SIMULTANEOUS ELECTIONS: MEANING, CHALLENGES AND WAY FORWARD

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Context

The Lok Sabha has extended the deadline for the joint committee examining the Constitution (One Hundred and Twenty-Ninth Amendment) Bill, 2024, and the Union Territories Laws (Amendment) Bill, 2024 (bills aimed at implementing simultaneous elections) until the first day of the last week of the Winter Session, 2025.

What are Simultaneous Elections?

Simultaneous elections, also referred as "One Nation, One Election," is the concept of holding elections for the Lok Sabha and all State Legislative Assemblies at the same time.

Voters would cast their vote for both national and state representatives on a single day or in phases across the country to manage the process effectively.

The idea, however, generally excludes the third tier of government, which includes local bodies like Panchayats and Municipalities, due to the complexity and the fact that these elections are a state subject.

Evolution of Simultaneous Elections debate in India

First four general elections after independence—in 1951-52, 1957, 1962, and 1967—were held simultaneously for the Lok Sabha and State Assemblies, latter disrupted due to several factors, including:

• Dismissal of the Kerala government in 1959 under Article 356 of the Constitution.
• Premature dissolution of some State Assemblies in 1968 and 1969.
• Early dissolution of the Lok Sabha in 1970.
• Rise of regional parties and the end of the single-party dominance of the Congress party.

Idea of returning to simultaneous polls has been recommended by various bodies over the years:

• 1983: Election Commission of India first proposed the idea in its annual report.
• 1999: Law Commission, in its 170th report, advocated for a return to simultaneous elections.
• 2015: Parliamentary Standing Committee on Personnel, Public Grievances, Law and Justice submitted a report on the feasibility of holding simultaneous elections.
• 2017: NITI Aayog released a discussion paper analyzing the "what, why, and how" of simultaneous elections.
• 2023: The Union government formed a high-level committee headed by former President Ram Nath Kovind to examine the feasibility of the 'one nation, one election' plan.

Kovind Committee (2024) Recommendations  

Constitutional Amendments: Identified several articles that need amendment:

• Article 83 (Duration of Houses of Parliament) and Article 172 (Duration of State Legislatures): These articles, which define the five-year term of the Lok Sabha and State Assemblies, would need to be amended to synchronize the terms of all houses.
• Article 85 (Dissolution of Lok Sabha) and Article 174 (Dissolution of State Assemblies): Ensure that if a house is dissolved prematurely, the new election is only for the remainder of the original five-year term, to ensure the election cycle remains synchronized.
• Article 356 (President's Rule): Amendment to restrict its use and ensure it doesn't disrupt the election cycle.
• Representation of the People Act, 1951: Governs the conduct of elections, modifications required to accommodate a single electoral process.
• Article 324A (Proposed): To grant Parliament the authority to coordinate local body elections with general elections.
• Article 82A (Proposed): To set the foundation for the transition to simultaneous elections.

Two-Step Transition:

• Step 1: In the first step, elections for the Lok Sabha and all State Legislative Assemblies will be held together.
• Step 2: Within 100 days of the step 1, elections for all Municipalities and Panchayats will be conducted.

Single Electoral Roll: Creation of a single electoral roll and voter ID card for use in Lok Sabha, State Assembly, and local body (Panchayat and Municipality) elections. This would require a new constitutional amendment, and would need to be ratified by at least half of the states.

Constitutional Amendment: Committee drafted a constitutional amendment bill to give effect to its recommendations, stressing the need for ratification by the states.

Steps taken to implement simultaneous elections

Legislative Push: In December 2024, government introduced the Constitution (129th Amendment) Bill, 2024, in the Lok Sabha, proposes amending constitutional articles, such as Article 83 (Duration of Houses of Parliament) and Article 172 (Duration of State Legislatures), to synchronize their terms.

