SMT. PRAMILA NESARGIversusC.K. JAFFER SHARIEF AND ORS.

                          C. NARAYANASWAMY                                          A
                                  v.
                    C.K. JAFFAR SHARIEF AND ORS.
                                 AND
                        SMT. PRAMILA NESARGI
                                  v.                                                B
                    C.K. JAFFER SHARIEF AND ORS.

                               AUGUST 9, 1994

        (KULDIP SINGH, P.B. SAWANT AND N.P. SINGH. JJ.]
                                                                                    c
      Election laws- Representation of the People Act, 1951,-Section
 123(l)(A)(b)-Corrupt practices-Mass feeding of electors during elec-
 tion-Whether a corrupt practice.

       Election laws-Bribery, gift, offer or promise of gratification and.induce-   D
 ment to vote-Negotiation between Candidate or agent and electors-Need
 not be proved-inducement to voters may be indirect.

       Representation of the People Act, Sec. 83(1)(a)(b)-Requirements
 of-Pleadings-Statement of material facts and setting forth of full particulars
 of any corrupt practice-Needs to be complied with-Mere reproduction of E
 section does not amount to statement of material facts.

       Representation of the People Act-Section 83(J)(a)(bf--<:orrupt prac-
 tices-f'roof of incuning of expenditure beyond prescribed limit by elected
 candidates-Burden of-Conduct of ''Election Rules, 1961-ll.ule 90.
                                                                                    F
       Election Laws-ll.ight to elect or to be elected-Statutory right, not
fundamental or Common law right-ll.ight to challenge electio~Similarly,
flows from statute.

       Representation of the People Act-Ss. 77(1)-Effect of Explanation I           G
as introduced by Act 58 of 1974 and 123(6)-Corrupt practice-Expendi-
ture-By political party or association or other person-Not deemed expendi-
ture incu"ed .or authorised by candidate.

       Representation of the People Act-S.IOO(l)(d)(iii)-Declaring election
. void-Grounds of-Conduct of electi01.-Election Rules-ll.ules 45 and 56 H
                                       463
    464                  SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.

A   (7)-Fom1 16-lmproper numbering of ballot papers-Effect of

          Shri. C.K. Jaffer Sharief was elected to the Lok Sabha from Banglore
    North Lok Sabha Constituency. His election was challenged by the appel·
    lant on the grounds of corrupt practice of mass scale free feeding of the
    electors, excessive expenditure and printing of spurious ballots papers.
B   The respondent's position was (i) the free feeding was on account of the
    obsequies observed for the assassinated former Prime Minister, Shri Rajiv
    Gandhi; (ii) the respondent had only incurred the reported expenditure
    and the rest was incurred by the party and; (iii) the ballots were not
    spurious.
c         Dismissing the appeals, this Court

          HELD: 1. After the process of election had commenced and before the
    electors had exercised their right of franchise. mass feeding of electors
    arranged by the candidate or on his behalf in order to induce directly or
D   indirectly the electors to vote, was a corrupt practice. With the existing
    economic conditions prevailing in the country feeding of electors may in·
    duce them to vote in favour of the candidate arranging it. [468·G·H, 469-A]

          Mohan Singh v. Bhanwarlal, AIR (1964) SC 1366 andRajendra Prasad
    Jain v. Shee/ Bhadra Yajee, AIR (1967) SC 1445, relied on.
E
          2. The negotiation between the candidate or by any person on his
    behalf on the one hand and the electors on the other need not be proved.
    Section 123(1)(A)of the Representation of people Act did not require the
    electors to express or convey their acceptance or assurance that they could
    vote for the candidate. But a ne>.11s between the gift, offer or promise of
F
    gratification and the inducement to vote had to be established, which
    could be d.one even by circumstantial evidence. (469-C-F]

         S.B. Adityan v. S. Kandaswami, AIR (1958) SC 857 and B. Rajagopala
    Rao v. Appayya Dora Hanumanthu & Ors., AIR (1990) SC 1889, relied on.
G
          Laxmi Narayar. Nayak v. Ramrathan Chaturoedi, (1990] 2 SCC 173;
    referred to.

          Ghasi Ram v. Dal Si11gh, [1968] 3 SCR 102=AIR (1968) SC 1191,
    Bhanu Kumar Shastri v. Mohan Lal Sukhadia, [1971] 3 SCR 522 = AIR
H   (1971) SC 2025 and Harjit Singh Man11 v. S. Umrao Singh, [1980] 2 SCR
                NARAYANASWAMY v. JAFFAR SHARIEF                          465

       3. Charge of corrupt practice bad to be proved by the election           A
petitioner. The proceedings in the election petition were quasi-criminal in
nature.

      Devi Prasad v. Malluram Singhania, [1969] 3 SCC 595; Rahim Khan
v. KhurshidAhmed, AIR (1975) SC 290; Bir Chandra Barman v.Anil Sarkar,
AIR (1976) SC 603; Laxmi Raman v. Chandan Singh, AIR (1977) SC 587              B
ao_d Amolakchand v. Bhagwandas, AIR (1977) SC 813, relied on

      4. The elected candidate could not meet the allegations in the vagoe
pleadings. Requirements of section 83(l)(a)b) regarding statement of
material facts and setting forth of foll particulars of any corrupt practice    C
bad to be complied with in the election petition. (475-E-F, HJ

      Samant N. BaJkrishna v. George Fernandez, [1969] 3 SCR 603; Udhav
Singh v. Madhav Rao Scindia, [1976] 2 SCR 246; Dau/at Ram Chauhan v.
Anand Sharma, [1984] 2 SCR 782; Dhartipakar Madan Lal Agarwal v. Rajiv
Gandhi, [1987] 3 SCR369andSapa v.Singora, [1991] 2 SCR 752, relied on. D

       5.1. The requirement of keeping separate and correct account of all
expenditure in connection with the election incurred or authorised by the
candidate or on his on bis behalf bad been diluted by Explanation 1 which
provided that ifthe expenditure bad been incurred by a political party/any
other association/body of persons/any individual other than the candidate       E
or his election agent, it would not be deemed to be expenditure in connection
with the election incurred or authorised by the candidate. (482-H, 483-A]

      5.2.Explanation I encourage corruption by underhand methods.
Candidate should no_t be allowed to plead ignorance aboot the persons who
had made contributions and investment for his success. Bot this had to be       F
taken care of by the Parliament. (482-C-D]

      Kanwar Lal Gupta v. Amar Nath Chawla, [1975] 3 SCC 646 and P.
Na/la Thampy Terah v. Union of India, [1985] Supp. SCC 189, referred to.

