Rath Vs. Bikram K. Arukh & Ors  INSC 338 (14 September 1999)
RAJENDRA BABU, R.C. LAHOTI.
by the dismissal of his election petition, challenging the election of the
returned candidate-respondent No. 1, vide order of the High Court dated 23rd of
December, 1999, the appellant has filed this appeal. For the purpose of this
appeal however only a few facts are relevant and necessary to be noticed.
last date for filing nominations in respect of the Assembly Constituencies in
the State of Orissa for the elections held in the year
1995 was 17th of January, 1995.
persons including the appellant and the respondents filed their nomination
papers for 66, Bhanjnagar Assembly Constituency. At the time of scrutiny of the
nomination papers on 19th
January, 1995, the
Returning Officer rejected the nomination papers of respondent Nos. 5, 6 and 7.
While the nomination papers of respondent Nos. 5 and 6 were rejected by the
Returning Officer on the ground that the same were found to be defective, the
nomination papers of respondent No. 7-Panchanan Das was rejected on the ground
that "Candidate is a PDS dealer of Bhanjnagar Ward No. 13.
rejected." After polling, results of the elections were declared and
respondent No. 1 was declared successful and elected by a margin of 1567 votes.
election petition was filed by the appellant on 26th of April, 1995 calling in
question the election of respondent No. 1, both on the ground of commission of
corrupt practices as also for improper rejection of the nomination papers of
respondent Nos. 5, 6 and 7. The election petition was resisted and written
statement was filed by respondent No. 1. On the basis of pleadings of the
parties, certain issues came to be framed. However, for the purpose of this appeal,
the following issues only require our consideration:
Whether the nomination of any one of the candidates namely Shri Pratap Chandra
Swain, Shri Rajendra Kumar Sahu and Shri Panchanan Das has been improperly
rejected by the Returning Officer and as such the election of Bikram Keshari Arukh,
the returned candidate (respondent No. 1) for the66-Bhanjanagar Assembly
Constituency is void? (2) Whether the petition as laid 1s maintainable?"
Evidence was led by the parties in respect of these issues.
take up the question relating to. the rejection of the nomination paper of Shri
Panchanan Das- respondent No, 7 only and do not find it necessary to consider
either the grounds of rejection or the effect thereof insofar as Shri Pratap
Chandra Swain or Shri Rajendra Kumar Sahu- respondent Nos. 5 and 6 respectively
are concerned because the findings recorded by the High Court in their case
have not been seriously assailed before us. findings regarding the rejection of
nomination paper of respondent No. 7 have, however, been vehamently assailed.
as respondent' No. 7, Shri Panchanan Das is concerned, the material averments
regarding the improper rejection of his nomination paper are contained in para,
10 of the election petition, which reads thus :
That the nomination of Shri Panchanan Das S/o Late Saita Das, At - Sanatota Sahi,
Bhanjanagar, Dist. Ganjam, Respondent No. 7 has been rejected on the ground
that the candidate is the P.D.S. Dealer of Ward No. 13.
rejection Order is illegal and improper because P.D.S. Dealership is not a
disqualification for being chosen as a member of the legislative Assembly.
Besides, there was evidence or material before the Returning Officer at the
time of scrutiny .to come to such a conclusion. In course of his trade or
business through P.D.S. Dealership of Ward No. 13 under the Bhanjanagar,
N.A.C., Sri Das had nothing to do with the State Government and much less he
was interested in any subsisting contract with the State Government which could
have disqualified him under the provisions of the Representation of the People
not entered into any contract at all with the State Government. His appointment
as such was under the recommendation of committee set up by the N.A.C. He was
to purchase commodities at prices fixed and on selling get a commission which
1s also fixed. Therefore there is no scope for any advantage being derived even
if one becomes a member of the Legislative Assembly. In the circumstances,
therefore, the nomination of Sri Panchanan Das having been improperly rejected
the election of the Respondent No.1 is liable to be declared void. . . . . "
In the written statement filed by respondent No. 1, the response to the
averments contained in para 10 of the election petition 1s as follows:
That the averment made in paragraph 10 of the election petition that the
nomination paper of Sri Panchanan Das, the Respondent No .7 has been improperly
rejected 1s false and denied and the petitioner is put to strict proof thereof.
