SUPREME <'Ol'RT REPOHTS v. THE U

In regard to the decisio11s of tlw Wage Board the Cou.rt has to <·onside!' firRt, whethC'r the rlecisions are intra -vire8 the Act-since an authority in whom tlw power of subordinate legislation is de!Pgated ("<LllJIOt act contrary to the statute, anrl secondly, do thP deci sions being a part of the Act in any way contravem' the Constitution. These are the only question~ which ~ 34 SUPREME COURT REPORTS [1959] 1958 arise in regard to the decisions of the Wage Board. No question arises of its procedure being in accordance Express New-<· with the principles of the natural justice nor of the papers (Priv•I•) Ltd . .s. Anolh" application of audi alteram partem. [Bhagwati, J.-They say it is contrary to the • v. Th• Uni•• •f l•dia principles of natural justice-audi alteram partem.] & Olhm That is a maxim about which we have heard so much. It has no application to this case of delegated legislation. [Bhagwati, J.-Can it not be urged, having regard to s. 11, that the Legislature did not contemplate that the Wage Board was to function as delegated authority because it gives the choice of the provisions of the followed by the Industrial Disputes Act being Board?) No, even for a subordinate legislative autliority there are procedures to be followed for arriving at certain conclusions. [Kapur, J.-Is it not necessary to 'hear everybody who may be affected by the decisions of the Board ?] No question of hearing arises. It is a question of a subordinate legislative authority gathering such infor mation as it wants and it is obliged to take into consideration all the relevant circumstances. Certiorari and prohibition lie only in respect of (Halsbury's Laws of judicial or quasi-judicial acts,. England, 3rd Edn. Vol. 11, p. 55, para. 114). The principle audi alteram partem also applies only to judicial or quasi-judicial proceedings. (Patterson v. Dist. Gommr. of Acerator, [1948) A. C. 341). For a distinction between judicial and legislative functions, See Cooley's Constitutional Limitations, 8th Edn. Vol. 1, p. 185; Prentis v. Atlantic Coast Go. Ltd., 211 U.S. 210, 226-227, Per Holmes J.; Mitchell Goal Go. v. Pennsylvania, 57 L. Ed. 1479, 1482; Louisville and Nashville Railroad Go. v. Green Garrett, 58 L. Ed. 229, 239). The functions of the Wage Board in the United Kingdom have been characterised by writers as legis lative in character. (Robson's Justice and Admini strative Law, 3rd Edn. p. 608; Griffith's Principles of Administrative Law, p. 39; Barbara Wootton, Social Foundations of Wage Policy, Modern methods of S.C.R. SUPREME COURT REPORTS 35 · J...,., l' z95s T d E Wage ~etermination,. p. 88). This is also the case in (Federated Saw Mills Case, 8 C. L. R. 465; Australia. F d B Express News A ra e mp.,,Hees e eration v. Why- ustra ian papers (Privat•) brow and Co., 10 C. L. R. 266, 289, 317, per Isaacs, J.). Lid .• o;. Anoth" The Labour and Industry Act, 1953, of Victoria (Australia) in s. 39 (2) gives statutory recognition to Th< Union of llldia the decisions in 8 C. L. R. 365 and 10 C. L. R. 266, by providing that every determination shall have force, validity and effect as if enacted in the Act. The very constitution of the Wage Board under the impugned Act, with an equal number of representatives of em- ployers and employees with an independent chairman is against its being judicial or quasi-judicial in charac- ter, for, no man should be judge in his own cause. (Franklin v. Minister of Town and Country Planning, [1948] A. C. 87, 103). & Otliers v. It is incorrect to infer that once the Wage Board is constituted under s. 8 of the Act the power of the Government under the Act is exhausted and nothing · more can be done. The power to constitute the Board can by virtue of s. 14 of the General Clauses Act, 1897, be used from time to time as the occasion demands. There was nothing wrong in the Central Government reconstituting the Board on the resigna tion of Shri K. P. Keshava Menon. The decision by majority is provided by Rules framed by the Central Government under s. 20 of the Act which became a part of the Act. Hence a decision by a majority in conformity with the Rules under the Act cannot be impeached. In examining the decisions of the Wage Board the Court will attach to them the same consideration and weight as to a decision by a legislature. (Pacific States Box and Basketing Co. v. White, 80 L. Ed. 138; 296 U. S.'170). Under s. 11 of the Act the Wage Board "may" exercise the powers and follow the procedure laid down under the Industrial Disputes Act, 1947. There is nothing to warrant the provision being read as obligatory or mandatory. The provisions of the Indus trial Disputes Act are basically enacted for the adjudi cation of disputes between two parties and they are on 36 SUPREME COURT REPORTS t l!l59] '958 their face inapplicable tu the \Vage Ho<Lrcl. That iR lirecisely why the Board was irivcn the option to E;J;/Jress N cws- papers (Privafr) exercise .some of the powers conferred by the Industrial Ltd., .s- Another Disputes Act or to follow procedures prescribed in that .._, v. The Union of India &- Others Act. It is not incumbent under the Act on the Wage Board to give any reasons for its decisons. The Board would be perfectly within its right if it <"hose not to give any reasons. While judging the reasonableness of the wage st.rue. ture for the whole industry it would be cutirrly falla cious to see how it hit a particular newspaper or a unit. Multiple units or chains could be classified on the basis of the total gross revenues of all the co1Jsti. tuent units because economies would be possible in group operations resulting in the rednetion of the cost of production. There is nothing in the Act whi<'h prohibits the Wage Board from groupiug into chains or mii:ltiple units. Further, there is nothing in the Act to prohibit the treating of several newspaper establish ments publishing one or more newspapers though in different parts of the country <Ls one esh1blishment for fixing rates of wages. Some sort of classification was inevitable when the· newspaper establishments all over the country had to be considered for fixing the rates of wages. If the Wage Board adopted gross revenue as a workable basis for classification there was nothing wrong and that fact oould not vitiate its decision. Profits of newspaper establishments were vague and difficult to ascertain as many things are mixed up in calculating profit. It would be dangerous to go by the profit -and loss of individual concerns to ascertain their capacity to pay. Even the Bank Award has taken the "turnover" or the aggregate resources as the basis of the dassification. The basis of gross revenue was the only proper and convenient method of ascertaining the actual status of a newspaper establishment for fixing a wage structure. Wage-structure recommended by the Board would show that compared with the scales and salario.~ obtain ing now in many of the newspaper establishments the scales given by the Board were not exorbitant or S.C.R. SUPREME COURT REPORTS 37 unreasonable. What is to be considered is the industry region-wise and not individual units. It may be that · d' 'd f 1£.xpress News· In IV! ua umts may suuer a s ip or even go out o papers {Private) existence but that would not be a relevant considera- Ltd .• &- A"other t~n. er h rd h z958 ~ l · [ Gajendragadkar, J.-If the decisions are to be The Union of India .s. Others attacked effectively under Art 19(l)(g), petitioners have to show that A or B or U class· of paper will cease to exist, or, taken as a class they cannot bear the · burden.] ·That is the way the matter should be approached. The figures in individual statements of the petitioners furnish no evidence whatsoever of the unreasonableness of the wage fixation. The decision is given retrospective effect from the date of constitution of the Board. The Act itself in s. 13 contemplates interim relief. Instead of granting any interim relief the Board decided to give retrospec. live effect to its decision. A. V. Viswanatha Sastri, S. Viswanathan, B. R. L. Iyengar, J. B. Dadachanji, S. N. Andley and Rameshwar Nath, for respondent No. 3 in Petition No. 91 of 1957. The balance sheets and profit and loss accounts of the petitioner company for several years when analysed show that with normally prudent management the earnings of the Indian Express group of newspapers admit of payment to working journalists on the scale fixed by the Wage Board and the decision of the Wage Board was legally valid and just having regard to the several factors to be taken into considera tion in fixing a fair wage. N. C. Chatterjee, A. S. R. Chari, S. Viswanathan, A. N: Sinha, J. B. Dadachanji, S. N. Andley and Rameshwar Nath, for the Indian ]'ederation of Work ing Journalists in all the Petitions, and for the Delhi Union of Journalists in Petition No. 103 of 1957. It is open to Parliament to delegate to the \Vage Board the power to legislate with -regard to certain subjects. The so-called decision of the Wage Board was a valid exercise of such power by a subordinate legislative body functioning under specified conditions under Parliamentary mandate with the limits prescribed by the Constitution. 38 SUPREME COURT REPORTS [1959] i95H Even if the YVage Board is held to be a quasi- judicial body, it acted according to the principle of E.xpres ... · Neit;.\·~ J>apers (Private) audi alteram partem and no prerogative writ should Ltd .. & A1101her be issued to disturb findings arrived at by such a body. v. nu· 'fld " :11~; n 1 1 '"' • M. K. N ambiar, in reply. The Wage Board was not intended to exercise p()wers of legislation but those of a judicial nature. Under s. IO of the Working .Journalists Art the Board has to make a "decision", and this term has been used in several enactments to indicate a determination by a judicial tribunal. Under s. 8 the decision of the Board has to be made in accordance with the provisions of the Act and therefore the Board had the function of applying the law and not making i~ law. The Wage Board is required under s. II to adopt tho law procedure as is adopted by Industrial Tribunals. The decision of the Board is declared to be binding only on some persons and not all. It can be execut.ed in the same manner as the award of an Indus trial Tribunal. Its character is identical to that of an award made by an industrial tribunal and the Supreme Court ha; held that a tribunal does not exercise legis lative fuw·tions. Parliament did not intend to confer :my powers of subordinate legislation on the Board. This is clear from the rules of business of the Lok Sabha read with the Statement of Objects and Reasons to the Bill. In the memorandum regarding delegated legis lation appended to the Bill the constitution of the Wage Board in the matter of fixation of wages had not been shown as a piece of delegated legislation. (The Rules of Procedure and Conduct of Business in Lok Sabha (1957)-Rule 70). The decision of the Wage Board was not to he laid before both the Houses of Parliament. This would have been so had the fixation of wages by the Honrd was a delegated legislation (Ibid Rule 317). Tho \\I age Board was not constituted as sub-legislative authority. The question is not what the legislature could have enacted but whether by virtue of powers of the \Vag0 Board under the Act as enacted, it is a legis lative body or a tribunal with adjudicatory functions. The Board does not possess any powers of delegated It has been given all the trappings which legislation. S.C.R. HUPREME COURT REPORTH :rn 01 ,c •. , .. ""' 1958 were necessary to chametcrizc it ns a judicial body. In interpreting the Act the Court is entit.led to take into Express 1Vew.,- considcration the surrounding circumstnnccs, the object papers (l'ri,·ate) of the legislation and also whether a particular tPrm ud .. ,~ .1""'"" used in legislation was considered hy the lt'gislatml' at the time of enactment. The court ought to tnke into The Fnioa 0! Iadia consideration the entire background nnd the effect of dropping of the term "minimum'' from the pna<·tnwnt. The Press Commission had directed its attention exclusively to the question of fixing minimum wage and t.he Act in s. 9 followed the pattern and purported to implement tlw rnconunendat.ionR of thl' Pross Commis- sion. The Press CommiRsion in «onsidering minimum wage ignored the capacity to pay. The Art, simil1irl~·· hoing based on the Heport of the Prt>SS Commission lrns made no provision for considPring t.he rapacity to pay. This omission which was appropriate with rPgard to minimum wages rendered the fixation of wageR at a different level unreasonable and therefore void. The eontent of the term "minimum wage" would not b<' <·hanged by merely calling it a "statutory" minimum. 8ection 14 of the General manses Act, 1897, can apply if the enactment does not rule it out by necessary implication. · The entire scheme of tlw impugned Act shows that only one Wage Board and DIW decision is contemplated. It is not open to the ( ion'rnment to reconstitute the Wage Board ns and when th<'~· desire. Mun, qhi, in reply. Tlw doctrine of "pith 1tnd sub stanct"' can he applied only to determine Hw jurisdie t.ion of the legislature to enact a <"ertain legislation. Whether or not the Act imposes a clir<'ct burden, the Court should see if the Act is a special law singling out an industry for laying the burden on it. If it do<'s so, as in the present Act, it will amount to a dirPct bmden. lf it is a general law it would not be a direct burden. The Act stands alone in being arbitrary and cxces Hive and is without parallel in any other country. TIH' Act is unique in that. (1) it providl's for grntuity l'Ven on voluntary resignation, (2) it gin's pow,•r lo the Wage Board to fix indeterminate wages investing them with attributes of minimum wages, and (3) it confers on the Board power io fix wages (i) without specifying 40 SUPREME COURT REPORTS (1959] z958 essential standards, (ii) without casting a duty to follow a reasonable procedure, (iii) without any control by an 11 ·ews· appellate tribunal or court, and (iv) without providing Express papers (Private) Ltd., & Anothor any opportunity to the partie8 concerned to be heard In other on the merits of the proposal it makes. TJ.e Union of India countries there are various safeguards and checks against arbitrary wage decisions. (U. K. Wage Councils Act, 1945; U. S. Fair Labour Standards Act, 1938; Factories and Shops Act, 1905, new Act of 1928 of Victoria, Australia). & Others v. [Sinha, J. All these criticisms would be out of place if it is held that the work of the Wage .Board was legis lative and not judicial]. No. If the mechanism of the Act itself is such that it is unreasonably restrictive of rights to trade then the Act has to be struck down as void under Art. 19 (l)(g). Even if it is held that there was no excessive delega tion, it is still open to the Court to see whether the restrictions impinged on the Constitutional safeguards under Art. 19 (l)(g). Fixation of scales of wages on the basis of gro!!S revenue without taking into account the liability of newspapers is a devastating doctrine in industrial relations. The Wage Board is not a sub-legislative body; but even if it is, it has to act judicially and is subject to writs of certiorari. Even if its decisions become as similated in the Act it must be considered to be a quasi-judicial hody, since it is expected to carry out a preliminary investigation before recording its findings. The functions of the Wage Board cannot be cha racterised either exclusively legislative or exclusively judicial. The functions performed by administrative agencies do not fall in water tight compartments. They may be partly legislative, partly judicial and partly administrative (Stason a.nd Cooper, Cases and other Materials on Administrative Tribunals). The Court has the administrative agency performs a predominantly legislative or judicial funetion and determine its character accordingly (Village of Saratoga Springs v. Saratoga Gas Electric Light and Power Co., (1908) 191 Net.' York 123; Peopl~ to consider whether S.C.R. 'SUPREME COURT REPORTS 41 v. r9Jt "'oiAers In Australia the Factories and Shops The Union °! India In the United Kingdom Exprm N•Dls ex rel. Central Park North and Errnt River Go. v. Willcox, {1909) 194 New York 383). the decisions of the Wage Councils in the shape of papers (Priv•t•) wage regulations proposal acquires legislative character Ltd .. .s. Another from the order made by the Minister giving effect to the proposals. Act, 1905, and the Labour and Industry Act, 1953, - Section 39(2) of Victoria by express provision invests the determination of the Special Board with the cha racteristics of a legislative act. Under the ]'air Labour Standards Act, 1938, of U. S. A. the Wage orders ulti- mately approved by the Administrator are subject to In India unde1 the Minimum Wages judicial review. Act, 1948, the recommendations of the Committees are forwarded to the appropriate Government who by notification as a token of approval, in the official Gazette, fix minimum wages in respect of each sche- duled employment. Under the recent amendment of the Bombay Industrial Relations Act, 1946, the Wage Boa.rds constituted under the Act are to follow the procedure of the Industrial Court in respect of arbitra- tj.on proceedings and it cannot be said that they perform any legislative function. The Wage Board under the impugned Act, in spite of its being an admi- nistrative body or sub-legislative body may neverthe- less be exercising quasi-judicial functions if certain conditions are fulfilled (Halsbury's Laws of England, 3rd Edn., Vol. 11, pp. 55-56; Rex v. Manchester Legal Aid Committee, Ex-parte R. A. Brand and Go. Ltd., [1952] 2 Q. B. 413, 428; Rex v. The London County .Council, Ex-parte.- the Entertainments Protection Associa- tion Ltd., [1931] 2 K. B. 215, 233-234; Bo1trd of Edu- cation v. Rice, [1911] A.('. 179, 182; Allen C. K. - Law and Order-1956 Edn., pp. 102, 256, 257). The Wage Board has not given any attention to the paramount consideration of capacity to pay as it should, in reason, have done. At no time was any question asked as to the wage burden the Wage Board's scales would impose on the industry as a whole or on a particular unit. The specific burden which the Board proposed to impose has never been 6 42 SUPREME COURT REPORTS [1959] '958 put even indirectly. At no time has it been considered what would be the potential burden on the industry if Erpress News- papers (Private) the non-journalists in newspaper establishments made Ltd .• & Another similar demands. No consideration has ever been given about the effect on the industry or on a unit of v. The Union of India the retrospective operation of the wage scales. & Others Bhagwati ]. A. S. R. Chari, S. Viswanathan, B. R. L. Iyengar, J. B. Dadachanji and S. N. Andley, for the Federation of Press Trust of India Employees' Union, Bombay Union of Journalists and Gujrat Working Journalists Union. R. Ganapathy Iyer and G. Gopalakrishnan, for the appellants in C. A. No. 699 of 1957. L. K. Jha, S.S. Shukla and R. J. Joshi, for the appellants in C. A. Nos. 700 to 702 of 1957. S. P. Sinha,, Harbans Singh and R. Patnaik, for the appellants in C. A. No. 703of1957. B. Sen and R. H. Dhebar, for respondent No. 1 in all the appeals. N. C. Chatterjee, J. B. Dadachanji and S. N. Andley, for the Indian Federation of Working Journalists ip. all appeals, respondent No. 2 in C. A. No. 700of1957 and respondent No. 3 in C. A. No. 703of1957. B. R. L. Iyengar, J. B. Dadachanji, S. N. Andley and Rameshwar Nath, for respondent No. 3 in C. A. 699 of 1957.

