2. Use of Money Power
Without Money, Multi-party democracy cannot function
Risks of Money Power:
Uneven Playing field and lack of fair competition
Political Exclusion – Certain sectors face disadvantage
Co-opted politicians under campaign debts
Tainted Governance and Rule of Law undermined
2
3. Objectives
• The election expenditure permitted under the
law should be reflected in true and correct
manner in the accounts and should be
maintained in the manner prescribed by the
Commission
• The election expenditure not permitted under
the law is to be stopped and proper action taken
under the provisions of law.
3
4. Types of election expenditure
4
Expenditure permissible
under the law [ public
meetings, posters, banners,
vehicle etc.]
Illegal election expenditure
[Distribution of money,
liquor or any other item
among electors with the
purpose of influencing them]
Expenditure within the ceiling fixed
Such type of expenditure of
election expenses of the
candidate is stopped
Election expenditure can be classified into
two types on the basis of legal provisions
6. Legal Provisions
Section 77 of the Representation of the People Act, 1951 :-
The candidate or his election agent has to maintain an account
of election expenses, which must be a correct account of
election expenses.
(Rule 103 of Delhi Municipal Corporation Rules,2012 also
emphasizes this requirement)
Section 78 of the Representation of the People Act, 1951 :-
Each candidate/his election agent has to lodge an account of
election expenditure before the District Election Officer
within thirty days of declaration of result.
(Rule 104 of DMC Rules,2012- within 10 days )
Rule 86 of the Conduct of Election Rules, 1961:-
the Rule lays down the manner in which the candidate has to
maintain his/her account.(Rule 103 of DMC Rules,2012 also6
7. Legal Provisions (contd…)
Rule 87 of the Conduct of Election Rules, 1961:-
This Rule provides for the inspection of the account of
election expenses maintained by the candidate/his election
agent.
Section 10 A of the Representation of the People Act, 1951 :-
If the candidate/his election agent does not file the
accounts within the prescribed time and in the proper
manner, the Commission can disqualify the candidate.
If the account filed by the candidate/his election agent is
incorrect and untrue, the commission can disqualify the
candidate.
7
8. Legal Provisions (contd…)
Rule 88 of the Conduct of Election Rules, 1961:-
Any member of the public may inspect the account of
election expenses maintained by the candidate and If he
desires a copy of the account, he can obtain the same at a fee
of Re. 1/- per page
( Rule 107 of DMC Rules 2012 excepting Rs. 10/ as
inspection charges)
Rule 89 of the Conduct of Election Rules, 1961:-
After scrutiny of the account of election expenses maintained
by the candidate/his election agent, the DEO will send a
report to the Commission in prescribed format. This report
will also be displayed on the notice board of the DEO.
The candidate who did not lodge his account is issued a
notice by the Commission, which is served on the candidate8
9. Legal Provisions (contd…)
• Under Rule 108 of the DMC Act, the
Returning Officer has to report to SEC
immediately after 10 days of declaration of
result regarding lodging the account by the
candidates in the stipualated time and
prescribed manner.
9
10. 10
If the Commission is satisfied that there is no reason for the
candidate for failure in lodging the accounts, it may
disqualify the candidate for a period of three years under
section 10A of the representation of people act 1951.
After considering the report of RO, SEC may disqualify a
candidate for 6 years, if satisfied that the candidate has
failed to lodge the account or account lodged by the
candidate is not in the manner or not within the time.
{ Rule 110 of DMC( Election of Councillors) Ruels,2012}
• Before taking the decision regarding disqualification
opportunity may be given to the Candidate by issuance of
notice /personal hearing etc.
Legal Provisions (contd…)
11. Ceiling on Election Expenditure
Rule 90 of the Conduct of Election Rules, 1961:- The maximum
limit for the election expenditure by the candidates is
• Ceiling for Assemly elections
• UP, Punjab–Rs.16 Lakh
• Goa, Manipur-Rs.8 Lakh
• Uttarakhand- 11 lakh
• Ceiling for Lok Sabha- 40 lakh
(Except Goa-22 lakh and Manipur-35lakh)
12. Other provisions of RP Act,1951
• Sec.127A makes it mandatory on all the Press
and media not to print or publish or cause to be
printed or published any election pamphlet or
poster or other document which does not bear
on the face of it the name and address of the
printer or publisher, number of copies and
delivers to DEO or CEO along with copy, and
declaration as to identity of publisher attested
by two persons.
• Penalty: imprisonment for a term up to six
months or with fine Rs 2000/- 12
13. Provisions of the Indian Penal Code, 1860 :-
171 B – Bribery – Any person giving or accepting
gratification to induce a person to exercise his electoral right
would commit the offence of bribery.
Gratification – Offering gratification, agreeing to give
gratification, attempting to procure gratification shall be
deemed as giving gratification.
171 E –Punishment for bribery – one year imprisonment or
fine or both.
171 C – Undue influence at elections – Any Act which
voluntarily interferes or attempts to interfere with the free
exercise of any electoral right.
171 F – Punishment - one year imprisonment or fine or both.
13
Legal Provisions (contd…)
14. 171 H – Illegal payments in connection with an
election – Expenditure done by any person/
organization for a candidate without his written
permission would be considered illegal whether the
expenditure is in relation to a public meeting,
advertisements, publication or in any other way.
Punishment – A fine up to rupees five hundred.
But if a person who incurred an expenditure
[which is not more than a total of 10 rupees] in favour
of the candidate without his authority i.e. without his
written permission, obtains a written approval from the
candidate within 10 days of the date on which the
expenditure was made, it would be construed as if the
expenditure was done under the authority given by the
candidate. 14
Legal Provisions (contd…)
15. 171 I – Failure to keep election accounts – If the
candidate does not maintain an account of his election
expenditure in the manner specified.
