Elections : A unique institutional feature of Indian democracy

Elections for Assemblies of Maharashtra and Haryana and a host of bye elections have just concluded. The first few results have started pouring in. The opinion polls had projected BJP as the largest party in the two States of Maharshtra and Haryana The trends for incoming results by and large confirm to the picture projected in the opinion polls. The successful conduct of these Elections, which were keenly contested with rival parties indulging in strong war of words, is another tribute to the professional management of Election exercises by the Election Commission of India (ECI).

Electors queuing at A Polling Booth 

Enthusiastic Women Electors at a Polling Booth

For large number of serving and ex Civil Servants and others in Govt. jobs every election brings back nostalgic memories of numerous election related experiences. Officers of State and All India services get involved in the process of elections from early stage as Returning Officers and substantial number gradually climb up to the ranks of Addl. Chief Electoral Officers/ Chief Electoral Officer of respective States. In between there are several occasions when Election Commission of India

 (ECI) requires officers to perform observer duties during elections in other States for functioning as Observers.

On every such occasions there are fair number of instances when the electors express gratitude for the stringent setup under Election laws and instructions of ECI which ensures free and fair elections. At times there are also allegations of bias raised by stakeholders who feel that results of elections are not as per their expectations. The complaints arise due to lack of knowledge on procedural aspects covering process of conduct of Elections, which has seen a sea change in past three decades. 

My interaction with Election work  started as a Returning officer (RO) for Municipal / Legislative Council Elections in Delhi in early 80s . Thereafter several elections and observer duties followed. I also had opportunity to work as Chief Electoral officer for Goa. During these 30 odd years I got an opportunity to see evolution of this great system. In the earlier times the logistic arrangements for elections were mostly overseen solely by the District authorities. Resourcefulness of the RO in securing various logistic requirements from District Administration and the management abilities made substantial difference The tenure of TN Sheshan the 10th Chief Election Commissioner (1990-96) saw a complete turn around in Election management procedures by injecting discipline and professionalism in all aspects of management of Election process. In subsequent years the Election Commission has standardized every stage of this exercise. The security aspect is closely coordinated and monitored by ECI. In order to ensure free and fair polls. Role of local police has been minimized to obviate any chances of interference. All important security aspects especially those pertaining to sensitive polling stations, EVM storage and Counting of votes are looked after by Central Paramilitary Forces which are requisitioned and deployed in coordination with Ministry of Home affairs. 

The Elections to State Assemblies and Parliament are conducted under control and supervision of Election Commission of India under the statutory provisions of Representation of People Act and Conduct of Elections Rules besides other similar legislations enacted by the Parliament and State Assemblies. For ensuring free participation of all eligible voters the Election Commission conducts revision of Voters list periodically and through special revisions prior to Elections. In recent years many innovative strategic changes have been brought in to ensure filtering out the names of dead and shifted voters from the voter’s list and also to eliminate any duplicate entries through a standardized software. The concept of BLO (Booth Level Officer) has been evolved where a subordinate Govt official has been designated as permanently attached to every polling booth for ensuring preparation of electoral rolls with maximum refinement. Even Political parties have been encouraged to nominate their functionaries for coordinating with BLOs. After preparation of Electoral Rolls the ROs are required to take up  detailed statistical analysis of polling station wise details of voter statistics by sex ratio of electors, age profile of electors , voter population ratio etc. . The analysis helps in locating aberrations or inconsistencies  in the voter lists and facilitates removing of any possible shortcomings. For last few years maximum participation of electors is being ensured through initiative known as SVEEP  ( Systematic Voter Education and .Electoral Participation). All District Magistrates are under instructions to hold publicity campaigns in times of poll and also periodically during intervening periods for ensuring maximum voter participation.

Ensuring smooth process flow for filing of nominations after notification of elections is the next stage. For nominations ECI has elaborate formats for affidavits and furnishing of details ensures that all essential information which can help the elector in selection of candidates is captured and publicized. The returning officers have also to ensure that all affidavits and nominations are promptly uploaded on ECI website to ensure wider dissemination of information. Instructions of ECI also ensure that process of nominations is completed with decorum. A candidate cannot bring more than prescribed number of persons along with him. When the nomination process is over the Elections move to campaigning stage.

