Allowed

Roop Lal Singh v. Nachhattar Singh

Supreme Court2 Nov 19821982 INSC 80 · [1983] 1 S.C.R. 7021982 INSC 80

Case brief

AI extract

What is this about?

Election petitions must state material facts necessary for a complete cause of action; their omission renders the petition bad. However, 'particulars' serve to inform the respondent of defenses and can be ordered under CPC Order VI Rule 5. The Election Symbols Order is a valid order under the Representation of the People Act as it regulates elections via the Election Commission. A High Court cannot strike out specific paragraphs of a petition under Order VI Rule 16 CPC without findings of frivolity, untruthfulness, or abuse of process.

What the court decided

AI extract

Roop Lal Singh versus Nachhattar Singh — Election Law | Supreme Court (1983)

702

ROOP i..Ai.. SATHi I

B NACHHATTAR SINGH I

November 2, 1982

(D.A. DBSAI AND A.P. SBN, JJ.J

¶8

Q Election Symbols ( Resetvatlon at!d Allotment) Order 1968-0rder made under Representation of the People Act, 1951. ·

¶9

Representation of the People Act, 1951-Trial of election petition-Prov/ .. slons of 0. VI, Code of Civil Procedure. 1908 applicable except as modified by sub-i. (5) of s. 86. I

¶10

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D Reprdentatlon of the Peopk Act, 1951-CI. (a) of sub-s. (I) of s. 83Trial of election petition-Omission of £maieria/ facts" reRders whole petition bad under O. Vil, r. IJ(a), Code of Civil Procedure, '1908-Court cannot strike down ;1ortions only.

¶12

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Representation of the People Act, 1951-CI. (b) of sub-s. (I) of s. 83- E Trial of election 'petition-Omission of 'particulars'-Court may direct 'further and better particulars' under 0, VI, r. 5, Code of Civil Procedure, 1908.

¶14

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For a candidate to be deemed to be set up by a politica! party under paragraph 13 of the Election Symbols (Reservation and Allotment) Order 1968, it is essential .that a notice in writing to that effect signed by ··the duly authorised office-bearer of the political party is delivered to the returning officer of the F conStituency not later than 3 p.m. on the I last day of withdrawal of candidatures. . The allotment of any sYmbol to ~a candidate by the returning officer is final under sub-r. (5) of r. 10 of the Conduct of Elections Rules, 1961 except where it is inconsistent with any directions issued by the -Election Commission in that behalf,

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G The appellant, the respondent and one Jagmohan Singh contested 1he election to the Punjab Legislative Assembly (rom the same constituency and the respondent was declared elected. The appellant_ challenged the election of the respondent under s. IOO(l)(dJ(iv) read with s. 123(7) of the Representation of the People Act, 1951. Paragraphs 4 tO 18 of the petition related to change of symbols allotted to the candidates. It was averred therein that the last day 1-1 for withdrawal of nomination papers was May 5, 1980; that a notice in writing signed by the authorised ~ffice-bearer of the Indian National Congress (I) to the effect that Jagmohan Singh was contesting as the candidate of t_hat party

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-1

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kooi> LAL v. NACHHATTAR siNGH

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had been deHvered to the Retui"ning · Offic~r on that day; that the :Retliriiing Officer had on May 8, 1980, intimated by a Jetter that on receipt of instfuctions . from the EISC:tion Commission a change had been effected · in the symbols allotted to the candidates according to which the sYm.bol 'hand' reserved for the Indian National Congress (I) had been allotted tO the respondentj that in terms of p8.ragraph 13 .of -the Symbols Order Jagmohan Singh ollght to have been deemed to be lhe candidate set Up by the Indian National Congress (I); that the Election Commission had no power to direct re·allotment of the symbol once allotted to a candidate under sub-r. (4) of r. 10 and therefore the action of the Returning Officer in recalling the allotmeht of the symbol 'hand' tO Jagniohan Singh was in violation of the Act and the rules.made thCreunder. The respondent contested these averments .in bis written statement and referred to, the circumstances in which the Election Commission had issued the instructions relating to.change of symbols.

¶24

The respondent -raised a preliminary objection that the averments in paragraphs 4 to 18 of the petition did not disclose any cause of actioi:i and the High Court, accepting the objection, ordered deletion of those paragraphs from the Petition~ The Hiih Court 'held that· it was Incumbent on the appellant 't0 find out the circumstances in which the Election Commission had passed the order relating to change of-syinbOis and that iri the absence of those matCrial circumstances non-compliance with r.10(5) or Par.agraph.13 of the, Sy.mbols . Order could n_ot be spelled out. The High Court further held that the. Symbols Order was not an order made under the Act and therefore not attracted. . , . s. IOO(l)(d)(iv) was

¶25

1n:·appeal, counsel fOr apt>ellant contended ihat paragraphS 4 tO 18 of . the petition contained all te material facts necessary to show that the chahge of symbols was in breach of r. 10() and paragraph 13 of the Symbols .Order and the High C'.ourt was not justified in ordering .thiir deletic;>n.

¶26

Courisel for respondent contended · tb8t paragr~phs 4 to 18 Or the petition · did not disclose· any cause of actiOn as there was non·disclosure of facts ecessary t<;> shoW how -the order of the Election Commission was illegal, that - the High court waSjustified in stiiking· out those paragraphs under 0. VI, r.16 of the Code of Civil Procedure, 1908 aS it bad no power to" direct further arid better particulars Under o. VI,'r. 5. Laying emphasis on the words "under the Act" ocurring in s •. 100(1)(d)(iv) he ontended tht the Synibols Order was not ao Order made u·nder the _Act.

¶27

Allowing thtl api)eal,

¶28

HELD : Cl. (a) of sub-s.(l) of s. 83 of the Representation of the People ·Act, 1951 enjoins that ao election petition shall contain· a concise statement.of the material facts on which -the election _petitioner relies. This clause is based on the provisions of 0. VI, r. 2(1) of the Code of Civ'il "Procedure, 1908 from which it is clear that the statement of material facts ought not to contain,i:he evidence by which they are proved. Cl. (b) of sub·s. (1) of s. 83 states that-an

(1983) ~ s.c.a.

SUPRBME COURT RBPORTS

¶39

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A election petitioner must set forth full particulars of any corrupt practice on which he challenges the election of the returned- candidate. This clause is based on O. VI, r. 4 of the Code and the High Court has ample power while trying an election petition to direct furthei- and better particulars as to the nature of the claim or defeDGe under O.VI, r.S. The word 'material' in cl. (a) means facts necessary for the purpose of formulating a complete cause of action; and if any one material fact is omitted, the statement or plaint is bad; it is liable to B be struck out. The function of 'particuI8rS' in cl. (b) is quite different; the use or" particulars is intended to meet a further at;id quite separate , requirement of pleading imposed in fairness and justice to tho returned candidate. The function of 'particulars' is tO fill in the picture of the election.petitioner's cause of · action with inforination sufficiently detaild to put th.e returned candidate on bis guard as to the case he has to meet and to enable him to prepare for trial ·in a case where hiS election is chattenged On the ground of any corrupt practice. c . Under O.VI, r.5. 'particulas· will be ordered of the 'material facts' on which the party pleading relies for his claim 1^{or defence. If a party's pleadingis} defective he can also seek _leave to alter and amend his own defective pleading under O.VI, r.17. There is no express itile providing for the consequence of a party failing to deUver 'particulars' required by order of the Court but the decisions are to the effect that either by the order calliD.g for particulafs or by a later order the court can direct the clair:h or defence to be struck out under D O.VJ, r.16. [724B; 723 H; 724 C-F; 726 C-E; 724 G-H; 725 A]

