Elections: A Presentation by Dr SY Quraishi, Ex Chief Election Commissioner of India. www.twitter.com/drsyquraishi

1. Conducting Elections
in a Plural Society -
The Indian
Experience
Dr S.Y. Quraishi
Former Election Commissioner of India
GEO 2013, Incheon,
syquraishi@gmail.com,
1

2. India’s Giant Leap
•
India chose Democracy in 1950
•
Granted universal adult suffrage in the very first election
despite:
•
a 16% literacy rate.
•
and a caste-based hierarchical social system.
• oppressed masses of India had voted in many elections
before Switzerland allowed its women and Australia its
aborigines to vote.
4

3. 63
Years of Indian Elections
• India has conducted 15 General Elections to Parliament and
more than 340 General Elections to State Assemblies.
• More than 3 million elected representatives – National, State
and Local bodies.
• Indian elections never missed the deadline , credibility
never challenged.
• Barak Obama hailed Indian Elections as “historic” and an
“example for us all.”
.
Hilary Clinton described it as "global gold standard".
5

4. Concerns of Diversity
•
Inclusivity of all sections
•
None to be marginalised
•
Constitutional Safeguards for minorities :
•
Religious / Linguistic / Ethnic / Cultural
•
No intimidation allowed
6

5. Legal Protection to a Pluralistic Society
•
Prohibition of appeal on grounds of religion, caste, creed,
community, language etc.
•
Prohibition of promotion of feelings of hatred, ill-will or
enmity between different classes of Indian Citizens
•
Prohibition of the use of religious institutions for
electioneering
•
Punishment for interfering with electoral rights of SC & ST
•
MCC and a plethora of instructions of ECI.
7

6. Legal Protection to a Pluralistic Society
(2)
• Corrupt
Practices/
fraud/
manipulation
punishable –
• Bribery
• Division on the basis of Caste, creed etc.
• Undue influence by using official machinery,
threat, inducement etc.
• Religious institutions (Prevention of misuse) Act,
1988.
8

7. Inclusiveness : Provisions for
Women
• Equal Voting Rights from day 1
• Separate queues for women at polling stations
• Separate polling stations for women in some areas
• Women Officers at polling stations for identity check
of women voters at Polling Stations
• Use of Women Police
9

8. Inclusiveness : Provisions for
Disabled
• Ramps in all Polling Stations
• Use of Braille on EVMs and Ballot papers
• Allowing a companion for the infirm and disabled
10

9. Inclusiveness : Others
• Use of Symbols on the ballot for illiterate
• Use of Multi-language Electoral Roll
• Use of Multi-language Ballot Paper
• Transgender given the option to describe themselves
as “Others” in electoral rolls
11

10. The Largest Election in world
history!
•A look at the size of 15th General Election to the Lower
House of Parliament in 2009 :
714 million voters
 8,34,944 Polling Stations
 1.2 million Electronic Voting Machines
 11 m poll personnel deployed





Recognized National Parties
Recognized State Parties
Registered Parties
Candidates contested
-
7
44
1035
8070
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11. A Few Comparisons
•Entire Europe (50 Countries)
•Entire Africa (54 Countries)
•North America (41 Countries)
•South America (15 Countries)
•N&S. America (56 Countries)
•India
-
Population
Electorate
731m 449 m
- 922 m 566 m
528 m 324 m
382 m 235 m
910 m 560 m
- 1163 m714 m
•Commonwealth (52 Countries ex India) - 900 m approx.
•India has more voters than every CONTINENT!
13

12. The Complexities
• It’s not just size and magnitude. It is about:
•
Democracy even at the remotest locations
•
Separate polling station for a lone voter
•
Trekking 45 km in snow to reach 37 voters
•
Using elephants, camels, boats, cycles, helicopters, trains
to ferry EVMs and polling teams
•
Countrywide ‘vulnerability mapping’
•
Tracking information from each polling station
•
Dealing with Regional, Religious, Ethnic, Cultural and
Linguistic Diversities
15

