHIN STATE
Assessment of human
resources required and
Database to be prepared.
6 months
before the Poll
3 months
before the
Poll
Concerned
organization/establishment
to be informed
3 months
before the Poll
2 months
before the
Poll
Training to be imparted. 2 months
before the Poll
1 month
before the
Poll
126
Arrangements for packed-
lunch/food
15 days before
the Poll
7 days
before the
Poll
Arrangements for
transportation
15 days before
the Poll
7 days
before the
Poll
Honorarium to be paid - Day of Poll
Ex-gratia compensation in
case of injury/death while
on election duty
15 days after
the Poll
1 month
after the Poll
11 MANPOWER AUDIT
Assessment of human
resources required and
Database to be prepared.
6 months
before the Poll
2 months
before the
Poll
Appointment of Nodal
officer
2 Months
before the Poll
1 month
after the Poll
Grouping and formation of
Polling Parties
1 Month
before the Poll
15 days
before the
Poll
Training to be imparted 1 Month
before the Poll
15 days
before the
Poll
Randomizations
(Total thrice)
3 weeks before
the Poll
The Day
before Poll
Arrangements for packed-
lunch/food
15 days before
the Poll
7 days
before the
Poll
Arrangements for
transportation
15 days before
the Poll
7 days
before the
Poll
Honorarium to be paid - Day of Poll
127
Ex-gratia compensation in
case of injury/death while
on election duty
15 days after
the Poll
1 month
after the Poll
12 WELL- EQUIPPED POLICE RESOURCES
Assessment of available
Arms & Ammunition,
transport, and other
requirements.
6 months
before the Poll
2 months
before the
Poll
Procurement to be made 3 Months
before the Poll
1 month
before the
Poll
Refresher training to be
imparted
1 Month
before the Poll
15 days
before the
Poll
13 ACTIVE CALL CENTERS, COMPLAINT CELLS, AND CONTROL ROOMS
Assessment of manpower
& their appointment
2 Months
before the Poll
1 month
after the Poll
Establishment of Call
center & Control room
1 Month
before the Poll
End of poll
Wide publicity of Phone
numbers
1 Month
before the Poll
Till end of
counting
14 INTER-STATE CLUSTER FOR SHARING OF STATE POLICE MANPOWER
Formation of inter-state
cluster
permanently
15 MOTIVATION AND WELFARE OF FORCES
Preparation of Route maps 20 days before
the Poll
7 days
before the
Poll
Assessment and
Arrangements for means of
Transport
1 Month
before the Poll
15 days
before the
Poll
128
Appointment of Nodal
Officer and District level
Welfare officer
On
announcement
of Poll
25 days
before the
Poll
Procurement of logistics 3 Month
before the Poll
1 month
before the
Poll
Training to be imparted 1 Month
before the Poll
15 days
before the
Poll
Preparation of
Pre/During/Post poll daily
movement plan
15 days before
the Poll
7 days
before the
Poll
Preparation of exigency
plan
1 Month
before the Poll
15 days
before the
Poll
Hospitals to be identified
and pre arrangement for
cashless treatment to be
made
1 Month
before the Poll
15 days
before the
Poll
Honorarium to be paid - Day of Poll
Ex-gratia compensation in
case of injury/death while
on election duty
15 days after
the Poll
1 month
after the Poll
Felicitation/recognition for
good recoveries.
1 month after
the Poll
In any
specific
function of
the ECI or
CEO office.
16 MEDIA AS A FORCE MULTIPLIER
Pre-poll briefing to be
arranged
On the Day of
announcement
of election
-
129
Designing & procuring
various media material
2 Months
before the Poll
1 month
before the
Poll
Proactive information
sharing including press
conferences
During the entire election
period
Issuance of Authority
letters to media persons
( Accredited Journalists/
Reporters)
7 days before
the Poll
3 days
before the
Poll
Above measures may extensively be used so as to curtail the dependency on CAPF. CEOs
shall ensure proper implementation of the above listed various Force Multipliers and Non
CAPF measures and closely monitor them during the entire election process.
CHAPTER XIV
POLL CYCLE PLANNING: PRE-POLL PLANNING
1. Demarcating areas of responsibility: Detailing of Force coordinator and
nodal officers
Following officers should be designated as nodal officers, at least 6-8 months prior
to the expected announcement of elections;
● Nodal Officer Law and Order – IG level officer should be designated as
nodal officer to ensure that law and order portal of the state is set up well
before announcement of elections, regular monitoring of the information
uploaded on the portal and regular reporting to ECI is done in the
designated formats, and the final State Force Deployment Plan for the
State is prepared. The Force Deployment Plan will be based on a
Manpower Audit and Manpower Planning to be carried out at least 6
months in advance of the estimated date of announcement of elections,
130
by this Nodal Officer. S/he will also be responsible for overall resource
management and Resource Planning.
● State Force coordinator- IG /ADG level officer from the state police to
coordinate with ECI/MHA and CAPF allotted to the state, who will prepare
the movement plan of the CAPF for its local deployment in districts and
also for state police forces in case they are to be moved from one district
to another; he will therefore be responsible for Mobilisation and
Movement Planning and will also oversee the preparation and
implementation of the Local Area Domination Plan by the districts.
● Nodal officer Communications-IG/ADG communications of the state
should be designated as nodal officer for assessing requirements and
providing communication systems at each PS and also for coordinating
with neighboring states and the centre for procurement of these systems.
S/he will also prepare the State Communication Plan.
● Nodal Officer Training –ADG Training in the state should be designated as
nodal officer for providing training to state security forces, to be deployed
during elections and for CAPF forces coming from outside the State. S/he
shall prepare the State Training Plan for security forces including the CPF.
● Local level plans to be drawn by district Law and Order machinery, that
is DM and SP - They shall prepare the District Deployment Plan in detail,
specifying individual responsibilities, on the basis of the force made
available to them. This plan shall be prepared in consultation with the
Observer and shall be approved by the Nodal Officer Law and Order after
consultations with the CEO. They shall also be responsible for assessing
the local resources availability in terms of equipment, transport, budget,
etc. and accordingly make projections at state level.
● Area Domination Plan - this is also to be prepared by the DM and SP in
advance of the arrival of the CAPF.
● National level Nodal Officer for CPF coordination: He will be appointed
by MHA and will be responsible not only for assessment and allocation,
but also for force movement.
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2. Preparing the preliminary Force deployment Plan
At the State Level- To be done by the State Force Coordinator, separately for
LWE and Non LWE areas/constituencies, in consultation with the CEO.
3. Non LWE constituencies profiling:
Security profiling of constituencies should be done on the basis of following
parameters and inputs:
● Law and order assessment (Past elections and presently) and intelligence
inputs.
● Number of vulnerable villages/hamlets or settlements, classified on the
basis of vulnerability on account of communal tensions/caste
tensions/criminal activities.
● Assessment of criticality, based on previous election experience and the
current ground situation.
● Assessment of ease of communication at the polling station-Degrees of
difficulty in communication may be made to categorize polling stations
within a range between very good communications and communication
shadow area.
● Any other PS specific inputs
Infrastructure profiling based on the following inputs:
● Topography of the area- Riverine, hilly, forested, desert etc.
● Physical infrastructure- Road network, bridges, buildings (logistics)
etc.
4. LWE constituencies security profiling:
● Security profiling, based on the categorization of LWE Districts broadly
as most vulnerable/vulnerable and affected by LWE(terminologies
may vary from state to state)
132
● Infrastructure profiling - As in non LWE constituencies
5. Deploying state Forces and planning for force multipliers:
● Availability of state police forces and other state personnel, who can
be deployed as special police officers should be ascertained. A state
level coordination group should be formed, to include representatives
of stakeholder departments (Forests, PRIs, Transport, Education etc)
● Based on the profiling of the constituencies, a preliminary force
deployment plan for the state should be prepared, indicating the
number of forces of the state to be used as well as the numbers of
CAPF proposed to be deployed.
Note - This preliminary force deployment plan would necessarily be a dynamic plan,
subject to changes on account of factors like actual availability of CAPF, unexpected Law
and order/LWE incidents and fielding of celebrity candidates for elections etc.
B. At the District Level – By the DM and SP, separately for LWE and non LWE areas(if
any)
6. Creation of State level Coordination Group
A state level coordination group should be created by the CEO, comprising of :
● Additional/Joint CEO, nominated by CEO.
● All Nodal police officers.
● State level officers from Panchayat and rural Development
department, Urban Development department, School education
Department, Forest Department and Transport Department.(the list of
departments is not exhaustive and may be added to depending upon
state specific requirements)
This group shall be responsible for:
133
● Assessment of personnel in their department, who can be used as
Special police officers in elections.
● Assessment of security related resources in their departments, which
is required for support during the election period.
● Pooling of the above human and material resources, through effective
liasion.
7. Planning for resources
Following the preparation of the Preliminary force deployment plan, the state level
coordination group should make an assessment of security related resources, at the
state level , based on demands from the Districts(which shall be based on the preliminary
District deployment plan) This may include the following:
● Requirement of Communication sets, alternative means of
communication for shadow zone areas.
● Requirement of helicopters for transportation of polling personnel and
security personnel, due to natural causes(terrain , climate etc) or due
to threat perception in LWE areas.
● Requirement of boats to access bridgeless waterways.
● Requirement of air Ambulances, to evacuate personnel during
emergencies.
● Logistical Resources(vehicles, transit camps/halting places etc)
required for movement of forces
For all such requirements, resources available in the state should be pooled first and for
additional requirement, respective nodal officers (communication and State force
coordinator) should coordinate with other states/MHA and ECI, to ensure that all
resources are in place before elections.
8. Training and capacity building
State Nodal Police Officer for Election Training is required to prepare training calendar
and content; and to ensure completion of maximum training before announcement of
polls. Training of all police officials/constabulary associated with conduct of elections
134
shall be undertaken in a systematic manner by the State Nodal Police Officer for Election
Training.
The Training Calendar will be prepared by him/her as follows:
No. Personnel to be trained Training Place Training Date Line
1
2
3
4
State Level master Trainers
IIIDEM, New Delhi 2-3 months before
the poll
Range IGs, SPs ,Addl SPs
State PHQ 1-2 months before
the poll
Deputy SPs,Inspectors,SHOs,TIs
District 20 -30 days before
the poll
Police constables and Head
constables
Sub Division 15-10 days before
the poll
a) Training to all officers/officials likely to be deployed in election process as per
directions of ECI:-
● At IIIDEM, New Delhi – SLMTs
135
● At State HQr – SPs and Addl. SPs
● At Div. HQr/Distt. HQr – Dy. SPs
● At Range HQr – Inspectors/SHOs/Incharge Police Lines
● At Thana Level/Police Line level–Police Mobile parties and Police Personnel to
be deputed in polling parties
b) Topics for training:
● Vulnerability Mapping and confidence building measures
● Identification of critical polling station and critical clusters .
● Preventive Measures – special drives
● Misuse of money power and election expenditure.
● Prevention of Defacement of Public properties.
● Discipline during nomination process.
● Communal harmony.
● Poll day and counting day duties.
● CPF coordination and Deployment of force
● MCC provisions
● Poll process
● Relevant legal provisions
● Other Issues.
c) At Police headquarter level:
● The State police headquarters should develop a checklist for the key officials
associated with the conduct of election indicating their duties and
responsibilities in the light of new instructions being issued from the Election
Commission of India from time to time.
136
● Besides, a reference material should also be prepared indicating the relevant
Sections of Indian Penal Code, the R.P Act and Model Code of Conduct (MCC)
that are relevant during the course of elections.
● This reference material book should indicate the nature of offence and the
relevant Sections whether cognizable or non-cognizable and the action to be
taken in case of any violation.
● This reference material should be made available to all field officials as well.
● There should be a proper coordination between the CEO’s office and the
police headquarters.
● Whenever the Election Commission of India issues any instruction connected
with maintenance of law and order preparation of State/district level
deployment plan of CPF etc., the guidelines should be immediately brought to
the notice of police headquarters.
● The DGP may identify a senior officer who would function as a nodal officer
to remain in touch with the CEO on day-to-day basis so that the Commission’s
instructions from time to time are followed up and implemented.
d) At district level
(i) The DEO-cum-District Collector/DM will hold a meeting with SP and senior police
officials and apprise them of all the recent instructions of the Election Commission
of India.
(ii) The enforcement of MCC is the joint responsibility of the district electoral
administration as well as the police administration. Clear accountability should be
spelt out when the district administration/RO forms MCC squads/teams and
trains them.
(iii) Specific accountability for the police officials at the Thana level should be spelled
out in training.
e) Concept of vulnerability mapping and identification of critical polling station
and critical clusters
(i) The training to be organized by the district administration (DEO and SP) for police
officials should be planned in advance and proper training material should be
prepared to ensure timely Vulnerability mapping exercise and action.
137
(ii) Copies of the relevant circulars of the Election Commission of India and extracts
of relevant law should also be circulated in the training programme.
(iii) As the vulnerability mapping gives valid inputs for identification of critical polling
stations and critical clusters, the entire concept should be explained to the police
officials properly by the DEO and SP. (refer circular no. 464/INST/2008 dt.
24.10.08).
f) Misuse of money power and election expenditure
The misuse of money power has emerged as a big challenge to the free and fair election
process. The forces must be trained about the following issues among others:
● All Election Expenditure Monitoring guidelines must be thoroughly
understood.
● Feedback has been received about candidates indulging in various methods
to induce the voters which includes outright payment of cash that amounts to
bribery and other forms of inducements such as supply of liquor, food packets,
holding of lunch and dinner parties in the name of “birthdays” and other
“anniversaries” to give election related inducement, distribution of gifts in the
name of mass wedding and so on.
● During the election process, a close tracking by each and every Thana officer
of such payments and other forms of inducement at their level is essential.
● The field level election machinery/police administration should work as a
team to track such types of malpractices.
● It is noticed that liquor is transported even from the far away States to the
election going States. Proper checking at the inter-State border and
commercial tax check post will be helpful in tracking such transportation of
liquor.
● Whenever a consignment of such liquor is intercepted, proper investigation
should follow to trace the origin of such supply and the destination. A proper
investigation is essential to establish linkage between the election process
and the supply of such inducements. Media should be briefed whenever such
consignments are seized. A proper orientation about this should be given to
the police officials during training programmes.
138
g) Defacement of Public properties
The Election Commission has been issuing a detailed instructions regarding prevention of
Defacement of Public Property and other connected issues. The steps to be taken to
implement the Commission’s order in the context of prevailing law if any, applicable to
the State should be properly explained. The methodology to be adopted for enforcement
of Commission’s instruction should be discussed in the training programme and
explained to the field officials.
h) Discipline during nomination process
● Commission has issued instructions to ensure proper discipline during the
process of filing of nomination. During the filing of nomination, the candidate
can be accompanied by only the four other persons (refer 464/inst/2007/PS I
dated 09.02.07).
● A nodal officer needs to be identified by the SP of the district who would be
responsible for sanitizing the area of RO’s premises and ensure that only the
permitted numbers of people are allowed to go inside the RO’s room and the
entire proceeding should be video graphed.
