BHIM RAO BASWANTH RAO PATILversusK. MADAN MOHAN RAO AND ORS.

1218               [2023] 9COURT
                SUPREME     S.C.R. REPORTS
                                   1218 : 2023 INSC 641
                                                     [2023] 9 S.C.R.


 A                   BHIM RAO BASWANTH RAO PATIL
                                         v.
                     K. MADAN MOHAN RAO AND ORS.
                          (Civil Appeal No. 4632 of 2023)
 B                                JULY 24, 2023
            [S. RAVINDRA BHAT AND ARAVIND KUMAR, JJ.]
              Code of Civil Procedure, 1908 – Or. VII, r.11, Or. XII, r.6 –
       Representation of People Act, 1951 – ss. 8, 33A, 33B, 81, 84, 100 –
 C     Appellant was a successful candidate in the election – The respondent
       preferred an election petition against appellant u/ss. 81 & 84 r/w
       ss. 100(1)(d)(i)(ii)(iii) & (iv) of 1951 Act alleging, inter-alia,
       furnishing of false information, non-disclosure of cases pending
       and those in which appellant was convicted – Appellant filed
       application u/Or. VII, r.11 of CPC for its rejection – It was contended
 D
       that mandatory requirements u/ss. 81 and 81(3) were not followed
       and criminal cases did not fall within ss. 8 & 33A of the Act – High
       Court was of the opinion that taking in the overall conspectus of
       facts available on record did not lead to a compelling reason for
       rejecting petition – Accordingly, application was dismissed – On
 E     appeal, held: The alleged non-compliance with statutory and
       Election Commission mandated regulations, and their legal effect,
       cannot be examined in what are essentially summary proceedings
       u/Or. VII, r.11 of CPC, or even Or. XII, r.6 of CPC – Even if the
       allegations regarding non-disclosure of cases where the appellant
 F     has been arrayed as an accused, are ultimately true, the effect of
       such allegations has to be considered after a full trial – The
       admission of certain facts by the election petitioner cannot be
       sufficient for the court to reject the petition, wholly – Judgment of
       High Court cannot be faulted.
 G           Constitution of India – Right to vote – The right to vote, based
       on an informed choice, is a crucial component of the essence of
       democracy – The citizen has an inalienable right to exercise her or
       his right to franchise – This finds articulation in Art. 326 of the
       Constitution.
 H
                                        1218
 BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                           1219
                 RAO AND ORS.

      Dismissing the appeal, the Court                                   A
      HELD:1. A plain look at the election petition reveals that
apart from allegations pertaining to non-disclosure of criminal
cases pending against the appellant, or cases where he was
convicted, other averments and allegations have been made
regarding non-compliance with stipulations regarding information         B
dissemination and the manner of dissemination through
publication in newspapers, the font size, the concerned
newspapers’ reach amongst the populace, etc. The alleged non-
compliance with statutory and Election Commission mandated
regulations, and their legal effect, cannot be examined in what
are essentially summary proceedings under Order VII Rule 11,             C
CPC, or even under Order XII Rule 6, CPC. Even if the
allegations regarding non-disclosure of cases where the appellant
has been arrayed as an accused, are ultimately true, the effect of
such allegations (in the context of provisions of law and the non-
disclosure of all other particulars mandated by the Election             D
Symbols orders) has to be considered after a full trial. The
admission of certain facts (and not all) by the election petitioner
cannot be sufficient for the court to reject the petition, wholly.
Even in respect of the undeniable nature of the judicial record,
the effect of its content, is wholly inadequate to draw a decree in
part. [Para 26][1237-C-F]                                                E

       2. The right to vote, based on an informed choice, is a crucial
component of the essence of democracy. This right is precious
and was the result of a long and arduous fight for freedom, for
Swaraj, where the citizen has an inalienable right to exercise her
or his right to franchise. This finds articulation in Article 326 of     F
the Constitution. The elector or voter’s right to know about the
full background of a candidate- evolved through court decisions-
is an added dimension to the rich tapestry of our constitutional
jurisprudence. Keeping this in mind, this court is of the opinion
that if the appellant’s contentions were to be accepted, there would     G
be a denial of a full-fledged trial, based on the acknowledgement
that material facts were not suppressed. Whether the existence
of a criminal case, where a charge has not been framed, in relation
to an offence which does not possibly carry a prison sentence, or
a sentence for a short spell in prison, and whether conviction in a
                                                                         H
1220            SUPREME COURT REPORTS                        [2023] 9 S.C.R.


 A     case, where penalty was imposed, are material facts, are
       contested. This court would be pre-judging that issue because
       arguendo if the effect of withholding some such information is
       seen as insignificant, by itself, that would not negate the possibility
       of a conclusion based on the cumulative impact of withholding of
       facts and non-compliance with statutory stipulations (which is to
 B
       be established in a trial). For these reasons, this court is of the
       opinion that the impugned judgment cannot be faulted. [Paras 27
       and 28][1238-A-B; 1239-D-G]
             Public Interest Foundation & Ors v Union of India
             (UOI) & Ors., [2018] 10 SCR 141; D. Ramachandran
 C           v. R.V. Jankiraman [1999] 1 SCR 983; Himani Alloys
             Ltd. v. Tata Steel Ltd. [2011] 7 SCR 60; Virender Nath
             Gautam v Satpal Singh & Ors. 2006 Supp SCR 413 –
             relied on.
             Saleem Bhai v. State of Maharashtra [2002] 5 Suppl.
 D           SCR 491; Mayar (H.K.) Limited v. Owners and Parties,
             Vessel M.V. Fortune Express [2006] 1 SCR 860; People’s
             Union for Civil Liberties v Union of India (2003) 4 SCC
             399; Sejal Glass Ltd. vs. Navilan Merchants Pvt. Ltd.
             [2017] 7 SCR 557; Jyoti Basu v. Debi Ghosal [1982] 3
 E           SCR 318 – referred to.
                              Case Law Reference
       [2002] 5 Suppl. SCR 491         referred to              Para 10
       [2006] 1 SCR 860                referred to              Para 10
 F     [2018] 10 SCR 141               relied on                Para 12
       [2003] 4 SCC 399                referred to              Para 13
       [2017] 7 SCR 557                referred to              Para 24
       [1999] 1 SCR 983                relied on                Para 24
 G     [2011] 7 SCR 60                 relied on                Para 25
       [2006] Supp SCR 413             relied on                Para 26
       [1982] 3 SCR 318                referred to              Para 27

