GENERAL MANAGER, KISAN SAHKARI CHINI MILLS LTD., SULTANPUR, U.P.versusSATRUGHAN NISHAD AND ORS.

    GENERAL MANAGER, KISAN SAHKARI CHINI MILLS LTD.,                         A
                   SULTANPUR, U.P.
                          v.
              SATRUGHAN NI SHAD AND ORS.

                            OCTOBER 8, 2003
                                                                             B
            [Y.K. SABHARWAL AND B.N. AGRAWAL, JJ.]

       Constizution of India, 1950 :

       Article 12- "Other authorities "-Co-operative Sugar Mill- C
 Instrumentality or agency of Government-Tests to determine-Factors to
 be considered-Held: Form in which the body was constituted, namely,
 whether it was a society or co-operative society or a company, is not
 decisive-The real status of the body with respect to the control of the
 Government must be looked into-There can be no hard andfast formula- D
 In different facts/situations different factors may be found to be overwhelming
 and indicating that the body is an authority under Art. 12-0n facts, co-
 operative sugar mill neither an agency nor an instrumentality of the
 Government-Hence, not "other authority" under Art. 12.

       Article 226-Writ petition-Maintainability of-Against private person E
 or body-Held : Only when the authority or the person performs a public
 function or discharges a public duty that Art. 226 can be invoked-
 Manufacture and sale of sugar does not involve any public function--
  Hence, writ jurisdiction under Art. 226 could not be invoked against a co-
  operative sugar mill.                                                      f
          The appellant-Mill was a co-operative society registered as such
     under the Uttar Pradesh Co-operative Societies Act, 1965. The contesting
     respondents filed various writ applications in the High Court alleging
     therein that they had worked on class III and IV posts in the Mill for
     a period ranging from 5 to 12 years. According to them, some were G
     permanent workmen whereas others were seasonal. Uttar Pradesh Co-
     operative Sugar Factories Federation Limited was the apex body of co-
     operative sugar mills in the State and its function was advisory in order
· .. to safeguard operational and financial interest of the sugar mills.
     Under the Bye-Laws of the Mill the ratio of the nominees of the State H
                                       349
    350               SUPREME COURT REPORTS [2003] SUPP. 4 S.C.R.

A Government in the committee was only l/3rd and the management of
    the committee was dominated by 2/3rd non-government members. The
    State Government held only 50% of the shares in the Mill.

          The Chairman-cum-Managing Director of the Federation advised
B the Mill to consider the desirability of dispensing with the services of
    its surplus workmen. Thereupon, the services ofsurplus workmen were
    dispensed with without giving any notice and paying retrenchment
    compensation as required under Section 6N of the Uttar Pradesh
    Industrial Disputes Act, 1947.

c       Being aggrieved the respondents filed writ petitions before the
    High Court, which were allowed. Hence the appeal.

         On behalf of the appellants, it was contended that the respondents
    could not have been allowed to invoke the writ jurisdiction of the High
D   Court as the Mill, which was a registered co-operative society, was not
    a 'State' within the meaning of Article 12 of the Constitution as it was
    neither an instrumentality nor an agency of the State Government.

          On behalf of the respondents, it was contended that the writ
E petition could be entertained as mandamus could be issued under
    Article 226 of the Constitution against any person or authority, which
    would include any private person or body.

          Allowing the appeal, the Court

F       HELD : 1. In order to decide whether a body is a 'State' under
  Article 12 of the Constitution the form in which the body is constituted,
  namely, whether it is a society, a co-operative society, or a company,
  is not decisive. The real status of the body with respect to the control
  of the Government would have to be looked into. The various tests as
G laid down in Ajay Hasia {1981) 1 sec 722, would have to be applied
  and considered cumulatively. There can be no hard and fast formula
  and in different facts/situations, different factors may be found to be
  overwhelming and indicating that the body is an authority under
  Article 12 of the Constitution. In this context, the Byelaws of the Sugar
H Mill would have to be seen. (357-B-C] ,                                      •
    GENL. MANAGER, KISAN SAHKARJ CHINI MILLS LID.'" SATRUGHAN NISHAD   351

