HINDUSTAN LEVER AND ORS.versusHINDUSTAN LEVER MAZDOOR SABHA AND ORS.

A                      HINDUSTAN LEVER AND ORS.
                             v.
           HINDUSTAN LEVER MAZDOOR SABHA AND ORS.

                             SEPTEMBER 28, 1993

B            (K. JAYACHANDRA REDDY AND G.N. RAY, JJ.)

          Labour Law:

          The Maharashtra Workmen's Minimum House-Rent Allowance Act,
C 1983 Ss. 4,13. Notification No. BRA 3191/992/LAB dated 9,10.1992-
    Workmen-House rent allowance-Entitlement to-Employer's liability to pay
    house rent allowance to each workman at a specific rate-Exemption-
    Notification exempting industries areawise in relation to their workmen on
    income basis-Held, classification of Workmen on basis of income and clas-
D   sification of industries areawise not pennissible under the Act.

          The Government of Maharashtra purporting to exercise powers
    under s.13 of the Maharashtra Workmen's Minimum House Rent Al-
    lowance Act, 1983 issued a Notification dated 9.10.1992 directing that with
    effect from 1.1.1991 the provisions of the Act would not apply to the
E   factories/establishments situated in certain Zones/areas in respect of their
    workmen drawing wages as mentioned in the Notification. Consequently
    house rent allowance of same categories of workmen of the companies
    situated in the Zones/Areas concerned was reduced below the minimum
    payable under the Act. The respondent-employees Unions filed writ peti-
    tions before the High Court challenging validity of the Notification.
F
         The High Court quashed the Notification holding the same as invalid
    and unenforceable and directed the companies concerned to refund the
    amount recovered from the workmen on the basis of the notification. The
    companies filed the special leave petitions before this Court.
G         The petitioners-companies before this Court contended that the
    Notification was issued in accordance with s.13(1) of the Act which em-
    powered the Government to exempt any specific factory or establishment
    froin application of the Act, for the reasons mentioned therein; that in the
    Notification the classification made on the basis of wages of the workmen
H   was reasonable and permissible under s.13 and in deciding the validity of
                                        ~40
                       H. LEVER v. MAZ.. SABHA                          541

the Notification the substance of the Notification as a whole should be        A
considered.

      Dismissing the special leave petitions, this Court

      HELD : 1. The classification of workers. on the basis of the income
and the classification of the industries area-wise are not permissible under   B
s.13 of the Maharashtra Workmen's Minimum House Rent Allowance Act,
1983. The Notification under challenge is ultra vires of the Act, void and
unenforceable and the High Court was right in quashing the same.
                                                       (549-H, 549-A, 549-G]
     Security Guards Board for Greater Bombay and Thane Distt. v. Security     C
& Personnel Service Pvt. Ltd. and others, (1987) 3 SCC 413, distinguished.

       2. The basic object underlying the Act is that every workman should
be paid house-rent allowance as provided in s.4. Section 4 which is the soul
of the Act, lays down the fundamental structure, namely, that workers
should be paid house-rent allowance and the establishments, factories or D
the units which under certain circumstances would be eligible for exemp-
tion under Section 13. Section 4 is the measure of the liability which
operates on the factories or establishments which are units and the benefit
should go to all workmen in the unit, and makes every employer respon-
sible to pay monthly house-rent allowance to every workman which shall E
not be less than 5% of the wages payable subject to a minimum of Rs. 20
whichever is higher. The Section does not lay down any upper limit
regarding the entitlement of the house-rent allowance. However high the
wages may be, an employer has to pay it @ 5%. I:ikewise, after require-
ments of Section 13 being satisfied, the individual unit or units, as a whole
can be exempted. (546-G-H]                                                    F

      3.1. The exemption contemplated under s.13 can be granted to any
specified factory or establishment or to any class of factories or estab-
lishments in any industry, and not to one class of employees thereby·
differently treating another class of employees in the same factory. The       G
section does not speak of the class of workers or employees. The emphasis
is on the factories or establishments in an industry and not on the
workmen or employees. (547-B]

      3.2. Before granting the exemption, the Government must be satis-
fied that it is just and proper to do so in public interest or for any special H
    542                   SUPREME COURT REPORTS [1993] SUPP. 2 S.C.R.

