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Manual on
Vulnerability Mapping
March, 2016Document 5 edition 1
election Commission of indianirvachanSadan, ashoka Road, new Delhi – 110001
“Greater Participation for a stronger Democracy”
RESTRICTED AND OFFICIAL USE ONLY
election Commission of indianirvachanSadan, ashoka Road, new Delhi – 110001
“Greater Participation for a stronger Democracy”
Manual OnVULNERABILITY
MAPPING
VULNERABILITY MAPPING HAS EMERGED AS AN INTEGRAL
COMPONENT TO ENSURE FEARLESSAND SEAMLESS PARTICIPATION
OF ELECTORS IN THE ELECTORAL PROCESS. SINCE 2007, THE
ELECTION COMMISSION HAS USED THIS CONCEPT TO GREAT EFFECT.
USING ALL PREVIOUS INSTRUCTIONS OF THE COMMISSION, THIS
MONOGRAPH DELVES INTO THE ELEMENTS OF VULNERABILITY,
ITS PLANNING AND EXECUTION IN THE FIELD. THIS MONOGRAPH
IS CONSOLIDATION OF ALL PREVIOUS INSTRUCTIONS, WITH ADDED
INPUT, FOR USES IN ALL FUTURE ELECTIONS.
iii
Table of contents
AbbreviATions v
i. inTroducTion 1
ii. insTrucTions on LegAL FrAmework 2
iv. PArAmeTers oF vuLnerAbiLiTy 2
V. ThreesTagesofVulnerabiliTyMapping(VM)exercise 3
vi. AcTion To be TAken For vuLnerAbiLiTy mAPPing 4
1. AppointmentofsuitableSectorOfficersandtheirresponsibilities 4
2. AppointmentofSectorPoliceOfficersandDesignatedPoliceOfficersforVM 5
3. TrainingofSectorOfficers&DesignationPoliceOfficers 5
4. MakingLawandOrderportalofStateFunctional 5
5. IdentificationofVulnerableAreas/Segments/Villages/Hamlets 6
6. Identificationofthepersonscausingsuchvulnerability 6
7. Actionagainstthepersonsresponsibleforcausingvulnerability 6
8. Reportingformats 8
9. AreadominationplanforCPFandPollDaydeployment 9
10. MonitoringofVulnerableareas/personsonthedayofpoll 9
11. RoleofRO/DEO/Observersafterthepoll 9
12. AccountabilityandConfidentiality 10
vii. TimeLine For vuLnerAbiLiTy mAPPing 10
iv
annexures 12-24
• Annexure-i vm-1-InformationoneachACtobeprovidedbyDEO/ROtoSectorOfficerbeforehe/sheundertakestheexerciseofVM
• Annexure-ii vm-2 (so) - Proforma for checking and determining vulnerability bySectorOfficers
• annexure-iii (ps wise) VM-3 (so) - A–Polling Station wise Format for enlistingVulnerableLocalities / Pockets /Voter Segments and list of intimidatorsbySectorOfficer
• Annexure-iv (sector wise) vm-4 (so)-SummaryofPollingStationwiseenlistingofVulnerableLocalities/Pockets/VoterSegmentsandofintimidatorsbySectorOfficer
• Annexure-v (sector wise) vm-5(so)- Certificate by the Sector Officer / SectorMagistrate/HeadConstable/AssistantPoliceSubInspector
• Annexure–vi (Ac Level) vm-6 (ro) -Summaryofvulnerabilityand listofpersonscausingvulnerabilitybyReturningOfficer
• Annexure-vii (district level)vm-7 (deo)-Reportonidentificationofvulnerability,andactiontakenatdistrictlevel
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AbbreviATions ARO AssistantReturningOfficer
ASD Absent,Shifted,Expired&Duplicate
ASI Assistant Sub Inspector
ATR ActionTakenReport
CEO ChiefElectoralOfficer
CPF Central Police Force
DEO DistrictElectionOfficer
DM DistrictMagistrate
DSP DeputySuperintendentofPolice
ECI ElectionCommissionofIndia
EPIC ElectoralPhotoIdentityCard
LIB LocalIntelligenceBureau
LOR LawandOrder
LWE LeftWingExtremism
MCC ModelCodeofConduct
NBW Non Bailable Warrant
PASA PreventionofAnti-SocialActivitiesAct
PCCP Patrolling-cum-collectingparties
PI Police Inspector
PS PollingStation
RO ReturningOfficer
SDM SubDivisionalMagistrate
SDPOs SubDivisionalPoliceOfficers
S.O. SectorOfficer
SP SuperintendentofPolice
TDO TalukaDevelopmentOfficer
UT UnionTerritory
VM VulnerabilityMapping
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i. introduction
Vulnerability inthecontextofelections isdefinedasthesusceptibilityofanyvoterorsectionofvoters,whetherornotlivinginageographicallyidentifiablearea,tobeingwrongfullypreventedfromor influenceduponinrelationtotheexerciseofhisrighttovote ina freeandfairmanner,throughintimidationoruseofanykindofundueinfluenceorforceonthevoter.
TheexerciseofVulnerabilityMapping(VM)inthecontextoftheelectionsistobeundertakenwiththeobjectiveofclearlyidentifying,inadvance,suchvotersorsectionofvoterswhoarelikelyto be “vulnerable”, the persons or other factors causing such vulnerability and taking adequatecorrectiveactionwellinadvanceonthebasisofsuchidentification.
