Returning Officer / Assistant Returning Officer — EVM Handbook

Rajasthan ULB General Election 2026

Every instruction is sourced. Tags — [2184 ¶9(vi)], [MPSV Ch.4], [SO 145 ¶4] — are explained in SOURCES. Procedures not found in an official document are not written here; see GAPS.

🔗 Every citation tag is clickable in CITATIONS — it opens the source PDF at the exact page.

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1. Legal basis

SO 149/2026 (order 635 dated 19.01.2026): exercising powers under s.26(3) read with Rule 24-क(2), and superseding earlier order 3913 dated 12.09.2014 (SO 94/2014), the Commission has specified all wards of all Municipal Boards / Councils / Corporations as wards where votes in future general and bye-elections to fill vacancies shall be given and recorded by EVM, until the Commission directs otherwise [SO 149].

Design approval: by the Commission's order F 1(2)(1)/नपा-पंचा/सा.आ./रानिआ/14/578 dated 16.01.2026, the design of EVMs manufactured by BEL and ECIL stands approved [2184, opening para].

Circular 2184 dated 26.02.2026 supersedes the earlier letter 4226 dated 21.10.2019 [2184, opening para]. SO 145/2026 supersedes order 4171 dated 21.10.2019 (SO 121/2019) [SO 145].

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2. Machines: which and how many

2.1 Three models will be used [2184 ¶1]

(SDMM/DMM distinction from [2184 ¶4(i)] and [2184 ¶15].)

⚠️ Button-level procedure in this module is MPSV only — the MPMV and MK-V/M3A manuals are not available. See GAPS §2. Train the polling party on the model it will actually receive.

2.2 Assessment of requirement [2184 ¶2]

For electing a single post (member), MPSV and MPMV machines are used just like single-post-single-vote machines [2184 ¶2].

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3. Secure storage [2184 ¶3]

1. As far as possible keep machines in the treasury; if not possible, in the designated strong room at district level. Where machines are kept, no other material should be present.
2. Normally keep them at district headquarters; otherwise obtain prior permission of the Commission.
3. The storage room/hall must have not more than one entry point; additional doors/windows must be closed with concrete / permanent masonry.
4. The entrance must be secured by a double-lock system, keys held by two separate officers nominated by the DEO; one of them shall not be below the rank of Sub-Divisional Magistrate.
5. The room must be completely free of flood/water seepage/cracks/leakage/broken windows; no dampness, insects or rodents; proper fire-fighting arrangements; machines kept fully secure.
6. Deploy police/security guard and keep adequate security arrangements.
7. Maintain a log book recording opening/closing of the warehouse, movement of machines, physical verification, and intimation to and presence of recognised political parties — to be verified daily by an officer authorised by the DEO.

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4. Register and tracking software [2184 ¶4]

1. Enter all machines in the stock register — each CU and BU, and for MPSV/MPMV also the SDMM and DMM respectively. Record date-wise every election-related activity from receipt of the machine until, after counting, the SDMM/DMM is sealed and separated. For BEL machines — until, after disposal of the election petition or expiry of limitation, the machine is cleared and redeposited in the storage room.
2. Record the unique numbers of CU, BU, SDMM and DMM; and subsequent entries — FLC checking date, date of placing in secure store after checking, type of allotment (for training or for poll), to which officer, for which urban body, whether the machine is defective or working, poll date, in which election used or whether kept in reserve.
3. Enter machines in the EVM tracking software — via esuchi.rajasthan.gov.in using the login-id and password given to districts. Urban-body-wise and ward-wise (by part) randomisation is also carried out through this software. Training on this software has already been given to the district's Sub-Divisional Officers and Master Trainers (MT).

