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REPORTABLE  

IN THE SUPREME COURT OF INDIA  

CIVIL APPELLATE JURISDICTION  

CIVIL APPEAL NOS. 9466-9468  OF  2016    Madiraju Venkata Ramana Raju   …. Appellant  

:Versus:  

Peddireddigari Ramachandra Reddy & Ors.   ….Respondents   

J U D G M E N T  

A.M. Khanwilkar, J.  

1. The present appeals emanate from the judgment and order  

dated 2nd August, 2016 of the High Court of Judicature at  

Hyderabad for Telangana and Andhra Pradesh, striking off  

paragraphs 2 & 9 to 11 of the election petition as also dismissing  

the election petition, being Election Petition No.8 of 2014 filed by  

the appellant challenging the election of  respondent No.1.   

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2. The election in relation to Andhra Pradesh State Legislative  

Assembly was held on 7th May, 2014. The appellant and respondent  

No.1 contested the election from the Punganur Assembly  

Constituency. The respondent No.1 was declared as an elected  

candidate. By way of an election petition, the appellant challenged  

the election of respondent No.1 on the ground that respondent No.1  

had grossly violated several instructions issued by the Election  

Commission as also the provisions of The Representation of the  

People Act, 1951 (for short, ―the Act‖). Respondent No.1, in turn,  

took out two applications seeking to strike out paragraphs 2 & 9 to  

11 of the said election petition and to dismiss the election petition  

in limine, both of which were ultimately allowed by the High Court.  

 3. The background to the present conflict is set out as under:  

a. On 12th April, 2014, a notice of election was issued, inter  

alia for a seat from the Punganur Assembly Constituency to  

the Andhra Pradesh State Legislative Assembly;  

b. Respondent No.1, a member of the Yuvajana Shramika  

Rythu Congress Party (YSRCP) filed his initial nomination form  

for the aforesaid elections on 12th April, 2014 along with two

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affidavits and again, second nomination form on 17th April,  

2014 with two fresh affidavits. Appellant, a member of the  

Telugu Desham Party (TDP), filed his nomination form on 17th  

April, 2014.  

c. After scrutiny of the nomination forms, on 21st April,  

2014, a total of 8 (eight) candidates, including the appellant  

and respondent No.1, were found eligible to contest the  

elections;  

d. Appellant had filed objections on the same day i.e. 21st  

April, 2014, objecting to the acceptance of nomination forms of  

respondent No.1 on the ground that he had failed to sign every  

page of the affidavits in support of his nomination forms and  

had also failed to fill up all the columns in his forms, contrary  

to the rules prescribed in that regard. Respondent No.1 filed  

his counter to the said objection petition;  

e. The Returning Officer rejected the objection petition on  

the ground that the said petition needed no consideration and  

was hence over-ruled;  

f. The elections were held on 7th May, 2014, and results  

were declared on 16th May, 2014. Respondent No.1 was

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declared as the elected candidate, having secured the highest  

number of valid votes. Appellant finished second while the  

remaining 6 (six) candidates lost their deposits;  

g. Appellant then challenged the election of respondent No.1  

by way of an election petition dated 25th June, 2014, under  

Section 81 read with Sections 83, 100(1)(a) and (d)(i) of the Act  

before the High Court of Judicature at Hyderabad. He also  

sought a declaration that he was the duly elected member of  

the State Legislative Assembly of the 284-Punganur Assembly  

constituency;   

h. Respondent No.1 then took out two applications in the  

said petition viz. E.A. No. 329 of 2015 under Order VI Rule 16  

of the Code of Civil Procedure, 1908 (for short ―CPC‖) for  

striking out the averments made in paragraphs 2 & 9 to 11 of  

the election petition as being frivolous and vexatious, followed  

by E.A. No. 330 of 2015 under Order VII Rule 11 of CPC  

seeking to dismiss the election petition for failing to disclose a  

cause of action;   

i. Appellant also took out miscellaneous applications for  

permission to file rejoinder affidavit, expediting the election

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petition and for taking note of suppression of material facts by  

respondent  No.1;  

j. The High Court vide its judgment dated 2nd August,  

2016, (―impugned judgment‖) allowed both the applications of  

respondent No.1, eventually dismissing the election petition for  

want of cause of action. The High Court broadly considered  

three points. First, the sweep of the terms ―material facts‖ and  

―cause of action‖ in reference to an election petition;  second,  

whether material facts and cause of action have been pleaded  

in the subject election petition necessitating a trial; and, third,  

whether the election petition as filed deserved to be rejected in  

limine without conducting a trial.  While dealing with the first  

point, the High Court first discussed about the inter-play  

between Sections 81, 83, 100 and 101 of the 1951 Act.  It held  

that the mandate of these provisions is that the election  

petition must contain a concise statement of material facts on  

which the appellant relies and that for the election petition to  

succeed, the appellant should establish that the nomination of  

the returned candidate was improperly accepted and further,  

due to such improper acceptance, the election of the returned

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candidate has been materially affected.  The High Court relied  

upon the cases of Azhar Hussain vs. Rajiv Gandhi,1  Ram  

Sukh Vs. Dinesh Aggarwal,2  Pendyala Venkata Krishna  

Rao Vs. Pothula Rama Rao,3 Hari Shanker jain Vs. Sonia  

Gandhi,4 and Nandiesha Reddy Vs. Kavitha Mahesh5  and  

culled out the principles as follows:-  

―15) So, on a compendious study of above precedential  jurisprudence we will understand:  

(i) The phrase material facts employed in Section  83(1)(a) of R.P.Act has not been defined and its meaning is a  contextual one in a given election petition.  

(ii) Material facts or facta probanda are those basic,  elementary and prime facts which the election petitioner  shall plead and if traversed prove for the Court to afford a  

decree.   (iii) Whereas material particulars or facta probantia are  

the particulars in the form of evidence further vivify, refine  and make more clear the material facts.    (iv) Material facts are the entire bundle of facts which  

constitute a complete cause of action for the petitioner and  total defence for the respondent."  

 Having said this, the Court then analysed the averments in the  

election petition in the following words:-   

―16) POINT No.2: I have carefully scrutinized the contents of  

the election petition to know whether the 1st  respondent/election petitioner had pleaded all the relevant  material facts and they constitute cause of action to proceed  

with trial. It is observed that in his pleadings he has  

                                                           1 1986 (1) (Supp) SCC 315  2 (2009) 10 SCC 541  3 2005 (3) ALD 47  4 (2001) 8 SCC 233  5   (2011) 7 SCC 721

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reproduced the five objections taken by him before the 8th  respondent/Returning Officer at the time of scrutiny of  

nomination and reiterated that the Returning Officer has  rejected his objections contrary to the Conduct of the  

Election Rules and guiding principles. He has given the table  showing the votes polled to each contesting candidate and  pleaded that he stood second highest in the tally. As rightly  

contended by the petitioner except fulminating that the  Returning Officer has unduly rejected his objections, the  1st respondent has not furnished the material facts in his  

pleadings as to how in his perception and in the eye of  law, the order of the Returning Officer is impugnable. A  

mere scourging of the order of the Returning Officer  howsoever fiercely, it must be said, will not constitute  material facts and give rise to cause of action unless the  

pleadings are balanced with the factual and legal reasons  projecting where and how the impugned order suffered  

perversity and illegality. In the instant case, in my  considered view, unfortunately the pleadings are totally  bereft of such material facts. On completion of reading  

of pleadings one fails to understand how the order of the  Returning Officer was at fault.  a) Paras-2, 9 to 11 are specifically attacked by the petitioner  

on the ground that pleadings in those paras are not  supported by any material facts and hence they are liable to  

be struck out. In para-2 the 1st respondent narrated the five  objections taken by him. In para-9 he expressed his  grievance that 8th respondent has not considered his  

objection and his order is contrary to the judgment of the  Apex Court in Resurgence Indias case (10 supra). He further  mentioned in that para that as per the aforesaid judgment,  

filing of an affidavit with blank particulars will render the  affidavit nugatory. In para-10 he pleaded that in the light of  

the Apex Courts judgment 8th respondent ought to have  rejected the improper nomination of the instant petitioner.  He also pleaded that instant petitioner misrepresented the  

Election Commission as well as 8th respondent as he has not  added Rs.21 lakhs to the gross total of his assets and  

showed the gross total of his assets and showed the gross  total as Rs.2,79,67,680/- instead of Rs.3,00,67,680/-.  Whereas in para-11 under the caption Grounds 1st  

respondent reiterated that 8th respondent has made  improper acceptance of nomination. The cumulative effect  of paras-2, 9 to 11 is nothing but again lampooning the  

order of 8th respondent as erroneous without  demonstrating as to how his order was factually and