Since2007,theElectionCommissionofIndiaissuedinstructionsregardingvariousmeasurestobetakentoensurefreeandfairelections.Anatmosphereinwhicheachandeveryelectorisabletoaccess thepollingstationwithoutbeingobstructedorbeingunduly influencedbyanybody isanimportantprerequisitetoafreeandfairelection.Intheinterestofthisprerequisitethatisforensuringafree,fair,andsafeatmosphereforthevotersatlarge,theElectionCommissionofIndiahasdevisedtoolsfortakingadvanced,preventiveandplannedaction.OnesuchtoolisthetoolofVulnerabilityMapping(hereinreferredtoasVM).
ii. instructions on vulnerability mapping
Takingduecognizanceoftherolebeingplayedbythemusclepowerinelectionsandtakingintoaccountofcertainprevailingsocioeconomicrealitiesofelectoralpolitics,theCommissioninitiatedamechanismcalled‘Vulnerability Mapping’in2007.Subsequently,followingseriesofinstructionswereissuedtocurbthemenaceofthreatandintimidationatelectionsbyidentifyingthelocationswithinapollingstationareavulnerableforsuchthreatandintimidation:
date of instruction
number subject key components
12/10/2007 464/INST/2007-PLN-I
Measures to ensure freeandfairelections–Preventionofintimidationtothevotersofvulnerablesections of electorate – MappingofVulnerability-regarding.
l Identifyingvulnerablevillages/hamlets/habitats
l Preventivemeasuresl JointreviewofDEOandSPlAreadominationlReporting
16/10/2010 464/BR-LA/2010
GeneralelectionstoBiharAssembly–securitycoverforvulnerableareas-regarding.
lVisitofSectorMagistratesandPCCP
l Providingsecuritycovertovulnerablevoters
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23/03/2011 464/INST/2011/EPS
General elections to LegislativeAssemblytoAssam,WestBengal,Kerala,TamilNaduandPuducherry-securitycoverforvulnerableareas-regarding.
lVisitofSectorMagistratesandmobile State forces
l Providingsecuritycovertovulnerablevoters
30/12/2011 464/INST/2011/EPS
VulnerabilityMapping lVulnerabilityMappinglVisitofSectorOfficerl Format VM-SOl Format VM-ROl Format VM-DEO
07/03/2014 76/INST/2014/EEPS
ExpenditureManagement l FormationofVillageLevel/WardLevelAwarenessGroup
l Togatherinformationofintimidationinarea
l Creationofconfidencebuildingmeasuresinthearea
21/10/2015 464/L&O/2015/EPS
Instruction of Press Conferenceduringelections–regarding
lNo Press Conference-Mediabriefing–sharing of details ofdeployment of security forcesinpublicdomain.
lAny information tomediawillbegivenbyCommissionortheCEO/s,ifrequired.
The tool of VM has been effectively utilized since its inception and depending upon theemergingrequirements,ithasbeenmodified/adaptedfromtimetotime.AfterovereightyearsofexperienceofutilizingthistoolinallGeneralElections,ParliamentaryandAssembly,themechanismofVMhasnowbecomeinstitutionalized.Drawingfromtheseexperiencesandlearningfromthebestpracticesfromacrossthecountry,theseriesofinstructionsissuedbytheECIonVMhavenowbeenconsolidatedandaugmentedfurtherinasystematicframeworkinthismonographformoreeffectiveapplicationinthefield.
iii. Legal framework:
1. Section171CoftheIndianPenalCode-Undueinfluenceatelectionsisanelectoraloffenceundersection171CoftheIndianPenalCode.Anyvoluntaryinterferenceorattemptatinterferingwith the freeexerciseofanyelectoral rightconstitutes thecrimeofundueinfluenceatanelection.
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2. Section123(2)oftheRepresentationofthePeopleAct,1951–Thissectiondefines,anydirectorindirectinterferenceorattempttointerfereonthepartofthecandidateorhisagent,orofanyotherpersonwiththeconsentofthecandidateorhiselectionagentwiththefreeexerciseofanyelectoralright,asacorruptpractice.
Additionally, various other related provisions of IPC can be invoked by theenforcementagenciesdependingupontheoffencesthosecreatevulnerability.
iv. Parameters of vulnerability
Every DEO/RO needs to collect input on the basis of present and past records concerning theelementsofvulnerabilityinhis/herdistrict/constituency.Annexure-Iprovidesasetofparameterstocollecttheinputonvulnerability.TheDEO/ROshouldcollectsuchinformationatleastsixmonthsinadvanceandcontinueupdatingsubsequently.AfterappointmentofSectorOfficerfortheexerciseofVulnerabilityMapping,thisinputneedstobeprovidedtohim/her.Suitabletrainingcapsulealsoneedstobeorganizedtomakehim/hercapablefortheexerciseofvulnerabilitymapping.
Other importantparameters thatarealso tobe taken intoconsiderationbyDEO/ROwhilecarrying out vulnerability mapping exercise and while giving written briefs to Sector Officersincludethefollowing:
i. Pre-poll complaints: Pre-pollcomplaintsmaybeconsideredasanimportantinputofVulnerabilityMapping.Complaintsareimportantonmanycounts.Itisalivephenomenonshowingdepthofpoliticalcompetitivenessmuchbeforethepollday.Complaintsarenotalways genuine. However, number of complaints verified true by election machinerymay be taken as an indicator of vulnerability. Pre-Poll complaints have usually twodimensions.Onerelates toMCC, theother relates topolitical rivalryofdiversenatureprimarily concerned with maintaining/consolidating/losing of political ground byleadersofpoliticalparties.Indeed,thesecondvarietyofactivitystartstakingplacemuchbeforethePollday.Complaintsareamanifestationoftremorsfeltbypoliticalpartiesintherun-uptotheelections.
ii. Act of political parties: NumberofcomplaintsrelatedtoviolationofMCCcases,priortopoll,arealsoimportant.Experiencesuggeststhatpoliticalpartiesarereluctanttotakepermissionofhouseholdownersforwall-writingonprivateproperty.Inruralareas,itisalmosttakenasgranted.Thevotersmaynotmustercouragetoraisevoicesagainstthemuchorganizedbodycalledpoliticalparty,inparticular,rulingpoliticalparty.Thiscreatessenseof vulnerability invoters. Indeed, givingpermission topoliticalparties to allowprivatepropertyputongraffitimaybesilentlyforceful.Inthiscontext,thepropensityofMCCviolationshasastrongbearinguponvulnerabilityofthePollingStationandshall,therefore,betakenintoconsiderationinmappingofvulnerability.