¶42

In the instant case the question whether the ·order pas;ed by the High Court could be justified under. O.VI 1 r.16 would depend upon whether or not the election petition was in conformity with the requirements of s.83. A preliminary objeCtion that the election petition does not contain a concise statement .of material facts on which the petitioner rblies is but a plea in the nacure of demurrer and in deciding the question the court had to assume for this Purpose that the averments contained in the petition were true. Although the High Cotfrt observed that a question of this nature had to be decided on a consideration of the averments in the election petition lone, it later on made certain observations which tend to show that the aJiega tions in the written statenient of the respondent were very much in its mind. It is no part of the statement · of an election-petitioner to anticipate the defence and to state what he would have to say in answer to it. The High Court cast on the appellant the burden of disclosing facts not within. his knowledg. This approach was unwarranted. The High Court was not justified in directing that ihe avermei:its in paragraphs, 4 to f8 of the petition be deleted on the ground that there was non-disclos ufc of material facts sufficient to give rise to a cause of action under s. lOO(l)(d)(iv), It is not clear from the order '!Vhether the 1 High Court proceeded to act ~under O.VII, r.1 l(a) or under O.Vll, r.16 .. It could not have acted under 0. VII, r.ll(a) as, under that rule, when it is found .that the plaint discloses no cause of action, it is obligatory to reject the plaint as a· whole and not any particular portion thereof. )"he High Court's Order cahoot also be Sustained under O.VI, r.16 because there was no finding that the averments in paragraphs 4 to 18 were either unnecessary, frivolous or vexatious, .or were such as may tend •to prejudice, embarass or delay the fair trial of the election, or were sU:ch 3:s to constitute an abuse of tho process of the court. ,[723C; 721H; 722 A-B; 724 B; 721C; 719 G-H; 720 A·B; E·BJ

705

ROOP LAL V· NACHHATTAR SINGH

¶49

¶50

Bruce~. l!dhams Press Ltd. [1936] I K:.D. 697 and Samant N. Balakrishan v. George Ftrnandez & Ors., [1969] 3 S.C.R. 603, referred to.

¶51

(b) The contention that the High Court had rio power to direct further and better particulars under O.VI, r.5 canot be J.ccepted. Sub-s. (1) of s.87 · enacts that the trial of an election petition shaU be, as nearly as maY be, in accordance with the procedure applicable under the Code of Civil Procedure, 1908 to the trial of suits, subject tb the provisions of the Act and of"any rules made thereunder. There are no express provisions in the Act or in the rules made thereunder .to deal With a situation like the one presented in the instant case. The provisions of the Code accordingly must apply in such a case as provided by sub-s.(J) of s.87. That being so, the provisions of O.VI which are integral part of the Code coe into play except to the extent modified by sub·s. (5) ofs. 86. [727 A-B; 726 E-G]

¶52

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Hari Vishnu Karnath v. The Election Tribunal & Anr., AIR [19S8] M.P. 1681 distinguished . .•.

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Bhikaji Keshao Joshi & Anr. v. Brijlal. Nandlaf Joshi & Ors., [.1955] 2 S.C.R. 18. referred to.

¶59

The High Court was in error in holding that the Election Symbols (Reservation and Allotment) Order, 1968 was not an order made" under the Representation of the People Act, .1951. The Act is a law made by Par1iameot under. Art. 327 of the Constitution to provide for conduct of elections and the Conduct of Elections Rules, 1961 are ·rules framed by the Central Government under s. J 69 in consultation with the Election Commission for regulating the mode of holding e1ections. Rule S requires the-Election Commission to specify the' symbols that may be chosen by candidateS and the restrictions to which. their choice sball be subjected. Rule 10 provides for allotment of symbols to c~ritesting candidates by the returning officer subject to any general or special directions · issued in that behalf by the Election - Commission. By virtue of Art. 324 of the Constitution the authority ·to conduct aH elections to Parliament and State Legislatures is vested in tba Election Commission. The Symbols Orde'r has been issued by the Election Commission in exercise of its powers under Art. 324 read with s. 5 and 10. The primary object of the Symbol Order is to provide for specification; reservation, choice and allotaient or· symbols -at elections in parliamentary and assembly constituencies. It is a matter of common knowledge ·that elections in our country are fought on the basis of symbols. It must but logically follow as a necessary corollary that the Symbols Order is an ordei: made under the Act. Any other view would be destructive of the very fabric of our system of holding parliamentary arid assenibly constituency elections in the country on the basis of adult suffrage. [718 B; 712 G; 713 B-C; 713' H1 714 A; 719 D-F]

Sadiq Ali & Aiir. v. Election Commission of India· & Ors., (1972] 2 S.C.R. 318, referred to.

706

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SUPREME COURT REPORTS

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(1983j I S.C.R.

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CIVIL APPELLATE JURISDICTION Civil Appeal No. 1106 (NCE) . of 1981.

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From the Judgment and Order·dated the 22nd February, 1981 of the Punjab & Haryana High Court in Election Petition No. 3 of. 1980 .•

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D. V. Patel, A.S. Saha/ and M.C. Dhingra for the Appellant.

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P.R. Mridul and R.S. Sodhi for the Respondent.

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The Judg~ent of the Court was !delivered by

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SEN, J. This appeal by special leave is from a judgment and "Order of the Punjab & Haryana High Court dated February 2, 1981 by which it has directed the deletion of paragraphs 4 to 18 of the election petition filed by the appellant under s. 81 read with s. JOO of D the Representation of the People Act, 1951 ('Act' for short) calling in question the election of the respondent Nachhattar Singh· Gill to the State Legislative· Assembly of Punjab from the Moga Assembly Constituency No. 99 on the ground ' that there is non-disclosure of material facts on which he alleges that the change of allotment of symbols by the Returning Officer, Moga amounted to noncompliance with the provisions of thel Constitution: or of the Act, or any rules· or orders made thereunder so that the result of the election, insofar as it concerns the respondent i.e. the .returned candidate, is materially affected.

¶78

At the last general elections to the State Legislative Assembly of Punjab from Moga Assembly Constituency No. 99 the appellant contested as a candidat~ of the Lok Dal Party. The last date for withdrawal of nomination papers wa.s notified as May 5, 1980. It appears that on that day Shri Darbara Singh, President of the Punjab Pradesh Congress (I) Committee, intimated the Returning Officer that Jagmhan. Singh had ben nominated as the official candidate of the Indian National, Congress (I) to contest the election. There is also on record a letter dated May 5, 1980 addressed by Shri Darbara Singh, President, Punjab Pradesh Congress (I) Commiitee, to the respondent stating that Jagmoban Singh had been finally selected as the official candidate of the Indian National Congress (I) from the 99· Moga Assembly Constituency in his place, and he was advised to withdraw his nomination paper.

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101

ii.601' LAL v; NACliHATTAR SINGH (Sen, J.)

