M/S. BHIKUSE YAMASA KSHATRIYA (P) LTD., & ANR. versus UNION OF INDIA AND ANOTHER

M/s. BHIKUSE YAMASA KSHATRIYA (P) LTD., & ANR.

UNION OF INDIA AND ANOTHER

(P. B. GAJENDRAGADKAR, K. N. WANCHOO, M. HmAYATULLAH, K. C. DAS GUPTA and ]. C. SHAH, jj.)

Bidi Rolur-Deemtil worker by Government Notification-Notification, if invalid and discriminatory-If infringu fundamenlal right-Fa<Joriu Acl, 1948, u. 2 (1), 2 (m), 79, 85-Constitulion of India, Art.. 14, 19 (1) (9).

Bidi rollers were formerly given the benefit of weekly holidays and wage• in lieu of holidays. But as result of the decision of this Court, the owners of bidi making establishments in the State of Maharashtra refused to give them tho.c benefits. There was great unrest and consequently the State of Maharashtra issued notification under '· 85 of the FactoriC! Act which made bidi rollers in places set out in the Schedule "deemed workers" and on that account entitled to the benefits provided to workers under the Factories Act. The petitioners challenged before this Court the validity of s. 85 of the Factories Act and the notific .. tion ismed in exercise of the authority conferred thereby on the ground that the provisions of s. 8.'"1 and the notification issued thereunder infringed the fundamental rights of the petitioner• °\der Arts. 14 and 19 (I) (g) of the Constitution.

Held, thats. 85 which authorises tho State Government to issue notification applying all or any of the provisions of the Factories Act to any place in which manufacturing process is carried on and which involves the consequence that the place is deemed factory and the persons working therein are deemed workers, is not by itself discriminatory so as to infringe Art. 14 of the Constitution. The provision also does not amount to authorising the imposition of unreasonable re9trictions upon the fundamental right of the owner of the factory to carry on hi• business. The impugned notification is not open to attack on the ground that the State issued the notification by selecting for application of the provisions of the Act some out qf the

1 S.C.R.

many places in which Bidi-manufacturing processes are being carried on. In so far as the notification seeks to apply the provisions of the Act imposing upon the owner or an occupier of the factory obligation to grant annual leave with" wages, it does not impose any unreasonable restriction.

Section 85 was enacted with the object of conferring authoiity on the State Government to extend in appropriate cases the provisions of the Factories Act to establishments which are otherwise not factories within the meaning of the Act and to ensure to persons working in factories even if not workers within the meaning of the Act, the benefits provided thereby. The section o.uthorises the State Government to make all or some of the provisions of the Act applicable to any place where-in manufacturing process is carried on with or without the aid of power, notwithstanding that the number of persons employed therein is less than the number >pecified in the definition of •factory' or where the persons working therein are not employed by the owner but are working with the permission of, or under agreement with, such owner. Ifs. 79 is made applicable as result of notifi ·at ion issued under s. 85, it would apply to those workers only who work in the factory for the full period prescri'>ed 11nder ss. 61, 66 (I) and 71 of. the Factories Act by the employer. 'deen1ed worker' who is paid only for w0rk done hy him and who is ug,der no obligation to attend at anv fixe<l tiine may be entitled to the benefit of annual leave with wages only if he fulfil• the working conditions applicable to workers as defined in s. 2 (I) of the factories Act The privilege of working for period less than the period prescribed for regular workers in factory wHl not, if he works for less than the prescribed hours, co1ne to the aid of "deemed worker" so as to enable him to claim the benefits of s. 79. iwever, that privilege will not deprive him of the benefit of s. 79 if he fulfils the conditions relating to the duration of wo,k. The fact that "deemed worker'' in fartory co which s. 79 is extended by notification, by virtue of his co:1tract or other\vise, is not bound to attend at times fixed by the owner of the factory, does not mean that he can never fulfil the cunditions relating to attendance for earning leave with wages. If "deemed worker'' attends the factory for the full duration fixed as factory hours and works for 240 days or more during calendar yeai, he would be entitled to the benefits of ss. 75 and 80 of the Act.

The Factories Act is an Act to consolidate and amend the law regulating labour in factories The Act has bren

M/s. Bhikuu Yamasa Ksh11tTiya (P) Ltd. v. Union of India

M /J. Bh:k14>t r amasa l\shGl,i)a (P) Ltd. v. Uni()J1 of /Mia

Sh4h, J.

enacted primarily with the object of protecting work<rs employed in factories against industrial and occupational hazards. For that purpose, it seek, tu itnpo!e upon the owner or the occupier certain ol>\lgation:s to protect the workers unv..·ary as well as negligent and to secure for thc1n employment in conditions conducive to their health and safety.

Stat< v. Ali"aheb K·ashim Tam~oli, 1.L.R. 1955 Born. 642, Shankar Bolaji Woji v. State of .lfaharrJ.!htra, [1962] Supp. 1 S.C.R. 249, Ram Chandra v. State (1956) l.L.R. 35 Pat. 877, Ms. f{hikusa }'a11iasa KtJhatriya v. i9angamner kola 'l'aluka Bidi Kamlar Union, [ 1963] Supp. 1 S.C.R. 524. and Bridhichand Sharma v. The Fi"t Civil Judge, Nagpur, (1961] 3 S.C.R. 161, referred to.

ORIO!::\° AL Jc-RISDlCTIO::\" : Writ Petition N'o. 145 of 1962.

Petition under Art. 32 of the Constitution of India for enforcement of Fundamental rights.

