Holding

When only two candidates remain, the quota is irrelevant; the candidate with the greater number of first‑preference votes is elected, and drawing of lots is allowed only if first‑preference votes are equal, so the office must be declared vacant where neither candidate meets the quota.

Summary

In the election for President of a Zila Parishad, three candidates received 14, 10 and 7 first‑preference votes respectively, with a quota of 16 votes required for election. After eliminating the lowest‑scoring candidate and adding second‑preference votes, the two remaining candidates each had 15 votes, still short of the quota. The Returning Officer drew lots and declared one candidate elected; the election petition succeeded and the High Court held the office vacant. On appeal, the Supreme Court examined Schedule II of the Uttar Pradesh Zila Parishads Election Rules and held that when only two candidates remain, the quota is irrelevant and the candidate with the higher number of first‑preference votes must be declared elected; drawing of lots is permissible only when first‑preference votes are equal. Since neither candidate met the quota and their first‑preference totals differed, no election could be declared and the vacancy stood. The Court dismissed the appeals, confirming the High Court’s decision.

Issues considered

Whether the quota requirement under Schedule II applies when only two candidates remain in a Zila Parishad election
Whether the Returning Officer may draw lots to decide the result when the two remaining candidates have equal total votes but unequal first‑preference votes
Whether a candidate can be declared elected without attaining the prescribed quota

Legislation cited

Uttar Pradesh Kshettra Panchayats and Zila Panchayats Adhiniyam, 1961s. 137

Subjects

Election lawQuotaDrawing of lotsZila ParishadPreferential votingVacancySchedule II

Judgment

A JAIDRATH SINGH AND A"IR.
v.
JIVENDRA KCMAR AND ORS.

FEBRUARY 15, 200~

B [S.P. BHARUCHA AND MRS. Rt.:MA PAL, JJ.j

ELECTION LAWS:

U.P. Zila Pwishads (Election of Adhyaksha and Up-Adhyaksha and
C Settlement of Election Di:>putes) Rulej, 1963 Schedule II-Election of
Adhyaksha/President-None of the candidates :>ecuring the required 'quota'
of votes for being declared elected-Election by drawing of lots-Held, draw-
ing of lots invalid--Hence declaration by High Court that office of Adhyaksha
was vacant justified.

D J, M and G were candidates for election to the post of Adhyak·
sha/President of a Zila Parishad. There were 31 electors, all of whom voted.
The first preference votes for the candidates were 10, 14 and 7 respectively.
Quota for securing a result was 16 a~ per the provisions of Schedule II to
U.P. Zila Parishads (Election of Adhyabha and Up-Adhyaksha an Settle·
E ment of Election Disputes) Rules, 1963. None of thie candidates secured
the desired quota. G, who secured the least number of votes, was
eliminated and second preference votes were scrutinised. The second
preference votes for J and M were 5 and l respectively. After including the
second preference votes, J and M got 15 votes each and both of them failed
to secure the desired quota of 16 votes. Returning Ollicer decided to draw
F lots and J was declared elected. M filed an election petition where he
-.::-
succeeded. On an appeal by J, High Court declared that the office of the
Adhyabha was vacant since both J and M did not obtain the desired quota
of 16 votes as per the Rules.

G Hence these appeals.

Dismissing the appeals, the Court

HELD : 1.1. Where there are only two candidates, the quota plays no
part. Paragraph (4) of Schedule II to U.P. Zila parishads (Election of
H Adhy'lksha and t:p-Adhyaksha and Settlement .of Disputes) Rules, 1963
• . 800
JAIDRATII SINGH v. JIVF"IDRA KUMAR 801

states that the candidate who secures more first preference votes than the A
other shall be declared elected, and where both get an equal number of
first preference votes, lots shall be drawn. In that event, successive counts
shall be held until either a candidate secures the quota or only one
candidate remains. There is no provision in Schedule II to the Rules to
meet a situation where there are three candidates and all of them do not
get the desired quota. Paragraph (6) of the Schedule cannot be applied for
B
the simple reason that under the provisions of that paragraph only a
candidate who has secured the quota can be declared elected. Even if, on
the second count, J was to be excluded by reason of the fact that he had
secured 10 first preference votes as against M's 14 first preference votes,
M could not be declared elected because he had not secured the quota of C
16 votes. The High Court was right in holding that :'rt could not be declared
elected. [805-G-H; 806-A-C; 807-G-H; 808-A-B]

