Mohan Raj v. Surendra Kumar Taparia & Ors.

630 MOHAN RAJ _v._ SURENDRA KUMAR TAPARIA & ORS. _August_ 12, 1968 [M. H!DAYATULLAll, C.J. AND G. K, MITTER, J.] _Representation_ _of_ _tlie People A.ct_ (43 _of_ 1951), sr, 79, 82(b) _and_ 86(1 _)-'Candidate',_ _if_ _includ·?S_ _a candidate who hes_ _withdrawn-Code_ _of_ _Civil Procedure_ _(Act_ _V_ _of_ 1908), _OJ._ _r._ 10 _and O.V!._ _r._ _17-Non-joinder_ _of_ _necessary party lo_ _election petition-Wht!tlter_ _petition can_ _be saved_ _by_ _amendment_ _or_ _striking out parties._ A B Seven candidates were duly nominated for election from a Parliamen tary constituency, but cwo of the candidates withdrew. The fir.it r<sPoD- C deat, who was one of the remaining five contesting candidates. was declared elected. His election was challenged on variou• grounds by the appellant who was an elector. To the petitioo, only the returned candidate (first respondent) and the other four contesting candidates were made parties. On the first respondent's objection that the allegations were vague, the appellant amended his petition. In his amended petition, v.ith respect to one of the grounds, namely, offering bribes lo voters, the appellant gave instances of hribes having hccn offered or paid by the firsr D respondent, his election agents. and others. Two persons were referred to as the c1cction agents of the first respondent. One of them wa.c; one of the candidates who had withdrawn and who was not made a party to the election petition. The first respondent in his written statement contended that the petition should be dismissed under s. 86(1) of the Rcpn-"SCntation of the People Act, 1951, as the candidate again<t whom cdrrupr practices were alleged and who was a necessary party under s. E X2(h) \\'a." not made a party to the election pcti1ion. The appelhint then filed an application for amendment of his petition wherein he stated that by 'election agent' he never meant tbe candidate who had w'tbdrawn. that there v,;as never any intenrion to make any allegation." against that candidate and that his name may be deleted from the petition, as be was _not_ :he first respondent's election agent and reference to him was made by inadvertence. The High Court dismissed the election petition under s. 86(1). .. Jn appeal to this C<>urt, HELD : (I) A candidate who is duly nominated continues to be a candidate fdr purpOSC'i of s. 82(b) in •i>ite of withdrawal, and if he is not joined as a party when alle-.gations of corrupt practice are made agninst him, the election petition shall be di.missed under s. 86(1). [634 D, F; 635 FJ _Amin/al_ v. _Jfunna Mal._ [1965] 1 S.C.R. 393 and _Har Swarup_ v. _Brij_ _flhushan Saran,_ [1967] I S.C.R. 342, followed. _Chat11rbl111j_ v. _Election Tribunal, Kanpur,_ (1958) 15 E.L.R.' 301. approved. (2) The record showed that allegations of corrupt practice were made again;t !he candidate who had withdrawn. It could not be contended by the appellant that the allegations were made against him not as a candidate hut in the character of an election agent, becatLo;e, the appellant had him.<elf stated :n his application for amendment that the candidate who had withdra\\'n \Vas _not_ the election agent of the first respondent. 'Therefore, the G H MOHAN _v._ SURENDRA _(Hida:yatu/lah,_ C.J.) 631 A allegations were made against an individual who was a candidate within the meaning of s. 82(b) and who had to be joined as a necessary party to the election petition. [634 B.C; 636 F-Ol **B** ## \ . #### " (3) The Cou'rt cannot use 0. VI, r. 17 or 0. I, r. 10 of the Ovil Procedure Code to avoid the consequences of non-joinder for which a, special provision, namely s. 86, is foUDd in the Act. The Civil Pro~~ Code applies to the trial of election petitions only subject to the proVISIOO of the Representation of the People Act and the rules, made thereUDder. **B** When the Act makes a person a necessary party and provides that the petition shall be dismissed if he is not joined, ·the power in the Code, of amendment or to strike out parties. cannot be used at all. If the deletion prayed for by the appellant was granted, every election petition can be saved by amendment and the provisions of s. 86(1) and the policy of the law will be defeated. [636 A.C, D-E] #### c CIVIL APPELLATE JURISDICTION: Civil Appeal No. 1801 of **D** E **F** **G** **H** 1967. Appeal under s. 116-A of the Representation of the People Act, 1951 from the judgment and order dated October 10, 1967 of the Rajasthan High Court in Election Petition No. 13 of 1967. _R. M._ _Hazarnavis_ and _B._ _R._ _Agarwala,_ for the appellant. _S._ _V._ _Gupte, Sardar Bahadur Saharya, Vishnu Bahadur_ _Saharya_ and _Yogindra Khusalani,_ for respondent No. 1. _H. K._ _Puri,_ for respondent No. 2. The Judgment of the Court was delivered by **Hidayatullah,** CJ. This is an appeal by the unsuccessful election petitioner against the judgment of the High Court of Rajasthan dated October 10, 1967. The election petition was filed to challenge the election of the