Holding

The appellant, having the highest number of first‑preference votes, must be declared elected; the quota rule is not mandatory at the final stage of a single‑seat Hare‑Clarke election.

Summary

In a Zila Panchayat election in Uttaranchal, three candidates received six, five and one first‑preference votes. After eliminating the lowest‑vote candidate, the remaining two each had six votes, and no one met the quota required under the Hare‑Clarke system. The Returning Officer declared the post vacant, a decision upheld by the District Judge but reversed by the High Court. On appeal, the Supreme Court held that the quota provision is not mandatory at the final stage, that the object of the Act is to elect an Adhyaksha, and that the candidate with the highest first‑preference votes (the appellant) must be declared elected. The Court also affirmed the maintainability of an election petition challenging the Returning Officer’s order. The appeal was allowed, declaring the appellant elected.

Issues considered

The correctness of the Returning Officer’s declaration of vacancy when no candidate secured the quota and votes were equal.
Whether the quota rule under Clause 3 of the Schedule to the Uttar Pradesh Zila Panchayats Rules is mandatory for declaring a winner.
Whether an election petition is maintainable when the election result has not been formally declared.
Interpretation of the election rules governing elimination and declaration of a winner under the Hare‑Clarke single transferable vote system.
The appropriate method of statutory construction (purposive vs literal) in election statutes.

Legislation cited

Constitution of Indias. Article 243C
Uttar Pradesh Kshettra Panchayats and Zila Panchayats Adhiniyam, 1961s. 237

Subjects

Panchayat electionHare systemSingle Transferable VoteQuota rulePurposive constructionElection petitionElection disputeZila PanchayatAdhyakshaProportional representation

Judgment

LAUT MOHAN PANDEY A
v.
POORAN SINGH AND ORS.

APRIL 27, 2004

[V.N. KHARE, CJ., S.B. SINHA AND S.H. KAPADIA, JJ.] B

Panchayats:

Uttar Pradesh Kshettra Panchayats and Zila Panchayats Adhiniyam,
1961--Section 237-Uttar Pradesh Zila Panchayats (Election of Adhyaksha C
and Up-Adhyaksha and Settlement of Election Disputes) Rules, 1994-Rules
33, 34, Clauses 3, 4, 5 and 6 of the Schedule-Constitution of India, ·1950,
Article 243C:

Hare system-Single Transferable Votes Method/Proportional D
representation System-Applicability of ·

Three candidates contesting in an election-Appellant, first respondent
and one B receiving six, five and one, first preference votes, respectively-
Upon elimination ofB, Appellant and first respondent obtaining equal number
of votes-None securing the quota-Returning Officer declaring the said E
office to be vacant-Justification of-Held: The object of the Act being to
elect an Adhyaksha, construction of the rules should be made in such a
manner which would not negate the same-An interpretation of the rules
which would lead to election of one of the candidates should be adhered to--
Hence, appellant having received the highest number of preference votes,
should have been declared elected. F
Election for the post of Adhyaksha-None of the candidates securing
the quota-Returning Officer declaring the said office to be vacant-Election
petition-Maintainability of-Held: A candidate has a right to question the
correctness of the order of returning officer-Ifence election petition G
maintainable-Maxims- 'ubi jus ibi remedium '.

Quota rule under Clause (3) of the Schedule-Requirement of-Held:
Not mandatory-The other clauses of the Schedule envisage that for the
purpose of achieving the ultimate result, adherence to quota rule not
737 lI

-\
738 SUPREM~ ttouRT REPORTS [2004] SUPP. I S.C.R.

A necessary-Hence, the sole continuing candidate though not achieving the
quota may be declared elected.

Interpretation of statutes:

Doctrine of purposive construction-Statute to be construed having
B regard to the legislative intent-Construction leading to manifest absurdity
not to be preferred to (i'construction which fulfill the object and purport of
the legislative intent.

.Legislative intent-Every clause of a section to be construed with
reference to the context and other clauses thereof so that the construction
C put on a particular provision makes a consistent enactment of the whole
statute.

Words and phrases- 'Continuing candidate', 'Excluded candidate'-
Meaning of in the context of election laws.
D
In an election. held for the post of Adhyaksha, Zila Panchayat in
Uttaranchal, the appellant, the first respondent and one B got six, five and
one, first preference votes respectively. Upon elimination ofB, the appellant
and the first respondent obtained six votes each. The election was held on the
basis of proportionate representation by means of a single transferable vote .
E by ballot. The Returning rn :icer declared the said office to be vacant on the
ground that both the contesting candidates received equal votes and also that
none of them secured the quota which was mandatory in nature. An election
petition was filed before the District Judge, which was allowed. Respondent
was successful in his appeal before the High Court. Hence the appeal.· ·

F Allowing the appeal, the Court

HELD: 1. The appellant had received the highest number of first
preference votes and hence he should have been declared elected. (766-C, DI

G 2.1. 'Panchayat' is an institution of self-governance at the village,
intermediate and district levels. It is required to be constituted in accordance
wi.th Part IX of the Constitution of India. The Adhyaksha of Panchayat at the
district level is to be elected by and from amongst the elected members. The
provisions providing for procedures for holding the election must be construed
having regard to the necessity of establishing democracy at the grass-root
H
L.M. PANDEYv. P. SINGH 739
. level, being a constitutional requirement. The State Act and the rules A
applicable therefor must, therefore, be interpreted having regard to the
constitutional scheme. (749-D, F)

2.2. The election to the post of Adhyaksha of Panchayat at the district
level is governed by the provisions of Section 237 of the Uttar Pradesh Kshettra
Panchayats and Zila Panchayats Adhiniyam, 1961. Whereas the election of B
office by majority is the normal rule, a single transferable vote system was
developed in Denmark and Britain and is known as Hare system, now known
as the Hare-Clark electoral system. This is a type of proportional
representation system. Under this system, electors vote by showing
preferences for individual candidates. (749-F-H; 750-G) C
Law of Elections by Narendra Chapalgaonker, 2nd edition; Local
Government Elections by Schofield, Fourth edition, referred to.

123 American Law Reports (1939), referred to.
D
2.3. Every voter under the Hare system has a single vote. On the ballot
paper, voter has to rank all or any of the competing candidates giving the~
preferences 1, 2, 3 and so on. A quota is fixed which is the minimum number
of votes which cannot be secured by more candidates than the number of seats.
When a candidate secures votes eqmll to this quota, he is declared elected. If
a candidate receives more votes than the quota, then he is declared elected E
and his surplus votes are transferred to other candidates in proportion of
second preference indicated in his ballot papers. After surplus votes of all
candidates are transferred, if all seats are not filled in then candidate who
has polled lowest number of votes, would be eliminated and are continuing
(are not elected or eliminated). This process goes on till all seats are filled f,
in. This system ensures actual use of maximum number ofvotes polled. Thus,
the Hare system works on two princ<iples, namely, transfer ofsurplus votes
and transfer of votes of eliminated candidates. In the present case, there is
only one vacancy and ~~r~~' ~andidates and therefore the principle of
transferring the votes of eliminated candidates alone is applicable. (750-A~)
G
2.4. A candidate is elected when his/her total number ofvotes equals or
exceeds the quota. The quota rule is not mandatory. Clause 3 of the Schedule
to the Uttar Pradesh Zila Panchayats (Election of Adhyaksha and Up-
Adhyaksha and Settlement of Election Disputes) Rules, J994, provides for a
minimum quota but its applicability is notstretched to all stages of election. H
740 SUPREME COURT REPORTS [2004) SUPP. I S.C.R.

