# HEAVY ENGINEERING MAZOOOR UNION v. THE STATE OF BffiAR & ORS

- **Citation:** [1969] 3 S.C.R. 995
- **Court:** Supreme Court of India
- **Decided:** 1969-03-12
- **Bench:** J. M. Shelat, V. Bhargava
- **Source:** https://unisonlegal.in/judgment/supreme-court-of-india/heavy-engineering-mazooor-union-v-the-state-of-bffiar-ors-4715
- **Pages:** 7

## Headnote

Industrial Disputes Act, 1947, ss. 2(a) and !(}-Industry carritd'on
by company incorporated under the Companies Act, 1956--E:ntire share
capital subscribed by Central Government-Whether industry ca"ied on
"under the authorirry of" the Central Government and if that the "apprn.
priatt government".
Industrial Employment (Standing Orders) Act, 1946-Question.r pending before certifying authority-If bar to a reference of adjudication under
s. 10 of the Industrial Disputes Act, 1947.
The Heavy En.gioeering Corporation Limited was incorporated under
the Companies Act and its entire share capital contributed by the C.Cntral
Government. It was therefore a Government Company under s. 617 of
the Companies Act.
Its Menwrandum and
Articles conferred large
powers on the Central Governrnent including the power to give directions
as regards the operation of the Company, the wages and salaries of its
employees, and the appointment of directors of the company,
Certain
disputes arose between the Company and its workmen whereupon the
State Government of Bihar referred these disputes by a notification in
November 1956 to the Industrial Tribunal for adjudication.
The workmen through their union filed a writ petition under Arts: 226 and 227
of the Constitution disputing the validity of the reference on two grounds :
(i) that the appropriate Government to make the said reference under
s. 10 of the Industrial Disputes Act; 1947 was the Central Government
and not the State Government; and (ii) that the questions refer'red for
adjudication were at the time actually pending before
the
certifying
authority under the Industrial Employment (Standing Orders) Ac\!, 1946.
on an application for modificatioa of the Company's Standing Orders and
therefore the said questions would not be indust'rial disputes which could
be validly refei:red for adjudication.
The High Court negatived both the
contentions and upheld the validity of the reference.
In appeal to this Court under Art. 133(i) (c) it was contended inter alia
on behalf of the appellant that the industry in question was "carried on
under the authority of the Central Government" within the meaning of
s. Z(a) of the Act and the reference under s. 10 was therefore required to
be made by that Government.
HELD, Dismissing the appeal: (i) The words "under the· authority
of' mean pursuant to the authority, such as where an agent o'r a servant
acts under or pursuant to the authority of his principal or master. That
obviously cannot be said of a company incorporated under the Companies
Act whose Constitution, powers and functions are provided for and re~
gulated by its memorandum of association and the articles of association.
An incorporated company has a separate existence and the law recognises
it as a juristic person separate and distinct from its members. The mere
fact that the entire share capital of the respondent-company was contributed by the C.Cntra\ Government and the fact that all its shares were
L 11 Sup CI;69-14
996
SUPREME COURT REPORTS
[1969] 3 S.C.R.
held by the President and certain officers of the Central Government did
A
not make any difference. [998 H-999 Gl
Salomon v. Salomon & Co., [1897)
A.C. 22; Janson v. Driefontain
CoMO/idated Mines; [1902) A.C. 484; Kuenigi v. Donnersmarck, [1955)
I Q.B. 515; Graham v. Public Works Commissioners,
[19011
(2) K.B.
781;
The State Trading Corporation of India Ltd. v. The Commercial
Tax Officer, Visakhapatnam
[1964)
4 S.C.R. 99 at
188, per Shah J;
Tamlin v. Hannaford [1950) I K.B. 18 at 25, 26; London County Te"iB
torial and Auxiliary Forces Association v. Nichols,
[19481 2 All. E.R.
432;· referred to.
Although extensive powers were conferred on Central Government to
give directions in regard to various matters; the·se powers were derived
from the company's memorandum and articles and not by reason of the
company bein2 the agent of the Central Government. [1000 BJ
The definition of "employer" in s. 2(g) of the Act suggests that an
industry carried on by and u

## Text

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HEAVY ENGINEERING MAZOOOR UNION
v.
THE STATE OF BffiAR & ORS.