G. S. Path<1k, J. B. Dadachanji, 0. C. Mathur for the petitionrrs.

C. K. Daphrory,

Solicitor.General of India,

N. S. Bindra and R. H. Dhebar, for the respondents.

1963. February 8. was delivered by

The .Judgment of the Court

SHAil, J.-The first petitioner is private limited Company incorporated under the Indian Companies Act, I !ll:l and the second petitioner is Director of the Company. ·1 he Company maintains 23 establishments for manufacturing bidis in the District of Nasik, Poona and Ahmcdnagar in the State of ;'\faharashtra. large majority of these establishments are borne on the registar of factories maintained by the Chief Inspector of Factories under the Factories Act, u:l of I 948. Crafrsmen called rollers, attend these est<!blishments and prepare bidis,

using materials supplied by the Company. The esta· blishments remain open during specified hours but the rollers are not bound to attend for any fixed period ; roller may come to and leave the establishment according as is convenient to him, and he is paid for the bidis turned out by him according to fixed tariff. It appears that this is the accepted modus of work in bidi establishments in the Maharashtra region. These establishments were, it was held by the Bombay High Court, 'factories' and the rollers work· ing therein were 'workers' within the meaning of the Factories Act 63 of 1948: 'l'he State v. Alisaheb Kashim Tamboli ([1]). In that case the High Court held that the expression 'employed' in s. 2 (I) of the Factories Act, 1948 does not necessarily involve the relationship of master and servant, and therefore owners of bidi establishments had to conform to the requirements of the Factories Act and to afford to the workers the benefits provided under that Act, even though the workers did not maintain uniform hours of attendance, and were paid only for bidis turned out by them. But this Court in Sh·infor B"laji Waje v. 'l'hg Sfote of Mahnmshtra (2) - (Sul:ba Rao, J. dissenting)- held in dealing with the case of workers in an establishment for manufacturing bidis whose at!endance was characterised by the features hereinafter set out, that they were not employed with· in the meaning of s. 2 ( 1 ), and could not claim the privileges accorded to workers by ss. 79 and 80 of that Act. The features noticed by the Court were, that there was no agreement or con tract of service between the owner of the establishment and the bidi roller; the bidi roller was not bound to attend the factory for any fixed hours or to work for any fixed period; he was free to go to the factory at any time he liked and was equally free to leave the factory whenever he liked; the bidi roller could be absent from work on any day, and if his absence was expect· ed to be of duration longer than ten days he informed the owner not because he had to obtain

M/s, Bhikuse Yarna.ra .K.shot,jya (P) ltd. v. Uni.,n of India

SMti, J.

(Ii I.L.R. 1955 Born. 624.

(2) [1962] Supp. I S.C.R. 240.

M/1. Bllikwt Yamafa KJhatriya (/>) Ltd. v. · Unim of I ndill Shah, J.

permission or leave, but for assuring the owner that he did not intend to give up work at the factory; there was no actual supervision of work which the bidi roller did in the factory, and he wa~ paid at fixed rates on the quantity of bidis turned out there being no stipulation for turning out any minimum quantity of bidis in day; bidi leaves were supplied to the rollers for being taken home and cut and tobacco was supplied at the factory, but they were not bound to roll bidis at the factory - they could take the mattrials outside after obtaining permission of the owner; at the close of the day the bid is used to be delivered to the owner and bidis not up to the standard were rejected; and the bidi worker's atten-dance was not noted though the days he worked could be ascertained from the work register. The Court held on these facts that the bidi roller could not be said to be 'employed' by the owner and was not therefore worker, there being no contract of employment, under which the bidi roller agreed to serve the employer subject to his control and super-vision.

Since this judgment was pronounced, owners of bidi making establishmeuts in the State of Maharashtra commenced denying to the bidi rollers benefit of weekly holidays and wages in lieu of holi-days previously accordtd to them and even denied access to the Inspectors appointrd under the Factories Act to their establishments. There arc in the State of Maharashtra more than :l5000 birli rollers borne on the pay rolls of bidi-making establishments on the register maintained by the Chief Impector of Factories. There arc also many other bidi making establishments which are not so borne on the register of the Chief Inspector. There was grave unrest among the bidi rollers resulting from the denial of benefits previously enjoyed by them. With view to protect the bidi rollers against exploitation by the owners of bidi making establishments and against

deprivation of the benefit~ enjoyed by them, the Government of Maharashtra issued the following Notification in exercise of the powers vested under s. 85 of the Factories Act : -

"In exercise of the powers

conferred -by

section 85 of the Factories Act, 1948 (LXIII of 1948), the Government of Maharashtra hereby declares that all the provisions of the said Act shall apply to the places specified in column 2 of the Schedule appended hereto wherein manufacturing process is carried on with or without the aid of power or is so ordinarily carried on the establishments specified against thrm in column 3 of the said Schedule notwith-standing that the persons working therein are not employed by the owner of such places but are working with the permission of or unrler agreement with such owner :

Provided that the manufacturing process is not being carried on by the owner only with the aid of his family."

To the notification was appended Schedule (includ-

ing many of the establishments of the Company) setting out the particulars of Districts, the places where the establishments were situate and the names of the establishments. The effect of the Notification was to make bidi rollers in places set out in the Schedule 'deemed workers", and on that account entitled to the benefits provided to workers under the Factories Act.

The petitioners then challenged by this petition the validity of s. 85 of the Factories Act and the Notification issued in exercise of the authority conferred thereby, on the plea that the provisions of the section and the Notification issued thereunder infringe the fundamental rights of the petitioners under Arts. 14 and 19 ( l) (g) of the Constitution.