A Clause (4) also does not speak of quota. It speaks of declaration of a candidate
who gets larger number of first preference votes than the other and in ca~e
both get equal number of first preference votes, one candidate has to be
excluded on whom the lot falls and the other candidate is required to be elected.
(761-BJ

B 2.S. Clauses (S) and (6) also do not speak of quota. Thus, when a
candidate has to be excluded who up to that stage has been credited with the
lowest number of votes, two or more candidates might have been credited with
the same number ofvotes and they may stand lowest on the poll, then one of
the candidates has to be excluded who had secured th,e lowest number of first
C preference votes. Only in the event, the first preference votes secured by both
the candidates are the same then and then only the determination by the lot
has to be taken for the purpose of exclusion. (76l-G-H; 762-AJ

3.1. It is well-settled that object of the Act must be given effect to. The
object of the Act being to elect an Adhyaksha, construction of the rules should
D be made in such a manner which would not negate the sa_me. An interpretation
~f the rules which would lead to election of one of the candidatc:s, should be
adhered to and for that purpose, the doctrine of purposive construction may
be taken recourse to. F~r proper construction of a statute the Courts must
also take into consideration the social milieau. The courts cannot ignore .that
E local, caste and political affinity play a major role in our electoral system.
(758-8, C; 759-EJ

High Court ofGujarat and Anr. v. Gujarat Kishan Mazdoor Panchayat
and Ors., JT (2003) 3 SC SO, Indian Handicrafts Emporium and Ors v. Union
of India and Ors., (2003] 7 SCC 589, Am~er Trading Corporation Ltd v.
F Shapoorji Data Processing Ltd, JT (2003) 9 SC 109 - (2003) 9 SCALE
7i3, Ashok Leyland v. $tale of Tamil Nadu and Anr., (2004) l SCALE 224,
· State of West Bengal and Ors. v. Sujit Kumar Rana, (2004) l SCALE 641,
Deepal Girishhhai Soni and Ors. v. United India Insurance Co. Ltd, Baroda,
(2004) 3 SCALE 546 and Secretary, Department ofE.xcise & Commercial Taxes
and Ors. v. Sun Bright Marketing {P) Ltd, Chhattisgarh and Anr., (2004) 3
G sec 185, relied on
3.2. Holding of elections in a District Panchayat is mandatory. The right
to contest an election although flows from a statute and regulated th~reby, it
would not be correct to contend that a strict construction of the statutory
provisions is called for. It must be borne in mind that elector's votes are not
H
L.M. PANDEYv. P. SINGH 741

to be wasted. The possibility of a tie would be very high if strict interpretation A
of the rule is resorted to. In the end, the result for which election is held,
must be achieved. A statute has to be construed having regard to the legislative
intent. The question as to when there can be a tie between two candidates
leading to a deadlock, must be judged on the fact situation obtaining in a
particular case. If by a process of interpretation such consequences can b~
avoided, the same should be preferred to application of any other principle of B
interpretation of statutes. (759-A-C)

Shambhu Nath Mehra v. The State of Ajmer, AIR (1956) SC 404;,
University of Poona and Ors. v. Shankar Narhar Ageshe and Ors.,, (1972] 3
SCC 186; Jaidroth Singh and Anr. v. Jivendra Kumar and Ors., (2000] 3 SCC. C
154; Umesh Sharma v. State Election Commissioner, (W.P.No. 1021 (M/B) of
(2003) decided by Supreme Court on 14.11.2003; Sagar Singh v. Umesh'
Sharma and Ors., (SLP (C) No. 22672/2003) decided by Supreme Court on
12.12.2003 and Mahadeo Oil Mills and Ors. v. Sub-Divisional Magistrate
Araria and Ors., AIR (1978) Patna 86, referred to.
D
Artemiou v. Procopiou, (1966) 1QB878, referred to.

4. Rule 33 envisages that an election petition calling in question the
election of Adhyaksha or Up-Adhyaksha may be presented to the Judge at
any time within 30 days from the date of result of the election. Rule 34 provides
for requirements to specify the ground (s) on which the election petition of E
the returned candidate can be filed which includes giving of a summary' of
the circumstances seeking to justify the same. The provisions of Rules 33
and 34 must be interpreted having regard te the maxim 'ubi jus ibi remedium '.
An election dispute would be adjudicated upon by the election tribunal specially
constituted for that purpose. A candidate may, having regard to the fact
situation obtaining therein, make a prayer that he himself or any other F
candidate has been duly elected in the said case. Once he makes out a case of
being entitled to obtain the aforementioned declaration, it goes without saying
that he has a right to question the order of the Returning Officer in terms
whereof he was not declared elected. A fortiorari he "'as also a right to
question the correctness of the order of the Returning Officer as a result G
whereof he had not been declared elected. An election petition, therefore, would
be maintainable. (765-G, H; 766-A) ·

CIVIL APPELLATE JURISDICTION: Civil Appeal No. 2717 of2003.

From the Judgment and Order dated 30.9.2003 of the Uttaranchal High H
742 SUPREME COURT REPORTS [2004) SUPP. I S.C.R.

A Court in AO 196/2003
Dinesh Dwivedi and P.N. Gupta for the Appellants.

A.S. Rawat, Addi. Adv. Genl., Kailash Vasdev, Chinmoy Khaladkar, S.K.
Nandy and J.K. Bhatia for the Respondents.
B
· The Judgment of the Court was delivered by

S.B. SINHA, J. Leave granted.

Application of 'Hare System•· in Municipal Election is the question
c involved in this appeal which arises out of a common judgment and order
dated 30.09.2003 passed by ~he High Court ofUttaranchal at Nainitai'"in l\':O.
No. 196 of2003.

BACKGROUND FACTS:

D An election was held for. the post of Adhyaksha, Zila Panchayat
Champawat situated in the State of Uttaranchal. The appellant, the first
respondent and one Bhagirath Bhatt contested therefor. The appellant got six
first preference votes; whereas the first respondent got five first preference
votes and the said Bhagirath Bhatt received one. Upon elimination ofBhagirath
E Bhatt, the appellant 'and the first respondent obtained six votes each. The
election was h'eld on the basis of proportionate representation purported to
be by means of a single transferable vote by ballot.

By reason of an order dated 24.5.2003, the Returning Officer declared
the said office to be vacant on the purported ground that both the contesting
F candidates received equal votes as also on the ground that none of them
secured the quota which wa~ said to be mandatory in nature.