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5. First Level Checking (FLC) [2184 ¶5]

5.1 Who, where, under whose supervision

• FLC is carried out at district level, at district headquarters only [¶5(i), ¶5(iv)].
• Use your own experienced staff who have worked as EVM trainers in past Lok Sabha / Vidhan Sabha elections and have EVM training experience; FLC is done under the supervision of ECIL/BEL technicians or engineers [¶5(ii)].
• Officer-in-charge: a senior officer at district level, not below the level of the Rajasthan Administrative Service [¶5(iii)].
• Videography: the entire FLC process shall be videographed (detailed instructions issued by the Commission's order P.1(4)(1)नपा/रानिआ/14/187 dated 06.01.2026). The CD of the video remains in the DEO's custody. In addition, CCTV cameras shall be installed in the FLC hall so that the DEO can watch the process from their office [¶5(iii)].
• Capacity: normally about 100 machines (BU and CU) can be FLC'd per engineer per day [¶5(iv)].

5.2 Notice to political parties

• Authorised representatives of all nationally recognised political parties shall be called to be present during FLC; the schedule and venue must be communicated in writing, at least 3 days before FLC begins [¶5(iv)].
• Only authorised representatives may attend; their signatures (if willing) are taken in a separate register (Anx-3) [¶5(v)].
• The same notice should also mention that municipality-wise allotment will take place on the last day of FLC [¶7(i)].

⚠️ ¶5 says "nationally recognised" parties, whereas Annexures 3/5/6/7/8/9/10/11 all carry a column headed "Name of National/State Party". Get written clarification from the Commission/DEO on which parties are to be invited — see GAPS §6.

5.3 Hall security [¶5(vi)–(ix)]

• A large hall — big enough to hold machines before, during and after checking, plus engineers, DEO-nominated officers and party representatives.
• The hall must be thoroughly cleaned before use, ensuring it is completely free of any other electronic equipment or any component of such equipment.
• Police force at the entry point; door-frame metal detector; every person entering is searched; entry only on production of a permission letter issued by the DEO or an authorised officer.
• 🚫 No person (including officers and staff) may carry any electronic device such as a cellphone, camera or spy pen into the FLC hall, and no person may carry any item out of the hall.
• ECIL/BEL are fully responsible for the competence, qualification and integrity of their engineers. Only authorised engineers/technical staff are admitted, establishing identity with a photo identity document.

5.4 What the checking covers [¶5(x)–(xiii)]

• Remove address tags and ballot papers from CU/BU, clean writing off them, clear data, inspect carrying boxes and connecting cables for cracks, and verify that machines are fully functional.
• Check all buttons — all candidate buttons on the BU, on-off switch, Cand. Set, Ballot, Close, Total, Result, Clear, the display panel, the beep with each button, the Real Time Clock and the battery pack.
• The manufacturer's authorised engineer shall certify that all components of the EVM are Original — certificate in the prescribed format Anx-4.
• Cast a dummy vote for each candidate on each machine to confirm it is fit and fully working.
• 🚫 No repair in the field. Opening the plastic cabinet in the field is absolutely not permitted. No part of the machine may be changed in the field — this is totally prohibited. Defective machines are kept aside.
• ECIL/BEL engineers may bring only the equipment on the prescribed list into the hall.
• Mock poll during FLC recorded in register Anx-5; its result in Anx-6; party representatives asked to sign (if willing).

5.5 The FLC Pink Paper Seal (Control Unit) [¶5(xiv)–(xvi)]

• To ensure the CU has not been opened after FLC, it is sealed with the special "Pink Paper Seal" printed by Nashik Security Press, in the presence of party representatives.
• The seal is applied on the portion of the CU between the Candidate Set Section and the Result Section.
• ECIL/BEL engineers sign on the seal; party representatives may also sign and write their party name briefly below their signature.
• Party representatives are permitted to note the seal's serial number. A register (Anx-7) records each CU's unique ID number and which Pink Paper Seal number was applied to it.
• Free photocopies of this register go to each recognised party representative as soon as FLC ends; and after the last date for withdrawal of candidature, to the contesting candidates as well, with receipt taken on the register.
• These seals have already been supplied from the Commission's store.