#1958. March 19. The Judgment of the Court was delivered by BHAGWATI J.-These petitions under Art. 32 of the Constitution raise the question as to the vires of the Working Journalists (Conditions of Service) and Miscel laneous Provisions Act, 1955 (45 of 1955), hereinafter referred to as "the Act" and the decision of the Wage Board constituted thereunder. As they raise common questions of law and fact they can be dealt with under one common judgment. In order to appreciate the rival contentions of the parties it will be helpful to trace the history of the events which led to the enactment of the impugned Act. The newspaper industry in India did not originally individual industry, but started as start as an S.C.R. SUPREME COURT REPORTS 43 t v. f h d (P . z95& . d te . t' c arac ns 10s o a. P P newspapers founded by leaders in the national, political social and economic fields. During the last half a 1 d h Express N•ws· cen ury, owever, 1t eve ope 1 l profit making industry in which big industrialists Lt~.,'';. ;:v:z;., invested money and combines controlling several news- papers all over the country also became the special The Union of India feature of this i:levelopment. The working journalists except for the comparatively large number that were £ d ig metropo itan cities, were oun concentrate scattered all over the country and for the last ten years and more agitated that some means should.be found by which those working in the newspaper industry were enabled to have their wages and salaries, their dearness allowance and other allowances, their retirement benefits, their rules of leave and conditions of service, enquired into by some impartial agency or authority, who would be empowered to fix just and reasonable terms and conditions of service for working journalists as a whole. .s. Others Bhagwati ], in t e h b 1 Isolated attempts were made by the Uttar Pradesh and Madhya Pradesh Governments in this behalf. On June 18, 1947, the Government of Uttar Pradesh appointed a committee to enquire into the conditions of work of the employees of the newspaper industry in the Uttar Pradesh. On March 27, 1948, the Government of Central Inquiry Provinces & Berar also appointed an Committee to examine and report on certain questions relating to the general working of the newspaper industry in the province, including the general condi tions of work affecting the editorial and other staff of newspapers, including dearness allowance, leave, provident fund, pensionary benefits, etc. their emoluments The Committees aforesaid made their reports on the respective dates March 31, 1949, and March 2'1, 1948, making certain recommendations. The All-India. problem, however, remained to be tackled and during the debate in Parliament on the Constitution (First Amendment) Bill, 1951, the Prime Minister said that he was prepared to appoint a committee or a commis sion, including representatives of the Press, to examine 44 SUPREME COURT REPORTS [1959] v. r95B & Others Bhagwati J. the state of the Press and its content. He elaborated the idea further on June 1, 1951, when he indicated Express News- papers (Priv"te) that n,n enquiry covering the larger issue of the Press, Ltd .• & Anothe> such as had been cal'!"ied out in the United .Kingdom hy the Roya,! ( 'ummission, might be productive of good The L'11ion °1 Indw for the Pres8 and the development of this very impor- t11nt aspect of public atfairs. The idea was further dismrnsed dming the debate in Parliament on the Press (Incitement to Crimes) Bill, later named the Press (Objectionable Matter) Act, 1952. At its session held in April, 1952, at Cakutt11, the Indian Federation of \Y or king ,Journaliots adopted a resolution for appointment of a Commission to enquire into the condi tions of the Press in India with a view to improving its place, status and functioning in the new democratic set up. The n, ppointment of the Press Commission was thercn, fter n,nnounced in/a Communique issued by the Govt. of India, Ministry of Information n,nd Broad casting, on 8cptember 23; 1952, under the Chairman ship of :Shri Justice G. S. Rajadhyakshn,. The terms of reference inter alia were :- "2. The Press Commission shall enquire into the state uf the PL"css in India, its presHnt and future lines uf development and shall in pitrticular examine :- (iv) the method of recruitment, training, scales of remuneration, benefits and other conditions of employ m8nt of working journalists settlement of disputes affe.cting them and factors which influence the establish ment and maintenance of high professional standards " The Commission completed its enquiry and submit ted its report on July 14, 1954. Amongst other things it found that uut of 137 concerns 11bout whom informa tion was available only 59 were returning profits and 68 showed losses. The industry taken as/a whole had returned a profit of about 6 lakhs of rupees on a capital investment of about 7 crorcs, or less than 1 per cent. per annum. It found that proof-readers as a class could not be regarded as working journalists, for there were proof-readers even in presses doing job work. It cmne to the conclusion that if a person had been S.C.R. SUPREME COURT REPORTS 45 employed as a proof-reader only for the purpose of making him a more efficient sub-editor, then it was obvious that even while he was a proof-reader, he Express News shouid be regarded as a working journalist but in all papers (Private) Ltd., & Another o er ms ances, e wou no but as a member of the press staff coming within the The Uni;; o' India purview of the Factories Act. e conn e as a iourna 1st & Oth:rs t d t b r958 Jd h ]'' • t ' Bhagwati J. The question of the emoluments payable to working journalists, was discussed by it in paragraphs 538 and 539 of its report : . 538 :-"SCALES TO BE SETTLED BY COLLECTIVE BARGAINING OR ADJUDICATION :-It has not been possible for us to examine in detail the adequacy of the scales of pay and the emoluments received by the working journalist having regard to the cost of living in the various centres where these papers are published and to the capacity of the paper to make adequate payment ............ In this connection it may be stated that the .Federation of Working J ournafats also agreed, when it was put to them, that apart from suggesting a minim11m wage it would not be possible for the Commission to undertake standardisation of designa tions or to fix ~cales of pay or other conditions of service for the different categories of employees for different papers in different regions. They have stated that these details must be left to be settled by collec tive bargaining or where an agreement is not possible the dispute could be settled by reference to an indus trial court or an adjudicator with the assistance of a Wage Board, if necessary. The All India Newspaper Editors' Conference and Indian Language Newspapers' Association have also stated that it would not be possible to standardise designations and that any uniformity of salaries as between one newspaper and another would be impossible. The resources of different newspapers vary and the conditions of service are not the same. \Ve agree in principle that there should be uniformity as far as possible, in the conditions of service in respect of working journalists serving in the same area or locality. But this can be achieved only l:J.y a settlement or an adjudication to which the em ployers and the employees collectively are parties." 46 SUPREME COURT REPORTS (1959] v. x958 539 :-DEARNESS ALLOWANCE:-" ...... This again, is a matter which would require very detailed study Express News- of the rise in the index numbers of the cost of living papers (Privatt) Ltd., & Another for various places where the newspapers are published. We do not know of any case where a uniform rate has The Unfon of India been prescribed for dearness allowance applicable all over the country irrespective of the ceonomic condi tions at different centres and the paying capacity of the various units. This must be a m[\tter for mutual adjustment between the employers and the employees and if there is no agreement, some machinery must be provided by which disputes between the parties could be resolved." Bhagwati f. & Othevs The position of a journalist was thus characterised by the Commission : "A journalist occupies a responsible position in life and has powers which he can wield for good or evil. It is he who reflects and moulds public opinion. He has to possess a certain amount of intellectual equipment and should have. attained a certain edu cational standard without which it would be impossi ble for him to perform his duties efficiently. His wage and his conditions of service should therefore be such as to attract talent. He has to keep himself abreast of the development in different fields of human activity-even in such technical subjects as law, and medicine. This must involve constant study, contact with personalities and a general acquaintance with world's problems." It considered therefore that there should be a certain minimum wage paid to a journalist. The possible impact of such a minimum wage was also considered by it and it was considered not unlikely that the fixation of such a minimum wage may make it im possible for small papers to continue to exist as such but it thought that if a newspa.per could not afford to pay the minimum wage to the employee which would enable him to live decently and with dignity, that newspaper had no business to exist. It recommended division of localities for differential cost of living in different parts of India, the reasonable and determining what should be taking into account S.C.R. SUPREME COURT REPORTS 47 minimum wage in respect of each area. It endorsed the concept of a minimum wage which has been adopted by the Bank A ward :- E~press News~ papers (Private) " Though the living wage is the target, it has to Ltd., & Another z95B v. be tempered, even in advanced countries, by other considerations, particularly the general level of wages The Union of India in other industries and the capacity of the industry & Others to pay ............ In India, however, the level of the Bhagwati J. national income is so low at present that it is gener- ally accepted that the country cannot afford to pres- cribe a minimum wage corresponding to the concept of a living wage. However, a minimum wage even here must provide not merely for the bare subsistence of living, but for the efficiency of the worker. For this purpose, it must also provide for some measure of education, medical requirements and amenities." and suggested that the basic minimum wage all over India for a working journalist should be Rs. 125 with Rs. 25 as dearness allowance making a total of Rs. 150. It also suggested certain dearness allowance and City allowance in accordance with the location of the areas in which the working journalists were employed. It compared the minimum wage recommended by it with the recommendations of the Uttar Pradesh and Madhya Pradesh Committees and stated that its recommendations were fairly in line with the recom mendations of those Committees particularly having regard to the rise in the cost of living which had taken place since those reports were made. It then considered the applicability of the Indus trial Disputes Act to the working journalists and aHer referring to the award of the Industrial Tribunal at Bombay in connection with the dispute between " J am-e-J amshed " and their workmen and the decision of the Patna High Court in tho case of V. N. N. Sinha v. Bihar Journals Limited('), it came to the conclusion that the working journalists did not come within the definition of workman ns it stood at that time in the Industrial Disputes Act nor could a ques tion with regard to them bo rnis0d by others who were admittedly governed by the Act. It thereafter cou- (1) (1955) I. L. R. 32 Pat. 688. 48 SUPREME COURT REPORTS [1959] r958 sidered the questions as to the tenure of appointment termination and the minimum period of nqtice for Express ]\Tews· papers (Private) of the employment of the working journalists, hours leave, retirement benefits Ltd., & Anoth" of work, provision for and gratuity, made certain recommendations and The Union of India suggested legislation for the regula.tion of the news- paper industry which should embody its recommenda- tions with regard to (i) notice period ; (ii) bonus,· (iii) minimum wages; (iv) Sunday rest; (v) leave, and (vi) provident fund and gratuity. Bhagwati ]. & Others v. - Almost immediately after the Report of the Press Commission, Parliament passed the Working Journa lists (Industrial Disputes) Act, 1955 (I of 1955) which received the assent of the President on March 12, 1955. It was an Act to apply the Industrial Disputes Act, 194 7, to working journalists. " Working Journalist" was defined in s. 2 (b) of the Act to mean " a person whose principal avocation is that of a journalist and who is employed as such in, or in relation to, any establishment for the production or publication of a newspaper or in, or in relation to, any news agency or syndicate supplying material for publication in any newspaper, and includes an editor, a leader-writer, news-editor, sub-editor, feature writer, copy-taster, reporter, correspondent, · cartoonist, news-photogra pher and proof reader but does not include any such person who: (i) is employed mainly in a managerial or admini strative capacity, or (ii) being employed in a supervisory capacity, exercises, either by the nature of the duties attached to the office or by reason of the powers vested in him, functions mainly of a managerial nature. Section 3 of that Act provided that the provisions of the Indus trial Disputes Act, 1947, shall apply to, or in relation to, working journalists as they apply to or in relation to workmen within the meaning of that Act. The application of the Industrial Disputes Act, 1947, to the working journalists was not, however, deemed sufficient to meet the requirements of the situation. There was considcra ble agitation in Parlia ment for the implementation of the recommendations f k 1 I958 d. . S.C.R. SUPREME COURT REPORTS 411 of the Press Commission, and on November ao, 1955, the Union Government introduced a Bill in the Rajya Sabha, being Bill No. 13 of 1955. It was a Bill to E>prm Niws- f . p"pers {P1ivale) regu a.te con 1t1ons o service o wor ing journalists Ltd .. .,. Another and other persons employed in newspaper establish- ments. The recommendations of the Press Commis- The Union of India sion in regard to minimum period of notice, Lonus, Sunday rest, leave, and provident fund and gratuity, etc., were a.II incorporated in the Bill; the fixation of the minimum rates of wages however was left to a minimum wage Boa.rd to be constituted for the pur pose by the Central Government. The provisions of the Industrial Employment (Standing Orders) Act, 1946 (20 of 1946) and the Employees' Provident Funds Act, 1952 (19 of 1952) were also sought to be applied in respect of establishments exceeding certain mini mum size as recommended by the Commission. Bl1agwati ] . 6- Others v. It appears that during the course of discussion in the Ra.jya. Sabha, the word " minimum " was dropped from the Bill wherever it occurred, the Minister for Labour having been responsible for the suggested amendment. The reason for dropping the same was stated by him as under : .. Let the word .. minimum ,, be dropped and let it be a proper wage boa.rd which will look into this ques tion in a.II its aspects. Now, if that is done, I believe, from my own experience of the industrial disputes with regard to wages, in a. way it will solve the ques tion of wages to the working journalists for a.II time to come." The Act as finally passed was intituled "The Work ing Journalists (Conditions of Service) and Miscella neotls Provisions Act, 1955 (45 of 1955) and received the assent of the President on December 20, 1955. The relevant provisions of the Act may now be referred to. It was an Act to regulate certain condi tions of service of working journalists and other persons employed in newspaper establishments. "Newspaper establishment" was defined in s. 2 (d) to mean " a.n establishment under the control of any person or body of persons, whether incorporated or not, for the production or publication of one or more 7 r.o SUPREME COURT REPORTS [1959] I k h 1958 /1lcws· in relation to 1wwsp<1pers or for eunducting any news agency 01· syndicate". The definition- of "working journalist" l:'.xptcs.-; />atm (l'riuate) was a most in t c same terms as that in the \Vur ing ,Journalist8 (Industrial Disputes) Aet, 1955, anrl in- ltd, ,s. Anv11i,,, duded a proof reacler. All words and expressions v. n, i:,.;,,,, of Ind•• used but not defined in this Act and defined iu the Industrial Disputes Act, 194 7, were under s. 2 (g) to have the meanings respectively assigned to them in t hu,t Act. . Section 3 applied tho provisions of the Industrial Disputes Act, 1947, as it was in forec for the time being, t{J working journalists as they applied to, or in rel11tion to workmen within the meaning of tht1t Act subject tu the moclification thats. 25 (I<') of t hilt Act in its application to working journalists in regard to the period uf notice ret.rC'nchment of a workman was to he construed as substituting six months in the case of t.he retrench ment of an eclitor and three months, in the case uf journalist. The period which any other working lapsed between the publication of the report ancl the enactment of th!' Working .fournalists (lnclustrial Disputes) Act, 1955, viz., from March 12, 1955, was sought to be bridged over hy s. 4 rnacting special provisions in respect of certain <'tlS<·s of retrenchment during that pPriocl. Rection 5 provided for the payment of gratuity, inter alia, to u, working journalist who had been in continuous service, whether before or after the commencement of the Act, for not Jess than in any newspaper three years establishment even when he voluntarily resigned from service of thu,t newspaper eAtablishment. Section 6 laid down that no working journalist shall he required or allowed to work in any newspaper Pstahlishment for more than one hundrP<l ancl forty-four hours during any period of four consecutive weeks, exclusive of the time for meals. Every working journalist was under s. 7 entitlecl to earned leave ancl leave on medical c1·rtilieate on the terms therein specified without pre judic<' to such holidays, casual leave or other kinds of leave as might he prescrihed. After thus providing for retrenchment com pcnsation, piiyment of gratuity, hours uf work, and lea vc, ss. 8 to II of the Act provided .July 14, 1954, S.C.R. SUPREME COURT REPORTS 51 v. i95s & Others nhagwati ]. for fixation of the rates of wages in respect of work- ing journalists. Section 8 authorised the Central Expres.~ News Govemment by notification in the Official Gazette to papers (Prillatr,J constitute a Wage Board for fixing rates of wages in Ltd., & Another respect of the working journalists in accordance with the provisions of the Act, which Board was to consist The Union of f!ldia of an equal number of persons nominated by the Central Government to represent employers in relation to the newspaper establishments and working journa- lists, and an independent person appointed by the Central Government as the Chairman thereof. Sec- tion 9 laid down the circumstances which the Wage Board was to have regard to in fixing rates of wages aml these circumstances were the cost of living, the prevalent rates of wages for comparable employments, the circumstances relating to the newspaper industry in different regions of the country and to any othel' t:ircumstauce which to the Board may seem relevant. The decision of the Board fixing rates of wages was to be communicated as soon as practicable to the Central Government and this decision was under s. lO to be published by the Central Government in such manner as it thought fit within a period of one month from the date of its receipt by the Central <.Jovernment and the decision so published was to come into operation with effect from such date as may be specified, and where no date was so specified on the date of its publication. Section 11 prescribed the powers and procedure of the Board and stated that subject to any rules of procedure which might be prescribed Board may, for the purpose of fixing rates of wages, exercise the same powers and follow the same pro- cedure as an Industrial Tribunal constituted under the Industrial Disputes Act, 1947, exercised or followed for the purpose of adjudicating an industrial dispute referred to it. The diicision of the Board under s. 12 was declared to be binding on all employers in relation to newspaper establishments and every working journalist was entitled to be paid wages at a rate which was to be in no case less than the rate of wages fixed by the Board. Sections 14 and 15 applied the provi- sions of the Industrial Employment (Standing Orders) 52 RUPREME COFRT REPORT~ l l!l.59] I 1958 ,;, "'""·' llhog;;·oti f. Act, 1946, as it was in force for the time being and <tlso the provisions of th!' Employees' Provident Funds Aet, l:xpir.'·' Xe«·.<· 1952, as it was in forre for the time being, to every papers (Pr/,•µle) newspaper establishment in which twenty or more Ltd .. ,;. A not 1er persons were employed. Section 17 provided for thr v. The liniou of Tndio recovery of money due from an rrnployer and enal'ted that where an~· money was dm· to <t newspaper em ployee from an employer under any of t hl' provisions of the Act. whether by way of compensation, gratuity or ll'ages, thl' newspapPr <>mployee might, without prejudice to any otlwr mode of recovery, make an :ipplication to the St!ite <lovernment for the recovery of the money due to him, and if the St(l,tP Government or· such authority as the State Government might spePify in this behalf was satisfied that any money was so dne, it shall issuP a <'ertifiratP for that amount. to tlw collector and the collector shall proceed to recovPr that amount in thr same manner as an .arrear of land revenue. Section 20 empowerPd the Central ( ;overnment bv notification in the Official Gazette to makP rnlPs to ~arry out the purposes of the Act and in particular and without prejudice to the generality of the foregoing power, surh rules were to provide inter alia for thr procedure to be followed by the Board in fixing ratPs of wages. All rules made under this sec tion, as soon as practicable after they were made wrrP to be laid before both Houses of Parliament. The Working Journalists (Industrial Disputes) Act, 19.'>5, was repealed by s. 21 of the Act. In pursuance of the power given under s. 20 of the Act thr Central GovPrnment published by a notifiea tion in the <iazettP of India-Part II-Section 3, <lated July 30, 1956, " The Working Journalists Wage Board Rules, 1956 ... RulP 8 pru\·ided that rvcry. (jllPstion considered at a meeting of the Board was to he decided by a majority of the votes of the members In the event of equality of ,·otes present and voting. the Chairman was to have. a. casting ,·ote. Rul<> 13 provided for the resignation of the Chairman or any member from his office or membership, as the case may be. The seat held by them was to be deemed to have fallen vacant with effect from the date the S.C.R. SUPREME COURT REPORTS • b 1 · e mem ers up o resignation of the Chairnuin or the member was accepted hy the Central Government. When a vacancy thus arose in the offire of the Chairman or in Expres., Xews- [ h papers (Prii·ate) oan , t e Centra Govern- I.td .. , __ A,, ,,,, ~nent was to t.1ke immediate steps to fill the vacancy ,. v. m aecordance with the Act t1nd thP procrPdings might The u,,;o,, of Iudrn be cont.inued lwfore the Board so reconsl ituted from the stage at. which the vacancy was so filled. f' 1 B t le ,c. Otho' r958 1 01 Rhag, nati f. By a notifiC'ation dttted i\fay 2, 1956, thr ( 'C'ntral Government constituted a Wage Board nuder s. 8 of the Act for tixing rates of wages in rPspect of workin" journalists in accordanc!' with the provisions of th~ Act, consisting of equal representatives of employers in relation to newspaper cstahlishmcnls :rnd working journalists and appointed l:;hri H. V. DiYatia, Rl'tin'u Judge of the High Court of Judicature, Bomb:1y, as the Chairman of the Board. The thrPe members of tlw Board who were nominated to reprPsent employers in relation to 1wwspaper establishments were (1) Shri (;. Narasimhan, Manager, The Hindu, l\fa<lras and Presidient, Indian and Eastern Newspaper Sol'iety; (2) 8hri A. R. Bhat, l\LL.C., who had been a member of the Press Commission and was the President of the Indian Language Newspapers Association, as also the Chairman of the Minimum Wages Inquiry Committee for thr Printing Industry in B9mbay and, (3) Shri K. P. Kesava Menon, Editor, Mathrubhumi, Calicut. 'l'he other three members of tlw Board who were nominated to represent working journalists were: (1) 8hri G. Venkata.raman, 1\1. P., (2) Shri C'. Ragha.van, l:;ecretary-General, Indian Federation of Working Journalists, and (3) Shri G. N. Acharya, Assistant Editor, Bomba.v Chronicle. Shri H. V. Divatia, the Chairman of the Boanl, had wide and ('Onsi<lerable experience as Chairman of the Textile Labour Enquiry Committee, Bombay, had heen the President of the :First Industrial Court to lit> :<et up in India in 1938, and had worked as an Industrial Tribunal dealing with several disputes as between several banks ·and employees, as well as between several insuranre companies and their em ployees. .'i4 SUPREME COURT REPORTS [1959] .. ~ h 1958 '" • ,:;. Others Bhagwati ]. ( N ~. The first meeting of the Board was held on May 26, l056, in the Bharatiya Vidya Bhavan at Bombay. Sri Kesava ;\1enon anc « ri I Sh Express ~vews· arasim an were not papers (Prirate) I.td .. ,~Another present at this meeting. It was a preliminary meeting at which the Board set up a sub-committee consisting Tl" l'nio11 of I>uho of Shri A. g, Bhat and Shri U. N. Acharya to draft a quest£onnaire for issun to the various journals anrl organi8ations concerned, with a view to elicitin~ factual data ancl other relevant information require for the fixation of wages for the working journalists. The sub-committee was requested to hear in mind, while framing the que8tioniwire the need for: (1) obtaining detailed accounts of newspaper establish ments; (2) propc•r evaluation of the nature of and the work of variou~ categories of working journalists; ancl (3) proper claH.5ifieation of the country into different <treas on the basis of certain criteria like population, c:ost of living, ete. The que.'ltionnaire drafted by the sub-eommittec was to be finalised by the chairman and <:ir<.:ulated to all concerned by the end of ,Junr, l!J56. The questionnaire was accordingly drawn up and was sent to Universities and Uovernments, etc., individuals and several other. organisations and interested in the inquiry of the Board, and to all news papers indi\'iclmdly. lt was divided into three parts. Part " A" was intenclcd to be answered by news paprrs, news agencies, organisations of employers and qf wnrking journalists and any individuals who might wish to <lo so. Part " B" was meant to be answered liy all newspapern and Part "C" by all news agencies. At the outset the Board pointed out that except where the question itself indicated a different period or point of time, the reporting period for purposes of parts " B ·• and " C" of the questionna-ire was thn financial years (Aprill to March 31) 1952-53, 1953-.54, and l954-;j5, or in any establishments which followPd a different accounting year, a period of three years as near thereto as possible. It further pointed out that under s. 11 of the Act the Boa.rd had the powers of an Industrial Tribunal constituted under the Indus In Part "A" of the questiannaire trial Disputes Act. under the heading " Cost of Living", cost of living S.C.R. SUPREME COURT REPORTS 55 v. . l d d '958 in the & Others Bhagwati J. index for the respective centres were called for and a special question was addressed whether the basic Express News- mimm um wage, earness al owance an metropolitan papers (Private) allowance in the table attached to paragraph 546 of Ltd., o;. Another the Press Commission was acceptable to the party questioned and, if not, what variations would the Th• Union of India party suggest and why. Comparable employment suggested included (a) Higher secondary school teachers; teachers; (b) College and university (c) Journalists employed as publicity and public relations officers information departments of the Central and State Governments; (d) Journalistic employees of the news service division of All India Radio and (e) Research personnel of the economic and social research departmenfs of Central Government ministries like finance, labour and commerce. Under the heading "Special Circumstances", the only ques- tion addressed was question No. 7 : " Are there in your region any special conditions in respect of the newspaper industry which affect the fixing of rates of wages of working journalists ? If so, specify the con- ditions and indicate how they affect the question of wages." As regards the principles of' wage fixation the party questioned was to categorise the different newspaper establishments and in doing so consider the following factors, among others: (a) Invested capital; (b) Gross revenue; (c) Advertisement revenue; (d) Cir- culation; (e) Periodicity of publication; (f) The exis- tence of chains, multiple units and combines; and (g) Location. In part " B " which was included under to be <l.nswered by the heading newspapers were " Accounts " :- (1) Balance sheets and (2) Trading and profit and loss accounts of the newspapers as in the specimen forms attached thereto for the reporting period. Questions were also addressed in regard to the revenue of the newspapers inter alia from the press, a process studio, outside work, foundry, etc., and subscriptions as also the expenditure incurred on postage, distribu tion/sale, commission and rebate to advertisers, etc., and other items. 56 SUPREME COURT REPORTS [1959] z958 All informal.ion which was considered necessary bv the Wage Board for the purr1oses of fixation of th~ E~press News- papers (P>ivate) rates of wages was thus sought to be elicited by the Ltd .• &- A >1othcr questionna.ire. v. It appears that Shri K. P. Kesava Menon .sent in The "'.•ionof.fndi•his resignation on or about June 21, 1956, and by a. notification dated July 14, 1956, the Central Govern. '"'Others Bhagwati 1. ment accepted the said resignation and appointed in his place Shri K. M. Cherian, member of the execui.ive committee of the Indian and Eastern Newspapers Association, one of the .directors of the Press Trust of India and the Chief Editor, Malayala Manorama, Kottayam, as a member of the Board. Out of 5,465 newspapers, journals, etc., to whom the questionnaire was sent only 381 answered the same; and out of 502 dailies only 138 answered it. The Board had an analysis made of those who had replied to the questionnaire and also of their replies thereto in regard to each of the questions contained in the questionnaire. It also got statements prepared accord ing to the gross revenue of the newspapers, the popu. lation of the centres, circulation of the papers, the cost of living index, scales of dearness allowance in certain States, figures of comparable employments, pay scales of important categories of journalists, etc., the total income, break up of expenditure in 1·elatio11 to total income . and total expenses, total income in relation to net profits, and net losses and net profit.~ in relation to circulation of the' several newspapers whiCh had sent in the replies to the questionnaire. Further meetings of the Board were held on August 17, and August 20, 1956, in Bombay. The Chairman informed the members that response from journals, organisations, etc., to whom questionnaire was sent was unsatisfactory and it was decidc-d to issue a Press Note ret1uesting the papers and journals to send their replies, particularly to Part " B " of the questionnafre, as soon as possible, inviting their attention to the fact that the Board had powers of an Industrial Tribunal under the Act, and if newspapers failed to send their replies, the Board would be compelled. to take further steps in the matter. It was decided that for purposes

