Holding

The State Government's order was not retrospective; the appellant did not benefit from it and remained disqualified at the time of his election.

Summary

Amrutlal Chunilal Raval was elected President of the Bhor Municipal Council in 1974, but a prior conviction on 26 December 1973 under the Prevention of Food Adulteration Act rendered him disqualified under Section 16(1)(a) of the Maharashtra Municipalities Act, 1965, which imposes a five‑year bar unless the State Government shortens it. The State Government later issued an order on 20 November 1975 reducing the disqualification period to six months from his release date, but the order was not made retrospective. The election petition set aside Raval's election, and he appealed, contending the order should apply retroactively to remove his disqualification at the time of nomination. The Supreme Court held that the order was not retrospective, that the disqualification was in force when he stood for election, and therefore Raval could not benefit from the order. Consequently, the appeal was dismissed.

Issues considered

Whether the State Government's order under clause (a) of sub‑section (1) of Section 16 of the Maharashtra Municipalities Act, 1965, can be given retrospective effect to remove a disqualification that arose before the order.
Whether the appellant was qualified to be elected President of the Municipal Council at the time of his nomination and election.

Legislation cited

Maharashtra Municipalities Act, 1965s. 15, s. 16(1)(a), s. 51(2)
Prevention of Food Adulteration Act, 1954s. 16

Subjects

municipal electiondisqualificationcriminal convictionretrospective legislationMaharashtra Municipalities Acteligibility for office

Judgment

266

AMRUTLAL CHUNILAL RAVAL
v.
DA'ITATRAYA PANDURANG HAJARNIS & ORS.
(

November 20, 1980
[R. S. PATHAK AND 0. CHINNAPPA REDDY, JJ.]

The Maharashtra Mun•fcipalities Act 1965, S. 16(1)(a)-Appellant elected
Pr€sident of Municipal Council-Election challenged-Appellant sought to be
disqualified on account of prior conviction by court of Law-State Government ._
C order that disqualification to remain in force for a period of six months from
appellant's release-Such order-Whether beneficial and refnoves disqualifica~
tion.

The l\.faharashtra Municipalities Act, 1965 by sub-section (2) of section 51
provides that every person qualified tOI be elected as a Councillor under section
15 shall be qualified for election as President. Section 16 ( 1 )(a) provides that
'D no person shall be qtlalified to become a Council1or whether by election, co·
option or non1ination, if he had been convicted by a Court for any offence
the maxin1um punishment for which is imprisonment for a term of two years
or more and sentenced to imprisonment for any term, unless a period of five
years, or such lesser period as the State Goevrnment 1nay allo1v, has elapsed
since his release.

The appellant stood for election to the office of President of the Municipal
Council, filed his nomination paper on 21st October 1974, and was declared
elected at the election held on 17th November, 1974. The first respondent
filed an election petition before the District Judge challenging the election alleg·
ing that the appellant had bCen, convicted on 26th December, 1973 under section
16 of the Prevention of Food Adulteration Act 1954 and sentenced to undergo
imprisonment till the rising of the court and to pay a fine of Rs. 200 ;~ and
·F
that by virtue of section 51 (2) read with section 16 (I)( a) of the Act the
appellant was not qualified for election as President of the Municipal Council. -.>
During the pendency of the election petition the State Governme.nt made an
order dated 20th November 1975 under clause (a) of sub·section (I) of section
16, declaring thaf the disqualification incurred by the appellant 'should remain
in force for a period of six months only from his release on 26th December,
1973'.
-
The District Judge aJiowed the election petition and the election of the
appellant v.•as set aside. The appellant filed a writ petition, which was dismissed
by the High Court.

In the appeal to this Court', it \Vas contended that the order dated 20th
November, 1975 made by the State Government Was retrospective in operation
and consequently removed the disqualification imposed on the appellant on the
da-te he :filed his nomination paper .

._,~ -- ____________
... .,,__,_,,,,____
A. c. RAVAL v. D. P. HAJARNIS (Pathak, J.) 267

Dismissing the appeal

HELD : ( 1) The appellant does not benefit from the order of the State
I. Government insofar as his election as President in 1974 is concerned. [270 A1

(2) By virtue of clause (a) of sub-section (!) of section 16, the State
Government had been empowered to substitute a shorter period of disqualifica-
tion. A modification of the normal operation of the statute by the State
Government is contemplated. Such a modification to be retrospective must
indicate clearly that it is so. [269 E-FJ

In the instant case, disqualification was incurred by the appellant on 26th
- December, 1973 when he was convicted <1!11d sentenced, and the disqualification
was in force when he stood for election. The date when the disqualification for
.If/
five years was incurred is the relevant date, the subsequent operation is the
c
consequence of the incurring of the disqualification. If the order was to be
beneficial to the appellant, it should have been made retrospective from the
date when the disqualification was incurred. On the plain language, it must
be read as an order reducing the period of disqualification to six months, but
to be applied to a disqualification arising after the date when the or<ler was
made. [296 G-HJ
D

CML APPELLATE JURISDICTION : Civil Appeal No. 707 of 1978.
Appeal by Special Leave from the Judgment and Order dated
20/2lst March, 1978 of the Bombay High Court in SCA No.2868/ E
76.