5.6 The yellow sticker (Anx-1) [¶5(xvii)–(xviii)]

A yellow rectangular sticker is pasted on the back of every checked CU and BU, showing — name of district · date of FLC · unique numbers of the CU, BU and SDMM/DMM (if MPSV/MPMV). The Officer-in-Charge (Checking) and the ECIL/BEL technicians/engineers sign the sticker with date, immediately after checking, at the designated place. The stickers are prepared by the Commission and will be allotted with the related material before FLC.

5.7 Daily security during the FLC period [¶5(xx)]

Have a procedure for closing the FLC hall each day and reopening it the next. Machines that have been checked and certified go immediately into a secure custody room. Both the checked machines and the FLC hall are kept under double lock — one key with the DEO, the other with an officer nominated by the DEO. The room is also sealed; a log book records opening/closing and the names, addresses, date, time and purpose of persons entering. No unauthorised person may enter the sealed secure room.

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6. Segregating machines for training [2184 ¶6]

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7. Municipality-wise allotment for the poll [2184 ¶7]

1. After the training machines are set aside, the remaining machines are allotted municipality-wise on a random basis through the EVM tracking software and handed over to the concerned Returning Officers. This allotment takes place on the last day of FLC. Invite party representatives in writing to observe; prepare a record of the proceedings and keep the signatures of those present.
2. Prepare a list of CUs/BUs allotted to each municipality with unique numbers, signed by the DEO-nominated officer and the RO; display it on the notice boards; hand a copy to recognised party representatives and obtain their signatures.
3. After allotment, write the municipality's name on the yellow sticker at the back of the CU and BU, and have the DEO's representative sign with date.

Storage after allotment [¶8]: allotted machines go immediately into a secure custody room at district level; double lock (one key DEO, other with nominated officer); the room is sealed; a log book is maintained; candidates or their representatives may, if they wish, sign or affix their seal on the door; if any political party asks for a photocopy of the log book it shall be provided; prior intimation to parties whenever the strong room is opened. Machines are then moved from district level to municipality level as soon as possible and stored there [¶8(i)–(vi)].

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8. Ward-wise allotment and Commissioning of EVMs [2184 ¶9]

8.1 Timetable

Background: in municipal elections each ward is a constituency; symbols are normally allotted the day after the last date for withdrawal of candidature, and only then can ballot papers be printed [¶9(iii)].

8.2 Who does it

Preparation of machines for the poll is done by BEL/ECIL authorised engineers, at municipality level [¶9(ii)]. It is supervised by the Returning Officer, and the entire preparation process is videographed [¶9(xviii)].

8.3 Notice and attendance [¶9(iv)]

The RO must inform the contesting candidates in advance by written notice of the date, time and place of preparation, and ask them to attend personally or through representatives. The Observer appointed by the State Election Commission must also be informed so they can watch the process. Signatures of candidates or representatives present are taken in the prescribed register (Anx-8).

8.4 Steps of preparation

Ballot Unit [MPSV Ch.4, Ch.7]:

1. Open the unit.
2. Fix the ballot paper properly under the ballot paper screen — each candidate's name and symbol must be directly in front of its corresponding lamp and button. Alignment is an important step; there must be no misalignment in any circumstance, as it will create confusion in the voter's mind [MPSV Ch.4]. The alignment of the candidate panel lines on the ballot paper must be in line with the space designated for the candidate on the Ballot Unit [2184 ¶9(viii)].
3. The Returning Officer shall sign and also affix a seal on the back of the ballot paper [2184 ¶9(v)].
4. Seal the screen from inside the top cover — pass thread through the two holes below the screen; attach the prescribed address tag showing the particulars of the election with the RO's seal [MPSV Ch.4].
5. Mask the unused buttons — white masking tabs on unused buttons, red tabs on the candidate buttons in use [MPSV Ch.4].

