1. Vulnerability Mapping

2. Vulnerability Mapping
1 To be able to answer What is Vulnerability
2 To be able to answer What is Vulnerability Mapping
3 To list the personnel involved in & Process of Vulnerability Mapping
4 To list the Information requisite for Vulnerability Mapping
5 To list criteria for identifying Critical Polling Stations
6 To list steps of Response Protocol at Critical Polling Stations

3. Definition of Vulnerability
Vulnerability as defined by ECI
susceptibility of any voter or section of voters, whether or not living in a geographically identifiable area,
to be fully 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 undue influence or force of any kind on him/her.

4. Definition of Vulnerability Mapping
To clearly identify vulnerable voters/sections of voters
To identify the persons/ factors causing such vulnerability and
To plan and take adequate corrective action well in advance.

5. Legal Provisions
Undue influence in elections is an electoral offence u/s. 171C of the IPC.
Any voluntary interference or attempt at interfering with the free exercise of any electoral right constitutes the crime of undue influence in an election.
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 is a corrupt practice (Sec. 123(2) of R P Act, 1951)

6. General Steps to be taken for Vulnerability Mapping
To clearly identify, in advance, such voters or sections of voters, who are likely to be “vulnerable”
To identify the persons or other factors causing such vulnerability and
To plan and take adequate corrective action and required Confidence Building Measures (CBM) well in advance on the basis of such identification.

7. Identification of vulnerable areas/segments/villages/hamlets
The first stage in the exercise of Vulnerability Mapping - visit of every area jointly by Sector Officer and HC/ASI/Police Officer decided by RO and SDPO
Visit every locality/pocket in sector, discuss with local people, collect intelligence, enlist the vulnerable households and families, as well as the persons and factors causing such vulnerability
During the exercise they consider past incidents and current apprehensions

8. Identification of vulnerable areas/segments/villages/hamlets
After visit, fill Annexure II, III, IV and V.
TDO/ Mamlatdar/ Police also be consulted and their inputs be taken in to account before finalizing the forms.
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.

9. Identification of vulnerable areas/segments/villages/hamlets
DEO/RO shall hand over the details of polling station-wise Vulnerability Mapping of constituency to the Observer (Annexure VI and VII).
The Observer will also visit such locations and interact with the voters and shall constantly monitor the developments.

10. Identification of the persons causing vulnerability
This exercise of identifying the persons responsible for vulnerability and trouble makers polling station wise with the name of village, hamlet, address, and so on.
This work has to be done by maintaining complete confidentiality of the informers/source, if so desired.

11. Personnel & Process of Vulnerability Mapping
Sector Officers collect requisite information
Local SHO/BDO consulted before finalizing
SOs submit information to RO
RO compiles information for entire constituency, polling stations wise
DEO & SP finalize the Vulnerability mapping report and develop & initiate preventive measure

12. To list the Information requisite for Vulnerability Mapping
( 464/Instruction/EPS/2011 dated 5th March, 2011)
Identification by SO of vulnerable areas/communities by visiting catchment area of respective polling stations
Meetings with community, local intelligence, etc.
Identify source of threat and intimidation
Identify names of people who are likely to start such offence of undue influence
Take into account past incidences and current apprehensions
Finalize in consultation with SHO, BDO, Tehsildar
Identify point of contact within the community so that information related to such incidences can be tracked immediately
Polling Station wise lists shall be prepared

13. Action against the persons responsible for causing vulnerability
The DEO and the S.P. to hold a joint review and shall finalize a focused action plan.
Take action against trouble mongers under appropriate section of the law as per requirements for Confidence Building (CB).
Confiscation of arms, preventive detention, bonds for good behaviour.
Placement of police pickets.
Regular confidence building visits etc