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It appears that the Indian National Congress (I) changed it.s official candidate and finally selected the respondent Nachhattar . Singh Gill to be the· official candidate of its. par(y. On May 7, 1980,. the Returning Officer, Moga Vidhan Sabha Assembly Constituency wrote a letter to Jagmohan Si.ngh stating that he bad be:en directed by the Secretary, Election Commission· of India, by means of a police radio message that the respondent was . to be treated as the finally selected candidate, and that party's reserved symbol 'hand' be ·allotted to him. On May' 8, 1980, the Returning Officer, Moga Vidhan Sabha Assembly Constituency, addressed a letter to all the candidates regarding the change in the allotment of election symbols · to the effect :

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"According to the instructions from the Chief Election Commissioner of India, certain change has been effected in the election symbols of the candidates of the election to the 99-Moga Legislative Assembly Constituency which is as under:

S.No. Name of the Candidate Symbol Allotted

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I. Shri Nachhattar Singh 'HAND'

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Shri Jagmohan Singh "BOW & ARROW"

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Accordingly, the necessary change of symbols was effected in Form 7A, the list of contesting condidates. The respondent fought the election on the reserved symbol of the Indian National Congress (I)' 'hand' and secured 2f,460 votes. _As against this, the appellant, who was a candidate of the Lok Dal party, secured 16,686 votes while the aforesaid Jagmoban Singh as an Independent candidate got 242 votes. The. appellant was therefore defeated by the respondent by a margin of 5,774 v1)tes. The appellant filed an election petition challenging the election, of the respondent.under s. JOO (I) (d) (iv) read withs. 123 (7) of the Act. The averments in paragraphs 4· to 18 related to the change. of symbols allotteil to the respondent viz. 'band' instead of 'bow & airow' allotted to Jagmohan Singh.

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Upon these facts, it is averred in paragraph 12 that Jagmoban Singh alone be. deemed to be set up as. a candidate by the Indian National Congress (I) within the meaning of 'paragraph 13 of the Election ~ym.bols (Reservation & Allotment) Order, 1968 and not the responde_nt, and that the · candidates could withdraw· their.

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[ 1983) 1 s.c.a.

708

SUPRBMB COURT REPORTS

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nomination papers under s. 37 (I) before 3 p.m. on May 5, 1980 which was notified by the Election Commission to be. the last date for withdrawal of candidatures under s. 30 (c) and thereafter the ' Returning Officer was enjoined uodr s. 38 (I) to publish in the prescri,bed Form 7A the names and addresses of the contesting candidates together with the symbols allotted to them. It is then averred in· parraph 14 : ·

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"On a perusal of para 18 of the Symbols Order it is clear that the Election Commissi'oo has no power to issue instructions and directions t9 the Returning Officer of an Assembly Constituency to reallot the symbol once allotted to a contesting candidate under sub-rule (4) of rule 10 of the Conduct of Elections Rules and to allot the symbol reserved · for a National Party who has allotted the symbol to a candidate deemed to be set op by that political party under para 13 of the Symbols Order to any other person after the publication of the list of the contesting candidates in Form 7A."

¶114

Io paragraph 15 after stating that Jagmohan Singh had delivered to 'the Returning Officer a nolice in writing as provided for E under paragraph 13 (b) f~om Shri Darbara Singh, President, Punjab ' Pradesh Congress (I) Committee, who was duly authorized by the Indian National Congress (I) to issue such authorization as envisaged under paragraph 13 (c), the appellant' avers that the action of the Returning.Officer in recalling on May 8, 1980 the allotment of the symbol 'hand' to Jagrnohao Singh on May 5, 1980 and allotting the F same to the respondent, was in violatipo of the provisions of the Act and the rules made thereunder, and the result of the election, insofar as it concerns the returned candidate i.e. the respondent, has been materially affected inasmuch as because of the change of symbol Jagmohao Singh got only 242 votes while the respondent could not G have secured more than the same number if he had contested on the . ·symbol 'bow & arrow' earlier allotted to him' If the respondent had not been allotted the reserved symbol 'hand' of the Indian National Congress (I), he could not have woo the election. In paragraphs 16, 17 and 18, the appellant set ont some facts showing how the result of the election, insofar as it concerns the respondent, has been H materially affected by the change of allotment ' of symbols.

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. 709

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ROOP LAL v, NACHHATTAR SINGH (Sen, J.)

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The respondent filed a written statement controverting the allegatio.n that there was a breach of paragraph 1'3 of the Symbols Order by the change of allotment of symbols made by the Returning . Officer in accordance with the instructions issued by the Election . ' Commission. It was pleaded, inter alia, that the respondent had made a declaration in the nominaiion paper' filed by him on May 2, 1980 to the effect that he had been selected as a candidate of the Indian National Congress (I); and that he had on May 5, 1980 furnished a notice to the Returning Officer signed and issued by · Shri Darbara Singh,__ President, Punjab Pradesh Congress (I) Committee, in pursuance of paragraph 13 (b) of the Symbols Order. It was alleged that after the respondent had been adopied as a candidate by the Indian National Congress (!), Jagmohan Singh made an effort to get that party's ticket for the seat and produced a letter from Shri Darbara Singh dated May 5, 1980 before the Returning Officer showing that he was the official candidate of ·the Indian National Congress (I). When the respondent learnt of this move on the part of Jagmohan Singh, he met the President of the Indian National Congress (I) at New Delhi on the morning of May 5, 1980 and apprised her of the situation' and was i,nformed that he had been finally selected as the patty candidate and there was no question of a change. •

¶120

It is further averred that a communication was sent by Shri Bula Singh on May 5, 1980 to the Chief Election Officer, Punjab,' Chand.igarh and the Returning Officer, 99-Moga Assembly Constituency, in supersession of all earlier commuqications wi.th regard to the Assembly Constituency, stating that .the respondent was the official candidate of the Indian National Congress (I) and that the party's symbol 'hand' be allotted to him. A letter to this effect was also delivered by Smt. G. Brar, Member of Parliament to the Election Commission on the morning of May 5, 1980. Thereafter, !lhri Ganesan, Secretary to the Election Commission, got in touch with . the Chief Electoral Officer; Chandigarh and informed. him that the respondent was the official candidate of the Indian National Congress (I). There was a mention of this talk in the telex message sent by the Secretary to 'the Returning Officer, Moga, with copy to the Chief Electoral Officer, Punjab on May 5, 1980,

¶121

A preliminary objection was raised on behalf of the respondent that the averments in paragraphs 4 to 18 as well as paragraphs 191\

710

(1983! I s.c.R.

SUPREME COURT REPORTS

) \ ,, ~

and 20, with which we are·not .concerned, do not disclose any cause of action and therefore they are liable to be deleted under Order VII, r. I I (a) of the Code of Civil 1^{Procedure. The High Court ·} accordingly framed a preliminary issue to the effect :

¶136

"Whether paragraphs 4 to i 18, 19 (a) and 20 of the B · election petition have to be deleted because the averments made therein do· not make out any case for setting aside the election under s. JOO (I) (d) (tv) and s. 123 (7) of the Representation of the People. Act:"

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By the judgment under appeal, the High Court sustained the c preliminary objection and directed that the averments in paragraphs 1 4 to 18 be struck out from the electibn petition. In dealing with 'the question, the High Court observed that the preliminary issue had to be decided upon a consideration of the pleas in the election petition and nothing averred in the written 'statement could .be taken into account.