8.C.R. SUPREME COURT REPORTS 57 .; v. 1958 of taking oral evidence, the country be divided into 5 zo1ws, namely, Trivandrum, Madras, Delhi, Calcutta anrl Bombay and the 8ecretarv was asked to summon £.press Ne:v>- papers (Pricnte) witnesses to the nearest and convenieht centre. It Lid., & .. 1,,nthcr was further decided that one hour shouJa normally be t\llotterl to each newspaper, 3 hours for regional units The u,,ion of fndi•• and 2 hours for smaller units for oral evidence. The Board also discussed the question as to the number of persons who might ordinarily be called for oral evi- dence from each newspaper or organisation. It thought that one of the important factors governing the findings of the Board would be the circulation of each newspaper, and as such it was decided that the figures with the Audit Bureau of Circulation Ltd., might be obtained at once. The Board also decided to ask witnesses, if necessary, to produce books of aceounts, income-tax assessment orders or any other document which in its opinion was essential. !Jhagwati ]. & Dthm · from October 19, to October 26, 1956, MPetings of the Board were held at Trivandrum from September 7, to September lO, 1956, in Madras in X ew from September 15, to September 20, 1956, Delhi Calcutta from November 25, to December 4, 1956, and in Bombay from January 4, to ,January lO, 1957, from .January 20, to February 6, 1957, from Mareh 25 to ..\larch 31, 1957 and finally from April 22 to April 24, 1957. EvidenrP of several journalists and persons connect ed with the newspaper industry was recorded at the respecti\'e places and at its meeting in Bombay from March 25, to March 31; 1957, the Board entered upon its final deliberatiops. At this meeting the chairman imprPKRed upon the members the desirability of arri\· - ing at mu\nimous decisions with regiird to the fixation of wages, 1>tc. He further stated that he wouk\ hP extremely happy if representatives of newspaper industry and of working journalists coulrl come $O mutual agreemrnt by direct discussions and he <\~­ sured his utmost co-operation and help in arriving at decisions on points on which they conl<I not agree. Members welcomed this suggestion and decided to 8 58 SUPREME COURT REPORTS [1959) I9;8 discuss Yarious issues among· themsel yes in the after- noon and on the following days. d d - v, "" Othm Dliagwati } . After consi erable Express News· iscussion on March 25, 1957, papers (Private) Ltd., & Anoth" and March 26, 1957, in which the representatiYes of the newspapers and of working journalists had joint Ht U11io11 of India sittings, unanimous decisions were arriyed at on (i) classification of newspapers, (ii) classification of cen- tres and (iii) classification of employees, except on one point, namely, classification of group, multiple units and.chains on the basis of their total gross reyenue. This was agreed to by a majority decision. The the representatiYes of the working chairman and journalists Yoted in fayour while the representatiYes of the employers Yoted against. Regarding scales of pay, the chairman suggested at the meeting of March 27, 1957, that pending final settlement of the issue the parties should submit figures of scales based on both assumptions, namely, consolidated wages and basic scales with separate dearness allowance. Both sides agreed to submit concrete suggestions on the following day. At the Board's meeting on March 28, 1957, the representatiYes of the employers stated that the term "rates of pay" did not include scales of pay; there fore, the Board was not competent to fix scales of working journalists and they submitted a written 8tatement signed by all of them to the chairman in support of their contention. The representatiyes of the working journalists argued that the Board was competent to fix ~cales of pay. The chairman adjourned the sitting of the Board to study this issue. A copy 'of the written statement submitted by the representatiYes of the employers was giYen to the representatiYes of the working journalists and they submitted a written reply the same afternoon con tending that the Board was competent to fix scales of pay of Yarious categories of working journalists. At i~ meeting on March 29, 1957, the Board discussed its own competency to fix scales of pay. The ohair man expressed his opinion in writing, whereby he held that the Board was competent to fix scales of pay. On a Yote being taken according to r. 8 of the Working Journalists Wage Board Rules, 1956, the chairman S.C.R. SUPREME COURT REPORTS 59 1958 v. '"" Othm Bliagwaii 1. and the representatives of the working journalists voted in favour of the competence of the Board to fix Expriss. N 1ws- scales of pay, while the representatives of the em- papers (Priv•") players voted against it. Thereafter, several sugges- Ltd., & Another tions were made on this question, but since there was no possibility of any agreement on this issue, the n, Union °! India chairman suggested that members should submit their specific scales to him for his study to which the mem - hers agreed. It was also decided that the chairman would have separate discussions with representatives of working journalists in the morning and with representatives of employers in the afternoon of March 30, 1957. It was also decided that the Board should meet again on March 31, 1957, for further discussions. No final decision was however arrived at in the meeting of the Board held on March 31, 1957, on scales of pay, allowances, date of operation of the decision, etc. It was decided that the Board should meet again on April 22, 1957, to take final decisions. A meeting of the Board was accordingly held from April 22 to 24, 1957, in the office of the Wage Board at Bombay. It was unanimously agreed that the word "decision" should be used wherever the word "report" occurred. The question of the nature of the decisions which should be submitted to the Govern ment was then considered. It was agreed that reasons need not be given for each of the decisions, and that it would be sufficient only to record the decisions. The members then requested the chairman to study the proposals regarding scales of pay, etc., submitted by both the parties and to give his own proposals so that they may take a final decision. Accordingly, the chairman circulated to all the mem hers his proposals regarding pay scales, dearness allowance, location allowance and retainer allowance. The following were the decisions arrived at by the Board on the various points under consideration and they were unanimous except where otherwise stated. The same may be set out here so far as they are relevant for the purposes of the inquiry before us.