The Returning Officer has acted legally and within his power and authority in
rejecting the nomination paper in question as the same was violative of the
relevant provision of the Act and he has made an endorsement to that effect on
this nomination paper. Thus this averment is denied." The learned
Designated Judge of the High Court after considering the evidence on the record
and taking note of various judgments including the judgment of the Andhra Mariseria
Venkatarami Na.1du and another AIR 1985 AP, 169 opined :
transactions between the State and respondent No. 7 do not constitute supply by
the latter to the State.
it cannot be said that respondent No. 7 was disqualified in terms of Section
9A." Thus, the learned Designated Judge found that the ground on which the
nomination paper had been rejected by the Returning Officer was not valid.
learned Designated Judge of the High Court, while dismissing the election
petition, inspite of the above finding observed :- "In. view of the legal
position there can be no doubt that improper rejection nullifies the election.
But some of the peculiar features as highlighted above need to be carefully analysed.
No doubt an election dispute can be raised by a candidate or an electorate of
the constituency, because the election involves each of the electorates as well
as the contestants. Judged in that background, the election petition has been
held to be maintainable as discussed above.
rejection of a nomination affects the election. But the person who 1s really
affected is the person whose nomination paper has been re.iected. In the case
at hand, he himself states that his presence in the field of contest would have
hardly made any difference and would not have materially affected the election
of the electeed cand i date. He has stated with reference to his past
performance invarious elections that he would not have polled more than 200 to
300 votes. A candidate is the best person to say about his election prospects'
When the candidate himself states that he would have got about ?00 to 300 votes
had he contested, it would be not proper to accept the version of the election
petitioner that his presence in the election contest would have materially
affected the result." (Emphasis Ours) The learned Designated Judge also
opined "Respondent No. 7 Panchanan Das, whose nomination has been
rejected, has stated that he did not think -it proper to file election petition
as he was satisfied that his presence in the field of contest would not have
made the position different." In our opinion, the above approach of the
High Court was wholly erroneous.
100 (1) (c) of the Representation of the People Act, 19.51 (hereinafter
referred to as 'the Act') provides as under :- "100. Grounds for declaring
election to be void:- (1) Subject to the provisions of sub-section (2) if the
High Court is of opinion- (a) .............
any nomination has been improperly rejected;
..." The High Court having found and, in our opinion, rightly that the
ground on which the Returning Officer had rejected the nomination paper of
respondent No. 7, viz., that he was a dealer under the Public Distribution
System did not disqualify him from contesting the election, ought not to have
proceeded any further because it was essentially a case where the rejection of
the nomination paper by the Returning Officer, insofar as respondent No. 7- Shri
Panchanan Das is concerned, was improper because respondent No. 7 was not
disqualified in terms of Section 9A of the Act. The improper rejection of a
nomination paper by itself and without anything more is a ground under Section
100 (1)(c) of the Act to declare the election void. No enquiry as to
"material effect" on account of the rejection of the nomination paper
is required to be made under Section 100 (1)(c) of the Act. The enquiry whether
the result of an election has been material1y affected insofar as the Returned
Candidate is concerned is required in the cases covered by Section 100 (l)(d)
of the Act.
counsel for the Returned Candidate, however, asserted that the finding of the
Returning Officer for rejecting the nomination paper was correct and the High
Court's finding in that behalf was not correct. Learned counsel submitted that
the case of respondent No. 7, a dealer under the Public Distribution Scheme,
was covered by Section 9A of the Act. We are unable to accept this submission.
9A of the Act reads, thus :
Disqualification for Government contracts, etc.
person shall be disqualified if, and for so long as, there subsists a contract
entered into by him in the course of his trade or business with the appropriate
Government for the supply of goods to, or for the execution of any works
undertaken by, that Government.