   🚨 Mask the END button too — since MPSV/MPMV are being used to elect only the member post, there is no possibility of partial voting [2184 ¶9(xxi)]. (This overrides the general instruction in the ECIL manual.)

6. Set the slide switch [2184 ¶9(vi)–(vii)]:

Once the BU top cover is closed, the slide switch position cannot be changed [MPSV Ch.3]. 7. Seal the Ballot Unit — bring the top cover to its original position; tie one thread through the three holes above and one through the three holes below; seal each with an address tag showing the election particulars along with the RO's seal [MPSV Ch.4]. 8. If more than one BU is used, repeat steps 1–7 [MPSV Ch.7].

Control Unit [MPSV Ch.4, Ch.7]:

1. Open the unit; ensure the power switch is Off.
2. Fit a new battery pack (open the Candidate Set Section cover by pressing the left latch slightly inward); fit it minding the pins and press it firmly.
3. Fit the SDMM — carefully into the female socket, minding the structure and alignment of the male pins; ensure it is pressed properly.
4. Connect the required number of BUs to each other and to the CU (see 8.5).
5. Switch the CU ON.
6. Set the Ward No. and Booth No. using Cand. Set.
7. Set the number of posts and the number of candidates contesting for each post using Cand. Set.

   The machine accepts Cand. Set only if the old data has been deleted from it [MPSV Ch.3].

8. Switch the unit off; disconnect the Ballot Units from the CU.
9. Seal the Cand. Set compartment; seal the Cand. Set section.
10. As soon as preparation is done, seal and sign the Candidate Set section of the BU and CU with the RO's tag, and ask the candidates/representatives present to sign as well [2184 ¶9(v)].
11. Close the CU in its carrying box and seal it [MPSV Ch.7].

8.5 BU–CU connection [MPSV Ch.4]

• CU to BU: open the CU rear-side compartment by pressing with the thumb; ensure the power switch is Off; hold the CU vertically while connecting; minding the “TOP” marking on the BU's 9-pin male socket and the red and black strip on the side, connect by pressing the connector hood; press the hood inward for a firm fit; close the door.
• BU to BU: place the BU horizontally and inverted; open the rear female-connector compartment door; align the male connector minding the red and black strip — its ‘TOP’ side must face inward into the BU; then close the door.
• To remove: open the door → switch the CU Off → press both latches of the connector hood together → pull the connector out → close the door.

An improper connection produces a Link Error [MPSV Ch.4]. 🚫 Do not connect/disconnect the BU while the CU is ON; do not insert/remove the SDMM while the CU is ON [MPSV Ch.7].

8.6 Mock poll during commissioning [2184 ¶9(xii)–(xiv)]

• On 5 per cent of the machines, 50 votes shall be cast on each machine.
• On the remaining machines, votes may be cast to the candidates' satisfaction and as time permits.
• Candidates themselves may also cast votes.
• Signatures of candidates/party representatives regarding the mock poll in Anx-9.
• After the mock poll, complete the process of showing the printout of results on the machines and obtain signatures in Anx-10.

  For a printout, the EVM decoder printer is connected to the DI connector and RESULT-II is used; the result must be displayed by pressing RESULT-I at least once first, otherwise INVALID OPERATION is displayed [MPSV Ch.3].

8.7 The commissioning Pink Paper Seal (Ballot Unit) [2184 ¶9(xv)–(xvii)]

• Ensure the Pink Paper Seal applied on the CU at FLC remains secure and is not damaged during preparation.
• The Ballot Unit is also sealed with a special "Pink Paper Seal", in the presence of candidates or their representatives.
• The seal is applied on the lowest part of the BU, so that no candidate's name or symbol is covered.
• ECIL/BEL engineers sign on the seal; candidates/representatives may also sign and write their own and their party's name below.
• Candidates/representatives may note the seal's serial number; the register (Anx-11) records each BU's unique ID number and the serial number of the seal applied. On completion of preparation, free photocopies are given to contesting candidates, with receipt taken on the register.