first respondent at the Pali Parliamentary Constituency in the Fourth General Elections. At that election seven nomination papers were filed., Two of the candidates withdrew. Amongst them was one R. D. Periwal. There were thus only five contesting candidates. Of these, the first respondent obtained 1,4 7,509 votes. His closest rival respondent No. 2 (now deceased) obtained 1,21,438 votes. Tue remaining candidates got a little over thirty thousand votes between them. The election petitioner (appellant here) is an elector of Pali. In his petition he joined the returned candidate and the other four contesting candidates. Many grounds were urged in the petition. The first ground was that the returned candidate or his election agent prompted hatred against the Congress, appealed to religion and sent persons dressed as _Sadhus_ preaching that if Congress was returned to power there would be _go-hatya_ and took pledges or oaths from the voters. The second was that the returned candidate and his election agent were guilty of suppression of true expenses anct filed false returns. The third ground was that the candidate or his election agent obtained the services of Government servants in furthering the election of the returned candidate. 632 SUPREME COURT REPORTS [ 1969) I S.C.R. The last ground was that the returne<l candidate and his election A agent and other persons with the consent of the returned candidate paid and offered bribes between January 13, 1967 to February 14, 1967 to induee the electors directly or indirectly to vote for the returned candidate. Tiie petition was scrutinio;ed and was found to be in order. ##### 1bc returned candidate entered appearance on May 15, 1967 and filed a written statement a month later. He took the objection that the allegations were vague and lacking in necessary parti· cu.Jars. The High Court thereupon ordered better and fuller particulars on _July_ 2, 1967. The election petitioner was asked to file an application for amendment and a draft of the amended petition. This wa' done but there were objections. The objections were decided on August 1, 1967. Some of the allegatiom of corrupt practices were deleted for want of sufficient particulars. The other amendments were allowed. Para. 16 of the petition in the amended form read as follows: B #### c "That the respondent No. l and his election agents **D** Messrs. R. D. Pcriwal and Shri Lunia and other persons with the consent of the respondent No. l paid and offered bribes between 13-1-67 to 20-2-67 with the object of inducing directly or indirectly electors to vote for respondent No. I. The following amongst other arc some of the ins- I **tanccs"** (Instance' were mentioned) On August 24, 1967 written statement was filed in which an objection was taken that as R. D. Periwal, against whom corrupt practices had been alleged, was not joined as a party, the petition was liable to be dismissed under s. 86(1) of the Representation of the People Act. This preliminary objection wa' heard by the Judge on August 29, 1967. Same day an application for an1endment of the election petition was filed. It was stated in the election petition that the election petitioner had gathered the impression that lndcr Kumar Lunia was the election agent. from a telegram ~-ent by Lunia; that the name of R. D. Pcrlwal in paragraph 16 crept in because of 'uncertainty and inadvertence' and the reference to election agent 'came to be made in an omnibus. manner'. What this statement means _is_ not very clear. However, it was pointed out that there was no intention to make any allegation against R. D. Periwal but two or three allegations of corrupt practice were imputed to Lunia. A request wa~. therefore, made that the reference to 'election agent' in all the paragraphs charginl! corrupt practices should be deleted and it was specifically prayed that the name of R. D. Periwal in paragraph 16 should also be F G. H _>_ '· A B #### c D E F G H MOHAN _v._ SURENDRA _(Hida:yatullah,_ C.J.) 633 deleted. In short it was intended to withdraw allegations against Penwal. This application was not separately considered by the High Court but the election petition itself. was dismi~ under· s. 86( 1) since Periwal, who was a duly nommated candidate (who ##### withdrew later), had to be compulsorily joined under s. 82 (b) if allegations of corrupt practice against him were made. It will be noticed therefore, that in the original election petition alleoations were 'made against the returned candidate _or_ his election ~gent. Two of the allegations of corrupt practice were against the returned candidate _and_ his election agent. They :W~re charges of taking assistance of Govermnent servants and bnbmg voters. In connection with the bribery charge, no names were mentioned. In his reply to the petition the returned candidate denied the charges in respect of himself and his election agents (using the plural). In the amended petition, in one place, the returned candidate _and_ his election agent were mentioned