SHRADHA DEVI v. KRISHNA CHANDRA PANT & OTHERS

B October 26, 1982

Representation of the People Act, 1951-E/eciiOn Petition-Elector's duty- Nature ofproof--Required for a relief ofsCrutiny and recount on the a/legation c of miscount in an election 'petition.

The appellant was one-of the 19 candidates for the 11 members to be elected at the biennial election for electing members to ,Council of States from the !I"'! consti1uency of el~cted m~mbers of the Uttar Prad"'sh Legislative Assembly, at the election held on 28th March, 1979. D' , The election was to be in accOrdance with the ·sYstem of proportional representation by means of single trans_fcrable ~ote. Io all 421 members exercised their franchise. Eleven ballot papers were rejected by tbe returning officer as inValid and the 1st Respondent was declared elected in tbe'14th count.

The appellant, thereupon, filed an election petition Under section 81 of the .J.951 Act before the Lucknow Bench· of the Allahabad High Cou'rt for Scrutiny and ·recount· on the allegation of miscount. The appellant alleged that (i) ~he result of the election in so far as it co~cerns the returned candidate {i.e.)~ .Jst . respondent-has been materially affected by the improper rejectiori of valid votes· by wrongly declaring them invalid as weIJ as by improper reception of what other~ wise would haVe been the invalid vote's if the Return-i,ng Officer had been consitent in his approach, and, therefore, the election of the returned candidate not only F shquld be declared void but in bis· place bf a proper computation oi'votes, the .petitioner sho1,dd be. declared elected to·the 1I th vacancy, (ii) there had been an ., :in1prOper rejection of the valid votes cast in her favour and that 'has materially ;affe~ted the result.of the election; and (iii) even though it was obligatory upon :the Returning Offic.er to sho'w all the ballot papers 'Yhich be rejected as invalid, to the candidates and/or their counting agents, he· only showed four out of the eleven ballot papers heJd invaiid by him and did not show the rest of .them. Even these four were wrongly rejected and cannot be said to •be covered. by .Rule 73(2)(d) of the Election Rules. The High Court dismissed the election petition and hence the appeal by special le~ve.

The appellant contended that {i) where the election is to be held in accor- H' dance with. the system of .Proportiopal .representation by means of the single transferable vote, if the µrst preference is properlr ~pg w;cerlainably cast any

682 SUPREME COURT REPORTS (1983] 1 S.C.R,

A error in setting oUt the reinaining preferences would not enable the Returning Officer to reject the whole ballot paper;· and (ii) every unrequired mark, cutling, erasure cannot tantamount to any indication which would enable the voter to be identified but the writing or mark roust De such that the veter can be and not merely might be identified and there is no such cutting mark or erasure within the meaning of Rule 73(2)(d) of the Conduct of Election Rules; 1961.

8 Allowing the appeal, the Court

1:2. Law does not require that while giving proof of prima facie error in counting each head of error must be tested by only sample examination of some of the ballot papers which answer the error and then take into considera- tion only those ballot papers and not others. This is not the area of inquiry 0

in a petition for relief of recount on the J?,round of n1iscount. True it is that 'a recount is not granted as of ·right, but on evidence of good grounds for believing that there has been a mistake on the part of_. Returning Officer. Prima facie proof or errOr complained of must be given by the election petitioner and it'must further be shown that the errors a!e of such q:iagnitude that the result of the election so far as it affects the returned candidate is materi31ly affected, then recount is directed. [6_90 C·E]

1:3, It is not the requirement of law that in respect of each baJJot paper rejected as invalid a specific averment must be so mar'e as to identify the ballot paper and the only those that can.be correlated to the allegations in the petition specifically and not generally shiill be recounted. Tbat is ·contrary to the requirement of the Act and the ,Ruies. [6?1 B-C] .

2:1. A combined reading of Rules 37A(I), 73(2)(a) and 73(2)(b) of the conduct of Election Rules 1961, makes clear that when voting is in accordance with the praportional representation by means of the single transferable vote it is obligatory to cast" the first preference vote fcir ensuring the validity of the ballot paper and the first preferenee vote must be so cast as not to leave any one in doubt about it. The remaining preferences are optional with the elector. He may or may not exercise his franchise for the remaining preferences, Rule 73(2) is exhaustive of the grounds on which a ballot paper at a votir.g at election by Assembly members shall be rejected as invalid and on a true and indepth r~adin~ of it, it· does· nl)t transpire that the

SHRADHA DEVI v. K.C. PAN1' 683

failure to cast the remaining preferences wou1d invalidate the ballot papers. A This. is so because under rule 37A(l) every elector has· only one vote at an

- election irrespective of the Dumber of seats io be filled. The vote is only one and even if there is more than one seat to be filled in, subseqtient preferences may be indicated -by the elector and it is optional with him not to exercise preferences outside his only one vote which he must cast by indicating unambiguously bis first preference. [695 D-G] B 2:2. If there is only ..one vote at such an election and the preferences are as many as there are seats chronologically to be indicated and failure to exercise preferences subsequent ~o first preference would not invalidate the ballot paper, it must fo!Jow as a corotlary that if the elector has ~ommitted some error in exercising his preferences lower down the ladder .the whole of the ballot paper cannot be rejected as invalid. Thei'efore, it must follow that not only such a ballot paper has to be -held as valid baUot paper but its validity shall continue c upto the stage iO preferences where an error or confusion transpires which would not perlnit computation of subsequent prCferences .below the level of error. To illustrate the point~ if as in the present case the voter had option to exercise 11 preferences atid if he has exercised his prefereQces 1 to S correctly and unambiguously and has eommitted an error in exercising sixth preference and it cannot be said with certainty for whom the sixth preferences vote was cast, D the ballot paper has to be held valid in computation of votes upto and' inclusive of the fifth preference and ·rejected for the preferences down below as if the elector has not exercised his further preferences which wlls opt.ional with him. The ballot paper can thus be partially valid ·and this is the logical out~ -. come of the system of voting. [695. F-H, 696 A-C-EJ

