CRH MOq LI1 X

OBSERVER HAND BOOK
VOLUME -I
Ed. August 2024
Election Commission of India

Nirvachan Sadan, Ashoka Road, New Delhi-110001
“No voter to be left behind”
NOTE: Contents of the Observer Hand Book are set of instructions extracted
from the directions/orders of the Commission, however, the Observer Hand Book
is indicative and new/updated/modified instructions/orders/directions are issued
by various divisions of the Commission from time to time. Recently, the
Commission has also issued the Broad Guidelines for Conduct of General/Bye
election during COVID-19. You are required to familiarize yourselves with these
guidelines and in case of any specific query/doubt you are requested to consult
the Commission/ Chief Electoral Officer concerned.
OBSERVER HAND BOOK
August 2024
Election Commission of India

Nirvachan Sadan, Ashoka Road, New Delhi-110001

TABLE OF CONTENTS
1. Background 1
2. Statutory Basis of Appointment 1
3. Overview of Observer’s Duty 2
4. Briefing of Observers 3
5. Tours and Absence from Headquarters 3
6. Requests for Leave 4
7. Observer Portal 5
8. Role of Observers 5
A. Nominations, Withdrawal, Scrutiny and Symbol Allotment 6
B. Electoral Roll Related 7
C. Campaign Period 8
D. Pre-Poll Election Management 8
E. Poll Day Management 10
F. Post Poll 11
G. Counting 11
9. Reports by Observers 13
10. Arrival of Observers in the Constituencies 15
11. Interface of ROs/AROs And DEO 15
12. Scrutiny of Nomination Papers 16
13. Allotment of Symbols 17
14. Electoral Rolls 18

15. Meeting with the Candidates 19
16. Visit of Areas in the Constituency and Polling Stations 20
17. Review of Overall Preparedness of Law & Order Machinery 20
18. Observation of Implementation of Model Code of Conduct 20
19. Approach of the Observer in Implementation of 21
Model Code of Conduct
20. Watch on Expenditure Incurred on Election Campaign 24
by the Candidates/ Political Parties
21. Media Certification and Monitoring Committee (MCMC) 30
22. Expenditure Monitoring Control Room and Call Centre 31
23. District Media Cell 32
24. Preparation of Polling Parties and Training 32
25. Electronic Voting Machine (EVM) 33
26. Voter Verifiable Paper Audit Trail (VVPAT) 34
26a Randomization of EVM and VVPATs 34
26b Commissioning of EVMs and VVPATs 34
26c Use of Symbol Loading Unit (SLU) and storage of SLUs after 35
Commissioning of EVMs & VVPATs
27. Preparations for Date of Poll 35
28. Visit to Dispatch Centres 35
29. Micro Observers 36
30. Special Observers 36
31. Poll Day Activities 36
32. Reception of Polling Parties 38
33. Scrutiny of Register of Voters and Other Documents 38
34. Re-Poll and Adjourned Poll Cases 39
35. End of Poll Report 40
36. Counting of Votes 40
37. DOs and DONTs for Observers 44
38. Review Points for Observers 49
39. Observer Mobile App 54
40. IT Applications being used in Election Management 55
ANNEXURES
41. ANNEXURE I - CHECKLIST OF DEO/RO 65
42. ANNEXURE II - ARRIVAL/DEPARTURE REPORT OF 72
OBSERVERS
43. ANNEXURE III - GENERAL OBSERVER REPORTS 73
a. The First Report (Immediately after the Withdrawal 73

of Candidature)
b. The Second Report (On P-2 Days) 79
c. The Third Report (Immediately after the completion of Poll) 84
d. The Fourth Report (Immediately after the Scrutiny of 17 A 86
(Register of Voters) and Other Documents on the
Day after the Poll)
e The Fifth Report (Immediately after Counting of Votes) 88
44. ANNEXURE IV - POLICE OBSERVER REPORT 91
A. The First Report (on 2nd Day of Reaching the Allocated 91
District)
B. The Second Report (On the 5th Day of Reaching the Allocated 95
District)
C. The Third Report (2 Days Before Poll) 97
D. The Fourth Report (To be Sent Immediately after Polls are Over 99
in the District)
45. ANNEXURE V- COUNTING ARRANGEMENT REPORT 100
46. ANNEXURE VI – SELF-CERTIFICATION FORMAT FOR 102
CENTRAL OBSERVERS
1. BACKGROUND
1. Different democracies have different types of Election Observation. The

Election Observation includes the observation by domestic Observers as
well as Observers by external agencies such as United Nations,
Commonwealth, and other external election watch groups and so on.
However, in the Indian context, the election Observation has always been a
domestic initiative. The concept of election observation by the domestic
Observers itself has been evolved over a period of time, as the complaints
during the election process were far and few in the initial years. There was
no concept of deputing Election Observers from one State to another State.
Initially, as and when complaints were received, some officials from the
Election Commission’s headquarters were deputed. Over a period of time
the number of complaints gradually increased, however, the deputation of
Election Commission’s officials had a serious limitation.
2. Commission started deputing some senior officials from the same State to
observe election process in a constituency or a group of constituencies. But
the concept of deputing senior officers as the Election Commission’s
Observers took a firm root only from the beginning of the year 1990s. Over
a period of nearly last two decades, the deputation of Election Observers
from one State to another State has become an integral part of the election
management in the country. Currently, mostly the officers who belong to
All India Services and Central Services like IRS, CBDT and CBEC, IDES
are being deputed as the election observers.
2. STATUTORY BASIS OF APPOINTMENT
1. Observers of the Election Commission of India are appointed under the

powers conferred on it by Section 20B of the Representation of the People
Act, 1951 and the plenary powers available to the Commission under the
Constitution of India. They are the appointees of the Commission working
under the superintendence, control, and discipline of the Commission for the
period from their appointment until the process of election is completed.
2. The Representation of the People Act, 1951 was amended in August, 1996
to add a new Section 20B. This provides statutory powers to the Observers
to watch the conduct of elections and especially in respect of counting of
votes.
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3. Section 20B reads as follows: - “1 [20B. Observers.-
(1) The Election Commission may nominate an Observer who shall be an officer
of Government to watch the conduct of election or elections in a constituent or
a group of constituencies and to perform such other functions as may be
entrusted to him by the Election Commission.
(2) The Observer nominated under sub-section (1) shall have the power to direct
the returning officer for the constituent or for any of the constituencies for
which he has been nominated, to stop the counting of votes at any time before
the declaration of the result or not to declare the result if in the opinion of the
Observer booth capturing has taken place at a large number of polling stations
or at places fixed for the poll or counting of votes or any ballot papers used at
a polling station or at a place fixed for the poll are unlawfully taken out of the
custody of the returning officer or are accidentally or intentionally destroyed
or lost or are damaged or tampered with to such an extent that the result of the
poll at that polling station or place cannot be ascertained.
(3) Where an Observer has directed the Returning Officer under this section to
stop counting of votes or not to declare the result, the Observer shall forthwith
report the matter to the Election Commission and thereupon the Election
Commission shall, after taking all material circumstances into account, issue
appropriate directions under Section 58A. or Section 64A or Section 66.
Explanation. - For the purposes of sub-section (2) and sub-section (3),

“Observer” shall include a Regional Commissioner or any such officer of the
Election Commission as has been assigned under this section the duty of
watching the conduct of election or elections in a constituent or group of
constituencies by the Commission.
3. OVERVIEW OF OBSERVER’S DUTY
1. By dint of their seniority and long experience in the administrative services,

General and Police Observers are expected to be in a position to assist the
Commission in the conduct of free and fair polls.
2. They will also be able to oversee the efficient and effective management of
the electoral process at the field level.
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3. For all purposes, they will act as the eyes and ears of the Commission
during the period of the election (and not the mouthpiece) and provide direct
inputs to the Commission from the field as an interface with the election
machinery the candidates, political parties, and electors to ensure that the
Acts, rules, procedures, instructions, and guidelines related to elections are
strictly and impartially complied with by all concerned.
4. Their inputs/observations are confidential and solely for the use of the
Commission and not for any other agency including media. They must not,
therefore, interact with or respond to the queries of the Press even after the
elections are over.
5. It is clarified that while the formal report/input/observation sent by the

Observers are meant for the use of the Commission, it does not mean that
the observers will not discuss with the CEO/RO/DEO about their
observation on various aspects of election management in order to facilitate
midcourse corrections.
6. However, the Observers shall not mark copies of their formal reports to the
Commission, to any other person including CEO/RO/DEO.
7. It should be kept in mind that the objective of the deputation of the Observer
is not to find fault but to facilitate field administration in ensuring a free and
fair poll.
4. BRIEFING OF OBSERVERS
The appointment of an officer as an Observer and the intimation for the briefing
meeting shall be communicated by the ECI through the Chief Electoral Officer and
nodal officer, if any, of the State and Central Government who shall coordinate with
Election Commission for various issues including provision of list of officers for
appointment as observers. No request for exemption shall be entertained for this
meeting and any replacement should be done only with the permission of ECI.
Replacement requests shall not be entertained without serious reasons.
5. TOURS AND ABSENCE FROM HEADQUARTERS
1. All Observers should seek prior permission from the Commission every
time they want to leave the headquarters on personal work or on official
work not connected with performance of their duties as Observers.
2. Request of permission for leave etc. by the undeployed/reserve General,
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Police and Counting Observers is required be submitted to the Observer

Planning Section and unless the Observer receives communication in
writing from the Commission regarding approval of his/her temporary
absence, leave etc., the permission shall not be deemed to have been
accorded.
3. All requests for exemption from Observer duty should be routed through the
Observers’ sponsoring authority. No exemption requests shall be deemed to
have been accepted unless the Observer receive communication in writing
from Commission that his/her exemption requests have been accepted by the
Commission. The State/Ut-wise list of Zonal DEC/Secy concerned of the
respective State/UT is available on the Observer Portal”
4. No Observer is allowed to go on a foreign trip during the period intervening

between the briefing session and the completion of election process.
5. No requests in this regard should be made to the Commission. Only in case

of receipt of late intimation about selection to attend a foreign training,
which had been duly sponsored by the DOPT may recommend release of
such officer by substituting an officer of equivalent or high rank.
6. All such requests shall be addressed by the respective Nodal Officers to the
Commission.
6. REQUESTS FOR LEAVE BY DEPLOYED OBSERVERS
1. In case of deployed Observers, request(s) of permission for temporary

absence, leave etc. by the General, Police and Counting Observers is
required be submitted to the Zonal Deputy Election Commissioner/
Secretary concerned and the same will be processed by Zonal Division
concerned for approval of Zonal DEC, who shall be the competent authority
to approve the same. In all such cases, unless the Observer receives
communication in writing from the Commission regarding approval of
his/her temporary absence, leave etc., the permission shall not be deemed to
have been accorded.
2. All correspondence in this regard shall be addressed to Deputy Election

Commissioner (in charge of the State) by name.
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7. OBSERVER PORTAL
1. A web portal has been made for observers. Link to the Observer Portal is
given on the website of the Commission [ECI Home Page o Menu (Top
left Corner o ECI OFFICIALS o Quick Links for ECI Officials o
Observers’ Portal o Link to Observer Portal]
2. Observers have been communicated their user ID which is same as their ECI
Code. They must change their password when they login for the first time.
3. Observer Portal is the best method of communication between Observers

and the Commission.
4. All the latest instructions of the Commission are available on the portal.
Message for Observers are also given on the message board of the portal.
5. Observers should, therefore, check the portal frequently. Similarly,

observers should send their reports to the Commission by uploading on the
Observers Portal.
6. Observers may give their mobile no. on portal so that notifications may be
sent to the mobile for timely action by Observers.
7. In case of any issues regarding login in the portal/ change in mobile no. /
change in email id Observer can directly call on the helpline number given
on the Observer Portal’s login page on working days during working hours.
8. ROLE OF OBSERVERS
1. Section 20B of the Representation of Peoples Act, 1951 has vested the
Observers with some statutory powers. They are empowered to direct RO to
stop counting or not to declare for the reasons specified in Section 20B.
Besides the above-mentioned statutory powers, they have got certain very
important roles to play which include: -
a) Observing the processes of scrutiny of nominations and withdrawal

of candidature by the RO, and Report back to the Commission
promptly in case of any irregularity;
b) Examination of the video clipping of the nomination process as well

as making proper investigation on the complaints received in
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connection with the process of nomination. Also, to examine the

unresolved grievances by the candidate/ political parties about the
allotment of symbols;
c) Effective monitoring of implementation of MCC and detecting

cases of violation of the model code of conduct by watching the
video clippings of various meetings and, if needed, even by visiting
important rallies to get first hand input, enforcement of the
defacement of property act, training of Micro-Observers and such
other things;
d) Though checking the account of expenditure of the candidates is

entrusted to Expenditure Observers, however, General Observer are
also required to do so, in case of exigencies, if directed by the
Commission.
e) Tracking dispatch of postal ballot papers to the service voters,

ensuring the setting up of the facilitation counters for polling
officials, police, and security personnel etc., in accordance with the
recent guidelines of the Commission and sending specific report in
this regard to the Commission.
f) Checking randomization software, reviewing the process of

randomization of the polling personnel, obtaining report from the
DEO regarding first level randomization; and
g) Observing and regulating the counting process. Observer has to sign

the round wise counting sheets as proof of his/her satisfaction.
She/he can direct the Returning Officer to stop counting of votes or
declaration of result, if she/he notices any irregularities and bring
the matter to the notice of the Commission for further directions.
2. Apart from the direct executive role of the observer, as enlisted above,
Observers are expected to observe and report on all the steps involved in
election management. An illustrative list is as below:
A. Nominations, Scrutiny, Withdrawal and Symbol allotment
I. The General Observers are directed to reach the constituency one day
before the last day of nomination and thus does not observe the process of
nomination in person, however, during the first visit they should get the
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video recording of the nomination process from the RO and see the
recordings to get and overview of compliance of ECI Instructions and
report major violations, if any, with specific reference to Commission’s
instructions regarding number of people allowed to be present during
Nominations.
II. Scrutiny is a quasi-judicial process and should be conducted by the RO

without any outside influence. However, Observer can ensure that RO is
aware of the latest instructions; he has the latest list of disqualified
candidates and the latest symbol order.
The Observer should observe the scrutiny process and report glaring error
to the Commission. The observer should send tabular information of all
rejected cases with reasons thereof. Observers should, however, abstain
from directing or advising the RO. Observer may remind RO that the
scrutiny proceedings can be adjourned in case an opportunity is to be
provided or if any legal provision needs to be examined that requires time.
III. Allotment of symbol is a process that is very technical and requires due
care. It should be ensured that RO is aware of the provision of issue of
reserved symbols and free symbols. He should have the latest list of
political parties and election symbols. Another important aspect to be kept
in mind is the symbol concession orders issued by Commission. After
allotment of symbols, the list of contesting candidates should be prepared
in Form 7A.
B. Electoral Roll Related
I. It should be ensured the EPICs prepared during the last days are properly
distributed to the electors and are not left with some intermediary.
II. Although no deletions can be made from the roll, absentee and dead and
duplicate voters should still continue to be tracked and a separate list of
such voters should be prepared Polling Station-wise that can be used on the
day of Poll.
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III. The last supplement is prepared after the date of withdrawal by manually
marking the mother roll and previous supplement based on the last
supplement. This activity has to be closely observed and ensured that
efforts have been made to avoid any mistakes at this stage.
IV. It should be ensured that the copies given to the candidates are exactly the
same as that which would be used on the poll day by the polling party.
Observer should see the latest instructions of the Election Commission,
dated 11.12.2013 on this matter.
C. Campaign Period
I. During the campaign period, General Observers should monitor the

implementation of Model Code of Conduct (MCC) and measures to prevent
occurrence of electoral offenses. In this regard, the Observers should bring
lapse to the notice of DEO, CEO and report to the Commission, if required
but abstain from any executive action on their part.
II. Meeting with candidates to explain the provisions of Model Code of
Conduct and the instructions of Commission thereunder.
III. Observe various events like political meets, visits of star campaigners etc.
IV. Monitor the work done by teams constituted for enforcement of MCC.
V. Monitor dummy candidates, surrogate advertisements, and paid news.
VI. Review video recordings of activities of those candidates for whom video
trailing has been resorted to.
D. Pre-Poll Election Management
I. Monitor preparation of dispatch of postal ballot papers to service voters

immediately after the preparation of list of contesting candidates i.e. Form
7-A.
II. The first randomization of the election staff is done before the Observers
arrive. The second and third randomization is, however, done in the
presence of Observers.
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III. First level of EVMs/VVPATs randomization is done before the arrival of

the Observer but the second level randomization is done in the presence of
Observers.
IV. Training is an activity on which special emphasis should be provided.