- For the purposes of this section, where a contract has been fully performed
by the person by whom it has been entered into with the appropriate Government,
the contract shall be deemed not to subsist by reason only of the fact that the
Government has not performed its part of the contract either wholly or in
part." Section 9A of the Act has come up for consideration of Abdul Wazad Miah
and Others. 1988 (Supp) SCC, 580 = 1987(2) Pradhan. 1999 (3) SCALE, 630. Analysing
Section 9A of the Act, this Court has consistently taken the view that a person
would be disqualified under Section 9A of the Act, if he has entered into a
contract with the Appropriate Government in the course of his trade or business
which is subsisting on the date of scrutiny of nominations and :
contract is one for supply of goods to the Appropriate Government; and (11) the
contract is for the execution of any works undertaken by that Government
find ourselves unable to accept the submission of learned counsel for
respondent No. 1 that in Section 9A of the Act, the expression 'works' would
also include 'schemes' of the type of Public Distribution System. The
expression 'works' as used in Section 9A was interpreted in Dewan Joynal Abedin
(supra) wherein this Court opined :
The word 'works' in the expression in 'execution of any works' appearing in
Section 9A of the Act is used in the sense of 'projects', 'schemes', 'plants',
such as building works, irrigation works, defence works etc.
1 in this case had not undertaken to carry on any such work. According to the
Shorter Oxford Dictionary the expression 'work' means a structure or apparatus
of some kind; an architectural or engineering structure, a building edifice. when
it is used in plural, i.e., as 'works' it means 'architectural or engineering
operations; a fortified building; a defensive structure, fortifications; any of
the several parts of such structure". The words 'works' used in entry 35
of List II of the Seventh Schedule of the Constitution of India which reads as "works,
lands and buildings vested in or in the possession of 10 the State" is
used in the same sense. The running of boats across in land waterways 1s a
topic which falls under entry 32 of List III of the Seventh Schedule which
reads thus : "Shipping and navigation on inland waterways as regards
mechanically propelled vessels, and the rule of the road on such waterways, and
the carriage of passengers and goods on inland waterways subject to the
provisions of List I with respect to national waterways". It is, therefore,
difficult to hold that when a person acquires the right to collect toll at a
public ferry under Section 8 of the Ferries Act he is performing a contract of
execution of works undertaken by the government. It may have been perhaps
different if the words 'in performance of any services' which were present in
Section 7(d) of the Act, as it stood prior to its amendment in 1956 had been
there in Section 9-A of the Act." The above observations are a complete
answer to the submission made by learned counsel for respondent No. 1.
the pleadings of the parties and particularly averments contained in para 10 of
the election petition, it is obvious that the respondent No. 7 - Shrl Panchanan
Das did not have any subsisting contract in the course of his trade or business
with the Appropriate Government either for the supply of goods to the
Government or for the execution of any works undertaken by t?hat Government. He
was a mere licensee under the Public Distribution System. Such a person does
not suffer any disqualification for being chosen as a Member of the Legislative
Assembly under Section 9A of the Act.
the only ground on which the Returning Officer rejected the nomination paper of
Shri Panchanan Das, respondent No. 7 was that "he was a dealer under the
Public Distribution System" and the High Court rightly found that
respondent No. 7 was not disqualified under Section 9A of the Act, it ought to
have been held that the nomination paper of respondent No. 7 had been
improperly rejected and as a consequence Section 100 (1)(c) of the Act was
attracted to avoid the election.
improper rejection of the nomination paper by itself being sufficient to
invalidate the election, the High Court under the circumstances fell in error
in dismissing the emotion petition and not invalidating the 'election of the
Returned Candidate on the ground of improper rejection of the nomination paper
of respondent No. 7 - Shri Panchanan Das.
result of the above discussion, this appeal succeeds and is allowed.
Consequently, the election petition would stand allowed to the extent indicated
election of the Returned Candidate-respondent No. 1 is, hereby, set aside under
Section 100(1) (c) of the Act. We, however, leave the parties to bear their own
costs insofar as this appeal is concerned.