#1. ]'or the purpose of fixation of wages of working 60 SUPREME COURT REPORTS [ 1959] r95B jounialists, newspaper establishments sho11ld be group- ed under different classes. l~xtress New5· 2. Except in the case of weeklies and other periodi P•P"' (Private) u.1 .. & A>1othc.- cals expressly provided for hereinafter, newsp&per · establishments should be classified on the basis of v. n.e C'.•ion of fodia their gross revenue. & Others - lihagwati J.

#3. For purposes of classification, revenue from all sources of a newspaper establishment, should be taken for ascertaining gross revenue.

#4. Cht.ssi; fimtion of Newspaper Establishments: Dailies-Newspaper Establishments shoulrl be classified under the following five classes:- Class " A " " B" " C " "D " " E " Gross Revenue over Rs. 25 lakhs over Rs. 12~ to 25 lakhs over Rs. 5 to 12! lakhs over Hs. 2t to 5 lakhs Rs. 2! lakhs and below

#5. Classification of newspaper establishments ~hould be based on the average gross revenue of the three-year period, 1952, 1953 and 1954.

#6. It shall be open to the parties to seek re-clasHifi cation of the newspaper establishments on the basis of the average of every three years commencing from the year 1955.

#11. Groups, multiple units and chains should be classified on the basis of the total gross revenue of all (This was a majority decision, the constituent units. the chairman and the representatives of the working journalists voting for and the representatives of the employers voting against).

#12. A newspaper establishment will be dassified as:- (i) A group, if it publishes more than one news paper from one centre; (ii) A multiple unit, if it publishes the same news paper from more than one centre ; (iii) A chain, if it publishes more than one news paper from more than one centre. S.C.R. SUPREME COURT REPORTS 61

#20. Working journalists employed in newspaper i958 establishments should be grouped as follows : ( a) Full time employees: Express News- papm (Private) Group I : Editor Group II : Assistant Editor, Le11der \Vriter, ~ ews rn, Uni:~ of India Ltd .. &_Another o;. Othm Bhagwati J. Editor, Commercial Editor, Sport.A Editor, Film or Art Editor, Feature Editor, Literary Editor, Special Correspondent, Chief Report.er, Chief Sub-Editor and Cartoonist. Group III: Sub-Editors a.ad Reporters of all kind and full Group (II); news photographers and other journalists not covered in the groups. time correspondents not included Group IV: Proof Readers. (b) Part time employees : Correspondeitts who are part time employees of a newspaper establishment and whose principal avoca. tion is that of journalism. An employee should be deemed to be a. full time employee if under the conditions of service such em ployee is not allowed to work for any other newspaper establishments.

#23. The wage scales and grades recommended by the chairman were agreed to by a majority decision. The chairman and the representatives of the working journalists voted for and the representatives of the employers voted against. Shri Bhat suggested that wage scales should be conditional on a newspaper est11blishment making profits in any particular year and also that time should be given to the newspaper establishments for bringing the scales into operation. These suggestions, however, were not acceptable to the majority. Wages, scales and grades : (as agreed to by the majority) were as under: Working journalists of differ. ent groups employed in different classes of newspaper establishments should be paid the following basic wages per mensem. 62 SUPREME COURT REPORTS [1959] i958

#1. Dailies. Express News~ papers {Private) Ltd., & A11ot11er v. 'l'hc .Union of India & Others Bhagwati j. Class of News Group of Employees Starting Pay Scale p~pers E D (~ B A IVl III ~I } IV III III II I IV ILi II I IV III II l 90 150 No Scale No Scale 100 100-5-165 (13 Yrs.) EB-7-200-(5 Yrs.) 115 115-7!-205 (12 Yrs.) EB-15-295 (6 Yrs.) 200 200-20-400 (10 Yrs.) 100 100-5-165 (13 Yrs.) EB-7-200- (5 Yrs.) 125 125-10-245 (12 Yrs.) EB-12l-320 (6 Yrs.) 225 225-20-385 (8 Yrs.) EB-30-445 (2 Yrs.) (8 Yrs.) 350 350-25-550 -40-630 (2 Yrs.) 100 100-5-165 (13 Yrs.) EB-7-200 (5 Yrs.) 150 150-12!-300 (12 Yrs.) EB-20-420 (6 Yrs.) 350 350-20-510 (8 Yrs.) EB-30-570 (2 Yrs.) 500 500-30-740 (8 Yrs.) -40-820 (2 Yrs.) 125 125-7r215 (12 Yrs.) EB-10-275 (6 Yrs.) 1'75 175-20-415 (12 Yrs.) EB-25-515 (4 Yrs.) 600 500-40-820 (8 Yrs.) EB-50-920 (2 Yrs.) 1000 1000-50-1300 (6 Yrs.) -75-1600 (4 Yrs.) Dearness allowance, location allowance and part time employees remuneration were also majority decisions. The chairman and the representatives of the working S.C.R. SUPREME COURT REPORTS 63 journalists voting for and the reprcslmtativcs of tho emnloyers voting against. Express ~Vews· r 28. Other ullowances :-ln view of the paucity of papm (Private) evidence on the subject, the Board decided that the 1.td .. c~ Another fixation of conveyance and other allowances should be left to collective bargaining between journalists and the newspaper establishments eon. cerned. the working The lhiion of India c· Otlter-< v. '958 Dhagwafi ].

#29. Fitment of ernployee8 :-For titment of the present employees into the new scales, service in :i particular grade and category and in the particular newspaper establishment alone should be taken into account. 30. In no case should the present emoluments of the employees be reduced as a result of the operation of this decision.

#35. When a newspaper establishment is re-classi fi(\d as per para. 6 supra, the existing pay of the staff should be protected. But future increments and scales should be those a,pplicable to the cla, ss of paper into which it falls.

#38. Date of operation :-The Board's decision should be operative from the date of constitution of the Board (i.e., 2-5-1956) in respect of newspaper establish ments ·coming under Class " A ", " 'B " and " C " and from a date six months from the date of appoint ment of the Board (i.e., 1-11-1956) in the case of newspaper establishments under Class "D" & "E ". (This was also a majority decision. The chairman and the representatives of the working journalists voted for and the representatives of the employers voted against).