14. Action against the persons responsible for causing vulnerability
DEO and SP initiate all preventive measures to ensure that intimidation/obstruction do not really happen on the poll day
All such steps shall be neutral and unbiased
Names of contact persons from within the vulnerable groups their contact numbers / mobile numbers, if any, shall be noted down.
For tracking the individual trouble mongers and for ensuring that the troublemakers are kept under watch, (mentioned above)

15. Action against the persons responsible for causing vulnerability
DEO and SP initiate all preventive measures to ensure that intimidation/obstruction do not really happen on the poll day
All such steps shall be neutral and unbiased
Names of contact persons from within the vulnerable groups their contact numbers / mobile numbers, if any, shall be noted down.
For tracking the individual trouble mongers and for ensuring that the troublemakers are kept under watch, (mentioned above)

16. Action against the persons responsible for causing vulnerability
Joint patrolling by civil and police authorities starting from TEN days before the poll to TWO days before the poll and finalize the Force Deployment Plan from inputs.
The DEO/RO shall interact with the candidates and the representatives of the political parties to gather regular feedback.
Regular feedback on the subject may also be obtained from the District Intelligence(L.I.B.).

17. Action against the persons responsible for causing vulnerability
In cluster of vulnerable pockets, arrange for dedicated police teams deploy them at convenient places for fast movement on poll day. This may be included in District Security Plan.
Awareness generation among female voters

18. Area domination plan for CPF and poll day deployment
The Commanders / Assistant Commanders of the CPF shall be given a list of such vulnerable locations by the DEO.
The Commanders/Assistant Commanders of the CPF shall make it a point to visit such vulnerable pockets as C.B. 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
Keep a note of the time of such intimation.
On the day of poll, the Commanders/Assistant Commanders shall visit such vulnerable pockets as CB measure.

19. Monitoring of vulnerable areas/persons on the day of poll
Following actions need to be taken to ensure that the vulnerable persons are able to vote without fear, threat or intimidation:
At the time of dispatch RO shall brief the Presiding Officer about the vulnerable locations
Sector Officers shall submit a report indicating percentage of voter turnout , with reference to the vulnerable locations.
RO may use this report during the scrutiny etc.

20. Monitoring of vulnerable areas/persons on the day of poll
On the day(s) of poll, the Sector Magistrates and the mobile forces shall visit at least twice to vulnerable locations and ensure adequate security cover for such vulnerable voters.
During the poll, the Observers and other senior officers to pay a special attention on vulnerable pockets
The police patrolling parties shall keep track of the vulnerable locations and keep the control room informed.
Police pickets shall be established if required to ensure free and smooth access to all voters to cast their votes without fear.

21. Role of RO/DEO/Observers after the poll
The RO/DEO shall take the inputs on mass scale intimidation/ threat/obstruction, into consideration while submitting their report after the poll.
The Observers shall give full attention to the issue of VM and verify at every stage.
A special mention of it shall be made in their final report.
Make an intelligent reading of the Form 17A and the marked copy of the electoral roll at the time of scrutiny after the poll.

22. 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.

23. Accountability and Confidentiality
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.
It is advised not to conduct any kind of press conference or to furnish any type of details relating to...
Any information to media about vulnerability, if required would be given only by the Commission or by the Chief Electoral Officers on instructions of the Commission.

24. Exercise for Vulnerability Mapping
Checklist of information on each AC to be provided by DEO to SO before he (SO) undertakes VM exercise
VM-1
SO submit information to RO
VM-2 (SO)
VM-3 (SO)
VM-4 (SO)
VM-5 (SO)
RO compiles the information for entire constituency, polling stations wise
VM-6 (RO)
DEO finalizes the Vulnerability Mapping report and sends it to CEO
VM-7 (DEO)

25. Checklist of information on each AC to be provided by DEO to SO (Annexure-I)
Sr. no.
Information 1
Number of election offences registered in last PC elections in AC area 2
Number of election offences registered in the last AC election in AC area 3
Number of election offences registered in last local body election in AC area 4
Number of serious criminal offences registered in the area, if any, in the last one year 5
MCC violations, if any, in the last PC election 6
MCC violations, if any in the last AC election 7
Details of re-poll, if any, in the last general election of the PC, AC or bye election

