c MANGI LAL v. K. R. PAWAR & ANR. May 7, 1971 [J. M. SHELAT, I. D. DUA AND V. BHARGAVA, JJ.J Representation of the People Act (43 of 1951), ss. 9A. 77 & 123- Publication of statements relating to the personal character or conduct of a candidate-When a corrupt practice-Contract between Company and Government-Chairman of Board of Directors of Company-If deemed to have entered into contract with Government.
The appellant challenged the election of the first respondent on the grounds: (I) that during the election campaign statements were 'Oade at a public meeting that the appellants had misappropriated money, that state- ments w~re published in a weekly referring to the appellant as a corrupt candidat«, that the statements were made with the first respondent's ap- proval, that the statements were false and the respondent either believed them to be false or did not believe them to be true, and that by publish- ing the false statements in relation to the personal character or conduct of the appellant the first respondent appellant was guilty of a corrupt practice under s. 123 (4) of the Representation of the People 'Act, 1951. (2) That the respondent purchased petrol worth about Rs. 2,000 and if that amount was added to the admitted expenditure it would show that the respondent had incurred election expenses in excess of the limit prescribed by s. 77 of the Act read with r. 90 of the Election Rules.
(3) That the respondent was a Chairman of the Board of Directors of an Electric Supply Company which generated and supplied electricity to the State Government under a contract. and therefore he was disqualified on the ground that he had a subsisting contract with the State within the meaning of s. 9(A) of the Act. The election petition was dismissed by the High Court
In appeal to this Court, HELD: (1) The appellant had himself admitted on oath as a witness that a complaint was filed against him for embezzlement. The complaint was pending in the criminal court at the time of the election. A charge
was also framed in those !proceedings. The charge and complaint are rele- vant and there is no provision of law which makes the order framing the charge or the complaint inadmissible in evidence.
there was thus enough material to show that the statements relating to the appellant were not founded on mere suspicion or that they were the result of a pure conjuncture or guess. Hence, the appellant had failed to discharge the burden laid on him under s. 123(4) of the Act to prove that the impugned statements were not only false but in addition that the respondent and his agents published them either believing them to be false or not believing them to be true. [827A]
Dr. Jagjit Singh v. Giani Kartar Singh, A.I.R. 1966 S.C. 773, followed. (2) The charge that he incurred election expenses beyond the prescrih- ed limit must fail for want of evidence connecting this item of expenditure with the election.
MANOI LAL v. PA WAR (Dua, J.) (3) Section 9A of the Act only covers contracts which have ocen en- tered into by a person in the course of his trade or business with t~e ap- propriate Government for the supply of goods to or for the execution of any works undertaken by that Government. In the present case, the con- tract to supply electricity by the Electric Supply Company could by no means be considered to be a contract entered into by the respondent in the course of his trade or business merely because he was at the relevant time a Chairman of the Board of Directors ·of the Company, because the busi- ness of a companY could not be described as a trade or business of the Chairman of its Board of Directors. -[828B]
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 1229 of 1970. Appeal under s. 116-A of the Representation of the People Act, 1951 from the judgment and order dated March 27, 1970 of the Madhya Pradesh High Court, Indore Bench in Election Petition No. 1 of 1968.
L. M. Sir.ghvi, U. N. Bachawat, Sobhagmal Jain and S. K. Dhingra, for the appellant. V. S. Desai, A. M. Mathur, Bhim Singh and S. K. Gambhir, for respondent no. 1. The Judgment of .the Court was delivered by
Dua, J.-Mangi Lal Joshi has appealed to this Court under s. 116-A of the Representation of the People Act 43 of 1951 (hereinafter called 'the Act') from the judgment and. order of the Madhya Pradesh High Court (Indore Bench) dismissing his elec- tion petition under s. 81 of the Act challenging the election of respondent No. 1 Krishnaji Rao Pawar, an Ex-Ruler of the
erstwhile Dewas Senior State, to the Legislative Assembly of Madhya Pradesh from the General-Dewas Assembly Constituency No. 256 in the 'bye-election held in June -1968. This seat had
fallen vacant on account of the death of Shri Hattesing, the success- ful candidate from this constituency in the General Elections held in February 1967. The appellant had contested the election on the ticket of the Indian National Congress whereas respondent No. I had contested it as an independent candidate. The charges on which the appellant's learned counsel has concentrated before us relate to : –
(il the alleged corrupt practice of publication of false state- ments relating- to the personal character and conduct of the appellant; (ii) the incurring of election expenses in excess of the pres- cribed limit ; and
5UPREMB COURT REPORTil (iii) the alleged disqualifications of the respondent on the c ground that he had a subsisting contract with the State within the contemplation of s. 9A of the Act.
