Manual on

March, 2016
Document 5 edition 1

election Commission of india

nirvachanSadan, ashoka Road, new Delhi – 110001
“Greater Participation for a stronger Democracy”
 RESTRICTED AND OFFICIAL USE
ONLY

Manual On
VULNERABILI
TY MAPPING

election Commission of india

nirvachanSadan, ashoka Road, new Delhi – 110001
“Greater Participation for a stronger Democracy”
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.
Table of contents

AbbreviATions v i.

inTroducTion 1 ii.

insTrucTions on LegAL FrAmework 2 iv.

PArAmeTers oF vuLnerAbiLiTy 2

V. Three sTages of VulnerabiliTy Mapping (VM) exercise 3

vi. AcTion To be TAken For vuLnerAbiLiTy mAPPing 4

1. Appointment of suitable Sector Officers and their responsibilities 4

2. Appointment of Sector Police Officers and Designated Police Officers for VM 5

3. Training of Sector Officers & Designation Police Officers 5

4. Making Law and Order portal of State Functional 5

5. Identification of Vulnerable Areas/Segments/Villages/Hamlets 6

6. Identification of the persons causing such vulnerability 6

7. Action against the persons responsible for causing vulnerability 6

8. Reporting formats 8

9. Area domination plan for CPF and Poll Day deployment 9

10. Monitoring of Vulnerable areas/persons on the day of poll 9

11. Role of RO/DEO/Observers after the poll 9

12. Accountability and Confidentiality 10

vii. TimeLine For vuLnerAbiLiTy mAPPing 10

3
 a nnexures 12-24

• Annexure-i vm-1 - Information on each AC to be provided by DEO/RO to Sector Officer

before he/she undertakes the exercise of VM

• Annexure-ii vm-2 (so) - Proforma for checking and determining vulnerability by

Sector Officers

• annexure-iii (ps wise) VM-3 (so) - A–Polling Station wise Format for enlisting
Vulnerable Localities / Pockets / Voter Segments and list of intimidators by
Sector Officer

• Annexure-iv (sector wise) vm-4 (so)- Summary of Polling Station wise enlisting of
Vulnerable Localities / Pockets / Voter Segments and of intimidators by Sector Officer

• Annexure-v (sector wise) vm-5(so)- Certificate by the Sector Officer / Sector

Magistrate / Head Constable / Assistant Police Sub Inspector

• Annexure–vi (Ac Level) vm-6 (ro) - Summary of vulnerability and list of persons
causing vulnerability by Returning Officer

• Annexure-vii (district level)vm-7 (deo) - Report on identification of vulnerability,

and action taken at district level

4
AbbreviATions
ARO Assistant Returning Officer
ASD Absent, Shifted, Expired & Duplicate
ASI Assistant Sub Inspector
ATR Action Taken Report
CEO Chief Electoral Officer
CPF Central Police Force
DEO District Election Officer
DM District Magistrate
DSP Deputy Superintendent of Police
ECI Election Commission of India
EPIC Electoral Photo Identity Card
LIB Local Intelligence Bureau
LOR Law and Order
LWE Left Wing Extremism
MCC Model Code of Conduct
NBW Non Bailable Warrant
PASA Prevention of Anti-Social Activities Act
PCCP Patrolling-cum-collecting parties
PI Police Inspector
PS Polling Station
RO Returning Officer
SDM Sub Divisional Magistrate
SDPOs Sub Divisional Police Officers
S.O. Sector Officer
SP Superintendent of Police
TDO Taluka Development Officer
UT Union Territory
VM Vulnerability Mapping

5
i. introduction

Vulnerability in the context of elections is defined as the susceptibility of any voter or section of
voters, whether or not living in a geographically identifiable area, to being wrongfully prevented
from or influenced upon in relation to the exercise of his right to vote in a free and fair manner,
through intimidation or use of any kind of undue influence or force on the voter.
The exercise of Vulnerability Mapping (VM) in the context of the elections is to be undertaken
with the objective of clearly identifying, in advance, such voters or section of voters who are likely
to be “vulnerable”, the persons or other factors causing such vulnerability and taking
adequate corrective action well in advance on the basis of such identification.
Since 2007, the Election Commission of India issued instructions regarding various measures
to be taken to ensure free and fair elections. An atmosphere in which each and every elector is able
to access the polling station without being obstructed or being unduly influenced by anybody is an
important prerequisite to a free and fair election. In the interest of this prerequisite that is for
ensuring a free, fair, and safe atmosphere for the voters at large, the Election Commission of India
has devised tools for taking advanced, preventive and planned action. One such tool is the tool of
Vulnerability Mapping (herein referred to as VM).

ii. instructions on vulnerability mapping

Taking due cognizance of the role being played by the muscle power in elections and taking into
account of certain prevailing socio economic realities of electoral politics, the Commission initiated
a mechanism called ‘Vulnerability Mapping’ in 2007. Subsequently, following series of instructions
were issued to curb the menace of threat and intimidation at elections by identifying the locations
within a polling station area vulnerable for such threat and intimidation:

date of number subject key components

instruction
12/10/2007 464/INST/ Measures to ensure Identifying vulnerable villages/
2007-PLN-I free and fair elections – hamlets/ habitats
Prevention of intimidation Preventive measures Joint
to the voters of vulnerable review of DEO and SP Area
sections of electorate – domination Reporting
Mapping of Vulnerability
- regarding.
Visit of Sector Magistrates and
16/10/2010 464/BR- General elections to Bihar PCCP
LA/2010 Assembly – security cover Providing security cover to
for vulnerable areas - vulnerable voters
regarding.