An election petition questioning the said decision was filed before. the
District Judge, Champawat, which was allowed. Aggrieved by and dissatisfied
therewith, an appeal was filed thereagaiilst by the Respondent herein before
G the High Court of Uttaranchal at Nainital which by reason of the impugned
judgment has been allowed.

Hence this appeal. .·
ELECTORAL PROCEDURE:
H
L.M. PANDEYv. P. SINGH [SINHA, J.] 743
The election to the said post is governed by the provisions of Section A
237 of the Uttar Pradesh Kshettra Panchayats and Zila Panchayats Adhiniyam;
1961 (for short 'the Act'). The Act has been adopted by the State of
Uttaranchal. The rules known as Uttar Pradesh Zila Panchayats (Election of
Adhyaksha and Up-Adhyaksha and Settlement of Election Disputes) Rules,
1994 (for short 'the Rules') were framed under the provisions of Section 237
of the Act. Chapter IV of the Rules relates to election of Adhyaksha. In terms · B
of Rule 33, an election petition calling in question the election of Adhyaksha ·.
or Up-Adhyaksha may be presented to the Judge at any time within 30 days
from the date of result of the election. Rule 34 provides for requirements to
specify the ground (s) on which the election petition of the returned candidate
can be filed which includes giving of a summary of the circumstances seeking C
to justify the same. Rule 35 of the Rules enables the election petitioner to
claim for the following declaration :-

"(a) that the election of the returned candidate is void; and

(b) that the election of the returned candidate is void and that he p
himself or any other candidate has been duly elected."

CONSTITUTIONAL AND STATUTORY PROVISIONS:

Article 243C of the Constitution of India reads thus:
E
"243C. Composition of Panchayats~-(1) Subject to the provisions of
this Part, the Legislature of a State may, by law, make provisions with
respect to the composition of Panchayats;

Provided that the ratio between the population of the territQrial area
of a Panchayat at any level and the number of seats in such Panchayat F
to be filled· by election shall, so far as practicable, be the same
throughout the State.

(2) All the seats in a Panchayat shall be filled Qy persons chosen by
direct election from territorial constituencies in the Panchayat area
and, for this purpose, each Panchayat area shall be divided into G
territorial constituencies in such manner that the ratio between the
population of each constituency and the number of seats allotted to .
it shall! so far as practicable, be the same throughout the Panchayat
area.

H
744 SUPREME COURT REPORTS [2004) SUPP. 1 S.C.R.

A (3) The Legislature of a State. may, by law, provide for the
representation-

(a) of the Chairpersons of the Panchayats at the village level, in
the Panchayats at the intennediate level or, in the case of a State
not having Panchayats at the intennediate level, in the Panchayats
B at the district level;

(b) of the Chairpersons of· the Panchayats at the intennediate
level, in the Panchayats at the district level;

(c) of the members of the. House of the People and the members
c of the Legislative Assembly· of the State representing
constituencies which comprise wholly or' partly a Panchayat area
at a level other than the village level, in such Panchayat; and

(d) ofthe members of the Council of States and the members of
the Legislative Council of the State, where they are registered as
electors within -

(i) a Panchayat area at the intennediate level, in Panchayat at the
intennediate level; and

(ii) a Panchayat area at the district level, in Panchayat at the district
E level.

(4) The Chairperson of a Panchayat and other members of a Panchayat
whether or not chosen by direct election from territorial constituencies
in the Panchayat area shall have the right to vote in the meetings of
the Panchayats.
F
(5) The Chairperson of-

"(a) Panchayat at the village level shall be elected in such manner as
the Legislature of a State may, by law, provide; and

G "(b) a Panchayat at the intennediate level or district level, shall be
elected by, and from amongst, the elected. members thereof."

Rule 38 provides for the procedure for holding election. Rule 40 empowers
the District Judge to pass a final order on an election petition. Rule 43
specifies the procedure in case of equality of votes. Rule 47 provides for
H
L.M. PANDEY v. P. SINGH [SINHA, J.] 745

appeal. A
Rule 26 of the Rules reads as under:

"After all the valid ballot papers have been arranged in parcels
according to the first preference recorded for each candidate, the
Returning Officer shall proceed to detennine the result of the voting B
in accordance with the instructions contained in Schedttle II to these
rules."

The relevant clauses of Schedule II read as under:

"(2) the expression "first preference" means the number l set opposite C
the name of any candidate, the expression "second preference" similarly
means the number 2, the expression "third preference" the number 3,
and so on;

(3) the expression "next available preference" means the second or
subsequent preference recorded in consecutive numerical order Tor a
o,
continuing candidate, preferences for candidates already excluded
being ignored;

(4) the expression "unexhausted paper" means a ballot paper on which

- a further preference is recorded for a continuing candidate:

Provided that a paper shall be deemed to be exhausted in any case
E

in which-

(a) the names of two or more candidates whether continuing or
not, are marked with the same figure, and are next in order p ,
of preference; or

(b) the name of the candidate next in order of preference whether
continuing or not, is marked by a number not following
consecutively after some other number on.the ballot paper
or by two or more numbers. G
· 2. Ascertain the number of first preference votes secured by each
cartdidate and credit him with that number.

3. Add up the numbers so credited to all the candidates, divide the
total by two and add one to the quotient disregarding any remainder.. H
746 SUPREME COURT REPORTS [2004] SUPP. I S.C.R.

A The resulting number is the quota sufficienno secure the return of
a candidate at the election.

4. (I) If there are only two contesting candidates then -

(a) if one candidate gets larger number of first preference votes
B than the other, declare the former as elected, or

(b) if both the candidates get equal number of first preference
votes, ~etermine the result by drawing of lots. Exclude the
candidate on whom the lot falls and declare the other
candidate as elected.
c
(2) If there are more than two candidates then -

(a) · if one of them is found to secure first preference votes equal
to or more than the quota determined under instruction No.
3, declare him as elected, or
D
(b) if none of them secures first preference votes equal to or
more than the quota aforesaid, proceed according to the
instructions hereinafter taking into consideration second and
subsequent preferences as may be necessary.

E 5. If at the end of the first or any subsequent count the total number
of votes credited to any candidate is equal to, or greater than the
quota, or there is only one continuing candidate, that candidate is
declared elected."

Illustratipn appended to Schedule II reads as under:
F
"Illustration - Suppose there are four candidates A, B, C and D and
the number of first preference votes secured by them are -

A= 12

G B = 1I

C= 7

D= 5

H 35
I
L.M. PANDEYv. P. SINGH [SINHA, J.] 747

The quota will be= 35/2+1 = 18. A
No candidate having obtained votes equal to or over the q4ota
at the first count the candidate having the lowest votes, namely, D will
be excluded.

Suppose there are second preferences marked on all four ballot B
papers in the parcel of D as below:

A=2

B=2
c
The fifth ballot paper will be placed in the sub-parcel of exhausted
papers and the two papers recording second preference for A and B
each will be placed in separate sub-parcels for A and B; each of them
will be credited with two additional votes. The votes for A,B and C
will now be
D
A= 12+2

B = ll+2
C=7
Since at the end of the second count no candidate be declared • E
elected, the candidate C having the lowest votes out of the three
continuing candidates, will now be excluded and his votes transferred
to other continuing candidates A and B.