IHI

M/s. Bhikus1 fam'1.t Kshalriy• (P1 Lit. ... Union of InJi'tA Shah, _j.

'Factory' is defined in s. 2 (m) or the Act cs meaning "a~y premises including the precincts thereof:-

Af/r 8hiku11 ramasa KJ.Wri.ra (/') ltd. v. Union ~f Indio

(i) Whereon ten or more workers are working, or were working on any day of the preceding twelve months, and in any part of which manufacturing process is being carried on with the aid of power, or is ordinarily so carried on, or

S•ah J.

Iii) Whereon twenty or more workers are working, or were working on any day of the preceding twelve months, and in any part of which manufacturing process is being carried on without the aid of power, or is ordinarily.so carried on,-

but does not include mine subject to the operation of the Mines Act, l 9:i2, or railway running shed;" 'Worker' is defined ins. 2 (1) of the Act as meaning "a person employed, directly or through any agency, whether for wages or not, in anv manufacturing process, or in cleaning any part of the machinery or premises used for manufacturing process, or in any other kind of work incidental to, or connected with, the manufacturing process, or the subject of the manufacturing process;"

Premises in which manufacturing process is carried on where the number of workers is less than the minimum prescribed do not fall within the defini-tion of 'factory'. Again person to be 'worker' must be employed in manufacturing process or in cleansing machinery used for the process, or in any work incidental to or connected with the manu-facturing process. To attract the provisions of the Factories Act which confer certain benefits and privileges upon w?rkers and impose obligations upon owners of factories qua those workers, there must,

l S.C.R.

therefore, be manufacturing process carried on in any premises, the number of persons working in the manufacturing process or cleansing machinery used for the process or in work incidental to or connected therewith be not less than the number specified in the definition in s. 2 (m) and that the persons so . working must be· employed (under contract of service) for wages or not and directly or indirectly. person working in factory, but not under contract of service cannot be regarded as worker within the meaning of that expression in s. 2 (1) of the Act.

Section 85 of the Factories Act which occurs

in Ch. IX provides :

"(i) The State Government may, by notification

in the Official Gazette, declare that all or any of the provisions of this Act shall apply to any place wherein manufacturing process is carried on with or without the aid of power or is so ordinarily carried on, notwithstanding that-

(i) the number of persons employed therein is !es~ than ten, if working with the aid of power and less than twenty if working without the aid of power, or (ii) the persons working therein are not employed by the owner thereof but are "working with the permission of, er under agreement with, such owner:

Provided that the manufacturing process is not being carried on by the owner only with the aid of his family.

( 2) After place is so dei:lared, it shall

be deemed to be factory for the purposes of '

1963 .. ef

M/s. Bhikus1 Yamas• J('sh•lriy• (P) Ltd. .. Union ef lnii• ~hllh, J.

M/1. Bhil:ut1 Ya...,. Ksllatr ,a (P) Lid. •• CJ,.;.,. of lndi4 .;Jiali, J.

this Act, and the owner shall be deemed to be the occupier, and any person working therein, worker."

The section is enacted with the object of conferring authority to extend in appropriate cases the provisions of the Act to establishments which are otherwise not factories within the meaning of the Act, and to ensure to persons working in factories even if not workers within "the meaning of the Act, the benefits provided thereby. The section authorises the State Government to make all or some of the provisions of the Act applicable to any place wherein manufacturing process is carried on with or without the aid of power, notwithstanding that the number of persons employed therein is kss than 1 he numbers specified in the definition of 'factory', or where the persons working therein are not employed bv the owner but are working with the pem1ission of, or under agree-ment with, such owner. 011 the issue of Noti-fication by the State Government the place designated will be deemed factory, the owner of the place will be deemed an occupier and pcr;om working therein will be deemed workers.

Section 8:i, it is contended, is invalid on the

grounds that it imposes unreasonable restrictions upon the fundamental right of the owner to carry on his business, and ii enables the S1a1e Gwernment by Notification arbitrarily to discriminate between owners of establishments who are similarly situate, inasmuch as the Act confers an unguided and uncontrolled power to select places to be deemed factories by Notification under s. 85 of the Act and to impose thereby obligations laid by 1he Factories Act upon the owners of thme places. Before dealing with the impact of s. 85 of the Factories Act and th~ impu.gned l\'r>tification 11pr,n the fundamental rights of the petitioners, it w'.luld be useful to make brief retrospect of factory lcgisla1ion in India,

with special reference to bidi-making establishments.

The Indian Legislature enacted Act 15 of 1881 as the first Act which dealt with factories. The Act was limikd in scope : it was followed by Act ll of 1891 which in turn was followed by Act 12 of 191 l. Diverse amendments were made to that Act from time to time. In 1929 Royal Commission of Labour in India was appointed to make detailed· investigation into labour problems. The Commission investigated the conditions in various industries including the bidi ·making industry and submitted its report in June 1931 containing diverse re::ommendations for amendment of the Indi::.n Factories Act, 1911. The Commission stressed the need for exercise of power to extend the pro· visions of the Act to industries not covered by the definition of the term 'factory', and considered the bidi-making industry in that context in particular. In describing the conditions prevailing in bidi manufactories, the Commission observed :

"Every type of building is used, bJt small workshops preponderate and it is here that the graver problems mainly arise. Many of these places are small airless boxes, often without any windows, where the workers are crowded so thickly on the ground that there is barely room to squeeze between them. Others are dark semi-basements with damp mud floors unsuitable for manufacturing pro· cesses, p~rticularly in an, industry where workers sit or squat ·on the floor throughout the working day. Sanitary conveniences and adequate arrangements for removal of refuse are generally absent. Payment is almost universally made by piece-rate, the hours are frequently unregulated by the employer and many smaller workshops are open day and

M/s. /)·likust Tamasa Ks/II/tr 1, (P) Ltio v. Union of India Shah, J.