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· On a consideration of lhe averments in paragraphs 4 to 18 the High Court felt that the use of the word "instructions" in Annexure P-I, tlie letter addressed by the Returning Officer, Moga Assembly Constituency on May 8, 1980 to all the candidates intimating about the change in the allotment of election symbol to the respondent, E cannot lead to an inference of their b~ing issued under paragraph 18 of the Symbols Order. It then observes :

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"The petitioner bas not at all disclosed in the election petition as to what was exactly the order of the Election Commission behind the instructions in Annexure P-I, and how it was in contravention of any of the provisions of the Act, or rule, or order made thereunder."

¶145

It was urged on behalf. of the respondent" that before filing the election ·petition it was incumbent on the appellunt to find out the · entire circumstances in which the Election Commission passed the G order as to the change of symbols and consequently issued instructions to the Returning Officer in that behalf. The High Court accepted the contention and observed that "in the absence of material circumstances, non·compliance with the provisions of r. IO (5) of the Conduct of Election Rules; 1961, or of paragraph 13 of H the Election Symbols (Reservation &. Allotment) Order, 1968 could not be spelled out." further, the Hi~h Court was of the view (bat

¶146

ROOP LAL v. NACHHATTAR SINGH (Sen, J.J

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711

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the Symbols Order having, been made by the Election Commission in exercise of the powers under Art. 324 of the Constitution read with rs. 5 and 10 of the Conduct of Elections Rules, it cannot be said to be an order made under the Act and therefore the provisions of s. JOO (I) (d) (iv) of the Act were not attracted. Accqrdingly, the High Court directed that paragraphs 4·to 18 of the election petition be deleted.

¶150

· Ii is argued by learned counsel for the appellant that under· sub-s. (1) of s. 83 of the Act, an election petition must contain a concise statement of the material facts on which the election petitioner relies; the words "material facts" mean the facts necessary · to formulate a complete cause of action. It'is urged that all the. material facts have been stated in. the election petition to show that change of allotment of symbols by the Returning Officer, in compliance with the directions of the .Election Commission, was in breach-of r. 10 (5) and paragraph 13 of the Symbols Order which gave rise to a cause of ~ction under s.-100 (I) (d) (iv) of the Act. According to the learned counsel, .the appellant had disclosed all the facts Within his kDOW!~dge and it was DO part of his duty to antici· pate the defence and plead facts in relation thereto. '1t is further· urged that the High Court was in error in holding that the breach of r, 10 (5), paragraphs 13 and 18 of the Symbols Order does not constitute non-compliance with any provisions of the Constitution, or the Act, or any rules or orders made thereunder.

¶151

In reply, iearned counsel for the respondent submitted.that the Symbols Order was n.ot an order made under the Act and therefore the change of allotment of symbols was a matter which fell outside: the purview of s. 100 (1) (d)·(iv) of ihe Act, It was urged that there was no breach of r. 10 (5) of the Conduct of Elections Rules or of paragraphs 13- and 18 of the Symbols Order inasmuch"' the res. pondent was the official candidate set up by Indian National Congress (I) and he bad in the nomination [laper filed by him before the Returning Officer on May 3, 1980 made a declaration to the effect and had also indicated his choice of that party's reserved symbol 'hand'. Our 11.ttention was drawn to certain averments in the written statement which tend to show that the respo.ndent was, in fact, the ·Candidate sponsored, by the Indian National Congress (I). Learned counseI made a grievance that the appellant had deliberately supperssed this fact in paragraph 7 of the election petiiion. Further, he urged that it was incumbent on the appellant !<! fin4 out the

F -

712

[1983] I s.c.R.

SUPREME COURT REPORTS

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. circumstances in which the Election Cdmmission issued the necessary instructions as to;the change of symbols under paragraph 18 of the Symbols order. It was contended that the High Court was therefore justified in strikinii out paragraphs. 4 to 18 of the election petition on the ground that they do not disclose any cause· of action. Further it was contended that the High .Court had no power to order further and better particulars under Order VI, r, 5 of the Code of Civil Procedure. In support of the contention, reliance was placed on Hari Vishnu Kamarh v. The Electio.n Tribunal, Jabalpur & Anr. (')

¶164

In this appeal, two questions arise. First of these is whether any breach of paragraph 13 or 18 of the Symbols Order amounts to non-compliance with the provisions of the C~nstitution, or the Act, or any rules or orders made under the Act and therefore the change of allotment of symbols by the Returning Officer in compliance with the directions of the Election Comiµission was a matter which fell within the purview of s. JOO (1) (d) (iv) of the Act. The second is whether it was incumbent on the appellant before filing the election petition to find out the cfrcumstances in which, and. the reasons for ·which, the Election Commission issued necessary instructions under paragraph 18 of the Symbols Order; 'and. if so, whether failure to disclose such facts amounts to non-disclosure of material facts i.e. an incomplete cause of action under s. 100 (I) (d) (iv) of the Act and therefore the ayerments in paragraphs 4 to 18 of the election petition were liable to be struck out under ;Order VI, r. 16 of the Code of Civil Procedure, 1908.

As to the first question, there can be no doubt whatever that the Symbols Order is . an order made · under the Act. ' Under Art. F 324 of the Constitution, the superintendence, direction and control of the preparation of the electoral rolls for, and the conduct of, all elections to Parliatµent and the Legislature of every State and of elections to tbe offices of President and Vice-President held unde_r the Constitution, vests in the Election Commission. The Act is a law made by Parliament under Art. 327 of the Constitution G to provide for the conduct of elections to the Houses of Parliament and to the House or Houses of the Uegislature of each State, the qualifications and disqualifications for l!'embership of those Houses, the corrupt practices and other offences at or in co~nection with

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(1) AIR 1958 M.P. 168,

¶175

ROOP LAL v. NACHHATTAR SINGH (Sen, J.) 713

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_,.,;

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such elections and the decision of doubts and disputes arising out of or in connection with such elections.

¶179

Sub-s. (I) of s. 169 of the Act provides that the Central Government may, after consulting the Election Commission, by notification in the Official Gazette, make rules for carrying out the purposes of the Act. Sub·s. (2) thereof provides that in partii:ular, and without prejudice to the generality of the foregoing power, the rules framed by the Central Government under sub-s.(I) may provide for all or any of the matters enumerated therein. In exercise, of the powers under s. 169 of the Act, the Central Government made the Conduct of Elections Rules, 1961 for the purpose of regulating the mode of holding elections to the Houses of Parliament or to the.House or either House of the Legislature of every State. Rule 5 of the Conduct of Elections. Rules requires· the Election Comm.ission to specify .the symbols that may be chosen by candidates in parliamentary and assembly ,elections and the restrictions to which that choice shall be subject, and it provides :

c·

•

"5. Symbols for elections in parliamentary and assembly constituencles-(I) The Election Commission shall, by notification in the Gazette . of India and in the Official Gazette of each· State, specify the symbols "that may be chosen by candidates at elections in parliamentary or assembly constituencies and the restrictions to which their choice shall be subject.