      6. Io Bangalore there being no facility of printing ballot papers in G
seven digits 'A' was added as a prefix to the ballot papers printed beyond
10 lakbs. Merely because in Form 16 instead orA' 'I' had been mentioned
as prefix for those ballot papers it could not be said that the ballot papers
beyond the number 999999 were spurious and duplicate and were used by
the respondent in a surreptitious manner thereby materially affecting the H
    466                    SUPREME COURT REPORTS [1994J SUPP. 2 S.C.R.

A result of the election. [485-E-F]
            CIVIL APPELLATE JURISDICTION : Civil Appeal No. 7194 of
    1993.

            From the Judgment and Order dated 19.4.93 of the Karnataka High
B Court in E.P. No. 2 of 1991.
                                         With

            Civil Appeal No. 2543/93.

C         Prashant Bhushan and Mohan Rao for the Appellant in C.A. No.
    7194/93

            In-person for the Appellant in C.A. No. 2543/93.

          Kapil Siba~ D.N. Nanjunda Reddy, Ms. Vimla Sinha and Gopal
D   Singh for the Respondent in No. 1.

            Prashant Bhushan and C. Mohan Rao for the Respondent in No. 2.

            R.C. Mishra and Dr. Meera Aggarwal for the Respondent in No. 3.

E        Shankar Divate and Ms. Lalita Kaushik for the Respondent Nos. 15
    and 19.

            The Judgment of the Court was delivered by

          N.P. SINGH, J. These appeals have been filed against the judgment
F   of the High Court dismissing , two election petitions filed on behalf of the
    appellants, questioning the validity of the election of respondent C.K. J affar
    Sharief (hereinafter referred to as "the respondent") to the Lok Sab~.a from
    Bangalore North Lok Sabha Constituency.

          The appellants challenged the election of the respondent, primarily
G   on the grounds (i) that the respondent arranged large scale mass free
    feedings for the electors during the election, which amounted to a corrupt
    practice within the meaning of Section 123{1){A) of the Representation of
    the People Act, 1951 {hereinafter referred to as "the Act") (ii) that the said
    respondent incurred expenditure at the said election in contravention of
H   Section 77 of the Act which amounted to a corrupt practice within the
       NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH,J.]                           467

meaning of Section 123(6) of the Act; and (iii) that the declaration of the A
result of the respondent was in violation of the provisions of the Act
inasmuch as several thousand .votes which should not have been· counted
in his favour and ought to have been rejected as invalid, were counted in
favour of the respondent, which has materially· affected the result of the
election of the respondent and as such his election is liable to be declared · B
void under Section lOO(l)(d)(iii) & (iv) of the Act. The relevant part of
Section 123( 1) is as follows :

        "Corrnpt practices- The following shall be deemed to be corrupt
        practices for the purposes of this Act:
                                                                                      c
        (1) 'Bribery", that is to say -

        (A) any gift, offer or promise by a candidate or his agent or by
        any other person with the consent of a candidate or his election
        agent .of ariy gratification, to any person whomsoever, with the
        object, directly or indirectly of inducing-                                   D
         (a) ........ .

         (b) an elector to vote or refrain from voting at an election ........... .

                                                                                      E
        Explanation- For the purposes of this clause the term "gratification"
        is not restricted to pecuniary gratifications or gratifications es-
        timable in money and it includes all forms of entertainment and all
         forms of employment for reward but it does not include the
         payment of any expenses bona fide incurred at, or for the purpose
                                                                                      F
         of, any election and duly entered in the account of election expen-
         ses referred to in section 7811

                                                            (emphasis supplied)

In view of Section 123(1)(A)(b), any gift, offer or promise by a candidate G
or his agent or by any other person with the consent of a candidate or his
election agent, of any gratification, with the object of "directly or-indirectly"
inducing a voter to vote, shall be deemed to be "bribery" and as such shall
amount to a corrupt practice. Mass feeding of the electors after the process
of election has commenced and before the date of poll may induce directly H
    468                                 SUPREME COURT REPORTS [1994] SUPP. 2S.C.R.

A   or indirectly the electors to vote in favour of the candidate who has
    arranged such feast for them in course of the election. In the case of Mohan
    Singh v. Bhanwarlal, A.I.R. (1964) SC 1366 a Constitution Bench of this
                                                             11         11
    Court, \vhile commenting on the expression gratification in Section
    123(1)(A), held that :

B                                   1
                         Gratification 1' in its ordinary Connotation means satis·
                " ............ .'


            faction. In the context in which the expression is used, and its
            delimitation by the Explanation, it must mean something valuable
            which is calculated to satisfy a person's aim, object or desire,
            whether or not that thing is estimable in terms of money; ........... "
c
    It was further stated that Explanation to sub-section (1) of section 123 of
    the Act extends the expression "gratification" to include all forms of enter-
    tainment.

D   In the case of Rajendra Prasad Jain v. Sheel Bhadra Yajee & Ors., A.LR.
    (1967) SC 1445, this Court said :

                 "....... In our opinion, when considering the scope of the words
             "offer of bribery" in the Election Law, we should not place a narrow
             construction· on that expression. In fact, the scope of that expres-
E          ' sion should be extended in order to ensure that elections are held
             in an atmosphere of absolute purity, and a wide meaning should
             be given to the expression "offer of bribery"."

    The Explanation to Sub-Section (1) of Section 123 says specifically that the
F term "gratification" includes all forms of entertainment. Even Explanation
    to Section 171-E of the Indian Penal Code says that "treating" means that
    form of bribery where the gratification consists of food, drink, entertain-
    ment or provision.