The charge of bribery pressed in the High Court was not re- agitated in this appeal. The first point canvassed before us relates to the alleged corrupt practice of publication of false statement of fact in rela- tion to the personal character or conduct of the
appellant as contemplated by s, 123 sub-s. (4) of the Act. Arguments on this point were confined to sub-issues (a), (b), (c), (d), (e), (f) & (gi of Issue No. 5 and the relevant sub-issues of Issue
No. 6. The aforesaid sub-issues of Issue No. 5 cover the plea contained in para. 13(b)(i) of the election petition. It was averred in that sub-para that at a public meeting held at about 8 P.M. on June 13, 1968, at Jawahar Chowk at which the returned candidate was present, Abdul Rehman Talib of Dewas,
Kanhaiyasingh Thakur of Dewas, Kr. Virendrasingh, Deputy Minister of Labour, Government of Madhya Pradesh and Khasherao Ghorpade of Dewas, in the course of their speeches, made statements relating to the personal character and conduct of the petitioner I appellant which were false and which the speakers and the returned candi- rlate either believed to be false or did not believe to be true and those statements were reasonably calculated to
prejudice the petitioner/appellant's prospects of election .• Abdul Rahman Talib was alleged to have said :- "No votes should be given to such Congress Candidate who has misappropriated the money."
Kr. VirendrasiJ!gh was imputed the following statement : -· "f have come from Labour Colony. Water tank is lying empty. All the money of water subscription has been misappropriated by Congress candi<Jate INTUC,
Mangilal Joshi. The workers will not vote for him." Kanhaiyasingh Thakur was stated to have said : – "'The workers subscription has been misappropriated by INTUC Joshi. There is also a case pending against
him in Court." Khasherao Ghorpade was alleged to have said : – "No votes be given to the corrupt candidate of Con- gress who has misappropriated workers' subscription money ……….. . ..
The relevant parts of Issue No .. 6 cover the plea containe<l in para J3(b)(ii) of the election petition. The controversy covered by this issue which now survives is confined to the statements MANOI LAL v. PA WAR (Dua,J.)
alleged to have been published in the issue of the weekly 'Ranchandi' dated June 16, 1968. From that issue the following extracts published in connection with the election in question ~ere relied upon by the appellant in support of the allegations of the corrupt practice : –
"Voters beware of Joshi misappropriator of the workers' subscription." .. Corrupt Congress candidate Mangilal Joshi." "Appeal to remain careful of the misappropriator of mill workers' subscription, corrupt candidate Mangilal
Joshi." According to the written statement on behalf of the returned candidate (Respondent No. 1 in this Court) all that the speakers at the meeting on June 13, 1968 in Jawahar Chowk had pointed out was that a prosecution was pending against Mangi
Lal Joshi and that he was charged with embezzlement of the funds of the Mazdoor Sangh and of the donations of the workers. Though in the written statement the returned candidate denied that he had continued to be present at the meeting, the Court below held that he was present throughout a tit! this finding in our view must' be accepted. He also denied that the statement made by the speakers at the meeting had been made with his consent but in the circumstances of the case we would assume that he cannot disown those statements which were made in his interest and, therefore, they were in all probability made with his approval.
In regard to the publication in 'Ranchandi' the respondent pleaded in the written statement that the Editor of the weekly used to publish election material on his own responsibility and that the respondent had no concern with the statements published therein. The subject-matter published in the issue of June 16, 1968 was stated not to have been published with the respondent's consent. He, however, proceeded, without prejudice, to add that the statements of fact contained therein were not believed by him to be either false or untru~.