● Duties and responsibilities of the nodal officer in this regard, should be
properly explained by the SP to the nodal officer during training session.
● Publication of election pamphlets in violation of Section 177 A of the RP Act,
1951 needs close tracking and monitoring.
i) Communal harmony
The police administration should remain vigilant about circulation of campaign material
which can affect the communal harmony. The provisions of electoral law as well as model
code of conduct in this regard shall be explained to the police officials during training
programme.
j) Poll day and counting day duties
An orientation should be given to the police officials about the polling process on the poll
day and other connected issues and about the duties and responsibilities of various police
officials on poll day with reference to security at polling station, patrolling of the
139
catchments areas, tracking of areas identified as vulnerable, transportation of polled
EVMs, sealing and guarding of strong rooms and the counting day arrangements.
k) CPF training
A proper orientation needs to be given about the role of CPF vis-à-vis State police/local
police and other coordination responsibilities. For capacity building of CAPF the
following actions may be taken:
Preparing the training syllabus for CAPF-
● Training syllabus should be carefully designed to include aspects that
will be of immediate use for election purposes only.
● It should be complemented with the information specific to the
District, where CAPF is proposed to be deployed.
● Dos and don’ts for operating in the fields should be prepared in
advance and emphasized during the training.
● Best trainers and resource persons should be identified and briefed in
advance.
Training of CAPF Forces
● Initial briefing should be done by the state police officers in the
holding areas.
● Training should ideally be imparted at COY clusters, at deployment
locations.
● The training should enable familiarization with the terrain, polling
area, tactics and necessary dos and don’ts for operating in the
area. Local troops should be actively engaged in this.
l) Directory of electoral administration
A directory of key functionaries of the electoral administration both civil and police
should be prepared indicating the names, designation, landline and mobile numbers so
that coordination between civil authorities and the police authorities is ensured.
140
9. Coordination with ECI, MHA, Railways and CAPF:
The State Force coordinator shall coordinate actively with:
ECI and MHA for ensuring the following:
● Approval of the final state deployment plan.
● Approval for the number of CAPF forces allotted to the state after
National level deliberations.
● Issuing of state specific instructions from MHA to CAPF, from outside
the state.
Railways, for ensuring the following:
● Special trains for movement of CAPF forces into the state.
● Identification of safe and convenient points of disembarkation of
forces in the state.
● Special messing facilities for forces on trains.
State government for ensuring the following:
● Preparing force’s movement plan within the state.
● Induction and De-induction of forces
● Training of forces, to be conducted by nodal police officer(Training)
141
CHAPTER XV
POLL CYCLE PLANNING: POLL PLANNING
1. Preparation of a Threat based Deployment Plan of CAPF and state police at State
and district level.
Preparation of Deployment plans must not be left entirely to the district machinery. For
the purpose of standardization and effective and optimal utilization of resources, it is
necessary for the state to prepare an overall state deployment plan indicating the
minimum deployment for static, mobile, police station and reserve deployments and also
indicating the minimum and maximum utilization of state police forces. A system has
been devised in Gujarat for preparing state level and district level deployment plans
which consists of the following steps:
● Assessment of local situation and requirements by the district
machinery
● Interaction of the CEO office and Nodal officers law and order with the
district machinery to assess requirements
● Collecting of data related to criticality/vulnerability, availability of
resources, communication shadow areas, low voter turnout areas, low
female voter turnout areas, trouble spots, manpower availability, etc.
from districts
● Preparing database of above at state level
● Preparing an indicative deployment plan at state level showing
tentative allocation of state police forces
● Holding discussions with district machinery on the basis of the
indicative plan
● Allocating central forces (once the same is intimated by the ECI) on the
basis of the above discussions
142
● Firming up state deployment plan and issuing indicative plan for
district level clearly spelling out the minimum deployment for static,
mobile, police station and reserve deployments.
● The plan is prepared in such a manner that:
o No central force personnel are kept in reserve
o At least 80 % of the State Police forces are utilized
o Maximum central forces personnel are deployed for static
duties at Polling stations
o The most sensitive/highly critical PS are covered by central
forces
o Home Guards and related forces are utilized for the purpose of
maintenance of queues at PS, while state police personnel are
deployed for maintenance of law and order.
● A typical format of 9 tables used by states (non LWE) in earlier
elections for the purpose of preparing these plans is attached at
Annexure 15. An explanation in brief of how the format for
deployment flows is given below:
Table 1 :
This table will show available resources – i.e. the numbers of PS in each
PSL in the district AC wise and strength of Police force in the state
Table 2: This will give the breakup of number of Ancillary parties in the districts –
that is of the following:
● Sector Magistrates
● Sector Police Mobiles, one each to move
with one Sector Magistrate each
● SSTs/FSTs
● Police Stations
● Check Posts / nakas
● QRTs etc.
Table 3: This will give the number of critical and non-critical PSL.
143
Table 4: This will give the Scale of deployment of Police Constables (PC)/Head
Constables (HC/ASI) at PSL. For example,
● At PSL with upto 3 PS - 1 PC/HC per PSL
● At PSL with 4-5 PS - 2 PC/HC per PSL
● At PSL with 6-7 PS - 4 PC/HC per PSL
● At PSL with 8-9 PS - 5 PC/HC per PSL
This Table no. 4 will also give the scale of other deployments, for
example as follows:
● 1 PC/HC per Sector magistrate Mobile
● 2 PC/HC per Sector Police Mobile
● 4 PC/HC at each Check-post/naka
● 2 PC/HC with each SST
● 3 PC/HC with each FST
● 8 PC/HC at each police station
Table 5: This table will show allocation of PC/HC/ASI have from other districts, if
any, particularly in phase wise elections.
Table 6: This table will give the break-up of the allocation of Home Guards. For
example, there could be:
● 1 HG each at each of the PS
● 1 HG each in each of the Sector
Magistrate Mobiles
● 1 HG each in each of the Sector Police
Mobiles
● 1 HG each, at all PSL having 4 or more PS.
Table 7:
This table will show the break-up of allocation of the Coys of CPF to the
districts.
144
Table 8:
This table will give the scale of allocation of CPF and SRP (State Reserve
Police) –at critical PSL as well as at non-critical PSL. Also scale of
deployment – whether half/full section/ 2 armed guards of State
reserve Police, etc.
Table 9 This Table will give the coverage of CPF and SRP of PSL – basically PSL
are covered either by CPF or SRP
2. Deployment to include arrangements for counting
3. Role of Observer in Deployment Plan
4. Earmarking of accommodations and other logistics for troops till final de-
induction.
5. Creation of database of SPF & other forces with details of registration in PER,
telephone nos. etc.
6. Movement plan from one phase to another phase.
7. Timely pre-poll deployment of forces on threat perception.
8. Communication setup.
9. Pre-induction training, counter IED training.
145
10. Proper medical cover earmarking of super specialty hospitals, cashless
treatment, air ambulance, helicopter etc.
11. Providing unique ID to troops.
12. Arrangement of special trains by railways & food by IRCTC.
13. Single window booking system.
14. Training of police personnel to be completed, documented and reported by
State Nodal Officer
● On completion of training all personnel must be provided the standardized set
of training material developed separately for the state security forces and
separately for the CAPF.
● The training material for polling personnel must contain briefing on the role
of security personnel at the PS and the role of election polling staff vis-à-vis
election security forces.
● There is a system in western countries of issuing pocket cards to security
personnel, outlining the issues that are likely to crop up, the legal provisions
in that regard and their expected behavior and the list of superiors/
authorities in their contact details. This can be developed on a uniform basis
by States.
● Proper reporting and documentation of training must be ensured by State
Nodal Officer for Police Training.
15. Do’s and Don’ts
146
16. Formats
147
CHAPTER XVI
POLL CYCLE PLANNING: POST POLL PLANNING
1. Deployment and de-induction from Counting Center
2. Arrangement of special trains by railways & food by IRCTC.
3. Arrangement of accommodation and other logistics by state authorities till
final de-induction.
4. Feedback reports related to shortcomings /problems and recommendations
for future from State level and from CPF coordinator.
5. Formats
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CHAPTER XVII
PLANNING: STANDARD OF PROVIDING FACILITIES /AMENITIES TO CAPF ON
DEPLOYMENT BY STATE /DISTRICT ADMINISTRATION
a) Constitution of state level co-ordination group for CAPF.
The deployment of CPF is an essential criterion from security point of view during election
process. The following instructions of the Commission are to be implemented:
● The Commission desires that an officer of the rank of inspector General of Police
in state Govt. in each & every state may be appointed as Nodal Officer with
immediate effect to look into the matter of CPF facilities like accommodation.
Logistic, welfare measures, compensation/insurance, packed lunch or payment
for refreshment charges etc.
b) Detailing of District wise nodal officers.
● Each district should have a nodal officer for liaising with the CPF Companies; and
each Company should also be allocated a LO from local police side. The DEO shall
also appoint an LO at district level from his/her side.
c) Transportation, Accommodation, Logistics.
● The Commission directs that the Chief Secretaries/Chief Electoral Officers of all
States/UTs should look into the matter and provide basic facilities/amenities like.
➢ Accommodation,
➢ Vehicles,
➢ POL for dedicated Force Vehicles,
➢ SIM cards,
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➢ Packed lunch or payment for refreshment charge,
➢ Insurance/Compensation to Families of CPF Personnel
As mentioned in the letter no. III-11040/1/2009-G. dated 20.03.2009 of Ministry
of Home Affairs, as far as possible.
● Arrangements for food for the CPF personnel may also be made at par with the
State Police /polling personnel on the day of poll.
● The state Government shall provide adequate facilities and make necessary
arrangement as needed, for transport and accommodation of the CPF deployed.
● Other amenities, as required are enclosed for consideration by the State Govt.
● State level monitoring: The CEO shall do a review of such facilities provided to the
CPF Personnel as per the list attached and ensure their wellbeing so that they
become an integral part of the election management programme.
BASIC AMENITIES FOR CPF DURING ELECTIONS
(I.) ACCOMMODATION
Following minimum accommodation with all the basic amenities are
required per Coy of CPFs during elections:
Three Barracks of 16/32 size
One Room for Officer
One Room for Kitchen
One Room for Store
Six Bathrooms
Six Toilets
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(II.) For a battalion (6 Coys), however, the indicated logistics should be
provided for 3 officers in addition to defined specifics for each Coy.
(III.) OTHER LOGISTICS
(a) Vehicles
(i.) Number of vehicles –
Following minimum vehicles are required per Coy. of
CPF during elections
Buses :02 Nos.
Truck :01 No.
Medium Vehicle :01 No.
Light Vehicle :01 No.
(In case of deployment in less than one section
strength, 3 Light Vehicles @ one per platoon would
be additionally required for effective supervision)
(ii.) Technical fitness of vehicles
States may be advised to ensure that vehicles
are
technically road worthy and in good condition.
(iii.) Security verification of drivers
States may be advised to undertake/ensure security
vetting of the drivers in civil vehicles.
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(iv.) POL for dedicated Force vehicles
States may be advised to provide POL to the Force
Vehicles, if carried by any force for duties in the
State.
(IV.) SIM CARDs
One Sim Card each may be provided to all the Company
Commanders as well as supervisory officers (Mobile telephone sets
would be carried by officers).
(V.) ACCIDENT INSURANCE/COMPENSATION
State should insure CPF personnel also against any accident during
the period of election duty or any other compensation as applicable
to State employees be extended to CPF personnel.
(VI.) PACKED LUNCH ON POLLING DAY/COUNTING DAY.
The practice of provisioning of meal packets as applicable to State
Police personnel on election duty should be extended to personnel
of CPF being deployed on the polling day.
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CHAPTER XVIII
EXECUTION: AN INTRODUCTION
The Webster dictionary defines execution as the act or process of executing
performance.
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CHAPTER XIX
EXECUTION: FORCE DEPLOYMENT AND EXECUTION - GENERAL
Analysis of Objectives of task at hand:
The CAPF will receive moving orders from the MHA during elections. It is essential that
a review is taken up not below the level of Commandant and preferably at the level of
DIG manning the forces to understand the tasks (specified and implied) and purpose of
the deployment, and issue appropriate guidance to the members of the forces before
they embark on election duties.
Identification of forces
The Central paramilitary forces broadly consist of following forces under the control of
MHA.
Central Armed Police Forces
· Assam Rifles (AR)
· Border Security Force (BSF)
· Central Industrial Security Force (CISF)
· Central Reserve Police Force (CRPF)
· Indo Tibetan Border Police (ITBP)
· National Security Guard (NSG)
· Sashastra Seema Bal (SSB)
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Generally Assam Rifles and NSG are for very specific purposes and are not deployed for
election. However the term also means the forces deployed by the commission and may
consist of special armed reserve and special purpose battalion of other than poll state.
During general election to parliament the states cannot spare the forces for deployment
to other states however during assembly elections the state police forces of then than
poll going state also comes under the umbrella central forces.
The election commission has issued detailed guidelines for working out the requirement
of forces for any election. It mainly consist of duties of static surveillance team, flying
squad, and for area domination during the pre-poll period, security of polling stations
and zonal party during the poll period and safety of polled machine in after poll period.
Assessment of requirement of forces:
The size of our country and its population, diversity in the climatic zones, and multiplicity
of regional and religious festivals means that elections have to be scheduled in strict time
bound phases. A very important consideration in scheduling is the availability of security
forces, deployment of which is important to ensure free and fair elections. This also
necessitates planning election schedule in such a way as to ensure smooth movement of
forces from one part of the country to the other. The scheduling of an election, also
translates to taking into consideration the social, educational, infrastructural, climate and
other factors, both trivial and major, by way of laying them before the eyes of the
planner. This exercise is necessary to find out the gap or the lull period when the activities
people are involved in run at a mean, to be able to fit in the gigantic task of conducting a
General Election.
The Election Commission of India had scheduled the General Election to the House of
People, 2014 in nine poll dates panning the country and involving 814 million electors.
This scheduling was the process of organizing, choosing and timing resource usages to
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carry out all activities necessary to produce the desired outputs at the desired time, while
satisfying a large number of time and relationship constraints among the activities and
the resources. If we look at the GE 2014, the schedule required huge movement of forces
pan India over a period of more than a month; as poll dates stretched from 7.4.2014 to
12.5.2014. A clearer idea comes from the following tables:
POLL DAYS–GENERAL ELECTIONS, 2014
POLL DAY DATE OF POLL NUMBER OF
STATES & UNION
TERRITORIES
NUMBER OF
PARLIAMENTARY
CONSTITUENCIES
1 07.04.2014 2 6
2 09.04.2014 5 7
3 10.04.2014 14 92
4 12.04.2014 3 5
5 17.04.2014 13 122
6 24.04.2014 12 117
7 30.04.2014 9 89
8 07.05.2014 7 64
9 12.05.2014 3 41
TOTAL PARLIAMENTARY
CONSTITUENCIES
543
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TOTAL NUMBER OF POLL DAYS IN STATES AND UNION TERRITORIES
TOTAL NO. OF POLL DAYS STATES AND UNION TERRITORIES
6 2
5 2
3 5
2 5
1 2
1
Therefore the assessment of requirement of forces is integrally dependent on the
scheduling of elections; and scheduling is a massive exercise requiring huge inputs from
every state, sometimes every constituency of the country; and it also requires the
balancing of several sensitive aspects that may have a bearing on the overall credibility
and perception of the Commission.