#41. 'fhe Government of India should constitute a Wage Board under the Act, to review the effect of the decisions of the Board on the newspaper establish ments and the working journalists, after the expiry of 3 years but not later than 5 years from the date of the publication of the decisions of the Board. These decisions were recorded on April 30, 1957, but the representatives of the employers thought fit to append a minute of dissent and the chairman also put on record a note on the same day explaining the 64 SUPREME COURT REPORTS [1959] reasons for the decisions· thus recorded. These docu. ments are of vital importance in the determinat.ion of the issues before us. Express News· papers (Private) Ltd., & Anoth" v. In the minute of dissent recorded by the representa- tives of the employers they started with an expression The Union °! llldia of regret that the conditions in the newspaper industry 't 't th , e n,iaion y view. Bhagwati J. They expressed their opinion that the fixation of rates of wages should be governed by the following criteria : 1 not perm1 t th & Othm d'd , , (i) normal needs of a worker ; (ii) capacity of the industry to pay; (iii) nature of the industry; and (iv) effect on the development of the industry and on eJ;llployment. They pointed out that : (a) The newspaper industry was a class by itRelf. The selling price of its product was ordinarily below its cost of production. Further, the cost of production specially that of newsprint, went on varying and th1> frequent rises in newsprint price made it difficult to plan and undertake any long term commitment of an increasing expenditure. (b) The income of the newspaper industry was principally derived from two main sources: sales of copies and advertisement. While sales depended on public acceptance, income from advertisement depend ed upon circulation, prestige and purchasing power of readers. All those factors made publishing of news papers a hazardous undertaking and the hazard continued throughout its existence with the result that it was obligatory that the rates of wages or scales should be fixed at the minimum level, leaving it to the employees to share the prosperity of the units through bonuses. it had been th<> selling price and (c) It was not ordinarily easy for newspapers to increase experiBnce of some established newspapers that such a course, when adopted, had invariably brought about a reduction in eirculation. The fall in circulation had in turn an adverse effect on the advertisement revenue. The sales or advertisement income of a newspaper wM not responsive to a progressive increase in expenditure. S.C.R. SUPREME COURT REPORTS 65 · 1 1 'd r958 Ed (d) In itny fixation of wages of a section of em- ployees, its effect on other sections had to be taken · Express N11t1S• itoria emp oyees were one papers (Privati) mto ·cons1 erat10n. section of a newspaper establishment and any increase Ltd .. c;. Another in their emoluments would have its inevitable reper- cussions on the wages of other sections. The salaries The Union of India of working journalists would roughly be one-fifth of the total wage bill. The factory staff had a great Bhagwati J. bargaining power and as such any increase in the salaries and introduction of scales in the editorial department would have to be followed by an increase in the wages and introduction of time scales in the factory side. & Others v. (e} It was the advertisement revenue that princi pally decided the capacity to pay of a newspaper industry. It was not enough to take into considera tion the gross revenue of a newspaper alone but also the proportion of advertisement revenue in it. This meant that minimum salaries and scales to be fixed on an All-India basis would perforce have to be low if the newpapers in language of regions with a low purchasing power such as Kerala and Orissa were not to be handicapped. It would therefore be fair both to t~e industry and employees if wages were fixed region wIBe. (f) The proposals, which the majority had made, clearly showed that, according to it the dominating principle of wage fixation was the need of the worker as conceived by them, irrespective of its effect on the industry. The Board had not before it sufficient data needed for the proper assessqtent of the paying capa city of the industry. The profit and loss statements of the daily newspaper establishments for the year 1954-55 as submitted to the Board revealed that while 43 of them had shown profits 40 had incurred losses. The condition of the newspaper industry country as a whole could not be considered satisfactory. The proposals embodied in the decision made by the majority were therefore unduly high. They would immediately throw a huge burden on many papers, a burden which would progressively grow for some 9 v. , 958 [1959] The u;i~;hof India the econ.omy of most of the newspapers. SUPREME COUR'I' REPORTS 66 years, and would be still bigger when its impact takes place on the wages of employees of its other sections. Express News- All this will iu its turn add to the burden of provident papers {Priv•t•) fund, gratuity, etc., when the full impact of the burden Ltd., & Another took place and the wages of the entire newspaper establishments \vent up, it wortld throw out of gear It might be that there may not be many closures immediately, Bhagwati J. because many of the newspapers would not be in a position to meet the liability of retrenchment com pensation, gratuity, etc., resulting from such a step, newspapers would try to meet the liability by borrow ing to the extent possible and when their credit was exhausted, they must close down. So far as new newspaper promotions were concerned, they would be few and far between, with the result that after a few years it would be found that the number of daily newspapers in the country had not increased but had gone down. Such an eventuality was not in the interests of the country both from the point of view of employment as well as of freedom of expression. (g) As regards chains and groups the criterion for classification adopted by the majority was unfair and unnatural. The total gross revenLre of all the units in a chain or a group gave an unreal picture of its capa city to pay. (h) Giving of retrospective effect, would help only to aggravate the troubles of the newspaper industry which had been already called upon to devise ways and means of meeting the burden of retrospective gratuity. (i) As regards the prevalent rates of wages for comparable employments the nature of work of the working journalists in newspaper establishments could not be compared with other a vocations or professions and the rates of wages of working journalists should be fixed only in the context of the financial condition of the newspaper industry. Comparison, could, how ever, be made within limits, namely with respect to alternative employments available to persons with similar educational qualifications in particular regions or localities. From that point of view the salaries paid to secondary school teachers, college and university S.C.R. SUPREME COURT REPORTS 67 teachers and employees in commercial firms and banks should be taken into consideration, but the majority had rejected this view. Express News·· papers (Private) The note of the chairman was meant to explain the Ltd .• & Another x958 v. & Others Bhagwati f. reasons of the decisions which he stated he at least had in view and some of which were accepted unani- The Union of India mously and others were accepted by some members and thereby became majority decisions. At the outset the chairman explained that most of the re- commendations of the Press Commission were intended for the betterment of the economic condition of small and medium newspapers, such as price page schedule, telescopic rates for Government advertisements and their fair distribution among newspapers, statutory restrictions on malpractices so as to eliminate cut- throat competition and fixation of news agency tariffs which still remained to be implemented and there had been no stability in the prices of newsprint which constituted a considerable proportion of the expendi- ture of a newspaper. These circumstances had necessitated the fixing of a minimum wage lower than that recommended by the Press Commission. As regards fixation of the rates of wages, the chair man observed: "In fixing the rates of wages, we have based them on the condition of the newspaper industry as a whole and not on the effect which they will produce on a particular newspaper. We can only proceed on the average gross income of a newspaper falling under the same class and not on the lowest unit in that class. Otherwise, there will be no improvement in any unit of the same class, and the status quo might remain. With the extremely divergent condi tions obtaining in both English as well as Indian language newspapers, it is impossible to try to avoid any small or medium newspaper being adversely affected. When the tone and condition of journa lism in India has to be brought on a higher level it is inevitable that in doing so, more or less burden will fall on several newspapers; I realise that in cases where wages are very low and dearness allowance is also low or even non-existent and there are no scales 68 SlJPREME COURT REPORTS [1959] '958 b Others at all, the reaction to our wage schedule will be one of resentment by the proprietors. Some anomalies Express News- may also be pointed out; but it must be remembered papers (Private) that we had no data of all the newspapers before us Ltd., 6- Another and where we had, it was in many cases not satis- v. The Union of /ndiafactory. Under these circumstances, we cannot satisfy all newspapers as well as journalists. How ever, we have tried to proceed on the basis of accepted Bhagwati f. principles also keeping in view the recommendations of the Press Commission and not on the editorial I am also of the expenditure of each newspaper. opinion that by rational management there is great scope for increasing the income of newspapers and we have evidence before us that the future of the Indian language newspapers is bright, having regard to increasing literacy and the growth of political consciousness of the reading public. When there are wide disparities, there cannot be any adjustment which might satisfy all persons interested. We hope no newspaper is forced to close down as a result of our decision. But if there is a good paper and it deserves to exist, we hope the Government and the public will help it to continue." The chairman then proceeded to observe : " We do not consider it a matter of regret if our decisions discourage the entry into this industry of persons without the necessary resources required for the payment of a reasonable minimum wage. While we are anxious to promote and encourage the growth of small newspapers, we also feel strongly that it should not be at the expense of the working journa lists. The same applies, in our view, to newspapers started for political, religious or any other propa ganda." The reason for grouping all the constituent units of the same group or chain in the same class in which they would fall on the basis of the total gross income of the entire establishment was given by the chairman as under:- " One of the difficult tasks before us was to fix the wages of journalists working in newspapers which l;tave recently come to exist in our country. All the S.C.R. SUPREME COURT REPORTS 69 v. k I95B <>- Others f h f rom t e t e wea er umts are orne accounts of the constituent units in the same group or chain are merged together with the result that the h h' h Express ~Vews- b • OSSeS o 1 papers (Private) income of prosperous units. There is considerable Ltd., & Another disparity in the wages of journalists doing the same kind of work in the various constituent units situated The Union of Indi" in different centres. The Press Commission has strongly criticised the methods of such chains and groups and their ad verse effects on the employees. Bhaiwati f. We have decided to group all the constituent units of the same group or chain in the same class in which they would fall orr the basis of the total gross income of the entire establishment. We are conscious that as a result of this decision, some of the journalists in the weak units of the same group or chain may get much more than those working in its highest income units. If however, our principle is good and scientific, the inevitable result of its application should be judged from the stand-point of Indian Journalism as a whole and not on the burden it casts on a particular establish- ment. It may be added that in our view, the prin- ciple on which we have proceeded is one of the main steps to give effect to the views expressed by the Press Commission." The chairman then referred to the points which the representatives of the newspaper employers had urged as to the burden which might be cast as a result of the decisions and expressed himself as under : " I sympathise with their view point and in my opinion, looking to all the circumstances, especially the fact that this is the first attempt to fix rates of wages for journalists, it is probable that some anoma lies may result the implementation of our decisions. We are, therefore, averse to imposing a wage schedule of all classes of newspapers on a perma nent basis. It is, thus important that the wage rates fixed by us should be open to review and revision in the light of experience gained within a period of 3 to 5 years. This becomes necessary especially in view of the fact that the data available to us have not been as complete as we would have wished them to be, and also because it is difficult for us at this stage to 70 SUPREME COURT REPORTS [1959] x958 work out with any degree of precision, the economic and other effects of our decisions on the newspaper - & Others Bhagwati ]. h l ,, d Ezpress News- papers (Private) in ustry as a w O e. The chairman suggested as a palliative the creation Ltd., o;. Another by the Government of India immediately of a stand- v. The Union of India ing administrative machinery "which could also combine in itself the functions of implementing and administering our decisions and that of preparing the ground for the review and revision envisaged after 3 to 5 years. This machinery should collect from all newspaper establishments in the country on systematic basis detailed information and data such as those on employment, wage rates, and earnings, financial condition of papers, figures of circulation, etc., which may be required for the assessment of the effects of our decisions at the time of the review." The above decision of the Wage Board was publish ed by the Central Government in the Gazette of India Extraordinary dated May 11, 1957. The Commis sioner of Labour, Madras, issued a circular on May 30, 1957, calling upon the managements of all newspaper establish 'ts in the State to send to him the report of the gross revenue for the three years, i.e., 1952, 1953 and 1954, within a period of one month from the date of the publication of the Board's decision, i. e., not later than June 10, 1957. Writ Petition No. 91 of 1957 was thereupon filed on June 13, 1957, by the Express Newspapers (Private) Ltd., against the Union of India & others and this petition was followed up by similar petitions filed on August 9, 1957, by the Press Trust of India Ltd., the Indian National Press (Bom bay) Private Ltd., and the Saurashtra Trust, being Petitions Nos. 99, 100, and 101 of 1957 resgectively. The Hindustan Times Ltd., New Delhi filed on August 23, 1957, a similar petition, being Petition No. 103 of 1957, and three more petitions, being Petitions Nos. 116, 117 and 118 of 1957, were filed by the Loksatta Karyalaya, Baroda, Sandesh Ltd., Ahmeda bad and Jan Satta Karyalaya, Ahmedabad, respec tively, on September 18, 1.957. The Express Newspapers (Private) Ltd., the peti tioners in Petition No. 91 of 1957, otherwise termed S.C.R. SUPREME COURT REPORTS 71 l v. b z958 M & Others f Bhagwati ]. ee y, arat a h W kl the " Express Group ", are the biggest chain in the newspaper world in India. They publish (i) Indian f Express News- Express, an Eng ish Daily, rom Madras, Bombay, papers (Private) Delhi and Madurai, (ii) Sunday Htan<lard, an English Ltd., o;. Another Weekly, from three centres-Madras, Bombay and Delhi, (iii) Dinmani, a Tamil Daily from Madras and The Union of India Madurai, (iv) Dinmani Kadir, a Tamil Weekly from Madras, (v) Lokasatta, a Maratha Daily, and Sunday Lokasatta, a · om ay, (vi) B Screen, an English Weekly from Bombay and (vii) Andhra Prabha, a Telugu Daily and Weekly. The total number of working journalists employed by them are 331, out of whom there are 123 proof readers, as against 1570 who form the other members of the staff. The present emoluments of the working journalists in their employ amount to Rs. 9,77,892, whereas if the decision of' the Wage Board were given effect to they would go up to Rs. 15,21,282·12 thus increasing the wage bill of the working journalists annually by Rs. 5,43,390·12. They wquld also have to pay remu neration to the part-time correspondents on the basis of retainer as well as payment for news items on column basis. That would involve an additional bur den of about iis. 1 lakh a year. 