Suppose second preferences are recorded in all the ballot papers F
in the parcel of C and are as below:

A=4

B=3

After crediting A and B with their additional votes, A would have G
secured 18 votes, that is. equal to the quota and B 16 votes. A will,
therefore, be declared elected."

In Clause 3 of the Schedule it is provided how the quota will be fixed.
' It also provides that the resulting number which is the quota sufficient to H
·,

748 SUPREME COURT REPORTS [2004] SUPP. I S.C.R.

A secure the return of candidates at the election. It is a mandatory provision
but the same would apply when one can be declared elected under clause 3
of Schedule II. Clauses 4, 5 and 6 provide procedure for elimination of
candidates and counting of votes in first, second and third rounds etc. The
illustration appended to clause 5 also demonstrates that for the purpose of
B achieving the ultimate result, adherence to quota rule is not necessary.

The illustration itself shows that a situation may arise where none of
the candidates secures the requisite number of first preference votes so as
to fulfil the criteria or quota. In the illustration itself the quota was fixed at
18, none of the 4 candidates had secured quota. Still the continued processes
C are required to be undertaken which should result in declaration of election.
HIGH COURT:

Before the High Court a question of maintainability of the election
petition and consequently that of appeal was raised. The High Court held that
D the provisions of the Act and the Rules relating to filing of the election
petition and the appeal should receive benevolent -construction. The High
Court, however, proceeded on the basis that whether the election petition
before the District Judge was maintainable or not or whether the appeal filed
thereagainst in the High Court was maintainable or not; as two wrongs do
E not make one right; the appeal was to be decided by the High Court on merit.
Relying on or on the basis of the decision of this Court in Jaidrath Singh
and Anr. v. Jivendra Kumar and Ors., [2000] 3 SCC 154, over the decision of
this Court in University of Poona and Ors. v. Shankar Narhar Ageslie and
Ors., [1972] 3 SCC 186, the High Court allowed the appeal and set aside the
F impugned order dated 28.07.2003, passed by the District Judge holding that
the Returning Officer was right in declaring the post to be vacant.

SUBMISSIONS:

Mr. Dinesh Dwivedi, learned senior counsel, appearing on behalf of the,
G appellant, would submit that the High Court committed a manifest error in
interpreting the· provisions of the Second Schedule. According to the learned
counsel, the Second Schedule provides for election of a candidate and, thus,
the quota rul~ as adumbrated in the Second Schedule, may not be applicable
in a case of this nature where one or more candidates is a continuing candidate.·

H The process of elimination, Mr. Dwivedi would s1;1bmit, should continue
L.M. PANDEYv. P. SINGH (SINHA, J.] 749

till the last pursuant whereto the candidate who had secured lowest number A
of first preference votes, should be excluded and only when the number of
first preference votes secured by two or more candidates is the same, a
decision is to be taken by lot as to which of them shall be excluded.

Mr. Kailash Vasdev, learned senior counsel, appearing on behalf of the
first respondent, on the other hand, would support the judgment of the High B
Court contending that in this case neither the appellant nor the first respondent
obtained the required quota. It was urged that right of a candidate to contest
an election being a statutory right, the procedure laid down therein must be
scrupulously complied with. Clause (3) of the Schedule, Mr. Vasdev would
submit, is mandatory in nature and, thus, unless the candidate receives C
sufficient votes to fulfil the requirement of quota as is required under the
Rule, he cannot be declared elected. The illustration appended to the Second
Schedule, the learned counsel would urge, does not provide for declaration
of a candidate to be successful in election who has not secured any quota
and in that view of the matter, the impugned judgment cannot be faulted with.
D
CONSflTUTIONAL AND LEGISLATIVE SCHEME:

Constitutional 73rd Amendment Act, 1992, was enacted with a view to
provide for democracy at the grass-root level. 'Panchayat' is an institution of
self-governance at the village, intermediate and district levels. It is required
to be constituted in accordance with Part IX of the Constitution of India. E
Article 243C (3) of the Constitution provides that the Legislature of a State
may by law provide for the representation of a Chairperson of the Panchayats
at the village level, in the Panchayats at the intermediate level or in the case
of a State not having Panchayats at the intermediate level, in the Panchayats
at the district level.
F
The Adhyaksha Panchayat at the district level is to be elected by, and
from amongst, the elected members. The provisions providing for procedures
for holding the election must be construed having regard to the necessity of
establishing democracy at the grass-root level, being a constitutional
requirement. The State Act and the rules applicable therefor must, therefore, G
be interpreted having regard to the constitutional scheme.

HARE AND CLARK PRINCIPLE:

Whereas the election of office by majority is the normal rule, a single
transferable vote system was developed in Denmark and Britain and is known H
750 SUPREME COURT REPORTS (2004) SUPP. I S.C.R.

A as Hare system, named after Thomas Hare, an Englishman, one of its
developers. Andrew Inglis Clark, Tasmanian Attorney-General I 888 and a
member of the Tasmanian Parliament, introduced a modified version of the
Hare system into Tasmanian law in_ 1896. This system is now known as the'
Hare-Clark electoral system.·

B _Every voter under the Hare system has a single vote. On the ballot
paper, voter has to rank all or any of the competing candidates giving them
preferences I, 2, 3 and so on. A quota is fixed which is the minimum number
of votes which cannot be secured by more candidates than the number of
seats. When a candidate secures votes equal to this quota, he is declared
C elected. If a candidate receives more votes than- the quota, he is declared
elected and his surplus votes (votes exceeding the quota) are transferred to
other candidat~ in proportion of second preference indicated m' his ballot
papers. After surplus votes of all candidates are transferred, if all seats are
not filled in, then candidate who has p01led lowest number of votes would
be elimiriated me and are continuing (are not elected or eliminated). This
D_ proceSs goes on till all seats are filled in by completion of quota or candidates
remaining do not exceed seats still to be filled in. _This system ensures actual
use of maximum number of votes polled.
- '
- - I -
The system poses a complex system and difficult for use where large
E number of voters are illiterate. In a complex society like India where divergent
religious. linguist or cultural groups and large number of political parties exist,
use of single trarisferable system in elections to legislatures and other bodies
is although advocated but the method of voting and computations in this
system sometimes renders it unsuitable for an election involving masses. One
-does not know if feeling of segregation from other groups which is already
F there may be aggravated if this system is employed. (See Law of Elections
by Narendra Chapalgaonker, 2nd edition)

The purpose of the Hare system is intended to secure representation
of every shade of the electorate's opinion in direct proportion to its numerical
strength. ·
G
APPLICATION OFTllE RULE:

The Hare-Clark electoral system is a type of proportional representation
system also known as the Single Transferable Vote (S.T.V.) method. Under this
H - system; electors vote by showing preferences for individual candidates. In
L.M. PANDEYv. P. SINGH [SINHA ,J.) 751
order to be elected, a candidate needs to receive a quota votes. Each elector A
has a single vote, which can· be transferred from candidate to candidate
according to the preferences shown, until all the vacancies are filled.