Observers should monitor that proper training is arranged for the election
staff, especially with regard to recent instructions of EC and related to
operation of EVMs/VVPATs.
V. Intermediate Storage and Movement of Reserve EVMs and VVPATs

(P-2/P-3 dispatch and P+1 arrival of polling parties)
x Ensure that a Govt. building has been earmarked at the cluster point for
polling parties and EVMs & VVPATs.
x Ensure that locations of intermediate strong room have been informed to
the all the contesting candidate in writing.
x Ensure that the contesting candidates/their agents have been informed
about the date and time of opening of strong room in writing.
x Ensure that proper security arrangement has been made to guard the strong
room and all EVMs & VVPATs provided to polling parties or Sector
Officer/Zonal Magistrate are under cover of armed police at all times.
x Ensure that arrangement for videography has been made there.
VI. Monitor adherence to the instructions of the Commission regarding issue
of postal ballot papers to the polling staff and voting through them.
VII. Visit polling stations and monitor that all polling stations are visited by
election official for verification from fitness angle. Verify whether the list
of polling stations is approved by the Commission and the assured
minimum basic facilities have been provided.
VIII. Go through the exercise of Vulnerability mapping and identification of

critical booths and critical clusters done by the DEO/SP and finalize and
list of critical polling stations and critical clusters.
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IX. Discuss and approve the District Security Plan with the DEO and the SP
and review the law-and-order issue in general. Review the availability of
CPF, SAF and District Police. Review the preventive measures taken by
the law-and-order implementation machinery.
X. Review the Communication Plan and confirm dry runs.
XI. Review Control Room arrangement and complaint monitoring system.
XII. Training and placement of Micro Observers
XIII. Ensure that proper arrangements for dispatch have been made. The
dispatch should normally be on the day before the poll and any exception
should have prior approval of the Commission.
XIV. Review counting arrangements.
E. Poll Day Management
I. Monitor placement of Sector Officers and Micro Observers.
II. Monitor conduct of mock polls and receipt of mock poll certificate in
prescribed format signed by PO. Review the polling stations with no or
only one polling agent.
III. Review the pace of poll and percentage of polling at regular intervals.
IV. Keep track of occurrence of any special events during the poll day.
V. Keep track of any delays or temporary suspension of poll.
VI. Report anything exceptional to the CEO and the Commission.
VII. Ensure that proper arrangements for receipt of polling staff and polling
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material are made. Every receiving team should be well equipped with a
checklist of items to be received. Ensure that the non-statutory documents
are not locked with the EVMs/VVPATs in that strong room.
VIII. Ensure that a “special counter” is setup for receipt of polling parties from
those polling stations where any special events has been reported and on
receipt, proper documentation, along with the statement/report of the
Presiding Officer, if required, is done.
IX. Ensure that proper arrangements for receipt of reserve EVMs/VVPATs and
non-functional mock poll replaced EVMs/VVPATs from Sector Officers
immediately after completion of poll as per ECI instructions.
F. Post Poll
I. Scrutiny of documents relating to poll is an important analytical tool to

analyze proper conduct of elections and taking re-poll decision. Scrutiny is
done for those polling stations that fall within the criteria as per
Commission’s instructions in the presence of Observer on the next day of
the poll.
II. Report to the Commission about the conduct of poll and requirement of re-
poll, if any.
G. Counting
I. Review the arrangements for counting made by the DEO.
II. The randomization of counting staff is done in the presence of Observer.
III. Monitor that the counting of postal ballot taken up before the EVMs but
the EVM counting is not held up till the completion of postal ballot
counting.
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IV. The Observer has to ensure that the results as tabulated by the counting
staff and the additional counting staff, drawn from the central government
establishment, tally.
V. Conduct random test for two EVMs in every round and take corrective
action as per the directions of ECI, in case any mistakes are found.
VI. Ensure that during the counting, round-wise results are announced as and
when they are finalized.
VII. Certify proper completion of counting process and allow RO to declare

results, if satisfied with the counting process.
VIII. Report cases of recount to the Commission.
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9. REPORTS BY OBSERVERS (ANNEXURE III - VII)
1. Both General, Police and Counting Observers are required to submit

arrival and departure report to the Commission immediately after reaching
constituency(ies)/ District and also, just before leaving the
constituency(ies) / District. (Format of the arrival/departure report is
attached at Annexure-II).
2. Apart from the arrival report / departure report /self-certification and

counting arrangement reports, the Commission, expects 5 mandatory
reports from the General Observers. However, in case of any serious
deviations, the Observers should bring it to the notice of ECI through
interim report(s) as and when necessary.
3. Report to be submitted by General and Counting Observers are -
Name of Report Time of Submission

Immediately after arrival in the assigned ANNEXURE-II
Arrival Report
Constituency/District.
To be submitted immediately after the
1st Report
withdrawal of candidature.
To be submitted 2 days before the poll-day (P-2
2nd Report
days) ANNEXURE-III
3rd Report
completion of poll.
To be submitted after scrutiny of form 17A on
4th Report
the day after the poll.
Counting
Arrangement To be submitted on C-1 day by all General and ANNEXURE-V
Report Counting Observers.
(Part A & B)
To be submitted after the counting of the votes ANNEXURE-III
5th Report
by all General and Counting Observers.
Immediately before departure from the ANNEXURE-II
Departure Report
assigned constituency.
Self-Certification mentioning the date of ANNEXURE-VI
Self-Certification arrival, date of departure etc in the prescribed
format.
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4. Similarly, apart from the arrival report, departure report and self-
certification, the Commission, expects 4 mandatory reports from Police
Observers. However, in case of any serious deviations, the Observers
should bring it to the notice of ECI through interim report(s) as and when
necessary.
5. Reports to be submitted by the Police Observers are -
Name of Report Time of Submission

Immediately after arrival in the assigned ANNEXURE-II
Arrival Report
Constituency/District.
st
To be submitted on the 2nd day of reaching the
1 Report
allocated district
nd
To be submitted on the 5th day of reaching the
2 Report
allocated district ANNEXURE-IV
To be submitted 2 days before the poll day (P-2
3rd Report
days)
4th Report
completion of poll
Immediately before departure from the assigned ANNEXURE-II
Departure Report
constituency.
Self-Certification mentioning the date of arrival, ANNEXURE-VI
Self-Certification
date of departure etc in the prescribed format.
6. Oral communication with the Commission, on urgent matters which

cannot be kept pending till the written report, through telephone or
through any other fast and reliable means, during the field visit will be
welcome. All telephonic communication should preferably be held with
the Secretary concerned and must be followed by a written message in
confirmation.
7. Owing to Observers’ report(s) being confidential in nature, the Observers

should submit their reports directly to Zonal Secy/DEC Concerned in ECI
only.
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10. ARRIVAL OF OBSERVERS IN THE CONSTITUENCIES
1. The General and Police Observers are mandated to report in the

constituency one day before the last day of filing of nominations.
2. General and Police Observer immediately upon reaching the assigned
AC/PC will ensure that their local no. and contact details have been
advertised properly in coordination with the DEO/RO concerned.
3. The DEO may appoint an English knowing officer as the liaison officer for
the Observer and the liaison officer receive the Observer at the point of
his/ her arrival in the State and escort him/her to the place of stay.
4. The DEO has to make arrangements for accommodation, vehicle and
communication, like Internet, fax, office stationery and other facilities etc.
as per the Commission’s instruction no. 464/OBS/2023/OPS dated
14.08.2023
5. The information/particulars as enumerated in the check list (Annexure-I)
are to be provided to the Observer on his/her arrival along with the District
Election Plan and a map, by the DEO/RO.
11. INTERFACE OF ROs/AROs AND DEO
1. The DEO will organize a structured meeting with the Observers as early as
possible. All the ROs, AROs, SP, other election officials including the
nodal officers for media cell, model code of conduct and the designated
officers for Expenditure monitoring should be present in the meeting to
apprise the Observers about the specific issues needing their special
attention.
2. The Observer should proactively use this meeting to familiarize with the
state of preparedness of the district administration in all aspects.
3. The Observer should monitor that:
(i) The posting of requisite officers for RO and ARO has been completed
(including for counting)
(ii) The identification of all the venues, which will be used for
dispatching, receiving, and counting, has been done and reviewed.
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(iii) The list of polling stations has been finalized.
(iv) The machinery to monitor and implement model code of conduct and
for election expenditure monitoring is in place.
(v) The primary list of polling personnel has been prepared.
(vi) The arrangements for receiving information from public and political
parties-control room arrangements and inter coordination of police
and DEO, RO control rooms, has been made.
4. After reviewing the check list (Annexure-I) the Observer shall take up
the matter with the ECI, if any deficiency is found in the election
preparedness.
12. SCRUTINY OF NOMINATION PAPERS
1. The Observer is expected to observe the scrutiny process and finalization

of the contesting candidates after withdrawal very closely. The role of
Observer in scrutiny is to observe the events, rather than guide formally.
However, in a situation where there is some confusion, the observer shall
report to the Commission but under no circumstances shall give
instructions to the RO.
2. The Observers are expected to be present during the Scrutiny of

Nominations. However, before the scrutiny, it is important that the
Observers verify from the Returning Officers the availability of latest
instructions and orders of the Commission, which are specifically
relevant for the Returning Officers in discharging their statutory
functions for scrutinizing the nominations.
3. The following items are important:
(a) The latest list of “Political Parties and Election Symbols”

published by the Commission.
(b) Commission’s instructions on criminalization of politics and the
latest Form of Affidavits, which will accompany every
nomination form (ECI Instruction No. 3/ER/2003/JS-II dated
27th March, 2003 read with Instruction No. 3/ ER/2011/SDR
dated 25th February, 2011, No. 3/4/ 2012/ SDR dated 24th
August, 2012 and Order no. 509/11/2004-JS.I dated 3rd Feb
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2016) as amended from time to time.

(c) The latest copy of the List of Disqualified Persons.
(d) Instructions and copies of latest versions of Forms A&B which
are utilized by the political parties to indicate the names of their
official candidates who are eligible for being allotted the symbol
reserved for the party.
(e) An authentic copy of the Electoral Roll for the constituency.
4. It is important for the Observers to go through these instructions carefully

in advance before they interact with the Returning Officers. They will
confirm that Returning Officers have not only received the latest
instructions but have understood the implications clearly.
5. As the nomination and scrutiny have been mandated to be done through

ENCORE application, the observer must ensure that all nominations are
100% digitized, correctly entered and correctly scrutinized.
13. ALLOTMENT OF SYMBOLS
1. Immediately after the process of withdrawal of nominations is

completed, the Returning Officers are to take up the process of Allotment
of Symbols. The Observers will be available for overseeing this
important activity. The RO should have the latest list of Political Parties
and Election Symbols and any relevant symbol concession orders issued
by the Commission with regard to political parties not recognized in the
particular State but recognized in some other State and orders regarding
allotment of Common Symbol to registered unrecognized parties.
2. As soon as the allotment of symbols is completed, a List of Contesting

Candidates and Symbols allotted to them is prepared and published in
Form 7A Special care should be taken regarding order in which the
names of candidates appear in the list and Commission’s instructions in
this regard should be strictly adhered to. This is a very important
document and it is of utmost importance that copies of the same reach the
Chief Electoral Officer at the earliest. The Returning Officers will make
arrangements to send the original copy to the Chief Electoral Officer in
the State /Union Territory through special messenger. The latter will
consolidate these and send it through special messenger or camp bag to
the Commission.
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3. In case of Parliament election, the Commission publishes a Consolidated

List of Contesting Candidates in English and Hindi. It is likely that some
of the nominations may be filed in the local language. The Returning
Officer will nevertheless prepare two sets of the copies of the Form 7A in
English and Hindi and ensure that these are sent to the Commission
through the process aforementioned. However, if the RO is unable to
prepare the Hindi version, this can be left to the CEO who will get it
done at his level. In any case, the English version and the version in the
local language should invariably be sent by the ROs. In case of Assembly
election, the CEO of the State publishes it in the official language of the
State.
14. ELECTORAL ROLLS
1. Several complaints have been received in the Commission that during past
elections the electoral rolls provided at the polling booths were different from
the electoral rolls that were provided to the candidates. The Commission has
viewed such complaints with concern and decided as follows:
(a) The electoral roll supplied to the polling booths shall be certified to be
true copy of the one that has been provided to the candidates / political
parties and the marked copy kept by the Returning Officer as per
Conduct of Elections Rules, 1961 by one officer and one subordinate
to the specifically responsible for the purpose.
(b) These officers shall sign the electoral roll supplied to the polling
booths, on all pages.
(c) A copy of the electoral roll, which will be used on the day of election
at polling booths (copy of the one given to the candidates / political
parties), shall also be given to the Observer. The Observer shall check
the authenticity of the roll provided at polling booths vis-a-vis the roll
given to the candidates on the day of poll at the polling stations visited
by him/her. The Observers will discuss this subject thoroughly with
the RO and ensure that there is no room for any complaint on this
score. This aspect should also be explained to the candidates and
political parties during discussion.
2. The Observers should monitor the action plan prepared for covering the
residual electors, issue of EPIC, identification of electors absent without
family linkage, expired electors and duplicate entries and preparation of
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polling station wise list of such entries. Commission has mandated that if any
elector figuring out in this list appears for voting, the strict identity checks
should be applied.
15. MEETING WITH THE CANDIDATES
The RO should conduct a meeting in the presence of Observer with all the
contesting candidates and party representatives on the last day of withdrawal or on
the next day and brief them about —
a) Important aspects of the model code of conduct,

b) Expenditure reporting formats, rate list etc. and frequency of reporting
required, time and place of reporting of expenditure,
c) Issuance of permissions for vehicles, processions and public meetings
d) Date and time of EVM/VVPAT preparation and candidates’ role in it.
Candidates should also be briefed about the working of VVPAT system.
e) Interaction of Observers with the candidates/political parties/electors
(with specific details of time, contact numbers and place for meeting the
Observers).
f) Important aspects of conduct of elections (like appointment of polling
agent, counting agent, election agent — their rights & duties).
g) The Observers should explain the concept of worry list. Wherever a
candidate has apprehension about any unfair practice, procedural lapse,
he will bring them to the notice of the Observer through the worry list
indicating details of polling centers and reasons for such apprehension.
h) Latest instructions of the Commission or important changes from past
practices should be brought to the knowledge & notice of candidates.
i) The Observer should explain clearly about c-VIGIL app for the model
code of conduct violation reporting, EMS app for randomization of EVM
machines, suvidha app for applying for permissions and suvidha
candidate app to monitor the status of permission and candidature.
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16. VISIT OF AREAS IN THE CONSTITUENCY AND POLLING

STATIONS
After finalization of contesting candidates by the RO, the Observer should visit as
many polling stations (areas thereof) to understand the constituency in social,
economic and political context. During their visits, the Observers shall definitely
visit all new polling station, sensitive polling stations and distant polling stations.
17. REVIEW OF OVERALL PREPAREDNESS OF LAW & ORDER

MACHINERY
1. The Observer should have a detailed discussion at a mutually convenient time not
later than 4 days of his/her arrival about the following.
(a) Adequacy of police personnel,

(b) Requirement of Central Forces,
(c) Preventive actions taken (preventive detentions, bonds & arms deposition)
(d) Identification of critical clusters and polling stations through vulnerability
mapping
(e) Sector plans for policing on the day of poll,
(f) Response strategy on the day of poll and transportation of
EVMs/VVPATs, and
(g) Discussion about sensitivity of inter-district, national and international
boundaries.
2. The vulnerability index mapping of the district should have been completed. The
Observer should ensure whether this has been done and critical clusters and
polling stations are identified. The sector plan for police patrolling and the
requirement for additional force should be reviewed in this context.
3. The distilleries in the district should be monitored for the stock position of liquor
and any abnormal increase in outflow during the election period should be
checked. This should be compared to the average of the last six months.
18. OBSERVATION OF IMPLEMENTATION OF MODEL CODE

OF CONDUCT
1. It has been the most important and crucial task of Observers to ensure
non- partisan and effective implementation of Model Code of Conduct.
2. The main areas for strict vigil are: -
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(a) Use of vehicles for campaigning without required permission,

(b) Use of muscle power to mobilize or restrain people from voting,
(c) Flow of liquor and money and ‘gifts’ to ensure voting in favor of
a particular candidate,
(d) Divisive tactics through inflammatory and condemnable
speeches/ acts, and
(e) Dealing with defacement of property as per prevailing law, if
any, of the state, in case of absence of any such law as per the
latest instruction of the ECI.
3. To ensure effective enforcement, the Observer should check whether the

enforcement squads are formed with clear territorial jurisdiction to have
accountability. The teams of enforcement should consist of civil and
police personnel.
4. Detailed instructions) in this regard are made available on Commission’s

Website after the announcement of election(s).
5. All teams should have c-VIGIL investigation app installed and running
and that the disposal of each violation reported through the c-VIGIL
application is addressed by the enforcement team. The c-VIGIL observer
should install the c-VIGIL observer app and continuously monitor c-
VIGIL case in his jurisdiction.
19. APPROACH OF THE OBSERVER IN IMPLEMENTATION OF

MODEL CODE OF CONDUCT
1. The approach of observer should be to get the complaint inquired by