'l'he retrospective operation of the Wage Board's decision with effect from May 2, 1956, in their case would further involve a payment of Rs. 5,16,337·20. extra burden not taking account the liability for past gratuity and the recurring gratuity as awarded under the provisions of the Act and also the increased bur den which would have to be borne by reason of the impact of the provisions in regard to reduced hours of If, working, increase in leave, etc., provided therein. the members of the staff who are not moreover, included in the definition of working journalists made similar demands for increasing their emoluments and bettering their conditions of service then there would be an additional burden which is estimated at Rs. 9,92,443·68. This would be The Press Trust of India Ltd., the petitioners in Petition No. 99of1957, are a non-profit making co operative organization of newspaper proprietors. They 72 SUPREME COURT REPORTS [1959] J ~, , , l v. IS i. x958 joµrnalists is Rs. 9,00,000. of the working & Oehm -- Bhagwati ], b'll ' R 21 00 000 s. employ 820 employees in all, out of whom 170 are working journalists and 650 do not come within that Express News- d fi Th ' ' ' . e1r tota wage e mt10n. papers (PYivat•) Ltd., & Another year (approximately) out of whwh the annual salary ThB The Union of India increase in their wage bill due to increase in the salary of the working journalists as per the decision of the Waire Board would come to H.s. 4,05,600 and thev would have to pay by way of arrears by reason of the retrospective operation of the decision another sum of Rs. 4,05,600 to the working journalists. There would also be an additional financial burden of Rs. 60,000 every year by reason of the recurring increments in the monthly salaries of the working journalists em ployed by them. If the benefits of the Wage Board decision were extended to the other members of the staff who arc not working journalists within the defi nition of that term but who ·have also made similar demands on them, a further annual burden would be imposed on the petitioners which is estimated at Rs. 3,90,000. If perchance the petitioners not being able to run their concern except at a loss intended to close down the same, the amount which they would have to pay to the working journalists under tl1e pro visions of the Act and the decision of the Wage Board would be Rs. 23,68,500 as against the old scale liability of Rs. 11,62,500 and the other membcrn of the staff who do not fall within the category of working journa lists would have to be paid a further sum of Rs. 15,50,000. The total liability of the petitioners in such an event would amount to Rs. 39,18,000 as against the old liability of Rs. 27,12,500. \', The Indian National Press (Bombay) Private Ltd., otherwise known as the Free Press Group, are petition ers in Petition No. 100 of 1957. They publish (i) Free Press Journal, a morning English Daily (ii) Free Press Bulletin, an evening English Daily (iii) Bharat Jyoti, an English Weekly (iv) Janashakti, a morning Gujarati Daily and (v) Na vashakthi, a Marathi Daily all from Bombay. They employ 442 employees includ ing part-time correspondents out of whom 65 are working journalists and 21 are proof readers and the S.C.R. SUPREME COURT REPORTS 73 v. 1958 · · f h W ]d b h B d age oar wou ,__, rest form members of the other staff not falling within the category of working journalists. The effect of the d Express ~Vews- e t at there would ec1s10n o t e papers (Private) have to be an immediate payment of Rs. 1,73,811 by Ltd.,..-,, Another reason of the retrospective operation of the decision and there will also be an annual increase in the wage The Ut1iot1 of India bill to the same extent, i. e., Rs. l, 73,811. There will ""Others also be a yearly recurring increase to the extent of Bhagwati ]. Rs. 22,470 and also corresponding increase for contri- bution to the providpnt fund on account of increase in salary. Under the provisions of the Act in regard to reduced hours of work, and increase in leave, moreover, there will be an increase in liability to pay Hs. 90,669 and Rs. 29,806 respectively, in the case of working journalists, besides the liability for past gratuity in another sum of Rs. 1,08,534 and recurring annual liability for gratuity in a sum of Rs. 17,995. If similar benefits would have to be given to the other members of the staff who do not fall within the defi- nition of working journalists the annual burden would be increased by a sum of Rs. 1,80,000. This would be the position by reason of the petitioners being classi- fied and treated as a chain of newspapers and having been classified as " A" class newspaper establishment on a total computation of the gross revenue of all their units. If they wNe not so treated and the component units were classified on their individual gross revenue the result would be that the Free Press Journal, the Free Press Bulletin and the Bharat Jyoti would fall within class" A", and. Navashakti would fall within class" C" and Janashakti would fall within class "D" thus minimising the burden imposed upon them by the impact of the 'Vage Board decision. The 8aurashtra Trust, the petitioners in Petition No. 101 of 1957, are another chain of newspapers and they publish (i) Janmabhoomi, a Gujrati Daily from Bombay, (ii) J::mmabhoomi and Pravasi, a Gujrati (iii) Lokmanya, a Marathi Weekly from Bombay, Daily from Bombay, (iv) Vyapar, a Gujrati Weekly commercial paper from Bombay, (v) Fulehhab, a <?ujrati Daily from Rajkot, (vi) Pratap, a Gujrati 10 74 SUPREME COURT REPORTS [1959] v. f J> d 1 1 r958 Th &- Others 11/iagwali ]. a1 y rom >aro a. Daily from Surat, (vii) Cuttcch1t Mitra, a Gujrati Daily from Bhuj (Cutch) and, (viii) Nav Bharat, a Gujrati Express News- D ·1 5 t ey emp oy 44 emp oyees ou papers (Private) Ltd •• "' Another of whom 60 are working journalists and 12, proof readers and the rest belong to the other members of The Union of India the staff. The effect of the \Vage Board decision on them would be to impose on them a burden of !ls. 1,59,528 by reason of the retrospective operation of the decision and an annual increase in the wage bill of Rs. 1,59,528 for the first vear and an annual recur ring increase of Rs. 22,000. "The operation of ss. 6 and 7 of the Act in regard to reduced hours of work and provision for increased leave would impose an addi tional burden of Rs. 42,000 per year. The liability for pastgratuity would be Rs. 93,376 and the recurring annual increase in gratuity would be Hs. 11,000. If similar benefits were also given to the other members of the staff who were not working journalists the annual burden will increase by Rs. 5,18,964, by reason of their classification as "A" class newspaper establish ment on a chain basis, all the component units have got to be treated as "A" class newspapers, whereas if they were classified .on a computation of the gross revenue of their component units Vyapar would fall within Class "B" the Janmabhoomi and Lokmanya. would fall within Class "C" and the Cutccha Mitra., Fulchha.b and Pratap would fall within Class "E". The inequity of this measure is, moreover, sought to be augmented by their pointing out that whereas the ,Janmabhoomi from Bombay is placed in the "A" <'lass, Bombay Samachar (Bombay), a morning ()ujrati Daily from Bombay, which has a larger gross revenue than Janmabhoomi taken as a single unit is placed in Class H. ~imilarly, the Pratap from Surat is placed in Class A, wherea.s the Gujrat Mitra. from folurat which has a larger gross revenue than the Prata.p is placed ill Class "B" because of its being treated as a. unit by itself; and the Fulchhab from Ra.jkot is also placed in Class "A", whereas the Jaihiud from Rajkot, which has a larger gross revenue than the Fulchhab, is placed in Class "C" for an identical reason. The. total cost of closing down the concern, if percha.ncd S.C.R. SUPREME COURT REPORTS 75 . h Jd i958 the petitioners have to so close down owing to their inability to carry on the business except at a loss, is worked out at Its. 6,13,921 for the working journalists lixpress News- papers (1-)rivate) as agamst t e o basis of Rs. 1,00,890. The figure for Ud., 6 , Anotlter the rest of the staff who arc not working journalists is computed at Rs. 3,08,112 with the result that the tota.1 The Union oj India cost of closing down on the new basis under the provi- sions of the Act and the decision of the w· age Board J l as agamst w 1at ot 1erwise wou < have been a sum of Rs. 4,09,002. Id b R 9 22 033 s. JJhagwati ]. '-'Others e I l , , . v, The Hindustan Times Ltd., New Delhi, tlw petitioners in Petition No. 103 of Hl57, otherwise called "the Hindustan Times Group", publish (i) Hindustan Times, an English (morning) Daily, (ii) Hindustan Times (Even ing News) an English (<>vcning) Daily, (iii) Overst>as Hindustan Times, an English Weekly, (iv) Hindustan, a Hindi D'l.ily, and (v) Raptahik Hindustan, a Hindi Weekly-all from Delhi. They employ a total number of 695 employees, out of whom 79 are working journa lists, 14 are proof readers and the rest, viz., 602 a.re other members of the staff. The wages pair! to the working journalists absorb about one-third of the total wage bill as against 602 other members of the staff whose wage bill constitutes the remaining two-thirds. If the decision of the Wage Board is given effort to the petitioners would be subjected to the following addi tional liabilities in respect of working journalists alone : (i) Increase in the annual wage bill Rs. 2,16,000 (Approx.) (ii) An·ears of payments from :\fay 2, 1956, to April 30, 1957, Rs. 1,89,000 (iii) Past liability in respect of gratuity as on Mar<'h 31, 1957, Rs. 2,65,000 (iv) Re· curring annual liability of gratuity Rs. 28,000. The total liability thus comes to Rs. 6,98,000. Thn above figures do not include increased liability on account of the petitiom•rs' contribution towards provirlent fund, leave rules and payment t-0 part-time correspondentH. There would also be a further recurring increase in the wage bill by reason of the increments which would have to be given to the various categories of working journa lists on the scales of wages prescribed by the Wage Board. If other members of the staff (who are not to be considered for "working journalists") were 76 SUPREME COURT REPORTS ll959 J N • (a r958 ) I xpress ncrease Ill tie annua w1tge H increase in their rmoluments, etc., there will be a further burden on the petitioners romputed as under: ]· E ews· s. 5,02,000 papers (Private) ua .. e.- Anothtr (Approx.), (b) arrears of payments from lliay 2, 1956, to April 30, 1957, Rs. 4,51,000 (Approx.), (c) Past The L'nion of focli• liability in respect of gratuity as on March :H, 1957, Rs. 5,50,000 (Approx.), (d) Recurring annual liability for gratuity Rs. 60,000 (Approx.). The total comes to Rs. 15,63,000. .s- Others Bliagwati J. l '11 R , 1 v. The petitioners in Petition No. 116 of 1957 are the Loksatta Karyalaya, Baroda, which publish Loksatta, a Gujarati Daily from Baroda. Thf'y em ploy 15 working journalists. The annual wage hill of working journalists would have to be increased by \Vage Board by reason of the decision of the Rs. 10,800; the burden of paymPnt of retrospective liii.bility being Rs. 9,600. Moreover, there will be a recurring annual burden of Rs. 6,340 inclusive of the expenditure involved by reason of the provisions a.s to (i) Notif'e pay, (ii) Gratuity, (iii) Retrenchment compcn gation and (iv) Extra burden of reduced hours of work and increased leave. The Sandesh Ltd., the petitioners in Petition No. 117 of 1957, otherwise styled, the 8andesh Group, Ahmcda had, publish (i) Sandesh, a morping Gujarati Daily, (ii) Scvak, an evening Gujarati Daily, (iii) Bal 8andcsh, a Gujarati 'Veekly, and (iv) Aram, and (v) Sat Sandesh, Gujarati l\Ionthlies-all from Ahmedabad. They employ a total staff of 205 employees out of whom there are 11 working journalists, 7 proof readers and the rest 187 constitute the other members of the staff. The increase in the wage bill of the working journalists under the provisions of the Act would be Rs. 24,807 per year besides a similar liability for Rs. 24,807 by reason of the rctrospcctiw operation of the derision. There will be an incre:ise in expt>nditurc to the tune of Rs. 30,900 by reason of the reduced working hours and increase in leave and holidays, a liability of Rs. 31, 59i for past gratuity and Rs. 24,807 every year for recurring gratuity as also Rs. l ,530 for recurring increase in wages of the working journalists. The financial burden in the case of proof-readers who S.C.R. SUPREME COURT REPORTS 77 195R are included in the definition of wor!dng. journalists under the terms of the Act would be Rs. 5,724 per year. If similar benefits were to be given to the other mem- Express News- rapers {Priuat1) bers of the staff who are not working journalists the Ltd. o;. Another annual increase in the burden will be Rs. 1,89,816. The total costs of closing down if Ruch an eventuality The Union of India were contemplated would be Rs. 1,08,997 for the work- in0a i'ournalists only as against a liability of Hs. 22,755 on the old basis. The other members of the staff would have to be paid Rs. 1,46,351 and the total cost of clos- ing down the whole concern would thus come to Rs. 2,55,349 under the new dispensation as against Rs. 1,69,106 as of old. llhagwati J. & Others v. The J ansatta Karyalay11, Ahmedabad, petitioners in Petition ~o. 118 of 1957 bring out (i) Jansatta, a Gujarati Daily and (ii) Chandni a Gujarati Monthly from Ahmedabad. They employ 15 working journa lists, 6 proof-readers and 87 other members of the staff thus making a total number of 108 employees. The increase in the wage-bill of the working journalists would come to Rs. 29,808. The liability for past gratuity would be Rs. 6,624 and the recurring annual gratuity would be Rs. 2,303 and the annual recurring increase in wages would come to Rs. 2,280. The finan cial burden in case of proof-readers would be Rs. 6,480 per year as per the decision of the \Vage Board. If similar benefits had to be given to the. other members of the staff who are non-working journalists the annual burden will increase by Rs. 48, 720. The total cost of dosing down, if such a contingency ever arose, would come to Rs. 1,00, 798 under the provisions of the Act and the \Vage Board decision as against Rs. 45,206 on the old basis. All these petitions filed by the several petitioners a.s above followed a common pattern. After succinctly reciting the history of the events narrated above which led to thl' enactment of the impugned Act and the deci sion of the Wage Board, they challenged the vires of the Act and the decision of the 'Wage Board. The vires of the Act was challenged on the ground that the provi sions thereof 1rere violative of the fundamental rights guaranteed by the Constitution under Art. 19(l)(a), 78 SUPREME COURT REPORTS [1959] 1 958 v. & Others Bhagwa.Ji ]. Art. 19(l){g), a.nd Art. 14; but in the course of thl' argu- ments before us another Article, viz., Art. 32 was also Exprtss ,\fews· papers(Prfrate) added as having been infringed by the Act. The deci- Lld .. & .1"01hrr sion of the Wage Board was challenged on various gronnd,s which were in pari materia with the objections Tlic U11icn of /ml/a that had been urged by the representatives of the employers in the Wage Board in their minute of dissent above referred to. It was also contended that the implementation of the decision would be beyond the · capacity of the petitioners and would result in their utter collapse. The reply made by the respondents was that none of the fundamental rights guarantec>d under Art. 19(I)(a), Art. l9(l)(g), Art. 14 and/or Art. 32 were infringed by the impugned Act, that the fimc tions of the ·wage Board were not judicial or quasi judicial in character, that the tixation of the rates of wages was a legislati rn act and not a judicial one, that the decision of the Wage Board had been arrived at after taking into consideration all the criteria for fixation of wages under s. 9(i) of the Act and the material as well as the evidence led before it, that a considerable portion of the decisions recorded by the Wage Board were unanimous, that the Wage Board had the power and authority <dso to fix the scales of wages and to give retrospective operation to its deci sion, and that the tinancial position of the petitionern was not such as to lead to their collapsr as a result of the impact of the provisions of the impugned Act and the decision of the ·wage Board. The petitioners in Petitions Kos. !JI of l!J57, 99 of 1957, 100 of 1957, 101 of 1957 and 103 of 1957 also filed petitions for special leave to appeal against the decision of the Wage Board being Petitions Nos. 323, 346, 347, 348 and 359 of 1957 respectively and this Court granted the special leave in all thesl' petitions und<'r Art. 136 of the Constitution subjert to the ques tion of the maintainability of the appeals being open to be urgerl at the hearing. Civil Appeals arising out of thesl' special leave petitions were ordered to be placed along with the Writ Petitions aforesaid for hearing and tinal disposal and Civil Appeals Nos. 699 of lj}57, iOO of 1957, 701 of 1957, 702 of 1957 <tnrl 703 of 1957 S.C.R. SUPREME COURT REPORTS 79 2 r958 Express News- rt. 3 mentioned above. We took up the hearing of papers (Private) Ltd., .s. Another v.