3:1. Free and fair election being tbe fountain source of Parliamentary de~ocracy attempt of the Returning Officer and the Court should be not to chart the easy course of rejecting ballot papers "as invalid under the slightest pretext but serious attempt should be made before rejccti~g ballot papers as invalid to ascertain, if possible, whether the elector has cast his vote with sufficient cl8rity revealing his intendment. In this cil.se, the Returning Officer has charted an easy course unsupportable by evidence and the High Court failed to exercise its jurisdiction of scrutiny of all ballot papers Once a serious F error has been pointed out in respect of two ballot papers out of a total of 11 ·

.. invalid ballot papers. [700 E-GJ

3:2. Rule 73(2)(d), provides that a ballot paper shall be inValid on wbich, • there iS: any m"ark or writing by .which the elector can be identified. Section 94 G of the Representation of People Act, 1951 ensures secrecy of ballOt and it cannOt be infringed because ~o witness or ot!Jer p6rson shaH be required to state for whom he has voted' at an election. To ensure free and fair election w.hich is piv<;>tal for setting up a parliamentary democracy, this vital principle was enacted in s: 94 to ensure that a voter would be able to vote uninhibited by any fear or any undesirable consequence of disclosure of bow he voted. As a corollary it is provided !hat if there is any mark or writing on the ·baUot H paper whicb. enables the ~l~i;:h?r t<? ~ ~<!~r:Hified the ba1lot paper would be·

684 SUPREME COURT REPORTS (1983] l S.C.R.

A rejected as invalid. But the mark or writing must be such as would unerringly lead to the identity of the voter. Any m:irk or writing of an innocuous nature or meaningless import cannot be raised to the levei of such suggestive mark or writing as to reveal the identity of the voter. There must be some causal connection between the mark and the identity of the voter that looking at one the other becomes revealed. Therefore the mark or a writing itself must reasonably give indication of the voter's identity. It may be that there may be B extrinsic evidence from.which it can be inferred that the mark was placed by the voter by some arrangement. [697 F-H, 698 A-DJ

Raghublr Singh Gill v. Gurcharan Singh Tohra & Others, [1980] 3 S.C.R. i302; followed.

c Woodward v. Sarsons & Another, [1874-75) 10 L.R. (CP) 733, ·quoted with approval. · \. - ~- ) 3:3. The words. "cati be identified" in Rule 73(2)(d) cannot be interpreted J to mean "might possibly be identified". The mark or writing Whicti would invalidate 1he ballot paper must be sucq. as ,to unerringly point iil the direction of identity of the voter. In the absence of suggested tnark or writing the ballot paper cannot be rejected merely because there is some mark or writing on the -~- ' ground that by the mark or writing the voter may be identified. [698 D'·F]

Sohan Lal v. ,.4binash Chander & Others, L1953] 4 Election Law Reports, 55 approved.

3:4. In the instant case, (i) there was specific averment in para 18 of the petition that the marks were not such ·as to lead to identity of the ·elector and that the ballot papers could not be rejected as invalid under rule 73(2)(d). This allegation is wholly subStantiated . by a casual look at the remaining nine· ·ballot papers. The et_ror is apparent; ·Once the error has been established the scrutiny and recount had to be ordered as a Primafacie case or miscount is. ma.tie out and. therefore, the decision of the High Court is liable to be set aside, (ii) As the High Coutt has not undertaken to examine the validity of each ballot paper it would not be proper- for the Su.preme Court to undertake the same for the first titne here; (iii) tbe position of law having been made very clear. namely, that once an error is established it is not necessary that the/ pleadings must show error in respect of each individual invalid ballot pap~r. and a prima facie pr6of of error. resulting in miscount having been established a scrutiny and recount bas to be ordered. And the serutiny of invalid ballot • papers must precede the recount; and (iv) there is no eviderlce or any prior c arrafigement between candidate and the voter regarding identity and· fv) the ballot papers could not have_ been rejected on the ground mentioned in rule 73(2)(d), such marks, beibg in this case, somP. erasures or a bracket. ) [699 F·H; 700 A-A)

CIVIi. APPELLATE JURISDICTION : Civil Appeal No. 277 of 1980, '

SHilADHA DEVI v. K.c. PANT (Desai, J.) 685

·(From the Judgment and Order dated the I Ith December, 1979· of.the Allahabad High Court in Election Petition No. 2 of 1978.)

A.P.S. Chauhan, C.K. Ratnaparkhi and D. P.S. Chauhan fot the Appellant.

A.N. Sen and C.P. Lal for Respondent No. I. B

S.S. Khanduja for RR. ~ & 5.

Miss Karnlesh Bansal for Respondent No. 16.