PROCESSES INVOLVED IN ASSESSMENT:
● The assessment of requirement of forces is the most crucial ingredient for
scheduling. For example, which state should go first and why, how many
Companies of CAPF are to be given to a particular state and why, etc. It is an
exercise, which no amount of technological or administrative inputs and logic can
assist in the finalization. It basically requires planning with an acute sense of
understanding of ground realities and capability to weave in all aspects into a
schedule that balances all concerns of all the stakeholders – states, political
parties, Commission, voters. The announcement of the schedule itself is the first
Confidence Building Measure by the Commission.
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● To gather such detailed inputs, thus the Commission first of all holds a meeting
with the Chief Secretaries, Directors General of Police, Home Secretaries, Chief
Electoral Officers and Police Nodal Officers of all States and UTs.
● This meeting is held to assess the overall law and order situation, ascertain
State/UT specific areas of concern, deliberate on the quantum of Central Armed
Police Forces (CAPFs) required in each State/UT and to review the overall
preparedness of the election machinery.
● At the State level detailed discussions have to be held with the Police authorities,
the telecom authorities including the private service providers to assess the law
and Order situation, identification of the mobile shadow zone areas. One major
concern for the ECI and for the states is the deployment of Central and State
Police Forces to ensure peaceful, free, fair election with fearless participation of
electors, in the vulnerable areas/ pockets. This is also to be taken into account.
● The School Education departments and the Higher Education department of the
State government are to be consulted for possible examination dates and to avoid
any major inconvenience and clash of interest caused due to the fact that Polling
Stations are mostly located in school buildings and teachers are engaged as
polling personnel.
● Election scheduling process is also intricately interwoven with social practices,
festivals, education system of a State, weather conditions and even harvesting
seasons.
● Law & Order situation plays a key role in scheduling of election in such States as
Jammu & Kashmir and Chhattisgarh with pronounced presence of extremists.
These states are heavily dependent on the presence of Paramilitary and military
forces to deliver a peaceful poll.
● In states like Punjab, Haryana, and Himachal Pradesh seasonal migration of
population across the state borders is a major issue in fixing up the date of polls.
In most states school board examinations are usually held during the months of
March-April followed by the entrance examination for the Medical & Engineering
institutes.
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● Certain inputs that are essential for scheduling elections and assessing
requirement of CPF and that are taken into account are given below.
o National level inputs: include the NI Act holidays, important national events
like Census operations, delimitation of constituencies, national level
entrance examinations to the medical/engineering institutes, festivals
celebrated across the country etc.
o State Level inputs: include the state level holidays due to local festivities,
events, state level examinations, local festivities having huge popularity,
seasonal variations, availability of manpower, availability of
infrastructure, availability of security forces etc.; which are further
elaborated as follows: Availability of local police force: This assessment
should be done by the CEO and the DGP of the state at least a year in
advance; to enable planning for recruitment or filling in the gaps. The
availability of local forces plays a huge role in central force deployment.
○ Seasonal/ Climatological Variations: Intensity of the
seasonal/climatological variations which sometimes result in
rainfall, widespread flood, snowfall or heat wave is to be taken into
consideration. Not considering these factors while scheduling
election can not only jeopardize the process of force deployment;
but may also reduce the voter turnout in a significant manner
which ultimately affects the goal of greater participation.
○ Availability of Manpower: While scheduling elections, emphasis
has to be given upon this parameter to a large extent in order to
accommodate manpower for districts/constituencies suffering
from acute shortages.
○ Availability of infrastructure like transportation for the polling as
well as security personnel, availability of school buildings for the
election purpose, availability of drinking water facilities at the
height of summer when the water table goes down significantly
should surely be taken into consideration. In many cases, the
vehicular requirement of a particular district is met by
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requisitioning vehicles from the neighbouring districts, not going
for poll on the same day.
○ State level & local festivities also become significant when a large
number of people get involved in it. The significance of these
festivities as far as the local sentiment and participation across the
constituencies is to be brought to the notice of the ECI by the CEO.
○ Examinations: By design, any major election is scheduled avoiding
the major Board examinations of the state in mind.
● Mobilization, deployment and disengagement of central forces is done
after due assessment of all this to ensure minimum crisscross movement,
and optimal utilization. This is done at the ECI level; however it is
implemented at the state level.
● The LWE affected areas are given special emphasis and due importance
while assessing requirement of central police forces.
● Data can be collected on the various parameters as discussed above, at
the Constituency level (AC wise) to find out a suitable stretch of time, pan
India, for holding of general elections. Collection and analysis of the data
at the Constituency level will give a fair picture of probable dates available
for scheduling a general election to the Parliament or Assembly in a
country as diverse as ours.
● This requirement should be worked out and informed to ECI.
● While communicating the requirement of central forces, the earlier
phasing of elections should be considered and along with the
requirement the past availability and number of phases should also be
indicated.
● ECI then goes ahead and checks the availability with MHA .
● The MHA should not only indicate the availability of number of
companies but should also indicate the location of the company
c) Co-ordination between ECI, MHA and forces.
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The assessment of requirement of forces should at least be done 6 months in advance
for planning of free and fair poll. The requirement and availability of forces is one of
the major criterion to decide about number of phases for completion of polling process.
The major criterion for assessment of requirement has been detailed in commission’s
instructions ….. are reproduced below
Among others the following may be considered as guiding factors in identifying
Sensitive and trouble prone areas/polling booths:
(i) Past history of the Constituency or the polling area
(ii) Incidents of Booth Capturing, violence, riots, large-scale impersonation etc.
(iii) Information regarding abnormal law & order situation in particular area
(iv) Specific complaints made by political parties and candidates
(v) Nature of contest viz. political status of candidates
(vi) Political rivalries
(vii) Number of history sheeters
c) Deployment of forces as per vulnerability and security requirement.
The planning for deployment of central forces should commence at least 6 months ahead
of the due date of polls.
The availability of forces should be worked on tentative lists of vulnerable and sensitive
polling stations, as the main vulnerability mapping exercise starts much later.
d) Clearly state your strategy in deployment plan
e) Communication of the Deployment plan and how it works to all concerned
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f) Creating systems/procedures/processes and allocating responsibilities for the
execution of plan
● Providing unique ID to companies, detailment of officers.
● ensure necessary training
● Effective intelligence collection and sharing with all sister agencies.
● Colour coding of constituencies /areas as per sensitivity.
● Warning order.
● Instructions to ad hoc battalions.
● Maps of mobilization of troops.
● Movement plan of forces.
● Demand of special trains & splinter coaches to Railways.
● Demand for on-board meals to IRCTC.
g) Monitor progress
h) An execution plan in elections runs the risk of failure in the following situations:
1. The deployment plan has been prepared in an adhoc manner without taking into
consideration ground realities. There is a tendency to simply prepare this plan in
accordance with the plan prepared for the last general elections. This must be
avoided at all costs.
2. Prioritization of deployment of specific type of forces, if not done on the basis of
ground realities, will lead to a failed plan. The state and the district must look at
the basket of forces available and prioritize on the basis of district level, AC level
and PS level requirements.
3. Commitment of the state level and district level planners and implementers is
required to ensure that the plan is implemented fully and as per norms.
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4. The persons who will take the lead in executing the plan should be made very well
versed with the plan, by the creators of the plan.
5. The deployment plan must have the scope of tweaking even at the last minute, if
a situation develops and warrants it. Resistance to change in such a case will only
make the plan ineffective.
6. The state and the district must select the right personnel for the right jobs in the
deployment plan. it is the most crucial aspect of an execution.
7. The consequences of knowingly not implementing the plan must be made very
clear to all levels. The fact that all election functionaries including security
personnel are under the disciplinary control of the ECI during elections, must be
brought to the notice of all personnel.
8. Lack of foresight in planning for resources can lead to a difficult situation. both
the state and the district level administrative machinery should take up this work
in a very focused manner and ensure sufficient reserve in all resources, including
equipment, transport, manpower, etc.
9. Good training is the game changer in any plan’s execution. This must be taken
very seriously and no deployed personnel must remain untrained.
10. Deployment plan must take into account potential problems. This requires an
acute sense of understanding of local realities.
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CHAPTER XX
EXECUTION: DEPLOYMENT OF FORCES IN LWE AFFECTED AREAS
1. CHALLENGES:
Conduct of elections in LWE affected areas; pose an altogether different challenge as
compared to rest of the areas. Maoists are averse to all democratic processes, which
include elections also. They resort to the use of armed and military tactics to sabotage
any such initiatives. To achieve their objective they may resort to armed violence, terror,
intimidation, extortion, misinformation campaign in media and human right bodies,
thereby subverting criminal justice administration. No general standards can be drafted
for such areas, as the challenges are area specific. The conduct of free and fair elections
therefore needs an area specific approach.
2. PRE POLL PREPARATIONS:
● Preparations should start at least 6 months prior to polls.
● These preparations should start with identification of forces well versed with
LWE areas from within and outside the State.
● The establishment formalities which include allocation of unique IDs to Coys and
formation of ad hoc battalions should also be completed in time so that the said
forces can be detailed during the whole election process by common
nomenclature.
● Colour coding of various constituencies as per security vulnerability should also
be carried out.
● Resource mapping in terms of detailment of BDD team/Dog Squad/special
equipment etc. and availability of police personnel and equipment from within
and outside the state should be carried out. Based on various modes/principles,
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like area security vs dedicated security approach for the polling booths,
deployment planning & requirement of additional forces should be worked out
much in advance. It should be kept in mind that there is a limitation to the
availability of additional forces for the purpose of election.
● Multiple scenarios should be worked out while calculating the additional
requirement of forces, viz with/without relocation of polling booths.
● Detailed vulnerability analysis from the point of view of LWE intensity should also
be carried out.
● These preparations should also entail shifting/relocation of polling booths,
staggering of polls, mobilization of forces from various states, deployment
yardsticks, sensitivity analysis of polling booths etc.
● Focus on training of State Police on IED recovery/handling, use of communication
equipment etc. should also be started in advance.
● The planning and management of elections in such areas should be done with an
objective of no loss of human limb or life.
● All the elements of logistics viz, additional camp sites, temporary holding areas,
preparation of place of stay, basic amenities should also be planned in advance.
● Regular demining operations of important roads which will primarily be used by
incoming security forces should also be part of SOP of pre poll preparation.
● All critical trunk routes should also be sanitized by de-mining and ROP.
3. PRINCIPLES/METHODOLOGY OF RELOCATION:
For timely decision the proposal for relocation of polling booths in the desired format
should be forwarded to the office of CEO of the state by the DEO, within a specified time
prior to the date of polling. Given the situation that candidates are finalized just few days
before elections, consent from them comes quite late. Instead, the consent of all the
district representatives of major political parties should be taken and given due
weightage so that deployment and field planning does not remain pending for finalization
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till the last moment. Once candidates are finalized, their view can also be taken and minor
corrections in the proposal can be considered.
4. DEPLOYMENT OF FORCES:
After the completion of induction training, troops should be deployed at the specified
forward location 7 day prior to the polling date, so that area domination, flag marches
and reconnaissance of polling booths is conducted as a pre-poll deployment and
confidence building measure. This will also facilitate timely and smooth deployment of
troops at polling booths before the day of poll.
Deployment of SFs in LWE areas for election purpose will primarily depend upon the
quantum and quality/exposure of force available for this purpose. If the forces available
are less than the field requirement, then instead of deploying in each booth in inadequate
numbers and being vulnerable, adequate deployments can be planned in highly Maoist
critical booths and others less critical can be covered by area security approach through
patrolling and area domination.
Deployment of forces has to be done on the basis of area vulnerability, security
equipment available with the force and prior experience in LWE area.
5. INDUCTION/DE INDUCTION:
● Induction and de induction may involve a huge (100s of kms) road opening and
demining operation exercise which may require mobilization of large numbers of
BD/IED squads and DSMDs in advance.
● For safe induction, and from handling capacity and logistics point of view; landing
stations should be identified in advance in consultation with Railway authorities.
● Induction of forces from outside the state should take place at least 21 days prior
to the polling dates.
● Effective ROP should be laid to ensure safe and secure induction of these forces
into these LWE areas.
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● Adequate BD/IED squads should be deployed for this purpose.
● Similarly, proper planning should be done for inter-phase movement of forces.
Sufficient time gap of minimum 10 days should be provisioned for de induction
of forces into the next phase of election. More care to be exercised for safe
and smooth de-induction of the troops.
● Effective Area domination/ROP should be ensured en route and in /around the
polling booths.
● State authorities have to extend all possible support for final de-induction of
the troops.
6. CAMPAIGN SECURITY:
● Campaign security is of prime importance in Maoist affected areas. However,
ensuring such security in Maoist areas involve complex time taking processes that
require considerable effort, resources, planning and tactics. These security
operations are not only physically exhausting but also involve large force
mobilizations & life-threatening risks. Therefore, it is advised that a SOP be put in
place and the candidate be advised accordingly. The operational part of SOP
should be intimated to all the political parties to facilitate a transparent security
environment.
● It is to be noted with concern that, despite repeated instructions and letters to
candidates, their seriousness towards following SOP is not as desired. In future,
for more effective compliance, nodal officers of the rank of inspectors/sub-
inspectors should be designated for each candidate. Nodal officer will remain in
touch with the candidate, take his location from time to time, get his next day’s
program and will intimate the control room, relevant police station and SDOPs.
● Similarly, VIP visits and bandobast arrangements for public rallies should not be
left to the political parties, owing to election expenditure booking considerations
and citing code of conduct. Security cannot be compromised.
● Support from PWD, Health and Forest department is required for making
requisite security arrangements. DM/SDMs should be instructed to play proactive
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role to instruct these departments to cooperate with police to ensure foolproof
security arrangement.
7. INFRA/RESOURCES:
Conduct of elections in LWE areas requires mammoth logistics arrangements. State
governments should make adequate budgetary provisions to handle such arrangements.
The deployment locations should be finalized by the DEO much in advance. Minimum
basic facilities like toilets, water supply, accommodation, electricity, communication, etc.
should also be ensured. For example, adequate budgets for defense material (Sand bag,
Balli, tin sheet, concertina coil, Barbed wire coil, Halogen lamp, electric wire, flexible wire,
generator set etc.) should be provisioned. Modular plastic toilets should be made
available in large quantities.
8. TRAINING:
● Training syllabus for induction should be designed for 3-7 days depending upon
the exposure of the forces to similar field threats.
● Training syllabus should be carefully designed to include only aspects that will be
of immediate use for election purposes only.