13. Electoral Administration Framework
•
Election Commission of India – created by the Indian
Constitution. Fiercely independent.
•
CEC and 2 ECs.
•
Right to vote to all above 18 years of age.
•
Conducting Elections of President, VP, Parliament
and State Legislatures.
•
Delimitation of constituencies after each census.
16

14. Election Machinery in States
• Chief Electoral Officers ( permanent).
- 35
• District Election Officers
- 601
• Returning Officers (Parliament)
- 543
• Returning Officers (Assembly)
- 4120
• Asstt. Returning Officers (Parliament)
- 4600
• Asstt. Returning Officers (Assembly)
- 10,000
• Electoral Registration Officers
- 4120
• Asstt. Electoral Registration Officers
- 4800
18

15. Electoral Roll - the Foundation
• Health of ER ensured
• Gender, Age cohorts, Elector- population ratio
•
•
•
Photo Electoral Rolls introduced.
Good deterrence against impersonation
Booth Level Officer (BLO) System introduced to
ensure fidelity of ERs at doorsteps.
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16. Preparation for Elections -
Relationship with Stakeholders
• EC hears concerns of all political parties.
• All political parties treated equally
• CEOs and DEOs call meetings of Political Parties for
electoral rolls, enforcement of MCC, for deciding polling
stations & counting centres.
• Any individual or NGO can offer suggestions or can file
complaints with the EC, CEOs & DEOs.
• Voter Education
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17. Preparation for Elections -
Mobilization of the Staff
• Drawn from various Central and State Government
departments - no private individual associated.
• Staff on deputation with the Commission.
• Staff subject to Commission’ disciplinary control.
• Staff mobilized & deployed by the CEO under
Commission’s instructions.
• Neutrality non negotiable.
22

18. Preparation for Elections -
Training and Deployment of Staff
• Staff of various districts and
randomised to ensure fairness.
states
mixed/
• Deployment of Government employees
expenditure under check, enhances control.
keeps
• Staff given nominal honorarium.
• Training : Different Layers
• Tainted and aligned not associated.
23

19. Preparation for Elections -
Procurement of Materials
• Procurement of EVMs by the Commission.
• Other materials by the CEOs and DEOs.
• Standard procurement procedures followed.
• Specifications of materials decided by
Commission in case of non standard items.
the
• Advance planning by the Commission, CEOs and
DEOs for procurement at their levels.
• Safety margins.
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20. Preparation for Elections -
Scheduling of Elections
• Considerations in scheduling:
•
•
•
•
•
•
•
•
Weather
Agricultural cycles
Festivals
Exam schedules
Public holidays
Logistical requirements
Law & order
Movement of Central police forces
21

21. Checking Intimidation, violence &
Preparation for Elections fraud
• Vulnerability Mapping : a response to threat and
intimidation of voters.
• 86,782 villages / hamlets identified as vulnerable.
• 373,886 persons identified as potential trouble makers.
• Preventive measures taken.
• Video-graphers (74,729) Digital cameras
deployed: a great deterrent
(40,599)
• Hardly any complaint of threat and intimidation.
25

22. Preparation for Elections -
Vulnerability Mapping
• Booth vulnerability based on several criteria:
•
•
•
•
•
•
•
•
•
•
Photo Electoral Roll
Elector’s Photo Identity Card
Missing Voters
Extraordinarily High Turnout
Extraordinarily Low turnout
Extraordinary Winning Margin of victory
Caste/community Profile/ dynamics
Profile / criminal antecedents of candidates
Previous polls history
Native village / place of candidates
26

23. Preparation for Elections –
Security against electoral violence
• Assessment for Central Police Force’s requirement is
made keeping in mind the Law and Order situation.
• State police and central paramilitary forces deployed
based on requirements.
• No police with any affiliation to ruling party deployed.
• Confidence building measures taken.
• Situation watched regularly.
27