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legally perverse and wrong. Even the mentioning of the  judgment in Resurgence Indias case (10 supra) and the  

allegation that the petitioner suppressed Rs.21 lakhs  from the total assets, we will presently see, will not  

constitute any material facts so as to strengthen the  allegations in paras-2, 9 to 11.‖    

 (emphasis supplied)  

    4. Relying on the decision in Pothula Rama Rao Vs. Pendyala  

Venkata Krishna Rao and Ors.,6  the High Court concluded that  

the pleadings in paragraphs 2 and 9 to 11 were frivolous and  

vexatious and not containing any material facts and cause of  

action, for which the same were liable to be struck off.  The High  

Court then proceeded to examine the third point with an opening  

remark that the election petition filed by the appellant was woefully  

silent about the material facts constituting cause of action.  It then  

proceeded to consider the argument of the appellant as to how the  

order of the Returning Officer was factually and legally incorrect.  It  

first considered objection Nos.1 and 3 taken by the appellant that  

respondent No.1 had not signed at the bottom of each and every  

page of the affidavit in Form No.26, which was violative of Rule 35  

of Civil Rule of Practice and that mere signing the last page of  

                                                           6   (2007) 11 SCC 1

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affidavit was not enough.  After adverting to Rule 35 of Civil Rule of  

Practice, the High Court concluded that the said Rule was  

inapplicable to the Form of affidavit filed before the statutory  

authority such as the Returning Officer. It then referred to the  

Hand-book for the Returning Officer-2014 issued by the Election  

Commission of India prescribing form of affidavit to be submitted by  

the contesting candidates. As per the said instructions, the  

candidate is required to sign on the last page of the affidavit.  On  

this finding, the objection of the appellant was negatived. While  

dealing with the objection No.2(a) taken by the appellant that in  

Serial No.2 of Item No.4 in one of respondent No.1‘s affidavits, the  

space under the heading of Total Income shown in IT returns  

relating to wife of petitioner was left blank. Further, the candidate is  

not entitled to file two affidavits in Form 26 in terms of Notification  

No.3/4/2012/SDR dated 24th August, 2012, issued by the Election  

Commission of India. Furthermore, respondent No.1 did not  

disclose the crucial information relating to criminal background if  

any, assets, liabilities and educational qualifications etc., which  

rendered the nomination form invalid as per Kisan Shankar

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Kathore Vs. Arun Dattatray7. The High Court rejected even this  

objection. While dealing with the instructions issued by the Election  

Commission of India, the High Court opined that the candidates  

were required to declare the information about the criminal  

background if any, assets, liabilities, educational qualification etc.  

The amended Form 26 was a comprehensive form to include all the  

information that was sought in the two separate affidavits.  The  

revised form of Form 26 was notified in the official gazette on 1st  

August, 2012, whereafter, the Election Commission of India made it  

clear by its Notification dated 24th August, 2012, that the candidate  

shall file only one affidavit in the revised Form 26.  At the same  

time, the High Court held that the Notification did not put any  

embargo on the candidate to file multiple nomination papers  

contrary to Section 33(6) of the 1951 Act. On this basis, the  

decision in Kisan Shankar Kathore (supra) was distinguished.  

While dealing with objection Nos.2(b) and 4 raised by the appellant,  

that in Item No.6 the respondent No.1 did not strike-out the  

inapplicable words in the Form and thus suppressed crucial facts  

relating to his involvement in offence, if any, the High Court noted  

                                                           7 (2014) 14 SCC 162

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that mere failure to strike out the inapplicable words would not lead  

to an inference that there was suppression of any material facts.  

For, the respondent No.1 had placed on record the same facts  

against columns (a), (b), (c) and (d) being not applicable.  The High  

Court distinguished the decision of this Court in the case of  

Krishnamoorthy Vs. Siva Kumar and others 8 . In examining  

objection No.2(c) regarding Item No.8(III) of Part-B of the affidavit  

under the heading ‗Approximate Current Market Price‘, which was  

left blank by respondent No.1, the High Court accepted the plea of  

respondent No.1 that the said information was disclosed against the  

columns (a) and (b). It held that the candidate is required to give the  

same particulars against columns (a) and (b) and not against the  

heading. The decision of this Court in the case of Resurgence India  

Vs. Election Commission of India9 was thus distinguished.  While  

dealing with the fifth objection regarding the proxy of the  

respondent No.1, namely, P. Dwarakanath Reddy, regarding failure  

to put his signature on each and every page of affidavit and Form  

26 and later withdrawal of his nomination, the High Court found  

that respondent No.1 has nothing to do with the nomination of P.                                                              8   (2015) 3 SCC 467  

9   (2014) 14 SCC 189

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Dwarakanath Reddy. In other words, the High Court examined each  

objection raised by the appellant before the Returning Officer and  

reiterated in the election petition on its own merit to conclude as  

follows:-  

―23)  Thus, none of the objections raised by the 1st  respondent before the 8th respondent and repeated in his  election petition merit consideration. Apart from the above,  

the 1st respondent in para-10 of the election petition has  taken a new ground to the effect that the petitioner has  concealed Rs.21 lakhs worth of movable assets of his wife  

and showed his gross total value as Rs.2,79,67,680/-  instead of Rs.3,00,67,680/-. It must be held that this  objection also does not hold water. In Item No.VII the  

petitioner has shown item wise moveable assets of his wife- G. Swarnalatha and showed their gross total value as  

Rs.2,79,67,680/-. However, the total value comes to  Rs.3,00,67,680/-. It is only a mistake in totaling the items of  moveable properties. Since there is no concealment of any  

item, the clerical error in totaling cannot be taken as a  felony.  

24)  Thus, on a conspectus, the election petition is  liable to be dismissed in limine without necessity of  

conducting trial for two reasons – firstly, the petition is  bereft of material facts and cause of action and secondly,  the objections raised before the 8th respondent and  

repeated in the election petition do not merit  consideration, which can be and in fact, have been,  decided without necessity of conducting trial.  It is true  

that in Ashraf Kokkurs case (5 supra) cited by the 1st  respondent the Apex Court held that when the facts disclose  

material facts and cause of action though not complete  cause of action, the election petition need not be dismissed  at the threshold. However, in the instant case, as already  

observed supra, the election petition totally lacks  material facts except repetition of the objections raised  

before the 8th respondent. Therefore, election petition  merits dismissal.  

a)  As already stated supra, the 1st respondent has raised  some new objections with regard to alleged suppression of

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assets of the petitioner and his wife in his counter for the  first time but not pressed the said objection. Hence, the said  

objection is not taken into consideration. So, at the outset,  the two petitions filed by the petitioner deserve to be allowed  

and consequently the election petition is liable to be  dismissed in limine.  

This point is answered accordingly.‖   

        (emphasis supplied)  

On this basis, the High Court allowed EA No. 329 of 2015 filed by  

respondent No.1 for striking out the pleadings in paragraphs 2 and  

9 to 11 of the election petition being frivolous and vexatious and not  

containing material facts and cause of action therein. The High  

Court also allowed the second application filed by respondent No.1  

being EA No.330 of 2015 and rejected the Election Petition No.8 of  

2014  in limine.   

 5. We have heard Mr. Siddharth Luthra, learned senior counsel  

appearing for the appellant and Mr. Raju Ramachandran, learned  

senior counsel appearing for the contesting respondent.   

6. The principal contention of the appellant is that whilst  

dismissing his election petition, the High Court has overlooked the  

cause of action stated in the election petition, which arose from the

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fact that two different sets of nomination forms and affidavits were  

filed by respondent No.1 containing several material deficiencies  

and discrepancies and which was fatal. In other words, the  

nomination form of respondent No.1 was wrongly accepted and it  

materially affected the election results of the appellant. According to  

the appellant, the affidavits filed by respondent No.1 in support of  

his nomination forms admittedly contained blank columns and did  

not contain his signature on every page, which was not only in  

contravention of several judgments of this Court, but also violated  

Section 125A(i) of the Act and additionally, was also against several  

circulars issued by the Election Commission. Respondent No.1 also  

filed two affidavits along with each one of his nomination forms, in  

direct contravention of the mandate in the instructions issued by  

the Election Commission permitting for only one affidavit to be filed.  