11.rising therefrom thus came up for hearing and final disposal before us along with the Writ Petitions under A the Writ Petitions first as they were more comprehen- sive in scope than the Civil Appeals filed by the respec- tive parties and heard counsel at considerable length Th.e Union of India on the questions arising for our determination therein. Before we discuss the vires of the impugned Act and the decision of the Wage Board, it will be appropriate at this juncture to clear the ground by considering the principles of wage fixation and the machinery employ- ed for the purpose in various countries. Broadly speaking wages have been classified into three cate- gories, viz., ( 1) the Ii ving wage, (2) the fair wage and (3) the minimum wage. Bhagwali J. & Others The concept of the living .wage : "The concept of the living wage which has influenced the fixation of wages, statutorily or other wise, in all economically advanced countries is an old and well-established one, but most of the current definitions are of recent origin. The most expressive definition of the living wage is that of Justice Higgins of the Australian Commonwealth Court of Conciliation in the Harvester case. He defined the living wage as one appropriate for" the normal needs of the average employee, regarded as a human being living in a civilized community ". Justice Higgins has, at other places, explained what he meant by this cryptic pro nouncement. The living wage must provide not merely for absolute essentials such as food, shelter and clothing but for " a condition of frugal comfort esti mated by current human standards." He explained himself further by saying that it was a wage "suffici ent to insure the workmen food, shelter, clothing frugal comfort, provision for evil days, etc., as well as regard for the special skill of an artisan if he is one ". In a subsequent case he observed that " treating marriage as the usual fate of adult men, a wage which does not allow of the matrimonial condition and the mainte. nance of about five persons in a home would not be treated as a living wage''. According to the South Australian Act of 1912, the living wage means" a sum 80 SUPREME COURT REPORTS [1959] v. 1958 .& Others Bhagwali ]. The Union of India employee shall not be sufficient for the normal and reasonable needs of the average employee living in a locality where work under Express News- consideration is done or is to be done." The Queens papers (Private) Ltd., .i;. Another land Industrial Conciliation and Arbitration Act provides that the basic wage paid to an adult male less than is "sufficient to maintain a well-conducted employee of average health, strength and competence and his wife and a family of three children in a fair and average standard of com- fort, having regard to the conditions of living prevail ing among employees in the calling in respect of which such basic wage is fixed, and provided that in fixing such basic wage the earnings of the children or wife of such employee shall not be taken into account". In a Tentative Budget Inquiry conducted in the United States of America in 1919 the Commissioner of the Bureau of Labour Statistics analysed the budgets' with reference to three concepts, viz., (i) the pauper and poverty level, (ii) the minimum of subsistence level, and, (iii) the minimum of health and comfort level, and adopted the last for the determination of the living wage. The l'toyal Commission on the Basic Wage for the Commonwealth of Australia approved of this course and proceeded through norms and budget enquiries to ascertain what the minimum of health and comfort level should be. The commission quoted with approval the description of the minimum of health and comfort level in the following terms : " This represents a slightly higher level than that of subsistence, providing not only for the material needs of food, shelter, and body covering, but also for certain comforts, such as clothing sufficient for bodily comfort, and to maintain the wearer's instinct of self respect and decency, some insurance against the more important misfortunes-death, <lisability and fire good education for the children, some anrnsement, and some expenditure for self-development." Writing practically in the same language, the U uited Provinces Labour Enquiry Committee classified level8 of living standard in four categories, viz., (i) the poverty level, S.C.R. SUPREME COURT REPORTS 81 h (ii) the minimum subsistence level, (iii) the subsistence plus level and (iv) the comfort level, b d h Express News- papers (Private) an c ose t e su sistence p us level as the basis of Ltd., i;. Anoth" what it called the "minimum living wage". The Bombay Textile Labour Inquiry Committee, 1937, The Union of India considered the living wage standard at considerable length and, while accepting the concept of the living wage as described above, observed as follows: Bhagwoti J. & Others x958 1 v. " ...... what we have to attempt is not an exact measurement of a well-defined concept. Any defini tion of a standard of living is necessarily descriptive rather than logical. Any minimum, after all, is arbitrary and relative. No completely objective and absolute meaRing can be attached to a term like the "living wage standard " snd it has necessarily to be judged in the light of the circumstances of the parti cular time and country." The Committee then proceeded through the use of norms and standard budgets to lay down wha.t the basic wage should be, so that it might approximate to the living wage standard " in the light of the circum stances of the particular time and country." The Minimum Wage-Fixing Machinery published by the I. L. 0. has summarised these views as follows : "In different countries estimates have been ma.de of the amount of a living wage, but the estimates vary according to the point of view of the investiga.tor. Estimates may be classified into at least three groups: ( l )" the amount necessary for mere subsistence, (2) the amount necessary for health and decency, (3) the amount necessary to provide a standard of comfort." It will be seen from this summary of the concepts of the living wage held in various parts of the world that there is general agreement that the living wage should enable the male earner to provide for himself and his family not merely the bare essentials of food, clothing and shelter but a measure of frugal comfort including education for the children, protection against ill-health, II 82 SUPREME COURT REPORTS [1959] 1958 requirements of essential social needs, and a measure of insurance against the more important misfortunes • ,, (') .E•Press News- p pe 5 (Pr. L~ .• '&An:~~" Article 43 of our Constitution has also adopted as one te) me u mg o age. ! d. !d v. The Union of India & Others Bhagwati ]. of the Directive Principles of State Policy that: "The State shall endeavour to secure, by suitable legislation or economic organisation or in any other way, to all workers, agricultural, industrial or other wise, work, a living wage, conditions of work ensuring a decent standard of life and full enjoyment of leisure · and social and cultural opportunities ............... " This is the ideal to which our social welfare State has to approximate in an attempt to ameliorate the living conditions of the workers. The concept of the minimum wage : "The International Convention of 1928 prescribes the setting up of minimum wage-fixing machinery in industries in which "no arrangements exist for the effective regulation of wages by collective agreement or otherwise and wages are exceptionally low" ......... . "As a rule, though the living wage is the target, it has to be tempered, even in advanced countries, by other considerations, particularly the general level of wages in other industries and the capacity of industry to pay. This view has been accepted by the Bombay Textile Labour Inquiry Committee which says that " the living wage basis affords an absolute external standard for the determination of the minimum " and that "where a Ii ving wage criterion has been used in the giving of an award or the fixing of a wage, the decision has always been tempered by other considera tions of a practical character." "In India, however, the level of the national in come is so low at present that it is generally accepted that the country cannot afford to prescribe by law a minimum wage which would correspond to the concept of the Ii ,-ing wage as described in the preceding para graphs. What then should be the level of minimum wage which can be sustained by the present stage of the country's economy?. Most employers and some (1) Report of the Committee on Fair \Vages {1947 to 1949), pp. 5-7, 1)-.ru. 6 ct 7. S.C.R. SUPltEME COURT HEPOHTS 83 r958 .. . . Provirwial Gonmunent8 (;OllSider that the !lliHimnm . ... wage can at present ll<' onl.v a bare subsistence wag('. ln fact, even one important All-India org>misation of ~~:;;;';r~:~1~·) employees has suggeRted that "a minimum wagt• is Lid., '" A11oll1er that wage which iA snfficient to cl!ver tlw lntrP physicftl needs of a worker and his family." Mftny otherR, n, U11ion of lildia however,. ........ consider that a minimum wage should also provide for some other essential requirement~ such as a minimum of education, medical facilities and \Ve consider that a minimum wage other amenities. must provide not merely for the bare sustcna nee of life but for the preservation of the efficie1'tcy of the worker. For this purpose, the minimum wage must also provide for some measure of educa.t.ion, medical requirements, and amenities. " (1) & Others -- LJl1agwa1i j. v. This is the concept of the "minimum wage" adopt ed by the Committee on Fair Wages. There are how. ever variations of that concept and a distinction has been drawn, for industrial terminology between the basic wage and the minimum wage,- instance, in Australian " The basic wage there approximates to a bare minimum subsistence wage and no normal adult mate covered by an award is permitted to work a full standard hours week at less than the assessed basic is expressed as the wage rate. The basic wage minimum at which normal adult male unskilled workers may legally be employed, differing from the amounts fixed as legal minima for skilled and semi. skilled workers, piec0 workers and casual workers respectively ........................................................ . the lowest rate at which The minimum wage members of a specified grade of workerH may legally be employed. " (') There is also a distinction between a bare wbsistence or minimum wage and a statutory minimum wage. The former is a wage which would . be sufficient to cover the bare physical needs of a worker and his family, that is, a rate which has got to be priid tu the worker irrespective of the capacity of the ind11stry to (()Report of the Committee on Fair Wages, pp. 7·9, paras, 8-10. (2) 0.D.R. Feenanderlndustrial Regulation in Australia (1947), Ch. XVfI, p. ljj. 84 SUPREME COUltT REPORTS [1959] 1958 pay. If an industry is unable to pay to its workmen at least a bare minimum wage it has no right to exist. · · umimum Al C d E~press ~Vews- papers (Private) As was observe by us in 11l essrs. ua., & Anothci· Work& v. Their Workmen (') : v. 1 & Others Bhagwati J. . d 1 .b . "It is quite likely that in nuder-developed The U11ion of India countries, where unemployment prevail8 on a very 1 arge sea e, unorgamse a our may ue ava1 a e on starvat~on wages, but the employment of labour on starvation wages cannot be encourager! or favoured in a modern democratic welfare state. If an employer cannot maintain his enterprise without cutting down the wages of his employees below even a bar<: 8Ub sistence or minimum wage, he would have no righ1 to I '\ bl r i. I • conduct his enterprise on such terms." The statutory minimum wage howevPr is the minimum which is prescribed by the statute and it may be higher than the bare subsistence or minimum wage, provid ing for some measure of education, medical require ments and amenities, as contemplated above. (Cf. also the connotation of " minimum rate of wages" in s. 4 of the Minimum Wages Act, 1948 (XI of 1948) ). The coiwept of the fair wage : "The payment of fair wages to labour is one of the cardinal recomme1!dations of the Industrial Truce Resolution .................. Marshall would consider the rate of wages prevailing in an occupation as "fair" if it is " about on level with the average payment for tasks in other trades which are of equal difficulty and disagreeableness, which require equally rare natural abilities and an equally expensive training." Prof. Pigon would apply two degrees of fairness in judging a wage rate, viz., " fair in the narrower sense" and " fair in the wider sense ". A wage rate, in his opinion, is "fair in the narrower sense" when it is equal to the rate current for similar workmen in the same trade n.nd neighbourhood and "fair in the wider sense" when it is equal to the predominant rate for similar work throughout the country and in the generality of trades. " ..................................................... ' ................. . "The Indian Na:tional Trade Union Congress ...... (I) [1;i58] S.C.R 651. S.C.R. SUPREME COURT REPORTS 85 v. d k h k h i958 · · <>- Othm ...... is of the opinion that tho wage fixed by collectivC' agreements, arbitrators, and adjudicators eould at best Exprt.ss }{ews b e treate , Ji e t e mm1mum wage, as the starting papers(Prfo•t•) point and that wherever the capacity of iin industry to Ltd .. .,, Another pay a higher wage is established, such a higher wage should be deemed to be the fair wage. The minimum The Union of India wage should have no regard to the capacity of an ini:lustry to pay and should be based solely on the requirements oft e wor er and his family. "A fair wages " is, in the opinion of the Indian National Trade Union Congress, "a step towards the progressive reali- zation of a living wage". Several employers while they are inclined to the view that fair wages would, in the initial stages, be closely related to current wages, are prepared to agree that the prevailing rates could suitably be enhanced according to the capacity of an industry to pay and that the fair wage would in time progressively approach the living wage. It is neces- sary to quote one other opinion, viz., that of the Government of Bombay, which has had considerable experience in the matter of wage regulation. The opinion of that Government is as follows : Dhagwali J. "Nothing short of a living wage can be a fair wage if under competitive conditions an industry can be shown to be capable of paying a full living wage. The minimum wage standards set up the irreducible level, the lowest limit or the floor below which no workers shall be paid ............ A fair wage is settled above the minimum wage and goes through the process of appro ximating towards a living wage." While the lower limit of the fair wage must obviously be the minimum wage, the upper limit is equally set by what may broadly be called the capa city of industry to pay. This will depend not only on the present economic position of the industry but on its future prospects. Between these two limits the actual wages will depend on a consideration of the following factors and in the light of the comments given below: (i) the productivity of labour; (ii) the prevailing rates of wages m the same or 86 SUPREME COURT REPORTS [1959) the same or neighbouring 1 958 similar occupations localities · ' Expr~ss /\7 ews- papers (Private) Ltd., 6" Ano//"' bution; and 71 u . v. ,, & Ot'lCrs d. t nion oJ n Uf t coun ·f)'· ,, 1 . .. .. .... . .. . (') . (iii) the le vol of the national income and its distri- (iv) the place of the industry in the economy of the It will be noticed that the "fair wage., is thus a Bhogwati / mean between the living wage and the minimtml wage and even the minimum wage contemplated above is something more than the bare minimum or subsistence wage which would be sufficient to cover the bare phy sical needs of the worker and his family, a wage which would provide also for the preservation of the. effici ency of the worker and for some measure of education, medical requirements amt amenities. This concept of minimum wage is in harmony with the advance of thought in all civilised countries and approximates to the statutory minimum wage which the State should strive to achieve having regard to the Directive Principle of State Policy mentionecl. above. The enadment of the Minimum Wages Act, 1948, affords a; :.lustrat.ion of an attempt to provide a sta tutory minimum wage. It was an Act to provide for fixing minimum rates of wages in certain employment8 and the appropriate Government was thereby em powered to fix different minimum rates of wages for (i) different scheduled employments; (ii) different classes of work the same scheduled employment; (iii) adults, adolescents, children and apprentices; and (iv) different localities; and (v) such minimum rates of wages could be fixed by the hour, by the day or by any larger period as may be prescribed. It will also be noticed that the content of the expres sions " minimum wage " " fair wage " and " living wage" is not fixed and static. It varies and is bound to vary from time to time. With the growth and development of national economy, Ii ving standards would improve and so would our notions ahont the respective categories of wages expand and be more progressive. (1) Report of the Committee on Fa.ir \\'ages, pp. 4, <r11, paras, 11-r 5. S.C.R. 8UPREME COURT REPORT8 87 It 1mrnt however be remembered that whereaK the bare minimum or subsistence wage would have to be fixed irrespective of the capacity of the industry to Express News- papers (Private) h pay, the minimum wagg t us conternp 1ite postu ates Ltd., & Another the capacity of the industry to pn,y and no fixation of wages whieh iguoreR this esS('tltial factor of the The Union of India capacity of the supported. industry to pa? Pou Id ever be I d c;,, Others I v. nhagwati J. Fixation of 8cales of Wages :- A question arises as to whether the fixation of rates of wages would also include the fixation of scales of wages. The rates of wages and scales of wages are. two different expressions with two different connota tions. " Wages" have been defined in the Industrial Disputes Act, 1947, to me.an "all remuneration capable of being expressed in terms of money, which would, if the terms of employ ment, express or implied, were fulfilled, be payable to a workman in respect of his employment or of work done in such employment." Similar definition of " wages" is to be found in the Minimum Wages Act, 1948, also. They would there fore include all payments made from time to time to.a workman during the course of his l)mployment as such and not merely the starting amount of wages at the beginning of his employment. The dictionary mean ing of the term in the Concise Oxford Dictionary is also the same, viz., "Amount paid periodically, especially by the day or week or month, for time during which workman or servant is at employer's disposal". The use of the word " rate " in the expression " rates of wages" has not the effect oflimiting the connotation of the term. " Rate" is described in the Concise Oxford Dictionary as " a statement of numerial pro portion prevailing or to prevail between two sets of things either or both of which may be unspecified, amount, etc., mentioned in one case for application to all similar ones, standard or way of reckoning (measure of) value, etc.". In Chambers' Twentieth Century Dictionary its meaning is given as: estimated amount or value (Shakespeare), and also "amount 88 SUPREME COURT REPORTR [Hl59] z958 determined according to 11. rule or basis; a stan<lard; <t class or rank ; manner or mode ". ] , 1 f ,, h ,. v. & Others Dhag•vati ]. " .ates o wa,,cres Express iVetv::>- t ere1ore me1tn t w manner, papers (Private) Ltd., & Another mode or standard of the pa, vments of remuneration for work done whether at the start or in the-subse- 1·11, Union of l11dia <1uent, stages. Rates ·of wage,; would Urns include the scales of wages and there is no antithesis between the two expressions, the expression ~0i11g applicable both to the initial as well as subsequent amounts of wages. It is true that in references made to Industrial Tribu nals fixing of scales of pay has been specifically men tioned, e. g., in the Industrial dispute bet, ween certain banking companies an<l their worker,~. But that is not sufficient to exclude the "scales of wages " from being comprisC(l within the larger connotation of the expression "rates of wages" which is capable of in cluding the scales of wages also within its ambit. Even without the specific mention of the scales of wages it would be open to fix the same in an inquiry dir0ctcd towards the fixation of the rates of wages. It is also true that Industrial Tribunals have htid down that the increments of wages or scales of remu neration could only be fixed having due regard to the capacity of the industry to pay. In the case of tlw Britannia Building & Iron Co. Ltd.(') : " As time scales increase the wage bill ye1u after year which is reflected in the cost of production, such scales should not, in our opinion, be forced upon t,he employer of industrial labour unless it is established that the employer has the present capacity to pay and its financial capacity can be counted upon in future. Thus, both financial ability and stability are requisite conditions.'' Similar observations were made in the case of thn Union Drug Co. Ltd.('): " For hf'fore incr<>mental scales can be imposed by a<ljudicrttion, it is flssential to see whdltPr PmployPr would be ablP to be1tl' its hurden. The finan(,ial concli tion of the Company must be such as to lea<l tn th<> conclusion that it would be able to pay the incre ments year by year for an a pprcciable number of (1) (1954] I L. L. J. 651, 654. (2) (1954] 1L.L.J.766, 767, S.C.R. SUPREME COURT REPORTS 89 I95s years, for wage scales when settled are intended to be long term schemes." · h 'd Th' f h · 1s cons1 erat1on owever o f \ Express New.