           In view of the Explanation to Section 123(1) of the Act, there should
G   be no difficulty in holding that after the process of election has commenced
    and before the electors have exercised their right of franchise, mass feeding
    of electors arranged by the candidate or his agent or any other person with
    the consent of the candidate or his election agent in order to induce
    directly or indirectly the electors to vote, shall be a corrupt practice within
H   the me~ning of the said section. Particularly with the existing economic
       NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH,J.]                      469

conditions prevailing in the country feeding of electors may induce them A
to vote in favour of the candidate arranging it. As such if the Court is
satisfied that the mass feeding had been arranged in order to directly or
indirectly induce .the electors to vote for the candidate in question, the
charge of 'bribery' shall be deemed to have been established.
                                                                                B
       The next aspect which needs examination is as to whether before
arranging any such mass feeding, or in course thereof, the factum of any
negotiation between the electors on one side, and candidate or his agent
or any person arranging such mass feeding on behalf and with the consent
of the candidate or his election agent on the other side has to be proved.
The framers of the Act while specifying as to what shall be deemed to be        c
"bribery", did not provide that the negotiation between the candidate or his
agent or any other person with the consent of such candidate or his election
agent on the one hand and the elector on the other should be proved
Section 123(1)(A) says that any gift, offer or promise by a candidate or his
agent or any other person with the consent of such candidate or his election D
agent, of any gratification made to the elector "with the object, directly or
indirectly of inducing" such an elector to vote, shall be deemed to be
'bribery'. Section 123(1)(A) does not require the electors to express or
convey their acceptance or assurance that they shall vote for such can-
didate. On the material on record, of course the court has to be satisfied
that such gift, offer or promise of any gratification has been made to the E
electors with the object directly or indirectly to induce the electors to vote
in favour of such candidate. A nexus between the gift, offer or promise of
gratification and the inducement to vote has to be established. This can be
established even by circumstantial evidence. The Election Petitioner is not
required to prove any direct negotiation between the candidate or his agent F
on the one hand and the electors on the other.

     In the case of S.B. Adityan v. S. Kandaswami & Ors., A.LR (1958)
SC 857, it was said ;

        "..........The words "gift, offer or promise by a candidate or his agent G
        or by any other person, of any gratification" clearly shows that what
        is contemplated is the making of a gift. These words are wholly
        inawropriate to describe the acceptance of a gift. The words "with
        the object, directly or indirectly, of inducing" also indicate that only
        the making of a gift is contemplated, for the object is of the person H
    470                   SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.

A           making the gift, and clearly not of the person accepting it.. ..... "

    A Three Judges Bench in the case of B. Rajgopala Rao & Anr. v. Appayya
    Dora Hanumanthu & Ors., A.LR. (1990) SC 1889, said :

               "It was urged by Mr. Rao, learned counsel for the appellants
B
            that in the impugned judgments, the High court has incorrectly
            taken the view that in order to amount to bribery within the
            meaning of the said term in S. 123(1)(A), the transaction must
            amount to a bargain by the candidate with a view to get votes. It
            was pointed out by him that the said view has been taken in the
c           impugned judgments, relying upon the decision of a Bench com-
            prising two learned judges of this Court in Ghasi Ram v. Dal Singh,
            [1968] 3 SCR 102 at pp 109- 110 : AIR (1968) SC 1191 at p. 1196.
            We have gone through the relevant portion of that judgment (at
            pages 109 and 110 (of SCR): at p.1196 of AIR of the said report).
            A careful persusal of the said judgment shows that what has been
D
            really held in that case is that if the promises given or made amount
            to a bargain entered into by a candidate for a vote or votes, that
            would amount to a corrupt practice, but it has not been held there
            that unless the act alleged amounts to such a bargain, it could not
            amount to a corrupt practice. In our view, that judgment does not
E           lay• down that in order to amount to a corrupt practice, the
            transaction must amount to a bargain for getting a vote. It was
            pointed out by Mr. Rao, however, that such a view seems to have
            been taken into other decisions rendered by two Benches, each
            comprising two learned Judges of this Court in Bhanu Kumar
F           Shastri v. Mohan Lal Sukhadia, [1971] 3 SCR 522 at p. 543=AIR
            (1971) SC 2025 at p. 2038 andHaljit Singh Mann v. S. Umrao Singh,
            [1980] 2 SCR 501 at p. 510;,;AIR (1980) SC 701 at p. 706 and
            these judgments need to be overruled. We do not propose to go
            into the correctness or otherwise of this view because, even on the
            footing that in order to amount to a corrupt practice under the
G           aforesaid provision the alleged acts need not constitute a bargain,
            the acts established in the present case, in our opinion , do not
            amount to a ~orrupt practice."

          Mr. Prashant Bhushan, learned counsel appearing for one of the
H appellants rightly pointed out that in the case of Laxmi Narayan Nayak v.
       NARAYANASWAMY v. JAFFARSHARIEF[N.P. SINGH,J.]                     471

Ramratan Cltanm'edi & Ors., [1990] 2 S.C.C. 173, the attention of the two A
learned Judges of this Court, was not drawn to the case, referred to above
and because of that an observation was made, viz. "element of 'bargaining'
is completely absent in the present case". If an election petitioner is
required to prove that the gift~ offer or promise of gratification \va.s
accepted by the electors by assuring to vote in favour of such a candidate, B
the provisions of Section 123(1)(A)(b) shall become redundant and shall
have to be read as a pious wish of the framers of the Act to elimina'te the
role of 'bribery'. in the elections. The framers of the Act were quite
conscious that in many cases it will be difficult to get direct evidence of
inducement to the electors to vote, and because of that they have provided
that inducement to voter may be indirect as well. This is so even where
                                                                                c
before poll, cash, clothes, cycles, blankets etc., are distributed amongst the
electors by the candidate or his agent. Once the Court comes to the
conclusion that such gifts were made to induce the electors to vote in
favour of the candidate concerned, a corrupt practice within the meaning
of ~ection 123(1)(A) shall be deemed to have been committed.                   D

       But before the charge of bribery, as contemplated in Section
123(1)(A) of the Act, is held to have been proved, against the candidate
concerned, because of mass feeding arranged by him or his agent or any
other person with his concept or the consent of this election agent, it must    E
be established that the object of such mass feeding was directly or indirect-
ly to induce the electors to vote in favour of such candidate. In some cases,
on material being produced, this charge can be established directly if the
candidate or his agent or any ·other person with the consent of the can-
didate or his election agent, at such mass feeding of the electors, seeks
                                                                                F
their support and votes at the election in question. But there may be cases,
where the inducement to vote is not direct but only indirect one. The
candidate or his agent or any other person who has arranged such mass
feedings with the consent of the candidate or his election agent, may not
make a direct appeal to the electors either before during or after the feast.
                                                                                G
      In the present case, it has been alleged in the election petition, filed
on behalf of the appellant in Civil Appeal No. 7194 of 1993, that the
election for the said parliamentary constituency, was to be held on
26.5.1991, but it was adjourned by three weeks by the Election Commis-
sioner, because of the assassination of Rajiv Gandhi. It was ultimately held H
    472                   SUPREME COURT REPORTS (1994) SUPP. 2 S.C.R.