Further, perusal of the said affidavits would reveal that respondent  

No.1 had suppressed crucial information relating to movable and  

immovable assets owned by him and his family members and in  

fact, filed a conflicting affidavit before the Speaker of the State  

Legislative Assembly. In light of respondent No.1‘s suppression of  

significant information, the matter in issue required a full-fledged

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trial and the High Court committed manifest error in dismissing the  

election petition in limine. The High Court also erred in striking off  

paragraphs 2 and 9 to 11 of the election petition on the ground that  

the averments contained therein were vexatious and frivolous,  

without giving any legal justification for the same. The High Court  

also took into account pleadings made in the counter/reply  

submitted by respondent No.1 as opposed to only considering the  

averments made in the election petition. Further, respondent No.1  

had failed to specifically deny the allegations/averments in the  

election petition.  

7. Mr. Siddharth Luthra relies upon the judgments of this Court  

in Resurgence India (supra), Krishna Murthy (supra), Duni  

Chand Vs. State of Himachal Pradesh & Ors.10, Kuldeep Singh  

Pathania Vs. Bikram Singh Jaryal11, D. Ramachandran  Vs.   

RV Jankiraman & Ors.12, Asharaf Kokkur Vs. KV Abdul Khader  

& Ors.13, Virender Nath Gautam Vs. Satpal Singh & Ors.14,  

Kishan Shankar Kathore (supra), Harkirat Singh  Vs. Amrinder  

                                                           10 (2014) 16 SCC 152  11 (2017) 5 SCC 345  12 (1999) 3 SCC 267  13 (2015) 1 SCC 129  14 (2007) 3 SCC 617

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Singh15, Mohd. Akbar Vs. Ashok Sahu & Ors.16, RK Roja Vs.  US  

Rayudu & Anr. 17 , Mairembam Prithviraj Vs. Pukhrem  

Sharathchandra Singh 18  and Shri Balwant Singh Vs. Sri  

Laxmi Narain19.   

8. Per contra, Mr. Raju Ramachandran, learned senior counsel  

appearing for respondent no.1, submits that the findings of the  

Returning Officer, as regards the objections taken by the appellant  

to respondent No.1‘s nomination form, were just and proper. He  

submits that every election petition is not required to go for trial,  

merely for performing a formal exercise. The present case was  

purely based on documents on record and there was no  

requirement of leading evidence in that regard. Even before the  

High Court, only technical pleas were argued, none of which were  

borne out by the record. As per Section 36(4) of the Act, respondent  

No.1‘s nomination paper could be rejected merely on technical  

pleas. Since it is well settled that an election petition was a  

statutory proceeding and not an action at law or a suit in equity,  

                                                           15 (2005) 13 SCC 511  16 (2015) 14 SCC 519  17 (2016) 14 SCC 725  18 (2017) 2 SCC 487  19 AIR 1960 SC 770

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the determination of such petition had to be in consonance with  

Section 36(4) of the Act. Further, the sine qua non for declaring an  

election void under Section 100(1)(d) of the Act was to plead and  

also establish that improper acceptance of nomination had  

materially affected the results of the election, which, in the present  

case, appellant had failed to assert. No such pleading of material  

fact had been made by appellant. Similarly, the election petition, as  

filed, failed to disclose even the material particulars of facts to  

establish a cause of action warranting a trial. Finally, appellant had  

introduced fresh allegations into his petition, including suppression  

of assets and fraud, by way of counter affidavits to the application  

filed by respondent No.1. This clearly went against the established  

law that new facts could not be introduced in an election petition  

beyond a period of 45 days after declaration of the result of the  

impugned election. For, the election petition had been filed in June  

2014, whereas the counter affidavits were filed around a year later  

i.e. June 2015 and, therefore, the averments contained therein  

could not be taken into consideration.  

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9. Mr. Ramachandran relied upon the following judgments:  

Pothula Rama Rao (supra), Samant N. Balkrishna & Anr. Vs.  

George Fernandez & Ors.20, L.R. Shivaramagowda & Ors. Vs.  

T.M. Chandrashekar (Dead) by LRs & Ors.21, Ram Sukh Vs.  

Dinesh Aggarwal 22 , Mangani Lal Mandal Vs. Bishnu Deo  

Bhandari23, Shambhu Prasad Sharma Vs. Charandas Mahant  

& Ors.24, Hukumdev Narain Yadav Vs. Lalit Narain Mishra25, K.  

Venkateswara Rao & Anr. Vs. Bekkam Narasimha Reddi &  

Ors. 26 , Harmohinder Singh Pradhan Vs. Ranjeet Singh  

Talwandi & Ors. 27, Hari Shanker Jain  Vs.  Sonia Gandhi28  

and Tek Chank Vs. Dile Ram29.  

10. The central issue in these appeals is: whether the contents of  

the subject election petition disclose cause of action warranting a  

trial? The High Court by a composite judgment allowed the two  

applications filed by respondent No.1 (returned candidate) praying  

                                                           20 1969 (3) SCC 238  21 (1999) 1 SCC 666  22 (2009) 10 SCC 541  23 (2012) 3 SCC 314  24 (2012) 11 SCC 390  25 (1974) 2 SCC 133  26 (1969) 1 SCR 679; AIR 1969 SC 872  27 (2005) 5 SCC 46  28 (2001) 8 SCC 233  29 (2001) 3 SCC 290

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for striking out paragraphs 2 & 9 to11 of the election petition, being  

frivolous and vexatious and not containing any material facts and  

not disclosing any cause of action; and the second application for  

rejecting the election petition in limine for non-disclosure of cause of  

action.   

11. Ordinarily, an application for rejection of election petition in  

limine, purportedly under Order VII Rule 11 for non-disclosure of  

cause of action, ought to proceed at the threshold. For, it has to be  

considered only on the basis of institutional defects in the election  

petition in reference to the grounds specified in clauses (a) to (f) of  

Rule 11.  Indeed, non-disclosure of cause of action is covered by  

clause (a) therein.  Concededly, Order VII of the CPC generally deals  

with the institution of a plaint. It delineates the requirements  

regarding the particulars to be contained in the plaint, relief to be  

specifically stated, for relief to be founded on separate grounds,  

procedure on admitting plaint, and includes return of plaint. The  

rejection of plaint follows the procedure on admitting plaint or even  

before admitting the same, if the court on presentation of the plaint  

is of the view that the same does not fulfill the statutory and

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institutional requirements referred to in clauses (a) to (f) of Rule 11.  

The power bestowed in the court in terms of Rule 11 may also be  

exercised by the court on a formal application moved by the  

defendant after being served with the summons to appear before  

the Court.  Be that as it may, the application under Order VII Rule  

11 deserves consideration at the threshold.    

 12. On the other hand, the application for striking out pleadings  

in terms of Order VI Rule 16 may be resorted to by the  

defendant(s)/respondent(s) at any stage of the proceedings, as is  

predicated in the said provision.  The pleading(s) can be struck off  

by the Court on grounds specified in clauses (a) to (c) of Rule 16.    

13. Indeed, if the defendant moves two separate applications at  

the same time, as in this case, it would be open to the court in a  

given case to consider both the applications together or  

independent of each other. If the court decides to hear the  

application under Order VII Rule 11 in the first instance, the court  

would be obliged to consider the plaint as filed as a whole. But if  

the court decides to proceed with the application under Order VI  

Rule 16 for striking out the pleadings before consideration of the

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application under Order VII Rule 11 for rejection of the plaint, on  

allowing the former application after striking out the relevant  

pleadings then the court must consider the remainder pleadings of  

the plaint in reference to the postulates of Order VII Rule 11, for  

determining whether the plaint (after striking out pleadings)  

deserves to be rejected  in limine.   

14. In the present case, the High Court has presumably adopted  

the latter course. It first proceeded to examine the application for  

striking out the pleadings in paragraphs 2 & 9 to 11 of the election  

petition being frivolous and vexatious and also because the same  

did not disclose any cause of action. And having accepted that  

prayer, it proceeded to reject the election petition on the ground  

that it did not disclose any cause of action. However, we find that  

the High Court has muddled the analysis of the pleadings. It merely  

focused on the pleadings in paragraphs 2 & 9 to 11 of the election  

petition. It is one thing to strike out the stated pleadings being  

frivolous and vexatious but then it does not follow that the rest of  

the pleadings which would still remain, were not sufficient to  

proceed with the trial or disclose any cause of action, whatsoever,

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for rejecting the plaint as a whole in limine or to hold that it did not  

warrant a trial. No such finding can be discerned from the  

judgment under appeal. Be that as it may, the High Court  

committed manifest error in striking out the pleadings in  

paragraphs 2 & 9 to 11 of the election petition, being frivolous and  

vexatious by considering the factual matrix noted therein as  

untenable on merit. For striking out the pleadings or for that  

matter, rejecting the plaint (election petition), the High Court is not  

expected to decide the merits of the controversy referred to in the  

election petition.  We shall elaborate on this aspect a little later.   

