vulnerability mapping - election commissioner of...

Manual on

Vulnerability Mapping

March, 2016Document 5 edition 1

election Commission of indianirvachanSadan, ashoka Road, new Delhi – 110001

“Greater Participation for a stronger Democracy”

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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.

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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)


9B CompilationofVMreportsofallROsbyDEO&submissiontoCEO(inAnnexureVII)


10 Certificate of NO Vulnerable village/area inAssemblyConstituency,byDEOtoCEO


11 Compilation of VM reports of all DEOs andsubmission to ECI


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



vulnerability mapping - election commissioner of...

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