1.2. The provision in paragraph (4) of the Schedule for drawing of
lots OJ?erates only when both candidates get an equal number of first D
preference votes. The provision in paragraph (6) for the drawing of lots is
applicable only to determine which out of two or more candidates who have
secured the same number of votes at a count subsequent to the first count
shall be eliminated; if these candidates happen to have secured the same
number of first preference votes it shall be decided by lots. The instruc-
tions to the Returning Ofiicer in the Schedule are detailed and he is E
obliged by Rule 26 to follow then. They tell him when he may resort to the
drawing of lots but the contingency of the two continuing candidates have
the same number, counting both first and second preference votes, is not
covered thereby. No resort to the drawing uf lut~ cuuld have been made in
the absence of an instruction in that behalf in the Schedule. The Returning
Ofticer w-.is not entitled to draw lots between J and M. The High Court was
F
right in holding that the election of J by the draw of lots was invalid.
Accordingly, the declaration of the High Court that there was a vacancy in
the office of the Adhyaksha was justified. [808-B-FJ

University of Poona & Ors. v. Sankar Narhar Ageshe & Ors., (1971] G
Supp. SCR 597, relied on.

Nanak Chand v. Vachaspati &Anr,, (1968) 66 Allahabad Law Journal
29; Jagat Singh v. Dharum Pal Singh, (1984) 82 Allahabad Law Journal 859;
Genda Singh v. Distt. Judge, Aligarh & Ors., (1985) 83 Allahabad Law H
802 SUPREM:~ COURT REPORTS [2000] 1 S.C.R.
A Journal 436, overruled.
CIVIL APPELLATE JURISDICTION : Civil Appeal Nos. 2695-97
of 1999 Etc.

From the Judgment and Order dated 27.1.99 of the Allahabad High
B Court in FA No. 706, 428-29 of 1996.
D.D. Thakur, S.K. Gambhir, Anil Kumar Sharma, Awanish Sinha,
Goodwill Indeever, J.M. Khanna, R.K. Maheshwari, B.K. Sharma, B.K.
Punj, Vijay Kumar, Dileep Tandon, and Ms. Shafali Khanna for the ap-
pearing parties.
c
The Judgment of the Court was delivered by

BHARUCHA, J. The issue in the appeals and in the special leave
petition is the correctness of the result, as declared, of the election to the
post of Adhyaksha/President of Zila Parishad, Shahjahanpur. The election
D was held under the provisions of the U.P. Zila Parishads (Election of
Adhyaksha and Up-Adhyaksha and Settlement of Election Disputes)
Rules, 1963 framed under the provisions of Section '137 of the Uttar
Pradesh Kshettra Panchayats and Zila Panchayats Adhiniyarn, 1961. Rule
26 of the said Rules states that Schedule II then:of sets out the instructions
E for determining the result of elections.

The candidates at the concerned election, held on 22nd May, 1995,
were Jivendra, Manvendra and Smt. Gayatri Verma. There were 31 elec-
tors, all of whom voted. Jivendra got 10 first preference vote~. Manvcndra
got 14 first preference votes and Gayatri got 7 first preference votes. By
F reason of the provisions of Schedule ll to the said Rules the quota for
securing a result was 16, which none of the three candidates secured.
Gayatri, having secured the lowest number of first preferene<: votes, was
eliminated and the second preference votes on her ballot papers were
considered. Jivendra got 5 more votes and Manvendra got 1 more. This
G meant that the number of votes secun:d on the second count by Jivendra
and Manvendra was 15 each. Accordingly, the Returning Officer decided
to draw lots, and by reason thereof Jivendra was declared elected.