It is not disputed that on the evening of June 13, 1968 at about 8-00 P.M. an election meeting was actually held in Jawahar Chowk, Dewas, and it was called in support of the respondent's election and also that this meeting was addressed by Abdul Rehman. Talib, Kr. Virendrasingh and Kanhaiyasingh Thakur. In regard to Khasherao Ghorpade, however, the respondent did. not admit that he had addres8ed the meeting. The High Court after consi- dering the evidence on the record and the arguments addressed before it came to the conclusion that Abdul Rehman Talib had, c
c (1971] SUPP. S.C.R: during the course of his addr~ss at that meeting, stated tlaat Mangilal Joshi had misappropriated the amount of subscription realised from the labourers and that a case was pending in Court against him and no votes should be cast in his favour. In regard to Kr. Vifendrasingb, the High Court came to the conclusi0n that the speech attributed to him bad not been proved.
About Kanhaiyasingh Thakur's speech also, the High Court accepted the evidence of the appellant's witnesses to the effect that Kanhaiya- singh Thakur had said that Mangilal Joshi had embezzled the amount realised by him as subscription from the labourers and a case in this connection was also going on against him in Court. The High Court too'c notice of the fact that Kanhaiyasingh Thakur was called as witness by the returned candidate and he
was actually present in Court on September 23, 1969 ·but was given up. In regard to Khasherao Ghorpade, the High Court accepted the appellant's case that he had addressed the meeting in which he bad stated that the appellant had misappropriated the money realised as subscription from the labourers.
The High Court then considered the offending publication in the issue of 'Ranchandi' da.ted June 16, 1968. That Court after considering the material to which its attention was drawn observed that in this case the word 'corrupt' had been used in the context that Mangilal Joshi had mis-appropriated or embezzled the subscrip- tion amount of the labourers and that Mangilal Joshi's descrip- tion as a corrupt person was intended to convey the fact that he had embezzled or mis-appropriated the subscription realised from the labourers. The use of word 'Bhrastachar' in this con- nection was held to connote a corrupt person. After considering some decisions of this Court on the construction to be placed on s. 123 sub-section (4) of the Act which were cited in the High Court, that court came to the conclusion that the appellant had failed to prove that the impugned statements were false or were either believed to be false or not believed to be true by the speakers and the returned candidate. This conclusion was arrived at in the 'background/ of the fact that the criminal complaint had been filed against the appellant by one Lal Singh, as far back as July 1965. Lal Singh appeared as witness for the respondent as R.W. 13 in the High Court and proved his complaint from the original record of criminal case No. 52 of 1965 in the Court of AdditiOnaJ,. Magistrate (Jud.), Dewas.
A certified copy of that complaint Exhibit D. 1 was also placed on the record. According to that complaint it was alleged that Mangilal Joshi was the President of Dewas Mill Mazdoor Sangh and had held that office for the preceding 9 years.
Several amounts relating to membership fee were stated to have been collected from the workers and the amount of several thousand rupees were neither dei'osited with the Mazdoor Sangh office nor entered in
the rel1tted registers. It was principally on the basis of the pendency MANG! LAL v. PA WAR (Dua, J.) of this complaint that the High Court came to the conclusion that the appellant had not discharged the onus of showing that tlie offending statements of facts were false and were believed. by
the returned candidate, the speakers at the meeting in question and the Ediitor of 'Ranchand:i' to be false or were not believed by them to be true. The charge relating to disqualifications
of the returned candidate was based on the averment that the returned candidate was a Chairman of the Board of Directors of the Dewas Senior Electric Supply Company Private Limited and that this Company generated electricity and supplied· the same to the State Govern- ment under a contract. On this basis it was pleaded that under s. 9A of the Act the returned candidate must be held to be disqualified from seeking election to the Assembly.
The High Court repelled this contention holding that the returned candidate could not be held to have directly entered into any contract with the Government merely by reason of the fact he was the Chairman of the Board· of Directors of the Electric ' Supply Company. Reliance for this view was placed on a decision of the Madhya Pradesh High Court reported as Satya Prakash v. Bashir Ahmed Qureshi(').