As to how Single Transferable Vote works; has been explained by
Vernon Bogdanor at page 81 of his book titled "What is Proportional
Representation" as follows : B.
(a) In that system, voters mark preferences for candidates in the
order of their choice by using the numbers I, 2, 3, 4, 5 and so
on. If there are five vacancies, voters are instructed to show five
preferences; if there are seven vacancies, voters are instructed to C .
show seven .preferences.

(b) In order to get elected, a candidate has to receive a quota of
votes. However, he may be elected without a quota. This can
happen when the number of candidates remaining in the count,
who have not been elected or excluded (continuing candidate) is o· .
equal to the number of vacancies that remain to be filled. Suppose
there .are two vacancies. For the said two vacancies, suppose
there are five candidates. One of them attains the exact quota,
. then he stands elected. However, the remaining candidates do
not secure the quotii. Therefore, one vacancy out of two remains
unfilled. For that vacancy, the candidate with the smallest number E
of votes, is excluded and his votes are distributed to continuing
candidates according to the remaining preferences. The eliminated
candidate with smallest number of votes is called "excluded
candidate". Votes of such excluded candidates are distributed to
the continuing candidates. If in tlie process, any continuing F
candidate secures the quota, he fills up the remaining vacancy.
However, if despite the addition ·of transferred votes, the remaining
continuing candidates do not secure the quota, then Returning
Officer has to continue to apply the principles of elimination till
the number of continuing candidates in the count is equal to the
vacancy that remains to be filled. Therefore, even under the Hare G ·
system, a candidate can be elected without a quota. It operates
at two levels. In cases where a candidate receives votes in excess
of the quota, the said system prevents wastage of surplus votes
by transfer of surplus in favour of continuing candidates. In
cases· where the quota cannot be attained,~ it eliminates the H
752 SUPREME COURT REPORTS [2004] SUPP. I S.C.R.

A candidates having least number of votes, by principle of
elimination and the votes of such excluded candidates are
distributed among the remaining continuing candidates so that
the resultant number is equal to the vacancy which remains to
be filled.

B In short, the Hare system works on two principles, namely, transfer of
surplus votes and transfer of votes of eliminated candidates. In the present
case, we are concerned with only one vacancy and three candidates and
therefore, the principle of transferring the votes of eliminated candidates
alone is applicable.
c How is a candidate elected?

A candidate is elected when his/her total number of votes equals or
exceeds the quota.

D What is the quota?

The quota is the lowest number of votes a candidate needs to be certain
of election.

To calculate the quota, the number of formal votes is divided by one
E more than the number of candidates to be elected (rounded up to the next
whole number).

If five candidates each receive a quota Gust over one sixth of the formal
vote), then less than one quota of the votes remains.

F Is a quota rule mandatory?

The system states that it is always not necessary to get a quota.

In House of Assembly elections, it is common that the last elected
member in a division is elected without obtaining a quota. In some cases the
G last two elected members in a division are elected without each obtaining a
quota.

During the distribution of preferences, some votes are "lost" from the
count. A small number are lost due to rounding of fractional numbers. A more
significant number of votes are "exhausted" towards the end of the count,
H
L.M. PANDEYv. P. SINGH [SINHA, J.] 753

as many ballot papers do not show a preference for any remaining candidate. A

Where the contest for the last seat is closed, it is common for the
remaining two candidates to both have less than a quota. The candidate with
the least votes is excluded, and the other candidate elected without reaching
the quota. The more votes that are lost during the scrutiny, the more likely
that not all elected members will obtain the quota. B
A less common situation occurs where remaining three candidates are
contesting the last two seats. In this case, the candidate with the least votes
is excluded, and the other two candidates elected without either reaching the
quota.
c
Transfer Values

Ballot papers and votes are different.

Ballot papers are the medium from which candidates receive votes. The D
original value of a ballot paper is I vote, however, this can change during a
scrutiny.

To distribute surplus votes the last parcel of ballot papers must have
a new (reduced) transfer value. This fractional transfer value is calculated as
follows: E
Transfer Value= Surplus Votes

Number of ballot papers in the last parcel

(truncate to four decimal)
F
After each count, the total number of votes counted to each continuing
candidate is recalculated. Any continuing candidate who has reached the
quota, is declared elected and does not continue in the scrutiny.

The next count G
When more than one candidate is elected with a surplus, each surplus
is redistributed in order of election as separate counts.

Once all surpluses have been distributed, the candidate with the fewest
total votes is declared excluded, withdrawn from the scrutiny and all of his/ H
754 SUPREME COURT REPORTS [2004) SUPP. I S.C.R.

A her ballot papers are redistributed among co~tinuing candidates.
Excluded candidates

The exclusion of a candidate can take many counts to complete.

B When a candidate is excluded, ballot papers are redistributed in the
order, and at the same transfer value, they were received by the. excluded
candidate. Each parcel of ballot papers is distributed as a new count.

After each count, each continuing candidate's total number of votes is
recalculated. Where a continuing candidate reaches the quota, he/she is
C declared elected and withdrawn from the scrutiny before the next count
commences.

Once the exclusion is complete, distribute the surplus of any candidate(s)
elected during the exclusion (in order of election). Otherwis.e exclude the·
D continuing candidate with the fewest total number of votes.

When does a Hare-Clark scrutiny stop?

The process of distributing surplus votes from elected candidates and
excluding the c'l'ldidate with the fewest votes c;,ontinues until all -yacancies
E are filled.

In the case of the Tasmanian House of Assembly, the scrutiny stops
as soon as five candidates are declared elected.

Proportional Representations:
F
Election of an alderman of a county council or a Mayor depends upon
the Statute governing the field. Section 14(1) and (2) of the Local Government
(Miscellaneous and Previous Act, 1953) by way of example lays down the
procedure for an alderman of a county council thus:

G "Every person entitled to vote may vote for any number of persons,
not exceeding the number of vacancies to be filled, by signing and
delivering at the meeting to the persons presiding thereat a voting
paper containing the full names and places of residence and
descriptions of the persons for whom he votes.
I
H The procedure of declaring the result of an aldermanic election )
\
1

I
L.M. PANDEYv. P. SINGH [SINHA, J.] 755

was altered by Section 14 of the Local Government (Miscellaneous A
Provisions) Act, 1953, formerly all the voting papers had to be read
out in full but the new procedure is as follows.

The person presiding must ascertain the votes given to each
person and in the minutes of the meeting there must be included the
full names, residences and descriptions of the persons to whom votes B
were given and the names of the persons by whom the votes were
given.

In the case of equality of votes, the person presiding at the
meeting, whether or not entitled to vote in the first instance, shall C
have a casting vote. This includes the chairman, ~ven though an
alderman.

As many persons as there are vacancies to be filled, being the
persons who have the greatest number oflotes, shall be declared by
the person presiding at the meeting to be elected." D
(See Local Government Elections by Schofield, Fourth edition)

It is interesting to note that the proportional representation doctrine in
some jurisdiction has been declared ultra vires by the American Courts. In
123 American Law Reports (1939), page 235, it is stated: E
"Elections, Section 35 - proportional representation- constitutionality.