March 12, 1969
[J. M. SHELAT AND V. BHARGAVA, JJ.]
Industrial Disputes Act, 1947, ss. 2(a) and !(}-Industry carritd'on
by company incorporated under the Companies Act, 1956--E:ntire share
capital subscribed by Central Government-Whether industry ca"ied on
"under the authorirry of" the Central Government and if that the "apprn.
priatt government".
Industrial Employment (Standing Orders) Act, 1946-Question.r pending before certifying authority-If bar to a reference of adjudication under
s. 10 of the Industrial Disputes Act, 1947.
The Heavy En.gioeering Corporation Limited was incorporated under
the Companies Act and its entire share capital contributed by the C.Cntral
Government. It was therefore a Government Company under s. 617 of
the Companies Act.
Its Menwrandum and
Articles conferred large
powers on the Central Governrnent including the power to give directions
as regards the operation of the Company, the wages and salaries of its
employees, and the appointment of directors of the company,
Certain
disputes arose between the Company and its workmen whereupon the
State Government of Bihar referred these disputes by a notification in
November 1956 to the Industrial Tribunal for adjudication.
The workmen through their union filed a writ petition under Arts: 226 and 227
of the Constitution disputing the validity of the reference on two grounds :
(i) that the appropriate Government to make the said reference under
s. 10 of the Industrial Disputes Act; 1947 was the Central Government
and not the State Government; and (ii) that the questions refer'red for
adjudication were at the time actually pending before
the
certifying
authority under the Industrial Employment (Standing Orders) Ac\!, 1946.
on an application for modificatioa of the Company's Standing Orders and
therefore the said questions would not be indust'rial disputes which could
be validly refei:red for adjudication.
The High Court negatived both the
contentions and upheld the validity of the reference.
In appeal to this Court under Art. 133(i) (c) it was contended inter alia
on behalf of the appellant that the industry in question was "carried on
under the authority of the Central Government" within the meaning of
s. Z(a) of the Act and the reference under s. 10 was therefore required to
be made by that Government.
HELD, Dismissing the appeal: (i) The words "under the· authority
of' mean pursuant to the authority, such as where an agent o'r a servant
acts under or pursuant to the authority of his principal or master. That
obviously cannot be said of a company incorporated under the Companies
Act whose Constitution, powers and functions are provided for and re~
gulated by its memorandum of association and the articles of association.
An incorporated company has a separate existence and the law recognises
it as a juristic person separate and distinct from its members. The mere
fact that the entire share capital of the respondent-company was contributed by the C.Cntra\ Government and the fact that all its shares were
L 11 Sup CI;69-14
996
SUPREME COURT REPORTS
[1969] 3 S.C.R.
held by the President and certain officers of the Central Government did
A
not make any difference. [998 H-999 Gl
Salomon v. Salomon & Co., [1897)
A.C. 22; Janson v. Driefontain
CoMO/idated Mines; [1902) A.C. 484; Kuenigi v. Donnersmarck, [1955)
I Q.B. 515; Graham v. Public Works Commissioners,
[19011
(2) K.B.
781;
The State Trading Corporation of India Ltd. v. The Commercial
Tax Officer, Visakhapatnam
[1964)
4 S.C.R. 99 at
188, per Shah J;
Tamlin v. Hannaford [1950) I K.B. 18 at 25, 26; London County Te"iB
torial and Auxiliary Forces Association v. Nichols,
[19481 2 All. E.R.
432;· referred to.
Although extensive powers were conferred on Central Government to
give directions in regard to various matters; the·se powers were derived
from the company's memorandum and articles and not by reason of the
company bein2 the agent of the Central Government. [1000 BJ
The definition of "employer" in s. 2(g) of the Act suggests that an
industry carried on by and under the authority of the Government means
either the industry carried on directly by a department of the Government,
such as the Posts and Telegraphs or the Railways, or one carried on by
such department throu2h the instrumentality of an agent. [1001 Bl
Carlsbad Mineral Water Mfg. Co. v. P. K. Sarkar, (1952) (1) L.LJ.
488; Cantonment Board v. State of Punjab, [19611 (!) L.L.J. 734: Abdul
Rehaman Abdul Gafur v. Mrs. E. Paul, A.I.R. 1963 Born. 267, referred
to.