 15. Reverting to the contents of the election petition in paragraph  

1, it is asserted that the election petition was to challenge the  

declaration of election of respondent No.1 to the 284-Punganur  

Assembly Constituency of Andhra Pradesh. The election petitioner  

has then given the other factual details relating to the election  

process, which concluded with the declaration of results on 16th  

May, 2014. In paragraph 2, the election petitioner (appellant herein)  

has asserted that he was challenging the election on the ground of  

improper acceptance of nomination of respondent No.1 by the

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Returning Officer (respondent No.8). It is pointed out that the  

Returning Officer entertained two sets of nominations of respondent  

No.1, despite the written objections taken by the appellant.  The  

nature of five objections taken by the appellant before the Returning  

Officer have been mentioned, including the violation of Rule 35 of  

Civil Rules of Practice and also Rule 4A of Election Rule, 1961 and  

non-signing of each and every page at the bottom of the nomination  

form.  The five objections taken before the Returning Officer have  

been reproduced as follows:     

―Objection No.1: The 1st Respondent who filed nominations  

has failed to sign on bottom of each and every page of the  

affidavits in Form-26 as contemplated under Civil Rules of  

Practice and also deliberately violated the conduct of  

Election Rules.  

Objection No.2: The 1st respondent as a candidate failed to  

fill up the affidavit at   

a. The Column No.4 and Column No.2 under the head of total  

Income shown in Income Tax returns.    

b. The two sets of affidavits at Column No.6 have not properly  

strike off which ever not applicable.     

c. The Respondent No.1 in his two sets of affidavits kept blank  

at Column No.8 (B) (III), where the words stand of  ―Approximate Current market Price of …‖ at Part-B of (11)  abstract of the details given in (1) to (10) of Part-A. This is  

mandatory as per the Conduct of Election Rules and also the

24    

recent Apex Court judgment, circulated under Instruction  No.18 to the Returning Officer.  

 Objection No.3: The Respondent No.1 has not singed on each  

and every page in the affidavit of Form-26 as contemplated  

under Civil Rules of Practice and also contemplated under  

Hand Book of Returning Officers-2014 under Chapter  

5.20.1.  

Objection No.4: The Respondent No.1 in his affidavit at  

Column No.6 has not properly struck off ―which ever not  

applicable.  

Objection No.5: The proxy of the 1st respondent namely P.  

Dwarakanath Reddy did not file his affidavit properly and  

also not put his signatures and date on each and every page  

of Form-26.  Later he has withdrawn his nomination.‖  

16. In paragraph 3 of the election petition, it has been asserted  

that the appellant had raised objections before the Returning  

Officer on 21st April, 2014. Further, respondent No.1 had given  

authorization to one Shri V. Sreerami Reddy to answer the  

objections, who then filed a reply to the objections taken by the  

appellant by merely denying and asserting that the same were  

purely technical grounds and, therefore, to reject the same.  In  

paragraph 4 of the election petition, reference is made to the  

proceedings before the Returning Officer as to how the objections  

were rejected by him. It is then asserted that the rejection was for  

the reasons best known to the Returning Officer and contrary to the

25    

mandatory Conduct of Election Rules and governing provisions and  

instructions given to the Returning Officer by way of Compendium  

Instructions, Volume-2 supplied to the Returning Officer(s) in light  

of the Supreme Court judgment regarding the affidavits and blank  

columns. It is then stated that the Returning Officer had also  

circulated ―do‘s and dont‘s‖ along with the check-list to every  

candidate contesting the election which clearly stated that the  

candidates must strictly follow the procedure stipulated under the  

Election Rules. The said instructions were supplied to the  

candidates along with the set of nomination papers highlighting the  

decision of this Court in Resurgence India (supra), regarding the  

consequence of keeping the relevant columns in the nomination  

Form-26, blank.  In paragraph 5 of the election petition, it is stated  

that the appellant had applied for a certificate of its objection,  

authorization given to the third party and counter, respectively. In  

paragraph 6, it is asserted that the appellant secured second  

highest votes and respondent No.1 was declared elected candidate.  

The tally of votes secured by the 8 candidates who contested the  

election has been given in this paragraph.  In paragraph 7, it is  

pointed out that the Government of India issued a notification in its

26    

extraordinary Gazette published on 1st August, 2012 and amended  

Form-26 under Rule 4A of the Conduct of Election (Amendment)  

Rules, 2012.  In the footnote of the Gazette Notification, Note-1 to  

Note-4 have been given which are relevant instructions for  

accepting a valid Form-26 given to the Returning Officer. Those  

notes have been reproduced as follows:     

 ―Note: 1: Affidavit should be filed latest by 3.00 PM on the  

last day of filing nomination.   Note: 2: Affidavit should be sworn before on Oath  Commissioner or Magistrate of the First Class or before a  

Notary Public.  Note: 3: All column should be filled up and no column to be  

left blank. If there is no information to furnish in respect of  any item, either ‗Nil‘ or ‗Not applicable‘ as the case may be,  should be mentioned.  

Note: 4: The Affidavit should be either typed or written  legibly and neatly.‖  

 17. In paragraph 8 of the election petition, it is asserted that after  

the aforementioned Government Notification, the Election  

Commission of India issued proceedings bearing No.3/4/2012/SDR  

dated 24.8.2012, Annexure-X directing all the State Election  

Commissions, political parties and other organizations to follow the  

single affidavit strictly in accordance with Form-26.   

 18. In paragraph 9 of the election petition, the appellant has  

asserted that the objections taken by the appellant were not

27    

considered by the Returning Officer, for which reason the decision  

of the Returning Officer was contrary to the decision of this Court in  

the case of Resurgence India (supra).  Paragraph 27 of the said  

judgment has been highlighted by the appellant.  It is then asserted  

that the contents of paragraph 27 were circulated along with the  

nomination papers by the Returning Officer to every candidate.  

Thus, respondent No.1 was aware about the same.  Further,  

respondent No.1 did not sign each page of Form-26 in both the sets  

of nomination papers filed before the Returning Officer. The two  

sets of nomination papers were attested by the same Notary on the  

last page of both the sets of nomination papers filed by respondent  

No.1, and so the omission of signature and blank columns are ―not  

in the nature of technical mistakes at all‖. This assertion is followed  

by the averments in paragraph 10 that the Returning Officer ought  

to have rejected the nomination form of respondent No.1 at the  

threshold in light of the decision of this Court. This is to assert that  

it was improper nomination of respondent No.1, wrongly accepted  

by the Returning Officer as contemplated under Section 100(1)(d)(i)  

of the 1951 Act.  It is then stated that the Returning Officer was  

fully aware about the requirements as per the decision of this

28    

Court, including the election material such as Handbook for  

Returning Officer-2014, General Elections-2014, Compendium  

Instructions, Volume-2 and Form-26 circulated by him.  It is then  

asserted that in spite of that the Returning Officer accepted the  

nomination of respondent No.1, which enabled the respondent No.1  

to contest the election and eventually get elected. The declaration of  

election of respondent No.1 by the Returning Officer (respondent  

No.8) was thus a clear abuse of the process of law in light of the  

decision of this Court. It is also asserted that respondent No.1  

misrepresented the Election Commission as well as the Returning  

Officer (respondent No.8) by giving false information in a casual  

manner, at paragraph 7A regarding the details of Immovable Assets  

in the two sets of affidavits in Form-26, by showing the gross total  

value of Rs.2,79,67,680/- instead of Rs.3,00,67,680/- and  

deliberately did not count the column amount at 7(vii) of  

Rs.21,00,000/-.   