1
 23/03/2011 464/INST/ General elections to Visit of Sector Magistrates and
2011/EPS Legislative Assembly mobile State forces
to Assam, West Bengal, Providing security cover to
Kerala, Tamil Nadu and vulnerable voters
Puducherry - security
cover for vulnerable areas -
regarding.
30/12/2011 464/INST/ Vulnerability Mapping Vulnerability Mapping
2011/EPS Visit of Sector Officer
Format VM-SO Format
VM-RO Format VM-DEO
Expenditure Management Formation of Village Level/
07/03/2014 76/INST/ Ward Level Awareness Group
2014/EEPS To gather information of
intimidation in area
Creation of confidence building
measures in the area
21/10/2015 464/L&O/ Instruction of Press No Press Conference-Media
2015/EPS Conference during elections briefing–sharing of details of
– regarding deployment of security forces
in public domain.
Any information to media will
be given by Commission or the
CEO/s, if required.

The tool of VM has been effectively utilized since its inception and depending upon the
emerging requirements, it has been modified/adapted from time to time. After over eight years of
experience of utilizing this tool in all General Elections, Parliamentary and Assembly, the
mechanism of VM has now become institutionalized. Drawing from these experiences and learning
from the best practices from across the country, the series of instructions issued by the ECI on VM
have now been consolidated and augmented further in a systematic framework in this monograph
for more effective application in the field.

iii. Legal framework:

1. Section 171C of the Indian Penal Code - Undue influence at elections is an electoral
offence under section 171C of the Indian Penal Code. Any voluntary interference or
attempt at interfering with the free exercise of any electoral right constitutes the crime
of undue influence at an election.

2
 2. Section 123 (2) of the Representation of the People Act, 1951 – This section defines, any
direct or indirect interference or attempt to interfere on the part of the candidate or his
agent, or of any other person with the consent of the candidate or his election agent with
the free exercise of any electoral right, as a corrupt practice.
Additionally, various other related provisions of IPC can be invoked by the
enforcement agencies depending upon the offences those create vulnerability.

iv. Parameters of vulnerability

Every DEO/RO needs to collect input on the basis of present and past records concerning
the elements of vulnerability in his/her district/constituency. Annexure-I provides a set of
parameters to collect the input on vulnerability. The DEO/RO should collect such information
atleast six months in advance and continue updating subsequently. After appointment of Sector
Officer for the exercise of Vulnerability Mapping, this input needs to be provided to him/her.
Suitable training capsule also needs to be organized to make him/her capable for the exercise of
vulnerability mapping.
Other important parameters that are also to be taken into consideration by DEO/RO while
carrying out vulnerability mapping exercise and while giving written briefs to Sector
Officers include the following :

i. Pre-poll complaints: Pre-poll complaints may be considered as an important input of

Vulnerability Mapping. Complaints are important on many counts. It is a live
phenomenon showing depth of political competitiveness much before the poll day.
Complaints are not always genuine. However, number of complaints verified true by
election machinery may be taken as an indicator of vulnerability. Pre-Poll
complaints have usually two dimensions. One relates to MCC, the other relates to
political rivalry of diverse nature primarily concerned with
maintaining/consolidating/losing of political ground by leaders of political parties.
Indeed, the second variety of activity starts taking place much before the Poll day.
Complaints are a manifestation of tremors felt by political parties in the run-up to the
elections.

ii.Act of political parties: Number of complaints related to violation of MCC cases, prior to
poll, are also important. Experience suggests that political parties are reluctant to take
permission of household owners for wall-writing on private property. In rural areas, it is
almost taken as granted. The voters may not muster courage to raise voices against the
much organized body called political party, in particular, ruling political party. This
creates sense of vulnerability in voters. Indeed, giving permission to political
parties to allow private property put on graffiti may be silently forceful. In this context,
the propensity of MCC violations has a strong bearing upon vulnerability of the Polling
Station and shall, therefore, be taken into consideration in mapping of vulnerability.
The Sector Officer will use the proforma, as prescribed at Annexure-II, for checking and
determining vulnerable areas, particularly in non-LWE areas during the visit to the Polling

Station(s). Besides the Sector Officer’s VM report, the DEO must also ensure the following:

3
i. cross-verification of vulnerability report: There must be some additional mechanism
of collecting, cross verifying and collating information at a relatively higher level of the
Sub-divisional Magistrate (SDM). Some more inputs may be added thereon, from SDPOs/