DEO/ RO through the inquiry officer and tracking how the inquiry is
conducted and how the concurrent corrective measure is affected. The
Observer should advise the RO/DEO about the violations and appropriate
action to be taken. However, in case of lapses on part of the authorities
even after advice of the Observers, the Observers should immediately
communicate lapses to the ECI. Observer should use videography as an
effective tool to implement Model Code of Conduct.
2. Observers are eyes and ears of the ECI and not the executives in the
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field. There are several instances where implementation of Model Code

of Conduct has been handled for the same issue in different manner in
different constituencies. Some instances are given as case studies to
sensitize you to this aspect-
Situation A
An Observer found a vehicle with a party flag and lot of workers with a
microphone campaigning for a candidate without a permit.
a. He detains the vehicle with the help of his PSO and calls for the
police and orders them to take a particular action, issues a
specific instruction in writing.
b. He reports the matter on phone to the concerned SP and

subsequently writes a letter and warrants an ATR from the SP
and RO. In case of non- action, the lapse is reported to ECI.
c. He gives an instruction to immediately arrest the people in the

vehicle to the police in writing.
The ECI would appreciate the option “b’ in this case. However,
to ensure ripple effect, the incident and the action taken should
be publicized in the media to create further deterrence through
the RO. In any case the Observer is not expected to interact and
brief the media personally.
Situation B
There is a complaint from a particular political party that there is

possession of illegal arms in a particular location by another contesting
party. The complaining party does not disclose the location and requests
for a police party to raid in a location to be specified later.
a. The Observer agrees to the demand and orders the SP to send a

police party.
b. The Observer takes the complaint and location confidentially,

asks the SP to act on it and report back. He also sends a
videography team with the police party
c. The Observer takes the police party and goes to the specified
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location and raids it.
The ECI would recommend the option ‘b’ in this case a observers have to
think and act independently after receiving a complaint and not
physically move with one party or other as that is also seen as partisan.
Situation C
Every party has a list of star campaigners designated who shall be funded
centrally from the party level for their travel and campaigning. One of
the star campaigners deliver inflammatory speeches hurting the
sentiments of a particular section of society and this is widely covered by
media at national and local levels.
a. This episode and the contents of speech is recorded and reported

to ECI and at the same time appropriate action by the Election
machinery has been initiated. The Action Taken is proportionate
to the gravity of the lapse.
b. This episode is not repotted to ECI and action has been initiated
at the local level which is covered by local media.
c. It was not acted against at all.
The ECI would recommend option ‘a’ as the lapse is being covered by national
media and the damage is no more localized and therefore the non- reporting of
this even to ECI shall have negative effect on the general scenario of elections at
the national level.
Situation D
An observer witnesses that a public property has been defaced by posters

which is serious violation of model code of conduct. He had to deal with
this.
a. The Observer gets out of the vehicle and tears the posters
himself.
b. He informs the RO and asks the RO to send the enforcement

squad responsible for territorial jurisdiction. He documents the
violation through videography. After a day or two checks
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whether that violation has been dealt with and also ensures
booking of that expenditure in the accounts.
The option ‘b’ is the desired response. ECI encourages effective

observation rather than self-implementation of the Model Code of
Conduct.
3. ECI envisages appropriate and timely action against lapses and at the
same time proportionate flow of this information of action taken to the
appropriate levels like local, district, State and national level to have a
deterrence effect.
4. Every move of campaigning has an implication of election expenditure.

The Observers are expected to correlate all the permissions taken and the
expenditure statements submitted. In case of some expenditure not being
reported, the standard rates prevailing in the district should be adopted.
20. WATCH ON EXPENDITURE INCURRED ON ELECTION

CAMPAIGN BY THE CANDIDATES/POLITICAL PARTIES
1. The Commission appoints separate Expenditure Observers to monitor

election expenses. For the purpose a separate manual/ guideline has been
prepared by ECI. The observers should familiarize themselves with the
expenditure monitoring guidelines.
2. Past experiences indicate that use of money power starts right from the
distribution of tickets by the political parties. Subsequently, it takes
various forms, which are enlisted herein below. However, it must be kept
in mind that the enlisted ways of spending money are only indicative.
There can be many other ways of spending money which should engage
the attention of the Observers.
a) Booth-wise agents are appointed to purchase floating votes;

b) Large donations to clubs and organizations to influence its
members;
c) Largesse to petty party workers to dole out the same to electors;
d) Rented crowds for party meetings;
e) Rallies and campaigns with purchasable crowd;
f) Presence of candidates at social occasions like mass weddings,
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feasts, puja’s, jagrans, inaugurals, etc. where gifts are given on

behalf of candidates;
g) Acceptance of felicitations by the contesting candidates at any
educational or charitable organizations;
h) Distribution of free liquor/liquor passes to the electors;
i) Use of dummy candidates at election to utilize his quota of
electioneering vehicles, etc.
j) Surrogate advertisements in print and electronic media whereby
candidature is canvassed by unconnected persons/organizations
so as to avoid the expenditure on the same being accounted for
in the expenditure of the contesting candidates;
k) Bringing cinema celebrities and sportspersons to campaign;
l) Providing voters with caps, vests, umbrellas, bi-cycles, etc.
3. It shall be the duty of the Observers to ensure that all the instructions of
the Commission are followed meticulously and there are no aberrations
in their application. It is, therefore, imperative that the Observers should
familiarize themselves with the extant instructions issued by the
Commission which are available on the Observer Portal and on the
Commission’s website.
4. The gist and highlights of various instructions on the issue of election

expenditure is given hereunder for the benefit of the Observers:
a) Section 77 of the Representation of the People Act 1951

stipulates that every candidate at an election shall, either by
himself or by his election agent, keep a separate and correct
account of all expenditure in connection with the election
between the date on which he has been nominated and the date
of the declaration of the result thereof, both the dates inclusive.
b) Section 78 of the said Act further stipulates that every contesting

candidate at an election shall within thirty days from the date of
the election of the returned candidate, lodge with the District
Election Officer, an account of the election expenses which shall
be a true copy of all the account kept by him or by his election
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agent u/s 77.
c) In order to facilitate monitoring of election expenditure, each

candidate is required to open a separate bank account exclusively
for the purpose of election expenditure. This account shall be
opened at least one day before the date on which the candidate
files his nomination papers. All money to be spent on
electioneering shall be deposited in this bank account
irrespective of its funding from any source including candidate’s
own fund.
d) Even if a contesting candidate does not seriously contest the
election for any reason whatsoever and incurs only a nominal
expenditure on his security deposit, etc., he is required by law to
lodge his account of election expenses.
e) Contesting candidates, who fail to comply with the requirement

of law regarding the lodging of account of election expenses, are
liable to be disqualified by the Election Commission u/s 10A of
the Representation of the People Act, 1951 for a period of three
years.
f) The Election Commission of India has prescribed a format of the

register which is required to be maintained by the contesting
candidates along with supporting vouchers, bills, etc. arranged in
a proper chronological order.
g) Along with the Register, the Election Commission of India has

prescribed a format of “Abstract of Election Expenses” which
has also to be filled up by the contesting candidates
h) The contesting candidates are further required to furnish an

affidavit along with the “Register of day-to-day expenses” and
“Abstract of Expenses”
i) The prescribed register/forms/extracts of rules relating to lodging

of returns of accounts of election expenses should be printed and
made available to the contesting candidates in Hindi, English or
the approved local language in which the electoral rolls are
printed.
j) The supporting vouchers of the day-to-day expenses should
26
necessarily bear the signature in full of the contesting candidate

or his election agent.
k) The register along with the Abstract of expenses and the

prescribed affidavit has to be made available by the contesting
candidates for inspection by the Returning Officer/Designated
Officer thrice before the date of poll. However, it has to be
ensured that there is a gap of about four days in between each
inspection and the first inspection may be on or after the 3rd day
from the last date of withdrawal of nominations.
l) If a candidate is contesting election for more than one
constituency, he is required to maintain and lodge a separate
account of his election expenditure in respect of each such
constituency.
m) The accounts of the candidate -will be scrutinized by the

Returning Officer/ Designated Officers and he shall keep two
photocopies of the relevant pages of the register. One copy of the
relevant pages of the register shall be displayed on the notice
board of the Returning Officer and the other copy will be
retained in a separate file for each constituency as proof of
record with the Returning Officer and furnish to the DEO on
conclusion of the whole electoral process.
n) Where a candidate does not produce the register containing his

daily account of election expenses before the designated
officer/observer, despite notice, the DEO shall cause a complaint
to be lodged u/s 171-1 of the IPC against the errant candidates.
o) Any person desiring a copy of these day-to-day accounts, should

be provided the same by the Returning Officer, subject to the
payment of usual copying charges
p) The candidate, while maintaining their register of accounts of

election expenditure, should also account for all expenditure
including those incurred prior to the date of nomination for
preparation of campaigning material, etc. which are actually
used during the post nomination period in connection with the
election.
q) The expenditure incurred by the leaders of the political parties
27
on account of their travel for propagating the programs of the

party shall NOT be considered as expenditure in connection with
election incurred or authorized by the candidate or his agent,
provided the names of the leaders for this purpose are
communicated to the Commission and the CEO of the State
within a period of seven days from the date of notification of the
election
r) In the event of failure of the political party to provide such

names within the stipulated time, the aforesaid expenditure on
travel of all leaders in the case of such parties will necessarily be
included in the account of the election expenses of the candidate
concerns.
s) The Hon’ble Supreme Court in Kanwar Lai Gupta Vs. Amarnath
Chawla (A.I.R. 1975 SC 308) has held that the expenditure
incurred by the political party, as distinguished from expenditure
on general party propaganda, which can be identified with the
election of the given candidate would be liable to be added to the
expenditure of that candidate as being impliedly authorized by
the candidate. The Apex Court has further held that a party
candidate does not stand apart from the political party and if the
political party does not want the candidate to incur the
disqualification, it must exercise control over the expenditure
which may be incurred by it directly to promote the electoral
prospects of the candidate.
t) The expenditure on bullet proof cars and all others cars used by
all the Ministers of Union and States and all other leaders of
political parties shall be borne by the candidates.
u) All vehicles (including two-wheelers, motor-bikes, scooters and

mopeds, etc.) being used by the candidates for the election
campaign are required to be lodged with the DEO.
v) Whenever political parties or candidates use aircraft/helicopter

for election campaign, prior information should be given to the
CEO of the state. While giving such information, the following
information also need to be furnished: -
(a) Number of aircrafts/helicopters used;
(b) Name of the hiring companies;
28
(c) Hire charges paid/payable;

(d) Areas covered;
(e) Number of sorties involved;
(f) Passenger manifest;
w) The expenditure incurred by a political party on advertisements
in connection with the election of a particular candidate or a
group of candidates shall be treated as expenditure authorized by
the candidates concerned and shall be accounted for in the
election expenses of the candidates concerned. In case where the
political party for the benefit of group of candidates incurs the
expenditure then the expenditure is to be apportioned equally
amongst the candidates.
x) The expenses on construction of barricades/rostrums etc. when
done initially by the government agencies on account of security
considerations on behalf of the party organizers are to be booked
as expenditure of a candidate in whose constituency the said
meeting takes place or to a group of candidates who are present
at the time when the leader of a political party addresses such a
meeting. In cases where there are more than one candidate of the
political party present at the time of the said meeting of the
“leader’, the expenditure will be apportioned equally amongst
all, and the District Election Officer of the district where such a
meeting takes place shall obtain the final costs from the
concerned government agencies within three days of the event
and intimate to the candidates their private share of expenditure.
This information will also be intimated to the Returning
Officer/District Election Officer of the Constituency/ District to
which the other candidates belong.
y) Where the aforesaid expenditure are incurred from the

organizer’s own funds, the same will be reflected in the accounts
of the concerned candidates or a group of candidates present in
the meeting of the leader.
z) It has been decided by the Commission that the candidates’

booths set up outside the polling stations should hereinafter be
deemed to have been set up by the candidates as part of their
individual campaign and not by way of general party propaganda
and as such all expenditure incurred on such candidate’s booths
29
(kiosks) shall be deemed to have been incurred/ authorized by

the candidate/his election agent so as to be included in his
account of election expenses (not falling under exempted
category). The DEOs have to notify the rates of the candidates’
booths set up outside the polling stations taking into
consideration the cost of infrastructure used and also the notional
expenses on daily allowances and refreshment etc. to the party
workers manning those kiosks.
5. The Observers are advised to familiarize themselves completely with the
aforesaid instructions of the Commission and prevail upon the
Designated Officer to abide by the same. Wherever aberrations are
noticed, the Designated Officers should be encouraged to issue notices
through the Returning Officers to the erring candidates and make a note
of the same in the register whenever they are produced for inspection.
21. MEDIA CERTIFICATION AND MONITORING COMMITTEE

(MCMC)
1. There shall be a Media Certification and Monitoring Committee in each

district with the following members:
a) District Election Officer/ Returning Officer of Parliamentary

Constituency
b) ARO (not below SDM)
c) An intermediary expert/ Social media expert (to be chosen by the
RO subject to the eligibility criteria)
d) Central Govt. I&B Ministry official (if any in the district)
e) Independent Citizen/ Journalist as may be recommended by the PCI.
f) DPRO / District Information Officer/ equivalent – Member
Secretary
2. However, the role of Observers is limited to MCMC and Paid news, the
following is provided for their information-
a) Precertification guidelines are applicable on advertisements on
social media.
b) CEOs to send two hourly ATRs on media monitoring on poll day
and pre-poll day to the Commission.
c) Timely alerts/response for Take down requests especially on social
media handles (as per laid down procedure by nodal officers) can
30
curtail misinformation/ hate speech, fake news instances derailing

electoral process.
d) Expenditure on campaigning through internet including social media
website to be included in candidates’ expenses. Expenditure
incurred in virtual campaigning is to be included in the expense
accounts.
3. Besides carrying out the already assigned work of certification of

advertisements, this Committee will also monitor both print and
electronic media including cable networks, and record either in CD or
DVD, keep a photocopy of all advertisement / paid news / election
related news of the contesting candidates/ political parties.
4. The DEO will ensure that this Committee is provided with all the
national and local newspapers, having wide circulation in the
constituency, three to four TV sets with connections of all the local and
national News channels and one recording device and separate rooms so
that they can watch and record all the advertisements/discussions related
to the election. The Committee will also look into MCC violations in the
Media sphere and send a report to the DEO with copy to the General
Observer. The MCMC shall see all the newspapers, print media,
electronic media, cable network, mobile network, and other modes of
mass communication like bulk SMSs etc., and keep record of the
advertisements, advertorials, messages, discussions, and interviews
relating to the candidates and parties. This committee will submit a Daily
Report with respect to each candidate to the accounting team with copy
to RO and Expenditure Observer with respect to expenditure incurred by
the candidate on election advertising including the assessed cases of Paid
News, along with supportive paper cuttings/clippings, recordings of
relevant TV and Radio advertisements, which will also be included in the
Shadow Observation Register. The RO will issue notice to the candidate
with regard to the incidents of Paid News in consultation with the
Expenditure Observer for not showing the expenditure on such
publication.
22. EXPENDITURE MONITORING CONTROL ROOM AND CALL

CENTRE
A 24x7 Call Centre will be established in the Control Room at the district level to
operate from the date of notification of election. The call center will be given toll
free telephone number with 3 or 4 hunting lines which will be widely publicized
31
for the public to inform corrupt practices related to election. A senior officer will
be put in-charge of the control room and call center who will be responsible for
receiving and recording the complaints and passing them on to the respective
officer for action without any delay. The call center will be provided with sufficient
staff to man the telephone lines round the clock.
23. DISTRICT MEDIA CELL
1. The DEO shall create a cell for dealing with media headed by Public
Relation Officer and the main functions shall be-
a. The cell shall collect various clippings about the elections and also
the advertisements from all the newspapers including the vernacular
languages and provide this with translation if required to the
Observer through the liaison officer. This should be done on a day-
to-day basis by the media cell. Liaison officer may do this exercise
depending on the location of the Observer and an allowance shall be
provided for this to the liaison officer.
b. Prepare and circulate the note on various steps initiated during the
day against violations of MCC to the Media. These notes shall not
include any direct quotes to the media by the Observer, and
c. They should also ensure that videography of all the public meetings
are done and passed on to the Observers. They should aid the
Observers in viewing and bringing forth any violations of MCC to
the notice of the Observers.
24. PREPARATION OF POLLING PARTIES AND TRAINING
1. To ensure transparency, the Commission has formulated a

comprehensive three-stage randomization plan for selection and
deployment of polling staff. In the first stage of randomization, polling
staff is randomly selected from a complete database of all Government
employees working in the district. This process would have been
completed before arrival of the Observer. However, the Observer should
examine the outcome of the process and ensure that the selection has
been random.
2. The second stage of randomization is for polling teams and assignment

of the Assembly Constituency to which they shall be deployed. The
polling station to which these teams will be going would be known only
32
after the third stage of randomization, which is usually done on the day
just before dispatch. For election to Lok Sabha, the Commission has
directed that the polling staff may be randomized within their
Parliamentary Constituency, as far as possible, so that they can vote
through EDC.
3. Success of the poll process depends a lot on the quality of training

imparted to the polling staff. Observer should monitor the training
process and take care that:
a) All the staff appointed for poll duty is trained.

b) The trainers are well versed with the election process. It is a
good practice to use the Sector Officers as trainers.
c) Training is imparted in small groups and not very large groups to
ensure that proper focus is maintained.
d) Training covers all aspects of poll management, including EVM
(CU, BU and VVPAT) and Non EVM aspects, Forms and
certificates to be filled by the staff.
e) Special focus should be given to the latest instructions issued by
the Commission since most of the polling staff would be
unaware of them.
25. ELECTRONIC VOTING MACHINE
1. The Observers will check on the stock of FLC-OK EVMs/ VVPATs

available in the district.
2. The Commission issues detailed guidelines to the Chief Electoral