A reasons having regard to the favourable conditions of employment in such
    factories or establishments or to the financial position and other relevant
    circumstances of such factories or establishments. The economic viability
    of a particular factory or establishment may be a relevant consideration
    but the wages and ceiling thereof cannot form the basis nor can they be
B   relevant for the purpose of s.13. [547-C]

         3.3. The expression "conditions and restrictions" occurring in s.13
    cannot be interpreted to mean differently and the same does not in any
    manner give scope to classify the workers in the manner in the Notification
    and grant an exemption on that basis. [547-G]
c          3.4. The expression "such period or periods" in s.13 should be read
    in the context of the other expression, namely, that the Government should
    be satisfied that it is just and proper to do so in the public interest or for
    any special reasons having regard to the more favourable conditions of
    employment. If so read, it becomes clear that the exemption cannot be for
D   eternity. [548-B]

          3.5. The Public interest contemplated under s.13 is of different nature
    and it will not be served and cannot be served by applying the provisions
    of the Act to some workmen and none to the other or with certain restric-
E   tions and conditions to yet another class of workmen. [548-C]

          3.6. The Notification does not indicate any special reasons with
    reference to the financial position and other relevant circumstances of any
    factory or establishment or class of factories or establishment except
    mentioning that it is just and proper to do so in the public interest. [548-E]
F
        3.7. The substance of the notification is clear, namely, that some of
  the workers are deprived of house-rent allowance being paid at the rate
  laid down under Section 4. The Notification does not conform to the
  requirements of s.13 of the Act which is a welfare legislation in conformity
G with the directive principles. [548-H]

           CIVIL APPELLATE JURISDICTION                 Special Leave Petition
    (Civil) No. 7847 of 1993.

          From the Judgment and Order dated 24/25-2-1993 of the Bo!I\bay
H High Court in W.P. No. 50 of 1993.
                 H.LEVER v. MAZ.SABHA[REDDY,J.]                          543

                                  WITH                                          A

      S.L.P. (C) No. 6893/93.

                                  WITH

      I.A. Nos. 3-4 & 5-6.                                                      B

      Shanti Bushan, K.K. Singhvi, Ms. Manik Karanjawala, P.K. Rele, R.
Karanjawala, Rajesh Kumar, AS. Bhasme, Ms. Suruchi Aggarwal, P.K.
Mullick, Brij Bhushan, Sanjay Singhvi, B.N. Singhvi, M. George Jose, J.P.
Pathak and AC. Mahimkar for the appearing parties.                              C

      The Judgment of the Court was delivered by

       K. JAYACHANDRA REDDY, J. Some of the employees unions, who
figure a respondents herein, filed a batch of writ petitions challenging the
validity of a Notification dated 9.10.92 issued by the Industries, Energy and   D
Labour Department of the State Government of Maharashtra exercising
the powers conferred by Section 13 of The Maharashtra Workmen's Min-
imum House-Rent Allowance Act, 1983 ('Act' for short). A Division Bench
of the High Court declared the impugned Notification as invalid, unenfor-
ceable and accordingly quashed the same·and also directed the employers,        E
who figured as respondents before the High Court, to refund the amount
recovered form the workmen on the basis of the impugned Notification.
M/s Hindustan Lever Ltd., Batloiboi & Co. and others ('Companies' for
short) have filed these two S.L.Ps. questioning the judgment of the High
Court. These S.L.Ps. are being disposed of at the admission stage itself.
                                                                                F
Some other Employees' Unions have filed I.A Nos. 3-4-5-6 for being
impleaded as interveners.

      With a view to provide for payment of minimum house-rent al-
lowance to workmen employed in industries in Maharashtra and to provide
for matters connected therewith, the Act was enacted in the year 1983           G
which received the assent of the President on 5.10.88, and was published
in the Official Gazette on 17.10.88. The Act extends to the State of
Maharashtra and as notified by the State Government, it was brought into
force with effect from 1st January, 1991. This Act is made applicable under
Section 1 to every factory or establishment in an industry. For the purpose     H
    544                   SUPREME COURT REPORTS [1993] SUPP. 2 S.C.R.