19. In paragraph 11 of the election petition, it is stated that the  

nomination forms (Form-26) filed by the appellant and respondent  

No.1 in two sets, may be treated as forming part of the election

29    

petition along with the grounds of the election petition. Indeed, the  

opening part of paragraph 11 is not happily worded but it certainly  

conveys that the nomination form of the respective candidates be  

treated as forming part of the election petition and by reference  

thereto, the same would become an integral part of the election  

petition. The grounds have been articulated in paragraph 11 which   

reads thus:  

 ―GROUNDS  

a). Whether the 8th Respondent has ignored the  

Constitutional Spirit of Representation of the People Act (Act  

43 of 1950) and Act 43 of 1951 with allied Acts, Rules,  

Orders, Model Code of Conduct for Guidance of Candidates  

supplied by the Election Commission for the Election 284,  

Punganur Assembly Constituency failing to conduct a fair  

scrutiny in accordance with the law while conducting a fair  

scrutiny of the nomination of the Respondent No.1 Form-26  

in accordance with law?  

b). Whether the 8th Respondent acceptance of the improper  

nomination of Forum-26 application as contemplated despite  

the fatal omission of blank column under Section 100 (1) (d)  

(i) of Representation of the People Act, 1951 of the two sets of  

affidavits of the Respondent No.1 kept in blank at Column  

No.8 (B) (III), where the words stand of ―Approximate Current  

market Price of …‖ at Part-B of (11) abstract of the details  

given in (1) to (10) of Part-A?  

c). Whether the Respondent No.1 election to 284, Punganur  

Assembly Constituency can be set aside on the grounds that  

the Respondent No.8/Returning Officer has accepted the

30    

improper nomination Form vide Form-26 with omissions of  

not signing on each and every page of the affidavit and not  

keep intact of filling of the blanks contrary to the spirit of the  

Apex Court judgment rendered in Resurgence India Vs.  

Election Commission of India & Anr., held in Writ Petition  

(Civil) No.121 of 2008 dt. 13.09.2013?  

d). Whether the Respondent No.1 Affidavit with blank  

particulars will render the affidavit nugatory and hit by  

Section 125 A(i) of Representation of Peoples Act, 1951  

directly and has to set aside the election?‖  

 20. On the basis of these pleadings, the appellant has prayed for  

the following reliefs in the election petition:    

        ―17. Under these circumstances it is prayed that this Hon‘ble  

Court may be pleased to:  

a) declare the election of Peddireddigari Ramachandra Reddy  

(Respondent No.1) to the 284 Punganur Assembly  

Constituency to be null and void and set-aside the same:  

b) Further declare that the Petitioner has been duly elected  

as Member of State Legislative Assembly of the 284  

Punganur Assembly Constituency under Section 84 of the  

Representation of the People Act 1951.  

c) Award the costs of the petition  

d) And pass such other order or orders as it may deem fit  

and proper in the circumstances of the case.‖   

 21. It is well settled that the election petition will have to be read  

as a whole and cannot be dissected sentence-wise or paragraph-

wise to rule that the same does not disclose a cause of action.

31    

Cause of action embodies a bundle of facts which may be necessary  

for the plaintiffs to prove in order to get a relief from the Court.  The  

reliefs claimed by the appellant are founded on grounds inter alia  

ascribable to Section 100(1)(d)(i).  Further relief has been claimed to  

declare the appellant as having been elected under Section 101 of  

the 1951 Act. The cause of action for filing the election petition,  

therefore, was perceptibly in reference to the material facts  

depicting that the nomination form of respondent No.1 was  

improperly accepted by the Returning Officer.  

  22. On reading the election petition as a whole, we have no  

hesitation in taking a view that the High Court misdirected itself in  

concluding that the election petition did not disclose any cause of  

action with or without paragraphs 2 & 9 to 11 of the election  

petition. Indeed, the pleadings of the election petition should be  

precise and clear containing all the necessary details and  

particulars as required by law. ‗Material facts‘ would mean all the  

basic facts constituting the ingredients of the grounds stated in the  

election petition in the context of relief to declare the election to be  

void. It is well established that in an election petition, whether a

32    

particular fact is material or not and as such required to be  

pleaded, is a question which depends on the nature of the grounds  

relied upon and the special circumstances of the case.  Particulars,  

on the other hand, are the details of the case set up by the party.   

The distinction between ―material facts‖ and ―full particulars‖ has  

been delineated in the case of Mohan Rawale v. Damodar  

Tatyaba30. This judgment has been adverted to in the reported  

decision relied by the parties. The Court noted thus:   

  ―10. We may take up the last facet first. As Chitty, J.  

observed, ―There is some difficulty in affixing a precise  

meaning to‖ the expression ―discloses no reasonable cause of  

action or defence‖. He said: ―In point of law … every cause of  

action is a reasonable one.‖ (See Republic of Peru v. Peruvian  

Guano Co.31) A reasonable cause of action is said to mean a  

cause of action with some chances of success when only the  

allegations in the pleading are considered. But so long as  

the claim discloses some cause of action or raises some  

questions fit to be decided by a Judge, the mere fact  

that the case is weak and not likely to succeed is no  

ground for striking it out. The implications of the  

liability of the pleadings to be struck out on the ground  

that it discloses no reasonable cause of action are quite  

often more known than clearly understood. It does  

introduce another special demurrer in a new shape. The  

failure of the pleadings to disclose a reasonable cause of  

action is distinct from the absence of full particulars.  

The distinctions among the ideas of the ―grounds‖ in Section  

81(1); of ―material facts‖ in Section 83(1)(a) and of ―full  

                                                           30

 (1994) 2 SCC 392  31

 (1887) 36 Ch D 489

33    

particulars‖ in Section 83(1)(b) are obvious. The provisions of  

Section 83(1)(a) and (b) are in the familiar pattern of Order  

VI, Rules 2 and 4 and Order 7, Rule 1(e) Code of Civil  

Procedure. There is a distinction amongst the ‗grounds‘ in  

Section 81(1); the ‗material facts‘ in Section 83(1)(a) and ―full  

particulars‖ in Section 83(1)(b).  

11. Referring to the importance of pleadings a learned author  

says:  

―Pleadings do not only define the issues between the parties  

for the final decision of the court at the trial, they manifest  

and exert their importance throughout the whole process of  

the litigation. … They show on their face whether a  

reasonable cause of action or defence is disclosed. They  

provide a guide for the proper mode of trial and particularly  

for the trial of preliminary issues of law or fact. They  

demonstrate upon which party the burden of proof lies, and  

who has the right to open the case. They act as a measure  

for comparing the evidence of a party with the case which he  

has pleaded. They determine the range of the admissible  

evidence which the parties should be prepared to adduce at  

the trial. They delimit the relief which the court can award.  

…‖  

[See: Jacob: ―The Present Importance of Pleadings‖ (1960)  

Current Legal Problems, at pp. 175-76].  

12. Further, the distinction between ―material facts‖ and ―full  

particulars‖ is one of degree. The lines of distinction are not  

sharp. ―Material facts‖ are those which a party relies upon  

and which, if he does not prove, he fails at the time.  

13. In Bruce v. Odhams Press Ltd.32 Scott L.J. said: ―The  

word ‗material‘ means necessary for the purpose of  

formulating a complete cause of action; and if any one  

‗material‘ statement is omitted, the statement of claim is  

bad.‖ The purpose of ―material particulars‖ is in the context  

of the need to give the opponent sufficient details of the  

                                                           32

(1936) 1 KB 697 : (1936) 1 All ER 287

34    

charge set up against him and to give him a reasonable  

opportunity.   

14. Halsbury refers to the function of particulars thus:  

―The function of particulars is to carry into operation the  

overriding principle that the litigation between the parties,  

and particularly the trial, should be conducted fairly, openly  

and without surprises, and incidentally to reduce costs. This  

function has been variously stated, namely either to limit the  

generality of the allegations in the pleadings, or to define the  

issues which have to be tried and for which discovery is  

required.‖  

(See: Pleadings Vol. 36, para 38)  

15. In Bullen and Leake and Jacob‘s ―Precedents of  

Pleadings‖ 1975 Edn. at p. 112 it is stated:  

―The function of particulars is to carry into operation the  

overriding principle that the litigation between the parties,  

and particularly the trial, should be conducted fairly, openly  

and without surprises and incidentally to save costs. The  

object of particulars is to ‗open up‘ the case of the opposite  

party and to compel him to reveal as much as possible what  

is going to be proved at the trial, whereas, as Cotton L.J. has  

said, ‗the old system of pleading at common law was to  

conceal as much as possible what was going to be proved at  

the trial‘.‖  

16. The distinction between ‗material facts‘ and ‗particulars‘  

which together constitute the facts to be proved — or the  

facta probanda — on the one hand and the evidence by  

which those facts are to be proved — facta probantia — on  

the other must be kept clearly distinguished. In Philipps v.  

Philipps33, Brett, L.J. said:  

―I will not say that it is easy to express in words what are the  

facts which must be stated and what matters need not be  

stated. … The distinction is taken in the very rule itself,  

between the facts on which the party relies and the evidence  

                                                           33

 (1878) 4 QBD 127, 133

35    

to prove those facts. Erle C.J. expressed it in this way. He  

said that there were facts that might be called the allegata  

probanda, the facts which ought to be proved, and they were  

different from the evidence which was adduced to prove  

those facts. And it was upon the expression of opinion of  

Erle C.J. that Rule 4 [now Rule 7(1)] was drawn. The facts  

which ought to be stated are the material facts on which the  

party pleading relies.‖  

17. Lord Denman, C.J. in Willians v. Wilcox34 said:  

―It is an elementary rule in pleading that, when a state of  

facts is relied it is enough to allege it simply, without setting  

out the subordinate facts which are the means of proving it,  

or the evidence sustaining the allegations.‖  

18. An election petition can be rejected under Order VII  

Rule 11(a) CPC if it does not disclose a cause of action.  