Officers and the District Election Officers for training and awareness
(only digital) on the use of EVMs. It has to be seen whether these
training programs have been taken up properly and the people are aware
of the method of casting vote on the EVM. The training of Presiding
Officers and polling personnel, especially the third polling officer who
controls/ incharge of Control Unit on poll day, on the use of EVMs is
critical.
3. Observers should familiarize themselves with the latest instructions on
33
EVM/VVPAT.
26. VOTER VERIFIABLE PAPER AUDIT TRAIL SYSTEM

(VVPAT)
1. VVPAT was introduced in 2013 to provide even greater transparency to

the poll process. TheVVPAT is an additional unit attached to the EVM,
which prints a small slip of paper that carries the symbol, name and serial
number of the candidate voted by Voter, which is visible for 7 (seven)
seconds in the viewing window.
2. The voter after pressing the button on BU can view the printed slip on
VVPAT through the viewing window and thus can verify that the vote is
recorded for the Candidate of his/her choice.
3. These paper slips are automatically cut and stored in a sealed

compartment of WPAT and can be used later to crosscheck the votes in
CU as per the prescribed procedure by ECI. The printing of slip in
WPAT is an additional verification to the voter, besides glowing of LED
near candidate button and the beep in EVM system.
26a. Randomization of EVMs/VVPATs
The Commission has also mandated randomization of EVMs/VVPATs to

avoid apprehension of any attempt of manipulation of EVMs/VVPATs.
This randomization is done in two stages. In the first stage, which is done
before the arrival of the Observers, EVMs/VVPATs are allotted to a
particular Constituency and in the second stage, which is done in the
presence of the contesting candidates and Observer, an EVM/VVPAT is
allotted to a particular polling station.
26b. Commissioning of EVMs and VVPATs
x Commissioning of the EVMs and VVPATs is done under the

supervision of the Returning Officer in the presence of the contesting
candidates/ their representatives.
x Ensure that the ECI instruction in the matter is followed.
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x Ensure that VVPAT slips generated in the commissioning process is

shredded on daily basis.
26c. Use of Symbol Loading Unit (SLU) and storage of SLUs after
Commissioning of EVMs & VVPATs.
x During the commissioning period in Assembly Constituency/Segment,

all symbol Loading Units(s) along with its accessories shall be in the
custody of the RO/ARO, as the case may be and shall be securely
stored in commissioning premises.
x After the completion of commissioning process i.e. symbol loading
process for the Assembly Constituency/Segment, the SLU(s) used for
symbol loading along with the accessories shall be stored as per
protocols prescribed by ECl.
x Ensure that the ECl instruction in the matter is followed.
27. PREPARATIONS FOR DATE OF POLL
1. Effective checks to curb electoral malpractice or vitiation of the poll

process by way of booth capturing, rigging, creating a scare of fear and
panic among electorate and effectively preventing them from casting
their votes are major concerns.
2. The methods adopted by unscrupulous elements vary from State to State

and from constituency to constituency. The Observers are expected to
familiarize themselves about the tricks of the trade prevalent in the area
as well as identify the specific areas prone to such mischief.
3. The Observers between or amongst them should carefully plan out, in

confidence, the areas, which they would focus on, during the actual
period of poll. This will be kept confidential and is not to be shared with
anyone including the District Election Officers, ROs, Escort and Liaison
Officers and PSOs.
28. VISIT TO DISPATCH CENTERS
The Observers will visit the dispersal centers for dispatching the polling parties to
different location and make a brief report on the manner in which the operations
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are being conducted. They will particularly see that the random formation of
polling parties is being truly and correctly implemented.
29. MICRO OBSERVERS
1. The employees of the Central Government/ PSUs are appointed as Micro

Observers. The Micro Observers are expected to observe the polling
process on the day of poll. They are assigned duty in the polling station.
They shall be part of the polling team and be seated in the polling station.
They are to be present in the polling station before the mock poll starts.
They shall report about the poll day in the given format, Report of Micro
observers.
2. Micro Observers are to be trained by the Observers two days before the
poll with the help of RO and posted in the polling stations, which are
critical. Therefore, an arrangement is required wherein Micro Observers
are stationed at a central location on the day of polls and they are moved
to specific polling stations as per requirement (like absence of polling
agents, critical polling stations etc.)
3. Micro Observers need not cover all the critical polling stations. They
should be used effectively and not on an extensive basis unless required.
The Micro Observers may be sent -with the polling parities in case they
are required to perform duty at remote locations.
30. SPECIAL OBSERVERS
In case when special circumstances prevail, the ECI may send Special Observers
who shall be working on specific agenda delineated by ECI and they are on par
with the other Observers working in the constituencies. They report to the ECI
directly and have no supervisory role over other Observers. However, to enable
them to get a clear picture of the happenings going on in the constituency, they
are required to discuss and get information from other Observers of the district/
constituency.
31. POLL DAY ACTIVITIES
1. One of the most important responsibilities of the Observers is to oversee

the actual poll. On the date of poll, Observers available in the
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constituency should tour the maximum number of booths as is physically

possible during the hours of polling. For this purpose, they will mutually
decide as to which polling stations they will visit on the poll day. Also, to
save time they may consider carrying some packed food and start field
visits well before the poll begins. The presence of the Observers in the
field on the date of poll and their visits to polling stations should be an
effective deterrent against electoral malpractice and vitiation of the poll
process. The Observers will ensure prompt and effective action on this
score by interacting with the District Administration constantly through
telephone, wireless, VHF Radio sets etc.
2. Commission has mandated conduct of mock poll before the actual poll
begins to demonstrate proper functioning of the EVM/VVPAT to the
polling agents. To this effect, the Presiding Officer has to sign a
certificate in the format prescribed by the Commission. Observers should
monitor that the mock-polls have been conducted and the POs have
issued the certificate to that effect. Importantly, it should be ensured that
result of mock poll is cleared from its Control Units and Paper Slips of
mock poll in VVPAT Box are removed before commencing poll.
3. They should look for any unusual activity or lack of activity around a
polling station to sense whether any electoral malpractice has vitiated or
is likely to vitiate free and fair polls. Absence of women in the queues
may be an indicator of something unusual. The Observers should in
advance study and acquaint themselves with the pattern of electoral
malpractices in the past elections in different areas. On this basis, they
can look for tell-tale signs, of any irregularities. They should constantly
remain in touch with the RO, ARO, Sector Magistrates and other officers
on duty to get feedback as well as to convey anything specific for
corrective action to be taken by the concerned authorities on the basis of
what the Observers have actually seen in the field.
4. They should also go inside Polling stations and check for the progress of
polling, the compliance of prescribed procedures by the polling officials
in conducting the poll, the presence of polling agents, the updating of
entries in the Presiding Officer’s diary and such other matters that need
verification. Register of Voters (Form 17A) must be checked with
display of total votes polled on EVM and Observer must sign the visit
sheet along with his observation and record the time of his/her visit.
Special attention should be paid in the case of polling stations where
polling agent of only one candidate is present.
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5. The Observers will also take stock of the collection of the

EVMs/VVPATs and the transport of polling parties and polling materials
under appropriate security arrangement. The convoys once started should
only stop at the destination, that is, the strong room where these are to be
stored.
6. An important point to be noted is that Form 17C has been completely and
correctly filled in by the Presiding Officer and these are deposited along
with the Presiding Officer’s diary at the collection centers and strong
room.
32. RECEPTION OF POLLING PARTIES
1. There is need to focus on polling stations wherein-
a. Polling was disrupted temporarily due to EVM failure or any

other reason.
b. Serious complaints were received and
c. Confirmation regarding mock poll certificate not received.
The Returning Officer has to prepare a report of such polling stations
with their names and numbers and send it to DEO and Observer by 4
P.M. and the polled EVMs/VVPATs and other documents pertaining to
these polling stations are to be received in a special counter and not in the
regular counters as a rule. The Presiding Officer’s diaries have to be
checked thoroughly for these polling stations.
2. At the reception center, it should be ensured that a copy of Form 17-C is

kept with the respective EVM in strong room. Other documents should
not be kept in the EVM/VVPAT strong room. Other document should be
kept separately in a separate strong room to facilitate access when
required.
33. SCRUTINY OF REGISTER OF VOTERS AND OTHER

DOCUMENTS
1. In order to deter electoral malpractices, the Commission has directed that

scrutiny of various documents like Presiding Officers diaries, Register of
Voter (Form 17A), Micro Observers reports, Visit Sheets, report of Zonal
Magistrates etc. shall be taken up after completion of poll for polling
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station selected on the basis of detailed criteria laid down by the

Commission. This scrutiny shall be taken up at 11:00 AM on the day
next to the day of poll.
2. The scrutiny of the Register of Voters and other documents shall be taken
up as laid down by the Commission and the Observer should ensure that
his/her travel plan is so laid out that his/her departure from the
constituency is not before 36 hours after completion of poll.
34. RE-POLL AND ADJOURNED POLL CASES
1. The report of the Observer is the most important input for the
Commission for taking a decision on ordering re-polls. The Observers
should therefore be vigilant and alert about any incident or activity,
which might or might have vitiated the poll process so that they can send
a specific report to the Commission on this matter. Sometimes,
information received from other sources are referred back to the
Observers on telephone by the concerned Secretary or Deputy Election
Commissioner and the Observers are expected to make such enquiries
and verification as are possible within the constraints of the time
available. After this and after taking into consideration other inputs made
available to the Commission, re-poll is ordered in such of the polling
stations as is considered necessary and appropriate by the Commission.
2. It is of utmost importance that the re-poll itself is not vitiated in any

manner. The Observers will give specific and comprehensive report on
the actual conduct of re-poll. The re-poll, if any, is normally held on the
second day following the date of poll unless specified otherwise.
3. In case of re-poll:
x Ensure that EVMs/VVPATs for re-poll have been drawn from

unused reserve list and intimation has been given to the candidates/
their agents.
x Ensure that the address tag on the EVMs/VVPATs clearly mentions

that EVMs/VVPATs are for use in the re-poll indicating the date and
Polling Station number.
x Ensure that pre-printed sticker "Re-poll EVM/VVPAT" has been
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pasted on the EVMs/VVPATs and on their carrying cases.
x Ensure that after re-poll the strong room has been re-opened in
presence of the candidates/ their agents and observer for storage of
the re-polled EVMs.
x Ensure that re-polled EVMs/VVPATs has been placed together with

the EVMs/VVPATs which were used earlier in the original poll.
x Ensure that sticker "TO BE COUNTED” with bold print has been
pasted at the time of placing the ‘Re-Poll EVM’ the strong room
and also ensure that the sticker ‘NOT TO BE COUNTED’ with
bold print on the old EVMs/ VVPATs has been pasted to remove
any confusion at the time of counting. The specification of sticker
are as under:
Dimension 15 cm x 10 cm
Color: Pink for AC and White for PC elections
x Ensure that the unique ID number of the EVMs/VVPATs used in re-

poll has been entered in EMS
35. END OF POLL REPORT
The Observers will send a report in the prescribed form at the end of poll showing
the role of polling agents and the number and nature of complaints received in
regard to each polling station. In addition to this, the Observer has to send a
comprehensive report highlighting all-important factors, in case any re-poll is
recommended by him/ her for a particular polling station or a group of polling
stations.
36. COUNTING OF VOTES
1. The Commission has prescribed a format for approval of counting centers

and the Returning Officers have been directed to personally inspect each
counting center and send their proposals to the Commission for its
approval. During the initial stage of their visit, i.e. before the scrutiny of
nomination papers, the Observers will check if the data in the format has
been sent to the Commission for approval by that time.
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2. During this very stage of the visit itself, the Observers between them will
also inspect each counting center for a preliminary assessment of the
facilities in the counting center and to verify that these are as per
specification prescribed by the Commission. In addition to what is given
in the ‘handbook for Returning Officer’, the recent instructions given by
the Commission should be read by the Observers thoroughly and, on this
basis, they will interact with the Returning Officers to effect any further
improvement as may be necessary for making the arrangements in the
counting centers, up to the standard prescribed by the Commission.
3. One of the most important features relates to provision of specific

facilities for the Observers and media in the counting centers. It is now
mandatory for the Returning Officer to provide a separate room or a
cubicle for the Observer or Observer in each counting center with one
STD telephone and a fax machine.
4. The Observers will ensure that RO/DEO and the technical staff assisting
them have tested the ENCORE software and are ready for fast
transmission of final result to ECI using this software. They will have to
use the password given to them and transmit the data to ECI. As this data
gets loaded to the website automatically, it is essential that wrong data is
not transmitted on the counting day. Hence doing the “dummy run” on
designated date is also essential.
5. The statutory provisions regarding Observers specifically focus on their

role during the counting process and empower them to stop counting and
to direct the RO/ARO not to declare the result in circumstances
mentioned in Section 20B of the Representation of the People Act, 1951.
The statute thus enjoins a special responsibility on the part of the
Observers to oversee and supervise the counting process and also to
provide a direct immediate communication to the Commission. The
Commission accordingly expects that Observers will have a key role in
the superintendence of the counting process.
6. The staff selected for counting has to be randomized on the day of the
counting early morning before the counting begins. The Commission is
particularly concerned that the entire counting arrangement should be
orderly and well structured. The Commission attaches great importance
to the fact that the actual counting is done in such a manner that it is not
only smooth and efficient but more importantly transparent and correct.
Reasonable opportunity is to be afforded, as per existing instructions of
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the Commission, to let the counting agents of the candidates get a clear
view of the counting process as it goes on each counting table. There
should be no room for any doubt.
7. The Commission has issued detailed orders regarding the arrangements

for counting. These include the specifications for selections of counting
centers and for managing the counting process.
8. For ensuring accuracy of the result of counting, a round wise statement

shall be prepared by the Returning Officer. Both the Returning Officer
and Observer shall personally verify that number of votes posted against
the name of each candidate in respect of every counting table tally with
the figures as shown in part II of Form 17C (result of counting)
pertaining to that table. They shall append their initial below the total of
each counting table. A copy of the detailed table/wise, polling station-
wise, round-wise breakup of the votes will be kept by the Observer in
his/her folder.
9. As a measure to cross check the correctness of counting, observers are

required to randomly select two EVMs counted in a round and with the
help of additional counting staff provided to them to assist in this regard
ascertain once again count of votes polled by each candidate and after
getting satisfied, then only countersign the relevant column of proforma
for recording of votes. The Additional Counting staff shall prepare the
result of two randomly selected EVMs in the prescribed proforma for
recording of votes.
10. The tallying process at the end of each round of counting should be
completed in a systematic manner and the round-wise progress
announced within the halls by the concerned ARO-in-charge and also
written on black/ white board, which should be clearly visible to all.
Immediately thereafter, this should be announced over the public address
system. These public announcements could be centralized, in a counting
centre with multiple halls.
11. The Observers will also ensure that as soon as the final results and the
winning candidate are announced and all the relevant papers are signed
by the RO, the final detailed result is transmitted to ECI website. For this
Genesys software shall be used.
12. The Observers should ensure after the declaration of result that the RO
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sends to CEO the duly filled and corrected copies of

a) Final Result Sheet in Form 20,
b) Declaration of Result in Form 21C,
c) Return of Election in Form 21E.