• Mechanism for Synchronization: Bill proposes that if the Lok Sabha or a State Assembly dissolves mid-term, the newly elected house will only serve for the remainder of the original five-year synchronized term. For example, if a government collapses after 3 years, the new election would be for the remaining 2 years to realign with the national cycle.

Current Status: Bills were referred to a Joint Parliamentary Committee (JPC) for scrutiny. In August 2025, the JPC received an extension to submit its report.

What are the benefits of Simultaneous Elections?

Reduce Election Expenditure: Frequent elections lead to massive costs for the government, political parties, and candidates. For example, the 2019 Lok Sabha elections cost the exchequer over Rs. 4,000 crore. Simultaneous polls could reduce these expenses.

• The Centre for Media Studies (CMS) reports the overall cost (expenses by parties and candidates) of the 2024 elections could be as high as ₹1.35 lakh crore, more than double the amount spent in the 2019 elections (60,000 cr). 

Improve Governance and Reduce Policy Paralysis: Imposition of the Model Code of Conduct (MCC) during elections halts new development projects and policy announcements, leading to "policy paralysis."

• Synchronized elections would minimize the frequency of the MCC, allowing governments to focus on governance for an uninterrupted five-year term.

Efficient Use of Manpower and Security Forces: Deployment of administrative staff, teachers, and security forces for election duty, divert them from their regular duties. Holding elections together would lead to a more efficient use of the manpower.

Boost Voter Turnout: Some studies and reports, including one from the Law Commission, suggest that simultaneous elections could lead to higher voter participation, by reducing voter fatigue and making participation more convenient. 

Check on Populist Measures and Freebies: Constant cycle of elections prompts ruling parties to announce populist schemes for short-term electoral gains rather than focusing on long-term, sustainable development.

What are the challenges in Implementing "One Nation, One Election"?

Constitutional/Legal Hurdles: Amending the Constitution to shorten or extend the terms of existing legislatures is a complex process that requires a two-thirds majority in Parliament and ratification by at least 50% of the states.

Logistical Challenges: Holding nationwide elections at once would require a massive increase in the number of Electronic Voting Machines (EVMs) and Voter Verifiable Paper Audit Trail (VVPAT) machines, deployment of security forces also need to be scaled up.

Impact on Federalism and Regional Parties: National issues could overshadow local and regional concerns, potentially benefiting larger national parties at the expense of regional ones.

• An IDFC Institute study found a 77% chance that the winning party would win both state and central elections when held simultaneously.

Voter Behavior: Possibility that voters may not be able to differentiate between national and state-level issues, leading to a "coattail effect" where a popular national leader can pull their party to victory in state elections as well.

Maintaining Synchronization: Biggest challenge is what to do if a government at the center or in a state falls mid-term. Dissolving all assemblies for a fresh election would be chaotic and expensive.

Way Forward for "One Nation One Election"

Build Political Consensus: Develop a broad political consensus among all parties, as this is a fundamental change to the democratic process.

Phased Implementation: The NITI Aayog and the Parliamentary Standing Committee have suggested a phased synchronization. For example, elections could be held in two phases—one along with the Lok Sabha elections and the other in the mid-term of the Lok Sabha.

Legal Framework: A comprehensive legal framework must be created to address scenarios like hung assemblies and no-confidence motions to ensure the election cycle is not disrupted.

Public Awareness: A massive public awareness campaign would be needed to educate voters about the new system.

What India can learn from other countries

• South Africa: Holds national and provincial elections simultaneously every five years. Municipal elections are held two years later.
• Germany: The concept of a "constructive vote of no-confidence" ensures government stability. A Chancellor can only be removed if a successor is simultaneously elected.

Conclusion

"One Nation, One Election" proposal, seeks to synchronize national and state elections, presents a complex balancing act between the potential benefits of administrative efficiency and cost reduction against challenges concerning federalism, logistical complexities, and the possible dilution of regional issues and voices.

Source:  INDIAN EXPRESS