In regard to the allegations of the election expenses incurred by the returned candidate being in excess of the prescribed limit it was contended that petrol worth about Rs. 2,000 had been purchased by respondent No. I between May 31, 1968 and June l 5. 1968 and if the whole of this amount wa~ to be added to the expenditure admitted by the returned candidate to have been incurred then this would exceed the prescribed limit, thereby con- travening s. 77 of the Act. This contravention according to the appellant's learned counsel is a corrupt practice covered by s. 123 sub-section (6) of the Act. The High Court did not agree with this submission and held that the petrol and oil purchased from May 30, J968 to June 15, 1968 inclµded petrol and oil for various other requirements of the returned candidate and
the whole of it was not proved to have been used for election purposes. The whole of this amount, therefore, could not be included in the election expenses. The election petition as. already observed was dismissed by the High Court.
On appeal, Dr. Singhvi has re-agitated all these points. We may first dispose of the point of disqualification. Section 9A of the Act on which the entire argument rests, reads :- Disqualification for Government contracts.
"A person shall be disqualified if, and for so long as, there subsists a contract entered into by him in the (1) A. I. R. 1963 M. P. 316. c SUPREME COURT R'EPORTS course of his trade or business with the appropriate Gov·
ernment for the supply of goods to, or for the execution of any works undertaken by, that Government." It is unnecessary for the purpO£e of 1this case to reproduce the explanation.
It is clear that this section only covers contracts whi'ch have been entered into by· a person in the course of his trade or business with the appropriate Government for the supply of goods to or for the execution of any works undertaken by that Government.
Dr. Singhvi contended that the supply of electricity would amount to the supply of goods. That perhaps is so. But, in our opinion, the contract of supply of electricity by the Electric Supply Company can by no means be
considered to be a contract entered into by respondent No. I in the course of his trade or business by reason merely of the fact that he was at the relevant time Chairman of the Board of Directors of the Company. It is not possible to describe the business of the Company to be the trade or business of the Chairman of the Board of Directors. A Company registered under the Indian Companies Act, it is settled beyond dispute, is a
separate entity distinct from its shareholders. The Chairman of the Board of Directors of the Company while functioning as such cannot be said to be engaged in his trade or business as con- templated. by s. 9A of the Act. The legal position is so clear that the appellant's learned counsel, after an unsuccessful attempt to persuade us to the contrary view, felt constrained not to pursue this point seriously.
Coming now to the charge of the alleged corrupt practice covered by s. 123(4) of the Act, we do not consider it necessary t<' go into the evidence in detail or to consider at length the arguments addressed on the question of the impression conveyed to the people who had heard the speeches or read the offending publication in the newspaper 'Ranchandi'. We will accept the position that the offending statements, both oral, made in the
various speeches referred to earlier and those contained in print as published. in the Ranchandi dated June 16, 1968 (Ext. Pf8) do prima facie offend s. 123 (4) of the Act if false and either ibelieved to be so or not believed to be true.
Now it is not dispute<I that the criminal complaint dated July 27, 1965, under ss. 403 and 406 I.P.C. was filed against Mangi Lal appellant and. Kanahiyalal by one Lal Singh in the Court of the Magistrate, !st Oass, Dewas. In that complaint it was alleged that the accused had collected from the workers of Dewas Mill
the following amounts :._ I. Membership fee 2. Wageboard Fund Rs. 15,000/- Rs. 1,5001· MANG! LAL v. PA WAR (Dua, J.) 3. Gratuity Fund Rs. 1,500/- 4. Mazdoor Sevadal Rs. 900/- 5. Travelling Fund
Rs. 1,000/- 6. Water Tax Rs. 1,000/- Jt was also averred in the complaint that except for a sum of Rs. S or 6 thousands the remaining amounts were neither deposited with the Mazdoor Sangh' s office nor were they entered in the relevant registers. Mangi Lal was described in the com- plaint as the President of the Dewas Mill Mazdoor Sangh and Kanahiyala,l accused ijo. 2 as the Secretary of the said Union. The appellant Mangi Lal in his cross-examination as P.W. 32 admitted that this complaint dated, July 27, 1965, had been filed against him which was pending at the time of the bye-election i.n question and that a charge had also been framed in that case on August 22, 1968 (Ext. P / 9).
