Supreme Court of India

PROF. RAMCHANDRA G. KAPSE ETC.versusHARIBANSH RAMAKBAL SINGH ETC

Citation: 1995 INSC 870
Decided: 11 December 1995
Disposal: Appeal(s) allowed
Bench: S VERMA

Holding

A noticee under Section 99 has an independent right to deny and prove the lack of any element of a corrupt practice, no implied admission can be read from a specific denial in the returned candidate’s written statement, evidence of the candidate’s absence is admissible, and a party’s manifesto alone cannot constitute a corrupt practice; therefore the High Court’s order declaring the election void and naming the noticees guilty was set aside.

Summary

The Supreme Court examined an election petition that had declared the Lok Sabha election of Prof. Ramchandra G. Kapse void on the ground of alleged corrupt practices involving speeches by Sadhvi Reethambara and Pramod Mahajan. The Court held that a noticee under Section 99 of the Representation of the People Act has an independent right to deny and prove the absence of any constituent element of a corrupt practice, even if the returned candidate does not expressly deny it. It ruled that the written statement of the returned candidate could not be read to contain an implied admission of consent where a specific denial was made, and that evidence of the candidate’s personal absence was admissible under the Evidence Act. The Court further held that a political party’s manifesto alone cannot constitute a corrupt practice and that there was no legal evidence that the speeches appealed for votes on religious grounds. Consequently, the High Court’s order declaring the election void and naming the noticees guilty was set aside and the appeals were allowed.

Issues considered

Whether a noticee under Section 99 of the Representation of the People Act has an independent right to plead and prove the absence of any constituent part of an alleged corrupt practice.
Whether the returned candidate’s written statement can be construed to contain an implied admission of consent to the alleged speech in the absence of a specific denial, under Order VIII Rule 5 of the CPC.
Whether the returned candidate may be denied permission to lead evidence of his personal absence from the meeting and whether such evidence is admissible under Section 11 of the Evidence Act.
Whether the contents of a registered political party’s manifesto, by itself, can constitute a corrupt practice and form the basis for holding a candidate guilty under Section 123.
Whether there is sufficient legal evidence that the speeches of Sadhvi Reethambara and Pramod Mahajan appealed for votes on the ground of religion, thereby violating Sections 123(3) and 123(3A).
Whether the High Court’s findings based on the manifesto and alleged admissions are legally tenable.

Legislation cited

Code of Civil Procedure, 1908s. Order VIII Rule 5
Indian Evidence Act, 1872s. Section 11
Representation of the People Act, 1951s. 100(1)(b), s. 116A, s. 123(3), s. 123(3A), s. 29A, s. 99(1) proviso

Subjects

election lawcorrupt practiceRepresentation of the People ActSection 99implied admissionpolitical party manifestoreligious appealevidence admissibilitycandidate consentelection petition

Judgment

PROF. RAMCHANDRA G. KAPSE ETC. A
v.
HARIBANSH RAMAKBAL SINGH ETC.

DECEMBER 11, 1995
B
[J.S. VERMA, N.P. SINGH AND K. VENKATASWAMI, JJ.]

Represe11tation of the People Act 1951-Sections 99(1) Proviso,
100(1)(b), 123(3), 123(3A}-De11ial of opportunity to noticee to plead a11d
prove constituent parts of co1rnpt practic~Whether noticee could be held
guilty of commission of corrupt practic1'-lfeld, noticee has i11depende11t 1ight
c
to show that co11stitue11t pa1ts of corrupt practice are not made out and that
conuptpractice alleged is not proveli-Noticee cannot be refused this oppor-
tzmity at the threshold eve11 if ca11didate omits to deny existence of a11y con-
stituent part of com1pt practice-Order 11ami11g noticee for commission of
conupt practice, held, vitiated-Section 116A-Election-<:orrupt Practice D
Civil Procedure Code 1908--0rder VIII Rule 5(1}-Repi~sentation nf
the People Act 1951-Sections 100(1)(b), 123(3), 123(3A}-Consent of
retwned candidate to offe11ding speeches alleged-Implied admission of aver-
1nents by non-traverse in written statement, whether made out-Held, when
alleged consent qenied to have been given either expressly or by implication, E
and assertion of retwned candidate that he was in 110 way cp,!'nectrd 1".ith
any act of alleged agent or responsible for her actions, denial contemplated
Under Order VIII Rule 5, clearly made out-Refusal of permission to lead
evidence about personal absence on ground that specific denial not made in
written statement, held, contrary to /aw-Such evide11ce may be significant F
011/y to assess probative value but it cannot be shut out as i"elevant or
i11admissible--E/ection-Corrupt Practice--Pleadi11gs Evidence Act 1872, Sec-
tion 11

Representation of the People Act 1951-Sectio11s 123(3), 123(3A),
100(1 )(b ), 29A-Whether manifesto of political party could by itself constitute G
basis for finding of corrupt practic~Whether appeal for votes on ground of
religion made out-Held, manifesto of political party could not by itself form
basis for holding candidate guilty of com1pt practice where no part in its
draftin~ or use in campaign attributed to candidat1'-lield fu1ther, on facts,
appeal on ground of religion not established-No legal evidence to prove H
471
472 SUPREME COURT REPORTS (1995] SUPP. 6 S.C.R.

A allegation of corrnpt practice-Election of returned candidate upheld-Elec-
tion-Corrnpt Practice-Secularism.

Election for the Lok Sabha from the Thane Parliamentary con-
stituency was held on 15 June 1991. The election of appellant, the BJP
candidate, was challenged in an election petition alleging corrupt practice.
B The allegation was based on three speeches made by Sadhvi Rithambra,
L.K. Advani and Pramod Mahajan.