4
 other sources/ district intelligence inputs, making vulnerability plan rationalized
and realistic. During General Assembly Elections, SDMs shall coordinate with ROs of
the assembly constituencies within the sub-divisional jurisdiction.

ii. other avenues for collecting inputs: - The Commission has issued instructions
that ROs will take into consideration the worry lists submitted by candidates before
force is deployed. The interface in having inputs from political parties may be taken at
the SDM level (and not below it) so that validation may be done at this level first before it
goes up to the level of DEO/RO.

iii. There shall be some channel for information sharing from the voters also, they being
the largest stake holders. The helplines/Call centers/ Control Rooms shall be activated
and given sufficient publicity. The Sector officers shall be well versed with these details.

v. Three stages of vulnerability mapping (vm) exercise

In all the Constituencies going to poll, the Vulnerability Mapping (VM) exercise shall be carried out
without exception. The VM exercise takes place in three stages:

i. identification of the voters/voter segments (village/hamlets/ area wise) vulnerable to

threat or intimidation

ii. identification of the persons causing such vulnerability

iii. initiatingpreventive measures against the persons responsible for causing

vulnerability.

vi. Action to be taken for vulnerability mapping:

1. appointment of suitable sector officers and their responsibilities

a) Appointment process:
Depending on the terrain and availability of manpower resources, one Sector
Officer or Sector Magistrate, as per directions of the Commission, is to be appointed
to supervise 10 to 12 Polling Stations, that can be covered in 1 to 2 hours. Since this
is one of the most responsible positions; the best officers are to be identified. If
required Central Govt. officers can also be deployed. All help, including vehicular,
fuel, mobile phone support etc. if needed, shall be extended to the Sector Officer for
this purpose.
It may be noted that Sector Officers are appointed to look after the VM work
related to the specific sections, covered under each of the 10-12 Polling Station,
hence this must not be construed as 10-12 Polling Station Locations. After
announcement of election schedule till the poll process – Sector Officers shall
be designated as Zonal Magistrates for the same area, at least 7 days before the
poll day. They will be conferred with the powers of Special Executive Magistrates
also. The CEO shall take appropriate action in consultation with the State
Government to facilitate the conferment of the powers of the Special Executive
Magistrate.

5
b) Pre-poll responsibilities:

6
 The pre-poll responsibilities of the Sector Officers related to the Vulnerability
Mapping include:

i. Initiating VM exercise as per the timeline

ii. Frequent visits for confidence building measures and fine tuning the VM

iii. Identification of villages, hamlets and segments of voters vulnerable to

threat and intimidation.

iv. Identification of persons who make it vulnerable - It is not about

numbers it is about names - Information to be given in prescribed
format to the RO/DEO without having to disclose the source.
v. Accountability for ensuring free access of voters for voting.

vi. Contact points within the vulnerable community with their telephone
numbers.

vii. SO will act as Zonal Magistrate, therefore will be accompanied by

the
police officer.

viii. Since SO will act as Zonal Magistrate, he will prepare a Zonal Magistrate
Plan with a sketch map for PSs, list of telephone numbers of PSs
and election related officers, police stations, list of responsible persons,
list of anti-social elements etc.

ix. Meeting with Labour inspectors and food and supply officers for
identification of vulnerable areas.

x. Meeting with heads of educational institution, specially residential

institutions.

xi. Interaction with factory/godown owners.

xii. Meeting with RWA’s/Gram pradhan/Sarpanch for confidence building.

xiii. Sharing information with the beat constable.

xiv. Knowledge about geography of the polling station/area.

xv. Identify the distribution of electors in terms of caste, creed and religion.

xvi. Identification of persons running printing press.

c) Poll day responsibilities:

On Poll day the Sector Officer is expected to:

7
 i. Frequently check if the vulnerable sections identified earlier, are voting
or not

ii. In case of any alarm in this regard he/she has to alert the RO and district
administration immediately.

iii. He may also keep a check on vulnerable section with the help of flying
squads.
The activities described above are illustrative only. Depending on the local
sensitivities, the DEO/RO may add more activities for the purposes of VM.

2. appointment of sector police officer and designated police officer at police station
level
Every Police Station covers a certain area of the Assembly Constituency. For
the purpose of VM; the SP of the district shall arrange for a policeman who will act as
Sector Police officer, to accompany the Sector Officer and jointly conduct the exercise of
VM in the given area. The Sector Police officer shall not be below the rank of
Assistant Sub- Inspector or Head Constable of police.
For tracking the individual trouble mongers and for ensuring that the
troublemakers are kept under watch, a specific officer shall be designated at Thana
(Police Station) level for ensuring the proper law and order and peaceful poll. He will be
called the Designated Police Officer for Vulnerability Mapping.