A campaign party with campaign Vehicles 

Campaigning phase is to be handled by Returning Officers with utmost precaution and elaborate observance of all instructions regarding restrictions on campaign vehicles, sharing of expenditure for rallies, use and landing of helicopters etc. are to be strictly ensured. There have been instances where VIP campaigners had to cut short or cancel  campaigns on instructions of election authorities. Model Code of Conduct which is a much cited document is a non statutory document which ensures level playing field during elections. It provides instructions regarding precautions to be taken by Political parties during campaign period. Generally instances of violations do not lead to prosecution or disqualifications but even senior politicians and occasionally ruling party have to face admonition of ECI for violations. Despite of absence of stringent punishments this is not a toothless mechanism. Model Code of Conduct has over the years acquired a moral sanctity, which ensures that the language of campaigning and actions of ruling party do not vitiate the political atmosphere. It is this unique document, which restrains the party in power from bribing the voters by offering allurements or making misuse of official machinery.The rules lay down specifications for number and size of campaign vehicles and movement of convoys for campaigning.

The system of Observers deployed by ECI who are picked up from IAS /IPS and host of allied services from other States provide another mechanism for ensuring fairness of the whole process. While General Observers look after the procedural and statutory aspects, the Police Observers are concerned with deployment of forces and training of Police Personnel. Expenditure observers drawn from Revenue Services keep track of all election related expenses in order to ensure that candidates with money power do not hijack campaigning. 

Training Of Staff by ARO

The General observers arrive in the Constituency on the last date of nominations. They have to oversee all aspects of electoral process till announcement of Election results. Overseeing  training of all categories of staff and preparation of EVMs is the task to be attended to most sincerely since any laxity at this stage can have repercussions during Polling and Counting. The tenure of Expenditure observers is further extended after elections since candidates need time to complete the accounts. Expenditure observer's job has become more challenging in recent times due to involvement of social media and adoption of innovative covert procedure for publicity .The institution of observers has evolved over the years as the strongest bulwark against attempts to circumvent the process of law during elections. All observers work in close coordination periodically reporting to ECI.

 The job of observers is quite tough. Right from the day of arrival in the Constituency the observers are under scanner and each action is watched by Political Parties. The stay in constituency for 30 odd days is challenging since odd situations keep cropping up due to complaints and cross complaints and the observers have to take spot decisions for ensuring fairness of Poll process. Sometimes these upright actions also involve reporting laxities on part of local administration and local politicians of influence. Observers are expected to not to accept any undue lavishness in hospitality. There have been instances where officers utilizing the opportunity for site seeing or other favours by the District Administration had to be shifted in mid course since ECI maintains strict watch on conduct of observers through it’s independent channels also.

Election  staff Training of Staff

Training for counting Staff 

An interesting feature of Election related responsibilities is process of randomization followed at every stage. The Polling parties i.e. the team of officials assigned to Polling Stations are constituted by picking up employees from database of employees prepared in advance by randomized draw in presence of all Observers and Political Parties. This ensures that employees comprising a team are from different background. The allotment of Polling Stations to Polling Parties is done again by similar randomization process. This exercise is done just on day of Poll or one day in advance before the Polls in order to maintain secrecy about identity of officials assigned to a locality. Similar process of randomization is followed for deployment of Police personnel at various Polling Stations . 