Punishment – A fine up to rupees 500.
15
Legal Provisions (contd…)
16. • Carrying cash is not illegal under any Law and is
not anathema to regular business
• But if it is undisclosed, Income Tax Department
can seize
• If it is out of illegal foreign exchange, ED can seize
• If it is suspected to be for bribery, terror, theft,
narcotics etc, Police authorities can seize
17. New mechanism for
Election Expenditure
Monitoring in Assembly
elections
(Punjab, Uttarakhand, UttarPradesh, Manipur
and Goa)
17
18. Preventive measures
Appeal to Political Parties:
I. To exercise self restraint
II. To avoid transactions in cash during
the election process
III. To advise their party functionaries,
candidates and agents not to carry
huge cash in the constituency
during election process
18
19. Preventive Measures
• Candidates to open separate bank account for election
expenses, with any bank or Post office
• To incur all expenses by crossed A/c payee cheque, if
payment to a single party during election process exceeds
Rs.20,000/-
• To submit certified Copy of the bank account along with
the expenditure statements within 30 days of declaration of
the result
• Bank Account can be opened in joint name with the
agent, anywhere in the state
• Existing bank account should not be used
• DEO shall issue suitable instruction to the Banks and Post
offices to open dedicated counters for election purpose
for prompt service
19
20. Preventive Measures
• DEO to involve NYKs, RWAs, Senior citizen forum
to educate the public and to advertise the tel. Number
of complaint monitoring cell
• Creating awareness among voters through public
media campaign for ethical voting
• Orientation Training for Political Parties and
candidates both by CEOs and DEOs on the laws and
rules of election expenditure
• Identification of Expenditure Sensitive Constituencies
( ESC) prone to high election expenditure and corrupt
practices on the basis of past history, profile of the
constituency and other Developments 20
21. New Expenditure Monitoring Machinery
• Expenditure Observer
• Asst. Expenditure Observer
• Flying Squad and Static Surveillance Teams
• Video Surveillance Team
• Video Viewing Team
• Media Certification and Monitoring Committee
• Accounting Team
• Associating Income Tax Department
• Liquor monitoring Team 21
22. Expenditure Observer
To be appointed by the Commission.
Expenditure Observers are eyes and ears of the Commission
Responsible for overall supervision of expenditure monitoring
for two or more Assembly segments.
He will appoint Asst. Expenditure Observers for each
constituency out of the list provided by DEO
He will train the Asst. Expenditure Observers and inspect
functioning of different teams engaged in expenditure monitoring
in each constituency
He will coordinate with various law enforcement agencies of
Income tax, Police, BSF/SSB, State Excise and DRI
He will assist the DEO in preparation of scrutiny report
22
23. Visit of Expenditure Observer
First visit: He would arrive within one day after
the notification in the constituency and would
remain in the constituency till the end of poll.
Second Visit: He would visit once again after 30
days of the declaration of result to assist the DEO
in scrutiny of account of election expenditure,
submitted by the candidates. He will stay till
completion of scrutiny of accounts by DEO.
23
24. Reports by Expenditure Observer
• Arrival and Departure report within 24 hrs (Annex-2)
• First report within 24 hours of Scrutiny of Nominations
(Annex-3)
• Second Report within 24 hrs of poll/ Repoll (Annex-4)
• Third Report within 45 days of declaration of result
(Annex-5)
• Report of seizure of any item by any team in the
constituency on the same day
• Report of Paid News on the same day
• Report of any gross expenditure/ corrupt practice which
warrants postponement of poll on the same day
24
25. Inspection of Accounts
• RO gives the Register in new format with its three
parts i.e. Day to day accounts, Cash and Bank Register
• Ensures that copy of the ECI’s new Instruction on
expenditure monitoring is issued to the candidates and
all the teams are trained as per the new Instruction
• RO notifies 3 dates well in advance for his inspection of
accounts maintained by the candidates
• Gap between the two inspection should not be less
than 3 days and inspection to be done in such a way that
major portion of expenses are covered under inspection
25
26. Inspection of Accounts
• Candidate can have a separate agent for election
expenses
• Inspection to be done in the office chamber of RO or
any other Office room not at the Guest house between
10AM to 5PM
• Publicity has to be given about his contact number and
time of inspection
• The Asst. Expenditure Observer to be present with
Shadow Observation Register and folder of evidence
• Inspection to be done by Expenditure Observer only
and where he is not available for inspection, the reasons
should be intimated to the Commission
26
27. Inspection of Accounts
• He will record in writing in the register maintained by
the candidate the details of excess expenditure, if
any, as per the evidences gathered by various teams
and obtain a photocopy of the register of candidates
• Commission considers the comments of
Expenditure Observer in the register at the time of
disqualification proceedings
• He will also get the signature of the candidate or
his agent on the Shadow Observation Register
• Instances of Paid News will also be noted in the
register and report along with copies of such news
to be sent to Commission 27
28. Inspection of Accounts
• RO to issue notice to candidate on the same day on
all such discrepancies and also on Paid News
• He will obtain a photocopy of the accounts
maintained by the candidates after his signature
and RO will display a copy on the notice board
• Notice to be issued to candidate in case of failure to
lodge accounts for inspection and FIR to be filed if
failure continues (Sec 171I of IPC)
• Withdrawal of permission for use of campaign
vehicle, if the failure continues in spite of notice
• Intimation of such withdrawal of permission to the
Flying Squad to take the vehicle out of campaign
28
29. Supervision of the Teams
• He will supervise the functioning of various teams
engaged in Expenditure Monitoring and also the functioning
of Assistant Expenditure Observer
• If he is not satisfied with the functioning of any of the team
or the Asst. Expenditure Observer, he will ask the DEO to
change such official and DEO will provide the substitute
• He will ensure that DEO provides the teams with the
necessary logistics. In case of any deficiency he will bring
it to the notice of DEO
• In ESC, he may require more number of Asst.