Provisions of proposed legislation for establishment of system of
proportional representation (known as Hare system) for electing nine
members of city council, which in effect allows to the elector only one F
effective vote for only one councilman are repugnant to the
constitutional provisions guaranteeing right of citizens under
conditions of qualification specified therein to vote in the election of
all civil officers and on all questions in all legally organised town,
ward, or district meetings."
G
At page 252 of the said book, by way of Annotation, it is stated:

. "Introduction

This annotation supplements that in 110 ALR 1521.
H
756 SUPREME COURT REPORTS .[2004] SUPP. 1 S.C.R.

A The Mechanics of the Hare System, which appears to be the only
system of proportional representation which has come before the
courts of last resort of this country up ~o the present time, are
outlined in the original annotation in l10 ALR on pp.1521 and 1522,
and readers interested in the details of the systems are referred to the
pllges cited.
B
Constitutionality-proportional representation.

(Supplementing annotation in 110 ALR 1522)

Prior to the decisions in OPIN!ON TO THE GOVERNOR (R.I.) (reported
c herewith) ante, 235, the co~rts were apparently evenly divided on the
question of constitutionality of statutes making provisions for
proportional representation in elections. As will be observed, the
Supre~e Cour:t of Rhode Island in that case distinguished the New
York decision upholding the validity of the statute and took the view
D that the ·Hare System_ of proportional representation, which the
legislature was seeking to incorporate into an amendment to the
charter of the City. of providence, was violative of a section of the
state Constitution providing that citizens meeting certain residence
qualifications should "have a right to vote· in the elections of all civil
officers and on all questions in all legally· organized town, ·ward or
E district meetings."

'The position taken by the New York Court of Appealscin Johnson v.
New York (1937) 274 N.Y. 411, 9 N.E. (2d) 30, 110 ALR 1502, the case
to which the original annotation is appended, that there' is nothing in
the l'rovisions of the New York Constitution relating to elections
F which render invalid the proportional representation method of electing
municipal officials, was reaffirmed in Johnson v. Etkin, (1938) 279
N.Y.I, 17 N.E. (2d) 401, in connection with a proposed change of the
charter of the· City Of Schene~tady which introduced the proportional
representation system to that municipality. 'The primary controversy
G in this case, however, revolved around the' power of a municipality .
a
which .had adopted. plan of government offered under the Optional
City Government Law to 'amend its charter within a certain time after
the adoption of such plan by means of a local law ad~pted '!nder the
Home Rule Amendment to the Constitution, or by prop~r steps taken
under the City Home Rule Law.. • . .. l'
H j

-
5
'
I
L.M. PANDEYv. P. SINGH [SINHA, J.] 757

In Section 273 of American Jurisprudence 2d, it is stated: A
"The expression "proportional representation" is a generic tenn and
applies to different systems of voting which, while similar to each
other in essentials, vary considerably in detail. One system, commonly
known as the single transferable vote or "Hare system'', is usually ·
applied to the election of a legislative board of body. Under this B
system candidates are not elected by their obtaining a majority or
plurality of the votes cast, but by their obtaining a quota of a
designated number of votes or a certain proportion of the entire vote
in which electors are pennitted to express second, third, or additional
choices. So that an elector would not waste his vote, if the candidate C
for whom he has expressed his first choice does not need his vote,
the surplus votes are distributed in accordance with the indicated
second choices among candidates whose quotas have not been filled.
If enough candidates are not elected by this process, the candidate
with the smallest number of first choices is then dropped and his
votes are distributed in the same way. This process of elimination D
goes on until enough candidates have filled their quotas or until the
successive eliminations have left no more than enough to fill the
vacant positions. This system of voting has been upheld in some
jurisdictions against constitutional objections. But in others it has
been held to contravene constitutional provisions relating to the right E
of suffrage. For example, it has been held that by allowing only one
effect vote for one officer in an election of several such officers,
proportional representation is repugnant to a constitutional provisions
guaranteeing qualified citizens the right to vote in the election of all
civil officers and on all questions in all legally organised town, ward,
or district meetings. F
How the Courts should read the system:

Although Hare system of proportional representation has been made
applicable in the instant case, the Court has to bear in mind that only one
candidate is required to be elected whereafter only a District Panchayat would G
be constituted. The scheme of the Constitution and the statute is not that in
case of persons securing equal votes, a re-election shall be held which may
also yield similar result. Experiences show that even after holding repeated
elections, the satne problem of two candidates securing same number of votes
may be felt as a result whereof constitution of a District Panchayat would H
758 SUPREME ·couRT REPORTS [2004] SUPP. I S.C.R.

A become.a difficult task. The mechanism to elect a Chainnan is a delicate task.
The provisions made in the Rules provide for different methods to be
adopted at different stages. Securing of the quota may be necessary at one
stage but may not .!'e so necessary at a subsequent stage to which we would
advert to a little later.
B
PRINCIPLFS OF INTERPRETATION:

It is now well-settled that the object of the Act must be given effect to.
The object of the Act being to elect an Adhyaksha, construction of the rules
should be made in such a manner which would not negate the same. An
C interpretation of the rules which would lead to election of one of the candidates
should be adhered to and for that purpose, if necessary, the doctrine of
purposive construction may be taken recourse to.

It is trite that for the purpose of interpretation a statute is to be read
D in its entirety and all efforts must be made to give effect to the statutory
scheme. [See High Court of Gujarat and Anr. v. Gujarat Kishan Mazdoor
Panchayat and Ors. JT [2003] 3 SC 50, Indian Handicrafts Emporium and
Ors. v. Union ofIndia and Ors., [2003] 7 SCC 589,Ameer TradingCorporation
Ltd v. Shapoorji Data Processing ltd, JT (2003) 9 SC I 09 = (2003) 9 SCALE
713, Ashok Leyland v. State of Tamil Nadu and Anr., [2004] I SCALE 224,
E State of West Bengal and Ors. v. Sujit Kumar Rana, (2004) I SCALE 641,
Deepal Girishbhai Soni and Ors. v. United India Insurance, Co. Ltd Baroda,
(2004) 3 SCALE 546 and Secretary, Department of Excise & Commercial
Taxes ahd Ors. v. Sun Bright Marketing (P) Ltd, Chhattisgarh and Anr.,
[2004] 3 sec 185.
F The object underlying the statute is required to be given effect to by
applying the principles of purposive construction.

Francis Bennion in his treatise ·''.Statutory Interpretation" at. page.810,
described purposive construction in the following .manner :-
'.
G "A purposive constructi~n of an enactment is one ·which gi.ves
effect to the legislative purpose by - '
4

(a) following the literal meaning of the. enactment where th~t
meaning is in accordance with the 'legislative purpose (in this Co.de
.H "callea'a purposive-and"literal construction), or" ' . " ...
L.M. PANDEYv. P. SINGH [SINHA, J.] 759
(b) applying a strained meaning where the literal meaning is not A
in accordance with the legislative purpose (in the Code called a.
purposive-and-strained construction)."

