Conducting Elections in a Plural Society -

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Dr S.Y. QuraishiFormer Election Commissioner of India

GEO 2013, Incheon,syquraishi@gmail.com,

The Indian Experience

India’s Giant Leap

• India chose Democracy in 1950

• Granted universal adult suffrage in the very first election despite:

• a 16% literacy rate.

• and a caste-based hierarchical social system.

• oppressed masses of India had voted in many elections

before Switzerland allowed its women and Australia its

aborigines to vote.

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63 Years of Indian Elections

• India has conducted 15 General Elections to Parliament and

more than 340 General Elections to State Assemblies.

• More than 3 million elected representatives – National, State

and Local bodies.

• Indian elections never missed the deadline, credibility never

challenged.

• Barak Obama hailed Indian Elections as “historic” and an

“example for us all.”

. Hilary Clinton described it as "global gold standard".

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Concerns of Diversity

• Inclusivity of all sections

• None to be marginalised

• Constitutional Safeguards for minorities :

• Religious / Linguistic / Ethnic / Cultural

• No intimidation allowed

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Legal Protection to a Pluralistic Society

• Prohibition of appeal on grounds of religion, caste, creed, community, language etc.

• Prohibition of promotion of feelings of hatred, ill-will or enmity between different classes of Indian Citizens

• Prohibition of the use of religious institutions for electioneering

• Punishment for interfering with electoral rights of SC & ST

• MCC and a plethora of instructions of ECI.

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Legal Protection to a Pluralistic Society (2)

• Corrupt Practices/ fraud/ manipulation punishable –• Bribery • Division on the basis of Caste, creed etc.• Undue influence by using official machinery,

threat, inducement etc.• Religious institutions (Prevention of misuse)

Act, 1988.

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Inclusiveness : Provisions for Women

• Equal Voting Rights from day 1

• Separate queues for women at polling stations

• Separate polling stations for women in some areas

• Women Officers at polling stations for identity check of women voters at Polling Stations

• Use of Women Police

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Inclusiveness : Provisions for Disabled

• Ramps in all Polling Stations

• Use of Braille on EVMs and Ballot papers

• Allowing a companion for the infirm and disabled

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Inclusiveness : Others

• Use of Symbols on the ballot for illiterate

• Use of Multi-language Electoral Roll

• Use of Multi-language Ballot Paper

• Transgender given the option to describe themselves as “Others” in electoral rolls

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The Largest Election in world history!

•A look at the size of 15th General Election to the Lower House of Parliament in 2009 :

714 million voters 8,34,944 Polling Stations 1.2 million Electronic Voting Machines 11 m poll personnel deployed Recognized National Parties - 7 Recognized State Parties - 44 Registered Parties - 1035 Candidates contested 8070

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A Few Comparisons

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Population Electorate

• Entire Europe (50 Countries)

- 731m

449 m

• Entire Africa (54 Countries)

- 922 m

566 m

• North America (41 Countries)

- 528 m

324 m

• South America (15 Countries)

- 382 m

235 m

• N&S. America (56 Countries)

- 910 m

560 m

• India

- 1163 m

714 m

• Commonwealth (52 Countries ex India)

- 900 m approx.

• India has more voters than every CONTINENT!

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The Complexities

• It’s not just size and magnitude. It is about: • Democracy even at the remotest locations

• Separate polling station for a lone voter

• Trekking 45 km in snow to reach 37 voters

• Using elephants, camels, boats, cycles, helicopters, trains

to ferry EVMs and polling teams

• Countrywide ‘vulnerability mapping’

• Tracking information from each polling station

• Dealing with Regional, Religious, Ethnic, Cultural and

Linguistic Diversities

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• Election Commission of India – created by the Indian Constitution. Fiercely independent.

• CEC and 2 ECs.

• Right to vote to all above 18 years of age.

• Conducting Elections of President, VP, Parliament and State Legislatures.

• Delimitation of constituencies after each census.

Electoral Administration Framework

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Election Machinery in States

• Chief Electoral Officers ( permanent). - 35

• District Election Officers - 601

• Returning Officers (Parliament) - 543

• Returning Officers (Assembly) - 4120

• Asstt. Returning Officers (Parliament) - 4600

• Asstt. Returning Officers (Assembly) - 10,000

• Electoral Registration Officers - 4120

• Asstt. Electoral Registration Officers - 4800

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Electoral Roll - the Foundation

• Health of ER ensured• Gender, Age cohorts, Elector- population

ratio

• Photo Electoral Rolls introduced.

• Good deterrence against impersonation

• Booth Level Officer (BLO) System introduced to ensure fidelity of ERs at doorsteps.

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Preparation for Elections -

Relationship with Stakeholders

• EC hears concerns of all political parties.

• All political parties treated equally

• CEOs and DEOs call meetings of Political Parties for electoral rolls, enforcement of MCC, for deciding polling stations & counting centres.

• Any individual or NGO can offer suggestions or can file complaints with the EC, CEOs & DEOs.

• Voter Education

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Mobilization of the Staff

• Drawn from various Central and State Government departments - no private individual associated.

• Staff on deputation with the Commission.

• Staff subject to Commission’ disciplinary control.

• Staff mobilized & deployed by the CEO under Commission’s instructions.

• Neutrality non negotiable.

Preparation for Elections -

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Preparation for Elections - Training and Deployment of Staff

• Staff of various districts and states mixed/ randomised to ensure fairness.

• Staff given nominal honorarium.

• Deployment of Government employees keeps expenditure under check, enhances control.

• Training : Different Layers

• Tainted and aligned not associated.

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Preparation for Elections -

Procurement of Materials

• Procurement of EVMs by the Commission.

• Other materials by the CEOs and DEOs.