with Lunia as the election agent and in another, which we have quoted earlier, _two election agents,._ Lunia and Periwal were mentioned by name. The returned candidate in reply denied that Lunia was the election agent. In the second aJIP!ication for amendment filed on August·29, 1967 attempt was made to withdraw allegations against the election agent and to delete all references to Periwal. This was resisted and it was stated that Periwal was the oilly election agent appointed by the returned candidate. The question is whether the election petition was liable to be disntissed for not joining Periwal who was a duly nominated candidate and against whom charges of corrupt pra~­ tk:e were made ? Mr. Hazamavis contends that the amendments were made in answer to the order for better and fuller particulars. He submits that the original petition did not name Periwal although the amended petition did and the High Court need not have mixed up the two petitions to find out whether Periwal had to be joined or llOt. According to him, !he original petition could not be dismissed since _it_ did not name Periwal and the amended petition only supplied particulars as required by the Judge. He submits that even in giving instances of bribery in paragraph 16, although the ##### name of Periwal was mentioned in the opening part, no instance was cited with Periwal's name although other names were mentioned. Therefore, he submits that Periwal was not in the mind of the election petitioner at all and the mention of Periwal was merely an error. In reply it is pointed out that all allegations woce supported by affidavits and that all references to the election agent and allegations against him were affirmed on personal knowledge by the election petitioner. In the original petition no names were given but when better particulars were ordered a categoric reference to the election agents was made by referring to Lunia and Periwal and this was again affirmed on personal knowledge by the 634 SUPREME COURT REPORTS [1969] I S.CR. petitioner. It i' pointed out that in the list of workers of the A returned candidate Periwal was shown as the election agent and the returned candidate affirms that Pcriwal wa' the only election agent. It is shown by way of illustration that the return of election expenses was filed by Periwa! as the election agent and the allegations of corrupt practice in respect of the election cxpen~es related to Periwal. B On examining the entire record with the assistance of counsel we arc sati.,fic<l that Periwa! was always meant when the reference was to an election agent and this was more clearly specified when the amended petition was filed. Therefore, the attempt was first to name him and now to withdraw his name to save the petitio•. This, in our opinion, could not be done and the High Court was right in dismissing the election petition and disallowing the last amendment by implication. We give our reasons briefly : It is necessary to read the Act backwards from s. 86( 1). That section reads : "86. Trial of election petitions.( I ) The High Court shall dismiss an election petition which does not comply with the provisions of section 81 or section 82 or section 117. " This is a peremptory provision and admits of no exception. The Court mtLst enforec it strictly if there is a non-compliance with the requirements of s. 82 among others. In this connection we have to read s. 82 ( b) which reads as follows : "82. Parties to the petition.A petition shall join as respondents to _his_ petition #### c D I· F # ### .. (a) ( b) any other candidate against whom allegatio!l' of any corrupt practice arc made in the petition." This makes it incumbent that any candidate against whom a charge of corrupt practice is made must be joined as a party. Who is G a candidate is laid down in s. 79 ( b). That provision reads as follows: "79. Definitions.-In this Part and m Part VII unless the context otherwise requires. (a) H (b) 'candidate' means a person who has been or claims to have been duly nominated as a candidate at any election, and any such person shall B #### c D E F G H MOHAN v. SURENDRA _(Hidayatullah,_ C.J.) 635 be deemed to ~ave been a candidate as from the time when with the election in prospect, he began to hold himself out as a prospective candidate." Since Periwal was a candidate who was duly nominated at an election he would be .a candidate within the meaning assigned to that word by this definition. The question raised is that Periw~l was not a candidate _at the election_ since he had withdrawn and, m any case this definition need not be read in s. 82 (b) which should be limited to contesting candidates. Under s. 37 a candidate may withdraw and once the notice of withdrawal is given it is final. After the date of withdrawal passes a list of contesting candidates is drawn up under s. 38. It is submitted thats. 