¶184

(2) Subject to any general or special direction ,issued by the Election Commission either under· sub-rule (4) or sub-rule (5) of rule 10, where at any such election, more nomination papers than one are delivered by or on behalf of a candidate, the declaration as to symbols made in the nomination paper first delivered, and no other declaration as to symbols, shall be taken· into consideration under rule 10 even if that nomination paper has ·been. rejected".

¶185

Rule IO provides for allotment of sy'mbl'>ls to the contesting candidates by the Returning Officer subj<;~t to anr general or. special

[19&3} l S.C.R.

714

SUPREME COURT REPORTS

¶193

A directions issued in that behalf by the Election Commission. ·11, insofar as relevant, reads as follows :

¶194

B	"JO. • .(I)	' Preparationoflistofcohtesting candidates : ' xx I xx xx
	(2)	xx xx xx
	(3)	xx xx xx
0	(4)	At an election in a parliamentaryorassembly consti- tuency, where a poll becomes necessary, the returning officer shall consider the choiceofsymbols expressed bythe contesting candidatesintheir nomination papers and shall, subjeettoany generalorspecial direction issued in this behalfbythe Election Commission -
D E		I . . .. (a) allot a different symbol to each contesting candi· -,date in conformity, as far a• practicable, withhis choice; and (b)if, more • contes'ting candidates than one have indicatedthei.rpreference for the same symbol, gecidebylot to whichofsuch .,andidates the symbolwillbeallotted.

¶195

¶196

(5) The allotment by·the returning officer of any symbol to a candidate shall be final except where it is

¶197

F inConsistent. with any di~ections issued by the Election Commission in this beb*lf in wbich case the Election Commission may revise the allotment in such manner as it thinks fit." ~

¶198

G The Election Symbols (Reservation & Allotment) Order, 1968. was issued by the Election Commission in exercise of its pbwers under Art. 324 of the Constitution read with rs. 5 and I 0 of the Conduct of Elections Rules, 1961 and all .other· powers enabling in that behalf. The primary object and purpose of the Symbols Order, ~· as the long title and the preamble show, is to provide ,for spccificahon, reservation, choice and allotment of symbols at elections in parliamentary and >1ssemb\y constituencies, for the recognition of

¶199

¶200

ROOP LAL v. NACHHATIAR SINGH (Sen, J.)

7JS

__ ,

•

•

political parties in relation thereto and for matters onnected there· with. ·:The purpose and object of the Symbols Order as well 'as the source of power under which the Order was issued is brought out in the preamble which reads : "Whereas the superintendence, direction and· control . of all elections to Parliament and to the Legislature · of every State are vested· by the Constitutution of India - in the Election Commission of India. And, whereas it is necessary and expedient to provide ·in the interests of purity of election to the House ' of the People and the Legislative Assembly of every State and in the interests of the conduct of such elections in a fair and . efficient· manner, for the specification,-. reservation, choice and allotment of symols for the recognition of political parties in relation thereto and ' for matters connected therewith. · Now, therefore, in exercise of the powers conferred by article 324 of the Constitution read with rule 5 and rule I 0 of the Conduct of Elections Rules, 196 l, and all other powers enabling it in this, behalf, the Election Commission of India hereby makes the following Order." It would be apparent from the provisions of the Conduct of Elections Rules, · 1961 and the Election Symbols (Reservation & Allotment) Order, 1968 that when elections are imminent,_ allotment of symbols to candidates for elections in parliamentary and assembly constituencies is but an important stage of such elections. The provisions for registration of political parties ind iheif recogni: tion as National or State parties by the Commission are ·only for the purpose or allotment, reservation and _specification of symbols at elections. ·The expression,. "political party" is defined in paragraph 2 (h) to mean "an association or body of individuals of India registered with the Commission as a political party under paragraph 3 and includes a political party deemed to be registered with the Commission under the proviso to . sub-para (2) of that paragraph."· Paragraph 3 provides for registration with the Commission of associations and bodies of individuals as political parties9 for the purposes of the ·Order and paragraph 4 provides for allot· ment of symbols. Paragrai;>l:I ~ ga,I wilb the classification of

· A

(1983) I S.C.R.

716

SUPREME COURT REPORTS

¶217

A symbols. According to this paragraph, a 'reserved symbol' is a symbol reserved for a political party for exclusive use of that party, A symbol other than the reserved, symbol has ben described by the said paragraph to be a 'free symbol'. Paragraph 6 provides for the classification of political partie.s. The parties are either recognized political parties or unrecognized political parties and it lays B down the conditions necessarv for a political party to be treated as a recognized political party. If a political party is treated as a recognized political party in four'or more States in accordance with paragraph 6, it shall have the statu of a National party throughout the whole oflndia. If; on the contrary, a political party is treated . as a recognized political party in less than four States, it shall enjoy the status of a State party in the State or States in which it is a recognized political party. We need not dilate upon this aspect because it is not in dispu le that the Indian National Congress (0 and Lok Dal are both National parties. Paragraph 8 regulates the manner of allotment of symbols, and sub-para (I) and (3) which are relevant for our purposes read :

¶218

¶219

"8. Choice of symbols by candidates of National and

¶220

State Parties and allotment thereof: '

¶221

¶222

(I) A candidate set up by a National party at any election in any constituency in India shall choose and shall be allotted, the symbol reserved for that party and no other symbol.

¶223

(2) xx xx xx

¶224

¶225

(3) A reserved symbol shall not be chosen by, or allotted to, any candidate in any constituency other than a candidate set up by a National party fot whom such symbol has been reserved or a candidate set up by a State party for whom such symbol has been reserved

¶226

G in the State in which it is a State party even if no candidate has bten set. up by such National or State party in that constituency."

¶227

•

¶228

9i>aragraphs 9 to 12 deal with certain restrictions on the allotment of H symbols, concessions to certain candidates as well as choice of symbols for some categories of candidates with which we are not 9oncerne\l. Paragraph 13 specifies as to when a candidate shall be

¶229

71?

¶230

•

¶231

ltOOP LAL_v.NACHHATTA!t SINGH(Sen,J.)_ 71
. deemed to be set up as a candidatebya political party and readsas under: "13.Whena candidate shallbedeemedtobe set·upby _a politicalparty-For_the purpose of this Order a candidate . shallbedeemed tobeset upbya political partyif,and . only if,
(a)the candidate has made a declaration to this effectin hisnomination paper;· (b)a noticeinwriting to that effect has, not later than 3 P.M. on the last day of withdrawalofcandidatures, beendelivered to the returningofficerof the consti· tuency; and (c)the said noticeissignedbythe president, the secretary or any other office-bearer of the party and the presi- dent, secretary or such other office· bearerisa'Uthorised bythe partytose~d·such notice and the name and specimen signatureofthe president, the secretary or such other office-bearer are communicated.inadvance to the returningofficerof the constituency and to the Chief ElectoralOfficerof the State."
Paragraph18whichisimportant for our purposesisinthese terms:
"18.PowerofCommissiontoissueinstructio71..sand _directions-The_Commissionmayissue instructions and directions :
(a)for the clarification of anyofthe provisionsofthis· Order;
(b)for the removal of any difficulty which may arisein . relation to the implementationofanysuchprovi· "sions;and
(c)inrelation toanymatterwithrespect to the reserva· tion and allotment of symbols and recognitionof political parties, for which this Order makesno

[198~] 1 s.c.R .