A on 15.6.1991. During the interval between 26.5.1991 and 15.6.1991 under
    the guise of observing obsequies of the assassinated former. Prime Minister,
    large scaie free mass feedings of the electorate in the slum areas in the city
    and the poor localities in the villages were arranged by the respondent, his
    election agent and other persons with his consent with a view to induce the
B   electors to vote in favour of the respondent. Thousands of voters of the
    constituency participated in such mass feedings. On behalf of the appellant,
    reliance was placed on an advertisement published on 8.6.1991 in paper
    SANJFVAN! (Ext. p. 10) which is as follows :

                                   "ANNADANA
c
             PHOTOGRAPHS OF :

             SHRI RAJIV GANDHI                  C.K. JAFFER SHARIEF

             SMT. INDIRA GANDHI                 K.J. GEORGE
D
         In memory of Rajiv who died for the country under the auspecies of
    Bharati Nagar constituency, Indira Congress Mass Feeding is organised
    tomorrow Sunday (9.6.91)

             President : Shri KJ. George
E
             Annadana distributed by : Shri C.K. Jaffar Sharief.

          Maruthi Sevanagar : Morning 11.30, Cox. Town : 12 Noon, Bharati
    Nagar : After Noon 12.30, Nehru Puram : AfterNoon 1 o'Clock. Shavanna
    Chetty Garden : After Noon 1.30, Ulsoor : 2, Murphy Town : After Noon
F   2.30.

          Published By    Bharati Nagar Block Youth Congres (I) Committee.

                           Bharati Nagar Block Youth Congress (I) Committee.

G   All are requested to participate in these programmes."

    It was urged that although in the advertisement, it was mentioned that mass
    feeding had been organised on 9.6.1991 at different places mentioned in
    the said advertisement, in the memory of Shri Rajiv Gandhi, who died for
    the country the real object behind such mass feeding was to influence and
H   to induce the electors to vote in favour of the respondent.
        NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH.J.]                 473

        Election petitioner examined himself as PW 1. He stated that A
  'Annadana' was arranged in the entire constituency on several days under
  the leadership of the respondent in connection with 'Punya Thithi' of Shri
 Rajiv Gandhi. This 'Annadana' was held by making publication in
 newspapers and in some cases even without such publication. The
 'Annadana' used to be organised like a public function and food used to B
 be served. The respondent himself used to offer food to the persons who
 came as guests. According to PW l such mass feedings were organised to
 get votes from poor people. He also claimed to have seen the mass feedings
 at Cox Town, Maruthi Seva Nagar, Murphy Town and other places, details
 whereof have been stated by him in his evidence. Similarly, PW 2 also C
 stated that election campaign had been carried on in several ways, includ-
 ing 'mass feeding' in connection with the obsequies of Shri Rajiv Gandhi.
 He also stated that through advertisement and other media announcements
 were made about 'Annadana' to be held on 9.6.1991 at different places.
 According to him, in the mass feeding at Maruthisevanagar on 9.6.1991, D
 800 person> were fed. PW5 also stated that 'Annadana' took place in
 Vijayap!!ra Town in the Town Hall on 31.5.1991 and hand bills had been
 printed in that connection. He also stated that such mass feeding took
 place after the assassination of Shri Rajiv Gandhi, in Harijan and Muslim
 colonies. According to him, 'Annadana' was performed to secure votes. E
 PW 8 stated that on 31.5.1991 food was distributed in the Town Hall after
 wide publicity, ostensibly in connection with the obsequial ceremony of late
 Shri Rajiv Gandhi. People of Vijayapura town and surrounding villages
 participated at such mass feeding. Similarly PW 14 stated in his evidence
 that on the ostensible reason of holding of obsequial ceremony of Shri
 Rajiv Gandhi there was distribution of food in some slum areas. In respect F
 of such 'Annadana' announcement had been made in the different seg-
ments of the constituency. Several leaders were present including the
respondent at such distribution of food to poor people. PW 15 also
supported the said allegation. But at the same time, he also stated that the
mass feedings were held in connection with the obsequial ceremony of late G
Shri Rajiv Gandhi, in which he saw the respondent distributing the food.
PW 18, the other witness, examined on behalf of the appellant, also stated
about the advertisement in the newspaper Sanjevani on 8.6.1991 about
'Annadana' to be held on 9.6.1991. PW 18 was examined to prove the
advertisement aforesaid (Ext.P.10) in the Sanjevani Newspaper. PW 22 also H
    474                  SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.

A stated about the mass feeding at Gymkhana ground. He stated that 500 to
    600 persons were present to whom food was served by the respondent. He
    also stated that there was a poster of Shri Rajiv Gandhi at that place.

          It appears to be an admitted position that the mass feeding, which
    was described as 'Annadana' in the advertisement referred to above had
B
    been arranged only after the postponement of the election, due to the
    assassination of Shri Rajiv Gandhi from 26.5.1991 to 15.6.1991. No mass
    feeding had been held prior to 26.5.1991. In the advertisement, which was
    published in the Sanjevani on 8.6.1991, it was specifically stated that mass
    feeding was being organised at different places on 9.6.1991 'in memory of
C   Rajiv who died for the country" . The mass feeding was described as 'Indira
    Congress Mass Feeding'. In the advertisement, it was mentioned that it was
    being published by Bharati Nagar Block Congress (I) Committee and
    Bharati Nagar Block Youth Congress (I) Committee.