13. It may be noted that only the name, which is given in the Nomination
Form, is normally valid for all future references and use in the other
related documents. The list of contesting candidates in Form 7A should
reflect this name exactly and correctly with same spellings as given in the
Nomination Form, unless the RO allows any deviation under Rule 8 of
the Conduct of Elections Rules, 1961. Eventually the name of the
candidate who is returned from the constituency is given in the
declaration of the result in Form 21C. It is absolutely imperative that this
Form 21C, as also the return of the election in Form 21E and the
certificate of the election in Form 22 contain exactly the same name as
given in the list of contesting candidates in Form 7A. Consistency of the
names in the Forms 7A, Ballot Paper and Forms 21C, 21E, 22 has to be
maintained without fail. The Observers will impress upon the Returning
Officers about this aspect and ensure that full compliance is made.
14. The Observer should ensure ROs/AROs are trained in generating round
declaration form RDF form 21C and 21E from the ENCORE portal.
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37. DOs AND DON’Ts FOR OBSERVERS
DOs
1. Attend the briefing and debriefing session fixed by the Commission.
2. Draw up your tour programs sufficiently in advance and intimate to the Chief
Electoral Officer, District Election Officer and the Returning Officer of the
constituency concerned.
3. Note carefully the numbers of visits, duration of visits and the period of visits
given by the Commission and strictly act according to this.
4. Ensure that your tour Programme is duly publicized within the constituencies
allotted to you.
5. Identification of areas / polling stations which might require closer attention:
I. Visiting polling stations/areas, especially those for which vulnerability

mapping is done.
II. Visiting polling stations/areas, which have previous history of

malpractices, irregularities, and other such incidents.
III. Visiting newly created polling stations is necessary.
IV. Visiting polling stations/areas which might become sensitive during

course of election due to any other reasons.
6. Monitor that adequate stock of all election materials are actually available as
per the inventory of these items.
7. Strictly follow the guidelines from the EVM-VVPAT Manual-2018 Edition 3

and Status Paper on EVM Edition 3.
8. Familiarize yourself with the use of EVMs/VVPATs, and attend some training
rehearsals.
9. Ensure that sufficient publicity regarding EVM/VVPATs has been given so

that media and general public have no misgivings about EVMs/VVPATs.
10. Make an independent assessment of the Law-and-Order situation in general.
44
11. The observers are expected to guide advice and facilitate the efforts and
initiatives of the DEO/RO in making necessary poll arrangements and
conducting the elections in a free, fair, transparent, peaceful, and participatory
manner.
12. Make a random check of as many polling stations as possible and verify them.
13. Monitor instances of violation of Model Code, ban on transfer etc.
14. Monitor the deployment of central forces to have maximum impact.
15. Send a report to the Commission within 24 hours of your return to the
headquarters after the visit in addition, also please send spot report(s) from
time to time as considered necessary.
16. Bring any development that merits immediate remedial action or attention of
the Commission, to Returning Officer’s / Commission’s notice without any
loss of time. Such information should not be deferred till the regular reports
are submitted.
17. Upload on Observer Portal or send your report in a closed envelope addressed
to the Secretary concerned looking after the particular State / Union Territory.
18. Attend meetings of the political parties called by the District Election Officers
/ Returning Officers.
19. Make independent assessment of the expenditure incurred by a candidate,

political party, or any other person.
20. Speak to the local people and check posters, pamphlets etc. to arrive at an
independent assessment.
21. Inspect the register of Election Expenditure prescribed by the Commission.
22. Obtain prior permission of the Commission before leaving the headquarters.
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23. Maintain proper conduct in the Constituency as ECI Observers are keenly
observed.
24. The Observers shall, at all times, conduct themselves in consonance with the
highest standards of professional, ethical and personal conduct, as is expected
of a responsible and mature officer of the Commission.
25. The Observers shall discharge their observation duties with due diligence,
honesty, and responsibility.
26. Observers must be respectful of the local customs, traditions and cultures and
refrain from expressing their personal opinions, perspectives, and political
preferences.
27. The observers must appreciate and respect the democratic processes and
fundamental values of constitutional democracy enshrined in our Constitution.
28. The observers should follow the virtues of simplicity and avoid any lavish
lifestyle or extravagance.
29. The observers must display the highest level of due diligence and professional
acumen in conveying their opinions and reports to the commission about any
election-related incident.
30. Any out-of-box suggestion regarding the improvement in election process

should be given only in the final report.
31. Any instruction to the election machinery for a new experiment/measure

should NOT be given without prior approval of the Commission.
32. All reports to the Commission should be prepared solely on the basis of
accurate, reliable and verifiable information and not on hearsays, half-truths,
rumors or unfounded anecdotal references.
33. The Observers must maintain strict confidentiality in submission of their

reports and assessments to the Commission.
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DON’TS
1. Do not ask for any exemption from the briefing session.
2. Do not travel to the Constituency -with your families.
3. Do not go to the State capital to meet the Chief Electoral Officer if the route to
the constituency from your headquarters does not pass through the State capital.
4. Do not call meetings of the political parties on your own.
5. Do not make any unreasonable demands to the Chief Electoral Officer / District
Election Officer / Returning Officer regarding accommodation, vehicles,
security etc.
6. Do not leave your headquarters once you have been allotted specific
constituencies without the prior written permission of the Commission.
7. Do not plan for arrival to the Constituency on the day of scrutiny.
8. Do not plan for departure from the Constituency on the day next to the day of
poll or on the day of counting.
9. Do not defer submitting reports of any development, which requires immediate

remedial action; bring it to the Commission’s notice by fastest means.
10. Observer has no executive role and role clarity is a must. For example,
Observers should not pull the posters off the walls to clean up defacement.
11. The Observers shall not be a party to any illegal, unauthorized, or illegitimate
activity or engage in acts, which can bring discredit and disrepute to the
Commission and invite criticism from media, political parties, candidates, or any
other quarter.
12. The Observers must not make any unauthorized public statements and exercise
due caution before taking any definitive position in any election-related matter.
13. Discretion is much more preferable to any grand-standing or over-confident

utterance.
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14. The observers must not accept any offers of hospitality, avoid shopping at
special discounts or attendance at private clubs/gymnasiums and avoid
recreational/scenic tours/trips etc. during their stay in the assigned Districts/ACs.
15. The observers should not appear to be partial and exhibit political neutrality
through their conduct and behavior.
16. The Observers are the eyes and ears of the Commission and not the mouthpiece.
17. The observers shall NOT interact with any media persons (except to receive any
inputs or information offered by them), or give any form of press briefings or
press releases regarding their assessment or actions, without the express
authorization from the Commission.
18. The observers must abstain from expressing any views or opinions which may
be directly or indirectly construed as support or preference for, or prejudice
against any particular political party, coalition or candidate even in their private
discourse with their colleagues or the election officials. This also applies to their
interaction through electronic medium like WhatsApp, Twitter, Facebook, or
other social media platforms.
19. Observers must ensure that no part of the report or election related information is
shared with any unauthorized person or agency.
20. The over-arching spirit guiding the observers is cooperation and collaboration
and not inquisition and enquiry.
21. The Observers are not deployed on a fault-finding mission, but to objectively
assess the poll preparedness, identify the critical gaps and guide the DEO/RO to
address them.
22. If any shortcoming or lacunae in the actions or performance of any election

official in the state is not being addressed despite reminding the field machinery,
it should be communicated to the CEO and the Commission, instead of direct
confrontation or over-zealous criticism.
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38. REVIEW POINTS FOR CENTRAL OBSERVERS
1. Polling Station:
• Commission’s instructions for assured minimum facilities at each polling
station in view of COVID-19 situation.
• Voter Assistance Booth for ease of voters.
• All Women Managed Polling Station.
• Special Facilitation for differently abled, visually challenged, women,
elderly and leprosy affected etc.
• Voter Facilitation Posters.
• Awareness posters on COVID-19.
2. Postal Ballot:
• Beneficiaries identified for postal ballot facility as per Commission’s
latest instructions for postal ballot facility in view of COVID-19
situation.
3. Electoral Roll:
• Voter Information Slip (with information like Polling Station, Date, Time
etc. but not the photograph of the voter) having QR code distribution
arrangements & monitoring.
• Voter guide distribution.
4. Model Code of Conduct:
• Mechanism of strict enforcement of MCC- flying squads, excise teams,
border check posts etc.
• Arrangements for “SOPs for last 72 hrs. till counting” and strict
compliance.
5. Vulnerability Mapping:
• Whether list of vulnerable pockets/hamlets have been identified by the
DM/SP and RO and have they visited them.
• Whether proper arrangement has been made for monitoring liquor
production units and liquor outlets. Details of action taken on this front so
far.
6. Quality and Fidelity of the Transportation Plan and Communication Plan and
arrangements for communication-shadow areas.
7. Training and deployment of Micro-observers.
8. Training of polling staff with special focus on electoral process, EVMs & VVPATs.
9. Deployment of Forces:
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• Whether deployment of CPFs and SAPs has been prepared as per the
directions of the Commission.
• Whether vulnerable and critical polling stations have been identified and
proper security measures have been adopted.
• Whether CPF has been used for route-marches/ area domination in the
vulnerable pockets/hamlets. Details of dates/time of such visits by CPF.
• Whether daily action plan of the CPF has been prepared in consultation
with DEO/RO. Comment of effective CPF usage so far and shortcoming
if any.
10. Complaint Redressal Mechanism:

• Whether complaint redressal mechanism based on website and Call
Centers has been constituted.
• Whether the Call Center number has been given wide publicity.
• Whether the district contact center with 1950 toll-free no. has been set up,
sufficient no. of agents have been placed, are able to register all
information, feedback and suggestion sand complaints into National
Grievances services portal NGSP.
• Whether all complaints are disposed of in 24 hours.
11. IT Application:
c-VIGIL:
• Whether the district control room has been set up for handling new c-
VIGIL cases.
• Whether flying squads/static surveillance teams have been registered with
the c-VIGIL investigator and whether the investigation team adapt in
handling c-VIGIL cases and reporting from the mobile app.
• Whether c-VIGIL cases are disposed in a prescribed timeline. Whether
the Observer himself has c-VIGIL Observer app and is monitoring and
reviewing the c-VIGIL cases.
Voter Helpline App:

• Whether the voter helpline application has been popularized electoral
search, submission of form, submission of complaints, candidate affidavit
and results.
Saksham ECI App:

• Whether Saksham ECI app has been popularized amongst PWD voters
and whether the request of marking "as PWD", request for a wheelchair
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is downloadable at the DEO/ RO level and whether the arrangements

have been made.
ENCORE App:
• Whether appropriate ICT helpdesk to digitize candidate nomination in the
suvidha has been done. Whether all the nominations are 100% digitized
on the ENCORE application. Ensure all the returning officers are
scrutinizing all the applications for nominations only at ENCORE and are
correctly marking as accepted, rejected/withdrawn/contesting.
Suvidha Permission App:

• Whether all the permissions are been handled only at suvidha or not.
Whether all the permissions are given on stipulated time
Suvidha Candidate App:

• Whether candidates have been told about the app for following up on the
permission status and nomination status.
12. Arrangements for Poll Day Monitoring.

13. Arrangements at the EVM Strong Room:
• Whether proper arrangements have been made for video recording of the
EVM/VVPAT strong room.
• Whether proper arrangements have been made for temporary stay/shelter
for the representatives of the political parties outside the EVM/VVPAT
strong room.
• Whether gloves and sanitizers were made available to each official
handling EVM/VVPAT
• Whether proper lighting arrangements have been made.
• Whether plans for using the forces for securing the strong rooms where
the EVMs and VVPATs are stored and for securing the counting centers
and for other purposes, as required, have been formulated.
• Arrangement done for sanitization of Strong Room after completion of
poll day.
14. EVM Arrangements:

• Whether mock poll conducted during candidate setting on 5% randomly
selected EVMs/VVPATs.
• Whether all polling officials adequately trained on handling of EVMs &
VVPATs in batch sizes of less than 50? How many batches conducted?
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• Whether arrangements are being made to conduct hands on training and

doubt clearing on EVMs during dispersal of polling parties.
• How many EVMs/VVPATs found non-functional during Candidate
Setting? Are these entered in EMS?
• Whether Commission's instructions regarding fitting of Polling Parties
including Sector Officer's vehicles with GPS tracking for real time
monitoring of movement of reserve EVMs and VVPATs have been
implemented in letter and spirit?
• Arrangements at intermediate strong room, if any, as per ECI
instructions.
• Whether adequate staff has been deployed for monitoring of round the
clock monitoring of EVM control rooms?
15. Polling turnout Arrangement ICT app:
• Whether all accounts of RO/ARO have been set up for entering every 2
hourly report.
• Whether all PRO/RO/ARO about the entry of estimated voter turnout,
end of the poll turnout and the accuracy of entering male, female, and
other data.
16. Counting Day Arrangements:
• Whether proper management for reception of postal ballots has been
arranged.
• Whether proper security arrangement have been made at the strong room
as per Commission’s instructions.
• Whether CCTVs/Videography arrangements have been as per extant
instructions of the Commission.
• Whether proper arrangements have been made for deployment of micro-
observers at each table in counting centers.
• Whether proper arrangements have been made for the Counting Halls as
per the Commission’s instructions.
• Whether proper barricading has been done inside and outside the
Counting Centers.
• Whether the paths for carrying EVMs to the Counting Centers have been
properly sanitized with adequate security measures
• Whether proper arrangements have been made for the verification of
VVPAT paper slips as per Commission’s instruction vide letter no. 51/8/
VVPAT/2017-EMS dated 13.10.2017 and 05.12.2017.
• Whether minimum 8mbps of lease line internet connectivity, backup
lease line of 8 Mbps, computer system, printer, cyber security, online
UPS and minimum 8 hours of power backup generator have been put
52
into place.
• Whether the ROs/AROs are trained in generating round declaration form
RDF form 21C and 21 E from the ENCORE portal.
17. In view of the COVID-19 situation all Social Distancing and other safety norms as
per guidelines issued by MoHFW and by the Commission were followed during each
activity by all.
18. Confirm preparedness of CEO team on-

• MCMC work of pre-certification of Political advertisements; Paid news
(reports thereof and follow up action as specified)
• Response mechanism for curbing fake news/misinformation
• Proactive dissemination of information to steer positive narrative
• Share success stories with local media and media division at ECI
19. Any other important issue.
53
39. OBSERVER MOBILE APP
¾ Observer mobile app is specifically designed for all the Observers i.e. General
Observer, Expenditure Observer, Police Observer, and Awareness Observer, and it
starts from the date of allocation.
¾ Mobile App is available in Android and iOS operating systems and can be
downloaded from Google Play store and Apple store. Observers need to download and
install the required App and login with Observer code and password.
¾ The observer mobile app helps Observers to get the details of their deployment,
Observers receives notification through App, provides facilities for observers to
submit their arrival and other mandatory reports and overall helps the Observer in
managing their profile.
¾ Observers may also get below details from the mobile App -
• Deployment status and Observer ID card
• View deployed flying squad teams for the selected Assembly Constituency
• View the details of the flying squad team details, and clicking on team id will
provide the facility to make a call directly
• All report formats for submission
• Submit report directly from App
• View noticeboard information about the polling and counting
• View the number of live cases with tracking history about the citizen and action
taken by the Flying squad team
• View the field unit report and returning officer report submitted for the case.
• Highlight the cVIGIL case if need action on urgent basis
54
40. IT APPLICATIONS BEING USED IN ELECTION

MANAGEMENT
The Commission has enhanced usage of IT Application, to usher in greater citizen

participation and transparency.
1. cVIGIL Application for filing Model Code of Conduct Violation cases
cVIGIL provides time-stamped evidentiary proof of the Model Code of Conduct /

Expenditure Violation by empowering every citizen to click a photo or video using his
or her smartphone. The application is based on GIS technology and the unique feature
of auto location provides fairly correct information which can be relied upon by flying
squads to navigate to the right spot of incidence and take prompt action. This app
prioritizes the speedy and effective actions by authorities and promised users status
reports within 100 minutes.
a. c-VIGIL Citizen Mobile App: C-Vigil was built to report Model Code of Conduct
violations during elections. This has following features-
x Register Complaints: The app allows every citizen within the election
boundaries to report the Model Code of Conduct / Expenditure Violations by
taking photo/audio/video through their mobile phones by signing into the
application.
x Anonymous User: The app also allows the citizen to complain anonymously,
without revealing their personal details/ identity.
x Geotagging: The app automatically enables a geo-tagging feature when users
switched on their camera in the cVIGIL to report a violation, which helps the
field unit to know the precise location of the incident.
b. Investigator App: c-VIGIL Investigator app has been made for the Field units like
Flying Squads & Static Surveillance Team to investigate the cVIGIL Citizen cases
and conduct Suo-Moto case reporting.
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x Instant Action on incidents: The application forced the Field Unit to reach the
spot of the incidence within 15 mins and only then they could upload their
report.
x Suo Moto: One of the important byproducts of the cVIGIL was the use
of cVIGIL by Field Units themselves to file suo-moto cases.
c. cVIGIL Monitor App: cVIGIL Monitor App provides access to all cases filed in
the jurisdiction to Chief Electoral Officers (CEOs) and ECI Officials from where
they can emphasize and highlight important cases for speedy investigation and
redressal.
x Monitor Live Case/ Status of complaint: This is used for live case monitoring
of complaints directly through mobile devices. Real-time tracking allows
citizens and other officials, to check the progress of complaints.
x Emphasize/ Highlight cases: Officers can highlight/ Emphasize the cases for
prompt resolution and enforce the time-bound pressure on flying squads.
d. cVIGIL Decider App & RO Dashboard: cVIGIL Decider App/ Dashboard

enables the District Electoral Officer (DEO) / Returning Officers (ROs) to decide
upon the cases which are sent by the Investigator.
x View Live cases: Decider can access all MCC Violation complaints and check
real-time progress.
x Action on Cases: Decider/ Returning Officer can take actions such as Drop,
Decide, and Escalate on cVIGIL cases after the report submitted by the Field
Unit.
All above mobile Applications are available on both the Google Play Store and Apple
App Store.
2. Suvidha Portal: This portal provides different facility to candidates/ political parties
for online nomination, Permission as given below-
a) Candidate Online Nomination:
56
To facilitate filling of nominations, the Election Commission has introduced an

online portal for filling the nomination & affidavit. The Candidate can visit
https://suvidha.eci.gov.in/ to create his/her account, fill nomination form, deposit
the security amount, check availability of time slot and appropriately plan his visit
to the Returning Officer.
Once the application is filled through the online portal, the candidate only needs to
take a printout, get it notarized and submit the application along with relevant
documents to the Returning Officer in person.
The Online Nomination Facility is an optional facility to facilitate ease of filing and
correct filing. The regular offline submission as prescribed under the law shall
continue too.
b) Candidate Permissions module: Permission module allows the candidates,

political parties or any representatives of the candidate to apply online for the
permission for meetings, rallies, loudspeakers, temporary offices, and others
through SUVIDHA Portal https://suvidha.eci.gov.in/. The Candidates can also track
their application status through the same portal.
c) Nodal Mobile App: This application is for Nodal officers of various department
like Fire, Revenue, PWD, Police etc. for giving No-Objection from respective
departments. All Nodal Officers are registered as part of the ENCORE and they
receive notifications on the mobile app, as and when a request for permission
arrives. They can accept/reject permissions and upload their status by using the
App. Nodal officers can automatically assign and get push notification as the
permission is applied for. The Nodal App allows officers to take immediate action
i.e. whether Objection or No- Objection is to be granted to the candidate along with
reasons for the same.
d) Candidate Mobile App: Nomination and permission can be filed through a web
application namely Suvidha portal or Returning Officer can digitize the physical
57
applications through ENCORE portal. Once the application is registered in