(ii) There was no force in the contention that as the questions relating to the modific!ation of the company's Standing Orders were pending
before the certifying authority under the Industrial Employees (Standing
Orders) Act, no reference could be made relating to these under s. 10
of the Act. [1001 DJ
Management of Banga/o,·e W oo/len, Cotton and Silk Mills Co. Ltd.
v. Workmen, [19681 1 S.C.R. 581; Management of Shahdara
(Delhi)
Saharanpur Light Railway Co. Ltd. v. S. S.
Rallway
Workers
Union,
[1969] 2 S.C.R. 131. followed.
CML APPELLATE JURISDICTION: Civil Appeal No. 1463 of
1968.
Appeal from the judgment and order dated September 5, 1967
of the Patna High Court in Civil Writ Jurisdiction Case No. 921
of 1966.
A. K. Nag, Jai Kishan and Ranen Ro,v, for the appellant.
V. P. Singh. for respondent No. 1.
B. P. Singh, for respondent No. 2.
The Judgment of the court was delivered by
Shelat, 1.-The Heavy
Engineering
Corporation
Ltd.,
Ranchi is a company incorporated under the Companies Act,
1956. Its entire share capital is contributed by the Central
Govennment and all its shares Jiave been registered in the name
of the President of India and certain officers of the Central
Government. It is, therefore, a Government company within the
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HEAVY ENGIN. MAZDOOR UNION v. BIHAR (She/at, J.)
997
meaning of s. 617 of the Companies Act. The Memorandum of
Association and the Articles of Association of the company confer large powers on the Central Government including the power
to give directions as regards the functioning of the company. The
wages and salaries of its employees are also determined in acc0rdance with the said directions. The directors of the company
are appointed by the President. In its standing orders, the company is described as a Government undertaking. The workmen
employed by .the company have two unions, the Heavy Engineering Mazdoor Union and the Hatia Project Workers Union.
Certain disputes having arisen between the company and its
workmen, into which it is not necessary for the purposes of this
judgment to go, the State Government of Bihar by its notification
dated November 15, 1966 referred two questions to the Industrial Tribunal for its adjudication : firstly, as regards the number
of festival holidays and secondly, whether the second Saturday
in a month should be an off-day.
The Mazdoor Union thereupon filed a writ petition under Arts. 226 and 227 of the Constitution in the High Court of Patna disputing the validity of the said
reference on two grounds : ( 1) that the appropriate Government
to make the said reference under s. 10 of the Industrial Disputes
Act, 194 7 was the Central Government and not the State Government and (2) that the questions referred to were at the time
actually pending before the certifying authority under the Indus:
trial Employment (Standing Orders) Act, 1946 on an application for modification of the company's standing orders and that
therefore the said questions would not be industrial disputes
which could be validly referred for adjudication. Before the High
Court it was conceded that the company was not an industry
carried on by the Central Government but the contention was
that considering the fact that the entire share capital was contributed by the Central Government and extensive powers were conferred on it, the company must be regarded as an industry carried
on under the authority of the Central Government and that therefore it was thai Government which was the appropriate Government which could make the said reference. On the second
question, the contention was that the Industrial Employment
(Standing Orders) Act was a self-contained code, that once a
question relating to conditions of service was before the certifying authority constituted under that Act and was pending before
him, the said question could not be an industrial dispute which
could be referred for adjudication under s. 10 of the Industrial
Disputes Act. It was urged that consequently the reference on
both the grounds was invalid.
The High Court negatived both
the contentions and upheld the validity of the reference.
The
Mazdoor Union obtained a certificate under Art. 133(1)(c) and
filed this appeal impugning the oorrectness of that decision.
998
SUPREME COURT REPORTS
(1969] 3 S.C.R.
Under s. 2 (a) 'appropriate Government' (leaving aside the
words which are not relevant for our purposes) means (i) in relation to any industrial dispute concerning an industry carried
on by or under the authority of the Central Government, the
Central Government, and (ii) in relation to any other industrial
dispute the State Government.
As was done before the High
Court, Mr. Nag, appearing for the appellant-union, conceded
that he would not contend that the company is an industry carried
on by the Central Government but argued that it is an industry
carried on under the authority of the Central Government and
therefore it is that Government and not the State Government
which is the appropriate Government for making
a reference
under s. JU of the Act. The first question raised by the appellantunion, therefore, turns solely upon the construction of the words
"carried on under the authority of the Central Government". The
contention was primarily grounded on the faqt that the entire
share capital of the company has been contributed by the Central
Government, all its shares are held by the President and certain
officers of the Central Government presumably its nominees and
extensive control is vested in the Central Government.