D          According to the appellant, the ostenisble object was to observe the
    obsequies of Shri Rajiv Gandhi, but the real object was to arrange feasts
    for electors, to induce them to vote in favour of the respondent. It is well
    settled that charge of corrupt practice has to be proved by the election
    petitioner and the proceedings in the Election Petition are quasi criminal
    in nature. Reference in this connection may be made to Devi Prasad v.
E
    Mal/uram Sing/Jania, [1969] 3 SCC 595; Rahim Khan v: Khurshid Ahmed,
    AIR (1975) SC 290; Bir Chandra v. Anil Sarkar, AIR (1976) SC 603,
    Lakshmi Raman v. Chandan Singh, AIR (1977) SC 587 andAmolak Chand
    v. B/Jagwandas, AIR (1977) SC 813. As such unless the Court is fully
    satisfied that the object of the mass feeding so arranged was only to induce
F   the participants at such mass feeding to vote for the respondent, a
    finding of corrupt practice on that account cannot be recorded against
    the responded. It may be pointed out that although during the
    evidence, the witnesses have stated as already referred to above, that
    the respondent himself was present and was distributing the food, surpris-
G   ingly, in the petition there is no such avernment. It has been simply stated
    there:-

                "During the interval between 26th May and 15th June 1991
             under the guise of observing obsequies of the assassinated former
H            Prime Minister a large scale free-feeding of the electorate in the
                NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH,J.]                    475

                 slum areas in the City and the poor localities in the villages was A
                 arranged by the !st respondent, his election agent, his political
     •           party and other persons with the consent of the !st respondent or
                 his election agent in furtherance of prospects .of election of the ·!st
 I               respondent. 11
_j
                                                                                      B
         Thus there is no allegation that at any of such mass feeding, the respondent
         was present. It has simply been stated that it had been arranged by him,
         his election agent, his political party and other persons with the consent of
         the said respondent or his election agent. On behalf of the respondent, an
         objection was taken in respect of the pleading with respect to the mass C
         feeding in para 17 of the election petition, that it was absolutely vague
         inasmuch as full particulars of the corrupt practice i.e. bribery by way of
         mass feeding had not been set forth as required by Section 83(1)(b) of the
         Act. It was pointed out that when the appellant stated in the election
         petition that a large scale free feeding of the electorate in the slum areas
         in the city and the poor localities in the villages, was arranged by the !st D
         respondent, his election agent, his political party and other persons with
         the consent of the respondent or his election agent', the statement was a
         mere reproduction of Section 123(l)(A) of the Act. It did not amount to
         a statement of material facts or to setting forth full particulars of the
         corrupt practice. There is substance in this contention. The pleading that E
         "the mass feeding was either arranged by the respondent or his election
         agent or his political party or other persons with the consent of the
         respondent or his election agent" cannot be held to be in accordance with
         the requirements of Section 83(1)(a)(b) of the Act. It is vague and does
         not give any particulars. The elected candidate cannot meet such allega- F
         tion. This Court from time to time has laid down as to how the requirement
         of Section 83(1) has to be complied with. Reference can be made to the
         cases of Samant N. Balkrishna v. George Fernandez, (1969] 3 SCR, 603,
         Udhav Singh v. M.R. Scindia, (1976] 2 SCR 246, Dau/at Ram Chauhan v.
         Anand Shanna, (1984] 2 SCR 419, Azhar Hussain v. Rajiv Gandhi, (1986] G
         2 SCR 782, DhaJtipakar Madan Lal Aganval v. Rajiv Gandhi, (1987] 3 SCR
         369, FA. Sapa v. Singora, (1991] 2 SCR 752, where it has been pointed
         out by this Court that requirement of sub-section l(a)(b) of Section 83 of
         the Act regarding statement of materials facts and setting forth of full
         particulars of any corrupt practice has to be complied with in the election H
    476                   SUPREME COURT REPORTS [1994] SUPP. 2 S.C.R.

A petition. Apart from that, as already mentioned above, the advertisements
    as well as the witnesses on behalf of the appellants have stated categorically
    that such mass feeding had been arranged after 26.5.1991 the original date
    fixed for the election, "in the memory of Rajiv who died for country". In
    the election petition it has not been stated that respondent or any person
B   on his behalf requested the persons participating at the mass feeding, to
    vote in favour of the respondent. Sarne is the position so far the oral
    evidence adduced on behalf of the appellant is concerned. If the mass
    feeding had not been held against the background of the assassination of
    Shri Rajiv Gandhi, this Court could have examined as to whether arranging
C   feasts before or during the election amounted to the corrupt practice. The
    High Court has rightly come to the conclusion that in the special facts and
    circumstances of the present case, it is not possible to hold the respondent
    guilty of the charge of bribery, by arranging mass feeding.

           Regarding the charge of excessive expenditure at the said election in
D   contravention of Section 77 of the Act is concerned, it has been stated by
    the appellant C. Narayanaswarny in paragraphs 21 to 26 of the election
    petition as to how the respondent incurred expenditure beyond the limit
    of Rs. 1,50,000 as fJXed under rule 90 of the conduct of Election Rules,
    1961 read with Section· 77 of the Act. It has been stated that the respondent
E   published advertisement in News papers in Kannada, English, Urdu and
    Tamil, appealing to the voters to vote in his favour. Such advertisement
    had been published under the signature of the respondent. According to
    the appellant, the advertisement charges in respect of such advertisement
    alone shall be far in excess of the ceiling limit of Rs. 1,50,000. The said
    expenditure has not been included in the election expenses submitted by
F   the respondent. It has been stated that the respondent got printed posters
    in multi colours with his portrait appealing to the voters to cast their votes
    in his favour. The cost of printing of such posters on a modest estimate
    would be not less than a rupee per copy. It has been asserted that the
    minimum number of such posters would not be less than one lakh. The
G   expenditure incurred on advertisements and printing of posters had not
    been included in the election expenses submitted by the respondent. It has
    been stated that statement at the foot of the advertisements and the posters
     to the effect that it had been issued by "the General Secretary, Karnataka
     Pradesh Congress (I) Committee, Bangalore" was false; as a matter of fact,
     it was the respondent who had paid for those advertisements and posters.
H    It has also been stated that booklets in Kannada, English, Urdu and Tamil
            NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH,J.]                   477