In recent years the Electronic Voting Machine (EVMs) have become the backbone of Elections. EVMs were first deployed in one of the State Assembly Elections in Goa on trial basis in late eighties. (Goa was chosen as trial venue due to compact size of the State and Electors being educationally advanced). On successful performance in trial run these machines came to be deployed in all elections to State Assemblies and Parliamentary Elections. When the EVMs had not been introduced the ROs had to get the huge quantity of ballot papers printed at security press . Each of the ballots (total being in Lakhs) had to be checked before taking over from press . Large armies of Election staff remained stationed at Govt. Press for this exercise. Since there used to be large number of candidates in those (due to meager security deposit required from candidates in those days), sometimes the ballot paper was of the size of a newspaper. The traditional ballot boxes had become redundant over years  and special sized  tin containers came to be used as ballot boxes.The counting process was cumbersome since each ballot had to be individually counted after ensuring that the agents of polling parties seated on counting table have seen as to which candidate’s symbol had been cross marked by the voter. The counting normally continued till late night. In case there was a demand for recount then the whole exercise would be started afresh. There are instances where counting continued for forty eight hours at a strech. All that madness has been put to rest with introduction of EVMs.

The EVMs are comprised of two components .One is the balloting Unit and other is the Memory Unit. Each unit has a unique ids . Prior to Elections each

machine is subjected to thorough testing and thereafter machines are stored in strong room and sealed. For allocating machines to a particular Polling Station again a process of randomization is followed with help of computers . The process of allocating EVMs to different Polling Stations is witnessed by Observers and candidates. The transportation and storage of EVMs is done under heavy security. After the Elections are over and counting has been done the

Preparation Of EVMs for voting

EVMs are kept sealed and secured for six moths with Data intact in order to ensure that if any litigation crops up the data can be retrieved. There are elaborate protocols for tackling situations where data from a particular EVM cannot be retrieved during counting. Counting is concluded with remaining data if the votes in the particular EVM are less than the margin of votes between leading candidates. If the number is higher a repoll may be ordered for the Polling Station, which was covered by the defective EVM. When there is a problem during polling process due to malfunctioning of EVM then replacement EVM is used. A repoll can be ordered if there is substantial time lost in replacement. In a nutshell deployment of EVM and tackling the issues arising due to malfunction is also done in systematic manner through well laid down protocols

                                                                                                

Counting of Votes

For the day of Poll elaborate instruction are there for ensuring that the candidates do not indulge into campaigning in proximity of polling Stations. All campaigning comes to stop 48 hours before the Polls. For the poling day there are restrictions on entry of persons other than candidates and agents at the polling stations. All star campaigners i.e. the senior party functionaries coming for campaign period have to leave the constituency at the end of campaigning period. At the time of Polls every voter has to sign his name and id details in a register known as Register of Electors. This exercise ensures that there is no attempt for booth capturing and mass bogus voting. After the day of Polls detailed statistical information regarding voter turnout is prepared and analyzed. Wherever the percentage turnout of voters is not in line with the overall constituency average or if there are some serious complains pertaining to conduct of Polls , the various records pertaining to polling including voter’s Register (except for EVMs-which are stored separately) are analyzed to rule out chances of manipulations.

     

The counting data is transmitted   online . There are various formats relating to preparation of final results. The software after processing of data feed generates the final output. Under this arrangement  now there is a system of continuous update at the ECI website .Counting results start pouring in from midday and barring a few seats results are known by evening time. Results for all the Constituencies can be viewed continuously at the ECI website.The website shows trends as well as final results. The results are available party wise as well a State wise.

With so much of transparency and checks and balances being in place the stakeholders have little cause for any complaints. There are rare occasions of attempts by political masters for settling scores with unbending officers after the Electoral process is over but the silver lining is that the Senior Officers deployed for Election work are deemed to be on deputation to the ECI during Elections and every good performer is duly appreciated by ECI.

Remembering Tsunami after a decade and lessons learnt

Beautiful view from House

            When I joined DANICS (Delhi & Andaman & Nicobar Islands Civil Service) in late 70s my perception about the  Andaman & Nicobar Islands was limited to the geographic and historic data on Islands.Traditionally the probationers were taken for Bharat Darshan tour to the Islands but our batch missed the same. I got posted to Andamans about two decades later . The proximity to sea and the constant opportunity to travel in deep forests was an intoxicating experience. One year and Six months went away like dream savouring  the amazing natural beauty of the Islands.

Sea View from Port Blair Circuit House

Tsunami struck Andaman & Nicobar Islands on 26^th Dec.2004 . It was a once in a lifetime experience of exposure to a natural event which occurs not more than once in a century. Firstly the islands were struck by massive earthquake in early morning .

