Vulnerable Hamlets and Vulnerability Mapping in Assembly and Lok Sabha Elections

Vulnerable hamlets are small villages or settlements where certain groups of voters may face pressure, threats, or influence during elections. These groups are often from Scheduled Castes (SC), Scheduled Tribes (ST), minority communities, or economically weaker sections. In such areas, voters may be stopped from voting freely or may be pressured through fear, money, caste dominance, or criminal influence.

To prevent this, the Election Commission of India (ECI) introduced a system called Vulnerability Mapping (VM) in 2007. This system helps identify and protect such areas before every election. It ensures that the constitutional guarantee of free and fair elections under Article 324 reaches even the most remote villages.

Historical Background

The idea of vulnerability mapping came from past problems. In the 1990s and early 2000s, elections in some areas were affected by booth capturing, violence, and voter intimidation. This was especially seen in:

• Left-Wing Extremism (LWE) areas
• Caste-sensitive regions of Bihar and Uttar Pradesh
• Insurgency-affected regions

In 2006, West Bengal first used this method during its Assembly elections under the then Chief Electoral Officer. The state carefully mapped sensitive booths, deployed central forces, and took action against troublemakers in advance. The result was remarkable—almost no complaints of rigging across more than 45,000 polling stations.

After this success, the ECI issued nationwide instructions in October 2007. The system was improved in 2008 and later included in the Manual on Vulnerability Mapping 2023 and the Manual on Force Deployment in Elections 2023.

By the 2009 Lok Sabha elections:

• 86,782 sensitive locations were identified.
• Preventive action was taken against over 3.7 lakh individuals.
• Voter turnout in West Bengal reached 81.4%.
• The elections were among the most peaceful in India’s history.

Since then, vulnerability mapping has been used in every major election, including the 2024 Lok Sabha elections and 2025 Bihar Assembly elections.

Legal Framework & Constitutional Basis

Vulnerability Mapping is an administrative mechanism evolved under Article 324 powers of the Election Commission to prevent corrupt practices under the RP Act and BNS.

1. Penal Provisions: From IPC to BNS

Under the new criminal code, the sections governing electoral malpractice have been transitioned as follows:

 The Representation of the People Act, 1951

Beyond the BNS, the RP Act, 1951 remains the primary legislation for election management:

• Section 123(2): Defines “Undue Influence” as a corrupt practice. It specifically includes threats of injury (social, physical, or spiritual) to voters or candidates.
• Section 135A: Addresses “Booth Capturing,” which is a significant factor in identifying a location as “vulnerable.”

3. Constitutional Mandate

• Article 324: Grants the Election Commission of India (ECI) the power of “superintendence, direction, and control” of elections. The ECI uses this plenary power to issue the Manual on Vulnerability Mapping, making it binding on election authorities and state machinery during the conduct of elections.
• Definition of Vulnerability (ECI Manual 2023)

As per the latest ECI guidelines, Vulnerability is defined as:

“The susceptibility of any voter or section of voters, whether or not living in a particular area, to being wrongfully prevented from or influenced upon in relation to the exercise of their right to vote in a free and fair manner through intimidation or use of any kind of undue influence or force on the voter.”

The Three Pillars of Identification

To satisfy the legal requirements of the BNS and RP Act, officials look for:

1. The Intimidated: Social/economic groups likely to be suppressed.
2. The Intimidator: Specific individuals or “trouble-mongers” with a criminal record (individuals with prior involvement in offenses under Sections 170–174 BNS).
3. The Impact Area: Geographic clusters where free voting is historically compromised.

Three Main Steps of Vulnerability Mapping

Every constituency follows three compulsory steps:

1. Identify vulnerable voters, villages, and areas.
2. Identify persons creating fear or influence.
3. Take preventive action and build confidence among voters.