· The . Judgment ~ . of the' Court was delivered . by C DESAI, J. An unsuccessful candidate fo~ electfon to council of States (Rajya Sabha) at the election held on March 28, 1979, is the appellant. At the biennial election for electing members to Council · of States from the constituency of elected members of the Uttar Pradesh Legislative Assembly, 19 candidates including the appellant D and. the !st respondent Were duly nominated as candidates. II members were to be elected. Election was to be held as mandated · by clause (4) of Article 80 of the Constitution in accordance with the system of proportional representation by means· of the single transferable vote. After the. poll was closod according to the ·time prescribed by the Election Commission under s. 56 of the Represen- E talion cif the People Act, 1951 ('1951 Act' for short), t~e Returning Officer, PW. 4 Satya Priya Singh commenced counting bf votes. As the election was to be in accordance with the system of proportional representation by means of the single transferable vote, the Returning Officer as required by rule 76 of the Oinduct of Electi~n Rules, 1961 ('Rules' for short), proceeded to ascertain the quota. In F· all 421 members exercised the franc'his~. Eleven ballot. paperi were rejected by the Returning Officer as invalid. Accordingly the quota was worked out at the· value o.f 3417. Respondenfs 2 to 11 were declared elect'd as each of them s~cured the value of ballot papers • greater than the quota in the course of counting. As the counting .G proceeded further, the contest was between the election petitioner .(appellant) and the !st respondent and the !st respondent was declared elected in the 14th count. Once all the 11 vacancies were fiil~d in, counting was closed. H Petitioner filed an election petition under s. 81 of the 1951 Act · in the High Court of Judicature (Lucknow Bench), Lucknow. The

p. 686 Copy page pinpoint

petition was for scrutiny and recount on the allegation of miscount and directed against the Isl respondent because he was declared elected to the last vacancy. '• -~

Petitioner alleged that the result of the election in so far as it ll c~ncerns the returned candidate • 1st respondent has been materially ·affected by the improper rejection of valid votes by wrongly declar- ing them invalid as well as by improper reception of what.otherwise would have been the invalid votes if the Returning Officer had been consistent in his approach and, therefo~e. the election of the .. returned candidate not only should be declared void but in his place c by a proper computation of votes the petitioner should be declared elected to the I 1th vacancy. The petition primarily being for relief of scrutiny and recount on the allegation of miscount it was necessary ' to allege and offer prima facie proof of the possible errors in the counting which, if satisfactorily established, would enable the court to direct a recount. It may be stated that no prima facie proof has ·«' D been offered of the improper reception of an otherwise invalid vote in favour of the Jst respondent and that allegation may be excluded from further consideration. Petitioner alleged that there has been an improper rejection of the valid votes cast in her favour and that has materially affected the result of the election. Petitioner states E that even though it was obligatory upon the Returning Officer to show all the ballot papers which he rejected as invalid to the candidates and/or their counting agents, he only showed four out the ' eleven ballot papers held invalid by him and did not show the rest • of them. To the question as to why votes were rejected as invalid it is alleged that the Returning Officer informed the counting agents F · that there were marks and cuttings in. the ballot papers which may possibly identi_fy the voters. and, therefore, such ballot papers have been rejected on the ground set out in rule 73 (2) (d) of the Rules. Four specific allegations of error, improper rejection of votes other· wise valid necessitating scrutiny and recount are set out in paras 14, 15, 17 and 18 of th_e election petition. It was also alleged that of G the four ballot papers shown there was one in which first preference was ·indicated in favour of the petitioner but that was . illegally rejected by the Returning Officer on the ground that it contained an overwriting in respect of the 10th preference. vote marked by the voter: The second error alleged in the petition is that in one ballot ... H paper the 4th preference figure was put in a bracket and this was illegally rejected on the ground that the voter can be identified. The

SHRADHA DEVI v. k.c. PANT (Desai, J.) - 687

third allegation is to the effect that the ballot paper containing a !st A ) 0

preference vote cast in favou.r of the candidate Shri Su rendra Mohan' was illegally rejected by the Returning Officer on ·the ground that the voter had given his !st preference vote· at two places whereas in fact the voter·had given his !st preference vote only to Shri Surendra ·Mohan and had given I Ith preference vote to another candidate B which could be demonstrably established by scrutiny of the ballot paper. The fourth error alleged to have crept in the counting was that the Returning Officer invalidated two other ballot papers on the ground that there were overwritings in the 8th and 9th preference votes respectively and that even though these ballot papers did not contain any mark or writing by'which the voters could be identified, c they were rejected as invalid contrary to the relevant provision. It was urged that these prima facie errors when substantiated would clearly make out a case of miscount and the same can· be corrected by scrutiny and recount. The scrutiny and recount was sought to be confined specifically to the decision of the Returning Officer rejecting· 11 votes as invalid. The contentions were crystylised in the course of bearing of the appeal by urging that where the election is to be ·held in accordance with the system of proportional representation by means of the single· transferable vote, if the first preference is properly and ascertainably cast any error in setting out the remaining preferences would not enable the Returning Officer to reject the whole bailot paper as invalid. The second specific contention is that ·every unrequired mark, cutting, ·erasure cannot tantamount to any • indication which would enable the voter to be identified but the writing or mark must be such that the voter can be and not merely might be identified and there is no such cutting, mark or erasure.