Pleadings could also be struck out under Order VI Rule  

16, inter alia, if they are scandalous, frivolous or  

vexatious. The latter two expressions meant cases where  

the pleadings are obviously frivolous and vexatious or  

obviously unsustainable.‖  

  (emphasis supplied)  

23. In the case of Harkirat Singh (supra), this Court once again  

reiterated thus:   

 ―46. From the above provisions, it is clear that an election  

petition must contain a concise statement of ―material facts‖  

on which the petitioner relies. It should also contain ―full  

particulars‖ of any corrupt practice that the petitioner  

alleges including a full statement of names of the parties  

alleged to have committed such corrupt practice and the  

date and place of commission of such practice. Such election  

petition shall be signed by the petitioner and verified in the  

manner laid down in the Code of Civil Procedure, 1908  

                                                           34

(1838) 8 Ad & EI 331

36    

(hereinafter referred to as ―the Code‖) for the verification of  

pleadings. It should be accompanied by an affidavit in the  

prescribed form in support of allegation of such practice and  

particulars thereof.  

47. All material facts, therefore, in accordance with the  

provisions of the Act, have to be set out in the election  

petition. If the material facts are not stated in a petition, it is  

liable to be dismissed on that ground as the case would be  

covered by clause (a) of sub-section (1) of Section 83 of the  

Act read with clause (a) of Rule 11 of Order 7 of the Code.  

48. The expression “material facts” has neither been  

defined in the Act nor in the Code. According to the  

dictionary meaning, “material” means “fundamental”,  

“vital”, “basic”, “cardinal”, “central”, “crucial”,  

“decisive”, “essential”, “pivotal”, “indispensable”,  

“elementary” or “primary”. Burton’s Legal Thesaurus  

(3rd Edn.), p. 349.] The phrase “material facts”,  

therefore, may be said to be those facts upon which a  

party relies for its claim or defence. In other words,  

“material facts” are facts upon which the plaintiff’s  

cause of action or the defendant’s defence depends.  

What particulars could be said to be “material facts”  

would depend upon the facts of each case and no rule of  

universal application can be laid down. It is, however,  

absolutely essential that all basic and primary facts  

which must be proved at the trial by the party to  

establish the existence of a cause of action or defence  

are material facts and must be stated in the pleading by  

the party.‖  

      (emphasis supplied)  

Again in paragraphs 51 & 52, this Court observed thus:  

“51. A distinction between “material facts” and  

“particulars”, however, must not be overlooked.  

“Material facts” are primary or basic facts which must be

37    

pleaded by the plaintiff or by the defendant in support of  

the case set up by him either to prove his cause of  

action or defence. “Particulars”, on the other hand, are  

details in support of material facts pleaded by the party.  

They amplify, refine and embellish material facts by  

giving distinctive touch to the basic contours of a  

picture already drawn so as to make it full, more clear  

and more informative. “Particulars” thus ensure conduct  

of fair trial and would not take the opposite party by  

surprise.  

52. All ―material facts‖ must be pleaded by the party in  

support of the case set up by him. Since the object and  

purpose is to enable the opposite party to know the case he  

has to meet with, in the absence of pleading, a party cannot  

be allowed to lead evidence. Failure to state even a single  

material fact, hence, will entail dismissal of the suit or  

petition. Particulars, on the other hand, are the details of the  

case which is in the nature of evidence a party would be  

leading at the time of trial.‖  

And again in paragraph 72, the Court noted thus:   

―72. The Court, however, drew the distinction between ―material facts‖  

and ―particulars‖. According to the Court, “material facts” are facts,  

if established would give the petitioner the relief prayed for. The  

test is whether the Court could have given a direct verdict in favour  

of the election petitioner in case the returned candidate had not  

appeared to oppose the election petition on the basis of the facts  

pleaded in the petition.‖  

       (emphasis supplied)      24. In Ashraf Kokkur (supra), this Court adverted to the  

exposition in M. Kamalam Vs. V.A. Syed Mohammed, 35 and G.M.  

                                                           35

 (1978) 2 SCC 659

38    

Siddeshwar Vs. Prasanna Kumar36  and in paragraph 21 noted  

that the pleadings must be taken as a whole to ascertain whether  

the same constitute the material facts involving triable issues. In  

paragraph 22, the Court observed as follows:   

―22. After all, the inquiry under Order 7 Rule 11(a) CPC is only as to  

whether the facts as pleaded disclose a cause of action and not complete  

cause of action. The limited inquiry is only to see whether the  

petition should be thrown out at the threshold. In an election  

petition, the requirement under Section 83 of the RP Act is to provide a  

precise and concise statement of material facts. The expression  

“material facts” plainly means facts pertaining to the subject-matter  

and which are relied on by the election petitioner. If the party does  

not prove those facts, he fails at the trial.‖  

       (emphasis supplied)  

25. The Court then went on to analyse the decision of a three-

Judge Bench in the case of V.S. Achuthanandan Vs. P.J.  

Francis37,  wherein it has been observed that an election petition  

was not liable to be dismissed in limine merely because full  

particulars of corrupt practice alleged were not set out. Further,  

material facts are such primary facts which must be proved at the  

trial by a party to establish existence of a cause of action. It has  

also  observed that so long as the claim discloses some cause of  

action or raises some questions fit to be decided by a Judge, the  

                                                           36

 (2013) 4 SCC 776  37

 (1999) 3 SCC 737

39    

mere fact that the case is weak and not likely to succeed is no  

ground for striking it out. Further, the implications of the liability of  

the pleadings to be struck out on the ground that it discloses no  

reasonable cause of action are generally more known than clearly  

understood and that the failure of the pleadings to disclose a  

reasonable cause of action is distinct from the absence of full  

particulars. This decision also adverts to the case of Ponnala  

Lakshmaiah Vs. Kommuri Pratap Reddy,38  wherein the Court  

observed that the Courts need to be cautious in dealing with  

request for dismissal of the petition at the threshold and exercise  

their power of dismissal only in cases where on a plain reading of  

the petition no cause of action is disclosed.   

 26. The counsel for the contesting respondent has relied on the  

decisions in Pendyala Venkata Krishna Rao Vs. Pothula Rama  

Rao (supra), particularly paragraphs 8-10, 11 and 16 of the  

reported decision. In that case, on facts, the Court found that  

necessary material facts in relation to the ground of improper  

acceptance of nomination form were not pleaded by the election  

                                                           38

 (2012) 7 SCC 788

40    

petitioner. In the present case, we have held that there is  

discernible pleading as to what objections were taken before the  

Returning Officer and as to why he was in error in not rejecting the  

nomination of respondent No.1.   

 27. The counsel for the contesting respondent also relied on the  

decision in Samant N. Balkrishna Vs. George Fernandez39. No  

doubt this decision predicates that election petition is a statutory  

proceedings and not an action at law or suit in equity. There can be  

no debate with regard to this proposition. At the same time, we  

cannot be oblivious about the scope of the enquiry permissible at  

this stage by the election court/tribunal while considering the  

application under Order VII Rule 11(a) of C.P.C.   

 28. In Kuldeep Singh Pathania (supra), the decision of the High  

Court which is similar to one under consideration (namely the  

impugned judgment) had accepted the explanation offered by the  

respondents and meticulously dealt with it to conclude that the  

petition did not disclose any cause of action since it lacked material  

facts. The High Court passed that order purportedly in exercise of  

                                                           39

 (1969) 3 SCC 238

41    

power under Order XIV Rule 2. This Court pointed out the  

distinction between an order under Order VII Rule 11 to reject the  

election petition in limine for non disclosure of cause of action and  

an order under Order XIV Rule 2 for disposal of the petition on a  

preliminary issue. In that case, the order passed by the High Court  

was relatable only to Order VII Rule 11. This Court adverted to the  

decisions in Mayar (H.K.) Ltd. and Ors. Vs. Owners and Parties  

Vessel M.V. Fortune Express and Ors. 40  and Virendra Nath  

Gautam Vs. Satpal Singh and Ors.,41  and explicated that under  

Order VII Rule 11(a), only the pleadings of the plaintiff-petitioner  

can be looked at as a threshold issue. Whereas, entire pleadings of  

both sides can be looked into for considering the preliminary issue  

under Order XIV Rule 2. Neither the written statement nor the  

averments or case pleaded by the opposite party can be taken into  

account for answering the threshold issue for rejection of election  

petition in terms of Order VII Rule 11 (a) of the Act.  