● Pre-Induction training of all the arriving forces should be conducted for the
specified period to familiarize them with routes to polling booths, tactics, terrain
and necessary do's and don'ts for operating in the area. Focus should be on
counter IED training.
● Each district can prepare a training programme based on its local conditions.
Resource persons and best trainers should be shortlisted much in advance and
deployed for this purpose.
● Training should include initial briefing at holding areas followed by field training
at the area of deployment. Training program should essentially focus upon the
precautions to be taken, SOPs to be followed, to know the area where they are
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going to be deployed. Training sessions should be more of briefing sessions.
Weapon training or GPS training in that short time and with very limited
infrastructure for force under transit is not practical. By the time companies arrive
in the district, campaigning already comes to full swing and force requirement
gets multi folded for ROP, helipad area domination and bandobust duties on daily
basis
● Training should be ideally imparted at coy clusters to rationalize on scarce training
resources.
● Dos & Don’ts and area specific information brochure should be prepared in
advance and made available to each force on its arrival. Trainers to be deputed
from training institutes.
● Aside from training proper and regular briefings should be ensured by the state
authorities.
● Similarly, it is to be noted that, familiarization of incoming forces should be done
by local troops: This is essential for the incoming force to get familiarized with the
area. Once polling booth wise deployment plan is finalized, incoming deployed
force can dominate the area surrounding the particular booth which helps in
securing the area as well as boosting the confidence of incoming force for poll day
duty.
9. HELICOPTER OPERATION:
The demand of Helicopters of make and type should be worked out in advance, based on
actual field requirements and availability of secured helipads. The proposal should reach
the office of CEO at least one month prior to the polling day. Trial landings if required
should be carried out at least 15 days in advance so that necessary modifications in
helipads can be completed in time. Requisition of sorties for induction/de-induction of
EVMs/troops should reach the office of Nodal officer police at least 10 days prior to the
polling day so that efficient planning and allocation of resources can be achieved. All
DEOs/SPs should ensure that the Standard Operating Procedure already made available
to their office should be strictly followed.
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10. INTER-STATE/INTER-AGENCY COORDINATION:
Border meetings at the level of SP/DIG/IG should be held at least 3 months in
advance with the bordering states. State intelligence apparatus should be geared up for
effective intelligence collection, surveillance and sharing for the benefit of all the
stakeholders/sister agencies. Focus areas of cooperation (QRTs, CAS EVAC, border
sealing, domination of border areas, logistics support, etc.) should be identified,
documented and shared. Similarly, state level coordination meetings with the bordering
states should also be conducted well in advance. Inter-Agency coordination structures
should also be set up to ensure smooth delivery of election.
11. ESTABLISHMENT ISSUES:
The performance of an officer in LWE areas grossly depends on his acquaintance with
domain knowledge, kind of extremists outfits and friendly forces operating in that area.
Therefore, transfer and postings in such areas should be affected at least 6 months prior
to the imposition of MCC. The age profile also should be kept in mind at the time of
postings. Similar exercise should be followed for CAPFs.
12. WELFARE OF FORCES:
● Provision for Insurance, cashless Medical treatment, cas evacu, Air ambulance
support etc. for all men (government or private individuals) on election duty
should be ensured.
● Enhancement of medical facilities in these areas with deployment of more
Doctors from other parts of the state should also be ensured.
● Essential medicines to be kept in sufficient quantity at centralized holding area so
that requisite dose is administered to each individual under supervision of the
medical officer of local unit.
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● Arrangement with Hospitals for Cashless Treatment Specially for super specialty
treatment should be given in advance so that there is no confusion about where
the patient is required to be taken after medical evacuation.
● Distribution of food packets should be planned in advance.
● All the departments of the state government at the district level should be
instructed to facilitate the forces from their side for the smooth conduct of
elections.
● It has been often brought to notice that the forces deployed are not defrayed
honorarium as per instructions of the commission. It will be desirable that the
nominal rolls of all the forces should be acquired before the dispatch of the polling
parties so that the exact amount is disbursed in time.
13. INSTRUCTIONS FOR OTHER DEPARTMENTS OF STATE GOVERNMENT:
Role of all the other departments viz, education, forest, Police/Home Guard, Gram
Panchyat, Revenue, etc. should be clearly defined at the highest level. Checklist for each
department should be communicated in advance so that it gets communicated to their
respective field formations in advance. For example the responsibilities of various
departments can be clarified as under;
● Education: provide infrastructure and support for stay of additional forces and
act as facilitators for the incoming force.
● Magistracy: VIP visits and bandobast arrangements for public rallies should not
be left to the political parties citing code of conduct. Security cannot be
compromised. Support from PWD, Health and Forest department is required for
making requisite security arrangements. DM/SDMs have to play proactive role in
it.
● Health: District hospital/CHCs/PHCs are to play proactive role by making visits to
security camps as health facilities available at many deployment locations are
nonexistent. Supply of medicines and malaria kits should be ample.
● Food and civil supplies: Since market is very small, department should ensure
sufficient stock of essential food items and kerosene and LPG.
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14. FORCE MOVEMENT/ROLE OF RAILWAYS:
● Forces should inform the office of Force Coordinator and Nodal Officer before
start of journey.
● Movement plan of forces should be worked out by MHA much in advance, based
on which timely placement of special trains and splinter coaches can be planned
by Railway authorities.
● Demand for on board meals can also be projected to IRCTC.
● Train bookings to be done based on destination, deployment and de-boarding
stations.
● The scale of passenger bogies should not be less than 2 sleeper class bogies per
Coy, and 1 Bogie for TAC HQ.
● Minimum 2 - AC III tier coaches per special train must be provided.
● There should be appropriate coordination between Railways and ITCTC,
especially whenever the special trains are delayed for whatever reasons, for
supply of meals to the troops at appropriate times and place. (Added by Rajiv
Krishna)
● Railway stations have limited capacity to handle special trains in a day. Special
trains should be diverted to satellite railway stations. These should be clarified
before the start of journey.
● Railways to play a crucial role in planning & monitoring of smooth & timely
movement of these special trains.
● Issue of providing sufficient number of special trains need to be properly planned
beforehand especially during de-induction.
● Active cooperation of Railways is sought in this regard.
15. COMMUNICATION PLAN:
● In Maoist areas communication, being the lifeline, it should be accorded TOP
PRIORITY.
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● In order to achieve this, a joint command and control centre, as far as possible,
connected to the remotest polling booth should be established; so that timely
information of incidents can be shared with ECI/MHA, and all other stake
holders.
● Polling booths lying in communication (mobile/HF/VHF) shadow area should be
identified and such areas should be provided with satellite communication.
● Forces to be advised to carry sufficient number of communication equipment
both HF & VHF to remain connected even up to half section deployments.
● Satellite phones should be also mobilized in sufficient numbers by MHA.
● BSNL to be requested to make available one India Plan with free roaming within
India. Fixed cash vouchers can be issued to avoid changing of hand sets.
● A detailed Communication plan, with all polling parties/ polling stations should be
worked out in advance.
16. TRANSPORT/LOGISTICS/EQUIPMENT:
● State authorities should ensure that road worthy transport as per the laid
guidelines should be provided to the troops at de-boarding stations to further
places of deployment.
● These vehicles should have full fuel tank and be made available to the Coys at
Railway Stations.
● Spare vehicles to be arranged en route to handle contingencies.
● A spare driver and a fitter along with frequently used spare parts with each Coy
will prove to be useful.
● For night domination and road security sufficient night goggles, NVD, Monocular
with cells along-with sufficient motor cycles should be provided to deployed units.
● For effective utilization of the troops timely accommodation and other logistics
as per laid provisions should be provided.
17. EVM GUARDING:
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One coy of CPF should be provisioned for EVM Guarding. CCTV coverage should also be
ensured.
18. INFORMATION SHARING PROTOCOL
Password protected online documents sharing system can be put in place for prompt
dissemination of information to the field and higher formations.
19. CO-ORDINATING ROLE OF MHA:
● MHA should issue detailed instructions to all the respective forces with regard to
carrying of requisite arms/ammunitions, communication equipment, medicines,
dispatching of young detachments, keeping age profile in mind, etc.
● Incoming troops to be properly equipped with area weapons and special
equipment as per the ground realities of Maoist (example Bastar region). In
Chhattisgarh Assembly elections CISF/RPF/SAP troops were carrying
pistol/carbines which are not suitable for Bastar.
● Instruction should also be issued by MHA much in advance, to respective forces
to get BD Squads, requisite weapon/Ammunitions /accoutrements
/wireless/satellite phone etc. In Chhattisgarh State for example, terrain is very
critical and effective weapon is of high trajectory like-Mortar, Rifle grenade and
UBGL.
20. EFFECTIVE USE OF MODERN TECHNOLOGY:
● Use of GPS devices to track Polling/Security movement.
● HAM radios
● Use of Vehicle mounted mobile towers.
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● Use of DSPT (satellite phones)
21. TRANSPARENCY MEASURES:-
● 100% Photography/videography of relocated booths and remote areas
booths.
● Deployment of Static magistrates
● Deployment of Micro observers.
● Effective use of Zonal and sector magistrates.
● EVM storage security measures to be publicized.
● Use of Signage in local languages at polling booths.
23. PHASING:
Phasing of elections is done to augment security and security resources. Argument given
against phasing within LWE areas is that Maoists also can move to other areas. This
argument is not wholly correct. In these areas primarily, the amount of force made
available is the main deciding factor for successful election. Maoists generally, select very
few targets and strike with exemplary dimension which will create cascading effect at
other places in terms of morale.
So, phasing within the state having LWE is required. If force provided is extremely less,
then phasing within the PC may also be recommended. However, phasing within the
district should be avoided.
24. OTHER INSTRUCTIONS:
a) Deployment locations and setting up of additional security camps should be
planned by the DEO/SP much in advance but without making it public.
b) Force deployed at each polling station should have its temporary defenses
prepared to prevent bold attacks and long distance sniper fire. Frisking at polling
booths to be done as per threat perception.
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c) Marrying of polling party with security personnel should be minutely planned.
d) Change in Poll Timing should be planned much earlier.
e) Detailed instructions should be issued for night halt for EVM parties. Early
dispatch/night stay report should reach in time. Nodal officer of such parties to
stay in the camp.
f) The time of dispatch of Polling parties by various means (foot /by
Helicopter/vehicle) should be decided much in advance and communicated to the
CEO.
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CHAPTER XXI
EXECUTION: FORMING CLUSTERS OF STATES FOR POOLING STATE POLICE
MANPOWER IN PLACE OF CAPF IN NON LWE AREAS
a) Identification of Zone-wise clusters for inter-state sharing of State Police
Force.
The use of Central Police Force in conduct of election is now almost a regular feature in
most of the States. Political parties across the board demand CPF and its deputation for
conduct of free, fair and peaceful election. The demand of deputation of CPF is largely
driven by the perception that State police may play a partisan role in conduct of election,
whereas CPF coming from other places do not have any local linkage. This demand has
generated an acute shortage of CPF in conduct of elections. In this context, State Police
of other States are mobilized for its deputation to the election going State as CPF. Inter-
State sharing of police forces will reduce the burden of CPF on one hand and it will lead
to more credible election on the other hand.
This arrangement is being done in Assembly elections of various States. Now it is
imperative to form Zone-wise clusters for inter-state sharing of State Police Force in case
of Assembly elections / Lok Sabha elections.
These zonal clusters can be classified into the following four zones:
1. East Zone- Bihar, Orissa, Jharkhand, West Bengal,
Assam, Sikkim, Nagaland, Meghalaya, Manipur, Mi
zoram, Tripura and Arunachal Pradesh
2. West Zone - Rajasthan , Gujarat, Daman & Diu, Dadra and Nagar
Haveli Maharashtra, Madhya Pradesh and
Chhattisgarh
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3. North Zone- Jammu and Kashmir, Himachal Pradesh, Punjab,
Uttarakhand , Uttar Pradesh, Haryana, Delhi and
Chandigarh
4. South Zone - Goa, Andhra Pradesh, Telangana, Karnataka,
Kerala, Tamil Nadu, Pudduchery, Andman and
Lakshadweep
Every zone will prepare a broad outline regarding creation of zonal reserve of
State Police Force considering the strength of police force in each State and the number
of State Police Force, which can be spared for election in other State of the Zone. In case
of simultaneous election, more State Police Force may be mobilized and exchanged for
conduct of election and such numbers should also be mutually agreed upon and fixed by
the zonal committee.
b) Inter-state consultation for availability and deployment of state police man
power and SAP/ Home Guards.
There will be a meeting of all zonal committees at the ECI in which Home Secretary, DGP
and CEOs of each zone will be called to discuss the zonal State Police reserve and sharing
of State Police Manpower for elections. This meeting will be held at least once in a year.
In case of election in any State within the zone, State Police Force of the zonal reserve
from all other States except the election going State will be mobilized for the election in
that State as CPF. This may happen in case of simultaneous election in more than one
State within the zone or in Lok Sabha Election.
These State Police Forces in general will be deployed in non-LWE areas only. Specialized
State Police Force, which has been trained for anti-naxal operations may be deployed in
LWE areas of other State only after specific permission from ECI and with due caution.
Inter-State sharing of State Police Force will also require comprehensive pre-induction
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training by the State Police Nodal officer / State Police Nodal Officer (CPF) regarding their
role in election, local custom, briefing about the areas going to poll and other SOPs.
A joint coordination committee comprising CEO/Additional CEO, State Police Nodal
officer, State Police Nodal Officer (CPF), State coordinator of BSF, SSB, ITBP, CISF and all
other State Police Forces is required to be formed for co-ordination, communication and
command purposes. Under this JCC (Joint Coordination Committee) a central
communication centre will be formed with its headquarters in the capital city of the
election going State with round the clock facility of communication for resolving any issue
related to CPF and other State Police Forces, who have been deputed for the election.
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CHAPTER XXII
OTHER CRUCIAL ACTIONS:
1. Motivation of the forces (covered in detail under the heading Force
Multipliers)
● Pre-induction training
● Mandatory briefing by DEO-cum-DM and SSP/SP of the district
● Sufficient time gap between different phases of poll
● Participative decision making – coordination meetings at State/ district level
● Effective role of Railways and IRCTC
● Proper medical cover earmarking of super specialty hospitals, cashless
treatment, air ambulance, helicopter etc.
● Timely revision of various orders such as ex-gratia compensation, uniformity
in remuneration
● Effective use of modern technology
● Proper accommodations and logistics support
● Visit of Senior officials for monitoring the facilities provided to CPF at the place
of accommodations in the district
● Preparation of pre/during/post-poll daily movement plan for CPF
● Recognition by ECI for good recoveries
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2. Risk Management
Risk in terms of security management of elections, is the possibility that the execution
of the deployment plan may not be accomplished as something unexpected occurs. The
process of identifying possible risks, assessing their potential impact, developing and
implementing plans to minimize the negative effects of changes are a part of risk
management exercise.
Therefore, Risk Management is an integral component of any policy prescription. It has
two objectives:
(1) To ensure that risk reduction strategies are mainstreamed in the policy itself;
and
(2) To ensure that the mechanism of execution has necessary resilience to cope
up with any exigency.