F The !st respondent contested the petition, inter alia, contending that the quota was not 34 i'7 as contended for on behalf of the petitioner but it was 32'17 and that ·respondents 2 to II received more than quota h.ence they were declared elected and that the contest continued between him ~and the petitioner and in the 14th G count the I st respondent was declared elected as the value ·of his ballot papers exceeded the value of ballot papers of other continuing candidates together with the surplus votes not ·transferred. · He specifically denied though he was not present at the counting that all the ballot papers rejected at the counting were not H shown to the counting agents and contended that no error in counting is shown and that it is not open to.the cour.t to direct recount

SUPREME COURT REl'Oil.TS (198~) 1 s.c.il,

A by first examining the ballot papers rejected as invalid. Some techni- ' ~al contentions were taken by him with which we are not concerned ' in this appeal.

A learned single· Judge of the High Court to whom the· election B petition was assigned framed as many as 11 issues. on which the· parties were at variance. In the course of hearing of the petition the petitioner moved an application for a direction that an inspection of the 11 ballot papers rejected as invalid by the Returning Officer may be giyen to the petitioner. The Court directed inspection of four · ballot papers to be given as per order dated May 2, 1979. The !st • c respondent, the returned candidate questioned the correctness of this order in this Court in special leave petition filed by him. In the mean time all the disputed 11 ballot papers were summoned from the Returning Officer and· the Court directed the Joint_ Registrar to open the sealed packet containing ballot papers and consistent with ·the allegations in paras 14, 15, 17 and 18-of the petition, try to correlate the ballot papers in respect of which the allegation of improper rejection may prima facie appear to be of substance and . give inspection of those four ballot papers to both. the parties. The learned counsel appearing for the petitioner was not inclined to take inspection in t(Jis truncated manner and disclosed his desire to move tbis Co~rt against the order gra~ting only inspection of four· ballot E papers. The learned Judge by his order dated May 16, 1979, directed that the sealed packet containing the ballot papers shall -not be opened until further orders of the Court and the same shall be· kept in safe custody with the Joint Registrar. It appe_ars, thereafter the petitioner preferred the special leave petition but ultimately the same appears to have been withdrawn and sought direction of the · F. Court for compliance with the' order for showing four ballot papers as per the previous order. The Court accordingly directed that 1he Joint Registrar shall open the sealed packet of the rejected ballot papers and allow the returned candidate or his counsel and the -petitioner or ·her counsel to have visual inspection of the ballot papers without allowing the parties or their counsel to handle the ballot papers. Time and date. of the inspection was fixed by the Court. The Joint Registrar opened the sealed envelope but found some difficulty in complying with the order of the Court directing giving of inspection of four ba1lot papers out of 11 rejected ballot papers because there was no specification as to. which four ballot papers were to be the subject-matter of inspecti~n. Ultimately he

• SHRADHA DEVI v. tc.c. PANT (Desai, , J) ' 689

took recourse . to th.e averments. in the petition, examined each A _) allegation, attempted to correlate· it to the ballot papers in his hand and found that only two ballot papers could. be correl~teci to the allegations made in the petitfon and gave inspection of two ballot papers and kept other 9 ballot papers, of which he did not give inspection, in sealed envelope. On this report of the Joint Registrar the learned Judge called for the sealed envelope, opened up th~ B envelope in the presence of the learned coun_sel for the parties to verify ·the correctness of the report of the Joint Registrar and being satisfied that it was· correct, he made an order to that effect on > December 5, 1979. •.

Thereafter the parties went to trial. Neither the unsuceessful c candidate, ihe petitioner, . nor the I st respondent, the returned candidate, stepped into the witness box. On behalf of the petitioner PW. 1 Shri Shakir Ali Siddiqi, PW. 2 Udit Narain Sharma, election agent of candidate Shri Surendra Mohan, and PW. 3 Kalpnath Singh election agent of .the petitioner were examined. RW. 1 Habibul Rahma~.Nomani, counting· ·agent of Smt. Manohara, RW. 2 Deo Bahadur Singh, election agent of the returned candidate !st respondent, RW. 3 Prabhat Kumar Misra, observer deputed by the Election Commission and. RW. 4 Satya Priya. Singh, Returning Officer were examined on °behalf of the returned candidate. · E The learned Judge rejected the petition substantially holding th.at the petitioner has failed to prove that all eleven rejected ballot papets·were not shown to the counting agel\ts. It was held that petitioner failed to prove such error in counting which would enable her to seek relief of scrutiny' and recount. In reaching this conclusion, with great respect, the learned judge has completely misqireted himself as to the nature of proof ~equired for a relief of scrutiny and recount on the allegation of miscount. The learned Judge first to~k up the allegations of ~rrors in.counting, more particularly directed io the allegation of improper rejection of valid votes which would materially affect the result as set out in paras 14, 15, 17 and 18 of the petition, and then through the help of the Joint Registrar excluded \ the nine ballot papers . without, giving inspection and ·only ' took into consideration two ballot papers which answered the error as complained of and then proceeded to hold that even if these two ballot papers rejected as invali<i are taken into account and the value of the votes computed, the result ·would not be materially affected and, therefore, rejected the election petition.