V. N. Ganpule and Mrs. Veena Devi Khanna, for the Appellant.
V. S. Desai and M. N. Shroff for Respondents 1 to 4.
Mrs. Jayashree Wad for Respondent No. 5. F

The Judgment of the Court was delivered by

PATHAK, J.-This Appeal by special leave is directed against the
judgment of the Bombay High Court maintaining an order of the G
District Court, Poona by which the appellant's election as President
of the Bhor Municipal Council was set aside on an election petition
filed by the respondent.
'
The appeUant stood for election to the office of President of the
Bhor Municipal Council. He :filed his nomination paper on 2ls~ H
October, 1974, and the election was held on 17th November, 1974.
The appell~nt was declared elected the next day and the result of the
-A 268 SUPREME COURT REPORTS [1981] 2 S.C.R.

election was published in the Government Gazette on 25th November,
1974.

The first respondent filed an election petition before the District
Court, Poona challenging the -appellant's election. He alleged that
the appellant had been convicted on 26th December, 1973 by the
Judicial Magistrate, Bhor under s. 16 of the Prevention of Food
Adulteration Act and sentenced to undergo imprisonment till the
rising of the court and to pay a fine of Rs. 200/-. Accordingly, he
said, by virtue of s. 51(2) read withs. 16(1)(a) of the Maharashtra
Municipalities Act, 1965, the appellant was not qualified for election
as President of the Municipal Council. During the pendcncy of the
.c election petition the Maharashtra Government made an order under
cl. (-a) of sub-s.(1) of s. 16, Maharashtra Municipalities Act,1965
("the Act") declaring :
"In exercise of the powers conferred by clause (a) of
I; sub-section (1) of Section 16 of the Maharashtra Munici-
D palities Act, 1965, the Government is pleased to order that
the disqualification incurred by Shri Amrutlal Chunilal
Raval, resident of Bhor, Tehsil Bhor, District Poona should
remain in force for -a period of six months only from his
release on 26th December, 1973.
By order and in the name of the Governor of
E Maharashtra.

sd/- M. N. Tadkod,
Desk Officer."
The election petition was allowed and the election of the appellant
was set aside. The appellan! filed a writ petition in the Bombay High
Court against the order setting aside his election, but the writ petition __,.
was dismissed by the High Court on 21st March, 1978.
In this appeal, the only point pressed by the petitioner before us
is that the order dated 20th November, 1975 made by the State Go-
·G vernmcnt was retrospective in operation and consequently removed
the disqualification imposed on the appellant on the date he filed his
nomination paper.
Sub-s.(2) of s. 51 of the Act provides that every person qualified
to be elected as a Councillor under s. 15 shall be qualified for election
ff as President. Sub-s. (1) of s.15 of the Act provides that every person,
whose name is included in the list of voters maintained under s.11
and who is not disqualified for being elected a Councillor under this
A. c. RAVAL v. D. P. HAJARNIS (Pathak, J.) 269

Act or any other law for the time being in force, shall be qualified, A
·and every person whose name is not included in the list or who is so
qualified, to be elected as a Councillor at any election. Section 16(1)
(a) of the Act provides :

"16. (I) No person shall be qualified to become a Council- B
lor whether by election, co-option or nomination, who---
(a) has been convicted by a Court in India of any
offence the maximum punishment for which (with or with-
out any other punishment) is imprisonment for a term of
two years or more und sentenced to imprisonment for any
term, unless a period of five years, or such lesser period as
c
the State Governmeqt may allow in any particular, has
elapsed since his release; or
,,
xx xx xx .xx xx

The appellant was convicted on 26th December, 1973 for an D
offence under the Prevention of Food Adulteration Act, which, it is
not disputed, fell within the terms of cl.(a) of sub-s.(1) of s.16. He
was sentenced to imprisonment until the rising of the court. Because
of the conviction and sentence he suffers the disqualification contemp-
lated by cl.(a), an<! the disqualification enures for a period of five E
years from the date of his release from imprisonment. But, by virtue
of the same clause, the State Government has been empowered to
substitute a shorter period of disqualifiC'ation. In other words, the
ordinary run of the clause may be altered by the State Government.
A modification of the normal operation of the statute is contemplated.
Such a modification, to. be retrospective, must indicate clearly that it F
is so. There is nothing in the order dated 20th November, 1975
"'--from which it C'an be inferred that it has retrospective operation. What
it says merely is that the disqualification incurred by the appellant
shall remain in force for a period of six months only from his release on
26th December, 1973. The disqualification was incurred by the
appellant on 26th December, 1973 and the disqualification was in G
force when he stood for election. The date when the disqualification
for five years was incurred is the relevant date; the subsequent opera-
tion is merely the consequence of the incurring of the disqualification.
If the order was to be beneficial to the appellant, it should have been
made retrospective from the date when the disqualification was in-
&Urred. On the plain language, it must be read as an order reducing H
the period of disqualification to six months, but to be applied to a
disqualification arising ufter the date when the order was made.
A
270 SUPREME COURT REPORTS [1981] 2 S.C.R.

In our opiuiou, the appellant does uot beuefit from the order of
the State Governmeut iusofar as his election as President in ·1974 is
I.'
<
concerned. rn the circumstances, we consider it unnecessary to go

~
iuto the question whether the State Government has the power uuder
cl. (a) to make an order with retrosp_ective effect.
B Iu the result, the appeal is dismissed with costs to the fifth
respoudent.
i
N.V.K. Appeal dismissed.

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