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Tarsem Lal v. Buta Ram, Etc.

Punjab & Haryana High Court
May 2, 1973
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Case Summary — Extracted from the Provided Opinion

Factual and Procedural Background

This appeal was filed by Shri Tarsem Lal under Clause 10 of the Letters Patent against an order of the learned Single Judge which set aside his election to the Municipal Committee, Nurmahal. The writ accepted by the Single Judge was Civil Writ No. 2743 of 1972 filed by Buta Ram (the petitioner in the writ proceeding).

The material facts, as stated in the opinion, are:

  • The election programme was issued by the Deputy Commissioner. Nomination papers were to be filed between 1 May 1972 and 8 May 1972. Nomination papers were scrutinised thereafter.
  • The Returning Officer rejected the nomination paper of Buta Ram on 15 May 1972 on the ground that his name did not appear on the electoral rolls operative on that day.
  • Buta Ram had applied on 2 May 1972 for inclusion in the voters' list. That application was accepted and his name was entered on the list on 16 May 1972.
  • An appeal against rejection of a nomination paper had to be filed within three days. The petitioner (Buta Ram) filed an appeal to the Appellate Authority (District Magistrate) but his appeal was rejected at the hearing despite informing the District Magistrate that his name had been entered on the list on 16 May 1972. A copy of the Appellate Authority's order was not filed with the writ petition.
  • Election was held on 18 June 1972 and Tarsem Lal was returned elected for Ward No. 5.
  • Buta Ram filed Civil Writ No. 2643 of 1972 on 4 August 1972 challenging the Appellate Authority's order (the writ was the proceeding that led to acceptance by the Single Judge and quashing of Tarsem Lal's election).
  • The Single Judge negatived a challenge to the rolls but accepted the contention that the nomination paper of the petitioner had been illegally rejected; on that latter point the writ petition was accepted and the election of Ward No. 5 was quashed.
  • Tarsem Lal (whose election was quashed) appealed to the Division Bench which heard this opinion.

Legal Issues Presented

  1. Whether, where the statutory mode for challenging an election is by filing an election petition within the period specified by the election rules (here, 14 days), a person whose right to challenge by that ordinary mode has become time-barred may nonetheless seek the same relief from the High Court under its extraordinary writ jurisdiction under Article 226 of the Constitution.
  2. Whether improper rejection of a nomination paper (a "material irregularity" under rule 51 of the Punjab Municipal Election Rules, 1952) can be the basis for setting aside an election where the petitioner seeking relief delayed beyond the period allowed for an election petition.

Arguments of the Parties

Respondent (Buta Ram) — arguments recorded in the opinion

  • The learned counsel for Buta Ram argued that earlier Division Bench decisions of the Court had granted relief even though no election petition had been filed; thus, this Court could similarly grant relief despite absence of an election petition in the present case.
  • Implicit in the writ brought by Buta Ram (accepted below) was the contention that his nomination paper was illegally rejected and that this constituted a material irregularity within rule 51, entitling him to have the election set aside.

The opinion does not record detailed adversarial arguments advanced by the appellant (Tarsem Lal) in the same manner; it primarily addresses the legal consequences of the delay and the applicability of precedent.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Devi Ram v. State of Punjab and others, 1964 P.L.R. 1185 Authority for the proposition that the High Court may, in a proper case, exercise its extraordinary jurisdiction to grant relief in election matters notwithstanding that the normal mode of challenge is an election petition. The court cited this Division Bench decision as part of a trio of decisions supporting the High Court's power to intervene even when an election petition has not been filed; however, the court distinguished those decisions on the ground that the petitioners there had been prompt (some even filed before the election).
Bhagirath Singh v. The State of Punjab and others, A.I.R. 1965 Punjab 160 Similarly cited to show High Court interference in election matters under extraordinary jurisdiction despite the statutory election-petition mechanism. Relied on as precedent permitting extraordinary relief in election cases; distinguished because the earlier petitioners acted promptly and did not have their ordinary remedy time-barred.
Nanak Singh and others v. The Deputy Commissioner, Amritsar and others, 1968 P.L.R. 1095 Another Division Bench decision cited for the same broad proposition about High Court power to intervene in appropriate election disputes. Again relied upon to illustrate that relief has previously been granted without an election petition where petitioners acted promptly; distinguished from the present case where there was inordinate delay.
State of Madhya Pradesh and another v. Bhailal Bhai etc., AIR 1964 S.C. 1006 Establishes that relief under Article 226 is discretionary; unreasonable delay in seeking extraordinary relief is a ground to refuse it; the limitation period for ordinary remedies is a useful standard to measure delay in Article 226 applications. The Division Bench relied heavily on this Supreme Court decision to hold that where the ordinary statutory remedy (here, an election petition) has become time-barred, the High Court should "almost always" refuse to exercise its extraordinary jurisdiction to grant the same relief; the present writ was refused for that reason.