The High Court, while rejecting the claim in the petition on the basis
of the speech of L.K. Advani, held the other two speeches to be corrupt
C practice under Sections 123(3) and 123(3A), Representation of the People
Act 1951 ('Act'). It held that both these speeches had been made in the
presence of the appellant which proved his consent. The High Court
disallowed, in the examination-in-chief, questions put to the appellant-
returned candidate indicating his personal absence from the meeting held
wherein one of the alleged speeches was made, on the ground that there
D was no specific denial of his presence at the meeting in his written
statement. An application for amendment of the written statement was also
rejected. An SLP to this Court against that order was dismissed. There-
after, the deposition of the appellant- candidate having concluded and the
evidence being closed, notices under Section 99 of the Act were given to the
E two noticees. The noticee's application for calling evidence to prove the
absence of the appellant-candidate from her meeting was rejected by the
High Court. The noticee's SLP to this court was dismissed. The High Court
thereafter allowed the election petition and declared the election of the
appellant to be void.

F In appeal, this Court considered whether the noticee had an inde-
pendent right to plead and prove the want of any constituent part of the
corrupt practice alleged; whether any implied admission of the averments
in the election petition could be read in the written statements of the
returned candidate; whether the manifesto of a registered political party
G could form the basis for finding the candidate guilty of corrupt practice;
and whether there was evidence to prove the allegation of appeal for votes
on the ground of religion.

Allowing the Appeal, this Court

H HELD : 1. Bare perusal of Section 99 of the Representation of the
RAMCHANDRAG.KAPSE v. HARIBANSHRAMAKBALSINGH 473

People Act leave no doubt that the noticee has an independent right to A
show cause why he should not be named thereunder as a person guilty of
any corrupt practice, apart from the right of the candidate to defend
himself as a respondent in the election petition. The Proviso to Section
99(1) makes it clear that the noticee has the same opportunity as a party
to the petition and this is in addition to the right of the returned candidate
B
who is a party to the petition. [480-C, 481-C]

2. Where the candidate. does not deny the existence of any constituent
part of the corrupt practice, but the noticee makes the denial, the court
cannot refuse to permit the noticee to make the denial and prove it by
adducing evidence as a part of the noticee's defence. The credibility of the C
noticee's version and the probative value of his evidence, in the absence of
any denial by the candidate, is a different aspect which lies within the
domain of appreciation of evidence but the noticee cannot be shut out at
the threshold by refusing him this opportunity, even if the candidate had
availed of the same or has omitted to make that denial for any reason. The D
High Court should have formed its opinion on whether the version could
be accepted or not after giving the noticee the opportunity contemplated
by Proviso to Section 99(1). [481-E-H)

3. The requirement is that denial of allegations of fact should be
made of the point of snbstance to amount to specific denial of the allega- E
lion of fact.

Badat and Co. v. East India Trading Co., [1964] 4 SCR 19, relied on.

The written statement has to be read as a whole to see whether any
implied admission can be spelt out therefrom. The pleadings have been F
misconstrued to read therein an implied admission when there is a denial
in the written statement. When the returned candidate denied having given
the alleged consent either expressly or by implication and it was asserted
that he was in n.o way connected with any action of the noticee or respon·
sible for any of her actions, the denial contemplated under Order 8 Rule G
5 CPC was clearly made. At any rate, there is no occasion to read any
implied admission by non-traverse. [483-H, 484-A]

4. Moreover, in view of the denial of the averments relating to the
allegation of corrupt practice based on the speech of the noticee, it was
permissible for the returned candidate to .lead evidence to prove his H
474 SUPREME COURT REPORTS [1995] SUPP. 6 S.C.R.

A presence elsewhere at that time to improbabilise the allegation of his
personal presence at the meeting, this could be done even without any
specific averment to that effect in the written statement since it was a
relevant fact of which evidence could be led under Section 11 of the
Evidence Act. The fact that such evidence is being led without any express
B pleading to that effect in the written statement may be of significance only
to assess the probative value of such evidence but the evidence cannot be
shut out as irrelevant or inadmissible. There is no reliable evidence to
prove the alleged conduct of the appellant which was relied upon to prove
his consent for the speech of the noticee. [484-C-F]

C 5. Ex facie contents of a manifesto, by itself, cannot be a coITupt
practice committed by a candidate of that party. Registration with the
Election Commission as a party requires the memorandum or rules and
regulations of the association or body to contain specific provision that it
shall bear true faith and allegiance to the Constitution of India as by law
D established, and to the principles of socialism, secularism and democracy,
and would uphold the sovereignty, unity and integrity of India. The Elec-
tion Commission is to register it as a political party only after its satisfac-
tion that these requirements are fulfilled. Admittedly, the BJP had been,
and continues to be, so registered as a political party. In such a situation,
contesting as a candidate of the party could not be faulted and any part
E of its manifesto could not by itself be held to form the basis of holding a
candidate of the party guilty of a corrupt practice when no part of its
drafting or specific use in the campaign is attributed to the candidate in
the pleading or evidence. [488-B-D]

F Ku/tar Singh v. Mukhtiar Singh, [1964] 7 SCR 790, referred to.

6. There is no legal evidence to support the allegation of corrupt
practice based on the speech of the other noticee. There is no witness who
has deposed to the fact of the noticee giving a speech and the contents
thereof. No particular portion of the alleged speech has been proved to
G show that there was any appeal made for votes on the ground of religion,
much less any particular religion. Even taken at its face value, a report of
the speech made on the basis of notes taken down by a Police Inspector
does not make out corrupt practice under Section 123(3). The note at the
end of the report that the entire meeting was peaceful without any ur.-
H toward incident tends to negative an essential ingredient of corrupt :-rac-
RAMCHANDRAG. KAPSE '· HARIBANSH RAMAKBALSINGH [J.& VERMA J.) 475

tice under Section 123(3A). There is no mention of the word 'Hindutva' or A
Hindu religion in the report of the speech. This alone is sufficient to
indicate that the evidence led in support of the election petition does not
make out the corrupt practice either under sub-section (3) or (3A) of
Section 123 of the Act. The returned candidate and the noticee have also
appeared as witnesses and denied the allegation. [491-B, 489-F-H]
1 B
7. The finding of the High Court that corrupt practices are proved
is based essentially on the undersiilnding of the mai1ifesto of the BJP which
is not even pleaded as the basis of the allegation, and its erroneous
assumption that there are admissions that appeals were made in the name
of Hindu religion which is the religion of the appellant. This is wholly C
untenable. (491-C]

8. The SLPs filed against the orders refusing permission to the
returned candidate as well as to the noticee to lead evidence on the
returned candidate's personal absence from the meeting were dismissed
by this court obviously because no interference was considered appropriate D
at the interlocutory stage in the trial. (477-A]

CIVIL APPELLATE JURISDICTION : Civil Appeal No. 4334 of
1994 Etc.

