INTRODUCTION
The accountability and legitimacy of a fair and democratic election depend not merely on the conduct of polling or the management of polling booths, etc., but also on the accuracy and inclusiveness of the electoral roll. However, errors in electoral rolls-whether through wrongful inclusion or exclusion-have a direct impact on electoral integrity in democratic institutions.
As India is the world’s largest democracy, it faces regular and distinctive challenges in maintaining accuracy in electoral rolls due to its huge population and its mobility, urbanization, migration, demographic changes, and administrative barriers. To address these issues, the Election Commission of India regularly undertakes revisions of electoral rolls. Among these procedures, the Special Intensive Revision (SIR) occupies major importance as it involves a comprehensive verification process that intends to ensure that only eligible voters remain enrolled while others shall not be included.
The debate in today’s times is surrounding over Special Intensive Revision has intensified in today’s times because of raising concerns regarding electoral integrity on one side and voter exclusion on the other side. This research examines and analyzes the historical evolution, constitutional foundations, and contemporary need for Special Intensive Revision within India’s electoral democracy.
HISTORICAL EVOLUTION OF ELECTORAL ROLL REVISION IN INDIA
The preparation, maintenance, and revision of electoral rolls have been an integral component of India’s electoral system since the adoption of the Constitution of India on 26th January 1950. The framers of the Constitution recognized the Universal Adult Franchise as a crucial component to be accompanied by accuracy under voter registration mechanisms in India.
As noted, dynamic demographic changes necessitate regular updating and verification. Historical records indicate that the intensive revision exercises were conducted during 1952-56, 1957, 1961, 1965, 1966, 1983-84,1987-89, 1992, 1993,1995, 2002, 2003 and 2004.[1] These exercises aimed to remove duplicate registrations, include newly eligible voters, and update records for deceased or migrated electors.
However, a major milestone occurred in the 1993 intensive revision, as it is linked with the introduction of the Elector’s Photo Identity Card (EPIC). It was first introduced in 1993 when T.N. Seshan was holding the post of Chief Election Commissioner, marking it as a revolutionary change in the Indian electoral system. It facilitated the collection of photographs and biometric information necessary for EPIC production, reducing the possibility of impersonation and electoral fraud.[2]
More apparently, the constitutional commitment to universal adult suffrage under Article 326 required the establishment of accurate electoral rolls, as well the statutory authority for conducting such exercises derives primarily from Section 21(3) of the Representation of the People Act, 1950, which says that “the Election Commission may at any time, for reason to be recorded, direct a special revision of the electoral roll for any constituency in such manner as it may think fit”[3] , which empowers the Election Commission to direct a special revision of electoral rolls whenever circumstances so require.
CONSTITUTIONAL AND STATUTORY FRAMEWORK
The Constitution of India provides the concept of electoral roll revision in Article 324, 325, and 326, which are stated by the following analysis:
- Article 324: Superintendence, Direction and Control of the elections to be vested in an Election Commission
This Article gives the Election Commission the power of “superintendence, direction and control” of elections. This provision vests the Commission with a broad constitutional authority to undertake measures necessary for ensuring free and fair elections.
As well, in the Case of Mohinder Singh Gill v. Chief Election Commissioner[4], the Honorable Supreme Court held that Article 324[5] confers plenary power upon the Election Commission to act in situations where statutory provisions are inadequate, provided such actions further the constitutional objective of conducting free and fair elections.
- Article 325: No person to be ineligible for inclusion in, or to claim to be in a special, electoral roll on the grounds of religion, race, caste or sex.
This Article shows the constitutional commitment to maintain electoral equality and non-discrimination by prohibiting exclusion from electoral rolls on the grounds of religion, race, caste, or sex.[6]
- Article 326: Elections to the House of the People and to the legislative assemblies of states to be on the basis of adult suffrage.
This Article 326[7] establishes Universal Adult Suffrage and provides that every citizen who has attained the mentioned age, by law, shall be entitled and have the right to cast the vote, subject to disqualification made by law. Thus, the Constitution subject to this provision, simultaneously requires the inclusion of eligible voters and exclusion of ineligible persons.
Moreover, The Constitutional framework is supplemented by Section 16 (Disqualification for registration in an electoral roll), Section 19 (Conditions for Registration), Section 21 (Preparation and Revision of Electoral Rolls) of the Representation of the People Act, 1950, with the Registration of Electors Rules, 1960.[8] These provisions regulate the eligibility, disqualification, registration, and revision procedures concerning electoral rolls.
JUDICIAL PERSPECTIVE ON ELECTORAL ROLLS
There are major precedents that emphasized the constitutional significance of electoral rolls.
In the case of Lakshmi Charan Sen v. A.K.M. Hassan Uzzaman,[9] the Honorable Court observed that electoral rolls constitute the basis of the electoral process and that defects on rolls should be ordinarily corrected through statutory mechanisms rather than be disrupting elections.
Furthermore, in the case Election Commission of India v. Ashok Kumar,[10] the Honourable Court ruled that free and fair elections form an essential component of India’s constitutional framework and that electoral authorities possess broad powers to preserve the purity of elections.
Similarly, in the case of Indrajit Barua v. Election Commission of India,[11] the Honourable Supreme Court recognized the importance of accurate electoral roll preparation in preserving democratic participation.
These judgments show that maintaining accurate electoral rolls is not only an administrative concern but also a constitutional necessity to ensure democratic governance.