690 SUPREME COURT REPORTS (1983] I 9.C.R.

A When a petition is for relief of scrutiny and recount on the allegation of miscount, the petitioner has to offer prima facie .proof of errnrs in counting and if errors in counting are prima facie established a recount can be ordered. If the allegation is of improper rejection of valid votes which is covered ,by the broad spectrum of scrutiny and recount. because of miscount, petitioner must furnish B primafacie proof of such error. If proof is ftirnished of some errors in respect of some ballot papers, scrutiny and recount cannot be limited to those ballot papers only. If the recount is limited to those ballot papers in respect of which there is specific allegation 'of error and the correlation is established, the approach would work havoc in a Parliamentary constituency where more often we find 10,000 or c more votes being rejected as invalid. Law does not require that while giving proof of prima facie error in counting each head of error must be tested by only sample examination of some 'of the ballot papers which answer the error and then take into consideration only those ballot papers and not others. This is not the area of inquiry in a petition for relief of recount on the ground of miscount. True it is 1

D that 'a recount is not granted as of right, but on evidence of good grounds for believing that there bas been a mistake on the part of , Returning Officer' (See Halsbury's Laws of Eng1and, 4th Edn., Vol. 15, para 940). This Court bas in terms held that prima facie proof of error complained of must be given by the election petitioner and it must further be shown that the errors are of such magnitude that the result of the election so far as it affects the returned candidate is materially affected, then recount is directed. What was broadly alleged by the petitioner in the election petition was that where election is held in accordance with the proportional representation by the single transferable vote it would be illegal and erroneous for the Returning Officer to reject as invalid a ballot paper if after first F' preference vole is validly cast some error is committed in indicating the remaining preferences. Instances of error ' is commited in indicating the remaining preferences:· Instances of error set out in paras 14, 15, 17 and 18 spelt out a ground that the ballot papers which were rejected under rule 73 (2) (d) did n6t, contain or carry any mark or writing by which elector can be identified and that there has been thus improper rejection of a vote otherwise validly cast or which is partially valid. Without allowing inspection of all the dis- puted ballot papers the learned judge bas accepted that at least two ballot papers can be correlated to allegation in para 15 and 17 which would prove the allegations made in the petition. ,The learned Judge, ..

SHRADHA DEVI v. ICC. PANT (Desai, J.) 691.

however held that the rejection of these two ballot papers was correct. A further observation is that even if the rejection of these two ballot papers is held to be improper, the result of the election so far as returned candidate Is concerned is not materially affected. And it would be succinctly pointe\J out that allegation in para 18 in respect of two other ballot papers is wholly substantiated. Even at the cost of repetition it ·must be said that it is not the requirement of law that in respect of each ballot paper rejected as invalid a specific averment must be so made as to. identify 'the ballot paper and only those that can be correlated to the allegations in the petition speci- fically and not generally ·shall be recounted. That is contrary to the requirement of the Act and the Rules. c The impermissible approach of the learned· Judge compelled us with the consent of learned counsel of the parties to call for the 11 ballot papers rejected as invalid. A direction to open sealed l , envelopes was given and at the request of learned counsel for the parties Xerox copy of each ballot paper was supplied to both the sides and the appeal was. further set down . for hearing. .'

We now proceed to examine ·the contentions -in this petition. Let us first have a look at the relevant constitutional and statutory provisions. Clause (4) of Article 80 provides. that the representatives of each State in the Council 'of States shall be elected by the elected members of the Legislative Assembly of the State in accordance with the system of proportional repr~sentation by means of the single transferable vote; The fasciculous of Rules in Parts VI and VII of the Rules are relevant. Part VI is headed 'Voting at Elections by F Assembly Members and Council Co11stituencies'. Rule 70 provides that the provisions of rules 28 to 35 and 36 to 48 shall apply : (a) to every election by assembly members in respect of which. no direction has been issned under clause (a) of rule 68, subject to. ihe modi- fications set out in the sub-rules of Rule 70. The important · modification of which we must take notice is the introduction of rule 37A setting out the ·method of' voting at such election. It may •• be extracted :

;, "37A. Method of voting-(!) Every elector has only one vote at an election irrespective of the number of seats to be filled.

692 StJPllEMB cOUR'I: REPOlltS [1983J I s.c.!l: A (2) An elector in giving his ~ote-

(a) shall place on his ballot paper the figure I in the space' opposite the n&me of the candidate for 'whom he wishes to vote in the first instance, and . ' B (b) may. in addition, place on his ballot paper the figure 2, or, the figures 2 and 3, or the figures, 2, 3 and 4 and so on in the space opposite, the names of the other candidates in ,the order of his preference. c Explanation~The figures referred to in clauses (a) and (b) of this sub-rule may be marked in the international from of Indian numerals or in the Roman form or in the form used in any Indian language but shall not be indicated iu words".

Part VII is headed 'Counting of votes' at Elections by Assembly Members or in Council Gonstituencies'. It defines expres- si()ns such aa 'continuing candidate' 'count', 'exhausted paper'· 'first preference', original vote', surplus' transferred vote' and 'unexhaused paper'. These are techanical terms each having' bearing on the question of countiµg of votes. 'First preference' vote has been defined to mean t~e figure I set opposite tµe a name of a candidate; 'second preference' means the figure 2 set opposite the name of a candidl!te: 'third preference' means the figure 3 'set opposite· the name of a candidate, and so on. 'Original vote' is defined to mean in relation to any candidate, a vote derived from a' ballot p~per on which a first preference is recorded, for such candidate. Rule 73 pro- vides for ,scrutiny and opening of ballot boxes and packets of postal baiiot papers. Sub-rule (2) of rule 73 is material whi~h may be cxtr~cted: G "73. Scrutiny and opening of ballot boxes and packets of postal ballot papers-

(2) A ballot paper shall be invalid on which-

(a) the figure I is not marked; or

SRRADHA DEVI v. K.c. PANT (Desai, J.) 693

(b) the figure 1. is set opposite the name of more A _) than one candidate or is . so placed as 'to render it doubtful to which candidate· it is · intended to apply; or

(c) the figure I and some other figures -are set opposite the name of the same candidate; or B (d) there is any mark or writing by which the elector can he identified; or

(e) there is any figure marked otherwise than with the article supplied for the purpose : c f- . Provided that this clause shall not apply to a postal ballot paper.