From the Judgment and Order dated 15.4.94 of the Bombay High E
Court in E.P. No. 6 of 1991.

K.K. Venugopal, Ram Jethmalani, D.V. Sehgal, Ashok Desai, B.A.
Desai, M.C. Bhandare, Soli J. Sorabjee, B.Y. Kulkarni, Arnn Sathe, Ms.
Lata Krishnamurthi, Nitin Pradhan, S.V. Deshpande, M.M. Vashi, Ms.
Kiran .Jain, Ms. Halida Khaituri, Ms. Reema Bhandari, Ms. Pallav Shisodia,
F
A. Wad, M.N. Shroff and Ms. S. Krishnamurthi for the Appearing parties.

The Judgment of the Court was delivered by

J.S. VERMA, J. : This are appeals under Section 116A of the
Representation of the People Act, 1951 (for short "the R.P. A~t") by the G
returned candidate Prof. Ramchandra G. Kapse whose election has been
declared void, and by the two noticees Pramod Mahajan and Sadhvi
Reethambara who have been named under Section 99 of the R.P. Act for
committing certain corrupt practices, on the ground of which the returned
candidate's election has been set aside. At the election held on 15.6.1991, H
476 SUPREME COURT REPORTS [1995] SUPP. 6 S.C.R.

A Prof. Kapse was the BJP candidate for the Lok Sabha from the Thane
Parliamentary Constituency and he was declared elected on 17.6.1991
having polled 3, 02, 928 votes against 2, 74, 611 votes polled by the
respondent who was the Congress (I) candidate. On 1.8.1991, the election
petition was filed by the respondent for setting aside the election of Prof.
B Kapse on the ground of certain corrupt practices. By the impugned judg-
ment dated 15.4.1994 in Election Petition No. 6 of 1991, Ashok Agarwal,
J. of the Bombay High Court has declared the election of Prof. Kapse to
be void on the ground under Section lOO(l)(b), and named the noticees
Sadhvi Reethambara and Pramod Mahajan also under Section 99 of the
R.P Act of being guilty of the corrupt practices under Section 123(3) and
C 123(3A) of the R.P. Act. Even though the operative part of the impugned
judgment mentions the corrupt practice under Section 123(2) also in
addition to those Sections 123(3) and 123(3A), but there is no finding
against any one for commission of any corrupt practice under Section
123(2). We are, therefore, concerned only with the corrupt practices under
D Sections 123(3) and 123(3A) of the R.P. Act.

The allegation of ccrrupt practices made in the election petition was
on the basis of three speeches, namely, on 21.5.1991 by Sadhvi Reetham-
bara, on 1.6.1991 by L.K. Advani and on 11.6.1991 by Pramod Mahajan.
However, the speech of L.K. Advani made on 1.6.1991 has not been held
E to be a ccrrupt practice either under sub-section (3) or sub-section (3A)
and the claim in the election petition on that basis has been rejected. The
other two speeches have been held to be ccrrupt practices under Section
123(3) and 123(3A). It has been held that both these speeches by Sadhvi
Reethambara and Pramod Mahajan were made in the presence of Prof.
F Kapse which proves his consent.

Some facts relating to the first contention on behalf of the appellant
may now be stated. On 7.8.1992 when Prof. Kapse was being examined as
a witness, some questions put to him in his examination-in-chief indicating
his personal absence in the meeting held on 21.5.1991 wherein the alleged
G speech of Sadhvi Reethambara was made, were disallowed by the courl
taking the view that there was no specific denial of his presence in that
meeting in his written statement. This led to an application for amendment
of written statement to expressly deny the presence of Prof. Kapse in that
meeting and to plead his presence at some distant place at chat time. That
H application was dismissed on 10.8.1992. A special leave petition in this
RAMCHANDRAG.KAPSE '- HARIBANSHRAMAKBALSJNGH [J.S. VERMA,J.J 477

court against that order was dismissed on 27 .8.1992 obviously for the reason A
that no interference was considered appropriate at an interlocutory stage
in the trial. The deposition of Prof. Kapse was then concluded and his
evidence was close on 7.9.1992. Thereafter on 24.9.1992, notices under
Section 99 of the R.P. Act were given to Sadhvi Reethambara and Pramod
Mahajan. In March 1993, Sadhvi Reethambara filed her reply denying the
B
commission of any corrupt practice in making her speech and she also
denied the presence of Prnf. Kapse in her meeting on 21.5.1991. The
noticee Sadhvi Reethambera also made an application for calling some
evidence to prove the absence of Prof. Kapse from her meeting on
21.5.1991 and his presence at that time at a distant place. Obviously, this
was a ground taken by the noticee to prove the absence of consent of the c
candidate for her speech because even if the language of her speech
satisfied the other requirements of the definition of corrupt practice, it
could not be a corrupt practice under sub- section (3) and/or (3A) of
Section 123 for the purpose of this election petition \vithout the consent of
the candidate Prof. Kapse. The High Court rejected that application of the D
noticee on 8.4.1993. The noticee's special leave petition to this court on
12.5.1993 was dismissed ob\iously because no interference in the trial at
this s! age was considered appropriate. The arguments in the election
petition were concluded on 12.4.1994. The operative order allowing the
election petition and declaring the election of Prof. Kapse to be void was
made by Agarwal, J. on 15.4.1994. E

The pleading with regard to the speech of Sadhvi Reethambara on
21.5.1991 is in para 11 of the election petition which is as under :

"The Thane MAHANAGRI EXPRESS, Hindi newspaper is well F
read in Thane. The respondent invited the said Sadhvi Ritambara
at Thane. He himself chalked out her programme. As per the
invitation given by him to come and canvass for him in his con-
stituency, she came to Thane on 21st May 1991. A meeting was
held at Shivaji Maidan, Ambholi Naka, Thane at about 8.30 AM.
on the 21st May 1991. In the whole constituency an announcement G
was made over the vehicles, auto-rickshaws etc. engaged by the
respondent or his workers with his consent, announcing that Sadhvi
Ritambara was going to address the meeting in support of the
respondent. Advertisements were given in the newspapers about
the said meeting in Navbharat Times dt. 19.5.1991. The petitioner H
478 SUPREME COURT REPORTS (1995] SUPP. 6 S.C.R.