·. '"".'." -

,_ \ '\. .' -[,_ ]

870 SUPRE.ME COURT ·--·--REPORTS -·- ~--- --· [l!l64) VOL. -

night .. Regular intenals for meals and weekly

\ ,1963 ; '.

holidays . are \generally non-existent. In the case of adults these matters. are automatically regulated--by· individual circumstances, the worker coming and". going as he pleases and often, indeed, working in niore than one place in the course of the . week. Nevertheless in the case of full-time ·\yorkers, . i. e., those not ;usi!1g. bidi-making as,~ . supplementary source i of mcome, the hours are too. frequently unduly 'long, the . length <:>f · the· working ; day being determined by the, worker's own poverty and . . ·the comparatively low yield of the piece-rates ' ' . "d" . . . .. ' . . · pal • I . . . ·· - ,. · • • , . · ' . . \ • , -. L'; • .• , •

J..f/1: Bh.ikus• Tama.'a K•futriJ• (P) Lti.

Unio,. Df lndUY

ib.h, J.

The ·commission · reco~ni~ml~cl - the ·enacuh~nt of separate Act . applicable i_n · the· first instance to all · places without.: power . machinery, employing fifty or more persons during any part of the year and suggest· . ed that the Provincial Governments may be authoris· ·ed to extend any provision .of the Act ·to factories employing less than the prescribed number when in their opinion. conditions _justify such action. But the Indian .Legislature· enacted· . comprehen· _sive measure_..:.Act· 25 of 1934:.:.:.amending and con-solidating the . ·provisions of factory legislation in -India. ..The 'object ·or the Act' was to reduce hours .'of work, improve.· working conditions in the factories, ·provide for adequate· inspection and strict observance of the Act:· but places ·where the· manufacturing· process was.'carried on :~without the aid of· power were not covered'· by·• the definition of 'factory' in s; 2 Ul· .;·The Legislature by- Act 16 of 1941 amended s;•·5 and authorised ·the· .. Provincial Government by ·Notification· in the Official Gazette to declare all· or·rany ·of the provisions applicable to factories to· any. place" wherein· manufacturing pro· cess was being'carried on or. was so ordinarily carried · on with or without the aid 6Lpower where 1ten · or more·.persons were working therein.'

Labour Investigation Committee was appointed by the Government of India in February, 1944 to investigate conditions of employment in respect .of various industries. This Committee enquired into the conditions of workmen in the bidi, cigar and cigarette industry, and observed that the picture drawn by the Royal Commission on the working conditions in the bidi industry remain-ed largely true. They observed :

"The prominent features of the bidi and cigar industries are long hours and insanitary con-ditions of work and employment of child labour. Women are also employed in large numbers in this industry. x x x x

x -x x x x The bidi and cigar labour, however, satisfies many of the criteria of sweated labour, such as sub-contract system, long hours, insanitary wm king con-ditions, home work (in bidis), employment of women and children, irregularity of employ· ment, low wages, and lack of bargaining power."

Dealing especially with the conditions prevailing in the Province of Bombay they observed :

"In Bombay these workshops are situated immediately behind panshops. x x x x The conditions of these workshops, so far as sanitation, light and ventilation are concerned, beggar description. They are dark, dingy places with very few, if any, windows and the approaches are very insanicary. Workers are huddled together, men, women and in some cases children, and there is hardly any space to move. One can see bags of tobacco

M /1, Rhikuse Tomasa A"shatriya (t) Ltd. v. Union of India

~hah, J.

M /1. •!ti1ou1 y..,.,. Amlltiµ (P) Lr4 • •• U•/MI ef IMI•

~,..,,, /.

heaped in one corner and manufactured bidis in another. Most of the workshops have no lavatories and where they arc, they are in most deplorable condition. Some of the workshops have low wooden ceiling above which some workers sit and carry on their work. These are not usually reached by staircases and the workers have to go up with great difficulty."

The Committee recorded its conclusions as ·follows :-

"matters requiring immediate attention in the bidi and cigar industries are the unhealthy working conditions, long hours of work, employment of women and childrrn, deduc-tions from wages and the sub-contract system of organisation. It is desirable to abolish the out-work system and to encourage estabttsh-ment of bi~ factories in the bidi and cigar industries, if protective labour legislation is to be enforced with any degree of success."

Application of factory legislation to protect the legitimate interests of bidi rollers was therefore crying necessity. The Factories Act, 1948 extended the definition of factory. The bidi making industry was spread in small units over extensive areas, and the working conditions in the units varied considera-bly, and presumably on that account no legislation applicable exclusively to establishments manu-facturing bidis was undertaken, but establishments in which the number of persons working exceeded the number specified in cl. (m) of s. 2 were registered under the Factories Act. It is true that even then number of establishments were not brought within the operation of the Factories Act, but with the enactment of the Minimum Wages Act and fixation of minimum wages by the diverse States there waa some improvement in the condition ofbidi rollcn.

Under s. 85 of the Factories Act of 1948 power was reserved to make the Act applicable to any place in which manufacture of bidis was carried on could be exercised _but it does not appear to have been exercised for the reason that the larger establishments in which bidi-making was carried on were regarded as covered by the Factories Act, it being assumed that the expression 'employed' in s. 2 ( 1) of the Factories Act included mere engagement or occupa-tion in manufacturing process without any contract giving rise to relation of master and servant : State v. Alisaheb Kashim Tamboli ([1]) and Ram Chandra Prasad v. The State of Bihar (').