 H
    BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                              1221
                    RAO AND ORS.

      CIVIL APPELLATE JURISDICTION : Civil Appeal No.4632                      A
of 2023.
       From the Judgment and Order dated 17.03.2023 of the High Court
for the State of Telangana at Hyderabad in IA No.1 of 2020 in EP No.34
of 2019.
      C Aryama Sundaram, Harin P Raval, Sr. Advs., M Srinivas R                B
Rao, N Manohar, Mrs. Nisha Padmanabhan, Abid Ali Beeran P, Abhishek
Gupta, Zafar Inyat, Ms. Shreya, Advs. for the Appellant.
      Dr. Abhishek Manu Singhvi, Salman Khurshid, Sr. Advs., Ms.
Azra Rehman, Ms. Vanya Gupta, Siddharth Seem, Ankit Agarwal, Ms.
Viyushti Rawat, Advs. for the Respondents.                                     C

          The Judgment of the Court was delivered by
          S. RAVINDRA BHAT, J.
       1. Leave granted. The present appeal by special leave questions
a judgment and order of the Telangana High Court1 dismissing an                D
application which sought rejection of the respondent’s election petition.
The appellant had contended that the election petition (hereafter “the
petition”) did not disclose any cause of action and was barred in law and
was liable to be rejected.
       2. The appellant was a successful candidate in the election             E
conducted for the Zaheerabad Parliamentary Constituency on 11.04.2019.
He was declared elected on 23.05.2019, defeating the respondent
(hereafter referred to as “the election petitioner”) by a margin of 6229
votes. The respondent preferred an election petition under Sections 81
and 84 read with Sections 100(1)(d)(i)(ii)(iii) & (iv) of the Representation
of People Act, 1951 (hereafter “the Act”). The election petition alleged,      F
amongst others, that the appellant had furnished false information in
Form 26 (election affidavit); that the Returning Officer had not followed
the Election Commission’s guidelines dated 10.10.2018; that the appellant
filed false information in C-4 report furnished to the District Election
Officer and that there was no previous publication of papers, regarding        G
pending cases against the appellant and those in which he was convicted.
Other allegations included failure to follow additional requirements such
as the font size mentioned in the form for publication; listing of cases in
separate rows; failure to have the pending cases disclosed in a widely
1
    Election Petition No.34/2019, rejecting IA 01/2020                         H
1222              SUPREME COURT REPORTS                           [2023] 9 S.C.R.


 A     circulated newspaper/news channels, and disclosure of information with
       respect to cases in which the appellant was convicted and lastly that his
       name was shown in a misleading manner in the newspaper publication.
              3. After the election petition was filed, the appellant applied, under
       Order VII Rule 11 of the Code of Civil Procedure (hereafter “CPC”)
 B     for its rejection. It was contended inter alia that the mandatory
       requirements under Sections 81 and 81 (3) of the Act were not followed;
       it was alleged that – there was no pleading as to how the nomination
       paper was improperly accepted; that there was no need to disclose the
       so-called criminal cases as they did not fall within Section 8 of the Act
       and Section 33A of the Act as the appellant had not been sentenced to
 C     imprisonment of more than one year. As a result, non-disclosure of
       conviction under Payment of Wages Act, 1936 and Minimum Wages
       Act, 1948 was not required. It was further alleged that the offences
       pleaded against the appellant were not criminal and other allegations
       with respect to publication and font size etc. were not substantial and on
 D     the other hand, there was substantial compliance with the law and the
       guidelines. The election petitioner/respondent resisted the application after
       which the appellant filed a rejoinder.
               4. During the course of the proceedings, on 15.11.2021, the
       appellant filed a memo2 which stated that he had obtained certified copies
 E     of the order sheet dated 28.06.2013; regarding seizure of property in CF
       97/2013, from the file of the Chief Judicial Magistrate Garhwa and related
       criminal case. Translations of those into English were made available.
       These documents were filed in the election proceedings to contest the
       election petitioner’s assertion. The appellant also applied under Section
       340 of the Criminal Procedure Code (hereafter “CrPC”) read with Section
 F     195 of the CrPC, broadly alleging that the documents produced as true
       copies along with the election petition and the averments made were
       false, calling for appropriate criminal proceedings to be drawn up against
       the respondent.
             5. The High Court had earlier heard the application3 and reserved
 G     orders on 23.12.2021. The judgment was delivered on 15.06.2022,
       whereby the respondent’s election petition was rejected, and the
       appellant’s application was allowed. This court, however, set aside that
       order on 12.09.20224. This court observed in its order that even on the
       2
         Registered as USR 69931/2021.
       3
         I.A. No. 1/2020 in E.P. No. 34/2019
 H     4
         SLP(C) 17247/2022
 BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                                  1223
        RAO AND ORS. [S. RAVINDRA BHAT, J.]