A had asked his following workers to attend the said meeting and to
note down the substance of her speech :

1. B.N. SINGH
2. KALYAN RAJ
3. DILIP NAKHVA
B
Accordingly the said workers attended the meeting. The report
appeared in the next day in the morning. She appealed at length.
The respondent welcomed her and voters who attended the meeting.
The meeting was well attended. The respondent after welcoming
her, set in the audience. Whenever she made a reference to the Hindu
c religion and to the fact that the BJP-SHIV SENA candidate should
be voted as they were standing for protecting the Hindu religion. The
section of public including the respondent got up."

(emphasis supplied)
D The earlier reference in para 10 of the election petition is to another
speech of Sadhvi Reethambara at Nagpur which is irrelevant for the
purpose of this election petition. The reply in the written statement is as
under:

E "25 ..........

...... In any event the said Ritambara Devi is in no way concerned
wiih the present respondent and her acts and deeds are in no way
relevant for the decision of the present petition on merits of the I
case.
F
26. With reference to paragraph 11 of the petition, this respondent
denies that he had invited the said Ritambara Devi at Thane or that
he had chalked out her programme or that she was invited to come
and canvass for the respondent in his constituency or that in sud1
circumstances she came to Thane on 21.5.1991. All the said a/lega-
G tions are wholly baseless and false. The petitioner is put to the strict
proof of the alleged meeting held at Thane on 21.5.1991 and that
an announcement of that meeting was made in the town with the
...
aid of auto-rickshaw allegedly engaged by the respondent or his
workers with his consent. It is not tme that the respondent had done
H anything as alleged in para 11 . ......... The respondent does not admit
RAMCHANDRAG.KAPSE v. HARIBANSHRAMAKBALSINGH (J.S. VERMA,J.J 479

that is attributed, to Ritambara Devi as a parl of her speech. The A
respondent does not admit the contents of Exhibit B or B-1, B-2
and B-3. 171e respondent states that he had nothing to do with the
alleged meetings or the movements of the said Ritambara Devi. In
any event all the said allegations are wholly unconnected with the
. respondent and hence the election of the respondent cannot be
B
challenged on the allegations made in para 11 of the petition."

"41. With reference 'o para 24(b) this respondent denies that the
respondent at any ame had invited Ritambara Devi to canvass for
him in public meeting on 21.5.1991. It is not tme that the respondent
was present in the meeting of the office bearers or that it was decided C
to invite Ritambara Devi. The respondent denies that expressly or
impliedly he had consent to the alleged offending speeches of Ritam-
bara Devi. 11

(emphasis supplied)
D
The contention of the election petitioner which was accepted by the
High Court is reiterated at the hearing before us that the above pleading
amounts to an implied admission of the personal presence and participa-
tion uf prof. Kapse in the meeting held on 21.5.1991 at Shivaji Maidan,
Thane between 8.30 a.m. and 10.00 a.m. amounting to his consent, and, E
therefore, Prof. Kapse was rightly denied permission to adduce evidence
of his absence in that meeting and presence elsewhere at that time. The
High Court's view is that this pleading amount to an implied admission by
Prof; Kapse of his personal presence and participation in the meeting of
Sadhvi Reethambara on 21.5.1991 on account of which his consent for the
entire speech of Sadhvi Reethambara is proved. F
Apart from the question whether the pleadings have been correctly
construed to take this view in respect of Prof. Kapse, the further question
is whether the noticee Sadhvi Reethambara could be denied the oppor-
tunity at the inquiry held under Section 99 to plead and prove the absence G
of Prof. Kapse from her meeting as a part of her defence. If the noticee
under Section 99 has an independent right to plead and prove the want of
any constituent part of the corrupt practice of which .he is liable to be
named under Section 99 of the R.P. Act, visiting him with penal conse-
qnences in addition to the penal consequences which ensue to the returned
candidate, then denial of that opportnnity to the noticee is itself snfficient H
480 SUPREME COURT REPORTS [1995] SUPP. 6 S.C.R.

A to vitiate the inquiry made under Section 99. Since denial of this oppor-
tunity to the noticee Sadhvi Reethambara is for the same reason for which
it was denied to the returned candidate Prof. Kapse, namely, the view taken
that there was no specific denial in the written statement of Prof. Kapse of
his personal presence at that meeting, this question with reference to its
B effect on the case of the noticee may first be examined.

Bare perusal of Section 99 leaves no doubt that the noticee has an
independent right to show cause why he should not be named thereunder
as a person guilty of any corrupt practice, apart from the right which the
candidate has to defend himself as a respondent in the election petition.
C This right of the noticee is the same as that of a person who is a party to
the petition and resort to Section 99 becomes necessary only when the
noticee thereunder is not already a party to the petition and there is a
likelihood of he being named as a person guilty of any corrupt practice.
Section 99 of the R.P. Act is as under :

D 99. Other orders to be made by the High Court. - (1) At the time
of making an order under section 98 the High Court shall also
make an order -

(a) where any charge is made in the petition of any corrupt
practice having been committed at the election, recording
E
(i) a finding whether any corrupt practice has or has not been
proved to have been committed at the election, and the
nature of that corrupt practice; and

(ii) the names of all persons, if any, who have been proved
F at the trial to have been guilty of any corrupt practice and
the nature of that practice; and

(b) fixing the total amount of costs payable and specifying the
persons by and to whom costs shall be paid :
G
Provided that a person who is not a party to the petition shall
not be named in the order under sub-clause (ii) of clause (a)
unless-

(a) he has been given notice to appear before the High Court
H and to show cause why he should not be so named; and
RAMCHANDRAG. KAPSE '· HARIBANSH RAMAKBALSJNGH (J.S. VERMA, J.J 481

(b) if he appears in pursuance of the notice, he has been A
given an opportunity of cross-examining any witness who has
already been examined by the High Court and has given
evidence against him, of calling evidence in his defence and
of being heard.