Before considering the authorities cited by counsel before us,
we proceed first to examine the meaning of the words used lJy
Parliament in the definition clause of 'appropriate Government'.
It is an undisputed fact that the company was incorporated under
the Companies Act and it is the company so incorporated which
carries on the undertaking.
The undertaking, therefore, is not
one carried on directly by the Central Government or by any one
of its depanrr.cnts as in the case of posts and telegraphs or the
_ railways.
It was, therefore, rightly conceded both in the High
Court as also before us that it is not an industry carried on by
the Central Government.
That being the position, the question
then is, is the undertaking carried on under the authority of the
Central Government '! There being nothing in s. 2 (a)
to
th.~
contrary, the word 'authority' must be construed according to its
ordinary meaning and therefore must mean a legal power given
by one person to another to do an act.
A person is said to be
authorised or to have an authority when he is in such a position
that he can act in a certain manner without incurring liability,
to which he would be exposed but for the authority, or, so as to
produce the same effect as if the pe:son gran~ing the aut.hority
had for himself done the act.
For mstance, if A authonses B
to sell certain goods for and on his behalf and- B does so, B incurs no liability for so doing in respect of such ~oo~s and confers
a aood title on the purchaser. There clearly arises m such a case
th~ relationship of a principal and an agent. '.fhe words "under
the authority of" mean pursuant to the authonty, such as where
an agent or a servant acts under or pursuant to the authority of
his principal or master.
Can the respondent-company, there-
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11BAVY .ENGIN. MAZilOOR UNION v. BIHAR (Shela/, J.)
99 9
fore, be said to be carrying on its business pursuant to the
authority of the Central Government '?
That obviously cannot
be said of a company incorporated under the Companies Act
whose constitution, powers and functions are provided for and
regulated by its memorandum of association and the articles of
association.
An incorporated company, as is well known, has
a separate existence and the Jaw recognises it as a juristic person,
separate and distinct from its members.
This new personality
emerges from the moment of its incorporation and from that
date the persons subscribing to its memorandum of association
and others joining it as members are regarded as a body inco:-
porate or a corporation aggregate and the new person begins to
function as an entity.
(cf. Salomon V." Solomon & Co.)('). Its
rights and obligations are different from those of its shareholders.
Action taken against it does not directly affect its shareholders.
The company in holding its property and carrying on its business
is not the agent of its shareholders. An infringement of its rights
does not give a cause of action to its shareholders. Consequently,
it has been said that if. a man trusts a corporation he trusts that
legal persona and must look to its assets for payment; he can call
upon the individual shareholders to contribute only if the Act or
charter creating the corporation so provides. The liability of an
individual member is not increased by the fact that he is the
sole person beneficially interested in the property of the corporation and that the other members have become members merely
for the purpose of enbling the corporation to become incorporated and possess only a nominal interest in its property or hold it
in trust for him.
(cf. Halsbury's Laws of England, 3rd Ed. Vol.
9, p. 9). Such a company· even possesses the nationality of the
country under the laws of which it is incorporated, irrespective
of the nationality of its members and does not cease to have that
nationality even if in times' of war it falls under enemy control.
(cf. Janson v.
Driefontai~ Consolidated Mines(') and Kuenigi
v. Donnersmarck('). The company so incorporated derives its
powers and functions from and by virtue of its memorandum of
association and its articles of association.
Therefore the mere
fact f!1at the entire share capital of the respondent-coi'upany was
contnbuted by the Central Government and the fact that all its
shares are held by the President and certain officers of the Central Government does i;iot make any difference. The company
and the shareholders bemg, as aforesaid, distinct entitles the tact
that the President of India and certain officers hold all its shares
does not make the company an agent either of the President or
the Central Government. A notice to the President of India and
the said office.rs of the Central Government, who hold between
them all the shares of the company, would not be a notice to the
---(JJ-11897] A:C:.22.---
(2) [1902] A.C.484.
(3) [1955] 1 Q.B. 515.