date it disposed of the special leave petition, i.e., 26.09.2022, the reasons   A
for allowing the application for rejection had not been given by the learned
Judge.
       6. In the present case, the High Court noticed the contentions of
the parties as well as the pleadings and was of the opinion that having
regard to the terms of Order VII Rule 11 CPC, only the averments in             B
the petition and the accompanying documents could be considered and
not any other materials brought on record during the course of the
proceedings. The court was of the opinion that taking in the overall
conspectus of the facts available on the record did not lead to a compelling
reason for rejecting the election petition. Accordingly, the appellant’s
application was dismissed, and the contentions were kept open to be             C
agitated during the trial.
        7. The appellant’s main contention was that though the appellant
had urged several grounds with respect to its explanation for the alleged
non-compliance of what were termed by the election petitioner as
mandatory requirements, it was also alleged that Section 81(3) had not          D
been complied with. However, during the hearing, the arguments on
behalf of the appellant, by Mr. C.S. Sundaram, Senior Advocate, were
confined to submissions to the aspect regarding non-disclosure of criminal
cases. The first related to a criminal case pending before the CJM,
Garhwa bearing CR 96P; case No. CF 97/13 dated 20.03.2013 in Form               E
26, i.e., the election affidavit. The second case was with respect to non-
disclosure in Form 26 of conviction. It was alleged that the cases referred
to in the election petition, i.e., Labour Enforcement Officer v. M/s.
Patil Construction represented by (1) Mr. B. B. Patil (partner) and
(2) Mr. M. B. Patil (partner) (Case No.20/12), this case pertained to
non-payment of minimum wages to workers under the Payment of Wages              F
Act, 1936 and Payment of Wages (Mines) Rules, 1956. The appellant
was convicted on 30.07.2013; the second case pertained to State through
Labour Enforcement Officer v. M/s. Patil Construction represented
by B.B. Patil and M.B. Patil before Sub Divisional Judicial Magistrate
registered under Section 22A of the Minimum Wages Act, 1948 for non-            G
maintenance of records of workers/employers. The appellant was
convicted on 05.09.2017.
      8. It was argued by Mr. Sundaram that the reference to the pending
case before the CJM Garhwa District, in the documents filed along with
the election petition, was an abuse of process and a clear case of              H
1224                SUPREME COURT REPORTS                        [2023] 9 S.C.R.


 A     interpolation. Learned counsel pointed out that this aspect has been
       acknowledged by the main judgment in para 27, whereby after considering
       the certified copy relating to that case, the court observed that there
       appeared to be some interpolation. Learned counsel reiterated the
       submissions and referred to certified copies which were placed on record.
       He also referred to the original of the complaint which was summoned
 B
       by this court during the present proceedings. It was further stated that
       the conclusion of the High Court with respect to the non-disclosure of
       two cases in respect of the Payment of Wages Act and Minimum Wages
       requiring them to be gone into during the trial is in error. Learned counsel
       contended that even upon conviction, the minimum threshold indicated
 C     in Section 33A of the Act is not satisfied because, in eitherway, the
       maximum sanction is a penalty.
               9. Dr. A.M. Singhvi, learned senior counsel for the election
       petitioner, urged that the impugned order correctly appreciated the law
       relating to Order VII Rule 11 and dismissed the appellant’s application.
 D     Counsel reiterated that the suppression of the truth with respect to
       criminal cases, i.e.,non-disclosure of cases where the petitioner was
       convicted and of pending cases, in Form- 26 affidavit were in relation to
       the following:
             a) Pending cases: The appellant did not disclose the criminal case
 E     pending before the Chief Judicial Magistrate Garhwa relating to Forest
       Department cases.
              b) Regarding cases in which the appellant was convicted (in
       section 6 of Form-26), there was a deliberate attempt to suppress the
       truth; the appellant had written “not applicable” when there were two
 F     casesin which he was convicted: firstly case No.20/2012 Labour Case
       relating to Payment of Wages and Minimum Wages Act, and secondly,
       Case No 1/ 2013, another case relating to Payment of Wages and
       Minimum Wages Act.
              10. It was submitted that going into the merits of whether those
       cases actually existed, and related to the provisions of the Act, would
 G
       amount to a mini-trial which is plainly impermissible while considering
       an application seeking rejection of the petition. It was submitted that the
       law on the subject is well settled. Counsel stated that the judgments of
       this court, such as Saleem Bhai v. State of Maharashtra5and Mayar
       5
           2002 [5] Suppl. SCR 491
 H
    BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                               1225
           RAO AND ORS. [S. RAVINDRA BHAT, J.]

(H.K.) Limited v. Owners and Parties, Vessel M.V. Fortune Express6              A
had, in no uncertain terms, ruled that while considering an application
under Order VII Rule 11, CPC, only the averments in the pleadings
(i.e., in the suit or petition) and the accompanying documents can
be looked into. Therefore, reference to and reliance on any document
which was not part of the petition, but produced as a part of the respondent/
                                                                                B
defendant’s plea, cannot be considered.
       11. It was next urged that while it is undoubtedly important to
respect popular will and the courts ought to be slow in upsetting them,
equally it important to maintain the purity of the election process. Courts
are, hence, duty bound to examine the allegations whenever the same
are raised within the framework of the statute without being unduly             C
hyper-technical in their approach and oblivious of the ground realities.
         Analysis and Conclusions
      12. Section 33A of the Act, which requires disclosure of past
criminal antecedents of every candidate, reads as follows:
                                                                                D
         “33A. Right to information:
         (1) A candidate shall, apart from any information which he is
         required to furnish, under this Act or the rules made thereunder,
         in his nomination paper delivered under sub-section (1) of
         section 33, also furnish the information as to whether—
                                                                                E
         (i) he is accused of any offence punishable with imprisonment
         for two years or more in a pending case in which a charge
         has been framed by the court of competent jurisdiction;
         (ii)he has been convicted of an offence [other than any offence
         referred to in sub-section (1) or sub-section (2), or covered          F
         in sub-section (3), of section 8] and sentenced to imprisonment
         for one year or more.
         (2) The candidate or his proposer, as the case may be, shall,
         at the time of delivering to the returning officer the nomination
         paper under sub-section (1) of section 33, also deliver to him
                                                                                G
         an affidavit sworn by the candidate in a prescribed form
         verifying the information specified in sub-section (1).
         (3) The returning officer shall, as soon as may be after the
         furnishing of information to him under sub-section (1), display
6
    2006 [1] SCR 860                                                            H
1226               SUPREME COURT REPORTS                       [2023] 9 S.C.R.