Expenditure Observers or Flying squads or static
surveillance teams. DEO or SP will provide such
manpower 29
30. Supervision of the Teams
• He has to ensure that major roads are covered under
Static Surveillance and also surprise element is
maintained in their timing and placement
• Surveillance to be strengthened vigorously before a
week of poll
• He may have the coordination meeting with all law
enforcement agencies of the district for smooth
functioning of the teams and flow of information
• In ESC, due diligence and alertness is required on
movement of suspicious persons in the constituency
30
31. Assistant Expenditure Observer
At least one Asst. Expenditure observer for each
Assembly segment.
Assistant Expenditure Observers will be from
Central Govt., preferably from Income Tax, Central
Excise, Audit and Accounts or Central PSUs.
They will be of the rank of ITO or Group B
Officers.
Assistant Expenditure Observers are appointed from
the list provided by DEO and trained by the
Expenditure Observer.
The Assistant Exp. observer will tour extensively in
the Assembly Constituency and make an assessment
of the election expenditure of the candidate. 31
32. Assistant Expenditure Observer
Assistant Expenditure Observer will supervise and
ensure action on all complaints in relation to
election expenses of the candidate of his jurisdiction.
He will be responsible for maintenance of Shadow
Observation Register and folder of evidence.
He will assist the Expenditure Observer during
inspection of accounts.
He will report to the Expenditure Observer.
He would assist the Expenditure Observer and the
DEO in scrutiny of the account election expenses
submitted after the declaration of result.
32
33. Video Surveillance Team (VST)
Each Assembly segment would have at least one video
surveillance team. In case of ESC there may be more
teams. On days when there are more public meetings,
there may be more teams.
Each team will consist of minimum one official, one
videographer and a vehicle.
The team should be properly trained and oriented to
capture all MCC relevant events and expenditure
related evidences.
At the beginning of shooting, the team will record in
voice mode the title and type of event , date, place
and the name of the party or the candidate
organizing the same.
34. Video Surveillance Team (VST)
Each team consisting of one official and one videographer
It will capture the photo in such a way that the evidence of each
vehicle, furniture, rostrum, banner, cutout etc. can be seen
clearly and the expense thereon can be estimated.
At the end of shooting, the team may also record in voice mode
the estimated number and type of vehicles, chairs, furniture,
approx size of rostrum/banner/poster/cutout etc. used in the event.
This team will prepare a video cue-sheet in the format given at
Annexure-7 of the instructions. This cue-sheet contains the
highlights of the recording with date and time. Therefore it should
be ensured by the team that the time and date set up in the camera
is correct.
This team will submit the recorded CD and cue-sheet to the
Video Viewing Team.
34
35. Video Viewing Team (VVT)
There shall be an independent and separate VVT for each
Assembly segment.
Each team would consist of one officer and two clerks.
The video CD captured by the VST shall be viewed by the VVT
daily for identifying expenditure related issues and MCC
related issues.
They will submit, on the same day and in any case, not later
than the next day, their reports related to expenditure to the
Accounting Team/Asst. Exp. Observer.
The report shall contain candidate wise expenditure on public
rally including the vehicle numbers, number of chairs, size of
Dias, audio system, posters , banners, helicopter expense, media
advertisements and Paid News, names of candidates
Any MCC related report/observation should be submitted to
the General Observer/RO by this team.
36. Accounting Team
There shall be at least one Accounting Team for each
Assembly segment.
Each Accounting Team would consist of one official and
one assistant/clerk.
The employees of the accounts wing of Central and State
Government departments and PSUs would be drafted for
this purpose.
The Accounting Team shall work under the guidance of
Assistant Expenditure Observer in maintaining the
Shadow Observation Register with Folder of Evidence.
They will put the rates against each item of expenditure
reported by various teams and calculate the total
expenditure of the event observed for each candidate.
36
37. Media Certification and Monitoring Committee (MCMC)
The Media Certification and Monitoring Committee in each district
comprising of Dy. DEO, District Public Relations Officer and his
staff, central Govt. I & B official (if any) and one nominee of Press
Council of India.
Besides certifying the advertisement proposals of the candidate it
will monitor advertisement in both print and electronic media
including Radio, Bulk SMS and cable network for advertisements
and instances of Paid News in the media from the date of
announcement of election.
They will be given infrastructure like 3 or 4 TVs, all news papers
including local news papers and all cable connections in a
separate room and they will operate 24x7.
It will submit a daily report, in the format given at Annexure-12 of
the instruction of the ECI, to the Accounting Team with supporting
documents/materials such as Newspaper cuttings, TV recording
clips. 37
38. Flying Squads (FS)
Flying squads to check illegal election expenditure and to
attend to complaints relating to expenditure and MCC.
Flying Squad will be constituted at Sub-division Level/
constituency level with Executive Magistrate as head, one
Police Officer and 3-4 police personnel and one videographer.
They will be provided a vehicle, moblie phone, one
videographer and Panchnama documents required for seizure.
More number of Flying Squads may be formed depending on
the requirements of terrain of the Sub-Division, distribution of the
Constituencies in the Sub-Division, number of complaints in
each Sub-Division, availability of manpower and
recommendation of the Expenditure Observer/ Police
Observer.
The Flying Squad will be exclusively for election purpose and
will not be given any other work 38
39. Flying Squad
This squad will :
– attend to all the complaints of Election Expenditure violation in
addition to MCC complaints in that constituency or subdivision.
(District level Expenditure Monitoring Control room and Call
Centre shall forward the complaints along with the Telephone
Number / Mobile Number of the complainant received either
directly or through CEO Office)
– take necessary action immediately on receipt of the complaints.