The Sector Officer will use the proforma, as prescribed at Annexure-II, for checking anddeterminingvulnerableareas,particularlyinnon-LWEareasduringthevisittothePollingStation(s).
BesidestheSectorOfficer’sVMreport,theDEOmustalsoensurethefollowing:
i. cross-verificationofvulnerabilityreport:Theremustbesomeadditionalmechanismofcollecting,crossverifyingandcollatinginformationatarelativelyhigherleveloftheSub-divisionalMagistrate(SDM).Somemoreinputsmaybeaddedthereon,fromSDPOs/
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other sources/ district intelligence inputs,making vulnerability plan rationalized andrealistic. During General Assembly Elections, SDMs shall coordinate with ROs of theassemblyconstituencieswithinthesub-divisionaljurisdiction.
ii. other avenues for collecting inputs: - TheCommissionhas issued instructions thatROswilltakeintoconsiderationthe worry listssubmittedbycandidatesbeforeforceisdeployed.TheinterfaceinhavinginputsfrompoliticalpartiesmaybetakenattheSDMlevel(andnotbelowit)sothatvalidationmaybedoneatthislevelfirstbeforeitgoesuptothelevelofDEO/RO.
iii. Thereshallbesomechannel for information sharing from the voters also,theybeingthelargeststakeholders.Thehelplines/Callcenters/ControlRoomsshallbeactivatedandgivensufficientpublicity.TheSectorofficersshallbewellversedwiththesedetails.
v. Three stages of vulnerability mapping (vm) exercise
InalltheConstituenciesgoingtopoll,theVulnerabilityMapping(VM)exerciseshallbecarriedoutwithoutexception.TheVMexercisetakesplaceinthreestages:
i. identificationofthevoters/votersegments(village/hamlets/areawise)vulnerabletothreatorintimidation
ii. identificationofthepersonscausingsuchvulnerability
iii. initiating preventive measuresagainstthepersonsresponsibleforcausingvulnerability.
vi. Action to be taken for vulnerability mapping:
1. appointmentofsuitablesectorofficersandtheirresponsibilities a) Appointment process:
Dependingontheterrainandavailabilityofmanpowerresources,oneSectorOfficerorSectorMagistrate,asperdirectionsoftheCommission,istobeappointedtosupervise10 to12PollingStations, that canbecovered in1 to2hours.Sincethisisoneofthemostresponsiblepositions;thebestofficersaretobeidentified.IfrequiredCentralGovt.officerscanalsobedeployed.Allhelp,includingvehicular,fuel,mobilephonesupportetc.ifneeded,shallbeextendedtotheSectorOfficerforthispurpose.
ItmaybenotedthatSectorOfficersareappointedtolookaftertheVMworkrelatedtothespecificsections,coveredundereachofthe10-12PollingStation,hencethismustnotbeconstruedas10-12PollingStationLocations.Afterannouncementof election schedule till the poll process – Sector Officers shall be designated asZonalMagistratesforthesamearea,at least7daysbeforethepollday.TheywillbeconferredwiththepowersofSpecialExecutiveMagistratesalso.TheCEOshalltakeappropriateactioninconsultationwiththeStateGovernmenttofacilitatetheconfermentofthepowersoftheSpecialExecutiveMagistrate.
b) Pre-poll responsibilities:
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Thepre-pollresponsibilitiesoftheSectorOfficersrelatedtotheVulnerabilityMappinginclude:
i. InitiatingVMexerciseasperthetimeline
ii. FrequentvisitsforconfidencebuildingmeasuresandfinetuningtheVM
iii. Identificationofvillages,hamletsandsegmentsofvotersvulnerabletothreatandintimidation.
iv. Identificationofpersonswhomakeitvulnerable-Itisnotaboutnumbersitisaboutnames-InformationtobegiveninprescribedformattotheRO/DEOwithouthavingtodisclosethesource.
v. Accountabilityforensuringfreeaccessofvotersforvoting.
vi. Contactpointswithin thevulnerable communitywith their telephonenumbers.
vii. SOwill act asZonalMagistrate, thereforewill beaccompaniedby thepoliceofficer.
viii. SinceSOwillactasZonalMagistrate,hewillprepareaZonalMagistratePlanwitha sketchmap forPSs, list of telephonenumbersofPSsandelectionrelatedofficers,policestations,listofresponsiblepersons,listof anti-social elements etc.
ix. Meeting with Labour inspectors and food and supply officers foridentificationofvulnerableareas.
x. Meeting with heads of educational institution, specially residentialinstitutions.
xi. Interactionwithfactory/godownowners.
xii. MeetingwithRWA’s/Grampradhan/Sarpanchforconfidencebuilding.
xiii. Sharinginformationwiththebeatconstable.
xiv. Knowledgeaboutgeographyofthepollingstation/area.
xv. Identifythedistributionofelectorsintermsofcaste,creedandreligion.
xvi. Identificationofpersonsrunningprintingpress.
c) Poll day responsibilities:OnPolldaytheSectorOfficerisexpectedto:
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i. Frequentlycheckifthevulnerablesectionsidentifiedearlier,arevotingor not
ii. Incaseofanyalarminthisregardhe/shehastoalerttheROanddistrictadministrationimmediately.
iii. Hemayalsokeepacheckonvulnerablesectionwiththehelpofflyingsquads.
The activities described above are illustrative only. Depending on the localsensitivities,theDEO/ROmayaddmoreactivitiesforthepurposesofVM.
2. appointmentofsectorpoliceofficeranddesignatedpoliceofficeratpolicestationlevel
Every Police Station covers a certain area of the Assembly Constituency. For thepurposeofVM;theSPofthedistrictshallarrangeforapolicemanwhowillactasSectorPoliceofficer,toaccompanytheSectorOfficerandjointlyconducttheexerciseofVMinthegivenarea.TheSectorPoliceofficer shallnotbebelow the rankofAssistantSub-InspectororHeadConstableofpolice.
