Special Intensive Revision (SIR) of Electoral Rolls – Significance & Challenges – Explained Pointwise

ECI, using its discretionary powers under Section 21(3) of Representation of People Act, 1950, is conducting the Special Intensive Revision (SIR) of electoral rolls for the entire country, starting first from Bihar. This would be first such exercise in more than 2 decades (last took place in 2004). However, the exercise has also triggered several controversies with opposition political parties questioning the exercise. Thus, it is important to understand Why & by what process ECI carry out revision of electoral rolls & its significance along with the limitations that it has.

What is Special Intensive Revision?

• A Special Intensive Revision (SIR) is a focused, time-bound exercise conducted by the Election Commission of India (ECI) to update and verify the accuracy of electoral rolls.
• Electoral revisions are of 3 types:
  1. Summary Revision: Annual revision of electoral rolls for routine maintenance + No door-to-door verification.
  2. Intensive Revision: Major overhaul of electoral rolls + Includes door-to-door verification.
  3. Special Revision: Undertaken in exceptional cases such as missed areas, large-scale errors, legal or political exigencies etc.
• Unlike routine summary revisions, which are annual and involve only minor updates, an intensive revision involves  full, fresh preparation of electoral rolls through house-to-house verification by Booth Level Officers (BLOs) to ensure that:
  • All eligible citizens are included in the electoral rolls.
  • Ineligible or duplicate entries are removed.
  • The voter list is accurate, inclusive, and transparent.
• For the ongoing exercise, ECI has adopted a hybrid approach – combining the characteristics of intensive revision as well as summary revision. It has also introduced a new step – the requirement of documentary proof at the enumeration stage itself – which is a departure from past practice. The ‘special’ in this intensive revision in effect signals its methodological flexibility.
• Intensive revisions have been undertaken earlier 13 times in 1952-56, 1957, 1961, 1965, 1966, 1983-84, 1987-89, 1992, 1993, 1995, 2002, 2003 & 2004.

Key Features of SIR:

• Hybrid Approach: The ongoing SIR combines features of both intensive and summary revisions. It includes door-to-door field verification (like intensive revision) and also uses existing rolls for distributing enumeration forms (like summary revision).
• Documentary Proof: For the first time, even existing electors (enrolled after 2003) must provide documentary proof of date and/or place of birth during enumeration.
• Legal Framework: The ECI conducts SIR under Article 324 of the Constitution and Section 21 of the Representation of the People Act, 1950.
• The SIR began in Bihar ahead of the state assembly elections, marking the first such nationwide drive in over two decades. The exercise was prompted by rapid demographic changes, migration, and urbanisation that has happened in the country.

Why do we need the revision of electoral rolls?

1. Ensuring Electoral Roll Purity and Accuracy: SIR is the most effective method for identifying and deleting names of deceased persons, duplicate entries, and individuals who have permanently shifted residence from the electoral roll. This prevents fraudulent voting and ensures that only eligible citizens vote. It provides an opportunity to correct errors in names, addresses, age, and other details, leading to a more accurate and reliable voter list.
2. Identifies Unenrolled Voters: Through house-to-house enumeration, BLOs can identify eligible citizens who have turned 18, or who were previously missed, and assist them in registering. This is crucial for expanding the democratic franchise and ensuring universal adult suffrage.
3. Addresses Demographic Shifts: Given India’s rapid urbanization and internal migration, SIR helps in updating the rolls to reflect demographic changes, ensuring that migrant populations are correctly enrolled in their new places of residence.
4. Strengthening Public Trust in Elections: A transparent and rigorously updated electoral roll builds confidence among voters, political parties, and the general public in the fairness and legitimacy of the election process. When the voter list is perceived as pure, it enhances trust in election results.
5. Addressing Concerns from Political Parties: Political parties often raise concerns about the integrity of electoral rolls, especially regarding the inclusion of illegal voters or exclusion of genuine ones. SIR is the ECI’s most robust tool to address such concerns and ensure a level playing field.
6. Legal and Constitutional Mandate: The ECI’s power to conduct such revisions is enshrined in the Constitution and the Representation of the People Act, 1950. Conducting SIR fulfills the ECI’s constitutional mandate to ensure free and fair elections.

What are the challenges?