B
(2) In this section and in section 100, the expression 11 agent" has
the same meaning as in section 123."

The proviso in sub-section (1) of Section 99 makes it clear that. the
noticee has the same opportunity as a party to the petition and this is an
addition to the right of the returned candidate who is a party to the C
petition. Even if the candidate as a party to the petition omits to deny the
existence of any constituent part of the corrupt practice, it is open to the
noticee under Section 99 who has an independent right to do so, for the
purpose of showing that all the constituent parts of the corrupt practice
are not made out on account of which the corrupt practice alleged is not D
proved and, therefore, he cannot be held guilty of that corrupt practice and
named under Section 99 of the R.P. Act. In a case where the candidate
does not deny the existence of any constituent part of the corrupt practice,
but the noticee makes the denial, the court cannot refuse to permit the
noticee to make the denial and prove it by adducing evidence as a part of
the noticee's defence. The credibility of the noticee's version and the E
probative value of his evidence, in the absence of any denial by the
candidate, is a different aspect which lies within the domain of appreciation
of evidence but the noticee cannot be shut out at the threshold by refusing
him this opportunity, even if the candidate has not availed of the same or
has omitted to make that denial for any reason. Nothing of any significance F
to require a specific mention was said on behalf of the respondent to doubt
the correctness of this proposition which is so obvious .

. It is difficult to appreciate how the High Court could reach a
different cpnclusion and on its erroneous impression deny to the noticee G
the right she had to plead and prove the absence of the candidate Prof.
Kapse from her meeting and the want of the candidate's consent for her
speech, in order to show that the alleged corrupt practice was not made
out for want of an essential constituent part thereof on account of which
she could not be held gnilty for the commission of any corrupt practice. It
was for the High Court after giving her the opportunity contemplated by H
,

482 SUPREME COURT REPORTS [1995) SUPP. 6 S.C.R.

A the proviso to sub-section (1) of Section 99 to have ultimately formed its
opinion whether her version could be accepted or not. That stage, however,
did not reach because of the error committed at the threshold of the
inquiry made under Section 99 of the R.P. Act by denial of this opportunity
to the noticee. It must also be borne in mind that the election petition is
B based on the ground under Section lOO(l)(b) and not Section lOO(l)(d)(ii)
of the R.P. Act.

We would also indicate later that the pleadings have been mis-
construed to read therein an implied admission when there is a denial in
the written statement.
c It is, therefore, obvious that the order naming Sadhvi Reethambara
under Section 99 for commission of the corrupt practice is vitiated for the
above reason alone and the order made against her has to be set aside.
The question now is of the effect of this conclusion.

D It has now to be seen whether an implied admission of the averment
in the election petition of Prof. Kapse's presence and conduct at the
meeting of Sadhvi Reethambara at Thane on 21.5.1991 can be read in his
written statement on the ground of non-traverse by virtue of Order 8 Rule
5(1) C.P.C. To support the view taken by the High Court, Shri Ashok
Desai, learned counsel for the respondent strenuously urged that the
E implied admission of the allegation made in para 11 of the election petition
flows from the absence of a specific denial of the relevant facts alleged in
para 11 of the election petition. The pleadings on the point have been
quoted earlier. In para 11 of the election petition, the material facts
pleaded for this purpose are; Visit of Sadhvi Reethambara to Thane on
F 21.5.1991 on invitation of Prof. Kapse; meeting at Shivaji Maidan, Thane
at about 8.30 a.m. on 21.5.1991 at which Prof. Kapse welcomed her and
was then present in the audience; and appreciation by Prof. Kapse and the
audience whenever she made a reference to the Hindu religion and to the
fact that the BJP-Shiv Sena candidate should be voted as they were
G standing for protecting the Hindu religion. These are all the n:iaterial facts
pleaded in this behalf in the election petition for the purpose of pleading
the consent of Prof. Kapse to the contents of the speech given by Sadhvi
Reethambara which is alleged to constitute the corrupt practice.

In Badat and Co. v. East India Trading Co., [1964] 4 SCR 19, it was
H held that Rules 3, 4 and 5 of Order 8 of C.P.C. form an integrated code
RAM CHANDRA G. !<APSE • HARIBANSH RAMAKBAL SINGH [l.S. VERMA, J. J 483