Fortrackingtheindividualtroublemongersandforensuringthatthetroublemakersarekeptunderwatch,aspecificofficershallbedesignatedatThana(PoliceStation)levelforensuringtheproperlawandorderandpeacefulpoll.HewillbecalledtheDesignatedPoliceOfficerforVulnerabilityMapping.
3. Trainingofsectorofficers&designatedpoliceofficersBasicamenitiessuchasvehicle,fuel,phoneetc.shallbeprovidedtotheSectorOfficers.MagisterialpowersshallbeconferredontheappointedSectorOfficers.ApartfromthesetheSectorOfficersandtheDesignatedPoliceOfficersshallbewelltrainedonfollowingaspectstomakethemabletocarryouttheirdutiessmoothly.Theyshallbetrainedjointlyandeachshallbeprovidedthefollowingdetailsduringthetraining:
i. Electoral roll of each of the PS; with hamlet name etc. to enable them tocontactvotersofeverysectioninthepart.
ii. PollingStationwiseBasicMinimumFacilities(lastupdated)
iii. Voterturn-out(inlast2generalelections)
iv. Genderratio
v. MCCviolationcases(inlast2generalelections)
vi. A routemapof their area, giving thebroad layoutand locationofpollingstationsfallingintheirsector(itcouldbeasketchmap,neednotbeascalemap)
vii. AndotherdetailsasperAnnexure-I
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Their joint visit programme shall be drawn up and be provided at the time oftraining.DuringjointtrainingsessionofRO&SDPOaswellasofDEO&SP,thetopicofVMshallbecovered.RO&SDPOaswellasDEO&SPshalltakeperiodicaljointreviewwiththeseofficerstomonitortheworkdonebythemandreviewtheactiontakenonpointshighlightedduringtheirjointvisits.
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 reportsdaily to theCommission–LawandOrderReport-1(LOR-1)andLawandOrderReport-2(LOR-2).Thesereportsareacumulativegistof:
l Preventiveactiontakenl Seizurereports–illegalarms,liquor,drugs,etc.l Vulnerableareas,personsandintimidatorsandactiontakenl NBW casesl Listedbootleggersl PASAdetaineesl Externmentcasesl Badcharactersl AnyrelatedMediareport
Thedetailingofeachofthecasesmentionedaboveshallbedoneonthelawandorderportalmaintainedby the State. Thisportal is expected tomaintain PS-wisedetailsofpersonscausingvulnerabilityandtheactiontakenbytheadministration.Thisportalshallbecomefunctionalwellintimebeforetheannouncementofelections.
5. identificationofvulnerableareas/segments/villages/hamlets i. ThefirststageintheexerciseofVulnerabilityMappingbytheSectorOfficerorthe
SectorMagistratehastobeundertakenwithimmediateeffectafterthedeclarationofelectionbytheCommission.SectorOfficerandHC/ASI/PoliceOfficershalltakevisitofeveryareajointly.
ii. The journeyprogrammeforthemwillbedecided jointlybytheReturningOfficerandDy.SuperintendentofPolice/SDPO.
iii. TheSectorOfficerandteamhis/hermustvisiteveryLocality/PocketintheareaofeveryPollingStationinhis/herSector,holdwidespreaddiscussionswiththelocalpeople, collect intelligence, and enlist the vulnerable households and families, aswellasthepersonsandfactorscausingsuchvulnerabilitythere.
iv. Whilecarryingoutthisexercisetheyshalltakeintoaccountthepastincidentsandcurrentapprehensions.
v. After the visit, they will prepare information for all points covered in ProformaenclosedherewithinAnnexureII,andalsofillrelevantformsatAnnexureIII,IVandV.
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vi. ThelocalpoliceofficerandlocalcivilauthoritiessuchasTDO/Mamlatdar/PoliceInspectoretc.shallalsobeconsultedandtheirinputsbetakenintoaccountbeforefinalizingthelist/forms.
vii. TheformatatAnnexureII isonlymeantasanenabler;and informationcollectedmaynotberestrictedtoit.Additionalinformationmaybeadded,ifithasabearingonthevulnerabilityofthePS.
viii. UponthearrivaloftheObserverintheConstituency,theDEO/ROshallhandoverthedetailsofpollingstation-wiseVulnerabilityMappingoftherelevantAssemblyConstituencytotheObserver(PleaseseeAnnexureVIandVII).
ix. TheObserverwill alsovisit such locationsand interactwith thevotersand shallconstantlymonitorthedevelopments.
6. identificationofthepersonscausingsuchvulnerability
Thisexerciseofidentifyingthepersonsresponsibleformakingthevoters/villagesvulnerableshallbeundertakenpollingstationwiseindicatingthenameofvillage,hamlet,namesofthepotentialtroublemakers,includingtheiraddress,andsoon.Thisworkhastobedonebymaintainingcompleteconfidentialityoftheinformers/source,ifsodesired.
7. Action against the persons responsible for causing vulnerability
i. TheDEOandtheSuperintendentofPoliceoftheDistrictshallholdajointreviewon the subject and shall finalize a focused action plan to dealwith the potentialthreatsandintimidationpointsidentified.Theactionplanmaybeincluded,inter-alia,bindingthe identifiedtroublemongersunderappropriatesectionof the law,confiscation of arms, preventive detention if required, forcing their appearancein local police stations at reasonable intervals to ensure their good behaviour,placementofpolicepickets,regularconfidencebuildingvisitsetc.
ii. TheDEOandtheSPshallinitiateallpreventivemeasurestoensurethatintimidation/obstructiondonotreallyhappenonthepollday.
iii. Ithastobeensuredthatallsuchmeasuresareundertakeninabsolutelynon-partisanmannerwithoutfearorfavourtowardsanyparticularparty.
iv. Namesofcontactpersonsfromwithinthevulnerablegroupsshallalsobeidentifiedandtheircontactnumbers/mobilenumbers,ifany,shallbenoteddown.
v. Fortrackingtheindividualtroublemongersandforensuringthatthetroublemakersarekeptunderwatch,theDesignatedPoliceOfficerforVulnerabilityMappingistobeappointedineachThana,asalreadymentioned.