. 71$

suPRllMe oouilt RBroRri

¶242

¶243

provision or makes insufficient provision, and prov1s10n is in the opinion · of the Commission necessary for the smooth and orderly cond~ct of elec- tions."

¶244

. In our judgment, the High Court was clearly in error in

¶245

B holding that the Symbols Order was not an order made under the Act and therefore the change of allotment of symbols by the Returning Officer in compliance with the directions issued by the

¶246

·Election Commission, even if it was in breach of paragraph 13 thereof, did not amount to non-compliance with the provisions of the Constitution, or the Act, or any rules or orders made under the

¶247

c Act and therefore the matter fell outside the ambit of s. JOO (I) (d) (iv) of the Act. It is however urged by learned counser for the respondent that the Symbols Order was not an order made under the

¶248

, Act. Emphasis is laid on the words "under the Act" occurring in s. JOO (1) (d) (iv) of the Act. We are afraid, the argument is too tenuous to be accepted. The Symbols Order was issued by the Blee·

¶249

D tion Commission under Art. 324 of the Constitution in exercise of its undoubted powers of superintendence, direction and control of the conduct· of all elections to Parliament and Legislature of every State. It is also relatable to rules 5 and IO of the Conduct of Elections Rules framed by the Central Government in exercise of their powers under s. 169 of. the Act. Rule 4 of the Conduct of·

¶250

E Elections Rules provides that every nomination paper presented under s. 33 of the Act shall be in Forms 2A to 2E, as may be appropriate. The Forms 2A and 2B require the candidate to choose symbol. Under r. 5 (!) the Election Commission by notification may specify the symbols that may be chosen by candidates at elections to parliamentary and assembly constituencies.

¶251

F Under i'. IO (4) the Returning . Officer shall consider the choice of symbols expressed by contesting candidates and "subject to any general or special direction issued by the Election Commission" . allot different symbols to different candidates. The allotment of symbols by the Returning Officer is final· under sub-r. (5) of r. IO except where it is inconsistent with any directions issued by the

¶252

G Election Commission in that behalf in which case the Election Commission may revise the allotment in such manner as it thinks fit.

¶253

In Sadiq Ali & Anr. v. Election Commission of India & Ors.(') Khanna, J, speaking for the court, after setting out the scheme of H

¶254

(I) (1972] 2 SCR 318.

¶255

:Root> LAL v. NACHHATTAR SINGH (Sen, J.)

¶256

719

¶257

¶258

the Symbols Order, explained the ·reasons which led to the introduction of symbols, in these words :

¶259

¶260

"It is well. known that overwhelming majority ·qf the

¶261

electorate are illiterate. It was realised· that in view of the

¶262

_handicap of illiteracy, it might not 'be possible for the illiterate voters to cast their votes in favour of the candidate of their choice unless there was some pictorial representation on ihe ballot paper itself whereby such voters might identify" the candidate of their choice. - Symbols were accordingly brought into use. Symbols or emblems are not a peculiar feature of election law of India. In some countries, details in the form of letters .of alphabet or numbers are added against the name of each candidate while in others, resort · is made to symbols or emblems. The object is to ensure that the process of election is as genuine a'ld fair as possible and that .no elector should suffer from any handicap in casting his vote in favour of a candidate of his choice."

¶263

The Symbols Order made ·by th~ Election Commission in exercise of its power under Art. 324 of the Constitution read with rs. 5 and 10 of the Conduct of Electious Rules and all other powers enabling it in that behalf, are in the nature of general directions issued by the Election Commission to regulate the mode of allotment of symbols to the contesting candidates. It is a matter of common knowledge that elections in our country are fought on the basis 'of symbols. It must but logically follow as a necessary corollary that the Symbols Order is an order made under the Act. Any other view would be destructive of the very fabric of our system of holding parliamentacy and assembly constituency elections in the country ,on the basis of adult suffrage. '

¶264

As to the second question, there can be no doubt whatever that the High Court was not justified in directing that the averments in paragraphs 4 to 18 of the election petition be deleted on the ground that there was non-disclosure of material facts sufficient to give rise to a cause of action under s. too (J) (d) (iv) of the Act.

¶265

The order passed by the High ·Court directing the striking out of paragraphs 4 to 18 of the• election petition can hardly be\ supported. It is not. clear from ·the order that ·the High Court

. G

(1983] l s.c.R.

720

SUPREME COURT REPORTS

¶276

proceeded to act under Order VII, r. 11 (a) or under Order VI, r. 16 of the Code in passing the order that it did. It is rightly conceded that the High Court could not have acted under Order VII, r. 11 (a) of the Code. Where the plaint discloses no cause of action it is obligatory upon the Court to reject the plaint as a whole under Order VII, r. 11 (a) of the Code, but the rule does not justify the 8 rejection of any particular portion of a plaint : Mulla's Civil Procedure Code, 13th Bdn., Vol. !, p. 755. It is therefore necessary to consider whether the order passed by the High Court could be justified under order VI, r. 16 of the Code, which reads as follows·:

¶277

¶278

¶279

"16. Striking out pleadings - The Court may at any stage o'r the proeeedings order to be struck out or amended any matter in any pleading -

¶280

(a) which may be unnecessary, scandalous, frivolous or vexatious, or

¶281

(b) which may tend to prejudice, embarrass or delay the fair trial of the suit, or

¶282

¶283

'(c) which is otherwise an abuse of the process of the Court."

¶284

¶285

The order passed by the High Court directing that paragraphs 4 to 18 of the election peiition be struck out cannot be sustained on the terms of Order VI, r. 16 of the Code. There is no finding 'reached by the High Court that the. averments in paragraphs 4 to 18.of the F election petition are either unnecessary, frivolous or vexatious, Gr that they are such as may tend to prejudice, ·embarrass or delay the fair trial of the election, nor is there any finding that the averments therein are such as to constitute an abuse of the process of the court. · That being so, the High Court had no power to direct the striking G out of paragraphs 4 lo 18 of the elec:tion petition.

¶286

¶287

•

¶288

It is submitted by learned counsel for the respondent that there .is non-disclosure of the necessary fa•:ts by the appellant in paragraphs 4 to 18 of the election petition to show as to how the order of the Election Commission was illegal, or as to how there was non·compliance with the provisions of the Constitution, or the Act, or any rules or orders made under the Act within the meaning of s. JOO (I) (d) (iv) of the Act. He urges that it wa!i incumbent on the appellant to

¶289

721

¶290

ROOP LAL •• NACHHATTAR SINGH (Sen, J.)

;

•

find out the circumstances in which the Election Commission.issued the necessary instructions as to the change ·of symbols under paragraph 18 oft.he Symbols Order. It is contended that the High Court was therefore justified in striking out paragraphs 4 to 18 of the election· petition on the ground that they do not disclose· any cause of action inasmuch as the averments therein do not constitute a plea.of non-compliance with the provisions of the ·constitution, or the Act, or any rules or orders made under the Act so as to attract s. JOO (ll (d) (iv) of the Act. These contentions, in our opinion, cannot be give11 effect to.