Two instruments are applied for achievement of these objectives: mitigation and
adaptation.
● Mitigation allows to build necessary risk reduction elements in the institutional
and execution at the conception stage itself. Based on local intelligence,
geography, historical background, socio-religious factors, and political
potentiality mitigation measures need to be chalked out for specific deployment
design and its execution.
● Adaption depends on the resilient capability of the particular institutional
framework and executing machinery in the face of any eventuality and
exigency. The deployment manual may require sufficient flexibility, with
suitable safeguards, to inculcate a culture of resilience to carry on with the task
in hand without any disruption.
Broadly, risks are driven internally as well as externally. In the context of security
management of elections, the drivers of these risks can be depicted in the following
form:
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Drivers Risks
Strategic Risks Operational Risks
Hazard Risks Enemy Risks
INTERNAL drivers
Knowledge capital Historical events
Terrain
Institutional capability
Training Morale
DM plans
Preparedness level Resilience level
Local intelligence
Resource availability
SOP
EXTERNAL drivers
Leadership change
Synergy Natural events LWE
Border
Anti-Social
Any risk management exercise, invariably, comprises following steps:
I. Risk Assessment
● Risk Analysis
o Risk Identification
o Risk Description
o Risk Estimation
● Risk Evaluation
II. Risk Reporting
● Threats and Opportunities
III. Decision
IV. Risk Treatment
V. Residual Risk Reporting
VI. Monitoring
For the purposes of security management, it is imperative that the district election
officer maintains a risk profile incorporating the outcome of risk assessment,
vulnerability analyses, DM plan, and other relevant input. The districts are already
categorized in the national vulnerability atlas on the basis of hazard potential,
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maintained by GoI. Also, most of the districts have district gazetteers indicating the
previous sensitivities which need to be supplemented by the electoral events. The
Commission’s instructions lay down the methods of collection of previous incidents
that may have a bearing on the security management during elections. All such input
needs to be collated in a scientific format for better analyses, easy retrieval. Every
district may be advised to maintain two folders: Every district may be advised to
maintain two folders: one, concerning general risk profile; two, SOP for each identified
risk.
There are three types of risks that we need to identify and plan for mitigation:
● Risks that arise from factors under our control: examples, lack of training, poor
procedures/processes, unplanned resources, etc.
● Risks that arise from within and which are controllable: examples, failure to
communicate a crucial decision on time, failure to register security personnel as
electors on time, etc.
● Risks that are uncontrollable: examples, a natural disaster such as cloud burst/
floods, outbreak and escalation of local conflict
A suggested format for a Risk Register to be maintained at each district is given below:
Part 1:
Likelihood Impact
High - certain High – most
probable
Medium -
possible
Low - unlikely
High - certain 1
2
3
4
1
2
3
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High – most
probable
Medium -
possible
Low - unlikely
Part 2:
Risk
description
Likelihood Impact Action
to be
taken
Person
responsible
for taking
action
Person
who will
monitor
Risk
review
date
3. Confidentiality
21/10/2015 464/L&O/
2015/EPS
Instruction of Press
Conference during
elections – regarding
● No Press Conference-Media
briefing – sharing of details
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of deployment of security
forces in public domain.
● Any information to media
will be given by Commission
or the CEO/s, if required.
4. Electoral registration of the forces and Postal Ballots
1. Electoral registration of the forces and Postal Ballots :
a) Voters entitled to vote by post (Sec. 60 of RP Act., 1951; Sec.20 of RP Act, 1950;
R. 17, 18(a) & (c), 20-21 & 27B of CE Rules, 1961) -
i. Service Voters (including their wives) -
(except those who opted for proxy voting)
ii. Special Voters - (including their wives) who
are holding declared offices. [List of such declared offices is given
in footnote below at Sec. 20 of RP Act, 1950].
iii. Electors subjected to preventive detention.
iv. Electors on election duty – Persons and
Staff who are specifically assigned any official work in connection
with elections on the day of poll & cannot be able to vote at normal
PS. These include all police personnel (except those on leave), HGs,
DEOs/ROs/AROs & their Staff, Control Room Staff,
Videographers/Staff of EEM Teams/ ZOs/SOs, BLO, MOs,
Drivers/Cleaners, etc. also. (ECI’s No.52/2012/SDR dt. 01.11.2012)
v. Notified voters (if any).
b) Uniform common design of postal ballot papers (R.22, 30 of CE Rules, 1961;
Ch. X of RO Hand Book) - Design of Postal Ballots for all categories shall be
common.
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c) Smooth Management of PBs for Persons on Election Duty (Based on ECI’s No.
52/2013/SDR Dated 26.03.2013 issued to
CEO Karnataka and ECI’s No.52/2013/SDR dt. 18.06.2013 to all CEO’s)
d) Flow-charts for Smooth Management of PBs of various personnel on election
duties -( See annexures- XYZ)
e) Specimens of various important Forms- FORM 12 A, FORM – 12 B, FORM – 12,
FORM – 13 A, FORM - 13 B (Cover- A), FORM - 13 C (Cover – B). (See
Annexure- 22.1)
f) Appointment of Nodal Officers for postal ballot-
To handle various issues related to postal ballots, several nodal officers
are required to be appointed at-
i) State level
II) DGP office level
iii) District level
iv) At AC level
v) Every Police Force/Organisation level
vi) Postal Department level
g) Preparation of Database-
(i) Database of Police personnel, whether they are to be
deployed in poll duty or not, should be prepared.
(ii) Database of Home Guards to be put on poll duty should
also be prepared.
(iii) Along-with other information about No. & name of AC, No.
& Name of PS, Sr. No. in Part where the person is enrolled
and EPIC of each person should be captured in the
database.
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(iv) Cell phone number and E-mail Ids, if any, of all persons shall
be collected and stored in the database.
(v) The software for preparation of this database shall be made
available by CEO.
(vi) The work of preparation of database should be completed
about 3 months before election.
(vii) The database should be prepared preferably in Excel sheet.
The database should contain address (office & residence)
with PIN CODE, designation & basic salary details.
(viii) The database should also have fields for capturing
information about No. & Name of AC, No. & Name of PS
where the persons will be put on duty, the location of
facilitation centers.
(ix) The facilitation center and training center will be same. If a
person is to be called for training more than once,
information about all the trainings should be captured in
the database.
h) Checking of the enrolment status of person in the database:-
Enrolment of a person can be found by using search facility provided on
CEO’s website based on EPIC/Name/Locality.
i) Corrections in electoral roll entries-
(i) Based on search, if any correction in roll becomes necessary,
appropriate forms should be got filled and correction be made
following due procedure-
(ii) In case person is not enrolled at all or enrolled at a place other
than ordinarily residence, ERO should take immediate steps for
enrolment at the place of ordinarily residence.
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(iii) They should be enrolled once only and all of them should have an
EPIC.
(iv) DEO should monitor this on a daily basis.
(v) It should be made clear to Govt. employees, by a circular, that
enrollment at more than one place is an offence, and that a person
is to be enrolled only at the place of ordinarily resident and not at
native place.
j) Postal Ballot for Police Personnel -
(i) All police force from Constable to DGP are notified under Sec.28A
of R. P. Act, 1951 as on deputation to ECI during election period.
(ii) On the basis of judgment of Hon’ble Madras High Court dated
22.08.2012 all police personnel, except those on leave during the
election period, are treated as personnel on election duty and
hence entitled to vote by Postal Ballot.
k) Form 12 - Distribution of pre-filled Forms and collection of signed forms–
(i) The SP should prepare the database of all police personnel
(including home guards, to be deployed on election duty).
(ii) Enrolment status of all police personnel to be collected in the
database.
(iii) Pre-filled Form-12 shall be delivered to the police personnel along
with his duty order or by any other means at least 15 days before
the poll.
(iv) Police personnel have to submit Form-12 for availing the facility of
PB, so as to reach RO at least 7 days or such shorter period as the
RO may allow before poll. (u/r 20(1)).
(v) SP/Nodal officer of Police shall arrange to collect duly filled-in &
signed Form-12 from police personnel at least one week before
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poll. This can be combined with training of police officer on poll
duty.
(vi) SP should organize a special facilitation camp for police officers for
casting PBs.
(vii) One Gazetted officer for attestation of Declaration in Form-13A at
Facilitation Camp.
(viii) Register for correct account of PBs issued.
(ix) A ballot box shall be kept at the facilitation centre and police
officers who have been issued PB should deposit PB in this box
after marking.
(x) A note should be printed at the bottom of Form-12, that the
employee should check it and make corrections, if any.
(xi) Form-12 should be distributed to police personnel through the SP.
l) Issue of Postal Ballots-
(i) The RO should prepare PBs for all police personnel in anticipation
of receiving filled-in Form 12 duly signed.
(ii) RO shall depute one Officer to deliver prepared PBs to Police
personnel.
(iii) Prepared PBs should be given to this officer in advance so that PBs
can be delivered as soon as duly signed & filled-in Form 12 received
from police personnel.
(iv) The officer will issue PBs after verifying identity of voter concerned
based on EPIC or any other photo ID.
(v) Employees are generally not sent for election duty outside their
district. If however it becomes necessary to send a PB to a
Facilitation Center outside the district the DEO will coordinate with
the DEO of the other district.
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m) Procedure at the Facilitation Center (FC)–
(i) One senior officer as OIC of PB at each FC.
(ii) All Recognized Political Parties will be informed by DEO in writing
the schedule of facilitation of postal balloting at FC. They shall be
allowed to send their representatives to witness the facilitation
process.
(iii) In each training session, after training is over, at least 2 hours shall
be set apart for facilitation of postal balloting.
(iv) Arrangement shall be made for candidates to sit and watch the
process of facilitation without interfering with the process. If any
person interferes with the process of facilitation, the OIC of
facilitation can order such a person to leave the premises
immediately.
(v) Voting compartments (as in a PS) shall be made in each FC for
marking the PBs by employees in complete secrecy. Arrangement
of glue/gum also be made to seal the envelopes.
(vi) At least one gazetted officer shall be put on duty by the DEO at
each FC to attest the declaration in Form 13A based on the
identification of the voter by his identity documents.
n) Process of Postal Balloting-
(i) After receiving his PB, the voter shall go into the voting
compartment and mark the PB in secrecy. He shall then keep the
marked PB in the inner envelope (Form 13B) and seal it properly.
(ii) The voter shall then sign the declaration in Form- 13A and get it
attested by a gazetted officer. He shall write the serial number of
the PB paper if not already filled up in Form 13A.
(iii) He shall then keep the inner envelope (Form 13B) and the signed
& attested declaration in Form 13A in the outer envelope (Form
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13C) and seal this as well. The voter will then cast his PB in the
Facilitation Ballot Box.
(iv) Proper security arrangements for PB center/voting area should be
made. Entry must be restricted only by Valid ID Proof/EPIC, at the
Training center & especially at PB center.
(v) The Police Observer must be requested to visit the venue.
o) Sorting of PBs –
(i) After all PBs for the day have been cast, the box will be opened by
the OIC of FC in the presence of the representatives of political
parties. All the PBs will be taken out of the box and the empty box
will be shown. The PB envelops will be sorted AC wise and the
number of PB envelopes received for each AC will be entered in a
register in prescribed Format.
(ii) Representatives of political parties present will be asked to put
their signature on the register. A copy of the relevant pages be
given to them.
(iii) All PB envelopes for one AC shall be kept in one large envelope.
The name of the Facilitation Centre, the date of Facilitation, the
number of PBs contained therein and no. & name of AC will be
clearly written on this envelope.
(iv) This envelope will then be sent to the concerned RO along with a
copy of the relevant pages of register through special messenger
appointed by RO for this purpose not below the rank of Naib
Tahsildar.
(v) Videography - The entire process of postal balloting will be video-
graphed.
p) Sending PBs to the counting center -
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(i) Where the counting is done at a place other than the RO
headquarters, the PBs will be transferred to another strong room
for the PBs for that AC at the counting centers, one day before the
day of counting.
(ii) This box will be carried under guard of armed CPF to the strong
room for PBs at the counting center. Candidates and their
representatives shall be allowed to follow the vehicle carrying PBs.
(iii) The box will be kept in the strong room for PBs at the counting
center in the presence of the candidates/representatives. Strong
room will then be sealed and signatures of candidates/
representatives shall be taken.
(iv) Candidates/representatives shall be allowed to keep watch on the
strong room for which they will be provided reasonable facilities
by the DEO.
Ø Whole process will be video graphed.
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CHAPTER XXIII
MISCELLANEOUS
a) Ex- gratia payments on injury/death on election duty – Commission’s directions
and checklist of actions to be taken by states
(ECI’s instruction No. : 218/6/201 4/EPS dated the 25th March, 2014 and 25th April, 2014.)
The commission vide its letter of even number dated 25/03/2014 has revised the earlier
slabs (as envisaged vide its order No.: 218/6/2009/EPS, dated 17/2/2009) for ex-gratia
payment in the event of any mishap to the election related officials. The revised slabs are
as follows:-
➢ Amount of Compensation in case of Death:
I. An amount of Rs.10 lakhs as the minimum amount to be paid to the next of kin of
the official in the unfortunate event of death of the official while on election duty.
Il. If the death is unfortunately caused due to any violent acts of extremist or unsocial
elements like, road mines, bomb blasts, armed attacks, etc. the amount of
compensation would be Rs. 20 lakhs.
➢ Amount of Compensation in case of permanent disability:
III. In the case of permanent disability, like loss of limb, eyesight, etc. a minimum ex-
gratia payment of Rs.5 lakhs would be given to the official (which would be doubled
in the case of such mishaps being caused by extremist or unsocial elements as
aforesaid).
● The commission has further clarified that the following clarifications may be taken
in to consideration while sanctioning Ex-gratia compensation. :
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➢ To whom it will apply :
Payment of ex-gratia compensation to family of polling personnel who die or
sustain injuries while on election duty will be applicable to all personnel deployed
in all types of election related duties, all security personnel including (CAPFs, SAPs,
State Police, Home Guards, etc.), any private persons like drivers, cleaners, etc.,
hired for deployment for election duty. (The category of persons has been defined
vide Commission's letter No. 218/6/98/PLN-l dated 25/11/1998 &
No.218/6/2003PLN-l dated 06/02/2003).
Payment of ex-gratia compensation prescribed by the Commission vide its letter
dated 25/03/2014 will also be applicable to the CAPFs/SAPs and other security
forces personnel deployed for election duty and this will be in addition to the
compensation already being paid by the MHA under extant guidelines issued by
DoP & PW, MHA and state Governments.
➢ When it will apply :
The applicable period of election duty would start from the date of the
announcement of the elections.