vi. EPICsnatchingfromVulnerableVotersandtheincidencesofpeoplebeinginducedtodeposittheirEPIConpaymentofmoneytopreventthemfromexercisingtheir
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franchiseshallbestopped.TheDEOs/SPs/ROsshallcloselymonitorthesituationandpromptlytakeallappropriateactioninthisregard.
vii. DEO/SPshallinitiateconfidence-buildingmeasurestobolsterthevoters’confidenceaboutthearrangementsforfreeandfairpoll.
viii. DEO/SP shall undertake tours, preferably jointly, to such locations andmeet thecommunitiesandexplainthearrangementsmadeforthefreeandfairpoll.
ix. Confidencebuildingvisits shallbemadebyother seniorofficersalso. JointvisitsbySDM/DySP;Tehsildar/PIwillbeveryeffectiveandshallbeplannedintheareasidentified as most vulnerable. The visiting officers shall hold meetings with thevulnerablepersons/groupsandissuewarningtothetroublemakersthattheywillbetrackedindividually.Theseactionsshallbetakeninafocusedmanner.
x. Jointpatrollingbycivilandpoliceauthorities:-ThereshallbejointpatrollingofcivilandpoliceauthoritiesstartingfromTENdaysbeforethepolltoTWOdaysbeforethepoll[P(-10)toP(-2)].Introducingpresenceofcivilauthoritiesofreasonablyhigherrankwillinstillconfidence,otherthanprovidingimportantinputsforfinalizingtheForceDeploymentPlan.
xi. The DEO/RO shall interact with the candidates and the representatives of thepoliticalpartiestogatherregularfeedback.
xii. RegularfeedbackonthesubjectmayalsobeobtainedfromtheDistrictIntelligence(L.I.B.).
xiii. Where ever there is a cluster of such vulnerable pockets, the DEO shall arrangefordedicatedpoliceteams/squadsand locatethematconvenient locations inthevicinity,tobepressedintoserviceforactiononthedayofpollwithoutanylossoftime.ItshallinvariablyformpartoftheDistrictSecurityPlan.
xiv. Awarenessgenerationamongfemalevoters:Awarenessgenerationamongfemalevotersonvotingwithoutfearandinfluenceisessentialastheytendtobesofttargetsofintimidationandundueinfluence,notonlyfromoutsidersbutalsofromthefamilywithin.
xv. FormationofVillageLevel/WardLevelAwarenessGroup(VAGs/WAGs)tomobilisethemtogatherinformationofintimidationinarea&tocreateconfidentialbuildingmeasures in the area (ECI instruction no.76/INSTRUCTIONS/2014/EEPS//Vol-IVdated7thMarch,2014).
xvi. Carryout24hourssurveillancebyFSTs,SSTs,VVTs.
8. reporting formats a. reportingbysectorofficer:
TheSectorOfficershallcarefullyfillthefollowingformats:
l VM-2(SO):ProformaforcheckinganddeterminingvulnerabilitybySector
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Officer(AnnexureII)
l VM-3(SO):PollingStationwiseFormatforenlistingVulnerableLocalities/ Pockets / Voter Segments and list of intimidators by Sector Officer(AnnexureIII)
l VM-4 (SO): Summary of Polling Station wise enlisting of VulnerableLocalities / Pockets / Voter Segments and of intimidators by SectorOfficer(AnnexureIV)
l VM-5(SO):CertificatebytheSectorOfficer/SectorMagistrate/HeadConstable/AssistantPoliceSubInspector(AnnexureV)
Theseformatsaretobenecessarilyfilledforeachsuchlocality/Pocket,whileSectorOfficer is touring the locality.TheSectorOfficermust retain copiesof thefilledinFormatsandsubmit all filled in Formats to the Returning Officer within 3 days of announcement of elections.
IncasenosuchvulnerablehamletorvillageisidentifiedAssemblyConstituency,the DEO concerned shall obtain a certificate from the field functionaries fromthe Thana / block level and sub divisional level& from S.P. and finally submit acertificatetotheCEOthatnosuchvulnerablevillageorhamletorvotersegmentisavailable/identifiedwithinthisdistrict.Such certificates shall be sent within 5 days of announcement of elections.
b. VMreportofthereturningofficer:TheROoftheconstituencyshallcompileallaboveinformationandfinalizethe
VMfor theentireconstituencyandmake itavailable to theDEO, within 5 days of announcement of elections afterretainingacopyofthesame,inthefollowingformat:
l FormatVM-6(RO):SummaryofvulnerabilityandlistofpersonscausingvulnerabilitybyReturningOfficer(AnnexureVI)
c. vm report of deo:TheDEO,onthesamelines,mustcollecttheFormatsVM/ROandprepareand
makeavailable,theFormat‘VM/DEO’totheCEO within7daysofannouncementofelection.TheformatprescribedforDEOreportingis:
l FormatVM-7(DEO):Reportonidentificationofvulnerability,andactiontakenatdistrictlevel (AnnexureVII)
TheCEOmustcompileallthedistrictFormatsVM/DEOoftheStateintoabookandmakethiscomplianceavailabletotheCommissionwithin10daysofannouncementofelections.
9. Area domination plan for cpf and poll day deployment
lTheCommanders/AssistantCommandersoftheCPFshallbegivenalistofsuch
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vulnerablelocationsbytheDEO.
lWherever CPF arrives in advance for area domination, special attention shall begiventosuchlocations.
lOnthedayofpoll,theCommanders/AssistantCommandersshallmakeitapointtovisitsuchvulnerablepocketsasaconfidencebuildingmeasure.
l Incasetheycomeacrossanyobstructiontheyshalltakenoteofitandimmediatelyinform any of the electoral officials such as RO/DEO/SP/Observer/SectorOfficerandkeepanoteofthetimeoftheirintimation.