How Areas Are Identified

District Election Officers (DEOs) start collecting information at least six months before elections. They use past data such as:

• Previous election violence or re-polls
• Unusually low turnout
• Extremely high voting for one candidate
• Complaints from voters
• Presence of criminal elements
• Caste or communal tensions
• Pending warrants or illegal arms

Sector Officers must visit each polling station area at least three times. They speak to residents confidentially and identify specific families who may feel threatened.

Key Officials and Their Roles in Protecting Vulnerable Hamlets

In the process of identifying and protecting vulnerable hamlets through Vulnerability Mapping, several key officials play clearly defined roles. The District Election Officer (DEO) is overall in charge at the district level and ensures that vulnerability mapping is properly conducted and that preventive action is taken wherever required.

The Returning Officer (RO) prepares and consolidates constituency-level reports based on inputs received from the field. The Sector Officer (also called Sector Magistrate) is the most important field-level functionary. He or she physically visits every polling station area, interacts confidentially with residents, identifies vulnerable households and persons causing intimidation, and submits detailed reports within strict timelines.

The police machinery works closely with the election authorities in this exercise. Police officers assist in gathering intelligence and take preventive legal action against troublemakers. The Superintendent of Police (SP)/Commissioner of Police ensures proper security planning, deployment of forces, and area domination measures in vulnerable locations.

In addition, Election Observers appointed by the Election Commission of India supervise the entire process, verify field reports, and ensure that vulnerability mapping is implemented honestly and effectively to protect free and fair voting.

Vulnerability Mapping (VM) Reporting System

The Vulnerability Mapping process utilizes a standardized, hierarchical reporting structure (VM Formats 1–6). This ensures that data flows seamlessly from individual polling stations to the state level, allowing for targeted security interventions.

Reporting Hierarchy & Formats

Key Operational Standards

• Granular Identification: VM-2 is the most critical document, as it identifies the specific “trouble-mongers” and the households likely to face pressure.
• Structured Escalation: Information is synthesized at each level (Sector – AC – District) to ensure that senior officials can identify “hotspots” at a glance.
• Strict Timelines: All VM reports are subject to mandatory deadlines to ensure security forces (CAPF) are deployed effectively before the commencement of polling.

These reports serve as the primary basis for the “Confidence Building Measures” (CBMs) undertaken by security forces in sensitive areas.

Preventive and Confidence-Building Measures

Preventive Actions

• Arresting troublemakers
• Executing pending warrants
• Seizing illegal arms or liquor
• Taking bonds for good behavior
• Impounding licensed arms

Confidence-Building Measures

• Regular visits by officers
• Awareness programs under SVEEP
• Promotion of the c-VIGIL app and 1950 helpline
• Webcasting of sensitive booths
• Deployment of Central Armed Police Forces (CAPF)
• Flag marches in sensitive areas

On polling day, special teams monitor turnout in vulnerable areas and immediately respond if problems are reported.

Awareness Programs under SVEEP

SVEEP stands for Systematic Voters’ Education and Electoral Participation. It is an initiative of the Election Commission of India to educate voters and encourage them to participate in elections without fear.

Under SVEEP, special awareness programs are conducted in vulnerable hamlets to inform voters about:

• Their right to vote freely and secretly
• Protection available against threats or intimidation
• The importance of reporting electoral malpractice
• The availability of security arrangements at polling stations

These programs may include door-to-door visits, public meetings, street plays, posters, local language campaigns, and interactions with community leaders. The aim is to build confidence among vulnerable voters so they feel safe and empowered to cast their vote.

Promotion of the c-VIGIL App and 1950 Helpline

The c-VIGIL app is a mobile application launched by the Election Commission of India that allows citizens to report violations of election laws in real time. Voters can upload photos or videos of activities such as bribery, intimidation, illegal campaigning, or distribution of liquor or cash. Complaints are geo-tagged and acted upon quickly by flying squads and surveillance teams.