3. Training of sector officers & designated police officers

Basic amenities such as vehicle, fuel, phone etc. shall be provided to the Sector Officers.
Magisterial powers shall be conferred on the appointed Sector Officers. Apart from these
the Sector Officers and the Designated Police Officers shall be well trained on following
aspects to make them able to carry out their duties smoothly. They shall be trained
jointly and each shall be provided the following details during the training:

i. Electoral roll of each of the PS; with hamlet name etc. to enable them
to
contact voters of every section in the part.

ii. Polling Station wise Basic Minimum Facilities (last updated)

iii. Voter turn-out (in last 2 general elections)

iv. Gender ratio

v. MCC violation cases (in last 2 general elections)

vi. A route map of their area, giving the broad layout and location of
polling stations falling in their sector (it could be a sketch map, need not be a
scale map)

vii. And other details as per Annexure-I

8
 Their joint visit programme shall be drawn up and be provided at the time of
training. During joint training session of RO & SDPO as well as of DEO & SP, the topic of
VM shall be covered. RO & SDPO as well as DEO & SP shall take periodical joint review
with these officers to monitor the work done by them and review the action taken on
points highlighted during their joint visits.

4. making law and order portal of state functional

As per the direction of the ECI instruction No.464/INST/2009/EPS dated 1/9/2009,

every State is expected to give two reports daily to the Commission – Law and
Order Report-1 (LOR-1) and Law and Order Report-2 (LOR-2). These reports are a
cumulative gist of:
Preventive action taken
Seizure reports – illegal arms, liquor, drugs, etc.
Vulnerable areas, persons and intimidators and action taken
NBW cases
Listed bootleggers
PASA detainees
Externment cases
Bad characters
Any related Media report

The detailing of each of the cases mentioned above shall be done on the law and
order portal maintained by the State. This portal is expected to maintain PS-
wise details of persons causing vulnerability and the action taken by the administration.
This portal shall become functional well in time before the announcement of elections.

5. identification of vulnerable areas/ segments/ villages/ hamlets

i. The first stage in the exercise of Vulnerability Mapping by the Sector Officer or the
Sector Magistrate has to be undertaken with immediate effect after the declaration
of election by the Commission. Sector Officer and HC/ ASI/Police Officer shall take
visit of every area jointly.

ii. The journey programme for them will be decided jointly by the Returning Officer
and Dy. Superintendent of Police/SDPO.

iii. The Sector Officer and team his/her must visit every Locality/ Pocket in the area of
every Polling Station in his/her Sector, hold widespread discussions with the local
people, collect intelligence, and enlist the vulnerable households and families,
as well as the persons and factors causing such vulnerability there.
iv. While carrying out this exercise they shall take into account the past incidents and
current apprehensions.

v. After the visit, they will prepare information for all points covered in
Proforma enclosed herewith in Annexure II, and also fill relevant forms at Annexure
III, IV and V.

9
 vi. The local police officer and local civil authorities such as TDO/ Mamlatdar/ Police
Inspector etc. shall also be consulted and their inputs be taken in to account before
finalizing the list/forms.

vii. The format at Annexure II is only meant as an enabler; and information collected
may not be restricted to it. Additional information may be added, if it has a bearing
on the vulnerability of the PS.

viii. Upon the arrival of the Observer in the Constituency, the DEO/RO shall hand over
the details of polling station-wise Vulnerability Mapping of the relevant Assembly
Constituency to the Observer (Please see Annexure VI and VII).

ix. The Observer will also visit such locations and interact with the voters and
shall
constantly monitor the developments.

6. identification of the persons causing such vulnerability

This exercise of identifying the persons responsible for making the voters / villages
vulnerable shall be undertaken polling station wise indicating the name of village,
hamlet, names of the potential troublemakers, including their address, and so on. This
work has to be done by maintaining complete confidentiality of the informers/source, if
so desired.

7. Action against the persons responsible for causing vulnerability

i. The DEO and the Superintendent of Police of the District shall hold a joint revi ew on
the subject and shall finalize a focused action plan to deal with the potential
threats and intimidation points identified. The action plan may be included, inter-
alia, binding the identified trouble mongers under appropriate section of the law,
confiscation of arms, preventive detention if required, forcing their appearance
in local police stations at reasonable intervals to ensure their good behaviour,
placement of police pickets, regular confidence building visits etc.

ii. The DEO and the SP shall initiate all preventive measures to ensure that
intimidation/
obstruction do not really happen on the poll day.

iii. It has to be ensured that all such measures are undertaken in absolutely non-
partisan
manner without fear or favour towards any particular party.

iv. Names of contact persons from within the vulnerable groups shall also be identified
and their contact numbers / mobile numbers, if any, shall be noted down.

v. For tracking the individual trouble mongers and for ensuring that the
troublemakers are kept under watch, the Designated Police Officer for Vulnerability
Mapping is to be appointed in each Thana, as already mentioned.
1
0
vi. EPIC snatching from Vulnerable Voters and the incidences of people being induced
to deposit their EPIC on payment of money to prevent them from exercising their

1
1
 franchise shall be stopped. The DEOs/SPs/ROs shall closely monitor the situation
and promptly take all appropriate action in this regard.

vii. DEO/SP shall initiate confidence-building measures to bolster the voters’ confidence
about the arrangements for free and fair poll.

