We use 'had been' when you describe something that happened in the past before something else in the past.

The word WITHOUT in the sentence tells us that the speaker has run without breaks.

Article 226. All elections under the Constitution, other than those of the Prime Minister and the Chief Minister, shall be by secret ballot.

Diego Armando Maradona was an Argentine professional football player and manager. 

Emir of Kuwait Nawaf Al-Ahmad Al-Jaber Al-Sabah since 30 September 2020

The Government of India Act 1919  was an Act of the Parliament of the United Kingdom.

It was passed to expand participation of Indians in the government of India.

The Nehru Report of 28 August 1928 was a memorandum to appeal for a new dominion status and a federal set-up of government for the constitution of India.

It also proposed for the Joint Electorates with reservation of seats for minorities in the legislatures.

The Indian Statutory Commission also known as Simon Commission, was a group of seven Members of Parliament under the chairmanship of Sir John Simon

The Global Consortium for Digital Currency Governance will aim to increase access to the financial system through innovative policy solutions that are inclusive and inter-operable.

Vladimir Putin

since 7 May 2012