    containing the achievements of the respondent, during his membership of A
    the Parliament had also been published. The number of copies of such
    booklets in each language was not less than 50,000. Even if the cost of each
    booklet is calculated at rupee one each the estimated total cost of publish-
    ing the booklets in four languages shall be not less than Rs. 2 lakhs. In the
    return showing the expenditure incurred by the respondent, the cost of
    printing of booklets had not been included. It has been stated in the B
    election petition, that big cutouts of resondent and the then President of
    the Congress (!)-party were put up through out the constituency. The cost
    of each of the cutout was not less than a thousand rupees and on a modest
    estimate the cost of making and erecting a hundred of such cutouts would
    not be less than Rs. 1 lakh. This expenditure has also not been included in C
    the election expenses submitted by the respondent. The respondent had
    also got several paintings on the different walls within the constituency,
    appealing to the voters to vote in his favour. Expenditure incurred in
    respect of such wall paintings has also not been included in the return filed
    by the respondent. It has been stated that apart from the advertisement,
    posters, booklets, cutouts, wall paintings, hoardings of different sizes, the D
    biggest size being 15' x 10' and the smallest being 3' x 2' had been put on
    throughout the constituency. The cost of erection and painting of the
    hoardings of the size 15' x 10' would not be less than Rs. 10,000. According
    to the appellant, the cost of these huge hoardings would be not less than
    Rs. 50,000 and the cost of small hoardings shall also be not less than Rs.
    50,000. These expenses were also not included in the return submitted by E
    the respondent.

           The Stand of the respondent is that whenever elections are held,
    respective Congress Committees take the responsibility of campaign and
    publicity on behalf of the party candidates. All India Congress Committee     F
    assists the candidates contesting from the party, by providing posters,
    banners, manifestoes, pamphlets and handbills and various other kinds of
    materials in different languages. The campaign materials are distributed to
    different Congress Committee right from the All India level to the unit
    level. Pradesh Congress Committee supports such candidate in campaign.
    Depending on the local needs, they provide the necessary publicity            G
,   materials. Respondent stated that he did not make any request to Kar-
    nataka Pradesh Congress Committee (I) to issue any advertisements on his
    behalf. He also claimed that he had not incurred any expenditure other
    than what had been disclosed in the return of the expenditure (Ex. P. 20).
    When the advertisements issued in newspapers were shown to his, he stated     H
    478                  SUPREME COURT REPORTS [1994) SUPP. 2 S.C.R.               '
A in his evidence that he had not incurred any expenditure on those adver-
    tisements and the expenditure had been incurred for the same by the party.
    He also denied to have published the booklets in English, Tamil or Kan-
    nada. He also denied to have got the wall posters printed or any cutouts
    made or got them installed in any part of the constituency. He stated that
    he had not incurred any expenditure in relation to cutouts, wall paintings,
B   hoardings. The factum of several advertisements issued in different
    newspapers, publication of booklets, cutouts, wall post.\'rs, hoardings, ap-
    pealing to voters to vote in favour of the respondent does not appear to be
    in dispute. The stand of the respondent is that the party has incurred all
    the expenses and he has not incurred any .expenses beyond what has been
C   shown in the statutory return.

          Section 123(6) says that the incurring or authorising of expenditure
    in contravention of Section 77 shall be deemed to be a corrupt practice,
    for the purpose of the said Act. The relevant part of Section 77 is as
    follows:.,.
D
               Section 77(1) "Account of election expenses and maximum there-
            of- (1) Every candidate at an election shall, either by himself or
            by his election agent, keep a separate and correct account of all
            expenditure in connection with the election incurred or authorized
E           by him or by his election agent between the date on which he has
            been nominated and the date of declaration of the result thereof,
            both dates inclusive.

                 Explanation 1. Notwithstanding any judgment, order or
             decision of any court to the contrary, any expenditure incurred or
F            authorized in connection with the election of a candidate by a
           · political party or by any other association or body of persons or
             by any individual (other than the candidate or his election agent)
             shall not be deemed to be, and shall not ever be deemed to have
             been expenditure in connection with the election incurred or
             authorized by the candidate or his election agent for the purposes
G            of this sub-section.

          Explanation (1) aforesaid was introduced by Act No.58 of 1974 w.e.f.
    19.10.1974. It may be mentioned that this Court on 3.10.1974, in the case
    of Kanwar Lal Gupta v. Amar Nath Chawla, [1975] 3 SCC 646, while
H   examining the scope of Section 77 (1) had observed :-
                                                 \
        NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH,J.]                       479

             "When the political party sponsoring a candidate incurs expen- A
         diture in connection with the election, as distinguished from ex-
         penditure on general party propaganada, and the candidate
         knowingly takes advantage of it or participates in the programme
         or activity or fails to disavow the expenditure or consents to it or
         acquiesces in it, it would be reasonable to infer, save in special
         circumstances, that he impliedly authorised the political party to B
         incur such expenditure and he cannot escape the rigour of the
         ceiling by saying that he has not incurred the expenditure, but his
         political party has done so. A party candidate does not stand apart
         from his political party and if the political party does not want the
         candidate to incur the disqualification, it must exercise control over C
         the expenditure which may be incurred by it directly to promote
         the poll prospects of the candidate. The same proposition must
         also hold good in case of expenditure incurred by friends and
         supporters directly in connection with the election of the can-
         didate. This is the only reasonable interpretation of the provision
         which would carry out its object and intendment and suppress the D
         mischief and ad~ance the remedy by purifying our election process
         and ridding it of the pernicious and baneful influence of big
         money.11

To take away the effect of the judgment of this Court in· the case of Kanwar
Lal Gupta (Supra) the explanation aforesaid was introduced saying that             E
notwithstanding any judgment, order or decision of any Court to the
contrary, any expenditure incurred or authorised in connection with the
election of a candidate by a political party or by any other association or
body of persons or by any individual (other than the candidate or his
election agent) shall not be deemed to have been, expenditure in connec-           F
tion with the election, incurred or authorised by the candidate or by his
election agent for the purposes of the said sub-section.

       The validity of the said explanation was questioned before this Court.
A Constitution Bench of this Court in the case of P. Nal/a Thampy Terah            G
v. Union of India, (1985] Supp. SCC 189, observed that petitioner in that
case was not unjustified in cirticising the provision contained in Explana-
tion 1 as diluting the principle of free and fair elections, which is the corner
stone of any democratic polity, but was not for the Court to lay down
policies in matters pertaining to elections. As the said amendment in
sub-section 1 of Section 77 of the Act did not violate the constitution, it        H
    480                   SUPREME COURT REPORTS [1994] SUPP. 2S.C.R.