➢ Period of Election duty:
It is clarified that it would be reasonable to consider a person on election duty
as soon as he/she leaves his/her residence/office to report for any election related
duty including training and until he/she reaches back his/her residence/office after
performance of his/her election related duty. If any mishap takes place during this
period, it should be treated as having occurred on election duty subject to condition
that there should be a causal connection between occurrence of death/injury and
the election duty. (As explained in Commission's letter No-218/6/2006/EPS dated
05/11/2008)
➢ Expenditure to be borne by :
The expenditure on account of payment of ex-gratia compensation to the polling
personnel is (i) wholly borne by Government of India during elections to Lok Sabha
(ii) By the State Government during elections to Legislative Assemblies and (iii)
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Shared on a 50:50 basis during simultaneous elections to Lok Sabha and Legislative
Assembly by the Government of India and concerned State Governments. The
Share of the Government of India is paid by the Ministry of Law, Justice & Company
Affairs (Legislative Department). (As explained vide Commission's letter No.
218/6/96-PS-II dated 08/10/1996).
It may be further clarified that in case of Lok Sabha elections, the payment of ex-
gratia compensation shall be made by the State Government initially and the claims
shall be made to the Government of India later on.
➢ Tracking of cases:
The CEOs and DEOs shall track death/injury cases and send a consolidated
report from time to time to the Commission.
➢ Illustration of required documents for considering cases:
(a) Copy of order of competent authority appointing the person on Election
Duty.
(b) Medical certificate by competent medical authority in case of permanent
disability/Death
(c) Copy of Post-mortem report, in case of Death (if P.M. is done).
(d) Copy of F.I.R. and inquest ‘panchnama’ (if lodged/done).
(e) A certificate by competent authority regarding heirs of the deceased, in
case of death.
(f) Clear opinion/recommendation of DEO towards the case.
b) Frequently Asked Questions
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FREQUENTLY ASKED QUESTIONS
Q.1 What is the main objective of deployment of forces?
Ans. The main objective of deployment of forces is ……………
Q.2 Forces are under whose control after they are deployed?
Ans. During the course of deployment, State and Central forces come under
direct superintendence, direction and control of Election Commission of
India for all purposes.
Q.3 Which are the phases of Force Deployment?
Ans. The forces are deployed in 3 different phases viz., Pre-poll Deployment,
Poll day Deployment and Post-poll Deployment.
Poll day deployment is generally done in following four forms.
(i) Static deployment,
(ii) Mobile deployment
(iii) Police Station/Control room deployment and
(iv) Reserve deployment
Q. 4 The requirement of security personnel depends upon which parameters?
Ans. It mainly depends on the guiding principles for deployment, number of
PSLs, law and order situation, LWE areas and phases of election,
vulnerability and criticality of the PS area.
Q.5 Which agencies / offices play a role for force deployment?
Ans. At Election Commission of India level, the concerned Deputy Election
Commissioner and General Observer; At Central Government level, the
196
Ministry of Home Affairs, Ministry of Railways, Ministry of
Telecommunication; At State Level, Chief Electoral Officer, Chief Secretary,
Home Secretary, Director General of Police, State Police Nodal Officer,
State Force coordinator and at district level concerned District Election
Officer, District Magistrate and Superintendent of Police / Commissioner
of Police play a major role for force deployment.
Q.6 Which basic amenities are to be provided to CPF Personnel?
Ans. Food, accommodation, transportation, communication means (e.g. Sim
card to Coy Commanders), route maps etc. are to be provided.
Q.7 Which factors are to be taken into account while identifying critical polling
stations?
Ans. · Percentage of Non-EPIC voters;
· missing voters;
· worry list;
· more than 90% voting and more than 75% votes in favour of one
candidate in last election;
· Re-poll due to malpractices;
· Previous electoral violence;
· Anti-social elements and their areas of influence etc.
Q.8 When to initiate the exercise of vulnerability mapping and by whom?
Ans. The DEO will initiate the exercise of VM with the help of Sector officers,
local police and election officers at AC level, soon after the declaration of
election.
Q.9 Can poll be started without CPF?
197
Ans. In all cases where CPF has been assigned static guard duties but could not
reach the assigned polling stations due to any reason, the poll shall not
commence.
Q.10 Which is the major pre-poll activity of CPF?
Ans. Area domination – where CPF takes out Flag marches, point patrolling and
other confidence building activities.
Q.11 Which are the major duties of CPF on poll day?
Ans. Static guarding of PS, patrolling duty of PS area and escorting duty of
polled EVMs are the major duties of CPF on poll day.
Q.12 What is the meaning of “Static Guard duty in an Oscillating mode”?
Ans. “Static Guard duty in an oscillating mode” is a situation when a building
has multiple polling stations and CPF deployed is not sufficient to cover
every polling station door. In such a situation, the CPF jawan on duty at the
entrance of the polling station may be asked to oscillate from one polling
station door to another and keep eye on those polling stations.
Q.13 Can local state police supervise the CPF in solely and exclusively CPF
assigned polling stations?
Ans. No. Any officer of the local State police with or without contingent shall
not position at such polling station and cannot exercise any supervision
and control over the CPF at such polling stations. However, one or two
unarmed local police personnel can be posted in such polling station
premises so that reinforcements of local police can be called, if required.
Q.14 What is the role of CPF on mobile patrolling duties?
198
Ans. To ensure the fidelity of the election process moving from one polling
station to another and assist the sector officers to accomplish it in a more
effective manner.
Q.15 Which information is necessary to be provided to CPF for route patrolling?
Ans. For mobile/route patrolling duty, the CPF shall be provided sector route
maps (sketch) of each sector/route under their charge. The sketch should
indicate the polling station’s locations, their sensitivity gradation, Name
and contact no. of sector officer / Returning Officer / Observers etc.
Q.16 What is the duty of flying squad?
Ans. The squad will be fully and constantly mobile and undertake random
surprise checks on polling stations falling within the area and report to the
district control room on their findings. They shall not be attached to any
polling station or sector in particular.
Q.17 In case of non-availability of sufficient CPF, what should be the
arrangement?
Ans. The local State armed police can also get deployed at polling stations when
enough CPF is not available under the specific instructions of the ECI
through its Observers. In such cases, the local police shall not stand at the
entrance door of the polling stations.
Q.18 Who is authorized to finalize the force deployment plan of district?
Ans. The Observer after taking review meetings with the District Election
Officer / Superintendent of Police / Returning Officer / Sector Officer on
the draft proposals will finalize the plan and it shall be implemented by the
District Election Officer / Superintendent of Police without any deviation.
199
Q.19 Who is responsible for maintenance of General law and order?
Ans. The local state police shall remain responsible for maintenance of general
law and order in the catchment area of the polling stations, as well as the
inside and outside of the polling premises (as different from polling
stations).
Q.20 Who will provide transport facility to troops of CPF mobilizing to adjoining
states?
Ans. The Home Department of state and the DGP with the help of state Nodal
Officer for Forces Coordination from where the force is being mobilized
shall provide road transport to the destination of CPF up to the limit of 500
kms. If the distance is more than 500 kms. Rail transport is to be arranged.
The Chief Secretary of the state and the CEO will monitor this.
Q.21 Who will brief to CPF personnel?
Ans. If the deployment is in a police station, the SHO shall brief. If it is in a
district, the District Magistrate and Superintendent of Police will brief CPF
with respect to the challenges in the area, the appropriate responses, the
do’s and don’ts etc.
Q.22 Who will look into the matter of CPF facilities?
Ans. State Nodal Officer (of the rank not below Inspector General of Police in
state Government) will look into the matter of CPF facilities like
accommodation, logistic, welfare measures, compensation / insurance,
packed lunch etc.
Q.23 What is the meaning of “vulnerability” in the context of elections?
200
Ans. Vulnerability in the context of elections is defined as the susceptibility of
any voter or section of voters to being wrongfully prevented from or
influenced upon in relation to the exercise of his right to vote in a free and
fair manner through intimidation or use of any kind of undue influence or
force on the voter.
Q.24 Which are the stages of Vulnerability Mapping (VP) exercise?
Ans. The VM exercise takes place in three stages viz.
(i) Identification of the voters / segments of voters vulnerable to
threat or intimidation.
(ii) Identification of the persons causing such vulnerability.
(iii) Initiating preventive measures against the persons responsible
for causing vulnerability.
Q.25 When is the period for identifying the vulnerable area / segment / village /
hamlet?
Ans. It is to be identified after the issue of press note by the Commission and
before the issue of the gazette notification.
Q.26 What is the role of Sector Police Officer in VM?
Ans. Sector Police Officer will accompany the Sector Officer and jointly conduct
the exercise of Vulnerability Mapping in given area.
Q.27 The information regarding Vulnerability Mapping and Deployment of
security forces can be given to public?
Ans. No.
Q.28 What is the meaning of force multiplier?
201
Ans. It is a term commonly used in armed forces parlance, and refers to those
attributes which when applied to or utilized by a given force, make its
impact much huge and also makes it much more effective e.g. latest
equipments, training, good transport etc.
Q.29 What is the need of using non-CAPF measures?
Ans. With the increasing number of polling stations; the availability of CPF is
limited. Hence, we need to define certain non-CAPF measures that can
become effective force multipliers.
Q.30 Which technology is useful as force-multiplier?
Ans. Webcasting, Video / still cameras, CCTV, SMS monitoring etc. technology is
very useful as force-multiplier.
Q.31 What is the meaning of webcasting? What is its technology?
Ans. Webcasting simply means live streaming of video on the internet. The
simple technology needed is a video camera connected to the internet.
Q.32 Is any additional staff needed for webcasting?
Ans. Yes. One or more IT personnel will be needed in the office of District
Election Officer / Returning Officer and one additional polling officer will
be needed in polling stations where webcasting is done.
Q.33 Can webcasting be done inside the polling station?
Ans. Yes, subject to condition that “Secrecy of vote” is not compromised.
202
Q.34 Is there any limit prescribed by the Commission for maximum or minimum
number of video teams?
Ans. No. The Returning Officer has to decide it taking into account the no. of
electors; the size of constituency; the no. of sensitive polling stations;
previous history of booth capturing and corrupt practices and other
related factors.
Q.35 Whether private videographers / photographers can be hired?
Ans. Yes, subject to the condition that private videographers / photographers
hired by the District Election Officer should not belong to any political
party; should not be known sympathizers or supporters or close relatives
to any of the contesting candidates or leaders of any political party; and
should not have been hired by any political party or contesting candidates.
Q.36 Whether District Election Officer can use video / still cameras owned by
Government Employees?
Ans. Yes. The District Election Officer shall fix the hiring charges for them as
well.
Q.37 What is the method of placing the cameras at polling stations?
Ans. Cameras shall be placed in such a manner that they can record the voters
in queue, and the proceedings in the polling station, including the process
of identification of voters, application of indelible ink etc. It must be
ensured that secrecy of voting is not violated by camera in any manner.
Q.38 What is the principle behind the scheme of videography / photography?
203
Ans. The principle behind the scheme is to record critical events which are likely
to vitiate the poll and not to just videotape or photograph in a routine
manner only to fill the cassette or camera memory.
Q.39 What is to be video graphed after the poll process is over?
Ans. Following may be video graphed.
(i) Closure and sealing of strong room after deposit of EVMs.
(ii) Opening of strong room before taking out the EVMs for
counting.
(iii) Counting process.
Q.40 For how much period video/ still photo recording shall be kept?
Ans. It shall be kept in the safe custody of District Election Officer till the period
of filing of Election petitions is over; and in case an election petition is
filed, then till the final disposal of the petition.
Q.41 Whether copies of recording to be given to any other person?
Ans. Yes, copies of video and still photo recording can be given on demand, free
of cost to candidates and on payment of fee of Rs.100/- per CD to any
other person.
Q.42 Why CCTV as a Non-CAPF measure be used sparingly?
Ans. Because it is comparatively less cost effective.
Q.43 What is the most important feature of SMS monitoring system?
Ans. The most important feature of this system is that information at hourly
intervals till the end of polls, of votes polled in PSs, is to be furnished by
204
the Booth Level Officer, as a formatted SMS message, from his mobile
phone to Central server in the CEO’s office. Another important feature is
that it helps the PS officials communicate any untoward incident
immediately and it comes on record.
Q.44 Micro-Observers work under whose supervision?
Ans. Micro-Observers work directly under control and supervision of the
General Observer
Q.45 Whether Micro-Observers can act as presiding or polling officer?
Ans. No. In no case the Micro-Observer will act as presiding officer or the
polling officer.
Q.46 Who can be appointed as Micro-Observer?
Ans. Government of India employees (not below group C) as well as employees
of central public sector undertaking (not below group C) can be appointed
as Micro-Observer.
Q.47 What to do if the district has not adequate number of Central Government
employees to be appointed as Micro-Observers?
Ans. If it is so, the District Election Officer of such a district shall get the
database of Central Government / Central PSU employees from
neighbouring districts and can appoint those employees as Micro
Observers in his district.
Q.48 What are the conditions for randomization of Micro-Observers?
205
Ans. The conditions for randomization of Micro-Observers are the same as that
of presiding officers viz., they shall not be posted on duty in a polling
station within the same Assembly Constituency, where they are enrolled
as voters or where they are working. All efforts should, however be made
to put them on duty in the same Parliamentary Constituency where they
are enrolled as voters, to enable them to exercise their franchise through
EDC.
Q.49 Whether Micro-Observer can be used on more than one poll day?
Ans. Yes, In case of multi-poll day elections and in case of shortage of Micro-
Observers, they can be used for poll duty on more than one poll day.
Q.50 Whether Micro-Observers can be put on duty on more than one polling
station?
Ans. Yes. If the location has more than one polling station, the Micro-Observer
shall be responsible for all the polling stations at that location. There is no
need to post separate Micro-Observer in each polling station at one
location.
Q.51 What is the aim of security personnel training?
Ans. A peaceful election free from violence need not necessarily be a free and
fair election. Correct and unbiased implementation of the election laws
and Election Commission’s directions is necessary. As such, the main aim
of capacity building of security personnel is to familiarize them with
election laws and instructions for correct and effective implementation.
Q.52 When to prepare a deployment plan?
206
Ans. A broad deployment plan should be prepared at the time of
announcement, and then it should be detailed at least 15 days before the
poll day in consultation with the Observer.
Q.53 When to use the LOR portal?
Ans. LOR portal should be created and used during whole period of Model Code
of Conduct for daily law and order reporting from districts.
Q.54 Which plan shall include geography, terrain and weather condition of the
district?
Ans. District Election Management Plan (under the head district profile) should
invariably include geography, terrain and weather condition of the district.
Q.55 Who can be appointed as Nodal Officer-Communication?
Ans. Additional D.G. / I.G. – Communication in the State police can be
appointed as Nodal Officer-Communication.
Q.56 Which are the means of communication that can be deployed in elections?
Ans. Technological means such as landline phones, mobile phones, wireless
sets, satellite phones, internet, walky-talky sets and non-technical means
such as sector / zonal magistrates, runners, motorcyclists / cyclists etc. can
be deployed in elections.
Q.57. Which related agencies are useful for augmenting police strength?
Ans. Social forestry guards; Home-guards, Gram Rakshak Dal, NSS Volunteers;
NCC Cadets, Custom and Central Exercise Inspectors; Bus drivers of State
Road Transport Corporation; Industrial security force etc. can be useful.