A of the questions to be resolved, it may not be necessary to refe_r to all the
    Sections. Sectio~ 2(i) defines workmen as under:

             "2. In this Act, unless the context otherwise requires -

                   xxxx                                    xxxx
B
             (i) "workman" means a workman as defined in the Industrial
             Disputes Act, 1947 (XIV of 1947) or an employee as defined in
             the Bombay Industrial Relations Act, 1946 (Born. XI of 1947) ·as
             the case may require.

c               xxxx.                     xxxx

    Section 2(i) gives the same meaning to the expression workman as defined
    in the Industrial Disputes Act or an employee as defined in the Bombay
    Industrial Relations Act. Section4(1) reads thus :
D
             "4. Responsibility for payment of house-rent allowance: (1) Every
             employer shall pay to every workman employed by him a house-
             rent allowance which shall not be less than five per cent of the
             wages payable to the workman for his services during a month, or
             twenty rupees, whichever is higher."
E
          Section 13 empowers the State Government to grant exemption in
    certain special cases from the application of the Act. Section 13 read as
    follows:

             "13. Power to exempt in special cases-(1) Notwithstanding anything
F            contained in this Act, the State Government may, by order pub-
             lished in the official Gazette, and subject to such conditions and
             restrictions, if any, and for such period or periods, as may be
             specified in the order, direct that the provision of this Act shall
             not apply to any specified factory or establishment or to any
             specified class of factories or establishments in any. industry, if it
G
             is satisfied that it is just and proper so do to in the public interest
             or for any special reasons having regard to the more favourable
             conditions of employment in such factory or factories or estab-
             lishment or establishments or to the financial position and other
             relevant circumstances of such factory or factories or estab-
H            lishments, as the case may be.
                           H. LEVER v. MAZ. SABHA [REDDY, J.]                     545

                  (2) Any order made under this section may be made so as to be A
                  retrospective to any date not earlier than the date on which the
                  Act became applicable to that factory or factories or establishment
                  or establishments, as the case may be."

j      Purporting to exercise powers under this Section, the impuged Notification
       was issued by the State Government which reads thus:                              B
                  "No. BRA 3191/992/LAB/-A - In exercise of the powers conferred
                  by sub-section (1) of Section 13 of the Maharashtra Workmen's
                  Minimum House-Rent Allowance Act, 1983 (Mah. XXIII of 1988),
                  the Government of Maharashtra, being satisfied that it is just and     C
                  proper to do so in the public interest, hereby directs that, with
                  effect form 1st January, 1991, the provisions of said Act, shall not
                  apply to the factories and establishments in relation to their
                  workmen drawing wages as on 1st January, 1991 or thereafter at
                  the rates exceeding the limits mentioned in column (4) with refer.-
                  ence to the Zones and Areas mentioned in column (2) and (3),           D
                  respectively, of the Schedule below, subject to the condition that
                  where the wages of the workmen exceed the limits of wages in the
                  respective Zones, the House-Rent allowances payable to such
                  workmen shall be calculated as if their wages were as per the limits
                  in column (4) of the Schedule below:
                                                                                         E
       S.No. Zone                        Areas                     Limited of wages
         1.   2.                          3.                               4.
       1.     I         Comprised within the limits of Greater Rs. 3500
                        Bombay, Thane and Kalyan Municipal per month
                        Corporation Ulhasnagar and Ambernath
                                                                                         F
                        Municipal Councils; New Bombay
                        Thane-Belapur, Taloja-Banvel Industrial
                        Areas.
       2.     II       Comprised within the limits of Pune, Rs. 3000
                       Pimpri-Chinchwad and Nashik per month
                       Municipal Corporations (including
                                                                                         G
                       Awbad-Satpur NIDC of Nashik)
       3.    III       All areas within the jurisdiction of the Rs. 2500
                       State of Maharastra excluding the areas per month
                       covered under Zone I and II above."
                                                                                         H



.,.\
    546                   SUPREME COURT REPORTS (1993) SUPP. 2 S.C.R.

A The employees unions challenged this Notification on the ground that i)
    it is an excess of power under Section 13 (2), ii) it is against the basic
    provisions of the Act, iii) it is arbitrary and (iv) it is vitiated by non-ap-
    plication of mind. An additional challenge is to the retrospectivity from
    1.1.1991 on the ground of unreasonableness.