26. Details of prohibition laws related cases-period to be specified
Sr. no.
Information 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 along with % in the last AC/PC elections (Male, Female and Overall) 14
Names of the persons from AC area currently under externment or detained under PASA (give details if the information is not sensitive) 15
Number of cases and its details in the area under relevant state excise act 16
Arms related information

27. VM-2 (SO): Performa for Checking and Determining Vulnerability by SO

28. Continue…..

29. Continue….

30. VM-3 (SO): PS wise format for VM to be filled by SO (PS wise)
Action Taken/Proposed for identified vulnerable houses/families
Action Taken/Proposed against identified persons causing vulnerability

31. VM-4 (SO)- Summary of PS wise enlisting by SO (Sector Wise)

32. VM-5 (SO): Certificate by SO/HC/APSI

33. VM-6 (RO): To list the Information requisite for Vulnerability Mapping
Format for Submitting Information by RO to DEO for AC- Annexure VI: Additional Instructions
No. of Vulnerable Families/HHs Identified
Action Taken/Proposed for identified vulnerable houses/families
Action Taken/Proposed against identified persons causing vulnerability

34. VM-7 (DEO): To list the Information requisite for Vulnerability Mapping
Format for Submitting Information by DEO to CEO for AC- Annexure VII
No. of PS where vulnerable families identified
Action being taken to prevent vulnerability
Reasons for no action taken
No. of persons identified against whom no action taken

35. Criteria for Critical Polling Stations
Polling stations where more than 75% of votes recorded for one candidate
Polling station that went for re-poll during last election due to reported electoral malpractices
Polling stations that witnessed any sort of electoral violence in past election
Polling stations with high numbers of voters with no family linkages
Polling stations with high number of non-EPIC voters

36. Criteria for Critical Polling Stations
PS having vulnerable pockets- SO's, Police's and candidate's "worry list"
During the election the DEOs/ROs may be asked to do a vulnerability mapping of hamlets/villages/electoral segments, vulnerable for threat and intimidation. Polling stations identified as having vulnerable pockets shall be listed.
PS where polling was more than 90% & where more than 75% of votes have been recorded in favor of one candidate in last election
The polling station wise election results available in Form 20 with reference to the past general election shall be analysed and shall be identified as critical PS

37. Other parameters
The criteria which shall also be considered in identifying the criticality of Polling Stations are as follows:-
Past history such as incidents of Booth Capturing, violence, riots, large-scale impersonation, caste conflicts etc. at the Polling Station area of the constituency.
Information regarding abnormal law & order situation in any particular area.
Worry list made available by political parties and candidates
Number of history-sheeters and absconders in the Polling Station area.
Anti-social elements and their areas of influence.

38. DEO & SP finalize joint plan of action to deal with potential threats
Sub Learning Objective 6: Response Protocol for Critical Polling Stations
DEO & SP shall initiate all preventive measures & confidence building measures
Tours to vulnerable areas and explain measures put in place for protection
DEO & RO shall interact with candidates & political parties to gather feedback
District Intelligence shall give regular feedback on critical polling areas and incidences to DEO through SP
Observers will be provided list of critical PS and will visit the same & constantly monitor developments
Dedicated Police teams/squads in convenient vicinity of clusters of vulnerable pockets
DEO & SP finalize joint plan of action to deal with potential threats
-Binding trouble mongers under appropriate laws
- Preventive detention if required
- Forcing appearance in local stations to ensure good behaviour
- Placement of Police pickets
- Regular visits

39. Timeline for VM

40. Timeline for VM

41. Summary : To ensure the carrying out of Vulnerability Mapping
Now You will be able to:
1 Answer What is Vulnerability
2 Answer What is Vulnerability Mapping
3 List the personnel involved in & Process of Vulnerability Mapping
4 List the Information requisite for Vulnerability Mapping
5 List criteria for identifying Critical Polling Stations
6 List steps of Response Protocol at Critical Polling Stations