dealing with the manner in which allegations of fact in the plaint should be A
traversed and the legal consequences flowing from its non-compliance. It
was held that the written statement must deal specifically with each allega·
tion of fact in the plaint and when a defendant denies any such fact he
must not do so evasively but answer the point of substance. If his denial of
a fact is not specific but evasive, the said fact shall be taken to be admitted
B
of which no other proof is necessary unless the court in its discretion under
the proviso to Rule 5 requires any fact so adinitted to be proved otherwise
than by such implied admission. The requirement, therefore, is that the
denial should be made of the point of substance to amount to a specific
denial of the allegation of fact. The written statement has to be read as a
whole to see whether any implied admission can be spelled out therefrom. c
In the above-quoted portions extracted from the written statement,
there is specific assertion that Sadhvi Reethambara was in no way con-
cerned with Prof. Kapse (respondent in the election petition) and her acts
and deeds were not relevant; Prof. Kapse had not invited her at Thane on D
21.5.1991 and such allegations were wholly baseless and false; it was denied
that Prof. Kapse had done anything as alleged in para 11 of the election
. petition; the part attributed to Sadhvi Reethambara was denied by Prof.
Kapse who had nothing to do with the alleged meetings or movements of
Sadhvi Reethambara; and it was denied that expressly or impliedly he had E
consented to the alleged offending speeches of Sadhvi Reethambara. These
are some of the specific assertions made by prof. Kapse in his written
statement and reply to the allegations made in the election petition based
on the speech of Sadhvi Reethambara The conduct attributed to Prof.
Kapse including his personal presence and the act of welcoming Sadhvi
Reethambara at that meeting and appreciating her utterances were all
F
made for pleading consent of Prof. Kapse to the act of Sadhvi Reetham·
bara by necessary implication. In such a situation, the point of substance
was the consent of Prof. Kapse to be implied from his conduct in inviting
and welcoming Sadhvi Reethambara at that meeting and appreciating her
utterances. The specific assertion by denial enumerated earlier including G
the specific denial of his consent can leave no doubt that there is no room
for reading in the written statement of Prof. Kapse an implied admission
of the kind read by the High Court. The fact of physical presence was just
on circumstance alleged for implying the consent. When the alleged con·
sent was denied to have been given either expressly or by implication and H
484 SUPREME COURT REPORTS [1995] SUPP. 6 S.C.R.

A it was asserted that he was in no way connected with any act of Sadhvi
Reethambara or responsible for any of her actions, the denial con-
templated under Order 8, Rule 5, C.P.C. was clearly made. At any rate,
there is no occasion to read any implied admission of any averment in para
11 of the election petition by no-traverse. The High court was clearly in
B error in reading any admission by Prof. Kapse in his written statement of
any averment of fact contained in para ii of the election petition.

Moreover, in view of the denial of the avcrments made in para 11 of
the election petition relating to the allegation of corrupt practice based on
the speech of Sadhvi Reethambara, it was permissible for Prof. Kapse to
C lead evidence to prove his presence elsewhere at that time to improbabilise
the allegation of personal presence in the meeting addressed by Sadhvi
Reethambara at Thane on 21.5.1991. This could be done even without any
specific averment to that effect in the written statement since it was a
relevant fact ot which evidence could be led under Section 11 of the Indian
D Evidence Act. The fact that evidence is led for proving presence at that
time elsewhere to improbabilise the allegation made in the petition without
any express pleading to that effect in the written statement, may be of
significance only to assess the probative value of such evidence but the
evidence cannot be shut out as irrelevant or inadmissible. The High Court's
E order refusing permission to Prof. Kapse to lead that evidence and there-
after to amend the written statement for making a clear assertion to this
effect is contrary to law. The finding on this question even against the
returned candidate Prof. Kapse is, therefore, vitiated due to this defect.
The express denial by Prof. Kapse in his statement of his presence in the
F meeting at Thane on 21.5.1991 cannot be rejected. The implied admission
read in the written statement of prof. Kapse has earlier been rejected by
us. There is no reliable evidence to prove the alleged conduct of Prof.
Kapse which was relied to prove his consent for the speech of Sadhvi
Recthambara, irrc.:;spectivc uf thr.; nature of her speech. This alone is
sufficient to reject the finding of the High Court that any corrupt practice
G is proved to have been committed by Prof. Kapse on the basis of that
speech.

The effect of this conclusion would be considered after consideration
of the only remaining point, namely, the finding relating to the corrupt
H practice based on the speech of Pramod Mahajan.
RAMCHANDRAG.KAPSE v. !!ARIBANSHRAMAKBALSINGH(J.S. VERMA,1.J 485

The allegation of corrupt practice based on the speech of Pramod A
Mahajan is contained in para 13 of the election petition which is as under:

"Similarly Pramod Mahajan, All India General Secretary of BJP
was also invited by the respondent to visit his constituency and to
canvas for him during the course of electioneering, so that the
prospects of his winning the election would improve. As per the B
said invitation and as per the programme chalked out by the
respondent and his workers with his consent, Pramod Mahajan
visited the constituency. A meeting was held on the 11th June 1991
at Kalyan Chowk, Kalyan (west) at about 10 p.m. The petitioner's
following workers attended the said meeting : c
1. DAULAT SINGH PALIWAL
2. R.B. SINGH
3. DR. UDAY SAMEL.

Pramod Mahajan stated in his speech that secularism preached by D
other political parties was only a pretence. He stated that the other
parties were appeasing the Muslim minority for the sake of votes.
He appealed to the voters to elect the Government which believed
in devotion to Shri Ram. The respondent was present in the said
meeting. The respondent was sitting on the dias when Pramod E
Mahajan gave his speech. Mahajan further stated that for pres-
tigious Hindustan and for the construction of Ram Temple (at
Ayodhya) voters should elect the respondent who was the can-
didate of BJP. The area of Kalyan Chock, Kalyan (West) falls
under Kalyan Police Station. The Police officials has also attended
the said meeting. The petitioner has learnt that a record has been F
kept in the form of election diary about the said meeting. The
petitioner will examine the officers of Kalyan Police Station, who
attended."

The reply of prof. Kapse in his written statement is contained in para 29 G
as under:

With reference to paragraph No. 13 of the petition, this respon-
dent does not admit that Mr. Pramod Mahajan was invited by him
to visit the constituency. It is however, true that he had taken part
in the election campaign in the respondent's constituency and had H
486 SUPREME COURT REPORTS [1995] SUPP. 6 S.C.R.

A addressed a meeting. It is, however, not true that he said in his
speech that secularism preached by other political parties was only
a pretence or that the other parties were appealing the Muslim
minority for the sake of votes.

The petitioner is put to the strict proof of the said allegations. This
B respondent, however, states that the portions of speeches quoted
by the petitioner are out of context and hence misleading. It is also
not true that Mr. Mahajan appealed to the voters to elect the Govt.
which believed devotion of Ram. The petitioner is put to the strict
proof that the respondent was present at that time. The respondent
c does not admit that Mr. Mahajan further stated that for prestigious
Hindustan and for the construction of Ram Temple voters should
elect the respondent are wholly baseless and out of context. The
respondent is not aware whether there is any such record about
the said speeches with the police."