694 SUPREME COIJRT REl'ORTS (198311 s.c.R.

A with rule 73 (2) (a) it unquestionably transpires that in this system of voting as understood in contradistinction to single member constituency where a cross has to be placed against the name or the symbol of the candidate the first preference vote is a sine qua non . fot validity of the ballot paper .. The provision contained in rule 37A (2) (b) read with rule 13 (2) (a) alid (b) would manifestly B show that the elector is not required to exercise all preference avail- able to him at the election. To illustrate, if as in the present case there were 11 vacancies; the elector can go on exercising his pre- ferences up to I Ith number b¥ putting figures I to I I against 1 the candidates whom the elector wants to accord his preferences according to his own choice. Bui' while exercising the preferences it c is obligatory in order to render the ballot paper valid to give first preference vote. It is optional for the elector to exercise or not to exercise his remaining preferences. This must be so in the very nature of things because this system of voting was devised to pro- vide minority represent'ation. If amongst 421 electors as in the present case a party has 220 members owing allegiance to the party and each one can exercise II votes with the reservation that not D more than one vote can be given to one candidate and that a cross up to the totality of number 11 can be placed against 11 different candidates, no one else having 201 votes in his pocket can get elei:ted. To avoid this monolithic political pocketborough of votes this more advanced system of proportional' representation by means of the single transferable vote was devised. The very expression E 'proportiona.I representation' is onomatopoetic in the sense it shows that yarious interests especially the minority g'roups can secure representation by this more advanced metlJod of franchise. True, where there are single member constituencies this system is not helpful. But where there are multi member constituencies this system bas a distinct advantage and the advantage becomes discerni- ble from the fact that rule 37A (2) (a) provides that an elector in giving bis .vote !ball place on his ballot paper the figure I in ihe space opposite the name of the candidate for whom he wishes to vote in the first instance. The expression 'shall' demonstrates the mandate of the sect\pn and when compared with sub·clause (b) which provides that an elector in giving his vote may, in addition, place in his ballot paper the figure 2 or the figures 2, 3, 4 etc. which would bring in sharp focuss the mandatory and the directory part in clauses 2 (a) and 2 (b). . The underlying, thrust ·of the section becomes further manifest by referring to rule 73 (2) (a) and (b). which provide that a ballot paper shall be invalid on which the

SHRADHA DEVI v. K.c. PANT (Desai, J.) 695 ' '

figure l is not marked or the figure 1 is set oppo~ite the name of more than one candidate or ·is so placed as to render it doubtful to which it is intended to apply. Sub-clause (c) of sub-rule (2) of rule 73 further brings out the intendment of the provision because it mandates that the ballot paper shall be invalid on which the figure I and some other figures I are set opposite the name of the same candidate. It, therefore, necessarily, follows that when voting · is in accordance with the proportional representation by means of the single transferable vote it is obligatory to cast the first preference vote for ensuring ihe validity of the ballot paper and the first preference vote must be so cast as not to leave any one in doubt about it . .The remaining preferences .are optional with the elector. He may or may not exerchise his franchise for the remaining preferences. If- he chooses n~t to exercise remaining preferences the ballot paper cannot be rejected. as invalid for failure to exercise the remaining preferences. Rule 73 (2) is exhaustive of the grounds on which a ballot paper at a· voting at .• r election by Assembly members shall be rejected as invalid and on a D true and indepth reading of it, it does not transpire that the faliure- to cast the remaining preferences would invalidate the ballot paper. This conclusion is reinforced by the provision" contained in rule 37A (I) which provides that every elector has only one vote at an election irrespective of the number of seats to be filled. There· fore, the vote is only one and even if there is more than one seat E to be filled in, subsequent preferences may -be indicated by the - elector and it is optional with him not to exercise preferences outside his only one vote which he must cast by indicating unambiguosly his first preference. F What then ·follows ? If there is only one vote at such an election and the preference are as many as there are seats chronologi- cally to be indicated and failure.to exercise preferences subsequent to firs.t preference would not invalidate the ballot pa per, it must follow as a corollary that if.the elector has committed some errodn exercising bis preferences lower down the ladder the whole of the ballot paper cannot be rejected as invalid. To illu.strate, if the elector has with sufficient ·clarity exercised his preferences, say I io 5 in chronologiCaL order but while exercising bis sxitb preference he having the right to exercise the preference up to I I, has committed an error, the error, in exercising .his sixth preference ·~ould not render the wltole ballot paper invalid and. his prefere11ce ·up to