10. Monitoringofvulnerableareas/personsonthedayofpoll
Followingactionsneedtobetakentoensurethatthevulnerablepersons,ifany,areabletovotewithoutfear,threatorintimidation:
lAtthetimeofdispatchofthepollingpartiesfromthedispatchcanters,theROshallbrief the Presiding Officer concerned about the vulnerable locations within thepollingstationarea.
lTheSectorOfficersshallsubmitareportindicatingabnormallylowpercentageofvoterturnout,ifany,withinanysection/sectionsparticularly,withreferencetothevulnerablelocationstotheROwhichmaybeusedduringthescrutinyetc.
lOn the day(s) of poll, the SectorMagistrates and themobile forces shall visit atleasttwicesuchvillages/hamlets/dwellingareaswhichareidentifiedasvulnerableareasandwheretherearereportsofpossibleintimidationofthevoters.TheSectorMagistrates and mobile forces during their visit to these areas will ensure thatwhereverrequired,adequatesecuritycoverisprovidedtosuchvulnerablevoters.
lDuring thepoll, theObserversandotherseniorofficerswhilevisiting thepollingstationshallpayaspecialattentiontothisproblemandfindoutwhetheranyundueinfluence,intimidation/obstructionisbeingcaused.
lThepolicepatrollingpartiesshallkeeptrackofthevulnerablelocationsandkeepthecontrolroominformed.Wherevernecessary,policepicketsshallbeestablishedtoensurefreeandsmoothaccesstoallvoterstocasttheirvoteswithoutfear.
lTheCommanders/AssistantCommandersof theCPFshallmake itapoint tovisitsuchvulnerablepocketsasaconfidencebuildingmeasureonthedayofpolls. Incase theycomeacrossanyobstruction theyshall takenoteof itand immediatelyinform any of the electoral officials such as RO/DEO/SP/Observer/SectorOfficerandkeepanoteofthetimeoftheirintimation.
lElection staff (presiding and polling staff to be briefed wherever necessary tomonitorvulnerableareas).
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lDeploymentofadequateforceinthevulnerableareas.
11. roleofro/deo/observersafterthepoll.
a. TheRO/DEOshalltaketheinputsonmassscaleintimidation/threat/obstruction,ifany,intoconsiderationwhilesubmittingtheirreportafterthepoll.
b. TheObserversshallgivetheirfullattentiontotheissueofVMandverifyitateverystage.Aspecialmentionofitshallbemadeabouttheissueintheirfinalreport.Apartfromthis,theyshallmakeanintelligentreadingoftheForm17AandthemarkedcopyoftheelectoralrollusedinthepollingstationsatthetimeofscrutinyofForm17A,iforderedbytheCommission,afterthepoll.
12. accountabilityandconfidentiality:
The Commission directs that accountability of various civil and police officials forVulnerabilityMappingandfollowupateverystageshallbeclearlydefinedwithreferencetoeachpollingstation/constituency.Severedisciplinaryactionwillbeinitiatedincaseofderelictionofdutyonthepartofanypolice/civilofficialsinthismatter.
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.
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.
vii. TimeLine For vuLnerAbiLiTy mAPPing:
sr. no. Activity Time-limit
1 Collection & compilation of basis informationoneachACbyDEO/RO(asperAnnexure-I)
Sixmonthsbeforetheelection
2 UpdationofbasicinformationbyDEO/RO(asperAnnexure-I)
Before handling over to SectorOfficer
3 AppointmentofSectorOfficers&PoliceSectorOfficers
Aboutsixtofourmonthsbeforetheelection.
4 Appointment of Designated Police Officer atpolicestationlevel
Aboutsixtofourmonthsbeforetheelection.
13
5 TrainingofSectorOfficers&DesignatedPoliceOfficers&handlingoverofbasicinformationofACtoSectorOfficersbyDEO/RO
Four to two months before theelection
6 MakingLawandOrderPortalofStatefunctionalbyECI
Fourmonthsbeforetheelection.
7 Identification of vulnerable areas/ segments/villages/hamlets, persons causing suchvulnerabilitiesetc.inAnnexure-I,II,III,IV&V
AftertheissueofPressNotebytheCommissionandbeforetheissueofthegazettenotification.
8 Identification of the persons causing suchvulnerability
Within 5 days of issue of gazettenotification
9 Submission of all VM reports in formats (inAnnexureII,III,IV&V)toRO
Within3daysofannouncementofelections
9A CompilationofallSectorOfficersreportsbyROandsubmissiontoDEO(inAnnexure.VI)
Within5daysofannouncementofelections
9B CompilationofVMreportsofallROsbyDEO&submissiontoCEO(inAnnexureVII)
Within7daysofannouncementofelections
10 Certificate of NO Vulnerable village/area inAssemblyConstituency,byDEOtoCEO
Within7daysofannouncementofelections
11 Compilation of VM reports of all DEOs andsubmission to ECI
Within10daysofannouncementofelections
12 Action against the persons responsible forcausingvulnerability
Atleastbefore5daysbeforedayofpoll.
13 Planandexecutejointconfidencebuildingvisitsby DM/SP; SDM/DySP; Tehsildar/PI in areasidentifiedasmostvulnerable.
Within2weekspriortopollday
14 Pre-pollareadominationbyCPF Atleast3-5daysbeforepollday.
15 Strictvigilandmonitoringofvulnerableareas/personsbyObservers,DEO/RO,SO,Police
OnthePollday
The exercise of Vulnerabilitymapping shall begin six to four months in advance so that DistrictMagistrates/Superintendent of Polices are fully aware of the situation at the time the same isreviewed by the Commission. Itmay be noted that VulnerabilityMapping exercise is a pre-pollexercisethereforeallactivitiesaslaiddownaretobecompletedasperlaiddownschedule.