A could not be declared to be invalid although this Court may not approve
    the poHcy which underlines it. It was further said : -

                "While we are on this question, we would like to point ont that
            if any expenditure which purports to have been incurred, for
            example, by a political party, has in fact been incurred by the
B           candidate or his election agent, Explanation 1 will not be attracted.
            It is only if the expenditure is in fact incurred or authorised by a
            poHtical party or any other association of body of persons, or by
            an individual (other than the candidate or his election agent) that
            the Explanation will come into play. The candidate cannot place
c           his own funds in the power or possession of a poHtical party, or a
            trade union or some other person and plead for the protection of
            Explanation 1. The reason is that, in such a case, the incurring of
             the expenditure by those others, is a mere facade. In truth and
            substance, the expenditure is incurred by the candidate himself
            because, the money is his. What matters for the purpose of Ex-
D            planation 1 is not whose hand it is that spends the money. The
             essence of the matter is, whose money it is."

          It is true that.right to elect or to be elected is pure and simple a
    statutory right and in the absence of the statutory provision neither a citizen
E   has a right to elect nor has he a right to be elected, because such right is
    neither a fundamental right nor a common law right. The same is the
    position so far as the right to challenge an election is concerned. It flows
    from the provisions of the Act itself. As such the right of a person to ·
    question . the vaHdity of an election is dependent on the cmiditions
p   prescribed in the different sections of the Act and the rules framed
    thereunder. It was open to the Parliament to any that any expenditure
    incurred by a poHtical party or by any other association or body of persons
    or by any individual other than the candidate or his election agent, shall
    not be deemed to be expenditure in connection with the election, incurred
    or authorised by the candidate or his election agent for the purpose of
G   sub-section {1) of section 77 read with rule 90 aforesaid.

           At the same time we carmot resist from observing that sub-section
     (6) of section 123 which makes incurring or authorising expenditure in
     contravention of Section 77, a corrupt practice because of the aforesaid
H    Explanation 1 to Section 77(1) has become nugatory and redundant. Sub-
        NARAYANASWAMY v. JAFFAR SHAR!EF [N.P. SINGH, J.]                 481

section (6) of Section 123 read with the Section 77 and rule 90, purports A
to restrict the unlimited flow of money power, and makes expenditure in
excess of the limit fixed, a corrupt practice, but legality and sanctity has
been given to such excess expenditure by explanation 1 aforesaid, which
fixes no limit on the expenditure in connection with the election of a
candidate. Neither the candidate nor the political party nor the persons
                                                                             B
who incur such huge expenditure, for the candidate are required to disclose
the same to anyone. It need not be impressed that it is not always possible
for the election petitioner to prove or even for the Courts to record a
finding that the fantastic expenditure in the election, has been incurred or
authorised by the candidate concerned or by his election agent, although
the court is satisfied on the material on record that the limit fixed by the    c
Act and the rules has been far exceeded in any particulars case.

       In England, before the passing of the Representation of People Act,
1949, the view had been expressed that expenses incurred without the
authority of the candidate or election agent for promoting or procuring the     D
election of a candidate might not require to be returned as election
expenses provided the expenses were incurred by person who were out-
siders and not agents and accordingly did not have any part in the conduct
or management of the election. In order to put a stop to the practice by
which such expenses were incurred by third parties but were not reflected
in the candidate's election expenses, it has been provided that certain         E
expenses with a view to promoting or procuring the election of a candidate
at an election must be incurred by any person other than the candidate,
his election agent or the person authorised in writing by the election agent.
If any person incurs, or aid~, abets, counsels or procures any other person
to incur any expenses in contravention of this provision, he is guilty of a     F
corrupt practice. If any person _not engaged or payment or promise of
payment by the candidate or his election agent incurs any ex:penses re-
quired to be authorised by the election agent, he must within fourteen days
after the publication of the result of the election make a return of the
expenses and a declaration verifying the return. (See Halsbury's Laws of
England, 4th Edn., Vol. 15, Paragraphs 721-722).                                G

       As the law stands in India today anybody including a smuggler,
criminal or any other anti social element may spend any amount over the
election of any candidate in whom such person is interest, for which no
account is to be maintained or to be furnished and any such expenditure         H
    482                   SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.

A shall not be deemed to have been expenditure in connection with the
    election, incurred or authorised by the candidate or by his election agent
    for the purpose of sub-section (1) of Section 77, so as to amount to a
    corrupt practice within the meaning of sub-section (6) of Section 123. It is
    true that with the rise in the costs of the mode of publicity for support of
    the candidate concerned, the individual candidates cannot fight the elec-
B
    tion without proper funds. At the same time cannot be accepted that' such
    funds should come from hidden sources which are not available for public
    scrutiny. According to us, sub-section (6) of Section 123 declaring "incur-
    ring or authorising of expenditure in contravention of Section 77" a corrupt
    practice has lost it significance an utility with the introduction of the
c   Explanation 1 aforesaid which encourages corruption under hand methods,
    if the call for "purity of elections" is not to be reduced to a lip service or
    a slogan, then the persons investing funds, in furtherance of the prospect
    of the election of a candidate must be identified and located. The candidate
    should not be allowed to plead ignorance about the persons, who have
D   made contributions and investments for the success of the candidate con-
    cerned ai the election. But this has to be taken care of by the Parliament.

           So far the facts of the present case are concerned PWl the election
    petitioner has supported in his evidence the allegations made in the
    election petition regarding excessive expenses over the advertisements,
E   posters, booklets, cut outs, hoarding s arid wall posters. He has also pointed,
    out that in many of the advertisements, appeal had been made, soliciting
    votes in the name of the respondent On the basis be took a stand that
    those advertisements, appeals and .posters had not been issued on behalf
    of Congress (I) party but the respondent and as such he should have shown
F   the expenses incurred over the same in his return of the expenses of the
    election. As the law exist today, it is not possible for the Court to hold that
    such expenditure had been actually incurred by the respondent. On behalf
    of the respondent, it was pointed out that in most of the advertisements,
    cutouts and hoardings, it had been mentioned that they were being issued
    on behalf {Jf the party, to which the respondent belonged.
G
          Sub-section (1) of Section 77 requires every candidate at an election
    to keep a separate and correct account of all expenditure in connection
    with the election "incurred or authorised by him or by his election agent".
    Explanation 1 is in the nature of a provision to the said sub-section (1) of
H   Section 77, inasmuch· as ·it provides that if the expenditure has been
       NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH,J.]                     483

incurred by a political party or by any other association or body of persons A
or by any individual other than the candidate or his election agent, it shall
not be deemed to be expenditure in connection with the election incurred
or authorised by the candidate or his election agent, for the purpose of
sub-section (1) of Section 77. The initial onus is on the election petitioner
to satisfy the court on basis of the materials produced by him, that the
                                                                              B
candidate concerned has incurred expenditure in connection with the
election in excess of the limit fixed by the rule 90 aforesaid. If it appears
that such expenditure has been incurred by the candidate or has been
authorised by the candidate or his election agent, then the explanation
being in the nature of a proviso to sub-section (1) of Section 77, the onus
will shift on the candidate to show to the Court that the excess expenditure C
beyond the limited fixed by rule 90 has been incurred either by the political
party or by any other association or a body of persons or by any individual
other than the candidate or his election agent.