 A            the aforesaid information by affixing a copy of the affidavit,
              delivered under sub-section (2), at a conspicuous place at
              his office for the information of the electors relating to a
              constituency for which the nomination paper is delivered.”
              Section 8 provides for disqualification of elected candidates, upon
 B     their conviction of specified offences. However, Section 33A, introduced
       through an amendment to the Act, in 2002, compels those holding out
       their candidature to disclose information about their criminal
       antecedents. The idea behind this provision is to ensure transparency
       and enable the voters to make an informed choice while casting the
       ballot. The need for a detailed declaration by candidates was underlined
 C     by this court in Public Interest Foundation & Ors v Union of India
       (UOI) & Ors.,7which required the Election Symbols (Reservation and
       Allotment) Order, 1968 to be suitably amended. The court observed
       that:
              “The best available people, as is expected by the democratic
 D            system, should not have criminal antecedents and the voters
              have a right to know about their antecedents, assets and other
              aspects. We are inclined to say so, for in a constitutional
              democracy, criminalization of politics is an extremely
              disastrous and lamentable situation. The citizens in a
              democracy cannot be compelled to stand as silent, deaf and
 E            mute spectators to corruption by projecting themselves as
              helpless. The voters cannot be allowed to resign to their fate.
              The information given by a candidate must express everything
              that is warranted by the Election Commission as per law.
              Disclosure of antecedents makes the election a fair one and
 F            the exercise of the right of voting by the electorate also gets
              sanctified. It has to be remembered that such a right is
              paramount for a democracy. A voter is entitled to have an
              informed choice. If his right to get proper information is
              scuttled, in the ultimate eventuate, it may lead to destruction
              of democracy because he will not be an informed voter having
 G            been kept in the dark about the candidates who are Accused
              of heinous offences. In the present scenario, the information
              given by the candidates is not widely known in the constituency
              and the multitude of voters really do not come to know about
              the antecedents. Their right to have information suffers.
 H     7
           2018 [10] SCR141
    BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                            1227
           RAO AND ORS. [S. RAVINDRA BHAT, J.]

         116. Keeping the aforesaid in view, we think it appropriate to      A
         issue the following directions which are in accord with the
         decisions of this Court:
         (i) Each contesting candidate shall fill up the form as provided
         by the Election Commission and the form must contain all the
         particulars as required therein.                                    B
         (ii) It shall state, in bold letters, with regard to the criminal
         cases pending against the candidate.
         (iii) If a candidate is contesting an election on the ticket of a
         particular party, he/she is required to inform the party about      C
         the criminal cases pending against him/her.
         (iv) The concerned political party shall be obligated to put
         up on its website the aforesaid information pertaining to
         candidates having criminal antecedents.
         (v) The candidate as well as the concerned political party          D
         shall issue a declaration in the widely circulated newspapers
         in the locality about the antecedents of the candidate and
         also give wide publicity in the electronic media. When we say
         wide publicity, we mean that the same shall be done at least
         thrice after filing of the nomination papers.”                      E
       13. Section 33-B inserted by the Representation of the People
(Third Amendment) Act, 2002, provided inter alia, that “…no candidate
shall be liable to disclose or furnish any such information, in respect
of his election, which is not required to be disclosed or furnished
under this Act or the Rules made thereunder”. This court, in its decision    F
reported as People’s Union for Civil Liberties v Union of India8 held
that provision to be invalid and unconstitutional. The court ruled
thatSection 33B imposed a “blanket ban on dissemination of
information other than that spelt out in the enactment irrespective
of the need of the hour and the future exigencies and expedients
and secondly for the reason that the ban operates despite the fact           G
that the disclosure of information now provided for is deficient and
inadequate.” This decisively ruled that providing information is vital for
a vibrant and functioning democracy.
8
    (2003) 4 SCC 399
                                                                             H
1228             SUPREME COURT REPORTS                            [2023] 9 S.C.R.