Court's Reasoning and Analysis

The court's reasoning proceeded through the following principal steps, following the facts and provisions set out in the opinion:

  1. Identification of the statutory framework: The court noted rule 51 of the Punjab Municipal Election Rules, 1952, which defines "material irregularity" to include improper acceptance or refusal of nomination papers; rule 52 restricts election challenges ordinarily to an election petition; and rule 53 requires such petitions to be filed within 14 days of declaration of results.
  2. Recognition of established jurisdictional principle: The court acknowledged that it is well-settled that the High Court has the power to intervene in election matters in an appropriate case by exercising its extraordinary jurisdiction under Article 226 even when the ordinary remedy is an election petition (citing three Division Bench decisions).
  3. Application to the present chronology and conduct: The court observed that the petitioner (Buta Ram) did not pursue his remedy promptly — he allowed the period for filing an election petition to lapse and only filed the writ petition more than two months after the election (the election was on 18 June 1972; the writ was filed on 4 August 1972).
  4. Invoking the Supreme Court authority on delay and discretion: Relying on State of Madhya Pradesh v. Bhailal Bhai, the court emphasized that Article 226 relief is discretionary and that unreasonable delay in seeking this extraordinary remedy ordinarily leads the Court to refuse relief. The Supreme Court's guidance that the maximum limitation period for ordinary remedies is a useful standard to measure delay was applied by analogy: substitute "election petition" for "civil suit."[Note: wording quoted in the opinion.]
  5. Distinguishing earlier decisions: The court distinguished the three Division Bench cases relied upon by the respondent on the ground that in those cases petitioners had acted promptly — some had even filed writs before the election — so that the question whether the ordinary remedy had become time-barred did not arise there.
  6. Balancing the public interest in electoral finality against the existence of a material irregularity: Although the court acknowledged that improper rejection of a nomination paper is a "material irregularity" under rule 51 and thereby a potential ground for setting aside an election, it concluded that the policy considerations against lightly upsetting an election (and against permitting time-barred claims to be reagitated via Article 226) weighed against granting relief here.
  7. Conclusion of discretion: On the specific facts — the inordinate delay and the bar to the ordinary election-petition remedy — the court exercised its discretion against the petitioner and concluded that this was not a fit case to grant extraordinary relief to set aside the election.

Holding and Implications

Holding: The Division Bench accepted the appeal, set aside the order of the learned Single Judge, and dismissed the writ petition filed by Buta Ram.

Implications:

  • Immediate effect: The order of the Single Judge quashing the election of Ward No. 5 was set aside — thereby restoring the electoral result in favour of the successful candidate (Tarsem Lal) as it stood prior to the Single Judge's order.
  • Reason for decision: The dismissal was grounded on the petitioner’s inordinate delay in seeking relief by writ after his ordinary statutory remedy (an election petition) had become time-barred; the court applied the principle from the Supreme Court's decision in State of Madhya Pradesh v. Bhailal Bhai that delay and the availability (or bar) of ordinary remedies are critical discretionary considerations under Article 226.
  • Costs: In the peculiar circumstances of the case the court ordered that the parties shall bear their own costs.
  • Precedential scope: The court applied established authorities to refuse extraordinary relief where the ordinary remedy had been allowed to become time-barred. The opinion distinguishes cases in which petitioners acted promptly and thus does not purport to overrule or conflict with decisions permitting writ relief in timely cases; it applies the established discretionary standard rather than announcing a novel rule.

Note: All content in this summary is derived directly and exclusively from the provided opinion. No additional facts or inferences beyond the text of the opinion have been introduced.

Show all summary ...