ENCORE by the, the periodic status updates of Nomination, Permission can be
tracked through Candidate App.
The Application is available on both the Google Play Store and Apple App Store.
e) Candidate Affidavit Portal: The Complete list of Contesting Candidates with their
profile, nomination status and the affidavits will be available for public view
through Candidate Affidavit Portal: https://affidavit.eci.gov.in/
3. Know Your Candidate (KYC) App: ECI has developed Know your Candidate (KYC)
Applications for both Android and iOS platforms for informing about “Criminal
Antecedents” status of candidates. This allows citizens to browse candidates with/
without Criminal Antecedents and empowers the citizens to know the criminal
antecedents of the candidates.
The Know your Candidate (KYC) is available on both the Google Play Store and
Apple App Store.
4. Electronically Transmitted Postal Ballot System (ETPBS) for Service Voter:
Electronically Transmitted Postal Ballot System (ETPBS) will transmit blank Postal
Ballot through Electronic means to the Service Voters. Service voter can then send his
vote through speed post.
5. Saksham ECI App:
PwD app is meant for Person with Disabilities. The PwD elector can make requests for
marking them as PWD, request for new registration, request for migration, request for
correction in EPIC details, request for wheelchair. It utilises the Accessibility features
of mobile phones for voters with blindness and hearing disabilities. The Application is
available on the Google Play Store and Apple App store.
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6. Voter Turnout App:
Voter Turnout App will be used to display real-time estimated provisional voter turnout
details of each Assembly Constituency/ Parliamentary Constituency entered by
Returning officer. The application can also be used by the media to capture live
estimated voter turnout data. All phases of the elections will be displayed through this
app in real-time. The application is available on the Google Play store.
7. ENCORE Counting: The ENCORE counting application https://encore.eci.gov.in/ is

an end-to-end application for returning officers to digitize the votes polled, tabulate the
round-wise data and then take out various statutory reports of counting.
8. Results Website and Results Trends TV:
The timely publication of the round-wise information is vital for establishing a single
source of authentic data. The counting data entered by respective Returning Officers is
available as ‘Trends and Results’ for public view through ’ECI Results website’
http://results.eci.gov.in/
The results are shown with the Infographics and displayed with auto-scroll panels
through large display screens outside the counting hall or any public place.
9. EVM Management System (EMS):
EVM Management System is designed to manage inventory of EVM units. One of the
important modes to ensure a fair and transparent process in EVM management is the
administrative protocol of the randomization of the machines before they are deployed
in the Polling stations. The randomization is done in the presence of Political
Parties/Candidates/ their representatives.
10. Voter Service portal: Through voter service Portal (https://www.voters.eci.gov.in/)
59
(earlier https://nvsp.in & https://voterportal.eci.gov.in), a user can avail and access

various services such as access the electoral list, apply for voter id card, apply online
for corrections in voter’s card, view details of Polling booth, Assembly Constituency
and Parliamentary constituency, and get the contact details of Booth Level officer,
Electoral Registration Officer among other services.
11. Voter Helpline App (VHA):
Citizen can avail and access various services such as apply for voter id card, apply
online for corrections in voter’s card, view details of Polling booth, Assembly
Constituency and Parliamentary constituency, and get the contact details of Booth
Level officer, Electoral Registration Officer among other services. The application is
available on both the Google Play & Apple Store.
12. Observer Portal: This system is meant for the management of all types of observer’s
i.e. general observer, police observer and expenditure observer. All the latest
instructions of the Commission are available on the portal for the observers. It allows
observers to verify and correct their personal information including important bank
details for quick remittance and Local Mobile number for getting important SMS sent
by the commission. They can check their deployment details online and can fill/upload
Reports in their portal. They can also check their notice board for any
information/instruction sent by the Commission. Main Features of Observer Portal are
as:
x View Filled Reports, Uploaded and Poll Day Related Reports by Observers
x Send messages/SMS to Observers
x Review Filled Reports
x View deployment status
x View State-wise finalized list of observers
x Candidate Details - Form 7A is available to observers
x Download and print Observer ID card
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Observer portal is further being revamped and redeveloped.
13. Observer mobile App: Observer App allows the General observers, Police Observers
and Expenditure observers to file their statutory report like their arrival, departure etc.
Upon deployment to a constituency, the Observer gets the complete deployment
schedule in their mobile. Similarly, all notices, constituency details are available on the
observer app. One of the important features of the app is the visibility of the c-
VIGIL cases directly on the observer app. The Observer can view all the cases and give
his observatory remarks. This helps the Returning Officer in deciding the
case. Similarly, all the flying squad locations are visible on the mobile app. This an
observer can find them on the map, click to see the work being performed, and finally
call them directly without the need of separately approaching them.
14. BLO App: BLO App (erstwhile known as GARUDA App) is a dedicated Mobile App
for BLOs for performing all their tasks digitally. Following are the main features of
BLO App:
a) Checklist/Field Verification of Forms

b) Collection of AMF (Assured Minimum Facility) /EMF (Extended Minimum
Facility)
c) Capturing of GIS co-ordinates of Polling Stations. It will help electors in
searching their Polling Stations on Google Map.
d) Update of Photos of Polling Stations
e) Form Submission on behalf of Electors
f) House to House Verification
15. ERONET: ERO-Net application is available pan India, to all citizens of India for
enrollment/ corrections/migration from Electoral Roll. The application on the backend
is available for the Election commission of India, all Chief Electoral Officers, District
Election Officers, Electoral Roll Officers and Booth Level Officers
61
x All 26 States/ UTs are sharing common infrastructure at National Level.

x UNPER (Unified National Photo Electoral Roll) is a common database for all States
and UTs with data of 95 crore electors.
ERONET standardized forms processing, standard database schema, and a standard template
for eroll printing. It automates the process of electoral roll management starting from elector
registration, field verification of electors, decision support system for Electoral registration
officers and for providing extensive integrated value-added services.
Citizens can fill up various online forms on Voters’ Service Portal, https://voter.eci.gov.in or
through Voter Helpline mobile application. The form is processed thereafter in ERONET.
The applicant also gets periodical alerts and notifications on each activity performed at
ERONET. Main Features ERONET system are as below:
a) Online Form Processing: The applicant submits the form online at nvsp.in and on
completion of the same gets the SMS/ email alert. Thereafter ERO/ AERO check the
application for the process further.
b) Maintenance of Health of Electoral Roll: Among the major laws governing elections
is the Representation of the People Act, 1950, which mainly deals with the preparation
and revision of the electoral rolls. Publishing of electoral rolls is a key process that
happens before the elections and is vital for the conduct of elections in India.
c) Family Information: The entry in E-Roll is linked to family information. The polling
booth is allocated keeping in view that the whole family can vote at the same location.
ERO can view your family details before assigning parts and sections, thus deciding
your voting booth.
d) EPIC Portability: Migration from one constituency to another while retaining the
same EPIC number: ERO-Net facilitates easy migration from one constituency to
another by facilitating seamless communication between the EROs of two
constituencies. De-duplication is also taken care of while including entries in the E-
Roll.
62
e) Offline Form Processing: The data entry operator fills forms data in ERO-Net. AERO
allocates jobs for Data Entry Operator and generates QR Code data file.
ERONET was further enhanced with alert and monitoring facilities were added at the
level of ERO, DEO, CEO & ECI level, along with Suo moto action for EROs and
processing for removal of logical errors and DSE
x Digitization of Forms Received Offline Online system of Form Processing

x Objective field verification
x E-ROLL management with Unique EPIC
x Number Generation Synchronization of E-Roll at National
x Level Generation of Reports, Notifications
x Alerts Monitoring Dashboards
x Printing of electoral roll from ERONET for all states
x Printing of Photo Voter Slip
x Printing of EPIC Cards
16. National Grievances Services Portal:
A comprehensive National Grievance Service Portal (NGSP) has been developed by the
Election Commission. This system has been developed in such a manner that in
addition to providing redress to the complaints of the Citizens, Electors, Political
parties, Candidates, Media and Election officials at National, State and District level, it
also serves as a common interface for providing services through a common interface.
The system is seamless and Integrated Help Desk-cum-Call Centre-cum- Single

Window system. This portal is available for citizens of India where people can directly
lodge IFSC (Information, Feedback, suggestion and Complaints) into this. IFSC can be
captured via a different medium like Online mode (Portal, Contact Centre) and offline
mode (FAX, Letter, and Personal Meeting).
The application provides for a single interface for handling complaints by the Election
officials. All Electoral Officers, District Election Officers, CEO and ECI Officials are
63
part of the system. Thus, issues are directly assigned to the respective user upon
registration.
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ANNEXURE-I
41. CHECKLIST FOR DEO/RO
INFORMATION/PARTICULARS TO BE PREPARED BY DEO AND

RO TO BE PROVIDED TO THE OBSERVER ON ARRIVAL
a) Constituency
i. No. & Name of the Constituency
ii. No. of vulnerable villages/hamlets
Map of the district and map of the constituency
iii.
highlighting vulnerable villages/hamlets
b) DEO
i. Name
ii. Batch of service
iii. Date of posting
c) SP/Commissioner for a city

(Please indicate the names as per jurisdiction. If the constituency involves more than two
districts - both the officers should be mentioned)
i. Name
ii. Batch of service
iii. Date of posting
d) RO and ARO
i. Name
ii. Designation
iii. Date of joining the designated cadre
iv. Experience in conduct of elections
v. Date of posting
e) Population
i. Male
ii. Female
iii. Total
f) Electorate Details
Number of Electors
ELECTORS EPIC Photos in
Male Female Others Service Proxy Overseas Total Holders Rolls
65
g) Electoral roll details
i. Date of publication of revised electoral roll (revised w.r.t 01-01-----)

Date Month Year
ii. Whether copies of electoral roll have been supplied to the recognized
political parties
Yes No If yes, date thereof If no, reason thereof
iii. List of polling station wise changes made (a separate sheet to be attached)
iv. Addition and deletion since the last publication date

Polling Stations Male Electors Female Electors Total
Original
Additions
Deletions
Change
Final Number
v. Date of printing of supplementary electoral roll (on a/c of continuous

updation)
Date Month Year
vi. Preparation of authenticated copies completed and supplied to political

parties on-
Date Month Year
66
h) Polling Stations
a. No. of polling stations
i. Whether the list has been approved by the ECI YES NO
Whether all the polling stations have been visited by

ii. YES NO
the RO and ARO
iii. Polling Station Details
Total Single More

Three Four
No. of polling Two PS Five PS Six PS than
PS PS
Polling station location location location Six PS
location location
Stations locations location
iv. Electors details of Polling Stations in the Constituency
Total No. of Electors attached to the Polling Station

No. of
Polling Less than 300- 801- 1001- 1201-
Stations More than 1500
300 800 1000 1200 1500
i) Identification of critical villages, urban clusters and polling stations
i. Vulnerability mapping done or note
ii. Critical polling stations identified or not (Detailed list with reasons)
67
j) EVMs/VVPATs
No. of No. of
No. of Total
Name of EVMs/VVPATs EVMs/VVPATs Available
EVMs/VVPATs number
Constituency required for polling marked for Number
in reserve required
booths training
k) Have EVMs been allocated AC wise by the DEO after 1 st

YES NO
randomization
Date and location planned for scaling and randomization of EVMs by RO-
i. Date :
ii. Location :
l) Identification of centers for dispatch, receiving and counting and any special
arrangements
Name of Water &
Activity Facilities Space Lighting Layout Plan
Location Toilet
Not
Adeq Inad Adeq Inad Adeq Inad Adeq Inad Done
Done
m) Availability of staff
Polling Personnel
Total no. of polling No. of State No. of State No. of Central No. of Central
personnel required Govt. officials PSU officials Govt. Official PSUs officials
for the Constituency available available available available
Police Personnel
i. The total number of police personnel by designation
SP Dy SP PIs PSIs Constables
ii. Requirement of CPF

Operation of police control room (police and RO, DEO) and the
iii.
contact numbers
n) Preventive actions taken
68
i. Arms deposited
ii. Security bonds
iii. Preventive detentions
iv. NSA
v. Externment
vi. Prohibition cases, if applicable
vii. List of persons provided with security cover
viii. Copy of law & order report 1 and 2 sent to State HQ should be endorsed
to Observer daily.
o) Arrangements for implementation of model code of conduct

i. Arrangements for preventions and removal of defacement of property
a. Territorial jurisdiction wise enforcement YES NO
squads formed
b. District media cell constituted or not YES NO
ii. Instructions to all the officers, candidate, political DONE NOT

parties actions envisaged for the lapses DONE
iii. Nodal officer for communicating about the venues, and rallies of political
party/candidates meetings
a. Name and Contact details
iv. Arrangements for expenditure observation at the constituency level.
a. Designated officers at constituency level YES NO
appointed
v. Preparation of list of prevailing market rates for regular YES NO
campaign material required done
p) Arrangements for procurement of election material and printing of forms etc.
69
No. of paper
seals
Whether
No. of No. of obtained Whether
sufficient No. Whether
indelible green (Pink Paper secret seals
of handbook Statutory/Non-
ink paper Seals, Green of
for presiding statutory form
phials seal Paper Seals, commission
Officers etc. etc available
obtained obtained Address received
available
tags, Special
tags etc.)
q) Randomization of polling personnel

i. Whether data base of polling personnel prepared? YES NO
ii. Date of formation of polling parties
Date Month Year
r) Training of Polling Personnel

Whether training schedule for the polling
i. YES NO
personnel prepared?
Whether schedule for EVM/VVPAT training for

ii. YES NO
the polling personnel prepared?
Whether schedule for training of the sector

iii. YES NO
Magistrate/ officers prepared?
s) Dispatch arrangements
i. Whether from HQ or any other location,
ii. Name of the location,
iii. Any need for early dispatch to specific polling stations,
iv. If yes, reasons.
t) Receiving arrangements
70
i. Location
ii. No. of tables for receiving
iii. Plan for special counters
u) Strong room location and security arrangements

i. Location
ii. Security arrangements
v) Counting arrangement
i. Appointment of additional AROs, if any, YES NO
Location of counting – whether approval from

ii. YES NO
the ECI
NOT
iii. Testing of Genesis and operational feasibility DONE
DONE
Arrangements for receiving and counting of

iv. YES NO
Postal Ballot Papers
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ANNEXURE-II
42. ARRIVAL / DEPARTURE REPORT OF OBSERVERS

(To be Submitted Immediately after Arrival / Departure)
Date of Reporting
Name of Observer and code
Email Id
Number and Name of Constituency
Name of the District and State
Mobile No.
Fax No.
Constituency Mobile No.
Constituency Telephone No.
Constituency Fax No.
Date of arrival / Departure of Observer

1. (please strike out the portion which is not
applicable)
Was there any break taken by the
2.
Observer from the duty
3. If Yes, give details.
4. Was there late reporting to duty
5. If Yes, by how much time?
PLACE:
DATE: SIGNATURE OF OBSERVER
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ANNEXURE-III
43. GENERAL OBSERVER REPORTS
GENERAL OBSERVER REPORT – 1

(To be submitted Immediately after the withdrawal of candidature)
Observer’s Name
Observer Code
Constituency
District
State
Local address with telephone/mobile no. of the Observer, after
arrival in the consistency.
Whether Observer’s name, Contact No. and the meeting hours
with venue were advertised? (Attach a copy of Advertisement)
Sl. No. Subject Observer’s Report