       As in the present case, the appellant, who was the election petitioner D
before the High Court except stating the details of a expenditure, over
different advertisements, posters, booklets, cutouts, hoardings etc., in con-
nection with the election, has not produced any evidence to satisfy even in
a printa facie manner that expenditure over such advertisments, booklets,
cutouts, hoardings, posters, etc., had been actually incurred by the respon-
dent. Although in the advertisements and posters it had been specifically       E
mentioned that they were being issued on behalf of the political party, to
which the respondent belonged, the appellant has not discharged the onus
placed on him. The appellant was required to produce some materials in
support of his assertion. The oral statement made by the appellant has been
contradicted by the respondent, by stating on oath that expenditure over        F
such advertisements, posters, cutouts, booklets, hoardings, etc., had been
incurred by the political party and as such the case is covered by explana-
tion 1 to sub-section (1) of section 77 of the Act.

      The appellant in Civil Appeal No. 2543 of 1993, who appeared before
us in person, took a stand that in the present case, the declaration of the     G
result of the respondent itself was in contravention of the provisions of the
Act, inasmuch as several thousand of votes, which should have been
rejected, were counted in his favour, which has materially affected the
result of the election. The result as per form No. 20E (Ex. P.3) is as
follows:-                                                                       H
    484                   SUPREME COURT REPORTS (1994] SUPP. 2 S.C.R.

A         "RESULTS AS PER FORM NO, ZOE:
            (Ex. P. 3)
           ..(a) Total number of voters                   13,33,426

            (b) Total number of votes polled               6,04,604
B
            (c) Total number of votes rejected               12,748

            (d) Votes polled in favour of
                Sri Jaffer Sharie!
                (Respondent No.1)                          2,52,272
c            (e) Votes polled in favour of
                 Sri C. Narayanaswamy (Appellant
                 in C.A. No. 7194 of 1993)                  1,91,955

             (f) Votes polled in favour of
D                Smt. Pramila Nesargi (Appellant
                 in C.A. No. 2543 of 1993)"                 1,45,074

    It is alleged that respondent got printed with the help of the Returning
    Officer more than 2 lakhs ballot papers in excess and those ballot papers
    have been pushed in the ballot boxes, either at the polling station or during
E   transmission or while counting.

           It appears that the Chief Electoral Officer addressed a letter on
    23.4.1991 to the director of Printing and Stationery, requesting him to make
    arrangements for printing of ballot papers at the Government Central
    Press, Bangalore under strict security. The Director of Printing and
F   stationery had also received a copy of the telex message sent on 24.10.1989
    in regard to the printing of number on the ballot papers in respect of
    Parliamentary constituencies, where the voters consisted of more than 10
    lakhs. It was indicated therein, to print the ballot papers upto 999999 in six
    digits. Therefore, to start a new series in six digits with prefix 'A'. One N.K.
G   Narayan, Deputy Secretary, BDA, was deputed for proof reading, super-
    vision, checking and bundling of ballot papers in respect of Bangalore
    North Parliamentary constituency. A direction was given to supply 13,
    78,000 ballot papers serially as indicated in the letter aforesaid. DW3, the
    Director of Printing and stationery, has stated the details of the procedure
    regarding the printing and other information connected with the printing
H   of the ballot papers. He has denied the allegation made by the appellant
       NARAYANASWAMY v. JAFFARSHARIEF[N.P.SINGH.J.]                   485

that he got printed over 2 lakhs ballot papers in excess of the actual A
requirement and allowed the respondent to take away those ballot papers,
He has stated that with the printing facility available at Bangalore, the
ballot papers up to 999999 in six digits were printed. In absence of
availability of seven digits printing machine after ten lakhs, letter 'A' was
prefixed to the numbers. In other words after 10 lakhs the ballot papers
for the said constituency again were numbered as, 000000 with a prefix 'A' B
to distinguish them from the ballot papers of the same number printing
within 10 Iakhs. According to the appellant, these ballot papers with a
prefix 'A' were spurious and respondent got them printed to insert in
different ballot boxes in his favour. This argument has been advanced on
the basis of Form 16 submitted in connection with the counting of ballot C
papers. In many of such Form 16 in connection with ballot papers above
10 lakhs instead of 'A', '1' has been noted. The High Court has dealt with
this question in detail. It appears that in Form 16 by mistake instead of 'A'
as prefix' 'l' has been mentioned. The forms 16 were examined by us also
during the hearing of the appeal in presence of the appellant. The stand
of the Director of printing and Stationery appears to be correct that after D
10 lakhs, the remaining ballot papers were printed starting from 000000
with a prefix 'A', which were used at the said election and they are not
spurious ballot papers. It appeared to be an admitted position that in
Bangalore there was no facility of printing ballot papers in seven digits and
because of that 'A' was added as prefix to the ballot papers printed beyond
10 lakhs. As such we are in agreement with the finding of the High Court E
that merely because in the Form 16, instead of 'A' 'l' has been mentioned
as prefix to the numbers of ballot papers beyond the first 10 lakhs, it cannot
be held that ballot papers beyond the number of 999999 were spurious and
duplicate and were used by respondent in surreptitious manner, which has
materially affected the result of the election.
                                                                            F
     Accordingly, the appeals are dismissed. Bui in the facts and cir-
cumstances of the case, there shall be no order as to costs.

A.G.                                                  Appeals dismissed.

                                                                            G