 A           14. Pursuant to the decision and directions of this court, the Election
       Commission issued guidelines and also framed forms that were part of
       guidelines requiring declarations inter alia with respect to disclosure of
       pending criminal cases and those in which candidate(s) had been
       convicted. The relevant extract of the guidelines first issued by the Election
       Commission on 10.10.2018 inter alia reads as follows:
 B
              “2. In pursuance of the directions in the abovementioned
              judgment, the Commission, after due consideration, has given
              the following directors to be complied with by candidates at
              elections to the Houses of Parliament and Houses of State
              Legislatures, who have criminal cases against them, either
 C
              pending cases or cases of conviction in the past, and to the
              political parties that set up such candidates.
              (a) Candidates at elections to the House of the People, Council
              of States, Legislative Assembly or Legislative Council who
              have criminal cases against them, shall publish a declaration
 D
              about their criminal cases, for wide publicity in newspapers
              with wide circulation in the constituency area. This declaration
              is to be published in Format C-1, attached hereto, at least on
              three different dates from the day following the last date for
              withdrawal of candidatures and up to two days before the
 E            date of poll.
              xxxxxx                       xxxxxx                        xxxxxx
              3. The Political parties-recognized parties and registered un-
              recognized parties, which set up candidates with criminal
              cases, either pending cases or cases of past conviction, are
 F            required to publish declaration giving details in this regard,
              for wide publicity, on their website as well as in TV channels
              and newspapers having wide circulation in the State
              concerned. Declaration in this regard shall be published in
              Format C-2, annexed hereto, and should be provided State
 G            wise with separate statements for each State/Union Territory.
              Publishing of the declaration in newspapers and TV channels
              is required to be done at least on three different dates during
              the period mentioned in Para-2(a) above. As specified above,
              the declaration in newspapers should appear in at least 12
              font size, and should be placed suitable so that the directions
 H
 BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                                1229
        RAO AND ORS. [S. RAVINDRA BHAT, J.]

      for wide publicity are complied with in letter and spirit. In the       A
      case of publishing of declaration in TV channels, the same
      should be completed before the period of 48 hours ending
      with the hour fixed for conclusion of poll. All such political
      parties shall submit as report to the Chief Electoral Officer
      of the State/UT concerned confirming that they have fulfilled
                                                                              B
      the requirements of these directions and enclosing therewith
      the paper cuttings containing the declarations published by
      the party in respect of the candidates in the State/UT
      concerned. This shall be done within 30 days of completion
      of election. It may be noted that failure to abide by these
      directions would be treated as failure/refusal to carry out a           C
      lawful direction of the Commission for the purposes of
      paragraph-16A of the Election Symbols (Reservation &
      Allotment) Order, 1968.
      4. It may also be noted that the provisions for the additional
      affidavit in respect of dues against Govt. accommodation, if            D
      any, that may have been allotted to the candidates, have now
      been incorporated in Form-26 itself under Item (8) relating
      to liabilities to Public Financial Institutions and Govt.
      Therefore, the candidates shall give the requisite declaration/
      particulars in this regard in Item (8) of Form-26. Accordingly,
      the candidates are now not required to file the additional              E
      affidavit prescribed under the Commissioner’s Order No.509/
      11/2004-JS-1, dated 3rd February, 2016, as the provisions
      are not part of Form-26 itself.
      5. These directions may be circulated to all formations of your
      party and also brought to the notice of candidates of the Party         F
      in future elections for guidance and for strict compliance of
      these directions.”
       15. The other requirements include submission of copies of
newspapers in which declarations about criminal cases were furnished
to the District Election Officer, publication of declaration on TV Channels   G
atleast on three different dates but which was to be completed before
48 hours, ending with the year fixed for completion of poll. In the case of
candidates with criminal cases set up by political parties, whether
recognized parties or registered unrecognized parties, such candidates
                                                                              H
1230            SUPREME COURT REPORTS                           [2023] 9 S.C.R.


 A     are required to declare before the Returning Officer concerned that
       they have informed their political party about the criminal cases against
       them. Provision for such declaration has been made in Form-26 in the
       newly inserted item (6A) and other stipulations were framed. The relevant
       form with respect to publication in newspapers was Form C-1; the report
       by the candidate “about publication of declaration regarding criminal
 B
       cases” was in Form C-4 and Form 26 in terms of Rule 4A dealt with the
       election affidavit disclosing the description and details of income returns
       of the candidate. Clause 5 of Form 26 contains the column for disclosure
       of pending criminal cases and those in which the candidate was convicted
       for any offence. In the present instance, the relevant form filed by the
 C     appellant along with the declaration (Clause 6A) of Form 26 reads as
       follows:
                                         “FORM 26
                                        (See Rule 4A)
 D           Affidavit to be filed by the candidate along with nomination
             paper before the Returning Officer for Election to the House
             of the People (Lok Sabha) (Name of the House) from 05-
             Aheerbad Parliamentary Constituency (name of the
             Constituency)

 E           PART-A
             I, BHEEMRAO BASWANTHRAO PATIL son of late
             BASWANTHRAO PATIL, aged 63 years, resident of H.No.1-9-
             , Shirpur village, Madnoor Mandal, Kamareddy District,
             Telangana-503309 a candidate at the above election, do
 F           hereby solemnly affirm and state on oath.
             xxxxxx                      xxxxxx                    xxxxxx
             (5) Pending Criminal cases
             i)I declare that there is no pending criminal case against me.
 G           (Tick this alternative if there is no criminal case pending
             against the Candidate and write NOT APPLICABLE against
             alternative. (ii) below)
                                              OR

 H
BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                        1231
       RAO AND ORS. [S. RAVINDRA BHAT, J.]

   ii) The following criminal cases are pending against me:          A
   (if there are pending criminal cases against the candidate,
   then tick this alternative and score off alternative (i) above,
   and give details of all pending cases in the Table

                                                                     B




                                                                     C




                                                                     D




                                                                     E



   (6) Cases of conviction
   (i) I declare that I have not been convicted for any criminal     F
   offence.
   (Tick this alternative, if the candidate has not been convicted
   and write NOT
   OR
                                                                     G
   (ii) I have been convicted for the offences mentioned below:
   NOT APPLICABLE (if the candidate has been convicted, then
   tick this alternative and score off alternative (i) above, and
   give details in the Table below):

                                                                     H
1232            SUPREME COURT REPORTS                           [2023] 9 S.C.R.