     Ajay Hasia v. Khalid Mujib Sehravardi, (1981) 1SCC722, followed. A

     Ramana Dayaram Shetty v. International Airport Authority of India,
[1979) 3 SCC 489, Pradeep Kumar Biswas v. Indian Institute of Chemical
Biology, [2002) 5 SCC 111, Chander Mohan Khanna v. NCERT, (1991)
4 SCC 578 and Mysore Paper Mills Ltd. v. Mysore Paper Mills Officers' B
Association, (200'2] 2 SCC 167, relied on.

     2.1. The first test laid down in Ajay Hasia stipulates that the entire
share capital of the Corporation should be held by the Government.
The share of the State Government is only 50% and not entire. Thus,
the first test is not fulfilled by the Mill. (357-E]                        C

     Ajay Hasia v. Khalid Mujib Sehravardi, (1981) 1SCC722, followed.

     2.2. It has been stated by the respondents that the Mill used to
receive some financial assistance from the Government. According to
the Mill, the Government had advanced some loans to the Mill. It has D
nowhere been stated that the state used to meet any expenditure of the
Mill much less almost the entire one, but, in fact, it operates on the basis
of self-generated finances. There is nothing to show that the Mill enjoys
monopoly status in the matter of production of sugar. (357-E-F]
                                                                             E
      2.3. The ratio of the nominees of the State Government in the
committee is only l/3rd and the management of the committee is
dominated by 2/3rd non-government members. Under the Byelaws, the
State Government can neither issue any direction to the MiJI nor
determine its policy as it is an autonomous body. The State has no F
control at all in the functioning of the Mill much less deep and
pervasive one. The role of the Federation, which is the apex body of
co-operative sugar mills in the State is only advisory and to guide its
members. The letter sent by the Managing Director of the Federation
to dispense with the services of the surplus workmen was merely by
way of an advice and was in the nature of a suggestion to the Mill in G
view of its deteriorating financial condition. From the said letter, which
is in the advisory capacity, it cannot be inferred that the State had any
deep and pervasive control over the Mill. Thus, none of the indicia
exists in the case of the Mill, as such the same being neither an
instrumentality nor an agency of the Government cannot be said to be H
    352               SUPREME COURT REPORTS [2003] SUPP. 4 S.C.R.
A an authority and, therefore, it is not 'State' within the meaning of
    Article 12 of the Constitution. [357-H, 358-A-D]

         3.1. It is only in the circumstances when the authority or the
    person performs a public function or discharges a .public duty that
B   Article 226 of the Constitution can be invoked. [358-G]

         3.2. The Mill is engaged in the manufacture and sale of sugar,
    which would not involve any public function. Thus, the jurisdiction of
    the High Court under Article 226 of the Constitution could not have
    been invoked. (359-B] ·
c
         Andi Mukta Sadguru Shree Muktajee Vandas Swami Suvarna Jayanti
    Mahotsav Samarak v. V.R. Rudani, (1989) 2 SCC 691, K.
    Krishnamacharyulu v. Shri Venkateswara Hindu College of EngineerinR,
    (1997] 3 sec 571 and VST Industries Ltd v. VST Industries Workers     I



D   Union, (2001] 1 sec 298, relied on.

         CIVIL APPELLATE JURISDICTION : Civil Appeal No. 5466 of
    2002.

          From the Judgment and Order dated 16.5.2001 of the Ailahabad High
E Court in S.A. No. 316(SB) of 2000.
                                     WITH

         C.A. No. 5467-5473, 5475-5477, 5479-5480, 5482, 5485-5500,
    5501-5512, 5514-5518, 5520-5525, 5528-5529, 5531, 5533-5541, 5545-
F   5557, 5559, 5571-5586, 5590-5592 of 2002.