Holding of elections in a District Panchayat is mandatory. The right to
contest an election although flows from a statute and regulated thereby, it.
would not be correct to contend that a strict construction of the statutory B
provisions is called for.

The principle of literal interpretation to the provisions of the rules and
procecjures laid down therein cannot be applied for more than one reason.

A statute must be construed having regard to the legislative intent. It
c
has to be meaningful. A construction which leads to manifest absurdity, must
not be preferred to a construction which would fulfil the object and purport
of the legislative intent.

The question as to when there can be a tie between two candidates D
leading to a deadlock, must be judged on the fact situation obtaining in a
particular case. If by a process of interpretation such consequences can be
avoided, the same should be preferred to application of any other principle
of interpretation of statute.

It must also be borne in mind that elector's votes are not to be wasted. E
The possibility of a tie would be very high if strict interpretation of the rule
is resorted to. For proper construction of a statute the Courts must also take
into consideration the social milieau. The courts cannot ignore that local,
caste and political affinity play a major role in our electoral system.

It is furthermore that unreasonable result or result which creates
F
uncertainty has to be eschewed.

In Mahadeo Oil Mills and Ors. v. Sub-Divisional Magistrate Araria
and Ors., AIR (1978) Patna 86, it was held:
G
"It was stated in this way by Parke B.: "It is a very useful rule, in the
construction of a statute, to adhere to the ordinary meaning of the
words used, and to the grammatical construction, unless that is at
variance with the intention of the legislature, to be collected from the
statute itself, or leads to any manifest absurdity or repugnance, in
which case the language may be varied or modified, so as to avoid H
760 SUPREME COURT REPORTS [2004] SUPP. 1 S.C.R.

A such inconvenience, but no further." 'If, said Brett L.J. 'the
inconvenience is not only great, but what I may call an absurd
inconvenience, by reading an enactment in its ordinary sense, whereas
if you read it in a manner in which it is capable though not its ordinary
sense, there would not be any inconvenience at all, there would be
reason why you should not read it according to its ordinary grammatical
B meaning."

Even a construction which would make the provisions more effective
and workable, must be adopted and to see if it is possible to be done without
doing too much violence of the language used.
c Every clause of a section should be construed with reference to the
context and other clauses thereof so that the construction to be put on a
particular provision makes a consistent enactment. of the whole statute.

This would be more so if literal construction of a particular clause bads
D to manifestly absurdity or anomalous results which could not have been
intended by the Legislature. "An intention to produce an unreasonable result",
said Danckwerts, L.J., in Artemiou v. Procopiou, (1966) l QB 878, "is not to
be imputed to a statute if there some other cc:>nstruction available". Wht:re to
apply words literally would "defeat the obvious int~ntion of the legislation
E and produce a wholly unreasonable result": we must "do some violence to
the words" and so achieve that obvious intention and produce a rational
construction .

. ·HOW SHOULD WE INTERPRET?

p Interpretation of a provision as regards electoral process framed to
make certain conditions, requires construction of principles having regard to
the backdrop thereof.

Hare Principle w.a~ made applicable '"'.~en aJarge num~er <;>fposts were
required to be filled up. The authorities ayaila,ble as rega~ds the appiicability
G of said principle, some of which are ~oticed herein before do not suggest that
the said principles are applied in a c~se where the number.ofvoters are limited
and only one post is to be filled up. It also appears that the Legislatures of
different countries had laid down different procedures for holding elections
. which necessarily would. depend upon the need of the electoral college. The
H ·court cannot also ignore the fact, that questions have been raised as regards
:. the suitability 'of the said.'proceSS· iii ·elections involving illiterate masses. In
L.M. PANDEY v. P. SINGH [SINHA, J.] 761

some jurisdictions, as noticed, the Hare principle has also been declared A
unconstitutional.

A continuing candidate has been defined to mean not elected and not
excluded from the poll at any given time. The expression "at any given time",
in our opinion, should mean at all point of times which in tum would mean
that till that time when the results can be declared. Clause (3), of course, B
provides for a minimum quota but applicability thereof should not be stretched
to all stages of election. Clause (4) as such does not speak of quota. It speaks
of declaration of a candidate who gets larger number of first preference votes
than the other and in case both get equal number of first preference votes,
one candidate has to be excluded on whom the lot falls and the other C
candidate is required to be elected.

By clause (5) two different situations have been taken care of:

(i) If at the end of the first or any subsequent round, the total
number of votes credited is equal to or greater than the quota; D
and

(ii) When there is only one continuing candidate that candidate is
declared elected.

It is not conjunctive but disjunctive. A continuing candidate may, E
therefore, also be elected who might not be credited equal to or greater
number of votes than the quota. Clause (6) provides for the formula as to how
an exclusion can take place. '

Sub-clauses (a), (b) and (c} of Clause (6) are disjunctive although the
expression 'and' has been used. Cfause (6) again provides for exclusion by F
application of different formulae which would appear from the subsequent
paragraph which is as follows:

"If, when a candidate has to be excluded under clause (a) above, two
or more candidates have been credited with the same number of votes
and stand lowest on the poll, exclude that candidate who had secured G
the lowest number of first preference votes, and if that number also
was the same in the case of two or more candidates, decide by lot
which of them shall be excluded."

Sub-clause (a) of Clause 6 does not speak of a quota. Thus, when a
H.
762 SUPREME COURT REPORTS [2004] SUPP. 1 S.C.R.

A candidate has to be excluded who up to that stage has been credited with
the lowest number of votes, two or more candidates might have been credited
with the same number of votes and they may stand lowest on the poll then
one of the candidates has to be excluded who had secured the lowest number
of first preference votes. Only in the event, the first preference votes secured
B by both the candidates are the same then and then only the determination
by the lot has to be taken for the purpose of exclusion.

The illustration appended to the rules does not envisage such situation.
Illustrations although are of relevance and have some value in the construction
of the text of tlie sections but they cannot have the effect of modifying the
C language of the statute and they cannot either curtail or expand the ambit of
the statute.