 A                                          Table




 B




 C


             (6A) I have given full and up to date information to my political
             party about all pending criminal cases against me and about
 D           all cases of conviction as given in paragraphs (5) and (6):
             Yes.”
              16. The election petitioner/respondent contends that the disclosure
       in this case was false because the appellant was earlier convicted in
       cases concerning violation of the Minimum Wages Act, 1948 and the
 E     Payment of Wages Act, 1936. The appellant counters this and, in his
       application, contended that no such disclosure was essential by reason
       of the fact that under Section 33A, a candidate who is accused of any
       offence punishable with imprisonment for two years or more in a pending
       case in which a charge has been framed by the court of competent
       jurisdictionhas to furnish such information [Section 33A(1)(i)]. It is also
 F     contended that in cases of conviction, the requirement of disclosure is
       by reason of Section 33A(1)(ii) only where she or he is convicted of an
       offence and sentenced to imprisonment for one year or more, other than
       offences expressly mentioned in Section 8(1) or (2) or (3). It is submitted
       that since the provisions of the Act, in fact, mandate disclosure only in
 G     respect of those classes of offences expressly stated, the non-disclosure
       of information with respect to criminal cases pending where the accused
       candidate can face punishment for less than two years or has not been
       convicted of an offence and sentenced to imprisonment for one year or
       more is not required.

 H
 BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                                    1233
        RAO AND ORS. [S. RAVINDRA BHAT, J.]

       17. The election petitioner had alleged in the election petition that      A
with respect to withholding of vital information inasmuch as – as
mentioned earlier – particulars of offences under the Minimum Wages
Act and Payment of Wages Act where the candidate had been convicted
as well as where he was facing criminal trial under the Indian Forest
Act, were not disclosed. In support of this allegation, the election petitioner
                                                                                  B
had annexed copies of a complaint and certain proceedings before the
Magistrate at Garhwa. Likewise, the proceedings before the concerned
Court in the cases relating to past convictions under the Payment of
Wages Act and the Minimum Wages Act were mentioned. The appellant’s
main contention is that the election petitioner’s assertions are false
inasmuch as they rely upon a document, i.e., copies of certain order              C
sheets in the pending criminal case relating to offences under the Forest
Act before the Court in Garhwa and that so far as the past convictions
under the Minimum Wages Act and the Payment of Wages Act are
concerned, there was no requirement at all.
      18. To clear the air, this court had summoned the file pertaining to        D
the pending criminal case before the Garhwa Court, the records of which
show that the following were arrayed as accused:
      1. Sri M.B. Patil, Director, M/s. Patil Construction, S/o Unknown,
Sarget, Pune, Maharashtra
      2. Sri Ramayan Singh, S/o Late Ram Chhabila Singh, Shastri Nagar,           E
P.S.-Garhwa, District-Garhwa. [A.G.M., Patil Construction, Kutchery
Road, P.S.-Garhwa, District-Garhwa.]
     3. Santosh Sinha, S/o Radha Prasad Sinha, Bijli Colony, P.S.-
Garhwa, District-Garhwa. [Worker, Patil Constrcution].
                                                                                  F
     4. Dharmpal, S/o Unknown, Patil Construction, Sarget, Pune,
Maharashtra.
       5. Sri Ranjan Das, S/o Chakradhar Das, 1917 Pokhanput, B.B.S.R.
       The complaint/intimation by the Forest Department with respect
to seizure and the commission of the offences named - M/s. M.B. Patil             G
B.B. Patil Construction Company and four others (Ramayan Singh,
Santosh Sinha, Dharampal and Ranjan Das) is dated 19.03.2013. The
order sheet dated 02.04.2013 named four persons [other than the present
appellant] and stated that there was no need to issue warrants against
the accused. According to the allegations, the constructions were carried
                                                                                  H
1234             SUPREME COURT REPORTS                           [2023] 9 S.C.R.


 A     out by the company inside 1/3rd portion of the forest area and stones
       were broken and converted into stone chips. The Forest Department
       Report was to the effect that 5000 cub. Ft of small and big boulders
       were seized on 20.03.2013. The order sheet for 28.06.2013 further
       discloses that Mr. Santosh Sinha, Ramayan Singh, Dharampal and only
       M.B. Patil were charged with committing the offence. This clearly shows
 B
       the appellant was not charged for the offences alleged in the complaint
       under the Indian Forest Act.
              19. So far as the past convictions are concerned, the allegations
       are not per se denied by the appellant, but rather the application for
       rejection of the petition contended that no disclosure of this kind was
 C     needed since they did not answer the description of the class of offences
       enumerated in Section 33A of the Act.
              20. As far as criminal charges and offences go, the punishment
       for violating provisions of the Minimum Wages Act, 1948, is provided in
       Section 22, which prescribes a maximum prison term of 6 months or fine
 D     upto 500/-. Section 22A prescribes punishment for other offences
       imposing fine upto        500/-. As regards the Payment of Wages Act,
       1936, the penalty provision is Section 20, which prescribes a maximum
       fine of      7500/-. A subsequent conviction under the same provision
       attracts a stiffer punishment: imprisonment of a month which may extend
 E     to six months.
              21. The impugned order, as noticed earlier, is premised on the
       reasoning that any material brought on the record by the successful
       candidate who is a respondent in the election proceedings, ipso facto
       cannot be considered within the framework of Order VII Rule 11 CPC
 F     to reject the plea altogether. That understanding in this Court’s opinion is
       correct. At the same time, there could be circumstances when there is
       material on the record, the consideration of which may not be considered
       by Order VII Rule 11 CPC but may fall within the ambit of Order XII
       Rule 6 CPC (decree on admission), which reads as follows:

 G           “Judgement on admissions-(1) Where admissions of fact have
             been made either in the pleading or otherwise, whether orally
             or in writing, the Court may at any stage of the suit, either on
             the application of any party or of its own motion and without
             waiting for the determination of any other question between
             the parties, make such order or give such judgment as it may
 H           think fit, having regard to such admissions.
    BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                                 1235
           RAO AND ORS. [S. RAVINDRA BHAT, J.]