207
Q.58 How Manpower Audit may be carried out?
Ans. It may be carried out 4 to 6 months in advance and maximum manpower
may be mobilized for election purpose. This is to be done by assessing
requirement of every category of election functionary; by preparing a
robust database; by planning leave period; by recalling people from
deputation / temporary attachment; by reducing the support staff etc.
Q.59 Which staff can be deployed on election duty?
Ans. Central / State Government staff; staff of local authority; staff from
University established or incorporated by/under a Central / State
Government Act; Staff of Government company and staff of Institution,
concern or undertaking which is established by / under Central / State Act
or which is controlled / financed wholly / substantially by direct / indirect
funds of Central / State Government.
Q.60 Which staff is not to be deployed in election duties?
Ans. CBI / IB / RAW officials; persons working in essential services; senior
officers of Indian Forest Service; Veterinary doctors / compounders ,
medical practitioner, Territorial staff of wild life / sanctuary; staff of AIR /
Doordarshan; Operational staff of BSNL / UPSC; Bank in rural area having
only one employee; officials against whom disciplinary action is
recommended by Election Commission of India or who have been charged
for lapses in election related duties; officials against whom criminal case is
pending etc. cannot be deployed in election duties.
Q.61 Can anyone engage children in election related activities?
208
Ans. No. Children below 14 years not to be engaged for any work connected
with the election process such as campaigning, carrying campaigning
materials etc.
Q.62 Who has to look after to effectively equip the police forces?
Ans. It shall be the duty of State Nodal Officer for law and order to effectively
equip the police forces. Before announcement of election, the I.G. (Law &
Order) shall look after this.
Q.63 How the Inter-State cluster of police manpower is vital one?
Ans. It is a vital non-CAPF measure as it might be eventually possible in such
states to conduct elections entirely in absence of CPMF, if such sharing is
done.
Q.64 Why is the Security Audit is necessary?
Ans. Security Audit is necessary as it can help to place in demand the quantum
of forces required for the elections, as lack of adequate force leads to
extended duty hours which results in fatigue and frustration among the
Security Forces.
Q.65 How is the exigency plan useful ?
Ans. It is useful in evacuation of wounded in case of an encounter, replacement
of Electronic Voting Machines in case of destruction and reinforcement of
forces in case of any emergency etc.
Q.66 What to be ensured to enable media as a force multiplier?
209
Ans. To enable media as a force multiplier, due access to election related data /
information to media is to be ensured. Apart from this, designing and
producing / procuring various materials for education of candidates,
political parties, media, voters is also vital.
Q.67 Why the State level deployment plan is necessary?
Ans. Preparation of Deployment plans must not be left entirely to the district
machinery. For the purpose of standardization and effective and optional
utilization of resources, it is necessary for the State to prepare an overall
State Deployment Plan.
Q.68 Is Deployment plan in LWE areas similar to that of non-LWE area?
Ans. No. No general standards can be drafted for LWE areas, as the challenges
are an area specific. As such, an area specific approach is required in LWE
localities.
Q.69 What is the need of 6 months early posting of an officer in LWE areas?
Ans. If the officer in LWE areas posted 6 months prior to imposition of MCC, he
acquaints himself with domain, kind of extremists outfits and friendly
forces operating in that area. This knowledge leads to his better
performance.
Q.70 What are the special needs of Communication in LWE areas?
Ans. In Maoist areas, the communication is the lifeline, hence, it should be
accorded top priority. Shadow areas need satellite communication. A joint
command and control central connected to the remotest polling booth
also needs to be established. Forces to be advised to carry sufficient
210
number of communication equipments both HF&VHF to remain connected
even up to half section deployments.
211
ANNEXURE 11.1
VM/Info – Information on each AC to be provided by DEO/RO to Sector Officer before
he/she undertakes the exercise of VM
1) Number of election offences registered in the last parliamentary elections in the
AC area (give details wherever required to be given)
2) Number of election offences registered in the last assembly elections in the AC
area (give details wherever required to be given)
3) Number of election offences registered in the last local body elections in the AC
area (give details wherever required to be given)
4) Number of serious criminal offences registered in the area, if any, in the last one
year (give details wherever required to be given)
5) Model code of conduct violations if any in the last parliamentary elections (give
details wherever required to be given)
6) Model code of conduct violations if any in the last assembly elections (give details
wherever required to be given)
7) Details of re-poll if any in the last few general elections or bye-election
8) Details of Prohibition law related cases
9) Details of pre-poll complaints if any related to electoral rolls of the AC
10) Details of any other pre-poll complaints
11) Details of cases violating the Narcotic Drugs and Psychotropic Substances Act
12) Information regarding more than normal migration in the recent months to and
from the AC area, if any
13) Voter turnout in the last Parliamentary elections:
● Male:
● Female:
● Overall:
14) Voter turnout in the last assembly elections:
● Male:
● Female:
212
● Overall:
15) Names of persons from AC area currently under externment or detained under
PASA, (give the details, if the information is not sensitive).
213
ANNEXURE 11.2
VM/SO – I: Performa for checking and determining vulnerability by Sector Officers
Instructions for filling this format:
1. This is an illustrative format and should serve as the initial guide for conducting
vulnerability mapping.
2. Any number of other local issues that have implications on vulnerability of the
concerned area can be added to this format.
3. The Sector Officer must not insist on disclosing the source/s of information if so
desired by the informants; and in fact will be responsible for its confidentiality.
1. Name of Village/Hamlet
2. Name and No. of Assembly Constituency
3. Name and No. of Polling Station/s and Village and area included
Name and No. of Polling Station The details of area included
4. Whether clashes between two or more castes/communities/groups have
occurred in the village during last one year? (if yes, details thereof)
5. Whether any incident/s have occurred in the village which have caused political
rivalry or political scuffle between two or more castes/communities/groups on
large scale? (if yes, details thereof and groups involved)
214
6. Whether any election related offences/incidents have occurred during last
Assembly/Parliamentary/Local body election? (if yes, details thereof)
7. Details of very serious offences like murder, rape, atrocity, rioting occurred/
registered during last two years in the village and person/ groups involved and
area in which it occurred.
8A. Name of person/s who have been externed or detained under PASA during last
one year.
8B. Name of person/s who are presently under externment or presently detained
under PASA.
9. Whether incidents of clashes are likely to occur considering the political situation
prevailing in the village and surrounding area. (if yes, the reasons thereof and
groups involved)
10. Whether any caste/ group/ household has apprehension that they will be
prevented from casting votes. (if yes, details of caste/ group/ household and from
whom and which type of threat they have)
11. General atmosphere from the perspective of women voters for casting of their
votes.
12. Whether women from any caste/community/ group/ household have fear that
they would be prevented from casting votes. (If yes, details of such type of
person/ household/ group and from whom and for what reason the fear they
have.)
215
13. Name and number of vulnerable polling station for any of the reason mentioned
above.
14. From which perspective the polling station is vulnerable? Whether vulnerability
is caused by any person or group.
15. Whether persons belonging to Nomadic tribes and/or to any excluded community
are residing in the village? Whether they have been intimidated by somebody?
Have any fear? If yes, by Whom? Give the name.
16. Whether telephone number of police station, control room, police inspector and
other important telephone numbers are provided by Sector Officers to vulnerable
persons? (Yes/ No)
17. Whether cases of temptation by candidate in form of cash, liquor, mobile
recharge, lunch etc. have come to notice in the village during last two General
Elections? (Please check in context of women and young voter).
18. Name and number of polling stations which are not vulnerable.
19. Other details, if any.
20. Details of village people in whose presence the above mentioned review is carried
out. (out of them, two elder people, two women and two youth and other people)
–
Note: These details are to be recorded only if the sources are ready to disclose
their details.
216
No. Name Residence of
which area in the
village
Signature
1.
2.
3.
4.
5.
Date:
Place:
Signature of Sector Officer
Name:
Designation:
Tel. No.:
Signature of Head Constable/ Assistant Sub
Inspector
Name:
Designation:
Tel. No.:
ANNEXURE 11.3
217
VM/SO –II A–Polling Station wise Format for enlisting Vulnerable Localities / Pockets /
Voter Segments and list of intimidators by Sector Officer
Sector Officer to note the following before filling this format:
1. The Sector Officer / Sector Magistrate has to fill a different Format VM/SO-II for
each Polling station in his Sector, and as many formats VM –SO as is the number
of Polling Stations in his Sector.
2. Each Format VM/SO-II must contain the details for all Vulnerable Localities /
Pockets / Voter Segments in one Polling Station area of the Sector.
3. It must be ensured and certified that no locality / pocket / Voter segment which
is vulnerable has escaped or been missed form inclusion in this format for any
polling station area.
Number and Name of the AC:-
Number and Name of the Polling Station:-
I. Name of the Locality:- Date of Information:-
A. List of Vulnerable House / Families
Sl.
No
House no. /
Family Name /
other
identifying
details of the
Household /
Family which
has Vulnerable
Voters in the
Locality
Number of Voters
identified as
Vulnerable in the
House / Family
identified in Col-2
Contact No.
of the
Household,
if any
Action Taken /
Proposed
Remarks
1 2 3 4 5 6
218
Total
B. List of Persons to be Tracked / Prevented from Intimidating / Wrongly
Influencing Voters:-
Sl. No Name of the
Person
Contact No. & Address
of the Person
Action Taken /
Proposed
Remarks
1 2 3 4 5
Total
II. Name of the Locality Date of Information:-
A. List of……………………….
B. List of………………..……..
III. Name of Locality:- Date of Information:-
A. List of……………………
B. List of…………………
IV………………..
219
ANNEXURE 11.4
VM/SO – II B – Summary of Polling Station wise enlisting of Vulnerable Localities /
Pockets / Voter Segments and of intimidators by Sector Officer
Sl. no Subject Total number
1. Total number of Polling Stations allocated
to Sector Officer
2. Total number visited
3. Broad period of visit covering all Polling
Stations
From…….to…….
4. Total number of households identified
with vulnerable voters in all the PS put
together
5. Total number of Voters identified as
Vulnerable in all the PS put together
6. Total number of persons causing
vulnerability identified in all the PS put
together
220
ANNEXURE 11.5
VM/SO-II C: Certificate by the Sector Officer / Sector Magistrate / Head Constable /
Assistant Police Sub Inspector
It is hereby certified that no locality / pocket / voter segment which is vulnerable from
the point of view of the ……………………..elections, ……………………………………..(year) in the
area of the polling station no………….., polling station name
……………………………………………………………………. which is included in my sector, has escaped
or been missed from inclusion in this format; and that my report is based on my personal
visit/s to the Polling Station area.
Sector Police officer Sector Officer/Sector Magistrate
Signature
Signature
Name
Name
Designation
Designation
Mobile number
Mobile number
Date:
Place:
221
222
ANNEXURE 11.6
Format VM/RO: Summary of vulnerability and list of persons causing vulnerability by
Returning Officer
Date:
Name of the District:
Number and Name of the AC:
A. AC Summary on Vulnerability
Sl.
No.
No &
Name of
Polling
Station
No. of Families /
Households
identified as
Vulnerable in the
PS area by the SO
Total Number of
Voters identified
as Vulnerable (in
households
identified as
vulnerable)in the
PS area in col.3
No. of Persons
Causing
Vulnerable in
the PS area
Action
Taken
1 2 3 4 5 6
Total
B. List of Persons Causing Vulnerability in the AC
Sl.
No.
Name of the Person
Causing Vulnerability
PS nos. in which
he is causing
vulnerability
Action Taken /
Proposed
Remarks in
any
1 2 3 4 5
Total
Signature of the Returning Officer:
Name of the Returning Officer:
223
224
ANNEXURE 11.7
Format VM/DEO: Report on identification of vulnerability, and action taken at district
level
Date:
Name of the District:
Table A
Identification of Vulnerability and Action Thereon:-
Sl.
No
AC
number
and
name
Total
number
of Polling
Stations
Total number of
Polling Station/s in
whose area
Vulnerable Persons /
Families / Household
have been identified
Total number
of Vulnerable
Voters
identified in
these Polling
Station areas
Action being
taken to prevent
these Vulnerable
Voters from
being
intimidated or
wrong fully
influenced
before and
during the poll
1 2 3 4 5 6
Total
225
Table B
Report on Persons Causing Vulnerability:-
Details of Action Taken against
Persons mentioned in col. 3 (Numbers)
Sl.
No
AC
numb
er and
name
Total
number
of
Identifi
ed
Persons
Boun
d
over
Externm
ent
In
Custo
dy
Any other
action(wi
th
descripti
on)
Number
of
Persons
out of
those
mention
ed in col.
3 against
whom
no
action
has been
taken
Reasons
for no
action as
mention
ed in col.
8
1 2 3 4 5 6 7 8 9
Tot
al
Signature of the DEO………………….
Name of the DEO
Annexure 15
226
Table 1 - Location wise PS detail of City/District wise
S
r
.
N
o
.
Cit
y /
Di
str
ict
BUILDINGS T
o
ta
l
P
S
L
T
o
ta
l
P
S
P
S
_
1
P
S
_
2
P
S
_
3
P
S
_
4
P
S
_
5
P
S
_
6
P
S
_
7
P
S
_
8
P
S
_
9
P
S_
1
0
P
S_
1
1
P
S_
1
2
P
S_
1
3
P
S_
1
4
P
S_
1
5
P
S>
1
5
(
1
)
(2)
(
3
)
(
4
)
(
5
)
(
6
)
(
7
)
(
9
)
(
9
)
(
1
0
)
(
1
1
)
(1
2)
(1
3)
(1
4)
(1
5)
(1
6)
(1
7)
(1
8)
(1
9)
(2
0)
1 0 0
2 0 0
3 0 0
4 0 0
5 0 0
6 0 0
7 0 0
8 0 0
9 0 0
1
0 0 0
1
1 0 0
1
2 0 0
227
1
3 0 0
1
4 0 0
1
5 0 0
1
6 0 0
1
7 0 0
TOTAL
:- 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0
TABLE 1B- STRENGTH OF STATE POLICE FORCE
NAME OF SANCTION PRESENT UNDER VACANCY
WITH
VACANCY
WITH OUT
DISTT/UNIT STRENGTH STRENGTH SUSPENSION UNDER
SUSPENSION
UNDER
SUSPENSION
228
Table 1C - Vacancy Statement of Un-Armed Police Sub Inspector As On………….
S.
N.
Distri
ct /
Units
SANCTION
STRENGTH
PRESENT
STRENGTH VACANCY
UNDER
SUSPENSI
ON
MA
LE
FEMA
LE
M+
F
MA
LE
FEMA
LE
M+
F
MA
LE
FEMA
LE
M+
F M
1
2
3
4
5
6
7
8
229
9
10
11
12
13
14
15
16
17
TOTAL 0 0 0 0 0 0 0 0 0 0
Table 1D- Vacancy Statement of Un-Armed Police Sub Inspector (Other Units) As On
…………
Sr.