D It was specifically denied in the written statement that appeal to voters was
made to elect the Government which believed in devotion to 'Ram' or that
the appeal was made on the ground of Hindu religion.

The finding of the High Court on appreciation of the evidence
adduced at the trial on this point may be summarised with reference to
E certain extracts from the impugned judgment which are as under :

"90 .............

xxx xxx xxx
F ....... As far as Shri Pramod Mahajan's speech is concerned, I am
not inclined to place the reliance on the oral testimony of the party
workers of the petitioner. However, I find that the police report
in respect of the speech, at Exhibit-J gives a reasonably fair report
in regard to the speech ...... "
G "116. I further find that Shri Pramod Mahajan who is All India
Secretary of the BJP has in his speech given on 11th June, 1991 at
Kalyan Chowk, Kalayan (W) asked for votes in favour of the
respondent in the name of Hindu Religion, which is the religion
of the respondent, and this falls within the mischief of section
H 123(3) of the Act. I further find that he has promoted or attempted
RAM CHANDRA G. KAPSE '· HARIBANSH RAMAKBAL SINGH (J.S. VERMA, J.J 487

to promote feelings of enmity or hatred between different classes A
of citizens of India on grounds of religion and this falls within the
mischief of Section 123(3A) of the Act. This he has done by his
being an Agent of the Respondent. This he has done with the
consent of the respondent.

117. I further find on the evidence of Shri Pramod Mahajan himself B
that the election manifesto of the BJP which are at Exhibits 3 and
L, on his own showing tends to create enmity between Hindus and
Muslims, and this falls within the mischief of the provisions of
section 123(3A) of the Act. Hence the election of the respondent
is liable to be set aside and Shri Prainod Mahajan is liable to be C
named as a collaborator in the aforesaid electoral mal-practices."

Thereafter in para 120 while rejecting the stay application at the end of the
impugned judgment, it has been stated thus -

"......... In the instant case, the respondent as also both the D
noticees have admitted that appeals were made by them in the
name of Hindu religion which is the religion of the respondent. It
is also admitted by all the three that appeals for votes were made
in the name of Ram Janmabhoomi - Babri Masjid. The said issue
was raised as per the manifesto of the BJP. The said manifesto
E
recites that after partition Hindus and Muslims who are blood
brothers have not even remained friends. The issue of Ram jan-
mabhoomi was raised in this context ..........."

We have earlier quoted the entire pleadings on this aspect. There is
nothing in the averments contained in para 13 of the election petition which F
contains the pleading on this point that the contents of the manifesto of
the B.J.P. was also a basis for pleading this corrupt practice and that the
candidate Prof. Kapse was guilty of corrupt practice for the contents of
the B.J.P. Manifesto. The above extracts from the impugned judgment show
that the manifesto of the BJ.P. is a strong basis for finding the candidate G
guilty of this corrupt practice and that too without any such basis being
pleaded in the election petition. There is also reference to admission by
Pramod Mahajan and the appellant that appeal for votes was made in the
name of Hindu religion. The admission is spelt out on the basis of the
manifesto of the BJ.P. of which he was a candidate. It is difficult to
appreciate how and where such admissions were found by the High Court H
488 SUPREME COURT REPORTS [1995] SUPP. 6 S.C.R.

A in the depositions of the appellant Prof. Kapse and Pramod Mahajan.

Registration with the Election Commission as a political party for the
purpose of the R.P. Act is made in accordance with Section 29 A of the
R.P. Act. Sub-section (5) of Section 29-A requires the memorandum or
rules and regulations of the association or body to contain a specific
B provision that it shall bear true faith and allegiance to the Constitution of
India as by law established, and to the principles of socialism, secularism
and democracy, and would uphold the sovereignty, unity and integrity of
India, Sob-section (7) requires the Commission to register it as a political
party only after its satisfaction that these requirements are fulfilled. Admit-
C tedly, B.J.P. had been so registered as a political party and continues to be
registered as a political party under this provision. In such a situation,
contesting as a candidate of BJP could not be faulted and any part of its
manifesto could not by itself be held to form the basis of holding a B.J.P.
candidate guilty of a corrupt practice when no part in its drafting or
D specific use in the campaign is attributed to the candidate in the pleading
or evidence. Ex facie contents of a manifesto, by itself, cannot be a corrupt
practice committed by a candidate of that party. In this context, reference
to the decision in Ku/tar Singh v. Mukhtiar Singh, [1964] 7 SCR 790 at
793-795, is useful.

E We would not consider the evidence to prove this corrupt practice
at the trial. The entire evidence in support of the allegation comprises of
the testimony of Daulat Singh Paliwal (PW-6), UdJy alias Prashant Laxman
Same! (PW-7), Ram Bachan Singh (PW-8) and Police Inspector Suhans
Bhatchandra Phadke (PW-4), in addition to Exhibits J/J-1. The High Court
F has rejected the evidence of PW-6, PW-7 and PW-8 as unreliable. That
leaves only the testimony of PW-4 S.B. Phadke and the document Exhibits
J/J-1. The first question is whether the testimony of PW-4 or the contents
of the document Exhibit J can be treated as substantive or legal evidence
to prove any part of the speech of Pramod Mahajan. The submission of
Shri Venugopal, learned Counsel for Prof. Kapse and Shri Jethmalani,
G learned counsel for Pramod Mahajan is that it is not legal evidence. In the
alternative, it was urged that the testimony of PW-4 S.B. Phadke also is not
reliable and should be rejected and Exhibit J is innocuous and does not
prove anything to constitute the alleged corrupt practice.