 29. Whether the material facts as asserted by the appellant can  

stand the test of trial and whether the appellant would be able to  

                                                           40

 (2006) 3 SCC 100  41

 (2007) 3 SCC 617

42    

bring home the grounds for declaring the election of respondent  

No.1 to be void, is not a matter to be debated at this stage.  Suffice  

it to observe that the averments in the concerned paragraphs of the  

election petition, by no standard can be said to be frivolous and  

vexatious as such. The High Court committed manifest error in  

entering into the tenability of the facts and grounds urged in  

support thereof by the appellant on merit, as is evident from the  

cogitation in paragraphs 16 to 22 of the impugned judgment.   

 30. It is not necessary to multiply authorities on this point. The  

High Court has opined that the contents of paragraphs 2 & 9 to 11  

of the election petition did not furnish ―any‖ material facts but were  

only in the nature of fulminating and lampooning order of the  

Returning Officer for having unduly rejected the objections taken by  

the appellant whilst accepting the nomination form submitted by  

respondent No.1. The High Court broadly referred to the contents of  

the concerned paragraphs of the election petition, but the analysis  

of the High Court in that behalf is not correct. We have elaborately  

adverted to the contents of paragraphs 2 & 9 to 11 of the election  

petition. We find force in the argument of the appellant that the

43    

said paragraphs plainly disclose the facts, which are material facts  

for adjudicating the grounds for declaring the election of respondent  

No.1 as being void, because of improper acceptance of his  

nomination form by the Returning Officer (respondent No.8): To wit;   

(i) The Returning Officer has improperly accepted the  

nomination paper of the respondent No.1 despite the  

categorical objections raised, being contrary to Rule 35 of  

Civil Rules of Practice, Rule 4A of the Conduct of Election  

Rules, 1961 and also contrary to the judgment of this Court  

in Resurgence India (supra).   

(ii) Respondent No.1 failed to sign each and every page of the  

affidavit (Form No.26), which is in violation of Civil Rules of  

Practice, Conduct of the Election Rules and Hand Book of  

Returning Officer-2014 under Chapter 5.20.1.  

(iii) Respondent No.1 failed to fill up the Column No.4 and  

Column No.2 under the head of Total Income shown in  

Income Tax Returns, of the said affidavit (Form No.26).  

(iv) The Column No.6 of said two sets of affidavit has not been  

properly struck off, whichever is not applicable.  

44    

(v) Column No.8(B)(III), where the words stand for  

―Approximate Current Market Price of…‖ at Part-B of 11  

abstracts of the details given in (1) to (10) of Part A of the  

said affidavits, which is mandatory as per Election Rules,  

judgments of this Court and Circular and Instructions  

issued by the Returning Officer.   

(vi) Omission and blank Columns left in the said affidavits are  

not at all a technical mistake. The respondent No.1 was  

very much aware of the said rules and the law.   

(vii) The Returning Officer did not follow the stated Rules and  

law, and has favoured the respondent No.1 by accepting the  

improper nomination/affidavit filed by him, enabling him to  

contest the election, which is abuse of the processes of law  

in light of the judgment of this Court (Resurgence India).  

(viii) The Returning Officer (R-8) ought to have rejected the  

improper nomination of the respondent no.1 on 21.04.2014  

itself at the threshold as contemplated under Section  

100(1)(d)(i) of the Representation of People Act.   

(ix) The respondent No.1 misrepresented the Election  

Commission as well as the Returning Officer (R-8) in a

45    

casual manner by giving false information at Para 7A of  

details of Immovable Assets in his two set of affidavits  

under Form-26 by showing the gross total value of  

Rs.2,79,67,680 instead of  3,00,67,680 and deliberately did  

not count the Column amount at 7(vii) of Rs.21,00,000/-.  

(x) Form No.26 of two sets of nomination paper of Respondent  

No.1 be read as Annexure-XIII for prosecution of the  

election petition along with the grounds mentioned in the  

petition. In the grounds at para 11 of the election petition,  

the appellant has re-agitated these contentions.     

 31. Indubitably, the requirement of putting one‘s signature on  

each and every page on the affidavit has been restated in the case of  

Resurgence India (supra). It is held that when a candidate files an  

affidavit with blank particulars it renders the affidavit itself  

nugatory. Inasmuch as, the purpose of filing affidavit (form No.26)  

along with nomination papers is to effectuate the fundamental right  

of the citizens under Article 19 (1) (a) of the Constitution of India,  

who are entitled to have the necessary information of the candidate  

at the time of his filing of the nomination papers in order to make a

46    

choice of their voting. In Paragraphs 25 and 26 of this judgment,  

the Court clarified that the observations made in paragraph 73 of  

the judgment in People’s Union for Civil Liberties Vs. Union of  

India,42  will not come in the way of the Returning Officer to reject  

the nomination paper if the said affidavit is filed with blank  

columns. It further observed that the candidate must take the  

minimum effort to explicitly remark as ―NIL‖ or ―Not Applicable‖ or  

―Not Known‖ in the columns and not to leave the particulars blank,  

if he desires that his nomination paper be accepted by the  

Returning Officer during the scrutiny of nomination in exercise of  

powers under Section 36 (6) of the 1951 Act being invalid  

nomination found and hit by Section 125-A (i) of the 1951 Act. In  

paragraph 27 of the judgment, the Court observed thus:  

 ―27. If we accept the contention raised by the Union of India viz. the  candidate who has filed an affidavit with false information as well as the  

candidate who has filed an affidavit with particulars left blank should be  

treated on a par, it will result in breach of fundamental right guaranteed  

under Article 19(1) (a) of the Constitution viz. ―right to know‖, which is  

inclusive of freedom of speech and expression as interpreted in Assn. for  

Democratic Reforms.‖         

                                                           42 (2003) 4 SCC 399

47    

The conclusions and directions articulated in paragraph 29 of the  

decision, read thus:  

“29. What emerges from the above discussion can be   summarized in the form of the following directions:  

29.1. The voter has the elementary right to know full particulars of  a candidate who is to represent him in Parliament/Assemblies and  such right to get information is universally recognized. Thus, it is  

held that right to know about the candidate is a natural right  flowing from the concept of democracy and is an integral part of  Article 19(1)(a) of the Constitution.   

29.2. The ultimate purpose of filing of affidavit along with the  nomination paper is to effectuate the fundamental right of the  

citizens under Article 19(1)(a) of the Constitution of India. The  citizens are supposed to have the necessary information at the  time of filing of nomination paper and for that purpose, the  

Returning Officer can very well compel a candidate to furnish the  relevant information.   

29.3. Filing of affidavit with blank particulars will render the  affidavit nugatory.   

29.4. It is the duty of the Returning Officer to check whether  

the information required is fully furnished at the time of filing  of affidavit with the nomination paper since such information  is very vital for giving effect to the “right to know” of the  

citizens. If a candidate fails to fill the blanks even after the  reminder by the Returning Officer, the nomination paper is fit  

to be rejected. We do comprehend that the power of the Returning  Officer to reject the nomination paper must be exercised very  sparingly but the bar should not be laid so high that the justice  

itself is prejudiced.   

29.5. We clarify to the extent that para 73 of People’s Union  

for Civil Liberties case will not come in the way of the  

Returning Officer to reject the nomination paper when the  affidavit is filed with blank particulars.   

29.6. The candidate must take the minimum effort to  explicitly remark as “NIL” or “Not Applicable” or “Not known”  in the columns and not to leave the particulars blank.

48    

29.7. Filing of affidavit with blanks will be directly hit by  Section 125-A(i) of the RP Act. However, as the nomination  

paper itself is rejected by the Returning Officer, we find no  reason why the candidate must be again penalized for the  

same act by prosecuting him/her.‖  

(emphasis supplied)  

32. The purport of assertions made in the election petition was to  

highlight this aspect in support of the ground for declaring the  

election of respondent No.1 as being void on account of improper  

acceptance of his nomination form by the Returning Officer  

(respondent No.8).  