N
o.
Distri
ct /
Units
SANCTION
STRENGTH
PRESENT
STRENGTH VACANCY
UNDER
SUSPENSI
ON
MA
LE
FEMA
LE
M+
F
MA
LE
FEMA
LE
M+
F
MA
LE
FEMA
LE
M+
F M
1
2
3
4
5
6
7
8
9
10
11
230
12
13
14
Total 0 0 0 0 0 0 0 0 0 0
Deputation
1
2
Total 0 0 0 0 0 0 0 0 0 0
Grand
Total
Table 1E - City / District Un-Armed PSI as on ………. (GRAND TOTAL)
GUJAR
AT
POLICE
SANCTION
STRENGTH
PRESENT
STRENGTH VACANCY
UNDER
SUSPENSI
ON
MAL
E
FEMA
LE
M+
F
MAL
E
FEMA
LE
M+
F
MAL
E
FEMA
LE
M+
F M
TOTAL -
PHASE-
I
TOTAL -
PHASE-
II
Total
(Other
Units)
231
Grand
Total 0 0 0 0 0 0 0 0 0 0
Table 1F - Officers
S.
N.
City /
Distri
ct
CP/JCP/Addl.CP/DCP/IGP/DIG
P/SP
Dy.SP/AS
P PI
PS
I
Constabula
ry
Tot
al
(1
) (2) (3) (4)
(5
)
(6
) (7) (8)
1 0
2 0
3 0
4 0
5 0
6 0
7 0
8 0
9 0
1
0 0
1
1 0
1
2 0
1
3 0
1
4 0
232
1
5 0
1
6 0
233
Table 2A – Mandatory ancillary parties on poll day
-No. of Sector Magistrate & Police Mobile
S.No. City / District No. of Sectors
Magistrate No. of Sector Police Mobile
(1) (2) (3) (4)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
TOTAL :- 0 0
Table 2B – Total Number of all Ancillary parties on Poll day
234
S.
N.
City /
District
No. of
Sector
Magistrate
No. of
Sector
Police
Mobile
No.
of
SST
No. of
Police
Stations
No. of
Check-
Post
Nakas
QRTs
Supervisory
Police
Officers
(1) (2) (3) (4) (5) (6) (7) (8) (9)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
TOTAL :- 0 0 0 0 0 0 0
235
Table 3- Critical and non-critical PS
District/
AC
Numb
er of
PS
Numb
er of
PSL
Critica
l
PSL_P
S1
Non
critical
PSL_P
S1
Critica
l
PSL_P
S2
Non
critical
PSL_P
S2
Critica
l
PSL_P
S3
Non
critical
PSL_P
S3
An
d
so
on
Table 4A - Intend to utilize
Sr.
No. Name of District
Actual Present
Man Power
(ASI/HC/PC/LR) as
on
80% of Actual Present Man Power
(ASI/HC/PC/LR) as on ……..
Deployed
(1) (2) (3) (4)
236
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
TOTAL 0 0
S.
N.
Name of
City/Distr
ict
Table 4B – HC Deployment in PS in Assembly Constituency
No.
of
1 to
3
PS
(PS
L)
No.
of
4 to
5
PS
(PS
L)
Man
Pow
er
@2
No.
of
6 to
7
PS
(PS
L)
Man
Pow
er
@3
No.
of
8 to
9
PS
(PS
L)
Man
Pow
er
@4
No.
of
10
to >
15
PS
(PS
L)
Man
Pow
er
@5
(1) (2) (3) (4
) (5) (6) (7) (8) (9) (10) (11) (12)
237
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
TOTAL 0 0 0 0 0 0 0 0 0 0 0
Table 4C – Scale wise Allotment of Constabulary Staff for other tasks on poll day
Sector
Magistrat
e
Sector
Police
Mobile
Check-
Post/
Nakas
SST
Police
Station
Staff
QRTs
District
Reserve
(For
CPs/SPs.)
N
o.
of
S
M
Man
Pow
er
@1
No
.
of
SP
M
Man
Pow
er
@2
No.
of
CP/
Nak
as
Man
Pow
er
@4
No
.
of
SS
Ts
Man
Pow
er
@4
No.
of
P.st
n.
Man
Pow
er
@8
No
.
of
QR
T
Man
Pow
er
@4
No
.
Cit
y
/
Man
pow
er
Scal
e
@25
238
Dis
t.
(1
3) (14)
(15
) (16) (17) (18)
(1
9) (20) (21) (22)
(2
3) (24)
(25
) (26)
0 0 0 0 0 0 0 0 0 0 0 0 0 0
Table 4D – Scale wise Allotment of Constabulary Staff on poll day – contd.
City/ District
Control
Room
Superviso
ry Police
Officer
Liaison
Officer for
CAPs/SAPs
Observer
Security
Security of
Candidates
Total
Requiremen
239
(ASPs/Dy
SPs)
t of Man
Power
No. of
City/D
ist. CR
Ma
n
pow
er
Scal
e
@1
2
N
o.
of
SP
O
Man
Pow
er
@5
No.
of
CAP
s/
SAP
s
(Co
ys)
Ma
n
Pow
er
@1
Expec
ted
No. of
Obser
ver
Ma
n
Pow
er
@1
Assembl
y
Constitu
ency
Ma
n
Pow
er
@ 3
Col No.
4+6+8+10+1
2+
14+16+18+2
0+22+
24+26+28+
30+32+34+3
6
(27) (28) (2
9) (30) (31) (32) (33) (34) (35) (36) (37)
0 0 0 0 0 0 0 0 0 0 0
240
Table 4E – Scale wise Allotment of Constabulary Staff on poll day - contd
Actual Present
Man Power
(ASI/HC/PC/LR)
as on ……
80% of Actual
Present Man
Power
(ASI/HC/PC/LR)
as on ……..(Will
be used for
Election Duty)
Required
Police
personnel
from
outside
(Col. No. 39
- 37)
Police personnel will be allotted
from other Cities/Districts/Units
(38) (39) (40) (41)
0 0 0
241
Table 5 – An example (Allotment for Phase - I)
S
.
N
.
N
a
m
e
of
Ci
ty
/
Di
st
ric
t
ASI/HC/PC/LR ALLOTED FROM
T
o
t
a
l
A
h
m
e
da
ba
d
Ci
ty
V
a
d
o
d
a
r
a
Ci
ty
V
a
d
o
d
a
r
a
R
u
r
al
G
o
d
h
r
a
D
a
h
o
d
A
n
a
n
d
K
h
e
d
a
-
N
a
d
i
a
d
G
an
dh
in
ag
ar
Sa
ba
rk
an
th
a
M
e
h
s
a
n
a
W
e
s
t
K
u
t
c
h
E
a
s
t
K
u
t
c
h
B
a
n
as
ka
nt
h
P
a
t
a
n
W
.
Rl
y,
V
a
d
o
d
a
r
a
W
.
R
l
y
,
A
'
b
a
d
C
I
D
C
ri
m
e
&
R
l
y
.
G
'
n
a
g
a
r
G
U
V
N
L,
V
a
d
o
d
a
r
a
A
C
B
,
A
'
b
a
d
(
1
)
(2
)
(3
)
(4
)
(5
)
(
6
)
(
7
)
(
8
)
(
9
)
(1
0)
(1
1)
(
1
2
)
(
1
3
)
(
1
4
)
(1
5)
(
1
6
)
(1
7)
(
1
8
)
(
1
9
)
(2
0)
(
2
1
)
(
2
2
)
1 0
2 0
242
3 0
4 0
5 0
6 0
7 0
8 0
9 0
1
0 0
1
1 0
243
Table 6 – Scale wise Allotment of Home Guards- example
S.
N.
Name of
City/Distr
ict
PS in
Assembly
Constituenc
y
Sector
Magistrate
Sector
Police
Mobile
1 HG per
100/200
Meter radius
of PSL with 4
PS or more
Total
Requirem
ent of
Home
Guard
No.
of
PS
Hom
e
Guar
ds
@1
No
.
of
S
M
Hom
e
Guar
ds
@1
No.
of
SP
M
Hom
e
Guar
ds
@1
No.
of 4
&
abov
e PS
(PSL)
Hom
e
Guar
ds
@1
Total Col
(4+6+8+10
)
(1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11)
1
2
3
4
5
6
7
8
9
10
11
12
13
14
TOTAL 0 0 0 0 0 0 0 0 0
244
245
Table 7 – an example - CAPFs/SAPs/IR BNs/BWHGs DEPLOYMENT
AS ON …….. (total 640 COYs)
S
.
N
.
U
n
i
t
'
s
N
a
m
e
/
N
a
m
e
o
f
D
i
s
t
r
i
c
t
B
S
F
C
R
P
F
C
I
S
F
I
T
B
P
S
S
B
R
P
F
T
o
t
a
l
C
A
P
s
M
P
S
A
P
s
P
U
N
J
A
B
B
W
H
G
J
H
A
R
K
H
A
N
D
I
R
B
N
.
R
A
J
A
S
T
H
A
N
I
R
B
N
/
B
W
H
G
U
P
S
A
P
s
M
a
h
a
r
a
s
h
t
r
a
S
A
P
s
B
i
h
a
r
S
A
P
H
a
r
y
a
n
a
I
R
B
n
s
.
K
a
r
n
a
t
a
k
a
S
A
P
s
K
e
r
a
l
a
S
A
P
/
I
R
B
n
s
.
M
a
n
i
p
u
r
I
R
B
n
s
.
M
i
z
o
r
a
m
I
R
B
n
s
.
M
e
g
h
a
l
a
y
a
I
R
B
n
s
.
N
a
g
a
l
a
n
d
I
R
B
n
s
.
O
d
i
s
h
a
I
R
B
n
s
.
S
i
k
k
i
m
I
R
B
n
s
.
H
i
m
a
c
h
a
l
P
r
a
d
e
s
h
U
t
t
a
r
a
k
h
a
n
d
I
R
B
n
s
.
W
e
s
t
B
e
n
g
a
l
S
A
P
s
T
o
t
a
l
S
A
P
s
1
246
2
3
4
5
6
7
8
9
1
0
1
1
Table 8 – Scale of deployment from state prepared district wise
FINAL DISTRICT SECURITY DEPLOYMENT PLAN
(GUJARAT)
{As per Police Jurisdiction (Police & Home Guards
Allotment)}
No. of PS
No. of Critical
Booths :
No. of PSL
No. of Critical
PSL :
S.N DEPLOYMENT
PLAN Pattern UNIT Police HGs
CAP/SAP
(Section)
SRPF
(Men)
1 1 Booth
Premises
1 HC/PC Per PSL
1 Home Guard
Per Booth
2 2 Booth
Premises
1 HC/PC Per PSL
1 Home Guard
Per Booth(2)
247
3 3 Booth
Premises
1 HC/PC Per PSL
1 Home Guard
Per Booth(3)
4 4 Booth
Premises
1 HC/PC Per PSL
1 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(4)
5 5 Booth
Premises
1 HC/PC Per PSL
1 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(5)
6 6 Booth
Premises
2 HC/PC Per PSL
1 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(6)
248
7 7 Booth
Premises
2 HC/PC Per PSL
1 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(7)
8 8 Booth
Premises
2 HC/PC Per PSL
2 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(8)
9 9 Booth
Premises
2 HC/PC Per PSL
2 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(9)
10 10 Booth
Premises
3 HC/PC Per PSL
2 HC/PC Per 100
Meter
Radius of PSL
249
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(10)
11 11 Booth
Premises
3 HC/PC Per PSL
2 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(11)
12 12 Booth
Premises
3 HC/PC Per PSL
2 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
1 Home Guard
Per Booth(12)
13 13 Booth
Premises
3 HC/PC Per PSL
2 HC/PC Per 100
Meter
Radius of PSL
1 Home Guard
Per 100 Meter
Radius of PSL
250
1 Home Guard
Per Booth(13)
14 Sector
Magistrates
1 HC/PC + 1 HG
Per
Sector
Magistrates
15 Sector Police
Mobile
1 PSI/ASI/HC Per
Sector Police
Mobile
1 HC/PC/LR
Sector Police
Mobile
1 Home Guard
Per Sector Police
Mobile
16 Nakas (Check
Posts)
4 ASI/HC/PC/LR
Per Nakas
(1+3=4)
17
Static
Surveillance
Team(Police
station wise)
4 ASI/HC/PC/LR
Per Static
Surveillance
Team
18
Police Station
Staff
(including
PSO +
Wireless
Duty)
8 ASI/HC/PC/LR
Per
251
19
QRTs
(Police
Station wise)
4 ASI/HC/PC/LR
Per
20 City / District
Reserve
25
ASI/HC/PC/LR
Per
21 City / District
Control Room
12
ASI/HC/PC/LR
Per
22
Supervisory
Officers
(Dy.SP)
Striking Force
5 ASI/HC/PC/LR
Per
23 Liaison Officer
for CAPs/SAPs
1 ASI/HC/PC/LR
Per
24 Observer's
Security 1 ASI/HC/PC Per
25
Security to
Candidate (1-
Constituency
= 3
Candidates)
1ASI/HC/PC Per
26 Total Requirement of Man
Power
27
Actual Present Man Power
(ASI/HC/PC/LR) as on
20/10/2012
28 80 % of Actual Present Man
Power (ASI/HC/PC/LR) as on
252
20/10/2012
(Will be used for Election Duty)
29 Shortfall of Constabulary Staff
(Col. No. 28-26)
30 Allotted from Outside
(Cities/Districts/Units)
31 Additional Allotment of Home
Guards
32 Total Allotment of Police &
Home Guards 0 0
CAPs for strong room will be provided as per the requirement and has been accounted
in Allocation of CAP/SAP Statement
Table 9- Total deployment of CAPs/SAPs & SRPF
Name of District: …………….
FINAL DISTRICT SECURITY DEPLOYMENT PLAN
(As per Constituency wise (CAPs/SAPs & SRPF Allotment)
No. of PS 1040
No. of Critical
Booths :
253
No. of PSL 676
No. of Critical
PSL :
S.N DEPLOYMENT
PLAN Pattern UNIT Police HGs
CAP/SAP
(Section)
SRPF
(Men)
1
1 Booth
Premises
Critical
1 HS of CPF Per PSL
2
1 Booth
Premises
Non Critical 70
%
2 SRP men
3
1 Booth
Premises
Non Critical
30 %
1 HS of CPF Per PSL
4 2 & above Booth
Premises 1 HS of CPF Per PSL
5 QRTs (Police
Station wise) 1 HS of CPF
6
Flying Squads
(Assembly
Constituency
wise)
1 HS of CPF
7 Total proposed deployment
0
0
Section
0.00
CAPS
Coys
254
27-2-0
8 Allotted CAPs /SAPs Coys & SRP MEN
0 CAP
Coys
9 Additional Allotment of CAPs/SAPs
0 CAP
Coys
10 Total Allotment of CAPs/SAPs & SRP MEN
0 CAP
Coys
255
Annexure 22.1
256
257
258
259
260
261
262
263
264
265
266
Annexure 22.2