        Rakesh Dwivedi, Vishwajit Singh, Tripurari Ray, Satish Pandey, R.K.
    Verma, Ritesh Agarwal and Abhishek Chudhary for the Appellant.

G       Sunil Gupta, Pradeep Misra, Ms. Indu Misra, S.C. Srivastava, Mohd.
    Kashif and Shakil Ahmed Syed for the Respondents.

          The Judgment of the Court was delivered by

         B.N. AGRA WAL, J.: Judgment impugned in these appeals has been
H   rendered by a Dividon Bench of Lucknow Bench of Allahabad High Court
GENL. MANAGER. KISAN SAHKARICHINI MILLS LTD.•·. SATRUGHAN NISHAD [AGRAWAL,]]   353
in special appeals upholding that passed by a learned Single Judge of that A
Court in writ applications filed by the workmen of Kisan Sahkari Chini
Mills Ltd., Sultanptir, U.P. (hereinafter referred to as 'the Mill') whereby
the same have been allowed, orders of termination of services of the
workmen (hereinafter referred to as 'the contesting respondents') quashed
and directions have been given for regularisation of their services within B
a period of two years.

      The short facts are that the Mill is a co-operative society registered
as such under Uttar Pradesh Co-operative Societies Act, 1965. The
contesting respondents filed various writ applications in the High Court C
alleging therein that. they had worked on class III and IV posts in the Mill
for a period ranging from 5 to 12 years. According to them, some of them
were permanent workmen whereas others were seasonal. Uttar Pradesh
Co-operative Sugar Factories Federation Limited (hereinafter referred to
as 'the Federation') is the apex body of co-operative sugar mills in the State
and its function is advisory in order to safeguard operational and financial D
interest of the sugar mills. On 22nd November, 1999, Chairman-cum-
Managing Director of the Federation, who was also Secretary to the
Government of Uttar Pradesh in the Department of Sugar Industry and
Cane Development, had sent a letter to General Manager of the Mill in
which it was mentioned that during the course of discussion the Managing E
Director had with the General Manager and other officers of the Mill, it
transpired that out of 708 workmen working in the Mill, 40 I were surplus
whose services were required to be dispensed with in view of the
deteriorating financial condition of the Mill. By the said letter the Mill
was advised to consider the desirability of dispensing with services of its F
surplus workmen. Thereupon, services of surplus workmen were dispensed
with without giving any notice and paying retrenchment compensation as
required under Section 6N of Uttar Pradesh Industrial Disputes Act, 194 7
(hereinafter referred to as 'the Act') in spite of the fact that they had worked
for more than 240 days which necessitated filing of the various writ
applications in the High Court.                                                  G

      Writ applications were contested by the Mill on grounds, intqr a/ia,
that the Mill, which is a co-operative society, was neither State nor
instrumentality or agency of the State within the meaning of Article 12 of
the Constitution of India, hence, the writ jurisdiction of the High Court H
    354                SUPREME COURT REPORTS [2003] SUPP. 4 S.C.R.
A could not be invoked.         According to them, service conditions of the
     contesting respondents, who were the workmen, were governed by standing
     orders of the Mill and the dispute raised by them related' to enforcement
     of rights and obligations created under the Act, as such the remedy
     available to them was to raise an industrial dispute under the provisions
B of the Act. Further ground of contest was that although the workmen had
     claimed to have worked between the years 1983-84 to 2000-01 but in not
     a single year, the Mill was operational for a period of 240 days inasmuch
     as the period of operation of the Mill during the aforesaid period was from
, .. 45 days to 199 days. According to them, the contesting respondents were
     seasonal workers and as they did not work for .a period of 240 days in
C any year, were not entitled to claim protection under Section 6N of the
     Act.