The 1950 helpline is a toll-free voter assistance number. By calling 1950, voters can:

• Seek information about voter registration and polling stations
• Report complaints related to intimidation or misconduct
• Get guidance on election procedures

Together, SVEEP programs, the c-VIGIL app, and the 1950 helpline help ensure that vulnerable voters have direct access to support and can safely report any attempt to influence or threaten them during elections.

Geo-tagging of Complaint

When a voter files a complaint through the c-VIGIL app, the complaint is automatically geo-tagged, which means the exact location (latitude and longitude) of the incident is captured through the mobile phone’s GPS. This prevents false or vague reporting and helps authorities know precisely where the alleged violation is taking place.

Once the complaint is submitted, it is instantly sent to the district election control room. The system forwards it to the nearest Flying Squad Team (FST) or Static Surveillance Team (SST). These teams are already deployed on the ground during elections. They are required to verify the complaint quickly—usually within a strict time limit (often around 100 minutes). If the violation is found to be true (for example, distribution of cash, liquor, intimidation, or illegal campaigning), immediate action is taken, such as seizure, filing of an FIR, or removal of unlawful material. This rapid, location-based response system—developed by the Commission—helps prevent small violations from escalating and strengthens voter confidence, especially in vulnerable areas.

Examples from Recent Elections

• Bihar Assembly Elections 2025 (Phase 2): Over 13,000 vulnerable hamlets identified.
• Jammu & Kashmir (Rajouri District, 2024): 518 sensitive hamlets mapped due to terror threats.
• Manipur 2024 Lok Sabha Elections: Special arrangements for displaced voters from violence-hit areas.
• LWE-affected districts like Chhattisgarh and Jharkhand regularly map Maoist-influenced areas.

Even in relatively peaceful states like Tamil Nadu and Rajasthan, areas with strong local dominance are included.

Challenges

Despite its success, vulnerability mapping faces some issues:

• Limited security forces
• Risk of misuse of preventive powers
• Poor connectivity in remote villages
• Need to protect confidential information
• New threats like digital misinformation

The ECI addresses these challenges through training, monitoring, and strict accountability.

Impact

Vulnerability Mapping has led to:

• Higher voter turnout in previously suppressed areas
• Fewer incidents of violence and re-polls
• Greater trust among marginalized communities
• Better use of limited security forces

It ensures that resources are used where they are truly needed.

Vulnerability Mapping in Elections: 2023 Manual and Field Practice

The Manual on Vulnerability Mapping 2023 (Edition 2) remains the authoritative guide, consolidated from 15+ years of experience and anchored in Instruction No. 464/L&O/2023/EPS(VM) dated 21.06.2023. No new edition has been issued post-2023, and it continues to be integrated into related manuals like Force Deployment in Elections 2023.

In recent elections—including the 2024 Lok Sabha and 2025 Bihar Assembly polls—VM was seamlessly implemented. It supported critical polling station identification, CAPF projections, and preventive measures. In Bihar 2025, more than 13,000 vulnerable hamlets and numerous critical locations were reportedly mapped, leading to heightened security measures. Innovations included Special Intensive Revision, record female turnout (~71.78%), real-time ECINet updates, and mandatory VVPAT verification.

Emerging priorities now include tackling digital threats like misinformation, deepfakes, and AI-generated content, with advisories on responsible AI use and synthetic media disclosure. Enhanced integration of law & order portals enables real-time tracking of vulnerabilities, intimidators, and preventive actions—ensuring peaceful, data-driven electoral conduct.

Conclusion

Vulnerable hamlets are not just administrative records. They represent the effort of the Election Commission of India to protect every voter’s right.

Through careful planning, field visits, preventive action, and security deployment, the ECI ensures that no voter is silenced by fear or pressure.

Behind every peaceful election in India lies this invisible system—officers visiting remote villages, security forces guarding polling booths, and careful monitoring of turnout.

This is how the world’s largest democracy remains truly free and fair—hamlet by hamlet, vote by vote.