Wherever it is not possible to reach the spot within half an hour,
the Flying Squad will either direct the Static Team or the local
SHO to take necessary action immediately and will monitor the
action taken by such officials and obtain the Action Taken report.
– The entire action taken on the ground by Flying Squad or Static
Team or by SHO should be video graphed and the complainant
should be contacted in case of any doubt or further clarification on
the complaint.
40. Flying Squad
The Flying Squads will report the action taken to District Control
Room /Call Centre and forward Daily Activity Report (Annexure-
8) to S.P and DEO with copy to Expenditure Observer.
The Flying Squad/Static Team may consider seizure of cash/other
items under provision of CrPC/IPC, wherever they suspect that end
use of the same is for criminal purpose and shall deposit the cash in
treasury as per direction of the Court.
If no criminality is suspected, the Officials of the Income Tax
department deputed for the purpose in the district should be
informed immediately in order to facilitate them in interrogating the
person under Income Tax Laws.
In cases where the court directs the release of the cash, the
officials of Income Tax deptt. shall be informed well in advance.
IT Officials may seize the cash, if the amount is not disclosed under
Income Tax Laws.
41. Static Surveillance Teams (SST)
• The Static Teams shall be formed under each Police Station
comprising of 2-3 Police personnel and one videographer.
• Static Team will start operation from the date of the press
announcement of election and will operate till day of poll in the
Constituency.
• They will be responsible for putting the check post on major
road/arterial road to check any movement of illegal
cash/liquor/arms or large volume of gift items meant for
distribution among voters.
• There should be surprise elements in putting the check posts
so that one can not anticipate about its placement. The Flying
Squad of the district will supervise the posting of the Static
Team/Check Post in such a way to avoid repetitive checking of
the same passenger / vehicle or to avoid two check posts on the
same road.
42. Static Surveillance Teams
The entire activity at the check post should be video
graphed and the DVD handed over to Expenditure
Observer, for keeping in `folder of evidence`.
Any member of public may ask and take copy the Video
DVD/CD for a particular day by depositing Rs. 300/-.
It will submit a Daily Activity report in prescribed format
(Annexure-9) to SP, RO and Assistant Expenditure
Observer
The Nodal Officer at Police Headquarters at State level
will compile the Daily Activity reports of Flying Squads
and Surveillance Team and send to the CEO and
Commission.
43. Standard Operating Procedure
(SOP)
• Flying Squad will supervise operation by Static
surveillance teams and law and order issues arising
out of the operation
• Flying Squad will be in constant touch with officials
of Income Tax Deptt., State Excise Deptt and pass
on information of cash, liquor, gift items found by
them
• Flying Squad or Static Surveillance Team will seize
cash or other items under CrPC/ IPC, if criminality is
suspected
44. SOP
• Criminality is determined if:
I. They find banner/poster/voterslip/any campaign
material along with cash or gift
II. Arms or illicit items found along with cash or gift
III. Cash is found in custody of any party official or
candidate or his agents or any other modus operandi leading to
crime
• Utmost care to ensure all politeness, decency and courtesy
• Seizure has to be done with proper Panch nama/ Acknowledgement
and the authority whom to appeal and procedure for appeal
must be mentioned in the seizure order
• FIR to be lodged and also put in notice board of RO. Copy
forwarded to SP, DEO, Exp. Observer, Nodal Officer of Police and
Police Observer (If any)
45. SOP
• Seized Cash is to be deposited in Treasury or in such
manner as directed by the court
• DEO to issue necessary instructions to Treasury units to
receive cash beyond office hours and on holidays
• If person carrying cash produces proper documents as
regards its source or its end-use or the cash is being carried
for some emergency purpose, then seizure will not be
effected after retaining copies of the documents produced.
Commission may call for the documents in future
• Operation by FS or SST will be videographed and voice
recording of the name of person, address, and amount of
cash carried by him
• Video to be submitted to Accounting team along with Video
Cue Sheet to be kept in Folder of evidence.
46. SOP
• If the seized cash is to be released as per order
of the court, Asst. Director in charge of the
district is to be informed before release, so that
they may take action under sec 132A for
seizure under IT Act.
• If no criminality is suspected and the cash
exceeds Rs. 1 lakh, the Officials of Income
Tax deputed shall be informed and the person
is interrogated till arrival of the official
47. SOP for IT Deptt. for seizure
• Investigation Directorate will deploy one Asst. Director and two
inspectors in each district after announcement of elections
• In ESCs there may be more Asst. Exp. Observers and 4 or 5
Inspectors
• List of officers/ officials deployed with mobile and fax no. to be
given to DEO and CEO
• DEO to provide accommodation and vehicle to such teams
• The flying Squad and security to be made available to Asst. Director,
when any operation is planned
• The IT officials will collect local intelligence on movement of cash
and also will reach the places where cash is found by SST or FS.
• If IT officials decides to deposit the cash in challan, then the
security of FS to be provided to deposit the cash in designated bank
and challan handed over to person from whom cash was found
• When it is not possible to deposit the cash on the same day for bank
holiday, treasury will keep the cash on joint signature in sealed
cover, till it is deposited in the bank.
48. SOP for IT Deptt seizure
• If large scale availability of cash is suspected
on the basis of intelligence or the person does
not explain satisfactorily to FS or SST about
the cash found in his possesion, search and
seizure operation to be conducted by IT deptt
both at office and residence.
• Person from whom cash or any valuable item
is seized is given copy of Panchnama and
name and address of authority to appeal
49. SOP for IT Deptt
• IT Deptt. will open Air Intelligence Units in all airports of
the poll bound states and also shall keep vigil over
movement of cash through aircrafts/ helicopters leading
to poll bound states
• If any cash exceeding Rs. 10 lakh is detected in the
airport, the IT Deptt will seize the amount. CISF will
extend necessary help.