viii. DEO/SP shall undertake tours, preferably jointly, to such locations and meet
the
communities and explain the arrangements made for the free and fair poll.

ix. Confidence building visits shall be made by other senior officers also. Joint
visits by SDM/DySP; Tehsildar/PI will be very effective and shall be planned in the
areas identified as most vulnerable. The visiting officers shall hold meetings
with the vulnerable persons / groups and issue warning to the troublemakers that
they will be tracked individually. These actions shall be taken in a focused manner.

x. Joint patrolling by civil and police authorities:- There shall be joint patrolling of civil
and police authorities starting from TEN days before the poll to TWO days before
the poll [P(-10) to P(-2)]. Introducing presence of civil authorities of reasonably
higher rank will instill confidence, other than providing important inputs for
finalizing the Force Deployment Plan.

xi. The DEO/RO shall interact with the candidates and the representatives of the
political parties to gather regular feedback.

xii. Regular feedback on the subject may also be obtained from the District Intelligence
(L.I.B.).

xiii. Where ever there is a cluster of such vulnerable pockets, the DEO shall
arrange for dedicated police teams/squads and locate them at convenient locations
in the vicinity, to be pressed into service for action on the day of poll without any
loss of time. It shall invariably form part of the District Security Plan.
xiv. Awareness generation among female voters: Awareness generation among female
voters on voting without fear and influence is essential as they tend to be soft
targets of intimidation and undue influence, not only from outsiders but also from
the family within.
xv. Formation of Village Level/ Ward Level Awareness Group (VAGs/WAGs) to
mobilise them to gather information of intimidation in area & to create confidential
building measures in the area (ECI instruction
no.76/INSTRUCTIONS/2014/EEPS//Vol-IV dated 7th March,2014).

xvi. Carry out 24 hours surveillance by FSTs, SSTs, VVTs.

8. reporting formats
a. reporting by sector officer:
The Sector Officer shall carefully fill the following formats:

VM-2 (SO): Proforma for checking and determining vulnerability by Sector

1
2
 Officer (Annexure II)

VM-3 (SO): Polling Station wise Format for enlisting Vulnerable Localities
/ Pockets / Voter Segments and list of intimidators by Sector
Officer (Annexure III)

VM-4 (SO): Summary of Polling Station wise enlisting of Vulnerable

Localities / Pockets / Voter Segments and of intimidators by Sector
Officer (Annexure IV)

VM-5(SO): Certificate by the Sector Officer / Sector Magistrate / Head

Constable / Assistant Police Sub Inspector (Annexure V)

These formats are to be necessarily filled for each such locality / Pocket, while
Sector Officer is touring the locality. The Sector Officer must retain copies of
the filled in Formats and submit all filled in Formats to the Returning Officer within 3
days of announcement of elections.
In case no such vulnerable hamlet or village is identified Assembly
Constituency, the DEO concerned shall obtain a certificate from the field
functionaries from the Thana / block level and sub divisional level & from S.P.
and finally submit a certificate to the CEO that no such vulnerable village or
hamlet or voter segment is available / identified within this district. Such
certificates shall be sent within 5 days of announcement of elections.

b. VM report of the returning officer:

The RO of the constituency shall compile all above information and finalize the
VM for the entire constituency and make it available to the DEO, within 5 days of
announcement of elections after retaining a copy of the same, in the following
format:

Format VM-6 (RO): Summary of vulnerability and list of persons causing

vulnerability by Returning Officer (Annexure VI)

c. vm report of deo:
The DEO, on the same lines, must collect the Formats VM/RO and prepare and
make available, the Format ‘VM/DEO’ to the CEO within 7 days of announcement
of election. The format prescribed for DEO reporting is:
Format VM-7 (DEO): Report on identification of vulnerability, and action
taken at district level (Annexure VII)

The CEO must compile all the district Formats VM/DEO of the State into a book and
make this compliance available to the Commission within 10 days of announcement of
elections.

9. Area domination plan for cpf and poll day deployment

The Commanders / Assistant Commanders of the CPF shall be given a list of such

10
 vulnerable locations by the DEO.

Wherever CPF arrives in advance for area domination, special attention shall be
given to such locations.

On the day of poll, the Commanders/Assistant Commanders shall make it a point to

visit such vulnerable pockets as a confidence building measure.

In case they come across any obstruction they shall take note of it and immediately
inform any of the electoral officials such as RO/DEO/SP/Observer/Sector
Officer and keep a note of the time of their intimation.

10. Monitoring of vulnerable areas/persons on the day of poll

Following actions need to be taken to ensure that the vulnerable persons, if any, are able to
vote without fear, threat or intimidation:

At the time of dispatch of the polling parties from the dispatch canters, the RO shall brief
the Presiding Officer concerned about the vulnerable locations within the
polling station area.

The Sector Officers shall submit a report indicating abnormally low percentage of voter
turnout, if any, within any section/sections particularly, with reference to the
vulnerable locations to the RO which may be used during the scrutiny etc.