B       The High Court held that the Act contemplates payment of house-
  rent allowance to all workmen and there is no scope to reduce the mini-
  mum rate of house rent in respect of any class of workmen or to differen-
  tiate between classes or categories of workmen of a unit and in the
  Notification, rates of house-rent allowance have been reduced even below
C statutory minimum by putting a ceiling depending upon the geographical
  areas in which the factories or establishments are situated and it is beyond
  the power expressly contained in Section 13 and that in other respects also,
  the impugned Notification is not in accordance with the conditions laid
  down in Section 13.
D
           Shri Shanti Bhushan, learned counsel appearing for the petitioners
    submitted that Section 13(1) of the Act empowers the Government to
    exempt any specific factory or establishment, subject to such conditions and
    restrictions, if any, and for such period or periods, as may be specified, if
E   the Government is satisfied that it is just and proper to do so in public
    interest or for any special reasons mentioned therein and in deciding the
    question whether the Notification is in accordance with Section 13, the
    substance of the Notification as a whole should be considered.

          Learned counsel for the respondent, on the other hand submitted
F that the Notification virtually amounts to amendment of the Act particular-
    ly Section 4 and is also in total contravention of provisions of Section 13.

        Section 4, which is the soul of the Act, makes every employer
  responsible to pay monthly house-rent allowance to every workman which
G shall not less than 5% of the wages payable subject to a minimum of Rs.
  20, whichever is higher. This section does not lay down any upper limit
  regarding the entitlement of the house-rent allowance. However, higher the
  wages may be, an employer has to pay it @ 5%. A reading of the impugned
  Notification shows that the rates of house-rent allowance have been
H reduced even below the statutory ~inimum by putting a celing in the case
                  H. LEVER v. MAZ. SABHA [REDDY, i.]                    547

  of workmen drawing salary more than Rs. 3,300, Rs. 3,000 or Rs. ·4500 A
  depending upon the geographical area in which the factories or estab-
  lishments are situated. Section 13 no doubt empowers the Government to
  grant exemption in special cases in respect of applicability of the provisions
  subject to certain conditions and restrictions and for some period. This
  Section makes it clear that such an exemption can be granted to any B
  specified factory or establishment or to any specified class of factories or
  establishments in any industry. Before granting such exemption, the
· Government must be satisfied that it is just and proper to do so in public
  interest or for any special reasons having regard to the favourable condi-
  tions of employment in such factories or establishments or to the financial C
  position and other relevant circumstances of such factories or estab-
  lishments. It may be noticed that section 13 does not speak of class of
  workers or employees. The emphasis is on the factories or establishments
  in an industry and not on the workmen or employees.

       Learned counsel for the petitioners however, submitted that in the D
Notification, a classification is made on the basis of ceiling fixed in respect
of salaries as shown in column (4) which is reasonable and the workmen
who are drawing the wages within the ceilling in column (4) are not
affected and the limit of payment of house-rent allowance on these basis
is uniformly applied to all the factories in the entire State of Maharashtra E
without any discrimination and that such exemption in such terms is
permissible within the meaning of Section 13. We see no force in this
submission. The object of the Act is that every workman should get
house-rent allowance @ 5% of the wages paid. The exemption con-
templated under Section 13 can be made applicable to specified factories
and establishments and not to one class of employees thereby differently
                                                                                F
treating another class of employees in the same factory. The intention of
the legislature is clear that Section 13 applies to factories or establishments
or class of factories or establishments. Therefore the exemption can not be
with reference to a class or classes of employees. The exi)ression " condi-
tions and restrictions " can not be interpreted to mean differently and the G
same does not in any manner give scope to classify the workers in the
manner done in the Notification and grant and exemption on that basis.

      Section 13 also contemplates that the exemption can be for such
period ~r periods as may be specified. In the impugned Notification no        H
    548                   SUPREME COURT REPORTS (1993) SUPP. 2 S.C.R.

A   such period is fixed. Shri Shanti Bhushan, learned counsel, however, sub-
    mitted that unlimited period also comes within the meaning of such period.
    We do not agree. The expression "such period or periods" should be read
    in the context of the other expression namely that the Government should
    be satisfied that it is just and proper to do so in the public interest or for
B   any special reasons having regard to the more favourable conditions of
    employment. If so read, it becomes clear that the exemption cannot be for
    eternity.