Manvendra filed an election petition challenging Jivendra's election.
The election petition succeeded and appeals therefrom were filed before
H the High Court. The maintainability of the appeals was challenged in
JAIDRATHSINGH v. nVENDRAKUMAR [ BHARUCHA,J.] 803

proceedings with which we are not concerned. Ultimately, the High Court A
was required to hear and decide the appeals on their merits. The High
Court, on a construction of Schedule II, noted that neither Jivendra nor
Manvendra had, on the second count, secured the quota of 16. It hdd that
no lots could have been drawn; also that Manvendra could not be declared
as elected on the basis that he had secured a larger number of first
preference votes for the reason that he had been unable to secure the
B
mandatory quota. Accordingly, the High Court declared that a casual
vacancy in the office of the Adhyaksh had been created.

What is called for is an analysis of Schedule II. The relevant portion
thereof may be quoted : c
'2. Ascertain the number of fust preference voted secured by each
candidate and credit him with that number.

3. Add up the numbers so credited to all the candidates, divide
the total by two and add on to the quotient disregarding any D
remainder. The resulting number is the quota sufficient to secure
the return of candidates at thi:: dection.

4(1). If there are only two contesting candidates then :

(a) If one candidate gets larger number of fust preference votes E
than the other, declare the former as elected; or

(b) lf both the candidates get equal number of first preference
votes, determine the result by drawing of lots. Excludi:: the
candidate on whom the lot falls and declare the other can-
didates as elected. F

{2). If there are more than two candidates, then -

(a) If one of them is found to secure fust preference votes equal
to or more than the quota determined under Instruction No. G
3, declare him as elected; or

(b) If none of them secure fust preference votes equal to or more
than the quota aforesaid proceed according to the instruction
hereinafter taking into consideration second and subsequent
preferences as may be necessary. H
804 SUPREME COl' RT REPORTS [2000] l S.C.R.
A 5. If at tht end uf the first or any subsequent cimnt the total number
of votes credited to any candidate is equal to or grt:ater than the
quota or there is only one continuing candidate, that candidate is
declared dected.

6. If at the t:nd of any count, nu candidok can be declared
B elected :

(a) exclude the candidate who ap tu that stage has been credik:d
with the lowest number of votes;

(b) examine all the ballot papers in his pared and sub-parcel,
c arrange the unexhaustt:d papers in sub· parcels according to
the next available preferences recorded thereon for the con-
tinuing candidates, count the number of votes in each such
sub-parcel and credit it tu the candidate for whom such
preference is re curded, transfer the sub· parcel to that can-
D did<>te and make a separate sub-parcel of all the exhausted
papcrs; and

(c) see whether any of the continuing candidate has, after such
transfer and credit, secured the quota.

E If, when a candidate has to be excluded under clause (a) above,
two or more candidates have bet:n creditt:d with the same number
of votes and stand lowest on the poll exelude that candidate who
had secured the lowest number of first prefer ~nee votes and if that
number also was the same in tk case of two or more candidates
decided by lut which of them shall b~ txcluded.
F
All the sub-parcels of exhausted paper reforred to in clause (b)
above shail be set apart as finally dealt with and the vote recorded
thrreon shall not thereafter be taken into account.''