On the day(s) of poll, the Sector Magistrates and the mobile forces shall visit at
least twice such villages/hamlets/dwelling areas which are identified as vulnerable
areas and where there are reports of possible intimidation of the voters. The Sector
Magistrates and mobile forces during their visit to these areas will ensure
that wherever required, adequate security cover is provided to such vulnerable
voters.

During the poll, the Observers and other senior officers while visiting the polling station
shall pay a special attention to this problem and find out whether any undue
influence, intimidation/obstruction is being caused.

The police patrolling parties shall keep track of the vulnerable locations and keep the
control room informed. Wherever necessary, police pickets shall be established to
ensure free and smooth access to all voters to cast their votes without fear.

The Commanders/Assistant Commanders of the CPF shall make it a point to visit such
vulnerable pockets as a confidence building measure on the day of polls. In case
they come across any obstruction they shall take note of it and immediately inform
any of the electoral officials such as RO/DEO/SP/Observer/Sector Officer and
keep a note of the time of their intimation.

Election staff (presiding and polling staff to be briefed wherever necessary to

monitor vulnerable areas).
11
 Deployment of adequate force in the vulnerable areas.

11. role of ro/deo/observers after the poll.

a. The RO/DEO shall take the inputs on mass scale intimidation/ threat/obstruction, if
any, into consideration while submitting their report after the poll.

b. The Observers shall give their full attention to the issue of VM and verify it at every
stage. A special mention of it shall be made about the issue in their final report.
Apart from this, they shall make an intelligent reading of the Form 17A and the
marked copy of the electoral roll used in the polling stations at the time of scrutiny
of Form
17A, if ordered by the Commission, after the poll.

12. accountability and confidentiality:

The Commission directs that accountability of various civil and police officials for
Vulnerability Mapping and follow up at every stage shall be clearly defined with
reference to each polling station/constituency. Severe disciplinary action will be
initiated in case of dereliction of duty on the part of any police/civil officials in this
matter.
It is advised not to conduct any kind of press conference or to furnish any type
of details relating to Vulnerability Mapping, Vulnerable areas, hamlets, troublemakers
etc. or any type of details relating to deployment of security forces for the purpose, in
public domain during any election. Appropriate instructions to field machineries may be
given in this regard. Any information to media about vulnerability, if required would be
given only by the Commission or by the Chief Electoral Officers of the State/ UTs concerned
on instructions of the Commission.
TheCommissionhasmadeitveryclearthatincaseoftheATRnotbeingsubmitted 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 information Six months before the election
on each AC by DEO/RO (as per Annexure-I)
2 Updation of basic information by DEO/RO Before handling over to Sector
(as Officer
per Annexure-I)
About six to four months before the
3 Appointment of Sector Officers & Police Sector election.
Officers
About six to four months before the
4 Appointment of Designated Police Officer at election.
police station level
12
 5 Training of Sector Officers & Designated Police Four to two months before the
Officers & handling over of basic information of election
AC to Sector Officers by DEO/RO
6 Making Law and Order Portal of State functional Four months before the election.
by ECI
7 Identification of vulnerable areas/ segments/ After the issue of Press Note by the
villages/hamlets, persons causing such Commission and before the issue of
vulnerabilities etc. in Annexure-I, II, III, IV & V the gazette notification.
8 Identification of the persons causing such Within 5 days of issue of gazette
vulnerability notification

9 Submission of all VM reports in Within 3 days of announcement of

formats elections
(in Annexure II, III, IV & V) to RO
Within 5 days of announcement of
9A Compilation of all Sector Officers reports by RO elections
and submission to DEO (in Annexure.VI)
Within 7 days of announcement of
9B Compilation of VM reports of all ROs by DEO & elections
submission to CEO (in Annexure VII)
Within 7 days of announcement of
10 Certificate of NO Vulnerable village/area in elections
Assembly Constituency, by DEO to CEO
Within 10 days of announcement of
11 Compilation of VM reports of all DEOs and elections
submission to ECI
At least before 5 days before day of
12 Action against the persons responsible for poll.
causing vulnerability
Within 2 weeks prior to poll day
13 Plan and execute joint confidence building visits
by DM/SP; SDM/DySP; Tehsildar/PI in areas
identified as most vulnerable.
14 Pre-poll area domination by CPF At least 3-5 days before poll day.
15 Strict vigil and monitoring of vulnerable areas/ On the Poll day
persons by Observers, DEO/RO, SO, Police

The exercise of Vulnerability mapping shall begin six to four months in advance so that
District Magistrates/Superintendent of Polices are fully aware of the situation at the time the
same is reviewed by the Commission. It may be noted that Vulnerability Mapping exercise is
a pre-poll exercise therefore all activities as laid down are to be completed as per laid down
schedule.