H S.B. Phadke (PW-4), a Police Inspector in the Special Branch at
RAMCHANDRA G. KAPSE v. HARIBANSH RAMAKBALSINGH [J.S. VERMA, J.J 489

Kalyan, has stated that he was required to attend election meetings and A
submit reports of those meetings. He stated that report Ex. J was scribed
by a Head Constable and was signed by him, but he does not recall who
was that Head Constable. That Head Constable has not been el1amined.
He also stated that he was taking down notes during the meeting and after
preparation of the report, those notes were destroyed. The translation of B
the original Ex. J is marked Ex. J-1 and it was admitted in evidence subject
to objection relating to its admissibility. This is the entire statement of S.B.
Phadke (PW-4). The witness did not depose to any fact relating to the
meeting or any speech given therein and he did not even name any of the
speakers at that meeting. The scribe of the document Ex. J has not been
examined even though PW-4 has said that it was signed by him. The C
testimony of PW-4 read as a whole proves nothing even if it is taken at its
face value.

There is thus no witness who has deposed to the fact of Pramod
Mahajan giving a speech and the contents thereof. No particular portion D
of the alleged speech of Pramod Mahajan has been proved to show that
there was any appeal made for votes on the ground of religion, much less
any particular religion. Emphasis in the contents of the report of the speech
of Prarnod Mahajan in Ex. J/J-1 is the functioning of Janata Dal on the
· basis of caste and religion; the need for a common rule and law for all in
the country; criticism of the manner in which the country was being E
administered for quite some time; and a note at the end of the report that
the meeting terminated peacefully without any untoward incident. Even if
the report Ex. J/J-1 is looked into without any witness deposing about the
contents of the alleged speech of Pramod Mahajan or even proving the
making of any speech by Pramod Mahajan in the evidence adduced in F
support of the election petition, there is nothing therein to hold that any
appeal was made by the candidate or anyone else with his consent on the
ground of his religion to make out the corrupt practice under sub-section
(3) of Section 123. The note at the end of the report Ex. J/J-1 that the
entire meeting was peaceful without any untoward incident also tend to G
negative an essential ingredient of the corrupt practice under sub-section
(3A) of Section 123. It may be mentioned that there is no mention of the
word "Hindutva" or Hindu religion in the report of the speech at any place.
This alone is sufficient to indicate that the evidence led in support of the
election petition does not make out the corrupt practice either under
sub-section (3) or sub-section (3A) of Section 123. H
490 SUPREME COURT REPORTS [1995) SUPP. 6 S.C.R.

A We may now refer to the statement of Prof. Ramchandra Ganesh
Kapse (RW-1). He has expressly stated that he did not know anything
about the meeting of Sadhvi Reethambara in Thane on 21.5.1991 and that
he was out of his constituency on that day being present in Dahanu
Parliamentary Constituency where he had gone for the election campaign
B of the B.J.P. candidate from that constituency. He had also stated that he
never heard any speech of Sadhvi Reethambara. He has then stated that
he or his workers has not invited Pramod Mahajan to attend the meeting
on 11.6.1991 in Kalyan. He has also stated that Pramod Mahajan did not
speak of Hindutva or Hindu Rashtra, nor did he invoke the voters as
Hindus to vote for B.J.P. He then says that Pramod Mahajan spoke of the
C problems of poverty, population and education, etc. He has stated these
facts from personal knowledge adding that he was present in that meeting.
He added that none of the speakers had asked for votes in the name of
Hindutva or in the name of Ram or Ramjanamabhoomi. In his speech, he
spoke only of the work he had done as an M.P. and also of his future plans.
D He has been cross- examined at length about the meaning of "secularism".
which according to him is equality of all religions. He was also cross-
examined about his concept of different religions. There is nothing in his
cross-examination to detract from the merit of his version relating to the
meeting of 11.6.1991 at Kalyan and his version of the speech of Pramod
Mahajan or his own speech. The roving cross-examination in general about
E the religion is wholly irrelevant for the purpose of the charge which was
levelled against him.

Pramod Mahajan also appeared as a witness. According to him, in
his speech made on 11.6.1991 at Kalyan he commented on the policy of the
F other political parties and made his criticism of the same. According to :j
him, he said nothing to seek votes on the ground of Hindu religion or to
support Hindutva. He criticised misrule of the Congress (I) for several
decades. According to him, be said that for centuries, Hindus, Muslims
and members of other communities have been living as brothers and sisters
and by and large it is so. He also said that ours is a secular country and
G that the State has no religion and it is not true that he and his party believe
that India belongs to Hindus alone, since it belongs to all. This is the sum
and substance of his deposition.

We have considered the entire evidence on the point and we find
H that the evidence led in support of the election petition which has already
RAMCHANDRA G. KAPSE v. HARIBANSH RAMARBAL SINGH jJ.S. VERMA, J.J 491

been discussed does not prQ_ve the commission of any corrupt practice A
either under sub-section (3) or sub-section (3A) of Section 123. On the
other hand, Prof. Kapse and Pramod Mahajan have appeared as witnesses
and denied the allegation. There is thus no legal evidence to support the
allegation of corrupt practice based on the alleged speech of Pramod
Mahajan. The finding of the High Court accepting the allegation and B
holding that a corrupt practice is proved, is clearly untenable and must be
set aside.

The finding of High Court that corrupt practices are proved is based
essentially on the understanding of the manifesto of the BJ.P. which is not
even pleaded as the basis of the allegation, and its erroneous assumption C
that there are admissions that appeals were made in the name of Hindu
religion which is the religion of the appellant . This is wholly untenable.
There is also no legal evidence to prove the allegation of corrupt practice.
The argument of learned counsel for the appellant and noticee that the
High Court's judgment is based on certain notions and impressions instead
of the material on record, cannot be treated as baseless. It is surprising D
how the election was set aside on such scanty material.

Consequently, the appeal of the returned candidate as well as the
appeals of the noticees are allowed. Appellant Prof. Ramchandra G.
Kapse and the noticee Pramod Mahajan will get their costs throughout E
from the respondent (election petitioner). The other noticee Sadhvi
Reethambara will bear her own costs since she did not appear as a witness
to personally rebut the allegation made against her.

U.R. Appeal allowed.

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