Scrutiny of nominations
1. Whether Scrutiny had been done by the R.O.
himself, if no. whether ARO has been authorized by
the R.O. in writing. Provide details
2. Whether the Commission’s instruction regarding
number of persons allowed to be present during
nomination process was observed/complied (this
may be confirmed by viewing the video coverage of
nomination process.)
3. Whether Scrutiny of nomination papers was done
properly in accordance with Section 33, 34 and 36
of the R.P. Act 1951 read with rule 4 of the C.E.
Rules 1961.
4. Names of Candidates whose nominations were
rejected with brief but clear reasons. (Attach copy of
summary orders passed by the R.O. in each case)
5. Whether a complete data base of the poll personnel
– State and Central Government employees –
is available for deployment?
6. Whether sufficient number of Polling/Counting/
Poll related staff have been kept reserve by
DEO/RO, to replace them in cases of exigencies
like any polling personnel displays COVID-19
73
symptoms?
7. Whether Affidavits have been displayed at
prominent places as per ECI’s instructions?
8. Whether Affidavits have been uploaded on the
website as per ECI’s instructions?
9. Whether Facilitation Centre have been set up by
the RO at the Training Venue as well as at RO’s
office, as per ECI’s instructions?
Polling Personnel, Logistics and Training
10. Whether all PPTs, training materials, relevant
documents, topic wise video clips, question papers
for self-assessment have been uploaded in
app/portal so that any election official can access
it as per requirement.
11. Whether proper arrangements have been made for
organizing the training for election officials through
online mode?
12. Whether a detailed COVID-19 related
comprehensive multi-level plan has been prepared
at the Assembly Constituency and District
Level, taking local conditions into account in
consultation with the concerned Nodal Health
Officers.
13. Whether election related officers who are in their
home district or those who have completed 3 years
of service in the Constituency had been identified?
14. Whether training centers, counting centers, strong
rooms finalized?
15. Whether certain orders like suspension of arms
license, order pertaining to defacement, use of loud
speakers, declaring poll day as local holiday,
appointment of sectoral magistrates, vesting
powers under CrPC for executive magistrates,
requisition orders for polling stations, counting
venters, requisition order for vehicles, etc. have
been issued
16. Whether the required election materials had
been procured?
17. Whether Election Material Kits have been
prepared in a spacious and sufficiently large hall
following all safety, sanitation and social
distancing measures?
18. Whether the postal ballot requirement has been
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worked out for persons under preventive detention,

drivers/ cleaners of requisitioned vehicles, police
personnel on election duty, Electors who are
marked as Persons with Disabilities (PwD),
electors above the age of 80 years, Electors
employed in notified Essential services, Elector
who are COVID- 19
positive/suspect and in quarantine
(home/Institutional) and service electors.
19. Whether arrangements for printing of ballot papers
and security thereof have been made as per ECI
instructions?
20. Whether arrangements for keeping accurate
account of postal ballots printed, distributed, extra
deposited have been made?
21. Whether the route maps for every polling station,
sector maps, route chart, and transport plans for
Observers, poll personnel, Micro observers etc.
made?
22. Whether the vehicle requirement for transport plan
assessed?
SECURITY MEASURES/MCC RELATED/EVM
23. Whether security force deployment plans have been
finalized for the districts and all assembly
constituencies?
24. Whether detailed planning for CPF patrolling and
route marches in sensitive areas (with dates and
routes) and other Confidence Building Measures
have been done?
25. Whether security arrangement has been prepared for
polling personal moving to remote/Sensitive polling
station.
26. Whether Vulnerability mapping has been done
effectively.
27. Whether important aspects of Model Code of
Conduct were briefed to the political
parties/Candidates. (Describe the main issues).
28. What was the time, date & venue of the meeting with
the political parties and contesting candidates? The
names of the candidates or their representatives
along with their party affiliation who attended.
29. Whether second randomization and preparation of
EVMs/VVPATs have been arranged in large halls?
75
30. Whether prior intimation regarding date and time

of 2nd randomization of EVM/VVPAT followed by
EVM/VVPAT preparation has been given to
candidates with proper acknowledgement receipt.
31. Whether VVPAT slips generated during Training
& Awareness have been destroyed?
32. Whether digital outreach for awareness campaign
for EVMs & VVPATs has been carried out?
33. Whether the concept of worry list was
explained to the Candidates, and they advised to
submit their worry list.
34. Whether candidates were advised to properly train
their polling and counting agents (Describe the main
aspects).
35. Whether adequate publicity on MCC is done.
36. Whether Control room, media center and complaint
monitoring mechanism has been set up properly.
37. Whether the sector officers, flying squads, check
posts, video viewing teams, complaint monitoring
system, control room etc. in force?
38. What arrangements made to review the live
feed from CCTVs/Webcasting at Nakas etc. and
SOP for action on any illegal activity noticed in live
feed.
39. Whether Videography teams have been
appointed and are available at officer’s disposal.
40. Whether Single window for granting
permissions/passes at RO level.
41. Whether Mechanism to control defacement of
property has been setup.
42. Whether Mechanism has been setup to collect and
compile information about search, seizures of cash,
liquor, and filing of cases for MCC violations and
monitoring the same.
REPORT ON ARRANGEMENT AT STRONG ROOM
Particulars Status If No, remarks
thereon
43. Whether strong room is spacious to accommodate Yes/No
all polled EVMs and VVPATs?
44. Whether strong room has single entry door and Yes/No
no unsealed window/ventilators?
45. Whether main switch of electric connections Yes/No
installed outside of the strong room to avoid
76
electric short circuit?

46. Whether strong Room has double lock system? Yes/No
47. Whether there is arrangement for uninterrupted Yes/No
power supply at the strong room locations?
48. Whether keys of the locks of the strong room are Yes/No
kept as per ECI instructions No. 51/8/6/2021-EMS,
dated 17.08.2021?
49. Whether arrangement for installation of CCTV Yes/No
cameras at Strong room has been made?
50. Whether arrangement has been made for providing Yes/No
round the clock police security at strong room as
per the norms prescribed by Commission vide
letter no. 51/8/6/2021-EMS, dated 17.08.2021?
51. Whether adequate arrangement for fire Yes/No
extinguisher has been made?
52. Whether alternate arrangement for lighting at Yes/No
strong room has been made?
53. Whether round the clock 02tier security Yes/No
arrangements have been planned at the strong room
having polled EVMs and VVPATs?
54. Whether arrangement for providing log book to Yes/No
CPF has been made to maintain details of visitors?
55. Whether arrangement for providing video camera Yes/No
to CPF has been made to record the visit of any
permitted officials?
56. Whether there is provision for candidates’ Yes/No
representatives to stay outside the inner perimeter
at a location which enables them to view entry
point of the strong room?
57. If no direct view, whether CCTV arrangements Yes/No
have been planned to enable them to watch the
main gate of the strong room?
58. Whether round the clock control room has been Yes/No
planned at the strong center?
59. Whether candidates have been intimated in writing Yes/No
to depute their representatives to keep watch on
the security arrangements of the strong room after
the poll?
60. Whether you are satisfied with arrangements of Yes/No
strong room?
61. Any other remarks
77
(Signature of the General Observer)

Name of General Observer:
General Observer Code:
No. & Name of AC Allocated:
78

(To be submitted on P-2 days)
Observer’s Name
Observer Code
Constituency
District
State

ELECTORAL ROLL/ EVM / VVPAT RELATED
Whether a copy of the electoral roll handed over to
Candidates of recognized Political parties.
1. Whether a copy of written receipts obtained from
each of them.
Report the exceptions.
Whether list of EVMs/VVPATs used in the
assembly constituency including the training
2.
EVMs/VVPATs and reserved EVMs/VVPATs for
replacement has been given to candidates.
Whether mock poll of 1000 votes in 5% randomly
selected EVMs as well as VVPATs was done by
3.
the R.O. in presence of candidates/their
representatives.
Whether candidates were allowed to take help from
4. the engineers/master trainers in order to eliminate
doubt about the malfunctioning of EVMs/VVPATs.
Whether all stages of Randomization of
5. EVM/VVPAT have been fully covered with
videography and record kept properly.
What is the arrangement to escort the polled EVM
6.
back?
What is transportation and receipt arrangement
7.
for polled EVM/VVPAT?
What is strong room guarding plan?
Is the general atmosphere conducive for holding of
8.
free and fair poll?
If no, state detailed reasons.
79
Whether storage and security of intermediate strong

9. room (P-2/3, C+1) arrangements have been made as
per ECI instructions.
Whether arrangements for storage and security of
strong rooms for storing polled, reserve, and non-
10.
functional EVMs/VVPATs after poll have been
made as per ECI instructions?
Whether proper log-book of Training and Awareness
11.
EVMs has been maintained?
Are you familiar with EMS 2.0 and its important
processes like, second randomization of
12.
EVMs/VVPATs, replacement of non-functional
units during Commissioning etc.?
Whether VVPAT slips generated during
13.
Commissioning have been destroyed?
Whether prescribed instructions/protocols on use of
Symbol Loading Unit (SLU) and storage of SLU
14.
after commissioning of EVMs and VVPATs have
been followed by DEO concerned?
Whether Count of 17 types of errors before
15.
final publication has been carried out and rectified.
Whether count of duplicates names in the electoral
16.
roll has been identified and deleted.
Whether exercise has been done to delete
17.
dead/shifted and absentee.
POLLING PERSONNEL
Whether arrangement has been made for creating a
18.
database for deployment of polling/police personnel?
How and when 2nd randomization of polling
19.
personnel accomplished? Describe. Any drawbacks?
Whether Commission’s instruction permitting 3rd
randomization of polling staff on P-2 day (in place of
20. P-1 day) to ensure timely services of results/orders of
the randomization and dispatch team has been
implemented?
Similarly, for micro-observers what are the training
21.
and deployment arrangements?
22. Whether all vacancies of EROs/AEROs are filled up.
POSTAL BALLOT AND HOME VOTING
Whether arrangements have been made for home
23. voting by senior citizen above 85 years and PwD
voters?
24. Whether Postal Voting Centre has been set up for
80
electors belonging to Essential Services?

POLLING STATIONS – POLL DAY PREPARATIONS
Poll Day Arrangements – Control room, Voter
assistance booths, regular reporting to ECI about
25. incidents and violence, for monitoring Law and
Order, receipt arrangements, strong rooms, Training
EROs about 17 A scrutiny formats etc.
Whether arrangements for regular media briefings
26.
have been made?
Whether all IT Applications are working properly
27.
and training imparted.
Whether ECI approval has been obtained on the list of
28. Polling (including the auxiliary) stations. Are there
any changes in the already approved list?
Whether the list of polling stations has been
prepared, published and provided to political parties,
29. RO, ARO, Observers, Police authorities etc. And
whether three copies of the same is provided to the
contesting candidates.
Whether assured minimum facilities like electricity,
drinking water, shade, toilet etc. and ramps the
30. physically challenged voters and a standard
voting compartment has been arranged at all polling
stations. Details.
Whether Commission’s detailed instructions for
assured minimum facilities in view of COVID-19
31.
situation have been implemented in letter and spirit at
polling stations?
Whether necessary arrangements for thermal
Checking of voters either by polling staff or Para
32. Medical staff of ASHA workers at entry point of
polling station location/Polling station have been
done?
Whether one shaded waiting areas with chairs, dari
etc. has been provided, for male and female
33.
separately, within the polling station premises for the
voters?
Whether help desks have been set up at all
34. polling stations for distribution of token to the
voters on first come first serve basis?
Whether the RO/ARO conducted inspections of all
35. polling stations and a report prepared in the prescribed
format
81
(format of DEO Checklist– available in Vol. 1 of

Observer Handbook).
36. Whether any model polling stations planned?
Whether proper arrangements have been made
37. to facilitate the differently abled electors at
polling stations?
Whether Live web casting/CCTV arrangements made
38.
to monitor election process at distant polling stations?
Whether references/photographs/posters of
39. Ministers/MLAs depicting the achievements of the
Government in power removed in polling stations.
VULNERABILITY MAPPING
Whether vulnerability mapping have been done
40. and critical polling stations and clusters have been
identified?
Whether comprehensive District Election
41. Management Plan has been prepared as per the
Commission’s instructions. Comment on quality.
Details of measures taken for confidence building
42.
in vulnerability/hamlets.
Are there any vulnerable polling stations?
Any PS where violence, booth capturing,
43.
intimidations, political rivalry etc. incidents reported
in past elections?
Whether list of vulnerable pockets/hamlets have
been identified by the DM/SP and RO.
(i) PSs of high % of Non-EPIC voters.
(ii) PSs of high % of missing voters without family
links.
(iii) PSs having vulnerable pockets – SO’s, Police’s
and candidate’s “worry list”.
(iv) PSs where percentage of votes polled was more
44.
than 90% and where more than 75% of votes
have been polled in favor of one candidate in
last election.
(v) Re-poll reported due to malpractices, and where
electoral violence has taken place during last
election.
(vi) Anti-social elements and their areas of
influence.
SECURITY MEASURES
Whether adequate preventive steps have been taken
45.
for maintenance of Law and Order?
82
What is security arrangement for polling stations

46. and poll personnel
(briefly describe the force deployment parameter)?
How many polling stations with static outside force,
47. how many with video coverage and how many through
micro-observers?
Whether sector officer has prepared Zonal
Magistrate Plan with the sketch map for Polling
48. Stations, List of telephone No. of Polling Stations
and election related officers, police stations, list of
responsible persons, list of Anti-Social elements etc.
49. What is the date of arrival of the CPF.
Whether daily action plan of the CPF was prepared in
consultation with DEO/RO.
50.
Comment on effective CPF usage so far and
shortcoming if any.
PAID NEWS CASES
Whether strict monitoring of all ‘Paid News’ cases
51. was undertaken and cases referred to DEO/RO/Media
Certification & Monitoring Committee (MCMC).
52. Any Other Comment:

83

(To be submitted immediately after completion of Poll)
Observer’s Name
Observer Code
Constituency
District
State

1. Total number of Polling Station.
Whether mock poll done and certificate issued in
all Polling Stations.
2.
If no, indicate the specific number of Polling
Station.
Number of Polling Stations where there was only
3. one election agent/polling agent was present
(indicate the specific Polling Stations).
4. No. of polling stations with video cameras.
5. No of polling stations with micro-observers.
Number of EVMs/VVPATs replaced after the start
6.
of poll (indicate the specific polling Stations).
No. and name of polling stations where complaints
of violation of polls were received during the course
7.
of poll.
Describe the nature of complaints and action taken.
Number of Polling Stations where poll was
8.
interrupted for more than two hours or start of poll
84
delayed by two hours or more in starting (indicate

the specific Polling stations)
Number of Polling Station, where the interrupted
9. poll could not continue (indicate the specific polling
stations)
No. of polling station where there is, in the
10. opinion of observer, a need for re-poll (based on
point no. 7, 8 & 9 above).
Whether strong room was sanitized after
completion of poll day and whether social
11.
distancing and other safety norms were followed for
each activity?
How many relivers were allowed by the
12. Presiding officer(s) in place of polling agents
having temperature more than set limit?
How many token/certificates were issued to
13. electors having temperature more than the set norm
by MoHFW?
85

(To be submitted immediately after the Scrutiny of 17 A (Register of
Voters) and other documents on the day after the poll)
Observer’s Name
Observer Code
Constituency
District
State
Local address with telephone/mobile no. of the Observer,
after arrival in the consistency.
Whether Observer’s name, Contact No. and the meeting
hours with venue were advertised? (Attach a copy of
Advertisement)

Whether proper intimation was given in
1. advance, in writing (under proper
acknowledgment).
Whether Scrutiny of Form 17 A (Register of
Voters) and other documents such as Form 17 C,
Presiding Officer’s diary, Micro observer’s
reports, Sector Officer’s visit Sheets (in the
2.
presence of candidates / election agents or their
authorized representatives) done.
Who were present?
For how many polling stations?
Whether proper log-books has been maintained
for recording the time and purpose of opening
3.
and closing storage room where election records
are kept.
Whether the room was opened in the presence of
4. observer and candidates/their election
agents/representatives.
Whether after the scrutiny of Form 17A, 17C,
5. marked copies of electoral rolls etc., have been
resealed by the Retuning Officer.
Whether the election agents/representatives
6. present have put their seal or signature thereon –
who/which of the candidates?
Whether social distancing norms were followed
7.
by all election agents/representatives?
86
Whether thermal Scanning of all personnel

8.
entering the premises was done?
Whether proper arrangements were made for
9.
providing sanitizer, soap and water?
Whether after scrutiny of Form 17A, 17C and
other documents and materials the R.O. and
Observer makes any recommendations to the
10.
Commission for re-poll.
If yes describe the reasons for each recommended
polling station separately.
87
GENERAL/COUNTING OBSERVER REPORT – 5

(To be submitted immediately after the Counting of Votes)
Observer’s Name
Observer Code
Constituency
District
State
Local address with telephone/mobile no. of the Observer,
after arrival in the consistency.
Whether Observer’s name, Contact No. and the meeting
hours with venue were advertised?
(Attach a copy of Advertisement)

Whether arrangements for counting have been
done as per the instruction of the Commission’s
1. letters No. 464/ Counting Arrangements/2023-
EPS dated 18.07.2023?
If No, what are the discrepancies?
Whether randomization of counting staff was
2. done as per the instruction of the Commission in
the morning?
Whether political parties were advised to
3.
properly train their counting agents.
Whether the seating arrangements of the
counting agents were done as per the
4.
Commission’s recent instructions for the conduct
of general/Bye elections amid COVID-19?
Whether pairing of counting supervisor and
5. counting assistant was done as per the instruction
of the Commission?
6. How many tables were arranged?
7. How many rounds were planned?
How many Micro-Observer were deployed for
8.
each table?
9. How many postal ballot papers were counted?
10. How many ETPBS were received?
88
11. How many ETPBS were valid and counted.