24. COMET
(Communication for Election Tracking)
• Timely information is critical
• Direct connectivity with all PSs (landline telephones,
mobile phones, HF, VHF wireless networks, Satellite
phones and even runners) established and pre tested
• Proved an effective tool for tracking poll day events.
• Deterrent for trouble makers.
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25. Observers best check on fraud
• Appointed from senior civil servants
• General and Expenditure Observers
• Statutory role for Observers
• Report directly to Commission
• Eyes and ears of the Commission in the Constituencies
• Nearly 2000 observers appointed in GE 2009
• All counting centers covered
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26. EVMs – The Wonder Machine of
Indian Democracy
• Pilot -1982; full LS 2004, all VS elections since 1998
•
More than 1.4 million EVMs deployed in various
locations across the country.
•
EVMs now used universally in all Elections.
•
Voter Verifiable
introduced.
Paper
Audit
Trail
(VVPAT)
30

27. Model Code of Conduct
• Minimum standards of behaviour
• Conduct of political parties / candidates
• Public meetings, Processions, Campaigning, Media
• Conduct on poll day
• Handling of complaints
32

28. Checks on Party in Power
• No official tour with campaigning
• Bar on use of official vehicle/aircraft
• Equal opportunity for use of public places for
meetings, stay etc
• No ads on public expense
• No announcement or promise of new schemes
• No new financial sanctions
• No fresh appointments
33

29. Counting
(G.E 2009 Figures)
• Total Counting Halls : 4,260
• Total Counting Centres : 1,080
• Counting Staff deployed : 178,920
• Supervisory / data staff : 20,000
• Micro-observer at every table : 59,640
• Videography of proceedings of counting
• Result announced of every round
34

30. Issues of Concern
 Role of Money Power


Expenditure monitoring complex and tough
“Paid News” and surrogate advertisements
 Criminalization of electoral politics
 Dependence on Central Police Force

Lack of faith in State Police
 Urban and Youth Apathy

Measures to ensure enhanced participation
 Blaming the Pitch and the Umpire

Rumours / social media
35

31. Future Plans from Past Lessons
1.Greater use of Technology
• A National Electoral Database for:
•
•
•
1.
•
•
Better Citizen services and accessibility
Avoidance of duplicates in the database
Online registration
GIS for creation of polling stations
GPS for tracking of polling teams
Internet and mobile phones for Voter Education
36

32. Future Plans from Past Lessons
(2)
2. Voter Education
•
•
•
•
•
National, State & district plans for electoral participation
Research on voters’ behaviour
Special focus on urban, young and women voters
National Voters Day
Partnership with schools/ colleges/ Civil Society and
Election Watch bodies
• Documentation/ Inventory of voter education activities/
materials
37

33. Future Plans from Past Lessons
(3)
3. Election Expenditure Monitoring
• Expenditure Statement summary of all winning
candidates put on CEO’s websites for public access.
• Expenditure Monitoring Division created
• Expenditure details and affidavits of candidates made
available to Income Tax for follow up.
38

34. Some Media Reflections
5.09
es of India 15.0
The Tim
Asian Age 1
4.05.09
Hindustan Times 19.5.09
s
Hindu
09
19.05.
Times
t an
Indian Express 16.05.09
39

35. Some Media Reflections
(2)
•“It is truly the greatest show on Earth, an ode to a diverse
and democratic ethos….an inspiration to all the World”
- V Mitchell, New York Times, May 22, 2009
•Indian voters show the way forward
Financial Times, London, May 17, 2009
40

36. •India confirms its status as a democratic beacon …
Yet for this chaotic nation - with its almost
unfathomable religious, linguistic and social
diversity - not only to hold free and fair elections but
also to deliver stable government is a truly
remarkable achievement.
The Independent, London, May 19, 2009

37. A Simple Vision @ 60
Elections that are completely free of crime
and abuse of money, based on a perfect
electoral roll and with full voters participation
41

38. India Elections 2009 Glimpses …

39. Photo Gallery - Elections 2009
Officials checking EVMs
and polling materials
A group of Villagers with EPI cards
Officials carrying EVMs and polling
materials
Electors going to exercise
their Franchise
Officials carrying EVMs
and polling materials
An Elector familiarizing himself
regarding
functioning of EVM
43

40. Photo Gallery - Elections 2009
An elder on way to cast her
vote
Physically challenged
casting her vote
Electors waiting in Q
Indelible ink being marked on
elector’s finger
Prime Minister of India after
casting his vote
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46. 50

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50. 54

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56. THANK YOU
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