14
annexure-i
VM-1–inforMaTiononeachacTobeproVidedbydeo/roTosecTorofficerbeforehe/sheunderTakesTheexerciseofVM
1. NumberofelectionoffencesregisteredinthelastparliamentaryelectionsintheACarea(givedetailswhereverrequired)
2. NumberofelectionoffencesregisteredinthelastassemblyelectionintheACarea(givedetailswhereverrequired)
3. NumberofelectionoffencesregisteredinthelastlocalbodyelectionintheACarea(givedetailswhereverrequired)
4. Numberofseriouscriminaloffencesregistered in thearea, ifany, in the lastoneyear(givedetailswhereverrequired)
5. Modelcodeofconductviolationsifanyinthelastparliamentaryelection(givedetailswhereverrequired)
6. Modelcodeofconductviolationsifany,inthelastassemblyelections(givedetailswhereverrequired)
7. Detailsofre-pollifanyinthelastgeneralelectionofparliamentorassemblyoranybye-election 8. DetailsofProhibitionlawsrelatedcases–periodtobespecified 9. Detailsofpre-pollcomplaintsifanyrelatedtoelectoralrollsoftheAC10. Detailsofanyotherpre-pollcomplaints11. DetailsofcasesviolatingtheNarcoticDrugsandPsychotropicSubstancesAct12. Informationregardingmorethannormalmigrationinthelast06monthstoandfromtheAC
area,ifany13. Voterturnoutalongwith%inthelastParliamentaryelections: l Male: l Female: l Overall:14. Voterturnoutalongwith%inthelastassemblyelections: l Male: l Female: l Overall:15. NamesofpersonsfromACareacurrentlyunderexternmentordetainedunderPASA,(givethe
details,iftheinformationisnotsensitive).16. No.ofcases&detailsofimportantcasesregisteredintheareaunderrelevantStateExciseAct: 1. Inthelastparliamentelection. 2. InthelastAssemblyelection. 3. Inthelastoneyear17.Armsrelatedinformation
15
annexure-ii
(it is not clear whether this report is to be submitted for entire sector or for each Ps separatelyorforeachvillage/localityseparately.
VM-2(so):perforMaforcheckinganddeTerMiningvuLnerAbiLiTy by secTor oFFicers
Instructionsforfillingthisformat: 1. Thisisanillustrativeformatandshallserveastheinitialguideforconductingvulnerability
mapping. 2. Anynumberofotherlocalissuesthathaveimplicationsonvulnerabilityoftheconcernedarea
canbeaddedtothisformat. 3. TheSectorOfficermustnotinsistondisclosingthesource/sofinformationifsodesiredbythe
informants;andinfactwillberesponsibleforitsconfidentiality.
1 . NameofVillage/Hamlet/Locality
2. NameandNo.ofAssemblyConstituency
3. Sector No.
4. NameandNo.ofPollingStation/sandVillageandareaincluded
NameandNo.ofPollingStation Thedetailsofareaincluded
5. Whetherclashesbetweentwoormorecastes/communities/groupshaveoccurredinthevillage/areaduringlastoneyear?(ifyes,detailsthereof)
6. Whetherany incident/shaveoccurred in thevillage/areawhichhavecausedpoliticalrivalry or political scuffle between twoormore castes/communities/groups on largescale?(ifyes,detailsthereofandgroupsinvolved)
7. Whetheranyelectionrelatedoffences/incidentshaveoccurredduring lastAssembly/Parliamentary/Localbodyelection?(ifyes,detailsthereof)
8. Detailsofveryseriousoffenceslikemurder,rape,atrocity,riotingoccurred/registeredduring last one year in the village and person/ groups involved and area inwhich itoccurred.
9. Nameofperson/swhohavebeenexternedordetainedunderPASAduringlastoneyear.
10. Name of person/swho are presently under externment or presently detained underPASA.
16
11. Whether incidents of clashes are likely to occur considering the political situationprevailinginthevillage/areaandsurroundings.(ifyes,thereasonsthereofandgroupsinvolved)
12. Whether any caste/ group/ household has apprehension that theywill be preventedfromcastingvotes.(ifyes,detailsofcaste/group/householdandfromwhomandwhichtypeofthreattheyhave)
13. Generalatmospherefromtheperspectiveofwomenvotersforcastingoftheirvotes.
14. Whether women from any caste/community/ group/ household have fear that theywouldbepreventedfromcastingvotes.(Ifyes,detailsofsuchtypeofperson/household/groupandfromwhomandforwhatreasonthefeartheyhave.)
15. Nameandnumberofvulnerablepollingstationforanyofthereasonmentionedabove.
16. From which perspective the polling station is vulnerable? Whether vulnerability iscausedbyanypersonorgroup.
17. WhetherpersonsbelongingtoNomadictribesand/ortoanyexcludedcommunityareresiding in the village?Whether they have been intimidated by somebody?Have anyfear?Ifyes,byWhom?Givethename.
18. Whethertelephonenumberofpolicestation,controlroom,policeinspectorandotherimportant telephonenumbers areprovidedby SectorOfficers to vulnerablepersons?(Yes/No)
19. Whethersomepointsofcontactwithinthevulnerablearea/villagehasbeenidentifiedsothatinformationrelatedtosuchdevelopmentscanbetrackedconstantly.Detailsthereof
20. Whethercasesoftemptationbycandidateinformofcash,liquor,mobilerecharge,lunchetc.havecometonoticeinthevillageduringlasttwoGeneralElections?(Pleasecheckincontextofwomenandyoungvoter).
21. Nameandnumberofpollingstationswhicharenotvulnerable.
22. Otherdetails,ifany.
23. Detailsofvillagepeopleinwhosepresencetheabovementionedreviewiscarriedout.(outofthem,twoelderpeople,twowomenandtwoyouthandotherpeople)–Note: These details are to be recorded only if the sources are ready to disclose theirdetails.
17
No. Name Residence ofwhich area in thevillage
Signature
1.
2.
3.
4.
5.