         (2) Whenever a judgment is pronounced under sub-rule (1),                A
         a decree shall be drawn up in accordance with the judgment
         and the decree shall bear the date on which the judgment
         was pronounced.”
       22. It has been held by this Court that the expression “otherwise”
mentioned in sub-rule 1 of rule 6 of the Order XII, CPC is not confined           B
to pleadings but also includes documents filed along with the complaint
or main pleading or other materials subsequently brought on the record
which are admitted by the other party. In other words, the matter of
record that is not denied and contains facts that can lead the court to
draw a decree is sufficient for the court to do so and, by its judgment,
direct decree of the suit (in this case, petition) wholly or partly.              C

        23. The appellant’s argument with respect to using a document
(i.e., a photocopy of the court related documents, and orders) in the
case relating to Forest Act offences, not being true copies, but containing
interpolations, as the title involving the appellant’s name (i.e., “B.B. Patil)
is merited. The appellant has sought to initiate proceedings before the           D
High Court under Section 340 read with Section 195 of the Cr. PC. This
court is loath to express any opinion about whether annexing such
photocopy amounts to an offence. The High Court indicated (in para 27
of the impugned judgment) that the “interpolation” alleged by the appellant
appears to be borne out. The original trial court record, which this court        E
had the benefit of considering, bears out the appellant’s submission. To
that extent, therefore, the condition in Order XII Rule 6 CPC (i.e.,
admission on the basis of pleadings “or otherwise”) is undeniably made
out; which is that the appellant, BB Patil, was not indicted individually;
the company of which he was a part, as director, was charged. In relation
to and for the company, as its representative, Shri M.B. Patil was charged.       F
The trial court record establishes these as undeniable facts. Yet, the
consequence of such admission has to be considered keeping in mind
that several other allegations need a trial.
       24. It is a salutary position in law that there cannot be a partial
rejection of the plaint (or petition, as in this case) in exercise of power       G
under Order VII Rule 11, CPC. This court had stated this principle, in
Sejal Glass Ltd. vs. Navilan Merchants Pvt. Ltd9 in the following
manner:
9
    2017 [7] SCR557
                                                                                  H
1236                SUPREME COURT REPORTS                        [2023] 9 S.C.R.


 A               “This cannot elevate itself into a Rule of law, that once a part
                 of a plaint cannot proceed, the other part also cannot
                 proceed, and the plaint as a whole must be rejected Under
                 Order VII Rule 11. In all such cases, if the plaint survives
                 against certain Defendants and/or properties, Order VII Rule
                 11 will have no application at all, and the suit as a whole
 B
                 must then proceed to trial.”
              This principle was stated clearly, in D. Ramachandran v. R.V.
       Jankiraman10 which, in relation to an election petition, explained the
       position as follows:
 C               “The election petition as such does disclose a cause of action
                 which if unrebutted could void the election and the provisions
                 of Order 7 Rule 11 (a) CPC cannot therefore be invoked in
                 this case. There is no merit in the contention that some of the
                 allegations are bereft of material facts and as such do not
                 disclose a cause of action. It is elementary that under Order
 D               7 Rule 11(a) CPC, the Court cannot dissect the pleading into
                 several parts and consider whether each one of them discloses
                 a cause of action. Under the Rule, there cannot be a partial
                 rejection of the plaint or petition.”
              25. There is some authority for the proposition, that the court’s
 E     power under Order XII Rule 6, CPC, is not only discretionary but requires
       exercise of caution and that unless an admission is unambiguous, enabling
       the court to draw a decree, the power would not be exercised. Thus, in
       Himani Alloys Ltd. v. Tata Steel Ltd.,11 this court held that:
                 “It is true that a judgment can be given on an “admission”
 F               contained in the minutes of a meeting. But the admission
                 should be categorical. It should be a conscious and deliberate
                 act of the party making it, showing an intention to be bound
                 by it. Order 12 Rule 6 being an enabling provision, it is neither
                 mandatory nor peremptory but discretionary. The court, on
                 examination of the facts and circumstances, has to exercise
 G
                 its judicial discretion, keeping in mind that a judgment on
                 admission is a judgment without trial which permanently
                 denies any remedy to the Defendant, by way of an appeal on
                 merits. Therefore unless the admission is clear, unambiguous
       10
            1999 [1] SCR 983
 H     11
            2011[7] SCR60
     BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                               1237
            RAO AND ORS. [S. RAVINDRA BHAT, J.]