         The learned Single Judge of the High Court overruled preliminary
    objection raised on behalf of the Mill, came to the conclusion that the Mill,
D   which is a society, was State within the meaning of Article 12 of the
    Constitution as it was instrumentality of the State and there was infraction
    of the provisions of Section 6N of the Act. Accordingly, the writ
    applications were allowed, orders of termination of the contesting
    respondents were quashed and it was directed that their services shall be
E   regularised in a phased manner within a period of two years. The said order
    has been affirmed by the Division Bench on appeals being preferred by
    the Mill. Hence, these appeals by special leave.

        Shri Rakesh Dwivedi, learned Senior Advocate appearing in support
  of the appeals, submitted that the contesting respondents could not have
F been allowed to invoke writ jurisdiction of the High Court as the Mill,
  which is a registered co-operative society, was not State within the meaning
  of Article 12 of the Constitution as it was neither instrumentality nor
  agency of the Government ofUttar Pradesh. On the other hand, Shri Sunil
  Gupta, learned Senior Advocate appearing on behalf of the contesting
G respondents, submitted that the Mill was an instrumentality of the
  Government, as such it was an authority within the meaning of Article 12
  of the Constitution.

        The point raised is no longer res integra as the same is concluded
H ·by decisions of this Court. In the case of Ajay Hasia and Ors. v. Khalid
       GENL. MANAGER, K!SAN SAHKAR! GUN! MILLS LTD. v. SATRUGHAN NJSHAD [AGRAWAL,!.]   35 5
        Mujib Sehravardi and Ors., [1981] l SCC 722, a Constitution Bench A
      . of this Court, while approving the tests laid down in the case of
        Ramona Dayaram Shetty v. International Airport Authority of India &
        Ors., [1979] 3 SCC 489, as to when a corporation can be said to be an
        instrumentality or agency of the government, observed at page 736 which
        runs thus:-
                                                                                              B
                 ''The tests for determining as to when a corporation can be said
                 to be an instrumentality or agency of government may now be
                 culled out from the judgment in the International Airport Authority
                 case. These tests are not conclusive or clinching, but they are
                 merely incj.icative indicia which have to be used with care and C
                 caution, because while stressing the necessity of a wide meaning
                 to be placed on the expression "other authorities", it must be
                 realised that it should not be stretched so far as to bring in every
                 autonomous body which has some nexus with the government
                 within the sweep of the expression. A wide enlargement of the D
                 meaning must be tempered by a wise limitation. We may
                 summarise the relevant tests gathered from the decision in the
                 International Airport Authority case as follows:

                 (I) One thing is clear that if the entire share capital of the E
                 corporation is held by Government, it would go a long way
                 towards indicating that the corporation is an instrumentality or
                 agency of Government (SCC p. 507, para 14)

                 (2) Where the financial assistance of the State is so much as to F
                 meet almost entire expenditure of the corporation, it would afford
                 some indication of the corporation being impregnated with
                 governmental character. (SCC p. 508, para 15)

                 (3) It may also be a relevant factor ... whether the corporation
                 enjoys monopoly status which is State conferred or State protected. G
                 (SCC p. 508, para 15)

                 (4) Existence of deep and pervasive State control may afford an
                 indication that the corporation is a State agency or instrumentality.
                 (SCC p. 508, para 15)                                                        H


...
    356               SUPREME COURT REPORTS (2003] SUPP. 4 S.C.R.

A           (5) If the functions of the corporation are of public importance,
            and closely related to governmental functions, it would be a
            relevant factor in classifying the corporation as an instrumentality
            or agency of Government. (SCC p. 509, para 16)
                                      ......·
B            (6) "Specifically, if a department of Government is transferred
           . to a corporation, it would be a strong factor supportive of this
             inference" of the corporation being an instrumentality or agency
             of Government. (SCC p. 510, para 18)

C           If on a consideration of these relevant factors it is found that the
            corporation is an instrumentality or agency of government, it
            would, as pointed out in the International Airport Authority case,
            be an 'authority' and, therefore, 'State' within the meaning of the
            expression in Article 12."