The Factories Act, as the preamble recites ia an Act to consolidate and amend the la:w regulating labour in factories. The Act is enacted primarily with the object of protecting workers employed in factories against industrial and occupational hazards. For that purpose it seeks to impose upon the owners or the occupiers certain obligations to protect workers unwary as well as negligent and to secure for them employment in conditions conducive to their health and safety. The Act n;quires that the workers should work in healthy and sanitary conditions and for that purpose it provides that precautions should be taken for the safety of workers and prevention of accidents. Incidental provisions are made for securing information necessary to ensure that the objects are carried out and the State Governments are empowered to appoint Inspectors, to call for reports and to inspect the prescribed registers with view to maintain effective supervisjon. The duty of the employer is to secure the health and safety of workers and extends to providing adequate plant, machinery and appliances, supervision over workers, healthy and safe premises, proper system of working and·· extends to giving reasonable instructions. Detailed provisions are therefore made in diverse chapters of tbe Act imposing obligations upon the (1) I.L.R. 1955 Dem. 042. (2) (1956) I.L.R. 35, Patna 877.

M/1. Bhikuse Tamasa Kshatriya (P) Ltd. v. Uni1n of India Shah, J.

J\.l/s- lJJiiA1.n, 1wn11sa A-sliati 1_1a { .~) Ltd. v. Union of lr1dia Shoh, J.

owners of the factories to maintain in~pecting staff and for maintenance of health, cleanliness, prevention of overcrowding and provision for amenities such a~ lighting, drinking water. etc. etc. Prc;visions arc also made for safety of workers and their welfare, such as restrictions on working hours and on the employment of young persons and females and grant of annual leave with wages. Employment in manufacturing process was at one time regarded as matter of contract between the employer and the employee and the ~tate was not concerned to impose any duties upon the employer. It is however now recognised that the State has vital concern in preventing exploitation of labour and in insisting upon proper safeguards for the health anrl safety of the workers. The Factories Act undoubtedly imposes numerous restrictions upon the employers to secure to the workers adeq uatc safeguards for their health and physical well-being. But imposition of such restric-tions is not and cannot be regarded, in the context of the mctiern outlook on· industrial relations, as unreasonable. Extension of the benefits of the Factories Act to premises and workers not falling strictly within the purview of the Ac1, is intended to serve the same purpose. By authorising imposition of restrictions for the benefit of workers who in the view of the State stand in need of some or all the protections afforded by the Factories Act, but who are not governed by the Act, the Legislature is merely seeking to effectuate the object of the Act i. e. it authorises extension of the benefit of the Act to persons to whom the Act, to fully effectuate the object, should have been, but has on account of administrative or other difficulties not been extended. Provisions made for the benefit of 'deemed workers' cannot therefore be regarded as not reasonable within the meaning of Art. l!J (1) (g) of the Constitution.

The Factories Act primarily applies to establi-shments in which ten or more persons are w~rking

where power is used and twenty or m10re persons whrre no power is used, thereby exciuding from its operation small establishments. l'rcsumably, the Legislature felt that uniform application of the Factories Act to all establishments in which manu-facturing proce~s is carried on requiring even small establishments to comply with the elaborate require-ments of the Factories Act may impose great adminis-trative strain upon governmental machinery, and involve hardship ordinarily not commensurate with the benefit secured thereby. But the Legislature with view to prevent circumvention of the provi-sions of the Factories Ace, and to secure to the persons working in . establishments where manufac-turing process is carried on, adequate- safeguards where necessity is felt has authorised the State Government by Notification to declare any place which docs not fall within the definition of •'factory" to be factory and to make all or any of the provisions of the Act applicable thereto. Similarly the Act is primarily intended to govern relations of persons standing as master and servant in connection with manufacturing processes in factories, and liberty of contract' otherwise was not sought to be affected by the principal provisions of the Act. But here again the Legislature has authorised the State Government to issue Notifications applying the provisions of the Act even to those establishments in which perons are working with the permission or under agreement with, but not as employees of the owners. Exclu-sion from restrictions inherent in the definitions of "factory" and "worker" has its source not in any desire to afford special privileges to any class of owners. The policy umlerlying s. 85 authorising the State Government to extend the benefit of the Act is apparent on its face. The section aims at making provision for securing the heal th and safety of persons engaged in hazardous employments, and for that purpos,e the Legislature has entrusted to the State Governments, in the case- of establishments

M/s. B'hik'ISC ramusa Kshatriya \P) Ltd. v. (jnwn of India Shah, J.

M/s. Bhil:us• ramo.r• KJMlri:Ja (I') Lid • •• u,,; .. of India

S"41r, J.

not falling expressly within the regulatory provisions of the Act, authority to extend those provisions, where the necessity to regulate, having regard to the circumstances, is felt. The power to extend the regulatory provisions of the Act is therefore not intended to confer an arbitrary power to pick and choose between establishments similarly situate : it is granted with view to secure the protestion of persons engaged in industrial occupations in the light of special circumstances of particular industry, locality or an establishment, where circumstances justifying the extention of the protection exist. The conditions of small establishments in different parts of the country may and do widely vary. Control in respect of some industries or cstabiishments not governed by the Factories Act may not b~ necessary, whereas necessity in that behalf may be acutely felt in others. It is to carry out effectively the object underlying the Act that power has been given to the State Government to decide with reference to local conditions whether it is desirable that the provisions of the Act or any of them should be made applicable to any establishment which is not covered by the definition of "factory" or to workers in factory who are not entitled to the benefits of the Act, because of the definition of "employment."