42. IMPORTANT ECI INSTRUCTIONS ON VULNERABILITY MAPPING

43. Preventive Law and Order actions for peaceful, free and fair elections [No. 464/L&O/ 2007 PLN-I dt ]
Special drives to be launched from the announcement - (i) to compile list of persons indulged in electoral offences during past two elections (ii) updating list of history sheeters, declared absconders, fugitive criminals (iii) to give affect the service of pending warrants/challans and updating list of pending warrants, (iv) to expedite the investigation/prosecution of pending electoral offences (v) unearthing of illicit liquor factories (vi) seizure of illegal arms and ammunition etc.,.

44. Fortnightly updated constituency wise information on above special drives be kept ready with DEO to be forwarded to ECI, if and when asked for.
Prohibitory orders u/s 144 CRPC banning the carrying of licensed arms - 100% scrutiny of arms licenses.
Order relating to use of loudspeakers.
Immediately after announcement of election review of license holders.
Depositing of arms and ban on issuing of new arms license after announcement of elections.
Strict vigil and thorough checking of vehicles from 3 days before the poll till counting of votes to ensure that no undesirable elements or arms and ammunitions are being transported from outside.

45. Preventive actions u/s 107/116/109 CRPC
Sending proposals to Law Department for vesting powers of special executive magistrates and appointment of special executive magistrates.
Daily Law and Order report for the district in format prescribed in format LOR-1 be sent to Home department and not directly to ECI - Home department shall send a consolidated report on entire State in format LOR-2 to the CEO for onward submission to ECI - Daily report regularly from notification of elections till completion of elections.

46. Security force deployment Plan (ECI's No. 464/INST/2008-EPS dt. 24. 10
Security Plan - [ECI's No. 464/L&O/2007 PLN-I dt and No. 464/INST/ EPS dt ]
(i) Full and optimal utilisation of CPFs and SAPFs to be ensured.
(ii) CPF can be splitted into half section - (SP to certify that the area is insurgency / naxalite free). In areas which are insurgency/ militancy/ naxalite affected, section of CPF not to be broken.
(iii) State deployment plan - To be prepared in consultation with CEO taking account the available forces of State Police/SAPF and CPF which will be made available by the MHA.
(iv) District deployment plan - To be prepared under the chairmanship of DM/DEO - and to be approved by Observers - No deviation without express prior approval of Observer.
(v) State deployment plan and district deployment plan would be finalised at least one week before the poll.
(vi) Observers to be given draft force deployment plan on their arrival.

47. The plan should have sketch map of each sector and identify vulnerable pockets and critical PSs.
(viii)Police patrol routes and SOs route to the extent possible should be common.
(ix) Deployment of any force (other than State Police and CPF) i.e. Home Guards etc., will require prior permission of ECI.
(x) Security cover to contesting candidates only as per assessment of threat, and not in routine manner - Observers should be provided with adequate security.
(xi) Three tier cordoning system to be set up in counting centres (ECI's No. 470/2007/PLN-I dt ).

48. Sealing of inter state borders/inter district borders, well in advance to prevent infiltration of antisocial and disruptive elements.
For guarding strong rooms after the poll to the extent possible, CPF will be used and wherever CPF is not available SAP will be used.
The forces shall be deployed at the PSs in the following order of sensitivity - CPF followed by SAP followed by DAP (ECI's No. 464/L&O/2007 PLN-I dt ).
Additional measures at critical polling stations - As per criteria [ECI's No. 464/INST/2008-EPS dt ]