NEED FOR SPECIAL INTENSIVE REVISION IN CONTEMPORARY TIMES
There are major concerns which elevated the need for Special Intensive Revision, as analyzed through various reports of different states all over India.
- Elimination of Duplicate Entries
The Bihar Special Intensive Revision of 2025 illustrates this concern. Bihar had not undergone a comprehensive intensive revision since 2003, and demographic changes, migration, and outdated records necessitated large-scale verification. During the exercise, authorities identified duplicate registrations, shifted electors, and individuals who could not be traced at their registered addresses.[12]
Similar challenges have been observed in other urbanizing states, particularly their metropolitan region like Hyderabad in Telangana and Bengaluru in Karnataka, where the level of migration is high due to workforce mobility, which requires frequent updating of electoral rolls.[13]
- Removal of Deceased and Ineligible Electors
While the revision procedure in Bihar, election officials reported the identification of deceased electors and persons whose whereabouts could not be verified.[14] Similar concerns have been reported in states like Uttar Pradesh and West Bengal, where revision procedures have revealed substantial discrepancies arising from delayed updating.
- Inclusion of Newly Eligible Voters
Recognizing this objective, electoral authorities across several states have undertaken targeted enrolment campaigns. In states like Kerala and Tamil Nadu, special voter-awareness programmes have been conducted to encourage registration among first-time voters.
- Strengthening Electoral Integrity and Public Confidence
This concern has been specifically visible in states like Maharashtra and the National Capital Territory of Delhi, where political parties have periodically raised allegations relating to electoral roll discrepancies and voter-list management. Electoral authorities have responded through verification drives and technological measures which improve the reliability of voter records.[15]
- Electoral Inclusion in Conflict-Affected Regions
This concern was seen during the 2026 SIR exercise in Manipur. The Kuki Inpi Manipur (KIM), which represents the Kuki-Zo community, expressed concerns that thousands of internally displaced persons affected by the ethnic violence that began in 2023 could face difficulties participating in the revision process. Although KIM later clarified that it was not opposed to the principle of SIR, it emphasized that the exercise must accommodate the realities of conflict-induced displacement.[16]
FINAL ANALYSIS
The relevance of Special Intensive Revision at contemporary times is undeniable due to rapid urbanization, migration, and demographic transformation. Technological advancements such as digital voter records and improved data analytics ensure more accuracy and transparency. However, technology alone cannot resolve constitutional concerns regarding voter exclusion.
The success of SIR depends upon adopting a citizen-centric approach that combines administrative efficiency with procedural fairness. To strengthen democratic participation, transparent verification procedures, public awareness campaigns, and effective grievance redressal mechanisms are essential.
CONCLUSION
Contemporary developments, particularly the Bihar SIR of 2025, demonstrate both the necessity and complexity of such exercises. While accurate electoral rolls are indispensable for democratic legitimacy, electoral integrity cannot be pursued at the cost of voter disenfranchisement.
Ultimately, the constitutional success of Special Intensive Revision lies in achieving a balance between two major democratic objectives: ensuring that only eligible citizens can vote and also ensuring that every eligible voter is able to vote. Moreover, rooted in Articles 324, 325, and 326 of the Constitution and supported by the Representation of the People Act, 1950, SIR reflects the constitutional commitment to free, fair, and inclusive elections. A transparent, technology-driven, and rights-sensitive revision process can strengthen both electoral credibility and democratic participation.
Author(s) Name: Chetna Gaba (University of Punjab, Bathinda)
References:
[1] Haripada Dhara, ‘Importance of Special Intensive Revision of Electoral Rolls in Indian Society’ (2025) 13(11) International Journal of Creative Research Thoughts C58.
[2] Ibid.
[3] Representation of the People Act 1950, s 21(3).
[4] Mohinder Singh Gill v Chief Election Commissioner (1978) 1 SCC 405.
[5] The Constitution of India, art 324
[6] The Constitution of India, art 325
[7] The Constitution of India, art 326
[8] Representation of the People Act 1950, ss 16, 19 and 21; Registration of Electors Rules 1960.
[9] Lakshmi Charan Sen v A.K.M. Hassan Uzzaman (1985) 4 SCC 689.
[10] Election Commission of India v. Ashok Kumar 2000 (8) SCC 216
[11] Indrajit Barua v. Election Commission of India (1985) 1 SCC 21.
[12] Election Commission of India, Special Intensive Revision in Bihar: Instructions Issued on 24 June 2025 (24 June 2025) < https://www.pib.gov.in/PressReleasePage.aspx?PRID=2139342®=48&lang=2 > accessed 23 July 2026.
[13] Chief Electoral Officer, Karnataka, Special Summary Revision of Electoral Rolls for Bengaluru Urban Constituencies 2023–24 < https://ceokarnataka.kar.nic.in > accessed 23 July 2026
[14] Election Commission of India, Press Notes on Special Intensive Revision (SIR) 2025
[15] Election Commission of India, Reports on Electoral Roll Verification in Maharashtra and Delhi.
[16] ‘Manipur: Kuki Organisation Opposes Ongoing SIR, Protests Alleged Exclusion of IDPs’ The New Indian Express (4 June 2026) < https://www.newindianexpress.com/india/2026/Jun/04/manipur-kuki-organisation-opposes-ongoing-sir-protests-alleged-exclusion-of-idps > accessed 23 July 2026.