• Standard procurement procedures followed.

• Specifications of materials decided by the Commission in case of non standard items.

• Advance planning by the Commission, CEOs and DEOs for procurement at their levels.

• Safety margins.

Scheduling of Elections

• Considerations in scheduling:• Weather• Agricultural cycles• Festivals• Exam schedules• Public holidays• Logistical requirements• Law & order• Movement of Central police forces

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Preparation for Elections -

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Checking Intimidation, violence & fraud

• Vulnerability Mapping : a response to threat and intimidation of voters.

• 86,782 villages / hamlets identified as vulnerable.

• 373,886 persons identified as potential trouble makers.

• Preventive measures taken.

• Video-graphers (74,729) Digital cameras (40,599) deployed: a great deterrent

• Hardly any complaint of threat and intimidation.

Preparation for Elections -

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Vulnerability Mapping

• Booth vulnerability based on several criteria:• Photo Electoral Roll• Elector’s Photo Identity Card• Missing Voters• Extraordinarily High Turnout• Extraordinarily Low turnout• Extraordinary Winning Margin of victory• Caste/community Profile/ dynamics • Profile / criminal antecedents of candidates• Previous polls history• Native village / place of candidates

Preparation for Elections -

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Preparation for Elections –

Security against electoral violence

• Assessment for Central Police Force’s requirement is made keeping in mind the Law and Order situation.

• State police and central paramilitary forces deployed based on requirements.

• No police with any affiliation to ruling party deployed.

• Confidence building measures taken.

• Situation watched regularly.

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COMET(Communication for Election Tracking)

• Timely information is critical

• Direct connectivity with all PSs (landline telephones, mobile phones, HF, VHF wireless networks, Satellite phones and even runners) established and pre tested

• Proved an effective tool for tracking poll day events.

• Deterrent for trouble makers.

Observers best check on fraud

• Appointed from senior civil servants

• General and Expenditure Observers

• Statutory role for Observers

• Report directly to Commission

• Eyes and ears of the Commission in the Constituencies

• Nearly 2000 observers appointed in GE 2009

• All counting centers covered

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• Pilot -1982; full LS 2004, all VS elections since 1998

• More than 1.4 million EVMs deployed in various locations across the country.

• EVMs now used universally in all Elections.

• Voter Verifiable Paper Audit Trail (VVPAT) introduced.

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EVMs – The Wonder Machine of Indian Democracy

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Model Code of Conduct

• Minimum standards of behaviour

• Conduct of political parties / candidates

• Public meetings, Processions, Campaigning, Media

• Conduct on poll day

• Handling of complaints

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Checks on Party in Power

• No official tour with campaigning

• Bar on use of official vehicle/aircraft

• Equal opportunity for use of public places for meetings, stay etc

• No ads on public expense

• No announcement or promise of new schemes

• No new financial sanctions

• No fresh appointments

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Counting (G.E 2009 Figures)

• Total Counting Halls : 4,260

• Total Counting Centres : 1,080

• Counting Staff deployed : 178,920

• Supervisory / data staff : 20,000

• Micro-observer at every table : 59,640

• Videography of proceedings of counting

• Result announced of every round

Issues of Concern

Role of Money Power Expenditure monitoring complex and tough “Paid News” and surrogate advertisements

Criminalization of electoral politics Dependence on Central Police Force

Lack of faith in State Police Urban and Youth Apathy

Measures to ensure enhanced participation Blaming the Pitch and the Umpire

Rumours / social media

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Future Plans from Past Lessons

1.Greater use of Technology

• A National Electoral Database for:• Better Citizen services and accessibility• Avoidance of duplicates in the database• Online registration

1. GIS for creation of polling stations• GPS for tracking of polling teams• Internet and mobile phones for Voter Education

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2. Voter Education • National, State & district plans for electoral participation• Research on voters’ behaviour• Special focus on urban, young and women voters• National Voters Day • Partnership with schools/ colleges/ Civil Society and

Election Watch bodies• Documentation/ Inventory of voter education activities/

materials

Future Plans from Past Lessons (2)

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Future Plans from Past Lessons (3)

3. Election Expenditure Monitoring

•Expenditure Statement summary of all winning candidates put on CEO’s websites for public access.

•Expenditure Monitoring Division created

•Expenditure details and affidavits of candidates made available to Income Tax for follow up.

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The Times of India 15.05.09

Indian Express 16.05.09

Hindustan Times 19.5.09

Hindustan Times 19.05.09

Asian Age 14.05.09

Some Media Reflections

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Some Media Reflections (2)

•“It is truly the greatest show on Earth, an ode to a diverse and democratic ethos….an inspiration to all the World”

- V Mitchell, New York Times, May 22, 2009

•Indian voters show the way forward Financial Times, London, May 17, 2009

•India confirms its status as a democratic beacon …Yet for this chaotic nation - with its almost unfathomable religious, linguistic and social diversity - not only to hold free and fair elections but also to deliver stable government is a truly remarkable achievement. 

The Independent, London, May 19, 2009

A Simple Vision @ 60

Elections that are completely free of crime and abuse of money, based on a perfect electoral roll and with full voters participation

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India Elections 2009 - Glimpses…

Photo Gallery - Elections 2009

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Officials checking EVMs and polling materials

Officials carrying EVMs and polling materials

A group of Villagers with EPI cards Officials carrying EVMs and polling

materials

Electors going to exercise

their Franchise

An Elector familiarizing himself regarding

functioning of EVM

Photo Gallery - Elections 2009

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An elder on way to cast her vote

Electors waiting in Q Indelible ink being marked on elector’s finger

Physically challenged casting her vote Prime Minister of India after

casting his vote

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THANK YOU