49. Role of CPF and State Police (ECI's No. 464/INST/2008-EPS dt. 24. 10
CPF not to be kept as strike reserve etc.,.
CPF will be used for the purpose of area domination, conducting flag march (should be more on foot), confidence building among electors, checking of border etc., till 2 days before the poll.
For the poll day the CPF shall be assigned duties of guarding PSs, poll material, poll personnel and the poll process and not to look after law and order - CPF may be deployed in any of the following manners: -
(a)Static guarding of chosen polling stations solely and exclusively by CPF;
b)Static guarding of polling stations as part of a mixed (composite) team with local state forces;

50. c) Patrolling duty on assigned routes (election sectors) covering a fixed cluster of polling stations;
(d) Patrolling duty as ‘flying squads’ in a defined area with surprise element;
(e) Escorting duty of polled EVM with polling personnel back to the receipt centre/strong room after polls are over;
(f) Any other duty which is necessitated to ensure the purity and fidelity of the election process.

51. In static duty at chosen PSs - One CPF Jawan from the CPF party posted at PS will be stationed at the entrance of PS to watch on the proceedings inside the PS - he will cover other PS also in same building.
(i) Where CPF has been assigned static guard duties but could not reach the assigned PS, the poll shall not commence.
(ii) Local State Police for maintenance of general law and order.
(iii) Local police not to replace the CPF at PS where the CPF has been assigned duties solely and exclusively - Supervision and control over the CPF at PS not by local Police Officer.

52. Hamlets/habitations with in polling area that are vulnerable to threat, intimidation and undue influence shall be identified and confidence building and preventing measures be taken in advance by local state police.
(iv) Only if enough CPF is not available, local State Police can be deployed at PS.
(v) A minimum two unarmed local State Police personnel/Home Guard for each PS - When a PS is covered with CPF unit, only one local police will be deployed.

53. CPF mobile patrolling party will be provided sketch map and list of critical polling stations.
(xii) When the CPF is assigned duty in a "flying squad" mode, it shall be accompanied by a Zonal Magistrate.
Amenities to CPF personnel
(a) Food arrangements to be made at par with those of the State Police/Polling personnel
(b) Packed lunch on poll/counting duty
(c) Accommodation - as prescribed.
(d) Vehicle / transportation
(e) SIM card to Coy. Commanders

54. Identification of critical polling stations [ECI No
Identification of critical polling stations [ECI No. 464/INST/2008-EPS dt ] Factors to be taken into account
PSs of high % of Non EPIC voters.
PSs of high % of missing voters without family links.
PSs having vulnerable pockets - SO's, Police's and candidate's "worry list".
PSs where polling was more than 75% and where more than 75% of votes have been polled in favour of one candidate in last election.
Re-poll reported due to malpractices, and where electoral violence has taken place during last election (NOT including re-polls due to EVM malfunction).

55. Anti social elements and their areas of influence.
Observer shall be consulted before finalizing the list of critical PS.
Categories of critical PSs - like S-1, S-2, S-3 and S-4. Weight-ages to be assigned to each category of criticality.

56. Critical Polling stations - Measures to be followed [ECI No
Critical Polling stations - Measures to be followed [ECI No. 464/INST/ EPS dt and No. 447/2007/PLN-4 dt ]
One or all of the following measures: —
CPF to safe guard the PS.
PrOs be briefed to ensure that the EPIC/ alternative identification documents are properly verified and reflected in the remarks col. of Form 17A
List of such PSs be given to Commanding/ Assisting Commanding Officer of CPF to keep an eye on such PSs.

57. Digital/Video camera be positioned at identified PSs as directed by the ECI - Photography be carried inside the PS to capture photos of all electors in same sequence as in Form 17A and cover poll proceeding without compromising the secrecy of voting - Special care about the faces of all electors without EPIC or other ECI approved photo identity card.
Micro Observer to be deployed - with consultation / approval of Observer.
Critical events in and around the PS should also be captured/photographed
Digital cameras will be issued by DEO to the trained officers for such PSs - The officer shall submit a certificate after the poll as prescribed.