1000
SUPREME COURT REPOllTS
[1969] 3 S.C.ll.
company; nor can a suit maintainable oy and ·in the name of the
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company be sustained by or in the name of the President and the
said officers.
·
It is true that besides the Central Government having contributed the entire share capital, extensive powers are conferred on
it, including the power to give directions as to how the company
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should function, the power to appoint directors and even the
power to determine the wages and salaries payable by the company to its employees.
But these powers are derived from the
company's memorandum of association and the articles of ·association and not by reason of the company being the agent of the
Central Government.
The question whether a corporation. is c
an agent of the State must depend on the facts of each case.
Where a statute setting up a corporation so provides, such a corporation can easily be identified as the agent of the State as in
Graham v. Public Works Commissioners(') where Phillimore, J.
said that the Crown does in certain cases establish with the consent of Parliament certain officials or bodies who are to be treated as agents of the Crown even though they have the power of
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contracting as principals.
In the absence of a statutory provision, however, a commercial corporation acting on its own behalf, even though it is controlled wholly or partially by a Government department, will be ordinarily presumed not to be a
servant or agent Of the State. The fact that a minister appoints
the members or directors of a corporation and he is entitled to
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call for information, to give directions which are binding on the
directors and to supervise over the conduct of the business of the
corporation does not render the corporation an agent of the
Government. (see The State Trading Corporation of India Ltd.
v. The Commercial Tax Officer, Visakhapatnam( 2 )
and Tamlin
v. Hannaford('). Such an inference that the corporation ls the F
agent of the Government may be drawn where it is performing
in substance governmental and not .commercial functions. (cf.
London County Te"itorial and Auxiliary Forces Association v.
Nichols)(').
. In. this connection the meaning of the word 'employer' as
given~ s. 2(g) of the Act may be looked at with some profit as
G
the legisl~ture there has used identical words w)lile defining 'an
~mployer. An employer under cl. (g) means, m relation to an'
mdustry earned on by or under the authority of any department
of the. Cen~ral Government or a State Government, the authority
prescnbed m tha.t behalf or where l!lO such authority is prescribed,
th~ hea~ of the department.. No such authority has been presH
cnbed m regard to the busmess carried on by the respondent-
(1) (19011.2 K.B. 781.
(2) 11964] 4 S.C.R. 99at188. per Shah. J.
(l) [19SO] I K.B.18 at 25. 26.
(4) [1948) 2 All. E.R. 432,
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itEAVY llNGIN. MAZOOOR UNION V. BIHAR (She/at, J,)
1001
company. But that does not mean that the head of the department which gives the directions as aforesaid or which supervises
over the functioning of the company is the employer within the
meaning of s. 2(g). The definition of the employer, on the contrary, suggests that an industry carried on by or under the authority of the Government means either the industry carried on
directly by a department of the Government, such as the posts
and telegraphs or the railways, or one carried on by such
department through the instrumentality of an agent.
We find
that the view which we are inclined to take on the interpretation
of s. 2 (a) is also taken by the High Courts of Calcutta, Punja;,·
and Bombay.
(see Carlsbad Mineral Water Mfg. Co. v. P. K.
Sarkar('), Cantonment Board v. State of Punjab(2 ) and Abdul
Rehaman Abdul Gafur v. Mrs. E. Paul('). In our view the
contention that the appropriate Government to make the aforesaid reference was the Central Government and not the State
Government has no merit and cannot be sustained.
The second contention that the questions referred to were
regulated qy the company's standing orders and an application
for a modification of the said standing orders relating to those
questions was actually pending before the certifying authority
under the Industrial Employees (Standing Orders) Act precluded a reference thereof under s. l 0 of the Act requires no discussion as it is covered by the decision in Management of Bangalore
Woollen, Cotton & Silk Mills Co. Ltd. v. Workmen(<) and The
Management of Shahdra (Delhi) Saharanpur Light Railway Co.
Ltd. v. S. S. Railway Workers Union(").
Thus neither of the two contentions can be upheld. In the
result the appeal is dismissed but there will be no order as to
costs.
R.K.P.S.
(I) [1952] I L.L.J. 388.
(2) [1961 J I L.L.J. 734.
(3) A.I.R.1963 Born. 267.
(4) [1968] I S.C.R. 581.
(5) [1969) 2 S.C.R. 131.
Appeal dismissed.