13
 annexure -i

VM-1– inforMaTion on each ac To be proVided by deo/ro To

secTor officer before he/she underTakes The exercise of VM

1. Number of election offences registered in the last parliamentary elections in the AC area (give
details wherever required)
2. Number of election offences registered in the last assembly election in the AC area (give details
wherever required)
3. Number of election offences registered in the last local body election in the AC area (give
details
wherever required)
4. Number of serious criminal offences registered in the area, if any, in the last one year (give
details wherever required)
5. Model code of conduct violations if any in the last parliamentary election (give details
wherever
required)
6. Model code of conduct violations if any, in the last assembly elections (give details wherever
required)
7. Details of re-poll if any in the last general election of parliament or assembly or any bye-
election
8. Details of Prohibition laws related cases – period to be specified
9. Details of pre-poll complaints if any related to electoral rolls of the AC
10. Details of any other pre-poll complaints
11. Details of cases violating the Narcotic Drugs and Psychotropic Substances Act
12. Information regarding more than normal migration in the last 06 months to and from the AC
area, if any
13. Voter turnout alongwith % in the last Parliamentary elections:
Male:
Female:
Overall:
14. Voter turnout alongwith % in the last assembly elections:
Male:
Female:
Overall:
15. Names of persons from AC area currently under externment or detained under PASA, (give the
details, if the information is not sensitive).
16. No. of cases & details of important cases registered in the area under relevant State Excise Act :
1. In the last parliament election.
2. In the last Assembly election.
3. In the last one year

14
17. Arms related information

15
 annexure -ii

(it is not clear whether this report is to be submitted for entire sector or for each Ps
separately or for each village/locality separately.

VM-2 (so): perforMa for checking and deTerMining

vuLnerAbiLiTy by secTor oFFicers

Instructions for filling this format:

1. This is an illustrative format and shall serve as the initial guide for conducting vulnerability
mapping.
2. Any number of other local issues that have implications on vulnerability of the concerned area
can be added to this format.
3. The Sector Officer must not insist on disclosing the source/s of information if so desired by the
informants; and in fact will be responsible for its confidentiality.

1. Name of Village/Hamlet/Locality
2. Name and No. of Assembly Constituency
3. Sector No.
4. Name and No. of Polling Station/s and Village and area included
Name and No. of Polling Station The details of area included

5. Whether clashes between two or more castes/communities/groups have occurred in the

village/area during last one year? (if yes, details thereof)
6. Whether any incident/s have occurred in the village/area which have caused political
rivalry or political scuffle between two or more castes/communities/groups on
large scale? (if yes, details thereof and groups involved)
7. Whether any election related offences/incidents have occurred during last Assembly/
Parliamentary/Local body election? (if yes, details thereof)
8. Details of very serious offences like murder, rape, atrocity, rioting occurred/ registered
during last one year in the village and person/ groups involved and area in which
it occurred.
9. Name of person/s who have been externed or detained under PASA during last one year.
10. Name of person/s who are presently under externment or presently detained under
PASA.

16
11. Whether incidents of clashes are likely to occur considering the political situation
prevailing in the village/area and surroundings. (if yes, the reasons thereof and groups
involved)
12. Whether any caste/ group/ household has apprehension that they will be
prevented from casting votes. (if yes, details of caste/ group/ household and from whom
and which type of threat they have)
13. General atmosphere from the perspective of women voters for casting of their votes.
14. Whether women from any caste/community/ group/ household have fear that
they would be prevented from casting votes. (If yes, details of such type of person/
household/ group and from whom and for what reason the fear they have.)
15. Name and number of vulnerable polling station for any of the reason mentioned above.
16. From which perspective the polling station is vulnerable? Whether vulnerability is
caused by any person or group.
17. Whether persons belonging to Nomadic tribes and/or to any excluded community are
residing in the village? Whether they have been intimidated by somebody? Have
any fear? If yes, by Whom? Give the name.
18. Whether telephone number of police station, control room, police inspector and other
important telephone numbers are provided by Sector Officers to vulnerable
persons? (Yes/ No)
19. Whether some points of contact within the vulnerable area/village has been identified so
that information related to such developments can be tracked constantly. Details thereof
20. Whether cases of temptation by candidate in form of cash, liquor, mobile recharge, lunch
etc. have come to notice in the village during last two General Elections? (Please check in
context of women and young voter).
21. Name and number of polling stations which are not vulnerable.
22. Other details, if any.
23. Details of village people in whose presence the above mentioned review is carried out.
(out of them, two elder people, two women and two youth and other people) –
Note: These details are to be recorded only if the sources are ready to disclose
their
details.

17
 No. Name Residence of Signature
which area in the
village
1.
2.
3.
4.
5.
Signature of Head Constable/ Assistant Sub Signature of Sector Officer
Inspector
name:
name:
designation:
designation:
Tel. no.:
Tel. no.:
sector no. :
sector no. :
Ac no. :
Ac no. :

18
 annexure- iii (ps wise)

VM-3 (so) – polling sTaTion wise forMaT for enlisTing Vulnerable

localiTies / pockeTs / VoTer segMenTs and lisT oF inTimidATors by
secTor oFFicer

Sector Officer to note the following before filling this format:

1. The Sector Officer / Sector Magistrate has to fill a different Format VM/SO-II A (Annexure-III)
for each Polling station in his Sector, and as many formats VM –SO 11 A as is the number of
Polling Stations in his Sector.