8.8 Other points [2184 ¶9(ix)–(xi), (xix)–(xxii)]

• Give candidates/representatives the list of machines prepared for the ward (with unique numbers and the allotted polling station) then and there, and obtain their signatures. After completing this for one ward, prepare machines for other wards one ward at a time.
• For wards with few polling stations, arrange reserve machines according to availability and circumstances.
• Ensure that the actions described in ¶5(v) to (viii) are also carried out here.
• Use only white stickers/address tags on CU and BU; the ward member ballot paper is white.
• 🚫 Take special care that ward-wise prepared machines do not get mixed during storage.

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8a. Safe custody of prepared voting machines [2184 ¶10]

This is a separate stage from ¶8. ¶8 = storage after FLC and municipality-wise allotment; ¶10 = custody of prepared machines after commissioning.

⚠️ A small but real difference: prior intimation before opening the strong room is to be given to political parties under ¶8(v), and to candidates under ¶10(iv). Comply accordingly at each stage.

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9. Distribution to polling parties [2184 ¶11]

1. If the place where prepared machines are kept differs from the distribution venue, inform the Observer and the candidates in advance of the transport schedule; provide proper security in transport and adequate security at the distribution venue.
2. Obtain receipt signatures from Presiding Officers; keep an adequate record of which machine was given for which polling station; while handing over, ensure all seals on the machines are secure.
3. Tell the Presiding Officers to check that the machine number matches the sticker at the back of the machine and the entries on the address tag.
4. If any machine is replaced before or during the poll at a polling station, written information shall be made available to the candidates.

RO's register [¶12]: details of all machines received for the municipality's poll — which CU/BU was used at which polling station of which ward, in which election it was used, which CU/BU was replaced; and details of machines received back after the poll.

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10. Safe custody after the poll [2184 ¶13]

1. Since counting is to be held at municipality headquarters, after the poll the machines are kept in safe custody at the counting venue at municipality headquarters. The strong room is kept sealed by the RO. Candidates or their election agents are permitted to affix their own seals on the strong room doors/windows and to keep watch from a sufficient distance.
2. CCTV cameras at suitable places for strong room security.
3. Fire safety measures in the strong room.
4. Two-tier security at the strong room and the counting premises.
5. A ward-wise and polling-station-wise list of allotted CUs displayed on the notice board in the counting hall during counting.
6. In case of re-poll — the machine originally used at that polling station is also kept in the strong room, with a clearly marked tag “गणना नहीं करनी है” (not to be counted) affixed on that CU, and it is kept sealed. The new machine used for the re-poll carries a clearly marked tag “पुनर्मतदान की वोटिंग मशीन — गणना की जानी है” (re-poll voting machine — to be counted). Both tags are signed by the RO.

Videography [¶14]: for transparency — preparation of the voting machine, sealing of the machine, sealing of the strong room, opening of the strong room and similar processes shall be videographed. The record is maintained properly as election record, and a certified copy may be issued like any other record.

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11. Operating the machine at the counting venue

⚠️ The detailed counting procedure is not in this module — it is governed by the circular dated 09.03.2026, which was not read for this module. See GAPS §4. Below is only what is stated in [MPSV Ch.6] and [2184].

1. At the counting venue only the Control Unit is required to ascertain the result; nevertheless the BU should be kept with the CU. The BU is taken into the counting hall only if a candidate or their election agent demands its inspection [MPSV Ch.6].
2. Only after checking the seals should they be removed and the CU taken out of the carrying case; check the Candidate Section, Result Section and long strip seals, then remove them; open the Result Section cover — the pink paper seal with two holes will be visible below the RESULT-I and RESULT-II buttons [MPSV Ch.6].
3. If the pink paper seal is intact, it means the Control Unit has not been tampered with. If any of the other seals — on the carrying case, the Candidate Set Section or the Result Section — is found damaged but the pink paper seal is intact, the result of that polling station may be declared [MPSV Ch.6].