D         In the case of Pradeep Kumar Biswas v. Indian Institute of Chemical
    Biology and Others, (2002] 5 SCC 111, a Bench of seven Judges of this
    Court, in para 27 of its judgment has noted and quoted with approval in
    extenso the aforesaid tests propounded in International Airport Authority .
    case (supra) and approved in the case of Ajay Hasia (supra) for determining
E   as to when a corporation can be said to be an instrumentality or agency
    of the government so as to come within the meaning of the expression
    'authority' in Article 12 of the Constitution. There the Bench referred to
    the case of Chander Mohan Khanna v. NCERT, [1991] 4 SCC 578 where,
    after considering the memorandum of association and the rules, this Court
F   came to the conclusion that NCER T was largely an autonomous body and
    its activities were not wholly related to governmental functions and the
    government control was confined only to the proper utilisation of the grants
    and since its funding was not entirely from government resources, the case
    did not satisfy the requirements of the State under Article 12 of the
G   Constitution. Further, reference was also made in that case to the decision
    of this Court in Mysore Paper Mills Ltd v. Mysore Paper Mills Officers'
    Association and Anr., (2002] 2 SCC 167, where it was held that the.
    company was an authority within the meaning of Article 12 of the
    Constitution as it was substantially financed and financially controlled by
H   the Government, managed by a Board of Directors nominated and removable


                                                                                   'I
GENL. MANAGER, KISAN SAHKARI CHIN! MILLS LTD. v. SATRUGHAN NISHAD [AGRAWAL,J]   357

at the instance of the Government and carrying on important functions of A
public interest under the control of the Government.

      From the decisions referred to above, it would be clear that the form
in which the body is constituted, namely, whether it is a society or co-
operative society or a company, is not decisive. The real status of the body B
with respect to the control of government would have to be looked into.
The various tests, as indicated above, would have to be applied and
considered cumulatively. There can be no hard and fast formula and in
different facts/situations, different factors may be found to be overwhelming
and indicating that the body is an authority under Article 12 of the
Constitution. In this context, Bye Laws of the Mill would have to be seen. C
In the instant case, in one of the writ applications filed before the High
Court; it was asserted that the Government of Uttar Pradesh held 50%
shares in the Mill which fact was denied in the counter affidavit filed on
behalf of the State and it was averred that majority of the shares were held
by cane growers. Of course, it was not said that the Government of Uttar D
Pradesh did not hold any share. Before this Court, it was stated on behalf
of the contesting respondents in the counter affidavit that the Government
of Uttar Pradesh held 50% shares in the Mill which was not denied on
behalf of the Mill. Therefore, even if it is taken to be admitted due to non
traverse, the share of the State Government would be only 50% and not E
entire. Thus, the first test laid down is not fulfilled by the Mill. It has
been stated on behalf of the contesting respondents that the Mill used to
receive some financial assistance from the Government. According to the
Mill, the Government had advanced some loans to the Mill. It has .10 where
been stated that the State used to meet any expenditure of the Mill much F
less almost the entire one, but, as a matter of fact, it operates on the basis
of self generated finances. There is nothing to show that the Mill enjoys
monopoly status in the matter of production of sugar. A perusal of Bye-
Laws of the Mill would show that its membership is open to cane growers,
other societies, Gram Sabha, State Government, etc. and under Bye-Law
52, a committee of management consisting of 15 members is constituted, G
out of whom, 5 members are req11ired to be elected by the representatives
of individual members, 3 out of co-operative society and other institutions
and 2 representatives of financial institutions besides 5 members wh0 are
required to be nominated by the State Government which shall be inclusive
of the Chairman and Administrator. Thus, the ratio of the nominees of H
    358                SUPREME COURT REPORTS [2003] SUPP. 4 S.C.R.