696 SUPREME COURT REPORTS [19831 I s.c.11.

A 5 will have to he taken into account while computing the votes. We specifically invited learned counsel on ·both sides to assist us in examining this aspect as we were treading .on an uncovered - ground. In fact, we adjourned the matter to enable Mr. Chauhan, learned counsel for the petitioner and Mr. A.K. Sen, learned counsel for the respondent to study the problem and 11t the resumed hearing ii was B not only not disputed but unambiguously conceded that in view ·of the provision contained in rule 37 A read with rule 73 (2) once the first preference vote has been clearly ,and unambiguously exercised the ballot paper cannot be rejected on the ground that lower down the ladder there was some error in e~e~cising the subsequent pre- ferences. If this is the correct -interpretation of. ruie 37 A, it must c follow that not only such a ballot paper has to be held as valid ballot paper but its validity shall continue up to the stage in pre- ferences where an error or confusion 'transpires which would not permit computation of subsequent preferences below - the level . of error. To illustrate the point, .if as in the present case the voter had option . to exercise '11 Preferences and if he D has exercised his preferences I to 5 correctly and unambi- guously and has committed an erro~ in exercising sixth pre· ference and it cannot be said with ce~tainty for whom the sixth preference vote was cast, the ballot paper has to be held valid in • computation of votes up to and inclusive of the fifth preference and rejected. for the preferences down below as if the. elector has · E not exercised his furtl]er preferences which was optional with him. The ballot paper can thus be partially valid. This is not a startling proposition but is the logical outcome of the _system of voting. No authority is needed in support of it but one is required it is to be found in the statement of law in paragraph 636, page 345, Vol. 15 F of the Halsbury's Laws of England, 4th ,Edn. It may be. extracted :

"63_6. Ballot papers rejected in part-Where ai a local government election or poll ·consequent on a parish or community meeting the voter is entitled to vote for more • than· one candidate or at a poll consequent on a parish G or community meeting on more thab one question, a ballot paper is not to be deemed to be· void for uncertainty as respects any vote as to which no \mcertainty ll)"ises and

H that vote is to be counted". .. We have examined this aspect in depth because out of 11 invalid l;>allot papers which we hav~ ml\rked pow in tJie Xerox copie&

SHRADHA DEVI v. IC.c. PANT (Desai, J.) 697

from 'A' to 'K' for identification, ballot paper marked 'B' has been A rejected under rule 73 (2) (bl by the Returning Officer on the ground that firgure I appears against two candidates J.P. Singh and Surendra Mohan. The High Court has accepted the rejection as valid. It is difficult to accept this view of the Returning Officer affirmed by the High Court because figure I has been clearly marked against the candidate- Surendra Mohan and the ligure 11 is noted B -against the candidate J.P. Singh. There is some. overwriting in the two strokes of 11 but it must be remembered that explanation appended to rule 37A permits that the figures indicating preferences may be marked in the international form of in Indian numerals or in the Roman form or in the form used in any Indian language but shall not ·be indicated in wor_ds. All other figures indicating c the preferences have been written in Hindi numerals and 11 is by two strokes having the loop at the top ,slightly overwritten but the preference is the 11th preference against J.P. Singh, is indisputa-- ble and is clearly visible to the naked eye. Obviously this ballot ., pap~r marked 'B' could not have been rejected oo the ground D mentioned in rule 73 (2) (b). '

... We may now turn to remaining nine ballot papers. Remaining nine ballot papers have been rejected on the ground that by some mark on the ballot paper itself. the voter can be identified. There E is a specific allegation to that effect in para 18 of tb_e election peti- tion. Before we examine each individual ballot paper, let the full import of the provision be made clear. Rnle 73 (2) (d) provides that a b_allot paper shall be invalid on which there is any mark or writing by which the elector can be identified. Section 94 of the · 1951 Act ensures secrecy of ballot-and it cannot be infringed because no witness or other person shall be required to state for whom he . has voted at an election. Section 94 -\vas interpreted by this Court on Raghbir Singh Gill v. Gurcharan Singh Tohra & Ors ,(1) to confer a privilege upon the voter not to be compelled to disclose' how and for whom he voted: To ensure free and fair election which is · pivotal for setting up a parliamentary democracy, this vital principle was enacted in s. 94 to ensure that a voter would be able to vote uninhibited by any fear or any undesirable consequence of disclosure o(how he voted. As a corollary it is provided that if there is any mark or writing on the ballot paper wb,i~h enables the ~1.e~to~

(1) (1980] 3 S.C.R. 1302.

698 SUPREME COURT REPORTS [1983] I s.c.R.

to · be identified the ballot paper would .be rejected as invalid. But the mark or writing must , be such as would unerringly .lead to the identity of the voter. Any mark or writing of an innocuous nature or meaningless import cannot be raised to the· level of such .suggestive m~rk or writing as to reveal the identity of the voter. In Wodward v. Sarsons & Anr.,( 1) inter- B preting an identical provision it was observed as under :

"It is ilot every writing or every mark besides the number on the back which is to make the paper void, but only such a writing or mark as is one by which the * c voter can be identified". '

It would imply that there must be some causal connection between · the mark and the identity of the voter that looking at one the • other becomes revealed. Therefore,, the mark or a writing itself D must reasonably give indication of the voter's identity. It may be that there must be extrinsic evidence· from which it can be inferred . that the mark was placed by the voter by' some arrangement, In this context one can advantageously refer to the statement' of law in Halsbury's Laws of England.( 2 ) It may be extracted : , ' '

E "634. Ballot papers rejected for marks of identifi- cation-Any ballot paper on wbiCb anything is written or marked by which the voter can' be identified, except the printed number on the back,, is void and must not be counted. The writing or mark' must be such that the. vot~r can be,. and not merely might possibly be, identified" F "As respects ballot papers ~hich have names, initials, figures or other possible marks of identification on them by which it might be suggested that the voter could be identi- fied, it has been said that the 'court should look at the paper and from its own opinion whether what is there has • G been put there by the voter for 'the purpose of indicating for whom be votes; if the voter bas not voted in the proper way (if for examble he has made two crosses, or some other such marks which might have been intended B ' (!) [1874-75]')0 LR. (Common Pleas) 733. ... m4thJldp, Vol, 15, para. 634.