         and unconditional, the discretion of the Court should not be            A
         exercised to deny the valuable right of a Defendant to contest
         the claim. In short the discretion should be used only when
         there is a clear ‘admission’ which can be acted upon. (See
         also Uttam Singh Duggal and Co. Ltd. v. United Bank of India
         2000 [Supp 2] SCR 187; Karam Kapahi v. Lal Chand Public
                                                                                 B
         Charitable Trust 2010 (4) SCR 422 and Jeevan Diesels and
         Electricals Ltd. v. Jasbir Singh Chadha 2010) 6 SCC 526"
        26. A plain look at the election petition reveals that apart from
allegations pertaining to non-disclosure of criminal cases pending against
the appellant, or cases where he was convicted, other averments and
allegations have been made regarding non-compliance with stipulations            C
regarding information dissemination and the manner of dissemination
through publication in newspapers, the font size, the concerned
newspapers’ reach amongst the populace, etc. The alleged non-
compliance with statutory and Election Commission mandated regulations,
and their legal effect, cannot be examined in what are essentially summary       D
proceedings under Order VII Rule 11, CPC, or even under Order XII
Rule 6, CPC. Even if the allegations regarding non-disclosure of cases
where the appellant has been arrayed as an accused, are ultimately true,
the effect of such allegations (in the context of provisions of law and the
non-disclosure of all other particulars mandated by the Election Symbols
orders) has to be considered after a full trial. The admission of certain        E
facts (and not all) by the election petitioner cannot be sufficient for the
court to reject the petition, wholly. Even in respect of the undeniable
nature of the judicial record, the effect of its content, is wholly inadequate
to draw a decree in part. This court has also ruled that the truth or
otherwise of anything is ordinarily a matter of evidence, in a full-blown        F
trial, in Virender Nath Gautam v Satpal Singh & Ors.12:
         “52. The High Court, in our considered opinion, stepped into
         prohibited area of considering correctness of allegations and
         evidence in support of averments by entering into the merits
         of the case which would be permissible only at the stage of
                                                                                 G
         trial of the election petition and not at the stage of
         consideration whether the election petition was maintainable
         and dismissed the petition. The said action, therefore, cannot
         be upheld and the order deserves to be set aside.”
12
     2006 Supp SCR 413                                                           H
1238                SUPREME COURT REPORTS                         [2023] 9 S.C.R.


 A            27. Lastly, the right to vote, based on an informed choice, is a
       crucial component of the essence of democracy. This right is precious
       and was the result of a long and arduous fight for freedom, for Swaraj,
       where the citizen has an inalienable right to exercise her or his right to
       franchise. This finds articulation in Article 326 of the Constitution which
       enacts that “every person who is a citizen of India and who is not
 B
       less than twenty one years of age on such date as may be fixed and
       is not otherwise disqualified under this Constitution or any law made
       by the appropriate Legislature on the ground of non-residence,
       unsoundness of mind, crime or corrupt or illegal practice, shall be
       entitled to be registered as a voter at any such election”. Article 325
 C     embeds a non-discriminatory principle:
                 “325. No person to be ineligible for inclusion in, or to claim
                 to be included in a special, electoral roll on grounds of
                 religion, race, caste or sex. There shall be one general
                 electoral roll for every territorial constituency for election to
 D               either House of Parliament or to the House or either House
                 of the Legislature of a State and no person shall be ineligible
                 for inclusion in any such roll or claim to be included in any
                 special electoral roll for any such constituency on grounds
                 only of religion, race, caste, sex or any of them.”
 E            Democracy has been held to be a part of one of the essential
       features of the Constitution. Yet, somewhat paradoxically, the right to
       vote has not been recognized as a Fundamental Right yet; it was termed
       as a “mere” statutory right. However, in Jyoti Basu v. Debi Ghosal,13
       this court again pointed out that:

 F               “a right to elect, fundamental though it is to democracy, is,
                 anomalously enough, neither a fundamental right nor a
                 common law right. It is pure and simple a statutory right. With
                 great reverence to the eminent Judges, I would like to clarify
                 that the right to vote, if not a fundamental right, is certainly a
                 constitutional right. The right originates from the Constitution
 G               and in accordance with the constitutional mandate contained
                 in Article 326, the right has been shaped by the statute, namely,
                 R.P. act. That, in my understanding, is the correct legal position
                 as regards the nature of the right to vote in elections to the
                 House of the People and Legislative Assemblies. It is not very
 H     13
            1982 [3] SCR 318
 BHIM RAO BASWANTH RAO PATIL v. K. MADAN MOHAN                                  1239
        RAO AND ORS. [S. RAVINDRA BHAT, J.]

       accurate to describe it as a statutory right, pure and simple.           A
       Even with this clarification, the argument of the learned
       Solicitor General that the right to vote not being a
       fundamental right, the information which at best facilitates
       meaningful exercise of that right cannot be read as an integral
       part of any fundamental right, remains to be squarely met....”
                                                                                B
       Similarly, in para 123 of the judgment, O. Chinnappa Reddi, J.,
held that:
       “(2) The right to vote at the elections to the House of the
       People or Legislative Assembly is a constitutional right but
       not merely a statutory right; freedom of voting as distinct from         C
       right to vote is a facet of the fundamental right enshrined in
       Article 19(1)(a). The casting of vote in favour of one or the
       other candidate marks the accomplishment of freedom of
       expression of the voter.”
        28. The elector or voter’s right to know about the full background      D
of a candidate- evolved through court decisions- is an added dimension
to the rich tapestry of our constitutional jurisprudence. Keeping this in
mind, this court is of the opinion that if the appellant’s contentions were
to be accepted, there would be a denial of a full-fledged trial, based on
the acknowledgement that material facts were not suppressed. Whether
the existence of a criminal case, where a charge has not been framed, in        E
relation to an offence which does not possibly carry a prison sentence,
or a sentence for a short spell in prison, and whether conviction in a
case, where penalty was imposed, are material facts, are contested.
This court would be pre-judging that issue because arguendo if the
effect of withholding some such information is seen as insignificant, by        F
itself, that would not negate the possibility of a conclusion based on the
cumulative impact of withholding of facts and non-compliance with
statutory stipulations (which is to be established in a trial). For these
reasons, this court is of the opinion that the impugned judgment cannot
be faulted.
                                                                                G
      29. In view of the foregoing discussion, there is no merit in the
appeal; it is accordingly dismissed, with costs.

Ankit Gyan                                                  Appeal dismissed.
(Assisted by : Aarsh Choudhary, LCRA)
                                                                                H