   🚨 If the pink paper seal is found tampered with, set the Control Unit aside and do not attempt to ascertain the result of the votes recorded in that unit [MPSV Ch.6].

4. If the seal is intact, switch the power ON → green lamp glows. Tuck in the pink paper seal over the RESULT-I button and press RESULT-I; the result is displayed. RESULT-I may be pressed any number of times to note the result [MPSV Ch.6].

   🚫 Do not break or open the special tag seal of the inner compartment of the Result Section [MPSV Ch.6].

5. After noting the result, switch the CU off, close the Result Section cover and seal it with the RO's seal and the signatures of candidates/agents [MPSV Ch.6].

   🚨 Switch the Control Unit off before removing the SDMM [MPSV Ch.6].

6. Remove the seals of the outer and inner compartments of Cand. Set and open the door; take out the battery pack and the SDMM; re-seal the Cand. Set section cover and put the CU back in its carrying case [MPSV Ch.6].

   🚨 Important (circular 2292 dated 09.03.2026, ¶29(1)): the MPSV/MPMV EVMs manufactured by ECIL are NOT to be sealed — only the SDMM and DMM used in them are sealed. After sealing, the machine can be re-used in a forthcoming poll with a new SDMM/DMM. The Rule 63-ख procedure for re-sealing a Control Unit applies to the non-ECIL (BEL) machines [2292 ¶29(2)]. See §17 of the Counting module for the detail.

7. Sealing of SDMM/DMM — all election data is stored in the SDMM, so it must be sealed as per the procedures prescribed by the Commission, in respect of which separate instructions have been issued [MPSV Ch.6], namely the Commission's letter 705 dated 20.01.2026 (SDMM) and letter 826 dated 23.01.2026 (DMM) [2184 ¶15].

   🚨 Neither letter is available — the actual sealing method cannot be stated in this handbook. Obtain it from the Commission/DEO before training. See GAPS §3.

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12. After counting [2184 ¶15–¶17]

• Reserve machines — deposited in the district warehouse without delay.
• Machines used in the poll — kept in the RO's safe custody at the treasury / designated place at district headquarters.
• The limitation for filing an election petition in municipal elections is 30 days.
• If a petition is filed → machines remain in sealed safe custody until three months after disposal of the petition; and in case of appeal, until disposal of the appeal.
• In wards where no petition is filed and no election-related matter is in court → machines are cleared 30 days after declaration of results.
• “Clearing” means: removing the seals of the machines, removing the information from the Control Unit, removing the battery, and removing the ballot paper displayed in the Ballot Unit.
• For MPSV/MPMV, the SDMM/DMM is removed from the CU and sealed (per letters 705 / 826); the CU and BU are returned by the RO to the DEO for use in forthcoming elections.
• The Commission's standing order 1600 dated 11.02.2026 (SO 158/2026) is to be followed in this matter.
• Machines received on loan are to be returned to their place [¶16].
• Security: the DEO bears full responsibility for keeping EVMs secure at the designated places and at each different stage; the DEO shall coordinate with the concerned police officers to ensure proper security [¶17].

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13. Prescribed formats (Annexures to circular 2184)

Columns in Anx-1 (yellow sticker) — for the Ballot Unit: Name of District · Ballot Unit No. · First Level Check Date · Date & Sign. of Checking Official · Name of Municipality · Name of Post · Date & Sign. of DEO's representative · Deployment Status – Ward No. · Polling Station No. · Date & Sign. of RO/ARO. For the Control Unit, the above plus: Name of Election · Control Unit No. · SDMM No. (In case of MPSV EVM used).

Anx-2 (pink round sticker) — “Municipal Elections / Training / Control Unit No………… / Sign. of DEO's Representative” (and the equivalent for the Ballot Unit).