Harbans Singh, C.J. - This is an appeal under Clause 10 of the Letters Patent filed by Shri Tarsem Lal whose election to the Municipal Committee, Nurmahal (hereinafter referred to as the Committee), was set aside by the learned Single Judge, accepting Civil Writ No. 2743 of 1972, filed by Buta Ram respondent before us (hereinafter referred to as the petitioner). The facts, briefly stated, are as follows :- The election programme for the election of the Committee was issued by the Deputy Commissioner, according to which nomination papers were to be filed were to be filed between May 1, 1972, and May 8, 1972. Nomination papers were scrutinised and the Returning Officer rejected the nomination paper of Buta Ram petitioner on May 15, 1972, on the ground that his name did not appear on the electoral rolls which were operative on that day. It appears that the petitioner's name did not occur in the rolls and he had made an application on May 2, for the inclusion of his name in voters' list. This application was accepted and his name was brought on the list on May 16, 1972. 2. An appeal against the rejection of the nomination paper could be filed within three days. Consequently, the petitioner filed an appeal before the Appellate Authority (District Magistrate) and, at the date of the hearing, he brought to the notice of the District Magistrate, the fact that he was a voter and that his name had been entered in the voter's list on May 16, 1972, but in spite of this, his appeal was rejected. A copy of the order passed in the appeal had not been filed with writ petition out of which this appeal has arisen. Election was consequently, held on June 18, 1972, according to the programme, and Tarsem Lal, now appellant before us, was duly elected. Civil Writ No. 2643 of 1972 was filed on 4th August, 1972, by Buta Ram challenging the aforesaid order of the Appellate Authority. The petitioner was returned to Buta Ram and ultimately it was relied on 19th August, 1972. 4. Two points were taken before the learned Single Judge first, that rolls on the basis of which the election took place were not proper and, secondly, that the nomination paper of the petitioner was rejected illegally by the Returning Officer. The first point was negatived by the learned Single Judge but, on the second point, he held in favour of the petitioner. The writ petition, was consequently, accepted and the election of Ward No. 5 was quashed. Tarsem Lal, the successful candidate whose election has been quashed, has filed this appeal. 5. It is clear that under rule 51 of the Punjab Municipal Election Rules, 1952, 'material irregularity' includes improper acceptance or refusal of any nomination paper and this material irregularity alongwith other matters, like corrupt practice etc. is a ground for setting aside the election if materially affects the result of an election. Rule 52 provides that an election cannot be challenged, except by an election petition which, according to rule 53, has to be filed within 14 days of the declaration of the result. 6. It is now well, settled that the mere fact, that the normal mode of challenging an election is an election petition, would not oust the jurisdiction of this Court to interfere in a proper case and grant relief in the exercise of its extraordinary jurisdiction notwithstanding the fact that the petitioner has not exhausted his normal remedy as provided in rule 52. In this connection reference was made to three Division Bench decisions of this Court in Devi Ram v. State of Punjab and others, 1964 P.L.R. 1185, Bhagirath Singh v. The State of Punjab and others, A.I.R. 1965 Punjab 160, Nanak Singh and others v. The Deputy Commissioner, Amritsar and others, 1968 P.L.R. 1095. 7. In the present case, however, the petitioner did not move his little finger against the election of Tarsem Lal and allowed the period of limitation to expire. His normal remedy to challenge the election had thus become barred by time, long before he filed the writ petition in this Court, for the first time, on 4th August, 1972. The date on which the result of the election was declared is not clear, but, in any case, one can assume that the results must have be declared soon after the date of the election which was 18th June, 1972. The question for consideration is, whether a petitioner can reasonably seek the aid of this Court in the exercise of its extra-ordinary jurisdiction to enforce his time barred legal right. It has been observed on a number of occasions that election is an expensive procedure and where a person has been elected by the electorate in due process of law, the election should not be lightly set aside. When the Legislature has made specific provisions that an election can be challenged through an election petition by filing the same within 14 days of the declaration of the result, on the expiry 14 days the elected person acquires a very valuable right which cannot be challenged by the ordinary process provided by law. Can a person, who has failed to exercise his right to have the election set aside by filing the election petition within the time prescribed, be allowed to reagitate that matter and seek to enforce that legal right in this Court under Article 226 of the Constitution after the normal mode of endorsement of his legal right has become barred by time ? To our mind the clear answer to this question is in the negative. In State of Madhya Pradesh and another v. Bhailal Bhai etc. AIR 1964 S.C. 1006, the Supreme Court, in very strong words, has taken the view that it should not normally be allowed. 