He further admitted that Lal Singh was a mill worker in the Dewas Standard M'tll and was also a representative of the Indian National Trade Union Con- gress of Dewas. Lal Singh appeared as R. W. 13 and proved
that complaint and also a part of his statement dated April 12, 1968 made in the Court of the Magistrate. The returned candidate appearing as R. W. 17 stated that he knew of this complaint. The High Court on appraisal of the entire material on the record expressed its final conclusion on Issues S(f) and 6(a) to (h), which are the relevant issues, in these words : "Assuming, though not admitting, that the petitioner;
has succeeded in proving the falsity of the_ impugned statement, even then he is not out of the woods. As held in Sheopa!singh v. Rampratap (A.I.R. 1965 S. C. 677) even if the statement is false the candidate making it is
protected unless he makes it believing it to be false not believing it to be true i.e., to say statements which are not true but made bona fide are also outside the ambit of the provisions of sec:Von 123(4) of the Act. We have
seen above that the criminal complaint against the peti- tioner for having committed criminal misappropriation or criminal breacli of trust was filed in the criminal Court in the year 1965 when this bye-election was not
even in contemplation. It Js no body's case that either the three speaker&, namely Shri Abdual Rehman Talib (R,W, 2), Shri Kanhaiyasingh Thakur and Shri Khaserao Ghorpade or the Edjtor Shri Rameshwar Sen (R.w, 5)
or the returned candidate Shri Krishnajirao 1>awar (R.W. 17) were in any way instrumental in. getting the said complaint filed against the said petitioner. This very complaint was pending at the . time of this bye-
election in question and a number of witnesses examined c JI (1971] SUPP; S,C.R. c by the petitioner and also examined by the returned candidate have stated that such a complaint was filed in
criminal court against the petitioner and it was pending. In other words, filing of such a complaint against the petitioner was a notorious fact known to several persons in Dewas and subsequently the charge was framed against
him on the same material thus, the impugned statement was not founded on mere suspicion pure or simple nor was it the result of pure conjecture or guess. It had posi- tive basis and the basis subsequently proved to be prlma
facie correct, therefore, the impugned statement falls within the ambit of bona fide statement. In conclusion, therefore, I hold that the petitioner failed to prove that the impugned statement was false
and was either believed to be false or not believed to be true. Accordingly, I decide these two issues as not proved Hence it follows that the impugned statement does not fall within the mischief of section 123(4) of the Act."
We are in full agreement with the approach and the final con- clusion of the High Court. The, essential basic facts seems to lls to be incontrovertl"ble, and if that be so, then clearly there is a very heavy burden on the petitioner I appellant to prove the most vital ingredients prescribed in s. 123(4) of the Act, namely, that the impugned statement of fact is not only false, but in addition that the respondent returned candidate and his agents publishing the impugned statements either believed the same to be false or did not believe them to be true : See Dr. J ag;it Singh v. Giani Kartar Singh and others.(')
On this point there is absolutely no material on the record. This challenge by the appellant also fails. Dr, Singhvi, we may in fairness to him point out, took considerable pains to persuade us to hold that the order of. the criminal Court framing the charge is inadmissible in the pro- ceedings.
It was also submitted that the charge having been framed afterwards could not be taken into account for considering whether the impugned statements could be 'believed to be true at the time they were made.
Dr. Singhvi submitted that if the order of the criminal Court> is ignored and if the appellant's denial about embezzlement is taken into account then the state- ments made at the meeting and those published in 'Ranchandi' must be held to be false and believed to be so or not believed to be true, This argument is difficult to accept. To begin with, the appellant has himself admitted on oath as a witness
that the complaint was filed against him for embezzlement and a (I) A. I. R. 1966 S. C.773. MANG! LAL V. PAWAR (Dua,/.) charge was also framed in those proceedings. This admission
cannot be ignored. We are also not inclined to agree with Dr. Singhvi that the order framing the charge or the complaint are inadmissible in evidence. Dr. Singhvi has not drawn our atten· tion to any provision of law which would render them inadmissible in the present proceedings.