Signature of Head Constable/ Assistant SubInspector
name:
designation:
Tel. no.:
sector no. :
Ac no. :
SignatureofSectorOfficer
name:
designation:
Tel. no.:
sector no. :
Ac no. :
18
annexure-iii(pswise)
VM-3(so)–pollingsTaTionwiseforMaTforenlisTingVulnerablelocaliTies/pockeTs/VoTersegMenTsandlisT
oF inTimidATors by secTor oFFicer
SectorOfficertonotethefollowingbeforefillingthisformat:
1. TheSectorOfficer/SectorMagistratehastofilladifferentFormatVM/SO-IIA(Annexure-III)foreachPollingstationinhisSector,andasmanyformatsVM–SO11AasisthenumberofPollingStationsinhisSector.
2. EachFormatVM/SO-IIAmustcontainthedetailsforallVulnerableLocalities/Pockets/VoterSegmentsinonePollingStationareaoftheSector.
3. Itmustbeensuredandcertifiedthatnolocality/pocket/Votersegmentwhichisvulnerablehasescapedorbeenmissedforminclusioninthisformatforanypollingstationarea.
NumberandNameoftheAC:
SectorNo.:
NumberandNameofthePollingStation:
I.NameoftheLocality: DateofInformation:
a.listofVulnerablehouse/families
Sl. No Houseno./FamilyName/otheridentifyingdetailsoftheHousehold/FamilwywhichhasVulnerable Voters intheLocality
Number of Votersidentifiedas Vulnerable intheHouse/Familyidentifiedin Col-2
Contact No.oftheHousehold,ifany
ActionTaken/Proposed
Remarks
1 2 3 4 5 6
Total
19
b.listofpersonstobeTracked/preventedfromintimidating/wronglyinfluencingVoters:
Sl. No NameofthePerson
ContactNo.&AddressofthePerson
ActionTaken/Proposed Remarks
1 2 3 4 5
Total
II.NameoftheLocality DateofInformation:
List of
List of
III.NameofLocality: DateofInformation:
List of
List of
iVcerTificaTionbyThesecTorofficer/secTorMagisTraTe
Itisherebycertifiedthatnolocality/pocket/votersegmentwhichis‘vulnerable’fromthepointof
viewoftheassemblyelections,2011intheareaofthepollingstationno. ,pollingstationname
whichisincludedinmysector,hasescapedorbeenmissed
frominclusioninthisformat.
SignaturesofSectorOfficer/SectorMagistrate
NameandMobileNo.oftheSectorOfficer/SectorMagistrate
20
annexure-iV(secTorwise)
VM-4(so)–suMMaryofpollingsTaTionwiseenlisTingofVulnerablelocaliTies/pockeTs/VoTersegMenTsandof
inTimidATors by secTor oFFicer
Sl. no Subject Total number
1. TotalnumberofPollingStationsallocatedtoSectorOfficer
2. TotalnumberofPollingStationsvisited
3. BroadperiodofvisitcoveringallPollingStations From to
4. Totalnumberofhouseholds identifiedwithvulnerablevotersinallthePSputtogether
5. TotalnumberofVotersidentifiedasVulnerableinallthePSputtogether
6. TotalnumberofpersonscausingvulnerabilityidentifiedinallthePSputtogether
SignaturesofSectorOfficer/SectorMagistrate
NameandMobileNo.oftheSectorOfficer/SectorMagistrate
21
annexure-V(secTorwise)
VM-5(so):cerTificaTebyThesecTorofficer/secTorMagisTraTe/headconsTable/assisTanTpolicesub
insPecTor
Itisherebycertifiedthatnolocality/pocket/votersegmentwhichisvulnerablefromthepoint
ofviewofthe elections, (year)whichisincludedinmysector
No. ,hasescapedorbeenmissedfrominclusioninthisformat;andthatmyreportisbased
onmypersonalvisit/stothePollingStationareas.
SectorPoliceofficer SectorOfficer/SectorMagistrate
Signature Signature
Name Name
Designation Designation
Mobile number Mobile number
Date:
Place:
22
annexure–Vi(aclevel)
VM-6(ro):suMMaryofVulnerabiliTyandlisTofpersonscAusing vuLnerAbiLiTy by reTurning oFFicer
Date:
NameoftheDistrict:
NumberandNameoftheAC:
A. Ac summary on vulnerability
Sl. No. No&Name of PollingStation
No. of Families /HouseholdsidentifiedasVulnerable in thePSareabytheSO
Total Number of Voters identifiedasVulnerable(inhouseholdsidentifiedasvulnerable)inthePSareaincol.3
No. of Persons CausingVulnerable in thePSarea
Action Taken
1 2 3 4 5 6
Total
b. List of Persons causing vulnerability in the Ac
Sl. No. NameofthePersonCausingVulnerability
Contact No.&address
PSnos.inwhichheiscausingvulnerability
ActionTaken/Proposed
Remarksinany
1 2 3 4 5 6
Total
SignatureoftheReturningOfficer:
NameoftheReturningOfficer:
23
annexure-Vii(districtlevel)
VM-7(deo):reporTonidenTificaTionofVulnerabiliTy,andAcTion TAken AT disTricT LeveL
Date:
NameoftheDistrict:
Table A identificationofVulnerabilityandactionThereon:
Sl. No AC number andname
Total number ofPollingStations
Total number of PollingStation/sinwhoseareaVulnerable Persons/Families/Householdhavebeenidentified
Total number of Vulnerable Voters identifiedinthesePollingStation areas
ActionbeingtakentopreventtheseVulnerableVoters from beingintimidatedorwrongfullyinfluencedbeforeandduringthepoll
1 2 3 4 5 6
Total
24
Table breport on Persons causing vulnerability:
DetailsofActionTakenagainstPersonsmentionedincol.3(Numbers)
Sl. No AC number andname
Total number of IdentifiedPersons
Boundover
Externment InCustody Anyotheraction(withdescription)
Number of Persons outofthosementionedincol.3againstwhomnoactionhasbeentaken
Reasons for no action as mentionedin col. 8
1 2 3 4 5 6 7 8 9
Total
SignatureoftheDEO
NameoftheDEO
March, 2016 - edition 1
election Commission of indianirvachanSadan, ashoka Road, new Delhi – 110001
“Greater Participation for a stronger Democracy”
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