• If it is not possible to seize the amount under IT laws, then
the IT Deptt will pass on the information to CEO of the
poll going state to consider seizure by FS
• IT Deptt. will keep vigil over movement of cash through
Hotels, Farm Houses and collect daily information from
them. If any movement of large sum of cash is suspected
then IT will take steps to seize the same
50. SOP for IT Deptt
• IT Deptt will keep vigil over the financial brokers, Pawn
brokers, Hawala Operators in poll bound states
• If any information about distribution of cash or gift
items is received by them, they will pass on information to
the FS
• If complaint about large scale cash in a business premise
or residence is received, necessary steps will be taken
with the help of police and FS. DEO to provide all
security. Secrecy of the destination is to be maintained
and within half an hour of strike, DEO and CEO to be
informed
• If large amount of bank withdrawal is reported by DEO,
the IT deptt. will take necessary survey or search under IT
laws
• Activity Report to be sent by Asst/Dy Director every
alternate day and DGIT to compile and send to
Commission with copy to CEO (ANNEX-24)
51. Verification by IT Deptt
• The DGIT (Inv) will open a 24x7 call centre with toll
free number to receive complaints from public and
advertise the number
• All complaints and action taken will be recorded for
future inspection by commission
• The Directorate may investigate the case
independently, if large amount of cash or gift items are
suspected and DEO will provide security required
• Other complaints involving small amounts are to be
passed on to the District Complaint monitoring cell
• FIU to send suspicious transaction reports on the
candidates and others
• DEO will pass on report of large sum cash withdrawal
from bank for verification by IT Deptt., which will be
investigated by the Investigation Directorate
52. Verification by IT Deptt
• IT Deptt. will obtain the list of registered pol.
Parties and report to Commission within 2 weeks
of announcement of election, about the parties,
raising donations and not filing IT returns
• Investigation Directorate will download the
affidavits of the candidates, verify the assets and
report to commission within 6 months from the
date of poll about any suppression of asset or liability
in the affidavit
• IT Deptt. will pass on information about any
election expenses, gathered during their investigation
even after the election
53. Monitoring production, storage and
distribution of liquor
• From the date of announcement of election, the
production, off-take, stock limits of stockists and retailers of
IMFL/Beer/country liquor are to be monitored district wise
• Opening and closing of liquor vending shops are to
closely monitored
• Intensive vigil over inter state movement of vehicles at
RTO check-posts and border check-posts by special
enforcement staff of Excise Deptt.
• To conduct raids to seize illicit liquor
• Inter state coordination of Excise Commissioners of the
bordering states
• District level Nodal Officer to submit report every
alternate day to DEO, Exp. Observer and State Level
Nodal Officer, who will compile the state level report to
Commission and CEO (Annex.22)
54. DEO’s Appeal in Media in local language
DEO will publish the following appeal in the local newspapers in the
language of the state :-
Appeal forgeneral public during elections
Distribution of cash, liquor or any other item for gratification of votersis
bribery and both the giver and the receiver is a punishable
under Indian Penal Code. Flying Squads have been formed under
each Police Station to keep watch over distribution of cash, liquor and
other itemsin theconstituenciesduring theelection.
It is appealed to all that anybody carrying huge amount of cash in any
Constituency during the elections should carry proper documents
like bank withdrawal slip, passbook, copy of PAN, bills and
vouchers etc. to show the source and documents like medical
bills, marriage cards, bills and vouchers etc. to show end-use
of such cash in order to avoid seizureby theFlying Squads.
54
55. Expenditure Monitoring Control Room and Call Centre
It will function 24/7 Toll Free Call Centre to receive complaints
at district level and telephone number would be widely publicized
Complaint monitoring centre for communication with various
teams to operate from the date of press notification. A senior
officer will be put in charge of the call center and there will be
sufficient staff to man the telephone lines.
All expenditure related complaints will be immediately forwarded
to Flying Squad or officer concerned with sms to RO, Asst. Exp.
Observer and Expenditure Observer
In all MCC related complaints will be forwarded to RO with copy
to General Observer.
Daily Action Report to be submitted as per Annexure 13 to the
RO
All the calls would be recorded for future confirmation.
55
56. Expenditure Monitoring Cell
This cell at district level will consist of a Nodal Officer on behalf
of DEO, of the rank of SDM/ADM and two officials, who will be
in charge of Expenditure monitoring training and coordination
with all the teams engaged in expenditure monitoring.
It will be responsible for expenditure monitoring efforts on
behalf of DEO in the district coordination with various teams,
providing manpower and logistical support like space and
equipments.
–First and second training of the Asstt. Expenditure Observers
and all the officials engaged in various teams should be done by
the Nodal Officers of Expenditure Monitoring Cell of the District as
soon as the elections are announced
–This cell will keep custody of all shadow observation registers
and folders of evidence after the poll.
–It will assist the DEO and Expenditure Observer in finalizing
the scrutiny report to be submitted after declaration of result. 56
57. Meeting with Political Parties
• DEO will have a meeting with all recognised Political
Parties within 3 days of announcement of election
about the new instructions of the Commission and
explain the legal provisions and give a copy of the
compendium of instructions
• He will also discuss the various rates of expenditure
and consider their suggestions before notification of
rates
• CEO will arrange facilitation training at State Level on
Expenditure Monitoring Measures for the
representatives of all registered political parties of
the state, to explain various legal provisions including
the procedures
58. Training
– The DEO will arrange two facilitation training
programmes at RO office or at his own office for all
election agents/candidates through the Exp. Monitoring
cell
– One, either immediately after the scrutiny of nomination
or after withdrawal of nomination to acquaint them with
the legal provisions, procedures for filling up the forms and
registers and dates of inspection of accounts;
– Second, within a week before the final date of
submission of accounts ( i.e., after 20 days of declaration
of results) with all election agents/candidates/personnel
engaged in his office for receiving the accounts, regarding
the procedure for filling up the forms of Abstract
Statements of Election Expenses and affidavits,
consequences for failure and other legal provisions.