8. In Bahilal Bahi's case (supra), tax was paid under an Act which was later found to be ultra virus and thus the payment of tax had been made under a wrong impression about the legality of the Act. A suit for the refund of the tax had become barred by time. While clearly observing that the High Courts have power for the purpose of enforcement of fundamental rights and statutory rights to give consequential relief by ordering repayment of money realised by the Government without the authority of law, in paragraph '7 of the judgment, their Lordships of the Supreme Court went on to say as under :- "At the same time we cannot lose sight of the fact that the special remedy provided in Article 226 is not intended to supersede completely the modes of obtaining relief by an action in a civil Court or to deny defences legitimately open in such actions. It has been made clear more than once that the power to give relief under Article 226 is a discretionary power nature of mandumas. Among the several matters, which the High Courts rightly take into consideration in the exercise of that discretion is the delay made by the aggrieved party in seeking this special remedy and what excuse there is for it. * * * Thus, where, as in these cases, a person comes to the Court for relief under Article 226 on the allegation that he has been assessed to tax under a void legislation and having paid it under a mistake is entitled to get back, the Court, if it finds, that the assessment was void, being made under a void provision of law, and the payment was made by mistake, is still not bound to exercise its discretion directing repayment. Whether repayment should be ordered in the exercise of this discretion will depend in each case its own facts and circumstances. * * * It may however be stated as a general rule that if there has been unreasonable delay, the Court ought not ordinarily to lend its aid to a party by this extraordinary remedy of mandumas. Again, where even if there is no such delay, the Government or the statutory authority against whom the consequential relief is prayed for raises a prima facie triable issue as regards the availability of such relief on the merits, on the grounds like limitation, the Court should ordinarily refuse to issue the writ of mandumas for such payment. In both these kinds of cases it will be sound use of discretion to leave the party to seek his remedy by the ordinary mode of action in a civil Court and to refuse to exercise in his favour the extraordinary remedy under Article 226 of the Constitution". In paragraph 21 again it was observed as follows :- "The learned counsel is right in his submission that the provisions of the limitation act do not as such apply to the granting of relief under Article 226. It appears to us however that the maximum period fixed by the legislature as the time within which the relief by a suit in a civil Court must be brought may ordinarily be taken to be a reasonable standard by which delay in seeking remedy under Article 226 can be measured. This Court may consider the delay unreasonable even if it is less than the period of limitation prescribed for a civil action for the remedy, but where the delay is more than this period, it will almost be proper for the Court to hold that it is unreasonable. * * *". 8. These observations fully apply to the present case of we substitute the words "relief by a suit in a civil Court" by the words "relief by an election petition as provided under the Rules". If an election petition had been filed on the day when the writ petition was filed in this Court, the petitioner would have met with the defence that the same was barred by time. The petitioner is trying to achieve the same thing by filing this writ petition more than two months after the date of the declaration of the results. As was observed by the Supreme Court in the above-noted case, where legal remedy is barred then 'almost always' the discretion should be exercised against granting the relief to the petitioner in the exercise of the extraordinary jurisdiction. It is really a sound principle that time-barred legal right cannot be allowed to be reagitated before this Court in the exercise of its extraordinary jurisdiction. 9. The learned counsel for Buta Ram, respondent before us, vehemently urged that in all the three Bench decisions of this Court, cited above, this Court granted the relief notwithstanding the fact that no election petition was filed. In all those cases the petitioners had come to the Court with promptitude. As a matter of fact, in those cases the petitioners had filed the writ petitions even before the election had taken place. The question of any legal right having become barred by time at the time of filing of the petitions did not arise in those cases and, therefore, those cases are of no held to Buta Ram. 10. We are definitely of the view that, in the present case, Buta Ram had come to this Court after an inordinate delay, long after his legal right to set aside the election, by filing an election petition, had become barred by time and, consequently, it was not a fit case in which, in the exercise of the extraordinarily jurisdiction of this Court, any relief could be given to the petitioner by setting aside the election. It has already been noticed above, that under rule 51, material irregularity also includes illegal or improper rejection or acceptance of nomination papers and, therefore, any wrong rejection of the nomination paper was a ground which was available to Buta Ram to have the election set aside by filing an election petition. 11. For the reasons given above, we accept this appeal, set aside the order of the learned Single Judge and dismiss the writ petition. In the peculiar circumstances of the case, however, we leave the parties to bear their own costs. Bal Raj Tuli, J. - I agree. Appeal accepted.