Whether after each round or counting, random
12. checking of 2(two) EVMs was done by the
observer?
Whether the counting agents of the candidates
13.
were present at the time of counting?
Whether the signature of the counting agents
14.
taken in part – II of form 17 C?
Whether the total votes shown in part-II of form
15.
17 C tally with the votes counted in EVM?
Whether continuous Videography of counting was
16.
done?
Whether the EVM no. was tallied with the EVM
17.
list supplied to the polling stations?
Whether Green paper seal no for each counted
18.
EVM checked and verified?
Whether the round wise result was
immediately put on the blackboard/display in
19.
counting hall at the close of each round and before
the beginning of next round?
Whether there was any demand for re-totaling
20.
with what result? Describe.
Whether any significant incident occurred
21.
during counting of votes? If yes, give details.
Whether there was any case of counting of
22. VVPAT slips under Rule 56D of Conduct of
Elections Rules, 1961.
Name and number of Polling Stations where
23. VVPAT slip were counted due to non-display of
result from the Control Unit(s)
Whether the number of VVPAT slips matched
24. with the number of votes cast in Control Unit
during mandatory verification of VVPAT slips
Whether candidates/counting agents were present
25. at the time of declaration of result following
social distancing norms?
26. Time when counting started and ended. When
89
was the result announced?

If there was any time lag, please describe the
reasons.
Whether the counting centers were disinfected
27.
before, during and after the counting?
Is the observer satisfied about the counting &
28. declarations of results? (Observer should enclose
round wise tabulation sheets with post copy)
Whether contesting candidates are aware about
checking and verification facility of burnt
29.
memory/microcontroller of EVM (BU, CU and
VVPAT) post announcement of results?
Whether DEO concerned has provided copy of the
Administrative Standard Operating Procedure (A-
SoP) for checking and verification of burnt
30.
memory/microcontroller of EVM (BU, CU and
VVPAT) post announcement of results to the
contesting candidates?
31. Remarks if any.
90
ANNEXURE-IV
44. POLICE OBSERVER REPORTS
POLICE OBSERVER REPORT – 1

(To be submitted on 2nd day of reaching the allocated district)
Observer’s Name
Observer Code
Constituency
District
State

1. Date & Time of Arrival at allocated District
2. Particulars of Stay in the District with Telephone and
Fax number
3. Camp Office Address with Telephone and Fax
number
4. Mobile Phone Number
5. Have you gone through the booklets/CDs given in the
Observer Kit?
6. Whether you had a meeting with -
a) District Magistrate (Collector) Date of
b) Superintendent of Police meeting &
c) General Observers of the District Brief of the
d) Expenditure Observers of the District discussion
held
7. Any significant information regarding the pattern of law- Remarks:
and-order situation in the district
8. Comments on Seizure Weapons
of unlicensed Arms/ Cartridges
Weapons/ Cartridges/ Explosives
Explosives Itemized
9. Comments on illicit Number of details of the
arms manufacturing Raids Seizure
Centers raided and
seizures made and
cancelled
10. No. of persons bound Number
down u/s 107 / 116 Cr.
P.C. etc. & other
preventive sections
91
11. Comments on -
a) Incidents of violence Number
related to poll
campaign, political
rivalry etc.
b) Total Killed (Since Number
date of announcement
of Election schedule)
c) Total injured (Since Number
date of announcement
of Election schedule)
d) Damage to Property Number
(in Lacs Since date of
announcement of
Election schedule)
12. Comments on any Liquor
Liquor/ Cash seized (in Ltrs.)
(Since date of Cash
announcement of (in Rs.)
Election schedule)
13. Status of Execution of Number of Execution
NBW
14. Comments and level of satisfaction regarding-
a) Deployment & Remarks
performance of flying
squads
b) Night Patrols Remarks
c) Area Domination by Remarks with dates and
CPF/State Police places of such activities
d) Training of Police Remarks
Personnel at all levels
e) Working of check- Remarks
posts
15. Any other specific Remarks
activity or
finding, which you
may like to bring to
the notice of the
Commission
16. Any major incident Remarks
which may have
impact on forth
coming polls.
17. Any information Remarks
regarding intimidation
92
of voters
18. Level of satisfaction Remarks
regarding whether
sufficient action taken
to stop such
intimidation
REPORT ON ARRANGEMENT AT STRONG ROOM
Particulars Status If No, remarks
thereon
19. Whether strong room is spacious to accommodate all Yes/No
polled EVMs and VVPATs?
20. Whether strong room has single entry door and no Yes/No
unsealed window/ventilators?
21. Whether main switch of electric connections installed Yes/No
outside of the strong room to avoid electric short
circuit?
22. Whether strong Room has double lock system? Yes/No
23. Whether there is arrangement for uninterrupted power Yes/No
supply at the strong room locations?
24. Whether keys of the locks of the strong room are kept Yes/No
as per ECI instructions No. 51/8/6/2021-EMS, dated
17.08.2021?
25. Whether arrangement for installation of CCTV Yes/No
cameras at Strong room has been made?
26. Whether arrangement has been made for providing Yes/No
round the clock police security at strong room as per the
norms prescribed by Commission vide letter no.
51/8/6/2021-EMS, dated 17.08.2021?
27. Whether adequate arrangement for fire extinguisher has Yes/No
been made?
28. Whether alternate arrangement for lighting at strong Yes/No
room has been made?
29. Whether round the clock 02tier security arrangements Yes/No
have been planned at the strong room having polled
EVMs and VVPATs?
30. Whether arrangement for providing log book to CPF has Yes/No
been made to maintain details of visitors?
31. Whether arrangement for providing video camera to Yes/No
CPF has been made to record the visit of any permitted
officials?
32. Whether there is provision for candidates Yes/No
representatives to stay outside the inner perimeter at a
location which enables them to view entry point of the
strong room?
93
33. If no direct view, whether CCTV arrangements have Yes/No

been planned to enable them to watch the main gate of
the strong room?
34. Whether round the clock control room has been planned Yes/No
at the strong centre?
35. Whether candidates have been intimated in writing to Yes/No
depute their representatives to keep watch on
the security arrangements of the strong room after the
poll?
36. Whether you are satisfied with arrangements of strong Yes/No
room?
37. Any other remarks
(Signature of the Police Observer)

Name of Police Observer:
Police Observer Code:
94

(To be submitted on the 5th day of reaching the allocated district)
Observer’s Name
Observer Code
Constituency
District
State

1. Training of all Police Personnel on pre-poll and Comments
poll duties conducted. Please furnish your
comments thereon.
2. Whether check-posts have been set up and shift Comments
duty is in place thereof to see whether illegal
rms/Ammunitions, liquor etc. are not moving into
the district.
3. Whether flying squads have been formed. Please Comments
furnish your comments thereon.
4. Whether Night Patrols have been mobilized in the Comments
district. Please furnish your comments thereon
5. Whether area domination through route plan is Comments
sufficient and each route plan is being covered or
not. Please furnish your comments.
6. Whether route maps have been meticulously
prepared indicating major intersections?
7. Whether sufficient check posts operationalized
with proper arrangements of manual and digital
monitoring?
8. Whether multi-disciplinary/ departmental
checking squads have been operationalized?
9. Whether Security forces have been briefed on:
95
a) pre-poll duties (Area domination)

b) security/sensitivity aspects of the area of their
deployment.
c) Comments on (a) & (b) above
10. Status of Execution of NBW Number of
Execution
11. Whether NBWs have been executed at than a level.
Details thereof

96

(To be submitted 2 days before poll)
Observer’s Name
Observer Code
Constituency
District
State
Sl. No. Subject Input

Observation about Seizure of Weapons Itemized details
1. unlicensed Arms/ Weapons/ Cartridges of seizure with
Cartridges/ Explosives Explosives dates
Observation about illicit arms Itemized details
Number of
2. manufacturing Centers raided of seizure with
raids
and seizure made dates
Observation about Licensed Deposited Remarks
3. Arms deposited/impounded Impounded
and cancelled Cancelled
No. of persons bounded down Remarks
4. u/s 107 / 116 Cr. P. C. etc. & Number
other preventive sections
5. Observation about –
Incident of violence related to Number Details with
a) poll campaign, political rivalry dates of the
etc. major incidents
Total Killed (Since date of Number No. of Male/
announcement of Election Females died and
b)
schedule) details of action
taken
Total injured (Since date of Number No. of Male/
announcement of Election Females died and
c)
schedule) details of action
taken
Damage to Property (in Lacs Number Cause of damage
d) Since date of announcement of and action taken
Election schedule)
Comments of any Liquor/Cash Liquor Remarks
seized (Since date of (Ltrs.)
6.
announcement of Election Cash
schedule) (in Rs.)
97
7. Observation about –
Deployment & performance of Satisfied Remarks
a) flying squads YES NO
(If NO, give comments)
Night Patrols Satisfied Remarks
b) YES NO
Area Domination by CPF/State Satisfied Remarks
Police YES NO
c)
Training of Police Personnel at Satisfied Remarks
d) all levels YES NO
Working of check-posts Satisfied Remarks
e) YES NO
8. Status of Execution of NBW Number of Execution
Any other specific activity of Remarks
finding, which you may like to
9.
bring to the notice of the
Commission
Arrangements for check posts
and major intersections made,
10.
if forces are withdrawn from
poll day duty
Any major incident which may Remarks
11. have impact on forthcoming
polls
12. Suggestion, if any Remarks
98

(TO BE SUBMITTED IMMEDIATELY AFTER POLLS ARE OVER
IN THE DISTRICT)
Observer’s Name
Observer Code
Constituency
District
State
Sl. No. Item Report

a) No. of incidents of violence on poll day.
b) Total Killed
1.
c) Total Injured
d) Damage of Property (in Lacs)
Details of any Liquors
Liquors/ Arms/ Arms
2. Remarks
Cash seized
Cash
Reports on Security Satisfied YES
3. at Polling Stations. If no, give comments. Remarks
NO
How many cases were registered for violating instruction on COVID-19
4. measures under the provisions of Section 51 to 60 of the Disaster Management
Act, 2005 during the election?
How many legal actions under Section 188 of the IPC, and other legal provision
5. as applicable, as specified in Order No. 40-3/2020-DM-I(A) dated 29th July,
2020 of Ministry of Home Affairs were initiated during the election?
INCIDENT REPORT
Sl. No. District Constituency Polling Station Description

1.
2.

99
ANNEXURE-V
45. COUNTING ARRANGEMENT REPORT

(To be submitted one day before the date of Counting of Votes)
PART - A
Sl. No. Necessary Actions for Preparedness for Counting of votes Y/N Remarks
Whether proper management for reception of Postal Ballots has been
1.
arranged?
2. Whether counting staff has gone under proper training?
Whether necessary entry passes have been issued to media persons
3.
concerned and counting agents?
Whether proper security arrangements have been made at the strong room
4.
as per Commission’s instructions?
Whether proper security arrangement have been made at the Counting
5.
centers as per Commission’s Instruction?
Whether CCTVs/ Videography arrangements have been made as per extant
6.
instructions of the Commission?
Whether proper arrangements have been planned for depositing of
7.
Electronic Gadgets at the Counting centers?
Whether Political parties has been advised to properly train their counting
8.
agents?
Whether proper arrangements have been made for deployment of micro-
9.
observers at each table in counting centers?
Whether all arrangements for the Counting Centres have been made
10.
properly as per Commission’s Instruction?
Whether minimum 8mbps of lease line internet connectivity, backup lease
11. line of 8mbps, computer system, printer, Cyber security, online ups and
minimum 8 hours of power backup generator have been put into place.
Whether ENCORE app has been set up correctly and training and report
12.
generation has been provided?
Whether thermal Scanning equipments have been made available in the
13.
Counting Centres for thermal screening?
Whether proper arrangements have been made for providing sanitizer,
14.
soap and water?
Whether a minimum of 7 and maximum of 14 counting tables allowed for
15.
counting of votes in CU(EVM) in the counting hall?
Observer Code:
Assembly Constituency/ District/ State:
Signature:
100
PART-B
(To be submitted one day before the date of Counting of Votes)
Name of State
Name of District
No. & Name of AC
Address of Counting Centre visited
Sl. No. Necessary Actions for Preparedness for Counting of votes Y/N Remarks
Whether Counting Hall is spacious to accommodate infrastructure,
1. YES/NO
officials and counting agents?
Whether smooth flow of EVMs/VVPATs from the strong room to YES/NO
2.
countin hall and vice versa has been made?
Whether adequate lighting with proper standby arrangements YES/NO
3.
(Generator etc.) has been made?
Whether 100-meter perimeter around the counting center has YES/NO
4.
been demarcated as ‘Pedestrian Zone’ and barricaded?
Whether 03 (three) cordoning security system has been made? [1 st YES/NO
(outer) cordon to start from pedestrian zone having adequate local
5. police, 2nd (middle) cordon at the gate of counting
premises/campus manned by SAP and 3 rd (inner) cordon at the
door of counting hall manned by CPF]
Whether proper barricade using transparent material/wire mash for YES/NO
6. each counting table to prevent agents/candidates/counting agents
etc. From handling polled EVMs has been made?
Whether one of the counting tables inside the counting hall has YES/NO
7. been earmarked as VVPAT Counting Booth (VCB) for counting
of VVPAT paper slips?
Whether VCB has been wire-mashed just like as Bank Cashier YES/NO
Cabin so that no VVPAT slips can be accessed by any
8.
unauthorized person and CCTV camera has been installed on the
ceilings?
9. Whether you are satisfied with arrangements at Counting Centre? YES/NO
Other remarks, if any:
(Signature of the Counting Observer)

Name of Counting Observer:
Counting Observer ECI Code:
101
ANNEXURE-VI
46. SELF- CERTIFICATION FORMAT FOR CENTRAL

OBSERVERS
Sl No. Details required Information provided

1. Name of Observer
2. Cadre & Year
3. ECI Code
4. Name of the State(s)/UT of deployment
5. Date of arrival in assigned constituency
6. Date of departure from assigned constituency
7. Period of stay in the assigned constituency/district No. of days:
Leave Period:
8. Leave taken during observer duty, if any
No. of days:
Name of Bank and Branch
Bank Account
9. Account No.
Details
IFSC Code
SIGNATURE:………………
NAME:………………
PLACE AND DATE:………………
Kindly submit the filled up self-certification by uploading the scanned copy of the same on your Observers'
Portal or send by email to the Zonal Secretary of ECI immediately after completion of Observer duty and
before leaving the constituency.
102

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OBSERVER HAND BOOK

Ed. August 2024

Election Commission of India

Election Commission of India

“No voter to be left behind”

14. Electoral Rolls 18

a. The First Report (Immediately after the Withdrawal 73

1. Different democracies have different types of Election Observation. The

2. STATUTORY BASIS OF APPOINTMENT

1. Observers of the Election Commission of India are appointed under the

3. Section 20B reads as follows: - “1 [20B. Observers.-

Explanation. - For the purposes of sub-section (2) and sub-section (3),

3. OVERVIEW OF OBSERVER’S DUTY

1. By dint of their seniority and long experience in the administrative services,

5. It is clarified that while the formal report/input/observation sent by the

5. TOURS AND ABSENCE FROM HEADQUARTERS

2. Request of permission for leave etc. by the undeployed/reserve General,

Police and Counting Observers is required be submitted to the Observer

4. No Observer is allowed to go on a foreign trip during the period intervening

5. No requests in this regard should be made to the Commission. Only in case

6. REQUESTS FOR LEAVE BY DEPLOYED OBSERVERS

1. In case of deployed Observers, request(s) of permission for temporary

2. All correspondence in this regard shall be addressed to Deputy Election

3. Observer Portal is the best method of communication between Observers

5. Observers should, therefore, check the portal frequently. Similarly,

a) Observing the processes of scrutiny of nominations and withdrawal

b) Examination of the video clipping of the nomination process as well

connection with the process of nomination. Also, to examine the

c) Effective monitoring of implementation of MCC and detecting

d) Though checking the account of expenditure of the candidates is

e) Tracking dispatch of postal ballot papers to the service voters,

f) Checking randomization software, reviewing the process of

g) Observing and regulating the counting process. Observer has to sign

A. Nominations, Scrutiny, Withdrawal and Symbol allotment

II. Scrutiny is a quasi-judicial process and should be conducted by the RO

B. Electoral Roll Related

I. During the campaign period, General Observers should monitor the

D. Pre-Poll Election Management

I. Monitor preparation of dispatch of postal ballot papers to service voters

III. First level of EVMs/VVPATs randomization is done before the arrival of

IV. Training is an activity on which special emphasis should be provided.

V. Intermediate Storage and Movement of Reserve EVMs and VVPATs

VIII. Go through the exercise of Vulnerability mapping and identification of

X. Review the Communication Plan and confirm dry runs.

XI. Review Control Room arrangement and complaint monitoring system.

XII. Training and placement of Micro Observers

XIV. Review counting arrangements.

E. Poll Day Management

I. Monitor placement of Sector Officers and Micro Observers.

V. Keep track of any delays or temporary suspension of poll.

VI. Report anything exceptional to the CEO and the Commission.

I. Scrutiny of documents relating to poll is an important analytical tool to

I. Review the arrangements for counting made by the DEO.

II. The randomization of counting staff is done in the presence of Observer.

VII. Certify proper completion of counting process and allow RO to declare

VIII. Report cases of recount to the Commission.

9. REPORTS BY OBSERVERS (ANNEXURE III - VII)

1. Both General, Police and Counting Observers are required to submit

2. Apart from the arrival report / departure report /self-certification and