G Schedule II requires that each candidatt: shall be credited with the
number of first preference votes that are secured by him. The total number
of first preference votes secured by ail the candidates shall be added, the
aggregate thereof divided by two and the resultant figure increased by one,
disregarding any fraction. The resultant figure is tht quota "sufficient to
secure the return of candidates at the election"; that is to say that a
H candidate who secures votes equal to or larger than the quota shall be
JAiDRATH SINGH v. JIVhNDRA KUMAR [ BHARUCHA, J.; 805

declared dected. A
Now, if there are only two candidates at the election, the candidate
who gets the larger number of first preference votes is to be declared
elected. It is only if the two candidates get an equal number of first
pn:ference votes that the result is to be determined by drawing of lots.
B
If there are more than two candidates at the election and one of them
secures t.:nough first preference votes to meet the quota, he shall be
declared elected. If none of the candidates secures first preference votes
equal to the quota then the candidate who has secured the lowest number
of first preference votes shall be eliminatt:d. His ballot papers shall then C
to be examined for second preference votes and such second preference
votes shall be credited to the concerned candidates. It shall then be seen
whether any candidate has secured the quota and, if so, he shall be
declared e!t:cted. If not, the process of exclusion and addition of votes on
his ballot papers shall be continued. When a candidate has to be excluded D
and two or more candidates have been credited with the same number of
votes and stand lowest, that candidate shall be eliminated who has secured
the lowest number of first preference votes and should that number also
be the same in the case of the other candidate, a lot shall be drawn to
determine which of them is to be excluded.
E
There is a general provision in paragraph (5) of the Schedule which
requires the Returning Officer to check at the end of the first or any
subsequent count the total number of vott:s credited to each of the can-
tlidates; if my one of them secures the quota he shall be declared dccted.
It also P' J'1Jt:~ that it at the end any subsequent count there is only one F
continu1nu "Jlldidate, that candidate shall be declared elected.

The first question, therefore, is whether for the purposes of being
elected every candidate must secure the quota. Where there are only two
candidates, the quota plays no part. Paragraph (4) of the Schedule states G
that. the candidate who secures more first preference votes than the other
shall be declared elected, and where both get an equal number of first
preference votes lots shall be drawn. Thi:: quota plays a part when there
are more than two candidates. In that event successive counts shall be held
until either a candidate secures the quota or only one candidate remains. H
L_

806 SVPREME COURT REPORTS [2000] 1 S.C.R.
A In the case bdore us, there were three candidat<: so that the quota
was relevant. The first preference votes were cast thus : 14 in favour of
Manvendra, 10 in favour of Jivendra and 7 in favour of Gayatri, aggregating
to 31. The quota had to arrived al thus; 3V2 + 1 = 16 (disregarding the
fraction). Nont: of three candidates secured 16 first preference votes,
B Gayatri, having secun:d the least number of first pn:ference votes, was
eliminated and tht second preference votes on her bal!ot papers were
scrutinised. Manvendra st:cured 1 and Jivendra secured 5 second
preference votes. Their tally on the second count, therefore, was equal : 15
votes each. Neither of them had secured the quota.

C Tht:re is no provision in the Schedule to meet a situation such as
this.

In the Memorandum of Appeal reference has been made to three
judgments of the Allahabad High Court and it has been submitted that
D these cases hold, relying upon paragraph (6) of the Schedule, that where
both continuing candidates secure an equal number of votes on the second
count and one of them had secured a h::sser number of first preference
votes, he should be eliminated and the candidate who had secured the
higher number of first preference votes should be declared elected.

E The first of these judgments of the Allahabad High Court, all
delivered by learned Single Judges, is in the case of Nanak Chand v.
Vachaspati and Another, (1968) 66 Allahabad Law Journal 29. The judg-
ment refers to Rule 26 of the Rules, which lays down that after all the valid
ballot papers have been arranged in parcels according to lhe first
F preforence recorded for each candidate, the Returning Officer shall
proceed to determine the result of the voting in accordance with the
instructions contained in the Schedule. The Schedule, the learned Judge
notes, makes no provision as to how the result should be declared where
the last two candidates after exclusion of others are found to have received
an equal number of votes, counting both the first and the second
G preference votes together. The Schedule does make provision, however, for )
a situation, where it is found that there are two or more candidates receiving
..!..,
the lowest number of votes; in that event paragraph (6) of the Schedule (
provides that the candidate shall be excluded who had secured the lower I

number of first preference votes. For this reason the learned Judge finds '\
H that preference is to be given to first preference votes. He says :
JAIDRATH SINGH v. JIVENDRA KUMAR [ BHARUCHA, L] 807