¶295

¶296

¶297

The approach of the High Court in deali11g with the preliminary issue appears to be wholly unwarranted. In dealing with the question whether or not paragraphs 4 to 18 of the election petition disclose any cause of action, the High Court has cast on the appellant the burden of disclosing facts not within his knowledge. It 9peaks of his duty to produce evidence prima facie to show that the change of allotment of symbols by the Returning Officer to the respondent was in contravention of r. IO (5) of the Coi:iduct of Elections Rules read with paragraph 13 of the Symbols Order. It then observes that the onus was on him to establish as to how and under what circum, stances the Election Commission issued the instructions in question, It accepts ·the contention of the respondent that it was incumbent on the appellant to set himself.on an inquiry into these. circumstances. Aceording to the High Court, failure to disclose the circufDstances which led the Election Commission to issue directions or instructions ·to the Returning Officer to effect a change in the allotment of symbols, amounts to non-disclosure of material facts which must entail in deletion of the averments in paragraphs 4 to 18 by which the appellhnt seeks relief under s. 100 (I) (d) (iv) of the Act, We are afraid, the High Court has. viewed the matter from a wrong perspective. ' · ·

_ E

We find it difficulr to comprehend the reasoning adopted by . the High Court that there was non-disclosure of material facts. True it is that it begins the judgment by observing tji~t a questio_n of this · nature, as it must be SO, has to be decided OD a consideration of the averments in the election petition alone, and the allegations in the written statement cannot be taken into account. A preliminary objection that the election petitio!l is not in conformity with s. 83 (I) (a) of the Act i.e. it does not contain the concise statement of the material facts on which the petitioner. relies is but a plea in the

[1983] I S.C.R.

722

SUPREME COURT REPORTS

¶307

A nature of demurrer and in deciding the ·~uestion the Court has to assume for this purpose that the averments contained in the election petition are true. Unfortunately, while dedding the preliminary issue the High Court has made certain obserl'ations which tend to show that the allegations in the written statem<:nt were very much present in its mind. In repelling the contention of the appellant ·that the B· instructions issued by the Election Commission for .reallotment of symbols were.referable to paragraph 18 of the Symbols Order, the High Court observes : · •

¶308

¶309

¶310

"Upon the use of word "instructions" in Annexure P-1,.

¶311

it was sough to be inferred that the · issuance thereof could only be within the ambit of para 18 of the Symbols Order, since the change of Symbols was outside.the ambit of para

¶312

. 18 therefore the said change was illegal. The argument has ,'_not .jmpressed me, inasmuch as in the normal course of things the Election Commission, having passed an order, - issues instructions, for its compiiance. As such, the use of the "instructions" in any commu11ication cannot lead to an inference of their being issued ~oder the said para 18 of the Symbols Order."

¶313

It then goes on to observe :

¶314

''The petitioner has not at all disclosed in the election

¶315

petition as to what was exactly the order of the Election Commission behind the instructipns in Annexure P-1 and how it was in contravention of the provisions of the aforesaid. Act or the rules or order made thereunder."

¶316

/ It proceeds to say :

¶317

F , . . • "Thus, the argument of the learned counsel for the returned candidate proceeded that before filing the election petition it was incumbent upo11 the petitioner to find out the entire -Circumstances in whfoh , the Election Commission passed the order as to the change of symbols and conse-

¶318

G qently issued instructions vide Annexure P-1 to the Returning Officer.''

¶319

In coming to the conclusion that there was non-disclosure of ' material facts, the High Court observes :

¶320

¶321

¶322

"In the complete absence of the material circumstances, non-compliance with the aforesaid provisions could not be

¶323

723

¶324

ROOI> LAL v. NACHHA'ITAR SINGH (Sen, J.)

¶325

¶326

¶327

·spelt ·out and hence in the election petition none of the s'aid provisions has been . specifically sought.. ... : . I direct that • paras 4 to 18 of the election petilion be deleted." These observations made by the High Court proceed on a misconception of law.

¶328

~,· ' .

¶329

•

¶330

It is therefore necessary to c~nsider whether' the order passed by the High Court could be justified under Order VI, r. 16 of the ·code. That would depend on whether or not the electioq. petition is in conformity with the requirements of s: ·83 of the Act, which reads as follows : '

¶331

"83. Contents of Petition-(!) An election petition(a) shall contain a concise statement of the material facts on which the petitioner relies. (b) _shall set forth full particulars of any corrupt practice that the petitioner alleges, including as full a statement as possible of the names of the_parties alleged-to have committed such corrupt practice an_d the date and place of the commission of each such practice; and (c) shall be signed by the petitioner and verified in the manner laid down in the Code. of Civil Procedure, 1908 for the verification of pleadings : Provided that where the petitioner alleges any corrupt practice, the petition shall also be accompanied by an affidavit ·in the prescribed from in support of the allegation of such corrupt practice and the particulars thereof. (2) Any schedule of annexure to the petition shall also be signed by the. petitioner and verified in the same .. manner as the petiti.on." Cl. (a) of s. 83 is based on the provisions of Order VI, r.2(1) of. the Code which states the basic c;>r cardinal rules of pleadings and .is in the following terms :

[1983] 1 s.c.R.

724

SUPRBMB COURT REPORTS

¶340

•

¶341

¶342

"2. Pleading to state material facts and not evidence-Every pleading shall contain, and contain only, a statement in a • concise· form of. the material facts on which the party . pleading relies for his claim iri def~nce, as the case may be, but not the evidence by which they are to be proved."

¶343

¶344

Cl. (a) of sub-s. (I) of s. 83 of the Act enjoins that an election petition shall coritain a concise statement of the material facts on which the election petitioner relies. It is no part of the statement of claim of an election petitioner to 'anticipate . the defence and to state what he would have to say in answer to it. Cl. (b) of sub-s. (I) of s. 83 interdicts that an election petitioner must. set c forth full particulars of any corrupt practice on which he challenges the election of the returned candidate under s. 123(7) including as full statement as possible of the name:; of the parties alleged to have committed such corrupt practice and the date and place of the commission of each such practice. It is more or less based on Order VI, r.4 of the Code which reads :

¶345

¶346

¶347

"4. Io all cases in which the party pleading relies on any . misrepresentation, fraud, breach of trust, wilful default, or undue influence, and in all other cases in which particulars may be necessary beyond such as are exemplified in I.he forms aforesaid, particulars (with dates and items if necessary) shall be stated in the pfoading."

¶348

¶349

The High Court has ample power while trying an election petition to direct further and better particulars as to the nature of the claim or defence under Order VI, r. 5 of the Code which reads :

¶350

¶351

"5. A further and better statement of the nature of the claim or defence, or furthe.r andi better particulars of any matter stated in an pleading may iri all cases be ordered, upon such terms, as to costs ~md otherwise, as may be just."

¶352

Under Order VJ, r.5, particulars will be ordered of the material facts on which the party pleading relies for his claim or defence. If a party's pleading is defective he can also seek leave to alter and ff . amend his own defective pleading under Order VI, r.17. There is .no express rule providing for the consequence of a party failing to deliver particulars r~quired by order of Court. but the decisions are

¶353

725

¶354

ROOP LAL v. NACHHATTAR SINGH (Sen, J.)

¶355

to the effect that either by tlie order .calling for particulars or by a later order the Court can direct the claim or defence to be struck o·ut under Order VI, r. 16 of the Code.