In llf/S. Rhikus11 Yamasa Ksbtriya v. Sartga-mner A.kola Taluka Bidi K11m'.1ar Union ([1]), in dealing with the validity of certain provisions of the Minimum \.V ages Act, it was observed by this Court :

"The object and policy of the Legislature appear on the face of the Act. The object of the Act is to prevent exploitation of the workers, and for that purpose it aims at fixation of minimum wages which the employers must pay. The Legislature undoubtedly intended to apply the Act to those industries or localities (I) [1963] Supp. I S.0.R. 524,

in which by reason of causes such as unorga· nized labour or absence of machinery for regula-tion of wages, the wages paid to workers were, in the light of the general level of wages, and subsistence level, inadequate. x x x x x x x It is to carry out effecti · vely the purpose of this enactment that power has been given to the appropriate Government to decide with refereuce to local conditions, whctther it is desirable that minimum wages should be fixed in regard to any scheduled trade or industry, in any locality, and if it is deemed expedient to do so, the rates at which the wages should be fixed in respect of that industry in the locality. By entrusting autho-rity to the appropriate Government to deter-mine the minimum wages for any industry in any locality or generally, the Legislature has not divested itself of its authority, nor has it conferred uncontrolled power upon the State Government. x x x x x x x x x x x Selective application of law according to the exigen-cies, where it is sanctioned, ordinarily results in permissible classification. Article 14 forbids class legislation but not reasonable classification for che purpose of legislation. If the basis of classification is indicated expressly or by impli-cation, by delegating the functions of working out the details of scheme, according to the objects of the statute and principles inherent therein, to body which has the means to do so at its command, the legislation will not be exposed to the attack of unconstitutionality. In other words, even if the statute itself does not make cla5.sification for the purpose of appiying its provisions, and leaves it to res-ponsible body to select and classify persons, objects, transactions, localities or things for special treatment, and sets out the policy of

M/r Bhik~1e YamaJa lfshairi.,a (P1 Ltd. v. l 'nion of India Shah, J.

M/1. Bltibut Yamosa KJilolri;• (P) l1d . •• Urtizm of Trtdio Sltah, J.

principles for its . guidance in the exercise of its authority in the matter of selection, the statute will not be struck down as infr:ngi.-1g Art. 14 of the Constitution."

The principle of that case will apply in consi-dering the pica of discrimination raised by the petitioners. Section 85 of the Factories Act permits Jelective application of the beneficent provisions of the Act to workers not covered thereby. The power is conferred to carry out effectively the purpose of the Act, and to an authoritv which has the means at its command for making ihe requisite enquiries for ascertaining whether extention of the benefits is, in the interest of the workers and the public generally, demanded. Such provision cannot be regarded as discriminatory.

It is true that even if statute which permits ex!·cutive action to be taken is not ultra virea, but the executive action taken uuder the statute in the matter of selection may be ultrn !·ires 1! it infringes a~;­fundamental right. in the present c~sc, however, the affidavit of Mr. V. N. [0];;,u·nta, Under Secretary to Government oi .\faharashtra in the Indusiries and Labour Department, discloses clearly the basis on which the factories mentioned in the Schedule were selected by the Notification under s. 85( I). In para-graph 7 of his affidavit it is stated :"On careful consideration of the facts of this (Shrmkar Bcih<ji ll"aje's) case the Government of Maharashtra was of the view that for the purpose of protecting the bidi rollers against any arbitrary treatment by the bidi manufac-turers, and to maintain the protection given to them under th<' Factories Act which they had hitherto obtained prior to the decision of this Hon'hlc Court in the case or 8/umkar /J11laji IVaje Notification under s. 85 of the Factories

Act, 1948 should be issued. Accordingly, the Government of Maharashtra issued the impugn· ed Notification including therein those factories which were on the register of Factories main· tained by the Chief Inspector of Factories."

He further stated that probably. there were other bidi manufacturing establishments to which the pro-visions of the Factories Act were applicable, b~ these factories were not within the purview of the impugned Notification because they were not on the register of factories maintained under the Factories Act and on the basis of which the impugned Noti-fication was issued. But such establishments were not included in that register because of the failure of the owners to register them. Mr. Pimenta said that the Government was making enquiries about such other factories and that they would or would not be brought under the purview of the Act, as circums-tances demanded, by amendment of the impugned notification under s. 85 of the Factories Act when the enqumes were over. He further stated that the impugned Notification was issued to maintain indus-trial peace and harmony. There is nothing on the record to discredit these statements. Before the impugned Notification was issued, the Bombay and other High Courts had held that bidi workers who though not servants of the owners of the bidi factories in which they were working, wqe still employed in manufacturing process to whom the benefits of the Factories Act were admi~sible. As result of the clarification of the le,'.(al position by the decision of this Court in Shankar Balaji Waje's case ([1]), there was grave unrest among bidi rollers and the State Government felt obliged to intervene for the protec-tion of b.idi rollers against deprivation of benefits previously\ accorded to them for an appreciable length of time, and with that object in view in the first instance applied the provisions of· the Factories Act by Notification issued under s. 85( I) to all such (1) (1962] SupJ. I S.C.R. 219.

/963 M/s. Bhik~1se Yama.ra Eshatr(>a (P) ltd. v. llnirm of !Mill 5h•h J.