60. Modified Proforma of Register
• The Day to Day Accounts of Election Expenses are to be
maintained by the candidates as per register (Annexure-14)
having three parts:
• Register of Day to Day Accounts in Part-A
• Cash Register in Part-B (pink pages)
• Bank Register in Part –C (yellow pages)
All expenses authorised or incurred are to be entered in
Part-A including materials received in kind from the party
or any other person
All cash to be deposited first in the bank account
All expenses excepting payments upto Rs.20,000/- to a
single party through out the campaign to be done by cheque
Sources of fund are also to be mentioned
61. Notification of rates for assessment of Expenditure
1. After consulting with all the parties, the DEO shall notify the
local rates of various items of election expenditure for his
district within three days of announcement of elections This has to
be done before filing of the nomination papers in any case.
2. It should be made clear in the notification that election expenses of
every candidate would be assessed on the basis of these rates.
3. The list of these rates would be given by the RO to the candidates
at the time of filing of nomination papers.
4. If the rate of any item is not available in the list, the
candidate/election agent, if they wish, may apply with the DEOs
to notify the rates for such items as well and the DEOs will take
appropriate steps to notify them.
5. Any objection by the candidate regarding the quantum of such
rates has to be made to the DEO within 24 hours of notification.
61
62. Notification of rates for assessment of Expenditure
The notified rates should include hiring charges of:
Loudspeaker with amplifier and microphone,
podium or Pandal of standard sizes,
Cloth banner, Cloth flags, Hand bills, Posters,
Hoardings, Cut outs (wooden), Cut outs (Cloth/plastic),
Video Cassettes/CDs, Audio Cassettes/CDs,
Daily hiring charges of vehicles (all types of vehicles),
hiring charges of chairs, tables and other furniture and
electrical fittings/equipments,
Print media advertisements and DAVP rates
Audio slots on Radio, Audio-visual slots on TV, cable TV,
State level TV channels and National Level TV Channels
Any other item commonly used in a district. 62
63. Inspection of Expenditure Register (contd…)
1. The RO will prepare a schedule for inspection of expenditure
register by the Observer, or a senior officer designated by the RO
for the purpose of each candidate.
2. This notice should be given the widest possible publicity. If
in spite of the notice the candidate fails to produce the
register of election expenditure for inspection, a complaint
under Section 171(I) of IPC should be filed in the competent
Court.
3. Publicity should also be given that members of the public
can be present during inspection of expenditure registers
and that anybody can obtain a copy of the expenditure
register of any candidate on payment of Rs.1 per page from
the RO.
63
64. Shadow Observation Register
1. The Shadow Observation Register for each candidate shall be
maintained by the Accounting team under guidance of Asst. Exp.
Observer in prescribed format. Each page numbered and signed
by Exp. Observer.( Annex.11)
2. The Accounting Teams shall receive the reports and other
information from Video Viewing Team, Media Expenditure
Monitoring Team, Surveillance Team for tracking of illegal cash
transaction, Call Centre, Control Room and other sources along
with evidences, if any.
3. The Asst. Exp. Observer will daily inspect the Shadow
Observation Register and ensure that no such expenditure as
reported is left out of inclusion in the register.
4. If an expenditure not permitted under the law is found to be
made by the candidate, it would also be included in the register
and proper action taken under relevant legal provisions as well.64
65. Shadow observation register and folder of
evidence
• This register will be made available to the Expenditure Observer at
the time of inspection.
• Folder of evidence shall contain all reports, DVDs and CDs,
evidences, orders, instances of paid news, FIRs, notices issued and
rate charts etc.
• During inspection if the amount mentioned in the shadow
observation register is found to be more than the amount shown
by the candidate, then the signature of the candidate or agent is to
be obtained on the shadow observation register and RO to issue
notice.
• The RO shall issue notice to the candidate for clarification/
explanation regarding the expenditure suppressed as per the
Shadow Observation Register and will also display a copy of it on
the notice board. The reply of the candidate would also be
displayed on the notice board. The notice and/or reply can be
obtained by any person at a fee of 1 rupee per page.
66. Folder of Evidence
• The evidences in relation to the expenditure included in the register
would be kept in a folder of evidences and each evidence would
be cross referenced with the corresponding entry in the
Shadow Observation register.
• The Shadow Observation Register would be shown to the candidate
at the time of inspection of his register and he would be asked to
sign on it with his comments, if any, as a proof of having seen the
register.
• If the candidate or any other person desires, he may obtain the copy
of Shadow observation Register or documents maintained in the
folder of evidence @ 1 rupee per page or @ rupees 300/- per CD
after the time of inspection. The evidences shall pertain only to
the date up to which the inspection is being made.
• All reference to Folder of evidence are clearly mentioned in SOR,
which is properly signed and page-numbered by Asst. Exp.
Observer or Exp. Observer.
66
67. Public Meetings, Rallies, etc.
1. The candidate would submit an expenditure plan to the RO in
a format given at Annexure-16 at the time of applying for
permission of public meetings, rallies, etc. It shall contain the
expenditure estimated to be incurred on the event by the
candidate.
2. A copy of the expenditure plan received from the candidate
will be given to the Video Surveillance Team which will
enter the actual expenditure observed to be incurred during
the event.
3. The video surveillance team and accounting team will make
note of the expense, observed.