¶356

There is distinction between "material facts" and "particulars" Th'e word "material facts" show thjlt the facts necessary to formu- · late a complete cause of action must be stated. Omission of a single material fact leads to an incomplefe cause of action and the statemerit or plaint becomes bad. The distinction which has been made between "material facts" and "particulars" was brought out by Scott, L.J. in Bruce v. Odhams Press Ltd. (¹ ) in the following passage :

¶357

"The cardinal provision in r. 4 is that the statement of claim . must state lhe material facts. The word "material" means necessary for the purpose of formulating a complete cause of action; and if any one' 'material" fact is omitted, the statement ofclaim is bad: it is "demurrable" in the old phraseology, and in the new is liable to be •"struck out" under 0. XXV, r. 4; See Philips v. Philips (² ): or "a further and better statement" of claim may be ordered under O.XIX r. 7.

¶358

;

¶359

The function of "particulars" under r. 6 is quite different. They are no.t to be used 'in order to fill material gaps .in a demurrable statement of claim.:...gaps which ought to have been filled by appropriate statements· of the various material facts which together constitute the plaintiff's cause of action. The use of particulars is intended to meet a further and quite sepa5ate requirement of pleading, imposed in fairness and justice to the defendant. Their function is to fill in the picture of the plaintiff's cause of action with information sufficiently detailed to put the defendant .on his guard as to the case he has to meet and to enable him to prepare for trial."

The dictum of Scott, L.J. in Bruce's case, supra, has been quoted with approval by this Court in Samant N. Balakrishan v. George Fernandez & Ors.(') and while observing that the requirements of

¶368

(1) [1936] 1 K.D. 697. 12) [1878] 4QBD127.

¶369

¶370

(3) [1969] 3 SCR 603.

¶371

726

¶372

{I983f I s.c.R.

¶373

SUPREME COURT REPORTS

¶374

¶375

¶376

A s. 83 are mandatory, the distinction between material facts and particulars was brought out in ·the following terms:

"The word "mat~rial" shows that the facts necessary to formulate a complete cause of action must be stated. Omission of a single material fact leads to an incomplete cause of action. and the statement of claim becomes bad. The function of particulars is to present as full a picture of the cause of action with such further information in detail as to make the op'posite party understand the case he will have to meet.''

¶384

Thus, the word "material'' in material facts under s. 83 of the Act means facts necessary for the purpose of formulating . a complete cause of action; and ff any one "material" fact is omitted, the statement or plaint is bad·; it is liable to be struck out. The function of "particulars" is quite different, the use of particulars is intended to meet a further and quite separate requirement of pleading imposed in fairness and justice ·to the returned candidate. Their function is to fill in the picture of the election petitioner's cause of action with information sufficiently detailed to put the returned candidate on his guard as to the case he bas to meet and to enable him to prepare for trial in a case where bis election is challenged on the ground of any corrupt practice.

¶385

Sub-s. (I) of s, 87 of the Act enacts that the trial of an election petition shall be, as nearly as may be, in accordance with the procedure applicable under the Code of Civil Procedure, 1908 to the trial of suits,. subject to the provisions of the Act and of any rules made thereunder. There are no express provisions in the Act or in the rules made thereunder as contemplated under sub·s. (I) of s. 87 of the Act to deal with the situation like the present. The provisions' Of the Code accordingly must apply in such a case as provided by'sub-s. (I) of s. 87 of the Act. That being so, the provisions of Order VI which are integral part of the Code come into play except to the extent modified by sub-s. (5) of s. 86 of the Act.

¶386

·Learned counsel for the respondent however contends that the High Court had no power to direct further and ·better particulars under Order VI, r. 5 of the Code. In· support of the contention, ·reliance is placed on . the decision of the Madhya Pradesh High

'". .-~ \ ~

• ~

727

' A

MOP LAL v. NACHHATTAR SINGH (Sen, J.)

¶392

¶393

Court in Harl Vishnu Karnath v. The Election Tri.bunal & Anr. (') It is urged that the particulars given in· the petition were· insufficient to formulate a cause of action and, therefore the High Court had the power to strike out the pleadings under 'Order VI, r. 16 of the Code. The contention cannot, in our opinion, be accepted. in Bhikaji Keshao Joshi & An.r. v. Brijlal Nandlal Joshi & Ors, (² ) the Court recognized a power in the Tribunal to .direct particulars of a corrupt practice and to strike out the pleadings in a case where there was a default in compliance with a previous . order directing particulars. Thereafter, there was a change brought about in law by Act 27 of 1956. .Sub-s. (-5) of s.90 introduced by that Act recast the old sub-a. (3) of s. 83 and took away the power of the Election Tribunal to order further and better particulars of corrupt practice while retaining the power to allow am~ndment or amplification though the language used was slightly different.

¶394

The decision of the Madhya Pradesh High Court in Hari Vishnu Kam~th's case, (supra) on which reliance is placed is inapplicable. A question arose whether the Election Tribunal was justified in directing furnishing of better particulars of certain corrupt practices. There, the High. Court was dealing with the Act as it stood after its amendment by Act 27 of 1956. In view of the change in law brought about, the High Court held that the rule as laid dowri by this .Court in Bhikaji Keshao Joshi' s case, (supra) was no longer applicable. · After the repeal of sub-s. (3) of s. 83 of the Act by Act 27 of 1956, which introduced in its place sub-s. (5) of s. 90, conferring power on the Tribunal to allow amendment or amplification of particulars, the High Court held that the word "allowed" meant allowed on an application and therefore there was no power left with the Tribunaf under sub-s. (5) of s. 90 to direct the furnishing of better particulars and .that there would equally ·be no power to strike out the pleadings for default of furnishing particulars, if directed. It was however, held that it was open to the Tribunal to find that'the particulars given in a petition were insufficient for trial. It is evident that the decision of the High Court turned on the provisions of sub-s. (5) of ·s. 90, which is identical to sub-s. (5) of s. 86 of the Act, - but both these provisions relate to allowing an amendment of the election petition subject to such terms as to costs or otherwise with a view to furnish the particulars of any corrup! practice. The decision of the

[)

E •

(!) A.l.R. 195.8 M.P. 168. (2) [1955] 2 S.C.R. 18.

¶404

728 SUPREME COURT REPORTS

¶405

(1983) I s.c.R.

¶406

¶407

Madhya Pradesh High Court in Hari Vish., Kamath's case, (supra) is therefore distinguishable.

¶408

¶409

¶410

It mu.st accordingly be held that the High Court was not justified in striking out paragraphs 4 to 18 of the election petition acting presumably under Order VI, r. 16 of the Code of Civil Procedure, 1908 on the ground that the facts stated therein were not sufficient to formulate ·a complete cause of action under s. 100( I) (d)(iv) of the Representation of the People Act, 195.1 i.e. du~ to non-disclosure of material facis . .

¶411

. In the result, the appeal succeeds and is allowed with costs. The jndgment of the High Court striking out the averments in paragraphs 4 to 18 of the election petition is set aside and it is directed to proceed with the trial according to law.

Appeal allowed. •,

H.L.C.

. .

Roop Lal Singh v. Nachhattar Singh

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Roop Lal Singh v. Nachhattar Singh

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