M/s. Bhilau• Yanwa /Cshalr.:µ (I' i LIJ., v. U~of/Mia Sliah, J.

establishments as were included in the list maintain-ed by the Chief Inspector of Factories and commenc-ed an enquiry for including others which were not included in that list. In the situation which arose inclusion of bidi manufactories registered as factories with the Chief Inspector of Factories in which bidis were rolled by workers must be deemed to be rational basis for classification. The fact that to other factories carrying on the same business but not included in the list of the Chief Inspector of Factories, the provisions of the Act were not extend-ed immediately does not expose the Notification to charge of absence of rational classification. Selec-tive application of law by an authority such as State based on an objective test such as entry in the list maintained by the C!licf Inspector of Factories in the exercise of statutory authority, would in the light of the emergency, be deemed to be rational basis for clas>ification. Jt als0 appears from the affidavit of Mr. Pimenta that the Government of Maharashtra is holding enquiries about other factories which may properly be, but are not, included, because of absence of adequate information. The exclusion of owners of bidi establishments, not on the list of the Chief Inspector of Factories, is ex facie not due to any differentiation made with "an evil eye or uneven hand" but on account of the felt necessity of situation which caused great hardship to large number of w:Jrkers, and rectification of which in tne interest of maintaining iniustrial peace brooked no delay. delay.

brooked no delay. delay. It was urged, however, that the application of all the the provisions of the Factories Act without con-sidering the appropriateness of extending the indivi· of extending the indivi· extending the indivi· dual provisions, provisions, infring~d Art. 19 of the Constitution. Art. 19 of the Constitution. of the Constitution. the Constitution. It was submitted was submitted that provisions like ss. 79 and 80 which only apply to factories employing persom who work under contracts of service with the owner service with the owner would be wholly inapplicable to persons who work [']

all the the provisions of the Factories Act without con-sidering the appropriateness of extending the indivi· of extending the indivi· extending the indivi· dual provisions, provisions, infring~d Art. 19 of the Constitution. Art. 19 of the Constitution. of the Constitution. the Constitution. It was submitted was submitted that provisions like ss. 79 and 80 which only apply to factories employing persom who work under contracts of service with the owner service with the owner

1 S.C.R.

under contracts not of service with the owner of the factory and who are under no obligation to attend the factory for any fixed duration during working hours or for any fixed number of days during the year, and providing benefits for such persons by extending those provisions amounts to imposing unreasonable restrictions upon the right of the owner of the factory. Section 79 (I) provides for grant of annual leave with wages for the number of days calculated at certain rates to every worker who has worked for period of 240 days or more in factory during cal~ndar year. Section 80 is consequential upon s. 79 : it provides that worker shall be paid for the leave allowed to him at the rate equal to the daily average wa~e of his · ital full time earnings for the days on which he yorked during the month immediately prec-=ding h•3 leave exclusive of any ovcr·ti.me and bonus but i elusive of dearness allowance and cash equivalent the advantage accruing through the concessional sale to the worker of foodgrains and other articles. Section 79 clearly applies to workers who work for the full period of employment during factory hours and for the prescribed number of days and it may appear at first sight somewhat inappro-priate that the benefit of annual leave with wages should be extended by Notification under s. 85 (I) to persons who do not work for the hours fixed for the establishment l\ut it is in our judgment clear that s. 79 if it is made applicable by Notification under s. 85 wOL1ld apply to those workers only who work in the factory for the full period prescribed undl'r ss. 61, 71 and fifi (1) of the Factories Act by the employer for not less than the number of qualifying days. "deemed worker" who is paid only for work done by him and who is under no obligation to attened at any fixed time may be entitled to benefit of annual k<ive with wages only if he fulfils the working conditians applicable to workers as defined in s. 2 (I) of the Act. The privilege of working for period less than the period prescribed for regular

}.Ifs. Bhikuse ramasa shah iya ( P) ltd. •• Union of India Shah, J.

1963. M/s. Bhikus• Tamasa A'JJ:.atri.Ja (PJ Ltd. .. Union of /11..fia Shah, J.

workers in factory will not, if he works for less. than the prescribed hours, come to the aid of deemed worker so as to enable him to claim the benefits of s. 7!J; but that privilege will not deprive .him, if he fulfils the conditions relating to the duration of ~vork, . of the benefit of s. 7!J. The · fact that deemed worker in factory, to which s. 7!J is extended by Notification, by virtue of his contract or othenvisc is not bound to attend at times fixed, by the o\vner of the factory docs not mean.that he can never fulfil the conditions relating to attendance for earning leave with wages. . If deemed worker attends the factory . for the full duration fixed as factory hours -:md works . for 240 days or more during calendar year, he would be entitled to the benefits of ss; 7!J and 80 of - the Act. . . . . ·•• ' ,j· · · The observations -made in .. Shankar palaji Waje.'s case ([1]), that Pandurang was not bound to work for the period of work. displayed in the factory and, therefore "his days of work for the purpose of s. 7!J. could not be calculated" is not inconsistent with the view expressed by us. In Shankar Balaji TVcije•8 wse ('),no Notification under s. 85 was issued by the State Government, and the Court was considering, whether having regard to the conditions govering his attendance, he could be regarded as worker. The . observation relied •upon does not mean and. could not. have intended to mean that if Notification under s. 85 had been issued and the workers con-cerned had · worked for the full period of work dis~ played in the factory for more than 240 days in the preceding· year, he would still not have been entitled to annual leave with wages. In our judgment the right to leave ·with wages arises in favour ·of worker or deemed worker under s .. 7!J only if he has worked during the full period of factory employment for the prescribed number of days in the previous year because by the use of the expression 'days' ins. 79,· working for.the full period of work displayed in the pl p962] .Supp. I S.C.R. 2t~.