67
68. Public Meetings and rallies
• All major public rallies and Public meetings to be
videographed
• Rally expense for filing nomination to be included
• Public who attend the rally in their own vehicle
without receiving any payment or without any flag,
banner or photo of candidate not to be included
• Commercial vehicles used for rally to be included in
expense
• Notional cost of fuel and driver salary of one
Personal vehicle used by the candidate to be added
(Notional cost of hiring in case of more than one
personal vehicle used)
• One vehicle of district level party officer ( Not
being the candidate) exempted
69. Monitoring of campaign through Print/Electronic media,
including cable network & FM channels
• At state level, advertisement of political nature on TV
Channel, cable networks, radio, including the Private FM
Channels, during the period MCC is in operation are made
only after clearance from the pre-broadcasting scrutiny
Committee constituted by the CEO.
• Whenever the Scrutiny Committee constituted by the CEO
grants permission for any advertisement, it will forward a
copy of the permission along with all expenditure details to
the concerned DEO, who will include the expenditure in
the shadow expenditure register.
69
70. Monitoring of campaign through Print/Electronic media,
including cable network & FM channels (contd….)
• If any surveillance team, Accounting team, MCMC or the
expenditure monitoring cell finds that any such advertisement
has been published/ displayed in favour of any candidate
without the permission of the Scrutiny Committee constituted
by CEO, he shall inform the RO immediately.
• The RO will issue a notice to the candidate for violation of
instructions of the Commission.
• The DEO will also ensure that the expenditure on this
advertisement is also added to the shadow expenditure
register.
70
71. Monitoring of printing of pamphlets, posters etc.
• The District Election Officer shall, within 3 days of issue of
announcement of election, shall write to all printing presses and
print media in their districts informing the requirements of Section 127-
A of RP Act 1951.
• He would inform them that any violation would invite stern action
including the revocation of the license of the printing press under
the relevant laws. They should be specially instructed to: -
– Indicate clearly in the print line the names and the addresses of
printer and publisher of any election pamphlets, posters, ‘news
reports’ based on payments and such other material printed by them.
– Send 10 copies of the printed material and the declaration of the
publisher as required under section 127(2) of R P Act 1951, within
3 days of printing.
• The DEO shall examine whether the publisher and printer have
complied with the requirements of law and directions of the
Commission.
71
72. Monitoring of printing of pamphlets, posters etc. (contd…)
• One copy of the printed material shall be exhibited on his
notice board so that all political parties, candidates and other
interested persons may be able to check whether the
requirements of law have been complied with.
• One copy forwarded to Accounting team for inclusion in
Shadow Observation Register
• In all cases where there is violation of the provisions of
Section 127-A of R P Act 1951, FIR is lodged and
prosecutions should be initiated against the offenders.
• One Copy of printed materials should be given to the Exp.
Observer for inclusion in the shadow register.
72
73. Monitoring of use of Vehicles in electioneering
• Details of all vehicles being used by a candidate for his election
campaign are required to be furnished by him to the RO before
vehicles are used.
• Two-wheelers (Motorbikes, Scooters, Mopeds), Cycle Rickshaw,
etc, are also vehicles for the purposes of these instructions.
• These details should be given to the accounting teams for inclusion
in the shadow expenditure register.
• If a vehicle is found being used for campaigning and its details
have not been communicated to the RO in advance by the
candidate, it shall be considered unauthorized campaigning for the
candidate and may attract penal provisions of Section 171H of the
Indian Penal Code and shall therefore be immediately taken out of
the campaigning exercise.
• The expenditure on this vehicle will also be added in the shadow
expenditure register.
73
74. Monitoring of use of Vehicles in electioneering
• Permission letter of RO to be displayed on the wind
screen of vehicle
• Permission given to a particular candidate being used
by another, vehicle to be seized and exp. for entire
period to be added in the hands of the candidate
for whom it was used
75. Monitoring of expenses on construction of
barricades & rostrums
• If expenses on construction of barricades/ rostrums etc. are made by
Government agencies on account of security considerations, it should
be booked as expenditure of the candidate in whose constituency
the meeting takes place.
• If a group of candidates are present at the time when the leader of a
political party addresses such a meeting, the expenditure will be
apportioned equally amongst them.
• The DEO shall obtain the details of expenditure from the concerned
government agencies within three days of the event and intimate
to the candidates their respective share of expenditure.
• This information will also be intimated to the RO and DEO of the
constituency/ district if any such candidate belongs to another district.
• This information should also be given to the accounting team of
respective candidates for entering in the shadow expenditure register.
75
76. Complaint Monitoring System
• Besides the call centre, the observer shall fix one hour time for
hearing of complaints every day in the office of the RO. This
time will be given wide publicity. Any complaints received by the
observer will be inquired into within 24 hours, and a copy of the
report given to the observer and also to the accounting team.
• There shall be a counter in the office of the RO to receive
complaints from the public. This counter shall remain open
every day from 9 AM to 5 PM. All complaints received will be
immediately given to the observer for perusal. All complaints
shall be inquired into within 24 hours and copies of the report
given to the Observer and the accounting team.
• Copies of all complaints received and reports of inquiries
conducted shall be put on the notice board of the RO for
information of the Public. Any member of the Public can obtain
copies of these documents on payment of a fee of Re. 1 per page.
76
77. Expenditure by persons other than candidate & expenditure
by political parties
• The expenditure incurred on travel of star campaigners is not
deemed to be expenditure incurred or authorized by a candidate of
that party.
• The expenditure incurred by the political party which can be
identified with the election of a given candidate, as
distinguished from expenditure on general party propaganda,
would be liable to be added to the expenditure of that candidate as
being impliedly authorized by the candidate (Kanwar Lal Gupta
Vs. Amar Nath Chawla (A.I.R. 1975 SC 308 dated 10-04-2004).