1. Risk of Disenfranchisement of Genuine Voters: This is by far the biggest challenge and source of controversy. SIRs, particularly the ongoing one in Bihar, often demand specific, sometimes old, documents to prove citizenship, date of birth, and ordinary residence (e.g., pre-1987 documents, parental birth certificates). Many vulnerable groups, including:
   1. Marginalized Communities: Such as Scheduled Castes (SCs), Scheduled Tribes (STs), and minorities (e.g., Muslims), who may historically lack formal birth records or land deeds.
   2. Migrant Workers: Who frequently move for work and may not have stable residence proof or be present at their native village during the verification period.
   3. Poor and Illiterate Individuals: Who may not understand the process or have the resources to obtain complex documents. 
   4. Women: Especially those who have migrated after marriage, who may face difficulties in producing parental documents or documents from their place of birth.
2. Burden of Proof Shifted to Citizen: Instead of the state being primarily responsible for ensuring all eligible voters are on the roll, the onus often shifts to the individual to prove their eligibility, which can be an overwhelming task for many.
3. Exclusion of Common IDs: The exclusion of widely used documents like Aadhaar, ration cards, or even existing Voter ID cards (EPICs) as primary proof for certain aspects of SIR (especially citizenship) creates a significant hurdle, as these are the most accessible documents for many.
4. Logistical and Administrative Burden:
   1. Massive Scale: India’s electorate is enormous. Conducting house-to-house surveys for millions of households is a monumental logistical task, requiring a vast number of Booth Level Officers (BLOs) and supervisory staff.
   2. Short Timelines: SIRs are often conducted within relatively short, strict deadlines (e.g. 30 days for enumeration), which can be impractical, especially in large, densely populated, or remote areas, or during adverse weather conditions (like monsoon season in Bihar). This hurried process can lead to errors and omissions.
5. Proximity to Elections: When an SIR is conducted just months before an election (as in Bihar 2025), it immediately raises suspicions among opposition parties, who often allege that it’s a politically motivated exercise aimed at manipulating the voter base or disenfranchising specific communities.
6. Scope of ECI’s Powers: The debate often centers on whether the ECI, in the name of “purifying” rolls, oversteps its mandate by essentially conducting a de facto citizenship verification, which is primarily the domain of the Ministry of Home Affairs (MHA) under the Citizenship Act.
7. Public Perception and Trust Deficit: When the process is seen as exclusionary or politically motivated, it can erode public trust in the ECI’s impartiality and the fairness of the electoral system itself.

What can be the Way forward?

1. Acceptance of a wider range of documents: While avoiding documents that don’t prove citizenship (like Aadhaar for citizenship itself), the ECI should be more flexible and pragmatic in accepting a wider range of widely available documents for residency and identity verification. The Supreme Court’s recent suggestion to consider Aadhaar, Voter ID, and ration cards for the Bihar SIR is a step in this direction for identification and residence proof, if not citizenship.
2. “Local Inquiry” as a Primary Tool: Empower Booth Level Officers (BLOs) and Electoral Registration Officers (EROs) to rely more heavily on robust local inquiry and community verification, especially for vulnerable populations who genuinely lack formal documents. This should be a primary method, not just a last resort. This is in line with the ECI’s recent easing of rules for Bihar, allowing forms to be submitted without documents initially, followed by verification.
3. Leveraging Technology for Data Integration and Cross-Verification: Explore secure, anonymized, and privacy-compliant linkages with other government databases (e.g. Civil Registration System for birth/death data, National Population Register, social welfare schemes like ration cards, land records). This can significantly aid in identifying deceased voters, duplicates, and verifying residency without placing an undue burden on citizens for physical documents. Also, implement AI/ML tools to identify suspicious patterns in additions or deletions (e.g., bulk removals from a particular locality or demographic group) to flag potential malpractices for human review.
4. Realistic Schedules: The ECI should allocate more realistic and ample time for SIR exercises, especially in large states or those with high migration. Rushing the process (as seen in the Bihar SIR amid monsoons) significantly compromises accuracy and inclusivity.
5. Proactive Communication and Public Awareness: Set up accessible facilitation centers and special camps, especially in remote areas, for marginalized communities, persons with disabilities, and the elderly, to assist them with form submission and documentation.

Conclusion:
While SIR is intensive, it should be complemented by strong continuous updation mechanisms throughout the year, making the process less abrupt and reducing the need for drastic, potentially disruptive, intensive revisions. The focus of ECI must be towards enhancing the effectiveness and legitimacy of SIR, ensuring that electoral rolls are both pure and inclusive, thereby strengthening the democratic fabric of India.