1 S.C.R. SUPRE:ME COURT REPORTS

'· · factory w 'lei iL, appropriate section of the .Factories , Act ;" <' · i ·:mpiated. \York for period less than . M/ Bh'k -the period displayed will uot, in com pilling. the number of days, be ·taken into· account as day u,. within the meaning of s.l79. "''" •

, 1963 Bh'k -~ K;;.,,,;."{~) I.;'[ u,. if ,. "''" • 1 n "

\Ve may· also observe that in Bridltichand Slwmm v. First Civil Judge, Nagpur ([1]), this Court in dealing with the que$tion whether rollers in a-bidi factory who were obliged to .work within the factory hours, but not for the entire period were entitled to the benefit of s. 79, held on consideration of all the circumstances, that the bidi rollers being employed in the factory were workers within the meaning of s. 2 (I) of the Factories Act, and en ii tied to that bendit. It was also observed that the leave provid-ed \;oder s. 79 arises as matter cif right when the worker has atlended for the minimum nuinber of wod.ing days and he is entitled to it, and absence of. the worker from attendance for longer period than that provided bys. 79 had no bearing on his'right to leave under that section. That was again case 'not covered by Notification under. s. 85. On the facts proved the Court held that the workers in the factory v.ere 'employed' and \vould if they fulfilled the t~'luirements of s. 79-viz, the total number of da\'S of work-be entitled to the benefit of leave with pay. 'l he atter,dance to qualify for leave in that case had obviouly to be for the appropriate full period fixed by the owner of the factory. . ·

· As we have already observed the Act primarily applie> tn workers strictly so called who are employed . in any manufacturing process in factory, but it is open to the State Government by Notification to apply all or any of the provisions of the Act to any place \11herein any manufacturing process is carried on and if such Notification i~ issued the place so declared is to be deemed factory under the Act, the owner to be deemed an occupier and the oerson wor-king therein worker notwithstamlini;' the fact that (I} lf1!61J 3 S.C.R, 16J.

JI /.r. Bliiklu r&rnai1 1.Jh111riy1 : fl,• ltrl. v. I :nims of /r11/i11 s ""· J.

the number of persons working therein are not emplo· yed by the owner thereof but are working with the permission of or under agreement with such owner. If by imposing liability to afford to workers strictly so·called under the Act, thr.rc is no infringement of the fundamental right of the owner of the factory to carry on his business, similar obligation in favour of dcem~d workers, who satisfy the requirements of s. i!J, cannot, having regard to the object of the sta-tute, be rt"gardcd as infringing that fundamental right. Therefore by i111posing liability to afford to "deemed worker" annual leave with wages under s. 7!l and s. Hll in the same mauner a11d to the same extent as is afforded to workers strictly so.called under s. 2( I) of the F<i.ctorics Act, no unreasonable restriction has been imposed upon the occupier or the owner of the factory.

To conclude: in our judgment s. 85 which authorises the State Government to issue Notifica-tion ar,plying all or any of the provisions of the Act to any place in which manufacturing process is carri~d on, and which invol vrs the consequence that the place is deemed factory and the persons working therein are deemed workers is not by itself discri-minatory so as to infringe Art. I ·I of the Constitution; nor docs the provision amount to authorising imposi· tion of unreasonable restriction upon the fundame-ntal right of the owner of the factory to carry on his business. The impugned Notification issued under s. ST,( I) is also not open to atlack on the ground that the State has issued the Notification by selecting for application of the provisions of the Act, some out of the places in which bi<li manufacturing processes are carrier! on. Nor does the Notification in so far as it seeks to apply the provisions of the Act imposing 11pon the owner or an occ11pier of the factory obliga-tion to grant annual leave with wages impose an,· 11nreasonable rcstrktio11. '

On that view the petition must fail and 1s dismissed with costs, two sets, one hearing fee. ·

Petition lJismisscd.

SHANKAR NARAYAN RANADE

UNION OF INDIA

(P. B. GJ.JENlJHAOADKAR, K. N. WANUllUO, M. HIDAYA'l'ULLAH, K. C. DAS GUPTA and j. C. SHA,H JJ.)

Inam-Oonstruction of sanad--Orant of villar1e ind1uling water-If i'J.icluiln water of jlow/ng riner-</lriim of rizHu·irin riyltl -Validity-Bombay Land Revenue Corle, 1879 (Act 5 of 18711), s. 37 (1)-Bombay Irrigation Act, 187.9 (Bom. 7 of 187[)), s. cJ-Transfer of Property Act, 1882 (IV of 1882), s. 8 .

The appellant was one of the sharers in the Inam village of vadner and brought suit againt respondents clain1ing relief on the basis of his title to the running water of river valdevi. During World War II, the military authorities constructed residential quarters within and outside the limits of vadner. They built dam across the river within the limits of vadner and dug well near the bank of the river which was fed by the river water and the water was carried to the residential areas. The diversion of water and the use of land continued from 1942 to 1959, which deprived the appellant and the other Inamdars of their right to utilise that water for their own gain and of others ; this had caused injury and damage to them, for which, the appellant claimed compensation from the respondents. According to the respondents, by virtue of notification under s. 5 of the Bombay Irrigation Act, 1879, the river had become notified canal and consequently the fnamdars had lost their rights, if any, in the waters of the said river. They also took pica of limitation. The trial court decreed the suit and held that the appellant was entitled to the compensation only for two years before the date of the suit and the rest of his claim was barred by time. The decree was challenged both by the

M/s, .Bhi.kuse r.nits• /(lfzat,iya (P) Lit •• U1d.·11 of i1;,.'i1 .shah, 1.