It's impact was so severe that several walls of our house developed  cracks. Seeing the cracks we decided to immediately move to a guest house . While we were loading our baggage in SUV the tsunami struck as a huge wall of water. Our home being at a distance of 200 meters from sea front was submerged in water and had we  started five minutes later we could have been submerged in the tidal waters .

Damages caused by waves

We escaped the deluge after the earthquake driving to nearby hillock through flooding waters which rose to around three feet very quickly.The waves struck our house minutes later,leaving behind smashed boundary wall and waters entering the lower floor of the house.

           

The grim realities of the disaster dawned on us about a day later when an emergency meeting was called at Raj Niwas and magnitude of the tragedy in Nicobar and other Islands came to be known to us. Within next twenty four hours an emergency task force was hastily put in motion to coordinate the relief and rescue operations which started in full swing.  Disaster Management support like National Disaster Response Force  was not available in those days. In subsequent three four days the Central Govt. took control.Next three months saw many developments relating to recovery and construction of shelters for displaced.

A relief camp at Kachal

The Andaman & Nicobar Administration   committed all resources for evacuation and rehabilitation of the displaced and badly traumatized population especially in Islands like Nicobar and Katchal where impact of the tragedy was most severe. The first earth quake with intensity of around 8.5 on ritcher scale was followed by thousands of after shocks  over next month-which is a normal occurrence in aftermath of an earthquake of this magnitude. After initial stage the crisis management was entrusted to an integrated relief command headed by senior officer of Indian Army.This set up included the Chief Secretary as well officers from various wings of Army,Airforce and Navy.

The crisis and it's follow up left in it's wake many lessons on crisis management,management of environment as well as survival techniques which could be of use in mitigation of suffering and ensuring survival in similar catastrophic situations. The first and foremost lesson was that while It is good to love nature but there is also a need to understand and respect  the nature. The Islands like any other part of the country have seen huge influx of migrants and also spurt in building activities. Some of the buildings are in dangerous proximity to sea. Over the years a feeling of complacence has grown about encroachment of coastal areas. People react with hostility to enforcement of  rule of law in such areas. But Tsunami has taught everyone  that mother nature is all-powerful. The mythological belief that sea has drawn it’s boundaries and it has to reclaim it’s territories from human beings for the sake of it’s own survival is true in practical life to considerable extent. Some of the houses located close to seaside were meant for people with influence and power but nature showed that it is more powerful than humans sweeping off everything in a matter of few seconds. Some of land tracks are now permanently covered with sea water showing that the sea has restored it's natural boundaries. Andamas are also considered to be ecologically fragile therefore in order to ensure survival of the islands and the life on it, the boundaries drawn by nature are to be respected.

 The second lesson was about the need for knowing your geographical facts and maintaining proper records of major geographical events . When tsunami struck the Islands hardly anyone knew what the word Tsunami meant. Tsunami is  a phenomenon where huge waves are generated due to seismic activities under the sea created by movement of tectonic plates. These waves carry force of several mega tonnes and wall of water moving at the speed of a jet plane breaks only on reaching the sea shore. On reaching the  shore initially a huge wall of water is formed and then water moves seawards  with such force that the seabed becomes exposed due to suction effect. When Tsunami struck there was no early warning mechanism in place. The fact that seismic disturbances of such magnitude are bound to be followed by Tsunami was not known to common population. People in a particular Island were amazed to see an exposed sea bed and got down to catch fish and other forms of sea life in the empty seabed. They had no inkling of the impending movement  of water backwards. After a few minutes the huge wall of water struck back again sending hundreds of persons to a watery grave instantly. 

Army Jawans offloading Material for Reconstruction

The ferocious nature of tidal waves breaking at the shore also prevented assistance by sea route for some period. The naval fleet which could have been the lifeline had to be moved away from the coast towards sea for safety. If these issues had been known to crisis mangers , the relief and rescue could also have been planned differently. It is probable that loss of lives could have been reduced. The lesson learnt was that in ecologically sensitive places like Andamans, dissemination of information on phenomenon like Tsunami needs to be widely encouraged. Hopefully now a days with evolution of professional style of Disaster Management,during a crisis of this nature the administration would be provided with  better outside support.