82(b) should be limited to the contesting candidates. It is also submitted that when ss. 100 and 123 speak of a candidate they refer to a candidate whose candidature subsists to the time of the election, that _is_ to say, after the time for withdrawal passes. The petition under s. 83(1) (b), it is said, can set out particulars of corrupt practices "against parties" and that would include contesting candidates, their election and other agents and persons other than candidates and their agents. It is submitted that a candidate who has withdrawn is no longer a candidate and hence cannot be a party. The argument cannot be entertained. These questions have already been considered by this Court on more than one occasion. They were first considered in _K. Kamaraja Nadar_ v. _Kunju Thevar_ _and Others(')_ but that ruling may not strictly be appropriate since it was based on s. 55A(2) which is now repealed. However, other cases _(Amin_ _Lal_ v. _Hunna_ _Mal(')_ and _Har Swarup_ _&_ _Anr._ v. _Brij Bhushan Saran_ _&_ _Ors.)_ ( [3 ] ) consider this point. It is there . laid down th((t a candidate who _is_ duly nominated continues to be a candidate for purposes of s. 82 {b) in spite of withdrawal. This really decides the question which has been mooted before us. A very detailed exa1nination of the same question is to be found in _Chaturbhuj_ v. _Election Tribunal, Kanpur_ _&_ _Anr.(_ _[4]_ _)._ In that case our brother Bhargava (M. L. Chaturvedi, J. concurring) has examined in the Allahabad High Court these provisions from every angle which is presented to us and has adequately answered all the arguments. It is argued that the Civil Procedure Code applies and 0. VI, r. 17 and 0. 1, r. 10 enable the High Court respectively to order amendment of a petition and to strike out parties. It is submitted, therefore, that both these powers could be exercised in this case by ordering deletion of reference to Periwal. This argument cannot be accepted. No doubt the power of amendment is preserved (I) [1959] S.C.R. 583. (2) [1965] l S.C.R. 393. (3) [1967] 1 S.C.R. 342. (4) (1958) 15 E.L.R. 301. 636 SUPREME COURT REPORTS [1969] I S.C.R to the court and 0. 1, r. 10 enables the court to strike out pa~ but the coun cannot use 0. VI, r. 17 or 0. l, r. IO to avoid the consequences of non-joindcr for which a special provision is to be found in the Act. The coun can order an amendment and even strike out a party who is not necessary. But when the Act makes a person a necessary party and provides that the petition shall be dismissed if such a party is not joined, the power of amendment or to strike out parties cannot be used at all. The Civil Procedure Code applies subject to the provisions of the Representation of the People Act and any rules made thereunder (sees. 87). When the Act enjoins the penalty of dismissal of the petition for non-joinder of a party the provisions of the Civil Procedure Code cannot be used as curative means to save the petition. An attempt is made to dis1inguish the cases cited by us on the ground that now the provisions of ss. 4 to 25 of the Indian Lintitation Act are applicable to election petitions and the amendment of the petition and joining of panics can !alee place at any time. It is submitted that now the cases must be decided under the amended law. We need not go into this matter. It is doubtful whether these provisions of the Limitation Act apply at all. The petitioner has not asked to join Periwal. He only wants an amendment to delete allegations of corrupt practice against him. _This_ cannot be permitted since it will defeat the provision~ of s. 86( I). Every election petition can be saved by amendment in this way but that is not the policy of the Jaw. The dismissal is peremptory and the law docs not admit of any other approach. It is significant that in _Amin Lal_ v. _Hurma_ _Mal('),_ although the matter W3i not gone into from this angle it was said that the amendment for better particulars was not intended to enable the election petition~ er to remove the defect in presentation or in the joinder of parti.os. _Sher>pat_ _Singh_ v. _Ram Pratap(_ _[2]_ _),_ since the facts were assumed, cannot be said to record any decision. A B An attempt is made to dis1inguish the cases cited by us on the ground that now the provisions of ss. 4 to 25 of the Indian Lintitation Act are applicable to election petitions and the amendment of the petition and joining of panics can !alee place at any time. #### .c () E F G H Lastly, it is submitted that Periwa! was being charged in his character as an election agent and not as a candidate. This sui>mis.,ion runs counter to the amendment petition which says that he was _not_ an election agent and therefore he was really charged in his capacity as an individual and as he was a duly nominated candidate he had to be joined. The argument really contradicts the last amendment petition and cannot be entertained. For the reason~ above stated it must be held that the decision of the High Coun under appeal was correct. The appeal fails and will be dismissed with costs. V.P.S. #### ·- ·---·- (!) 11065] I S.CR. 393. (2l (1965) I S.C.R. 175. _Appeal dismissd._