58. Prevention of Intimidation to the voters – Vulnerability Mapping [ECI No. 464/INST/ PLN-I dt ] and 464/Instructions/EPS/Dt. 5th March, 2011
For identification of the areas Sector officers, should do exercise by visiting the area soon after declaration of election - SHO and local administrative officers be consulted before the finalizing the list - [Candidates' "Worry List" also to be considered when candidates are finalized and observers have arrived].
Source of such threat / intimidation and names of persons who likely to spearhead such offence of undue influence be identified - Past incidence and current apprehensions.

59. Pre-poll responsibility - About vulnerability mapping –
Frequent visits for confidence building measures and fine tuning the vulnerability mapping;
Vulnerability Mapping (ECI No. 464/INST/2007 PLN I dt )
Identification of villages, hamlets and segments of voters vulnerable for threat and intimidation

60. 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, [confidentially, if so required].
Accountability for ensuring free access of voters for voting.
Contact points within the vulnerable community with their telephone numbers
SO will act as Zonal Magistrate and therefore he will accompany the police forces during area domination.

61. Since SO will act as Zonal Magistrate, he will prepare a "Zonal Magistrate Plan" sketch map of zones/ routes/ PSs, list of telephone Nos of PSs and election related officers, police stations etc., list of responsible persons and list of Anti social elements and people to be kept under 'special watch‘.

62. Contact points within the habitats / community vulnerability, be identified - Mapping for entire constituency polling station wise in a format (enclosed)
Preventing measures by DEO and SP and confidence building measures for free and fair poll - Frequent visit at such locations.
Regular feedback by district intelligence - DEO / RO shall interact with candidates / political parties.
Details of PS wise vulnerability mapping be given to Observer also on his arrival.
Action plan by DEO and SP to deal with potential threats and intimidation points - action under 107 / 116 / 151 CRPC, forcing trouble mongers' appearance in police station, placement of police pickets, visits by officers etc.,.
On the day of poll special attention be given - In case some section of voters is conspicuously absent special squad will be sent to ascertain that there is no hindrance.

63. At the end of poll SO to submit special report to RO that voters from vulnerable habitats were able to vote or not.
Polling parties should also be briefed about the vulnerable centers - section in electoral part of the area be marked specially.
CPF shall be given a list of such vulnerable locations - CPF shall also make it a point to visit for confidence building measures.
If ordered by ECI, Observer will make a reading of the Form 17A and the marked copy of the electoral roll used at the PS.

64. Critical Polling Stations-Security & Law and Order Sensitivity Reporting Format (Annexure-7 RO Handbook, 2014)

65. Measures to be put in place for identified critical PS
The Presiding Officer shall be specially briefed to ensure that the EPIC/approved identification document if any, are properly verified and reflected in the remarks column of Form 17 A.
The presence of CPF may be ensured to safe guard the polling station.
The list of such polling stations shall be given to the Commanding/Assistant Commanding Officers of CPF so that they can also keep an eye on such polling stations.
A micro-observer may be deployed inside the polling station.
Digital camera or video camera shall be positioned in the polling station. The procedure for deploying such cameras has been given vide letter No.447/2007/PLN- IV, dated
Web-casting may be done in as many polling stations as possible.

66. CEO, Gujarat::Returning Officer
Quiz time
When is the ban on issuance of license for arms in context of election enforced?
Should DEO share the details of VM with the media?
By what time should DEO submit VM report to the CEO office
From the date of announcement of elections till the completion of elections as/when notified by ECI
No. DEO should not share any of the details of the VM with the media.
Within 7 days of the announcement of the elections
CEO, Gujarat::Returning Officer

67. CEO, Gujarat::Returning Officer
By what time should DEO take action against the persons causing vulnerability (if required)?
When should DEO appoint SO?
At least 5 days prior to the poll day
4-6 months prior to elections
CEO, Gujarat::Returning Officer

68. THANKS