A   State Government in the committee is only I/3rd and the management of
    the committee is dominated by 2/3rd non-government members. Under
    the Bye-Laws, the State Government can neither issue any direction to the
    Mill nor determine its policy as it is an autonomous body. The State has
    no control at all in the functioning of the Mill much Jess deep and pervasive
B   one. The role of the Federation, which is the apex body and whose ex-
    officio Chairman-cum-Managing Director is Secret~ry, Department of
    Sugat Industry and Cane, Government of Uttar Pradesh, is only advisory
    and to guide its members. The letter sent by Managing Director of the
    Federation on 22nd November, 1999 was merely by way of an advice and
    was in the nature of a suggestion to the Mill in view of its deteriorating
C   financial condition. From the said Jetter, which is in the advisory capacity,
    it cannot be inferred that the State had any deep ~nd pervasive control over
    the Mill. Thus, we find none of the indicia exists in the case of Mill, as
    such the same being neither instrumentality nor agency of government
    cannot be said to be an authority and, therefore, it is not State within the
D   meaning of Article 12 of the Constitution.

        Learned counsel appearing on behalf of the contesting respondents
  submitted that even if the Mill is not an authority within the meaning of
  Article 12 of the Constitution, writ application can be entertained as
E mandamus can be issued under Article 226 of the Constitution against any
  person or authority which would include any private person or body.
  Learned counsel appearing on behalf of the appellant, on the other hand,
  submitted that mandamus can be issued against private person or body only
  if infraction alleged is in performance of public duty. Reference in this
  connection may be made to the decisions of this Court in Andi Mukta
F Sadguru Shree Muktajee Vandas Swami Suvarna Jayanti Mahotsav Samarak
  Trust and Others v. ~:R. Rudani and Others, [1989] 2 SCC 691 in which
  this Court examined the various aspects and distinction between an
  authority and a person and after analysis of the decisions referred in that
  regard came to the conclusion that it is only in the circumstances when the
G authority or the person performs a public function or discharges a public
  duty that Article 226 of the Constitution can be invoked. In the cases of
  K. Krishnamacharyulu and Others v. Sri Venkateswara Hindu College of
  Engineering and Another, [1997] 3 SCC 571 and VST Industries Ltd. v.
  VST Industries Workers' Union and Another, [2001] 1 SCC 298, the same
H principle has been reiterated. Further, in the case of VST Industries Ltd.
GENL. MANAGER, KISAN SAHKARl CHIN! MILLS LTD. 1·. SATRUGHAN NISHAD [AGRAWAL,].]   359
(supra), it was observed that manufacture and sale of cigarettes by a private A
person will not involve any public function. This being the position in that
case, this Court held that the High Court had no jurisdiction to entertain
an application under Article 226 of the Constitution. In the present case,
the Mill is engaged in the manufacture and sale of sugar which, on the same
analogy, would not involve any public function. Thus, we have no B
difficulty in holding that jurisdiction of the High Court under Article 226
of the Constitution could not have been invok~d.

      Learned counsel appearing on behalf of the appellant in the alternative
submitted that in the present batch of appeals, there are disputed questions
of facts as according to the contesting respondents, they had worked for C
more than 240 days whereas stand of the Mill was that from the day the
contesting respondents joined, in not a single year, the Mill was functional
for a period of 240 days and during the years in question, the functioning
of the Mill was between 45 days to 199 days. Further, according to the
contesting respondents, some of them were permanent and others seasonal D
but according to the Mill, all the employees were seasonal workmen. In
our view, these are disputed questions of facts which cannot be decided
in writ jurisdiction and the same can be decided by the courts constituted
under the provisions of the Act. For the foregoing reasons, we are of the
view that the High Court was not justified in entertaining the writ E
applications.

     In the result, the appeals are allowed, the impugned judgments
rendered by the High Court are set aside and writ applications dismissed
relegating the parties to raise an industrial dispute for adjudication by
courts constituted under the provisions of Industrial Disputes Act, 1947.               F
In the circumstances, the parties are directed to bear their own costs.

v.s.s                                                             Appeals allowed.