2. Each Format VM/SO-II A must contain the details for all Vulnerable Localities / Pockets /
Voter Segments in one Polling Station area of the Sector.

3. It must be ensured and certified that no locality / pocket / Voter segment which is vulnerable
has escaped or been missed form inclusion in this format for any polling station area.

Number and Name of the AC:

Sector No. :

Number and Name of the Polling Station:

I. Name of the Locality: Date of Information:

a. list of Vulnerable house / families

Sl. No House no. / Family Number of Contact No. Action Taken Remarks
Name / other Voters identified of the / Proposed
identifying details as Vulnerable in Household,
of the Household / the House / if any
Familwy which has Family identified
Vulnerable Voters in Col-2
in the Locality
1 2 3 4 5 6
Total

19
b. list of persons to be Tracked / prevented from intimidating / wrongly influencing Voters:
Sl. No Name of the Contact No. & Action Taken / Proposed Remarks
Person Address of the
Person
1 2 3 4 5
Total

II. Name of the Locality Date of Information:

List of

List of

III. Name of Locality: Date of Information:

List of
List of

iV cerTificaTion by The secTor officer/ secTor MagisTraTe

It is hereby certified that no locality/ pocket/ voter segment which is ‘vulnerable’ from the point of
view of the assembly elections, 2011 in the area of the polling station no. , polling station name
which is included in my sector, has escaped or been missed
from inclusion in this format.

Signatures of Sector Officer/ Sector Magistrate

Name and Mobile No. of the Sector Officer/ Sector Magistrate

20
 annexure - iV (secTor wise)

VM-4 (so) – suMMary of polling sTaTion wise enlisTing of

Vulnerable localiTies / pockeTs / VoTer segMenTs and of
inTimidATors by secTor oFFicer

Sl. no Subject Total number

1. Total number of Polling Stations allocated to Sector Officer
2. Total number of Polling Stations visited
3. Broad period of visit covering all Polling Stations From to
4. Total number of households identified with vulnerable voters
in all the PS put together
5. Total number of Voters identified as Vulnerable in all the PS put
together
6. Total number of persons causing vulnerability identified in all
the PS put together

Signatures of Sector Officer/ Sector Magistrate

Name and Mobile No. of the Sector Officer/ Sector Magistrate

20
 annexure - V (secTor wise)

VM-5 (so): cerTificaTe by The secTor officer / secTor

MagisTraTe / head consTable / assisTanT police sub
insPecTor

It is hereby certified that no locality / pocket / voter segment which is vulnerable from the point of
view of the elections, (year) which is included in my sector No.
, has escaped or been missed from inclusion in this format; and that my report is based on my
personal visit/s to the Polling Station areas.

Sector Police officer Sector Officer/Sector Magistrate

Signature Signature

Name Name

Designation Designation

Mobile number Mobile number

Date:

Place:

21
 annexure – Vi (ac level)

VM-6 (ro): suMMary of VulnerabiliTy and lisT of persons

cAusing vuLnerAbiLiTy by reTurning oFFicer

Date:

Name of the District:

Number and Name of the AC:

A. Ac summary on vulnerability
Sl. No. No & No. of Families Total Number of Voters No. of Action
Name of / Households identified as Vulnerable Persons Taken
Polling identified as (in households Causing
Station Vulnerable in identified as vulnerable) Vulnerable in
the PS area by in the PS area in col.3 the PS area
the SO
1 2 3 4 5 6
Total

b. List of Persons causing vulnerability in the Ac

Sl. No. Name of the Contact PS nos. in which Action Taken / Remarks
Person Causing No. & he is causing Proposed in any
Vulnerability address vulnerability
1 2 3 4 5 6
Total

Signature of the Returning Officer:

Name of the Returning Officer:

22
 annexure-Vii (district level)

VM -7 (deo): reporT on idenTificaTion of VulnerabiliTy, and

AcTion TAken AT disTricT LeveL
Date:

Name of the District:

Table A
identification of Vulnerability and action Thereon:

Sl. No AC Total Total number of Total number Action being

number number Polling Station/s of Vulnerable taken to prevent
and of Polling in whose area Voters these Vulnerable
name Stations Vulnerable identified in Voters from
Persons / these Polling being intimidated
Families / Station areas or wrong fully
Household have influenced before
been identified and during the poll

1 2 3 4 5 6

Total

23
Table b
report on Persons causing vulnerability:

Details of Action Taken against Persons

mentioned in col. 3 (Numbers)
Sl. No AC Total Bound Externment In Custody Any other Number Reasons for
number number of over action(with of Persons no action as
and name Identified description) out of those mentioned
Persons mentioned in in col. 8
col. 3 against
whom no
action has
been taken

1 2 3 4 5 6 7 8 9
Total

Signature of the DEO

Name of the DEO

24
 March, 2016 - edition 1

election Commission of india

nirvachanSadan, ashoka Road, new Delhi – 110001
“Greater Participation for a stronger Democracy”