• The travel expenses of a leader nominated as star campaigner
will be accounted for in the election expenditure of the
candidate where such leader happens to be himself a
candidate.
77
78. Expenditure by persons other than candidate & expenditure
by political parties
• If star campaigner campaigns for a candidate of another
party, the expenditure incurred on his travel would be
included in the candidate’s account.
• If candidates of two or more parties are present in a
campaign/meeting addressed by a star campaigner of one party,
his travel expense will be apportioned equally among the
candidates of other parties but exempting the share of the
candidate of the same party.
• The hotel expense of the star campaigner is not exempt
• Expenditure claimed to have been made by the Political Party
should be reported separately by the DEO to the CEO in the
prescribed format.
78
79. Other Instructions
• DEO shall ask all the banks to report suspicious cash
withdrawal exceeding Rs. 1 lakh from any account
by any person
• Cash withdrawal exceeding Rs. 10 lakh to be
forwarded by DEO to Asst. Director in charge of the
district for necessary verification under IT laws
• Any coupons found at the time of campaign, Asst.
Director will take necessary action on the business
concern whose name appears in the coupons
80. Other Instructions
If candidate attends a community kitchen, during
election campaign, the entire expenditure will be
added as his election expenditure
The bookings of marriage halls and
Mandaps to be monitored
Distribution of gift items and cash coupons
to be closely monitored
Unusual cash deposit/ withdrawal in account
of SHGs and NGOs
Disbursal of wages under ongoing
Government schemes only in presence of
Government officials during elections
81. 81
Video Surveillance team
Expenditure monitoring
control room
Expenditure Monitoring Cell
Media expenditure
monitoring team
Accounting team
Video Viewing team
Surveillance team for
tracking of illegal cash
transactions
Call Centre
DEO Expenditure Observer
RO
Public meeting/Rally Illegal Expenditure.
Assistant Expenditure Observer
82. Requirements at the time of filing of accounts
• Candidates are required to lodge their accounts of election
expenses with the DEO within 30 days of declaration of
result in manner prescribed, along with the register of election
expenses (Under Sec78 of the RP Act,1951)
• Documents required to be filed:
1. Part I to Part VI of Abstract statement signed by the
candidate
2. Copy of Bank statement
3. Affidavit signed by the candidate
4. Register of Day-to-day Accounts with all bills and
vouchers in original
5. Copies of expenditure related notices issued by RO and
replies to such notices
6. Replies to discrepancies pointed out at the time of
inspection
83. Other instructions
• To file Affidavit of Asset and Liability of self, spouse
and dependant children as per revised format along
with nomination
• Revised Affidavit to contain:
I. Actual value and cost of addition to
Immovable assets along with Market value
II. Bank Deposits and Shares
III. Actual liabilities including Govt.
dues and disputed liabilities
IV. PAN of self, spouse and children and
Income Tax paid as per last return
V. Cases pending and cases of Conviction
Orders
84. Role of DEO
– The DEO is responsible for the entire expenditure
monitoring effort in the district.
– The DEO will be assisted by the Expenditure Monitoring
Cell and various teams.
– The DEO shall extend all help to the RO, the Observer
and the Asst. Expenditure Observers in performing their
functions.
– The DEO shall prepare a list of Central Government and
Central PSU employees and give it to the Observer for
appointment of Asst. Expenditure Observers.
– The DEO shall provide logistical support to all the
expenditure monitoring teams.
84
85. Role of DEO (contd…)
– The DEO shall notify the rates of items of election
expenditure on which election expenditure will be assessed
within 3 days of announcement of elections by the
Commission
– He will hold a meeting of all recognized National and State
level Political Parties within 3 days of the announcement of
elections by the Commission to explain the process of
expenditure monitoring, legal provisions relating to election
expenditure and consequences of non-compliance of these
provisions.
– He shall scrutinize the statement of accounts of election
expenditure submitted by the candidates after the declaration
of results with the help of the Expenditure Monitoring Cell and
the Observer and submit a report to the Commission.
85
86. Suggestions for SEC & EXP
Observer
• Inspection of Account during campaign period
at least once preferably within last 3 days of
campaign period by the Exp Obs. So that any
underestimation of expenditure can be brought
to the notice of the candidate.
• Requisition the services of State Excise Dept
regarding to check boot legging and to oversee
& chek any abnormal increase in production of
IMFL/Liquors.
86
87. • Formation of Complaint Monitoring CELL
24X7 call Centre facility. All complaints
related with Exp should be addressed by Exp
Observer through RO.
• Seizure of Cash or liquor being distributed to
lure the voters and videography thereon for
evidence/lodging of FIR in this regard.
87
88. • Formation of Flying Squad/Surveillance Team
for Seizures
• Expenditure Observer name / address/mobile
no. /telephone no./Fax No should be notified
and be given wide publicity so that one can
make a complaint before him.
• Appeal to all Political Parties to exercise
restraint for carrying huge amount of Cash
during campaign and advise their candidates to
do transaction through cheque as far as 88
89. • Rate of all Election Material including
advertisements in print/electronic media
should be notified by the RO. ( DAVP rate
may be made applicable)
• Appeal to general public to carry some
documents if carrying huge amount of cash
during campaign period.
• Appeal to general public not to take or give
bribe as both are punishable offence.
89
90. • Expenditure Observer will keep all evidences
relating to expenditure of the candidate in the
` Folder of Evidence` and assist RO to prepare
his report on very 11th
day after declaration of
results and RO will consider the comments of
EXP OBS before sending it to the SEC.
• There should be a reporting format for EXP
OBS regarding his observation to be sent
independently to the SEC.
90
91. • SEC may consider to devise a format for
candidate in which he has to lodge his account
of election expenses. ( Abstract Statement )
before the RO.
91