"It is only when there is equality of first preference votes that the A
exclusion of a candidate is determined by drawing of lot. Rule 26
also refers to first preference. I am thus of opinion that in election
of the Adhyaksha and Up-Adhyaksha the drawing of lot shall not
ordinarily determine the result of the election in case two can-
didates an: found to have secured the same number of votes. The
rule 'adopted shall be that out of the two candidate securing tht:
B
same number of votes, the one who secured greater number of
first preference votes is to be declared elected; but if they secured
not only the same number of votes but also the same number of
first preference votes, the lot shall determine the candidate to be
excluded, in other words, the candidate not drawing the lot shall c
be declar~d to have been electeffi'.'

The judgment inlagat Singh v. Dharam F(al Singh, (1984) 82 Allahabad Law
Journal 859 states :

"There being a variance in the number of first preference votes D
secured by the appellant on the one hand and the respondent No.
1 on the other, that becomes, in my view, decisive in the ultimate
analysis of the prescribed manner of counting for the purpose of
being declared elected or the result being determined."
E
The judgment holds that paragraph (6) of the Schedule clearly envisages
the determination of the result on the basis of the strength of first
preference votes where there is equality of votes in favour of the two
continuing candidates on taking tht:ir second p1eforence votes into amount.
The last judgment of the Allahabad High Court on the point is in Genda
Singh v. Distt. Judge, Aligarh and Others, (1985) 83 Allahabad Law Journal F
436 and it follows the judgment in Jagat Singh's case (supra).

We find some difficulty in reading paragraph 6 of the Schedule in
the manner in which it has been done by the learned Judges of the
Allahabad High Court in the cases aforementioned.
G
Paragraph (6) of the Schedule can, in any event, not apply to facts
such as those of the case in hand for the simple reason that under the
provisions of that paragraph only a candidate who has secured the quota
can be declan:d elected. To use a illustration the votes secured in this case,
even if, on the second count, Jivendra Kumar was to be excluded by reason H
808 SUPREME COCRT REPORTS (20001 LS.C.R.
A of the fact that he had secured 10 first prefon:ncc votes as against
Manvendra's 14 firs! prefen:nce votes, Manvendra could not be declared
elected because he had not secured the quota of 16. In our view, therefore,
the High Court was right in holding that Manvendra could not be declared
elected.

B The provision in ¢ragraph (4) for the drawing of lots operates only
when both candidates get an equal number of first preference votes. The
provi5ion in paragraph (6) for the drawing of lots !s applicable only to
determine which out of two or more candidates who hav.: secured the same
number of votes at a count subsequent to the first count shall be diminated;
C if these candidates happen to have secured the samt:: number of first
preference votes it shall be decided by lots which of them is to be
eliminated. The instructions to !he Returning Officer in the Schedule arc
detailed and he is obliged by Ruic 26 to follow them. They tell him when
he may resort to the drawing of lot5 but the contingtncy of the two
continuing candidates having the same number of votes, counting both first
D and second prefen:nce votes, is not cowrcd thereby. No resort to the
drawing of lots could have been made in the absence of an instruction in
that behalf in the Schedule (see University of Poona & Ors. v. Shankar
Narhar Ageshe & Ors., (19711 Supp. S.C.R. 597). We are of the opinion, in
the circumstances, that the Returning Officer was not entitled to draw lots
E between Jivendra and Manvendra. The High Court was, therefore, right in
holding that the eh:ction of Jiver.dra by the draw of lots was invalid.

Accordingly, the declaration of th.: High Court that there was a
vacancy, in the ofhce of the Adhyaksha was justified.

F Tht:: appcaJ5 and tht:: ;pedal kav.: petition are dismisst::d.

No order as to costs.

B.S. Appeals/Petition di~missed.