SHRADHA DEVI v. K.c. PANT (Desai, J.) 699

for purposes of identification), but the Court comes to the - conclusion on looking at the paper that the 'real .thing that - the voter has been doing is to try, badly or mistakenly, to . give his vote, and make it clear for whom he voted; then these marks should not be considered to be marks of iden- tification unless there is positive evidence of some agreenient B to show that it was so".

In Woodward's -case -the Court came to the conclusion that the · placing of two crosses or three crosses or a single stroke in line of ·a cross or a straight line or a mark like imperfect letter 'P' in -addition to the cross or star instead .of a cross or a cross blurred or marked with. a .tremulous hand, or a cross placed on the left. side of the c ballot paper, or a pencil line drawn through the name of.the can- didate not voted for, or a ballot. paper torn longitudinally through the centre, are not marks which would invalidate the votes on the ground that . the mark was such that the voter .can he identified. '• Similarly, Election Tribunal in Sohan Lal v. Abinash Chander 0 & Ors.,( 1 ) held that _addition. of a horizonai line after figure I indicating first preference vote would not invalidate the ballot paper, unless there was evidence that the horizontal line was drawn so ·as to reveal the identity of the voter. In the absence of any such evidence the ballot paper was held valid. It would, therefore, follow-that the niark or wriring which .would invalipate the ballot E paper must be such as to unerringly point in the direction of identity of the votor. In the absence of such suggested mark or writing the ballot paper cannot .be rejected merely because there is some mark or writing on _the ground that by the mark or writing the voter may be identified. One has to bear in m.ind the difference between 'can be identified.' and 'might possibly be identified'. F

The High Court did not examine the other 9 ballot. papers on the erroneous view that only two were correlated 'to the averments .· in the plaint. There was specific averment in para 18 of the petition that the marks were not such as' to lead to identity. of the elector G . and that the ballot papers could not be rejected as invalid under rule 73 (2) (d). This allegation is wholly substantiated by a • casual look at the remaining nine ballot papers. The error is apparent. Once the error has been estblishell tl!~ ~nitiny and H. (1) (1953] 4 Election Law Report~ 5~

700 . SUPREME COURT RBPOTS (1983] l S.C.R.

A recount had to be ordered as a prima facie case of miscount is made out and, therefore, the decision of the High Court is liable to be set aside. At one stage we were inclined to examine the validity of each ballot paper. But as the High Court has not undertaken that exer- cise it would not be proper for us to undertake the same for the first time here. The position of law having been made very clear, B namely, that once an error is established it is not necessary that the pleadings must show error in respeet of each individual invalid ballot paper, and prima facie pr~of of error resulting in miscount having been established, a scrutiny and recount has to be ordered. And the scrutiny of invalid ballot papers must precede the recount. It is furrher made clear that wher7 voting is in accordance with c · the proportional representa.tion by the single transferable vote a ballot paper can be valid in part. And it must be remembered that. every mark or writing does not result in invalidation of the vote The mark or identification should be such as to unerringly reveal the identity of the voter and the evidence of prior arrangement

D connecting the mark must be made available. There is no such evidence. ·Therefore, the ballot p~pers could not have been rejected .' on the ground mentioned in rule 7,3 (2) (d),. such marks being in this case some eras.ires or a brack~t.

Free and fair election being the fountain source of Parliamen- E tary democracy attempt of !he Returning Officer and the Court should be not to chart the easy course of rejecting ballot papers as' invalid under the slightest pretext but serious attempt should be made before rejecting ballot papers' as invalid to ascertain, if possible, whether the elector has cast his vote with sufficient clarity revealing F his intendment. In this case we are satisfied that the Returning Officer has charted an easy course unsupportable by evidence and the High Court failed to exercise its jurisdiction of scrutiny of all ballot papers • once a serious error has beenI pointed out in respect of two ballot papers out of a to.ta! of 11 invalid bollot papers: Therefore, \ we find it difficuit to accept the vi~w taken by the High Court. G Accordingly, this appeal is allowed and the judgment and order of the High Court are set aside and 1he matter is remanded to the High Court for further proce~ding accordin~ to law. The High Court shall examine all invalid ballot papers, ascertain the reasons for the rejection, satisfy itself whether the reason is valid or un- H .convincing, and decide the validity 'of the ballot paper as a whole or in part and direct computation of the votes over again. The Hij!b Court may bear in mind that the decision of the Returning

siiRAOiiA DEVI v. K.C. PANT (Desai, J.) ?bi

Officer rejecting ballot papers as invalid is subject to review of the A High Court in a proper election petition (See Halsbury's Laws of , England, para §38, page 345, Vol. 15, 4th Edn.).'

It would be open to the High <:;curt to take assistance of the Chief Electoral Officer or such other person well versed ·in com- puting the votes in this complicaied system of counting as considered B necessary to determine the final outcome of recount.

As the matter has been delayed sufficiently, we hope that the High Court would expeditiously dispose of the same. The costs of the hearing in this Court would abide the final outcome of the appeal. c

S.R. Appealallow~d.