In Shambhu Nath Mehra v. The State ofAjmer, AIR ( 1956) SC 404, the
law has been stated in the following terms:

.D "13. We recognise that an illustration does not exhaust.the full content
of the section which it illustrate but equally it can neither curtail nor
expand its ambit; and if knowledge of certain facts is as much available
to the prosecution, should it choose exercise due diligence, as to the
accused, the facts cannot be said to be especially" within the
knowledge of the accused.
E
This is ~ section which must be considered in a common sense way;
and the balance of convenience and the disproportion of labour 'that
would be involved in finding out and proving ce~i~ facts balanced
.against the triviality of the issue at stake and the ease with w~ich the
accused could prove them, are all matters that mus~ be taken into
F
consideration. The section cannot be used to undermine the well
established rule of law that save in a very exceptional class of case,
the b':'rden is on the prosecution an"d never shifts." ·

Rules, if given the. af~rementioned meaning, in our opinion, would
G subserve the object of the Act and, 'thus, would fulfil the constitutional and
statutory scheme. In the end, the result for ~hich an election is held, must
be achieved. · ·

APPLICATION OF THE RULE:

·H · In. UniversitY of Poona ·(supra) a J~Judge Bench of this Court held:
L.M. PANDEY v. P. SINGH [SINHA, J.] 763

"I I. Election by Proportional representation by means of a single A
transferable vote by ballot is often described as the Hare system of
proportional representation named after the English Political reformer
Thomas Hare. This system of election is based on a quota determined
by the following formula. The total votes cast are divided by the
number of seats to be filled plus one, and one is added to the
quotient. If I 00,000 votes are cast and 4 seats are to be filled, divide B
by 5 to get a quotient of 20,000, then add I to get 20,001, which is
the quota. A candidate receiving the quota of first-choice of votes is
elected. Under this system electors express first, second, third or
'additional choices according to the number of candidates. An elector
does not waste his vote. If the candidate for whom he has expressed C
· his choice, does not need his vote, the surplus votes are distributed
in accordance with the indicated second choices among candidates
whose quotas have not been filled. If enough candidates are not
elected by this process the candidate with the smallest number of
choices is then excluded and his votes are distributed in the same
way. This process of exclusion or elimination goes on until enough D
candidates have filled their quotas or until the successive eliminations
have left no more than enough to fill the vacancies."

(Underlining is ours for emphasis)

Under the system, voters are required to express first, second, third or E
additional choices according tQ. the number of candidates. If the candidate,
for whom a voter has expressed his choice, does riot need his vote, the
surplus votes are distributed as per the second choice. Only when enough
candidates are not elected by this process, the candidate with the smallest
number of choice is eliminated and his votes are distributed in the same way F
for the next round.

University of Poona (supra) states that the process of elimination must
go on. This decision is an authority for two propositions (i) the process of
exclusion or elimination goes on until enough candidates fill their quota, and
(ii) until the successive eliminations leave behind one continuing candidate, G
which would be enough to fill vacancy.

In Umesh Sharma v. State Election Commissioner, W.P. No. I 021 (M/
B) of2003 disposed ofon 14th November, 2003, one of us (Kapadia, J.) held:

H
764 SUPREME COURT REPORTS [2004] SUPP~ I S.C.R.

A "We have given the facts of Poona University case (supra) for two
reasons. Firstly, it indicates the manner in which votes should be
counted under the system of Proportional Representation by means
of single transferable vote by ballot. The case of Poona University
(supra) was a case of counting of votes where one seat was to be
filled. Secondly, the above facts in the case of Poona University
B (supra) show that difficulties in declaring results normally arise in
cases where two or more continuing candidates secure equal number
of votes. However, in our case, that is not the position. The judgment
of the Supreme Court in Poona University's case (supra) is relied
upon by us because it explains the meaning of the words "Election
c by Proportional Representation by means of single transferable vote
by ballot." It also indicates that under the system of Proportional
Representation by means of single transferable vote by ballot, the
idea of Quota and the rule of Elimination are in-built. The judgment
· ofthe Supreme Court in Poona University's case (supra) further shows
that the rule of Elimination should be continuously applied till the
D candidates fill their quota or until successive eliminations leave behind
one continuing candidate, which would be enough to fill the vacancy."

It may be true that in that case there was no question of tie and in that ·
view of the matter it was observed:
E "The object is to see that votes do not get wasted. It is important to
note that under the above system, votes would not get wasted because
the transferred votes, which are carried forward from first count to the
second count and so on, are added to the original votes. However,
in case of tie, there might be a dead-lock. In our case, there is no such
F tie. Therefore, the Returning Officer was required to go down the line,
try to ascertain whether any candidate fills the quota or apply the rule
of Success.ive Elimination till one candidate remains to fill-in one
vacancy. We may clarify that ifthere were two vacancies and if by rule
of Elimination· two candidates would remain, then they could be
declared elected even if there was no quota:"
G
Despite the same the Court emphasized the need to see that by rule of
elimination, the left over candidates in the fray are enough to fill vacancies,
observing:

"It ensures results of an election. The said system does not only rely
H
L.M. PANDEYv. P. SINGH [SINHA,J.] 765
upon quota. It also provides for an alternative. This alternative A
contemplates rule of Elimination by which the remaining candidates
would be sufficient to fill the vacancies. Secondly, it is important to
note that elections under this system is by Proportional Representation
.. by means of single transferable vote by ballot."

We may notice that a Special Leave Petition against the said decision B
of the High Court in Sagar Singh v. Umes.h Sharma and Ors., (SLP(C) No.
22672/2003) has been dismissed by this Court by an order dated 12.12.2003.

In Jaidrath Singh (supra) this Court did not have the occasion to
consider these aspects of the matter. The decision does not contain detailed C
reasons. The principle of literal interpretation was applied therein without
(
noticing the consequences therefor.

It is interesting to note that the impugned judgment was delivered by
Ghildiyal, J. on 30th September, 2003 wherein he relied upon Jaidrath Singh
(supra). He is also a party to the decision in Umesh Sharma (supra) which D
was delivered on 14th November, 2003. We have noticed hereinbefore that the
Division Bench in Umesh Sharma (supra) has dealt with the legal position
more elaborately wherein emphasis has been laid on the decision of University
of Poona (supra).

Furthermore, the decision of University of Poona (supra) having been E
rendered by a 3-Judge Bench, should be favoured in preference to the decision
of Jaidrath Singh (supra) which has been rendered by 2-Judge Bench.

There is no detailed examination of the principles and the constitutional
scheme in the said judgment although University of Poona (supra) had been F
referred to but the ratio of that decision had not been applied.

WHETIIER TIIE ELECTION PETITION IS MAINTAINABLE:

At the first flush it may appear that the elect~on petition was not
maintainable as no result in the election had been declared. The provisions G
of Rules 33 and 34 must be interpreted having regard to the maxim 'ubi jus
ibi remedium'. An election dispute would be adjudicated upon by the election
tribunal specially constituted for that purpose. A candidate may, having
regard to the fact situation obtaining therein make a prayer that he himself
or any other candidate has been duly elected in the said case. Once he makes·
out a case of being entitled to obtain the aforementioned declaration, it goes H
766 SUPREME COURT REPORTS (2004) SUPP. I S.C.R.

A without saying that he has a right to question the order of the Returning
Officer in terms whereof he was not declared elected. A fortiorari he has also
a right to question the correctness of the order of the Returning Officer as
a result whereof he had not been declared elected. An election petition,
therefore, would be maintainable.
...'
B CONCLUSION:
We are, therefore, of the opinion that the High Court committed an error
in interpreting the statutory provisions layirig down procedures for declaration
of result on the election of Adhyaksha Panchayat at district level. Applying
C the law as we have interpreted, the appellant should have been declared
elected. ·

For the reasons aforementioned, we are of the opinion that in the
instant case the appellant herein had received the highest number of first
preference votes and in that view of the matter he should have been declared
D elected.

The appeal is allowed.

D.G. Appeal allowed.