           We are also unable to see as to how public interest is sub-served by
    depriving some of the workmen in the same establishment, of the house-
c   rent allowance @ 5% of the wages as provided under Section 4. Public
    interest will not be served and cannot be served by applying the provisions
    of the Act to some workmen and none to the other or with certain
    restrictions and condition to yet another class of workmen. There is yet
    another requirement namely that such exemption can be given if it is .iust .
D   and proper for any special reasons having regard to the more favourable
    conditions of employment and the same can be satisfied only on the
    exemption of an individual factory or establishment or class of factories or
    establishments and not on the basis of wages paid even in the case of a
    flourishing industry. The Notification also does not indicate any special
E   reason with reference to the fmancial position and other relevant cir-
    cumstances of any factory or establishment or class of factories or estab-
    lishments except mentioning that it is just and proper to do so in the public
    interest. We are not able to cull out any other valid reason which conforms
    with the requirement of Section 13.

F        Learned counsel for the petitioners vehemently submitted that the
  substance of the Notification has to be examined and not the mere form.
  We have noted above that the Act is a welfare legislation in conformity
  with the directive principles. The basic object underlying the Act is that
  tlie workers should be paid house-rent allowance at the rate mentioned in
G Section 4. The su,bstance of the notification is clear namely that some of
  the worker are deprived of house-rent allowance being paid at the rate laid
  down under Section 4. Assuming that such modification as per the Notifica-
  tion is justifiable on some other grounds but that does not mean that the
  substance of the Notification conforms to the requirements of Section 13.
H The classification of the workers on the basis of the income and the
                  H.LEVER v. MAZ.SABHA[REDDY,J.]                        549

  classification of the industries area-wise are not permissible under Section A
  13 as the exemption can be given to a factory or establishment or a class
  or factories or establishments in an industry subject to the conditions and
  restrictions enumerated in the Section. The economic viability of a par-
  ticular factory or establishment may be a relevant consideration but the
  wages and ceiling thereof can not form the basis nor can they be relevant B
  or the purpose of Section 13. The public interest contemplated under
  Section 13 is of different nature and the same can not be advanced by
  depriving a certain class of workmen of the benefits under the Act. Section
  4 lays down the fundamental structure namely that workers should be paid
  house-rent allowance and the establishment, factories or the units which
  under certain circumstances would be eligible for exemptior1 under Sec-
                                                                               c
  tion 13. In other words, Section 4 is the measure of the liability which
  operates on the factories or establishments which are units and the benefit
  sh01)ld go to all workmen in the unit. Likewise after requirements of
  Section 13 being satisfied, the individual unit or units, as a whole, can be
  exempted. But such exemption can not be on the basis of the workers and D
· their wages differentiating between different classes of workmen of the
  same unit. Learned counsel for the petitioners relying on the judgment of
  this Court in Security Guards Board for Greater Bombay and Thane Distt.
  v. Security & Personnel Service Pvt. Ltd. and Others, [1987] 3 SCC 413,
  submitted that the exemption can be on the basis of class or classes of E
  workmen employed. That was case arising under the Maharashtra Private
  Security Guards (Regulation of Employment and Welfare) Act, 1981 and
  Section 23 empowers the Government to grant exemption from the opera-
  tion of the provisions of the Act or any scheme thereunder in regard to all
  or any class of security guards employed in any factory. It is clear that the p
  provision of exemption can be made applicable to class or classes of
  security guards. But, in the instant case, the language of Section 13 is
  different.

        For all the above reasons, we agree with the High Court that the
notification is ultra vifes of the Act, void and unenforceable and therefore --G
the same has been rightly quashed.

       Learned counsel for the respondents submitted that giving retrospec-
tive effect to the Notification is arbitrary and the workers can not be made
to refund the house-rent allowance which has already been paid to them.        H
    550                    SUPREME COURT REPORTS (1993) SUPP. 2 S.C.R.

A We need not go into this question since we are holding that the Notification
    itself has rightly been quashed.

           In S.L.P (Civil) No. 6893/93, learned counsel appearing for the
    petitioner namely Batliboi & Co., submitted that by virtue of order passed
    by this Court in Civil Appeal No. 5139/92, the present S.L.P. is not
B maintainable. But that was at an interlocutory stage when the validity of
    the Notification was not in issue., Therefore the said order does not come
    in the way of respondents challenging the Notification.

           Accordingly, both the S.L.Ps. are dismis&ed. Since we are confirming
C the judgment of the High Court, no further orders are necessary in I.A.
    Nos. 3, 4, 5, and 6.

    R.P.                                                      Appeals dismissed.




                                                          t