 33. To put it differently, the approach of the High Court in  

considering the two applications is, in our opinion, manifestly  

erroneous, if not perverse. For, it has ventured into the arena of  

analysis of the matter on merit. That is a prohibited area at this  

stage.  Since the conclusion reached by the High Court that the  

pleadings in paragraphs 2 and 9 to 11 of the election petition are  

frivolous and vexatious is untenable, it would necessarily follow  

that the election petition, as filed, will have to be examined as a  

whole without subtracting any portion therefrom. If so read, it is not  

possible to take a view that the same does not disclose any cause of

49    

action at all. On this finding, the application preferred by  

respondent no.1 for rejection of election petition in limine under  

Order VII Rule 11, cannot be countenanced and must also fail.   

34. The only other plea of respondent No.1 that needs examination  

is about the absence of averment in the election petition that  

because of improper acceptance of nomination form of respondent  

No.1, it has materially affected the election results of respondent  

No.1. Even this contention should not detain us in light of the  

exposition in the recent decision of this Court in M. Prithviraj  

(supra). For, the case of Durai Muthuswami Vs. N. Nachiappan  

and Ors.,43 noticed in this judgment, it has been observed that in  

the case of election to a single member constituency, if there are  

more than 2 candidates and the nomination of one of the defeated  

candidates had been improperly accepted, a question might arise as  

to whether the result of the election of the returned candidate had  

been materially affected by such improper reception.  That would  

not be so in the case of challenge to the election of the ―returned  

candidate" himself on the ground of improper acceptance of his  

                                                           43

 (1973) 2 SCC 45

50    

nomination. In paragraph 23 of the judgment in M. Prithviraj  

(supra), after analysing the exposition in Durai Muthuswami  

(supra), the Court observed thus:  

 ―23. It is clear from the above judgment in Durai  

Muthuswami that there is a difference between the improper  

acceptance of a nomination of a returned candidate and the  

improper acceptance of nomination of any other candidate.  

There is also a difference between cases where there are only  

two candidates in the fray and a situation where there are  

more than two candidates contesting the election. If the  

nomination of a candidate other than the returned candidate  

is found to have been improperly accepted, it is essential  

that the election petitioner has to plead and prove that the  

votes polled in favour of such candidate would have been  

polled in his favour. On the other hand, if the improper  

acceptance of nomination is of the returned candidate,  

there is no necessity of proof that the election has been  

materially affected as the returned candidate would not  

have been able to contest the election if his nomination  

was not accepted. It is not necessary for the respondent to  

prove that result of the election insofar as it concerns the  

returned candidate has been materially affected by the  

improper acceptance of his nomination as there were only  

two candidates contesting the election and if the appellant‘s  

nomination is declared to have been improperly accepted, his  

election would have to be set aside without any further  

enquiry and the only candidate left in the fray is entitled to  

be declared elected.‖  

       (emphasis supplied)  

35. The Court then noted that the decision in Durai Muthuswami  

(supra), has been followed in Jagjit Singh Vs. Dharam Pal Singh

51    

and Ors.44 . This Court then adverted to its earlier decision in  

Vashist Narayan Sharma Vs. Dev Chandra & Ors.45, paragraph  

9 thereof. That has been extracted in paragraph 25 of the judgment  

in M. Prithviraj (supra).   

36. In Duni Chand (supra), this Court was called upon to  

consider whether the nomination paper submitted by the appellant  

therein was improperly accepted by the Returning Officer. It  

observed that if the Returning Officer had rejected the nomination  

paper of the appellant therein at the time of scrutiny, the order of  

rejection would have been valid.  As a result, the appellant could  

not have participated in the election process and there would have  

been no occasion for him to be elected. It would therefore, follow  

that improper acceptance of his nomination by the Returning  

Officer has inevitably materially affected his result of the election.  

37.   The respondent No.1 on the other hand, has relied on the  

decision in Mangani Lal Mandal (supra).  In this case, the election  

was challenged by invoking the ground under Section 100(1)(d)(iv)  

and in that context the Court observed that it was essential for the  

                                                           44

 (1995) Supple (1) SCC 422  45

(1955) 1 SCR 509 = AIR 1954 SC 513

52    

election petitioner to plead material facts that the result of the  

election in so far as it concerned the returned candidate has been  

materially affected, by such observance or non-observance. In the  

present case, the election is challenged by invoking ground of  

improper acceptance of nomination of the respondent No.1 –  

returned candidate under Section 100(1)(d)(i). Even the other case  

i.e. Shambhu Prasad (supra), relied by respondent No.1 will be of  

no avail.  In that case, 22 candidates had filed their nomination  

papers for election from the concerned constituency, out of which  

only 17 candidates were left in the fray besides the election  

petitioner, after withdrawal of nomination papers of 4 of such  

candidates. The margin of victory between respondent No.1 and  

Karuna Shukla, who emerged as his nearest rival, was more than  

20,000 votes. The appellant in that case had polled 21,000 votes.   

He filed an election petition before the High Court seeking a  

declaration about his having been elected. Notably, the ground for  

declaring the election to be void was not because of improper  

acceptance of nomination form of the returned candidate per se but  

because of improper acceptance of nomination papers of other  

defeated candidates.

53    

38. Our attention has also been invited by the learned counsel to  

L.R. Shivaramagowda (supra), with particular emphasis on  

paragraph 10 and 11, wherein the Court observed that in order to  

declare an election to be void under Section 100(1)(d)(iv) it is  

absolutely necessary for the election petitioner to plead that the  

result of the election insofar as it concerns the returned candidate  

has been materially affected. In the present case, the election  

petition is in reference to the ground of improper acceptance of  

nomination form of respondent No.1 – the returned candidate under  

Section 100(1)(d)(i).  Thus, if that plea is accepted and the election  

of respondent No.1 is declared to be void, it would necessarily follow  

that the election result of the returned candidate has been  

materially affected.   

39. The respondents had then contended that the election  

petitioner cannot be permitted to bring or introduce a new ground  

or cause of action beyond limitation period of 45 days of declaration  

of the result of the election. We do not wish to dwell upon this  

issue. In our opinion, this contention will have to be addressed by  

the High Court in the first instance. The High Court, without

54    

recording any reason has disposed of the applications filed by the  

election petitioner (appellant) as the election petition itself was  

dismissed in limine. Since the election petition will stand restored  

before the High Court, to subserve the ends of justice, the  

applications preferred by the election petitioner (appellant) will also  

stand restored for being heard by the High Court on its own merit  

and to decide it in accordance with law. As a result, it is not  

necessary for us to dilate on the decision relied by the respondents  

in the case of Harmohinder Singh (supra).  We leave this  

contention open to be decided by the High Court at the appropriate  

stage.  

40. Taking any view of the matter, therefore, the impugned  

judgment of the High Court in allowing both the applications filed  

by respondent no.1 cannot stand the test of judicial scrutiny. For,  

we do not find any merit in the plea of the respondent No.1 that  

paragraphs 2 & 9 to 11 of the election petition are frivolous and  

vexatious, which contention erroneously commended to the High  

Court. On the other hand, we are of the considered opinion that the  

subject election petition plainly discloses cause of action for filing of

55    

the election petition to declare the election of respondent No.1 to be  

void on the ground of improper acceptance of his nomination.   

41. We make it clear that we may not be understood to have  

expressed any opinion on the merits of the other issues to be  

decided by the High Court. In other words, our analysis is limited to  

the threshold matter considered in this judgment about the striking  

off of the pleadings and rejection of the election petition in limine.  

42. In light of the above, we hold that E.A. No.329 of 2015 and EA  

No.330 of 2015, both filed by respondent No.1 in the subject  

election petition, deserve to be rejected. Further, the Election  

Petition No.8 of 2014 shall stand restored to the file of the High  

Court to its original number for being proceeded further in  

accordance with law. Similarly, the applications filed by the  

appellant shall stand restored (except the application for early  

hearing), to their original numbers to be decided by the High Court  

in accordance with law.  

43. As regards the application for early hearing of the election  

petition filed by the appellant before the High Court, the same be  

treated as disposed of in terms of this order.  The imperativeness of

56    

expeditious disposal of the election petition is underscored in  

Section 86(7) of the 1951 Act. As per the said provision, the trial of  

the election petition is required to be disposed of preferably within  

six months from the date of its presentation before the High Court.   

Besides, this Court in the case of Mohd. Akbar (supra) has  

highlighted the necessity of discharging the pious hope expressed  

by the Parliament. Therefore, we may only request the High Court  

to expeditiously dispose of the election petition preferably within  

three months from the production of a copy of this judgment by  

either party before it.  

44. Accordingly, these appeals are allowed in the above terms with  

no order as to costs.  

.………………………….CJI.  

            (Dipak Misra)  

…..……………………..….J.   (A.M. Khanwilkar)    

….……………………..….J.  New Delhi;         (Dr. D.Y. Chandrachud)  March 21, 2018.