The counsel then submitted that Lal 2ingh's statement in the criminal Court is clearly inadmissible as evidence and the High Court was wrong in taking that statement into consideration. Here again, we think that the counsel in not quite correct. The statement of Lal Singh would seem to us to be relevant and
admissibfo under several provisions of the Indian Evidence Act. We need onlr refer to ss.,7, 8 and 11(2) of that Act. In this connection it 1s interesting to point out lhat Lal Singh's statement in the Criminal Court was got proved in his cross-examination at the instance of the election petitiouer I appellant. It would, therefore, be a question for consideration if the appellant can now be permitted to find fault· with what he himself had elicited by cross-examining R.W. 13. However. even excluding this cross-examination there is. in our opinion, .ample material in support of the conclusions of the High Court. This takes us to the charge of corrupt practi~..1 iir·S. 123(6) of the Act. This charge relates to
the respOi\"clepf' 'returned candidate's election expenses bein~ in excess of the limit pres·· cribed by s. 77 of the Act read with r. 90 of the Election Rules. The only point in respect of this charge pressed before us is that petrol worth Rs. 2,000 /. was purchased by the returned candidate from Mis A. J. Khanuja & Sons, Bombay-Agra Road, Dewas.
If this amount is added to the admitted expenditure of Rs. 6,576-78, then the expenses would exceed the prescribed limit and the election must according to ,the appellant be set aside on this ground. Dr. Singhvi addressed elaborate arguments on this point with the object of showing that the entire petrol purchased from the aforesaid firm must be held to have been purchased for the purpose of the election in question.
We do not consider it necessary to deal with the arguments at length because the charge must fail for want of evidence connecting this item of expenditure with the election. The High Court has observed in 1his connection :
"The petitioner has not adduced any evidence on this point except that of Daulatrao (P.W. !) who has also filed extracts of accounts of petrol and oil etc. purchased by the returned candidate from his master MI s A. J.
Khanuja and Sons, Dewas during the releV'ant period. c c (1971] SUPP. s.c.R. Neither these extracts nor the evidence of this witness establishes the additional expenditure of Rs. 2000 I· as
pleaded by the petitioner. The returned candidate Shri Krishnajirao Pawar (R.W. 17) has deposed that at the relevant time he owned two jeeps, five cars, one tractor and one pick-up van and agricultural land of about 500
acres. He also deposed that during the period of this bye-election he used only the jeeps for election propa- ganda but petrol was purchased not only for the jeeps but for cars also which were used for house-hold purpo-
ses. He further deposed that Diesel was used for agri- cultural purposes. His testimony further shows that he had instructed Mis A. J. Khanuja and Sons Dewas that petrol and oil purchased for to the election purposes should be
marked distinctly and, therefore, he used to sent the counter-foil for purchase of eetrol and oil which used to be marked with latter 'g' to indicate that the same were purchase for election purposes.
About marking, the petitioner's witness, Daulatrao (P.W. I) says something. The total costs of the marked items so called out from the extracts (Ex. P. I and P. 2) have not been shown
to be an additional expenditure and not covered b) the election expenses return filed by Shri Krishnaji Rao Pawar (R.W. 17). He is the ruler of Senior Dewas State, possessed several vehicles at the relevant time and, therefore, un-
doubtedly needed petrol and oil for them, as also oil for traietor and pick up van during the said period for his domestic purposes and agricultural purposes be- sides election purposes.
The evidence of Daulatrao (P. W. !) himself would show that in the month of April 1968 when there was no hectic activity about the election. The cost of petrol and oil purchased by him during that month amounted to Rs.
2604-12 Paise. That would indicate that he requires Jar3e quantity of petrol and oil for his motor vehicles, oil engine etc. used for domestic and agricultural purposes. It is tme
that the extracts of accounts (Ex. P. I and P. 2) show that cost of petrol and oil purchased from 31-5-1968. was about Rs. 2250 /- but it is impossible to believe that the entire cost was incurred in connection with this elec- tion. I hold that the petitioner has failed to establish
that the returned candidate had incurred or authorised additional expenditure of Rs. 2,000/- from 31-5-1968 to 15-6-1968 in connection with his election and I decide this. issue as not proved."
MANOI LAL v. PAWAP, (Dua, J.) The reasoning and approach of the High Court is unexcep- tionable and nothing urged by Dr. Singhvi has persuaded us to disagree with the High Court's conclusions.
These were the only points urged at the bar in support of the appeal. As we find all of them to be without substance, thl appeal fails and is dismissed with costs. a V.P.S. App,eal dismisH«.
53-1 S. C. lndia/71