After Tsunami it came to be known that certain events of flooding in earlier parts of the history of Andamans could be related to Tsunami like phenomenon. Several important administrative structures  setup during British period at elevated places also bear testimony to the awareness about possibility of flooding of islands at the time of disasters. Proper documentation and awareness coupled with preventive safeguards would certainly mitigate the sufferings in case such disaster strikes again.
   

 At the time of Tsunami there were several tales of heroic survivors. One such instance was of an adolescent girl child who survived by swimming on back for long hours after being washed away by gigantic waves along with her parents and neighbors. The child had been taught survival skills by her parents in childhood and stayed afloat due to her perseverance. She saw relief planes flying overhead and took that direction for swim. When she managed to reach a deserted island she found that some serpents were also sticking to her but did not panic. The serpents quietly left her on reaching the landmass. The survival story was a lesson in itself. The child was rescued after being in sea for substantial period.The lesson was that while being stationed in proximity to sea knowledge of  survival skills on water is a big necessity.  Young and old can benefit in hour of crisis by such knowledge.

Consignment of relief supplies

The crisis management and relief and rehabilitation was a long drawn affair . But there were lessons to be drawn from the manner in which the crisis was handled. The most positive lesson was that at the time of crisis civilian authorities and the armed forced blended their resources magnificently. After initial state of shock and confusion the relief machinery got in motion in shortest possible time. The experience proved that a crisis of this magnitude some how binds human beings with different backgrounds together for over coming the challenges thrown up by nature.

            
During the period which followed the disaster a difficult part related to managing the supply of information to various Govt. agencies.  After the  several islands were without electricity , communication networks and other basic necessities. I got assigned to control room for compilation of various reports. After the Tsunami there was  an immense hunger for information in the media and at various levels of governance. Due to complete breakdown in communication channels , information had to be compiled through various means with great difficulty. The control room initially could prepare daily reports much later than midnight. Various Govt bodies had to be sent reports as per formats of their choice. Officers in field found reminders from Hqs for daily reports very annoying in difficult conditions . 

Many times reports were delayed or incomplete  inviting ire from intended receipient Govt. agencies. In retrospect it appears that there was perhaps absence of appreciation about difficulty of our task. It could be helpful in times of crisis of this magnitude that the minimum statistical information be sought in times when focus is on rescue and relief.

            
These are some of the lessons learnt from this crisis of unprecedented magnitude which caused loss of thousands of lives.  The list would however not be complete without referring to a very interesting fact about behaviour of Jarwas a primitive  tribe which is located in North Andamans .This tribe numbering around 2000 has been allowed to survive in isolation from modern civilization and is unique for it’s genetic purity. It came to be known after Tsunami that the Jarwas perhaps had read something in nature about the events which were to unfold. They had moved away from coastal areas in advance and there were no Tsunami related causalities in Jarwas ! Lesson learnt was that Tribals have evolved or managed to retain mankind’s early warning system for natural calamities and we have many things to learn from Tribes.

Another important feature of rehabilitation which reflects wisdom of tribal institutions was the treatment of orphaned children in Nicobar Islands.In these Island there is a system of community living in villages. The children who lost their parents were considered responsibility of entire community and adopted by it.Hence there were no orphans or destitutes in the Nicobar Islands after Tsunami.

Educational Activities in relief camp

The Post Tsunami relief and rehab operations also bear a testimony to the fighting spirit of mankind.Within a few weeks after relief and reconstruction activities started , the local population got down to the task  of rebuilding their lives. In coming days there was huge response from the entire country for assistance in various ways. Spread of water borne diseases was 

Children in relief camp

prevented by rigorous monitoring through Central agencies who set up static and mobile surveillance posts . Educational activities and skill development training was continued in the camps and the children were duly cared for being the survivors who would pass on the message to future generations.

 Glimpse of Andaman Trunk Road