(• t e capacity o t te papm (Private) industry to pay docs not militate against the construe- Ltd., & Another tion adopterl. above that rates of wages do comprise v. within their scope the sc!l.les of w!l.ges also and it The Union of India therefore follows that the fixation of rates of wagcs wonld <tlso include the fixation of scales of wages. As a matter of fact, the provisions in regard to the statn- tory minimum wages in Queensland, Western Australia, and Tasmania prescribe scales of wages which are graduated according to age and experience. ,nhagwati f. & Others The capacity of the industry to pay being thus one of the essential ingredients in the fixation of wa~cs, it the clifferc•nt methocls of is rclcwant to considP-r measuring such capacity. ThP capacity of the indu8try to pay : The capacity of industry to pay can mean onH of thrPe things, viz: (i) the capacity of a particular unit (marginal, representative or average) to pay, (ii) the capacity of a particular industry as a whole to pay or (tii) the eapacity of all industries in the country to pay. "Ideas on this subject have varied from country In New Zealand and Australia the capa to country. city to pay is calculated with reference to all industrieH in the C'ountry and no special concessions arc shown to <.It-pressed industries. In Australia the Arbitration Court considered that "in view of the absence of clear means of measuring the general wage-paying capacity. of total industry, the actual wage upon which well-situated labourers were at the time main taining the average family unit could justifiably be taken as the criterion of what industry could probably pay to all labourers". This is at best a secondary definition of capacity, for it could only Kerve to show that certain industries or units could afford to pay as much as certain others." " The Bombay Textile Labour Inquiry Committee " 90 SUPiiEME COURT R.EPORTS [1959] d 1958 d b • Othm /IAacwari J. ca.me to the ·conclusion tha.t it w"a.s not possible to define the term "ca.pa.city to pa.y" in. a precise fi JI Express News- · popers (Priv•t•) manner an o serve a.s o ows : Ltd .. .s. Another v. "The ca.pa.city to pa.y a wage cannot obviously be determined merely by the value of production. The U•io• 01 India There is the important question of determining the charges tha.t ha.veto be deducted before arriving at the amount that can be paid in wages. The determi nation of each of a large number of charges involves difficulties, both theoretical and practical. Interest charges, remuneration to salaried staffs and managing agents, sales commissions, profits, all these cannot for any large organised taken as pre-dGtermined in a fixed manner. Neither is it that representatives of Labour to be expected would accept without challenge the current levels of expenditure on these items-apart from the considera tion whether the industry has been reasonably well. managed or not." industry be "That Committee wa.s, however, of the opinion that capacity should not be measured in terms of the individual establishment and that " the main criterion should be the profit making cap2wity of the industry in the whole province .......................................... " "In determining the capacity of an industry to pa.y it would be wrong to take the.capacity of a parti cular unit or the ca pa.city of all industries in the country. The relevant criterion should. be the capa city of a particular industry in a specified region and, as far as possible, the same wages should be prescriJ:>ed for all units of that industry in that region. It will obviously not be possible for the wage fixing board to measure the capacity of each of the units of an industry in a region and the only practicable method is to take a fair cross-section of that industry." (1) It is clear therefore that the capacity of an industry to pa.y should be gauged on an industry-cum-region basis after taking a fair cross-section of that industry. In a. given case it may be even permissible to divide the industry into appropriate classes and then deal with the capacity of the industry to pa.y classwise. (1) R•port of the Committee on Fair Wages, pp. 13-15, paras. 21 & 23. S.C.R. SUPREME COURT REPORTl:i !ll As regards the measure of the capacity again there 1958 0 " ne view are two points of view in regard to the same: h 1£xpress News- is t at t e wage- xmg mac mery pape~s (Private) should, in determining the capacity of industry to pay, Ltd:, & A>1other Ira ve regard to h' h v. . (i) a fair return on capital and remuneration ton .. U·nio" of India management ; and (ii) a fair allocation to reserves and depreciation so as to keep the industry in a healthy condition. The other view is that the fair wage must be paid at any cost and that industry must go on paying such wage as long as it does not encroach on capital to pay that wage .......................................................... .. & Others Bhagwati ]. The objective is not merely to determine wages which are fair in· the abstract, but to see that employ ment at existing levels is not only maintained but, if possible, increased. From this point of view, it will be clear that the level of wages should enable the industry to maintain production with efficiency. The capacity of industry to pay should, th0refore, bt> :>Hsessed in the light of this very important consideration. The wages board should also be charged with the duty of seeing that fair wages so fixed for any particular industry are not very much out of line with wages in other indus tries in that region. 'Wide disparities would inevitably lead to movement of labour, and consequent industrial unrest not only in the industry concerned but in other industries." (1 ) The main consideration which is to be borne in mind therefore is that the industry should be able to main tain production with efficiency and the fixation of rates of wages should be such that there are no move ments from one industry to another owing to wide dis parities and employment at existing levels is not only maintained, but if possible, increased. Different tests have been suggested for measurmg the capacity of the industry to pay: Yiz: (1) The selling price of the product; (2) The volume of the output ; (3) the profit and loss in the business; (i~ Report of th~ Committee nQ Fair Wages, p. 14, para.. 24. 92 SUPREME COURT REPORTS [195!)] '958 (4) the rates which have been agreed to Ly a large majority of the employers ; Express ~Vews· (5) the amount of unemployment brought a.bout or papm !Private) Ltd, & Another likely to be brought about by the imposition of the v. increased wage, etc. & 0111 The Union of India They are however not quite satisfactory. The real " ' measure of the capacity of the industry to pay has been thus laid down in "Wages & the State " Ly E.;\il. Burns at p. 387 : Bhagwati J. " It would be ·necessary to inquire inter alia into the elasticity of demand for the product, for on this depends the extent to which employers could transfer the burden of the increased wage to consumers. It would also be necessary to inquire how far the enfor~ed payment of a higher wage would lead employers to tighten up organisation and so pay the higher wage without difficulty . ......................................................................... Similarly it frequently happens that an enhanced wage increases the efficiency of the lowest paid workers; the resulting increase in production should be consi dered in conjunction with the elasticity of demand for the commodity before the ability of a trade to pay can fairly be judged. Again unless what the trade can bear be helcl to imply that in no circumstances should the existing rate of profit be reduced, there is no reason why attempts should not be made to discover how far it is possible to force employers to bear the burden of an increased rate without driving them out of business. into the This would elasticity of supply of ca pita! and orgamsmg ablility in that particular trade, and thus an inquiry into the rate of profits in other industries, the ease with which transferences might be made, the possibility of similar wage regulation extending to other trades, and the probability of the export of capital and organising ability etc." investigation involYe an The principles which emerge from the above discus sion are: (1) that in the fixation of rates of wages which S.C.R. SUPREME COURT REPORTS 93 include within its compass the fixation of scales of wages also, the capacity of the industry to pay is one of Express News~ the essential circumstances to be taken into considera- papers (Private) tion except in cases of bare subsistence or minimum Ltd., & Another wage where the employer is bound tu pay the same irrespective of such capacity; - z958 v. The Union of India & Others Hha; wati ]. (2) that the capacity of the industry to pay is to be considered on an industry-cum-region basis after taking a fair cross section of the industry; and (3) that the proper measure for gauging the capacity of the industry to pay should take into account the elasticity of demand for the product, the possibility of tightening up the organisation so that the industry could pay higher wages without difficulty and the possibility of increase in the efficiency of the lowest paid workers resulting in increase in production considered in conjunction with the elasticity of demand for the product-no doubt against the ultimate back ground that the burden of the increased rate should not be such as to drive the employer out of business. These are the principles of fixation of rates of wages and it falls now to be considered what is the machinery employed for such fixation. The machinery for fixations of wages: The fixation of wages may form the subject matter of reference to industrial tribunals or similar machinery under the Labour Relations Law. But this machinery is designed for the prevention and settle ment of industrial disputes which have either arisen or are apprehended, disputes relating to wages being one of such disputes. The ensuring of an adequate wage is however a distinctive objective and it requires the setting up of some kind of wage fixing board, whether they be trade boards or general boards. It is seldom that legislative enactments themselves fix the rates of wages, though a few such instances are known. This method of regulation of wages has now become obsolete in view of its inflexibility." (1) " The Constitution of Boards falls uaturall v into two main groups. On the one hand, there are" those not representatives of one but of all trades, workers in (I) The Report of the Committee on Fair Wages. p. '26, para. 49. 94 SUPREME COl'RT REPORTS [1959] 1958 1 v. "" mum &- llhagwati 1 genPral an<l employers in general being rnprcHent.ed. Express News· This group includes among othprs the Industrial Wcl papers (Privafr) fare UommisHion of Texas, consisting of the Commis Ltd., 6 A11vt1'" sioner of Labour, the representntive of employers of labour on the Industrial Accidents Board and the . HeUm~nhvf lr• 11•State Superintendent of Public Instruction; the Mini- 'Vage Bo:ir<l of l\fanitoha, eomposed of two represe11t11tives of employers, an<l two of workers (one of t'acoh to be a wonrnn) ;ind 01w rlisintercsted person ; :inrl the South Australian Board of Industrv, consist ing of a President 1111d four C'ommissionc~s, tw<> of whom are to he nominated bv the South Australian Employers' Federation and two. by the United Trades and Labour Couneil of the StatP. 011 the other hand arc those Boards representative of one trade only or of part of a tmde, or of a group of allied trades. An attempt is made to obtain a hody of specialists and the membership of the Board reflects this intention. It will contain an equal number of represent11tivcs of employers :ind workers, together with an impartial chairnrnn, and in some cases members of the public as well. Of this type are the British Trade Boards; the 8outh Australia11, Vi<"torian and Tasmanian Wages Boards; a,ncl the Arlvisoryor Wages Bo11rds set up by m11nv of thr ('entral Commissioners in the United States :incl Canacl:i .. , (') The following is a brief description of tne composi tion and working of wages hoards in the United Kingdom: "In the U11ited Kingdom where trade boards, and not general boards, have been setup, the Minister of Labour appoints a board if he is satisfied that no adequate machinery exists in a, particular trade or industry for effectively regulating the wages and that it is necessary to provide such machinery. The trade board is .a fairly large body consisting of an equal number of representatives of employers and workers with a few independent members including the Chair man. Although appointments are made by the Minister, the representatives of employers and workers (1) ''\Vagcs & The State" by E. M. Burns at p. 1Hj. S.C.R. SUPREME COURT REPORTS 95 '958 are appointed on the recommendation of the associa- tions concerned. The trade board publishes a· notice announcing its tentative proposals for the fixation or :::::;~.::::.~~) revision of a wage rate and invites obJ0ections or com- A Ltd., 0- not er ments. After a two months' notice the board takes a v. final decision and submits a report to the Minister who The Union of India must confirm the rate unless, for any special reasons, he returns the recommendations to the board for " 1) "d further cons1 erat10n. ( Bhagwali J. &- Others · h The Wage Council Act, 1945 (8 & 9 Geo. VI, ch. 17) provides for the establishment of Wage Councils. The Minister of Labour and National Service has the power to make a wages council order after consider ing objections made with respect to the draft order on behalf of any person appearing to him to be affected. The Wage Council makGs such investigation as it thinks fit and publishes notice of the wage regulation proposals and parties affected are entitled to make written representations with respect to these proposalR which representations the Wage Council considers. The Wage Council can make such further enquiries as it considers necessary and thereafter submit the propo sals to the Minister either without amendment or with such amendments as it thinks fit in regard to the same. The Minister considers these wage regulations proposals and makes an order giving effect to the proposals from such date as may be specified in the order. Remuneration fixed by the wage regulation orders is called statutory minimum remuneration. There are also similar provisions under the Agri cultural Wage .Regulation Act, 1924 (14 & 15 Geo. V, ch. 37) in regard to the regulation of wages by Agricultural Wages Committees and the Agricultural Wages Board. In Canada and Syria a board consists of generally 5 members, but in China the size of the board varies In all these countries employers and from 9 to 15. workers obtain equal representation. In Canada the boards are required to enquire into the conditions of work and wages. In some provinces the boards are authorised to issue orders or decrees while in others (1) The Report of the Committee on Fair Wages, pp. 25-16, para. 50. 96 SUPREME COURT REPORTS [1959] r95B the recommendations have to he submitted to the Lieutenant Governor who issues orders. v. Bhagwati J. Express News- " In the United States of America some state laws papers (Private) ltd., & Anather prescribe that the representatives of employers and workers should he elected, but in the majority of 1'/ie Union °! India States the administrative authorities are authorised to & Others make direct appointments. The hoards so set up are empowered to make enquiries, to call for records, to summon witnesses and t,o make recommendations regarding- minimum wages. Some of the American laws lay down a time-limit for the submission of proposals. The administrative authority may accept or reject a report and refer it back for reconsideration, or form a new board for considering the matter afresh. Some of the laws provide that if the !'eport is not accepted, the matter must he submitted again to the same wages board or a new wages hoard." (') The whole procedure for the determination of wages in the United States of America is described in two decisions of the Supreme Court: (i) Interstate Cornmerce Com. v. Louisville & Af. R. (')and (ii) Opp. Cotton .Mills Inc. v. Administration ("). recommends to The Fair Labour Standards Act of 1938 in the U.S.A. provides for convening by the Administrator of industry commiLtees for each such industry which from time to time recommend the minimum rate or rates of wiiges to he paid by the employers. The committee highest minimum wage rntes for the industry which it determines, ha viug due regard to economic and competitive conditions, will not substantially curtail employment in the industry. Wage orders can there- upon he issued by the administrator after due notice to all interested persons and giving them an opportu- nity to be heard. the administrator In Australia also there are provisions in various states for the appointment of wage boards the details of which we need not go into. \Ve may only refer to the wage board system in Victoria which was est; iblished (I} Report of the Committee on Fair Wages, p. ~6, para. 50. (2) (1912) 227 U.S. 83; 57 L. Ed. 430. (3) (1940) 312 U.S. 126; 85 L. Ed. 624. • S.C.R. SUPREME COURT REPORTS 97 ,, in 1896 as a means of directly regulating wages and working conditions in industries subject to "sweat- . tions as such. , and was not intended to control industria re a. papers (Privat•) Ltd., & Another v. "Under the Factories and. Shops Act, 1924, wage Express News . l r958 l boards are set up for the various industries with a The Union of India court of Industrial Appeals to decide appeals from a determination of a wage board. Industries for which there is no special wage board are regulated by the General Wages Board, which consists of two emplo- yers' representatives nominated by the Victorian Chamber of Manufacturers, two employees' represent. atives rromiliated by the Melbourne Trade Hall Council, and a chairman, agreed upon by these four members or nominated by the minister for labour."(') Bhagwati J. & Others It may be noted that in the majority of ca&eS these wage boards are constituted of equal number of representatives of employers and employees and one or more independent persons, one of whom is appointed the chairman. The position in India has been thus summarised : " The history of wage-fixation in India is a very recent one. There was practically no effective machi nery until the last war for the settlement of industrial di~putes or the fixation of wages. The first important enactment for the settlement of disputes was the Bombay Industrial Disputes Act, 1938 which created an Industrial Court. The Act had limited application and the Court was not charged with the responsibili ties of fixing and regulating wages. During the war State intervention in the settlement of industrial dis putes became necessary, and numerous adjudicators were appointed to adjudicate on trade disputes under the Defence of India Rules. . The Industrial Disputes Act, 1947, is the first effective measure of All-India. applicability for the settlement of industrial disputes. Under this Act various Tribunals have passed awards regulating wages in a number of important industries. "The first enactment specifically to regulate wages in this country is the Minimum Wages Act,1948. (1) Kenneth F. Walker, "Industrial Relations in Australia". 13 98 SUPREME COURT REPORTS [1959] v. d £ ] · '958 d' ' · d & Othm Bhagwati ]. This Act is limited in its operation to the so-called sweated industries in which labour is practically Express New~»· unorgamse an wor nng con 1t10ns are ar worse an papers (Private) Ltd .. & Another in organised industry. Under that Act the appro- priate Government has either to appoint a Committee The Union of Indi.a to hold enquiries and to ad vise it in regard to the fixation of minimum rates of wages or, if it thinks that it has enough material on hand, to publish its propo- d sals for the fixation of wages in the official gazette an to invite objections. The appropriate Government finally fixes the minimum rates of wages on receipt of the recommendations of the Committee or of objections from the public. There is no provision for any appeal. There .is an advisory board in each province to co-ordi nate the work of the various committees. There is also a Central Advisory Board to co-ordinate the work of provincial boards. Complaints of non-payment of the minimum rates of wages fixed by Government may be taken to claims authorities. Breaches of the Act are punishable by criminal courts." (1) It is worthy of note that these committee, sub committees, advisory board and central advisory board are to consist of persons to be nominated by the Central Government representing employers and em ployees in the scheduled employments, who shall be equal in number, and independent persons not exceed ing one-third of its total number of members; one of such independent persons shall be appointed the chairman by the appropriate Government. "Under a recent amendment to the Bombay In dustrial Relations Act, 1946, waf!e boards can be set up in the Province of Bombay either separately for each industry or for a group of industries. The wage board is to consist of an equal number of representa tives of employers and employees and some independ ent persons including the Chairm; in, all of whom are nominated by the Government. The board decides disputes relating to reduction in the number of per-· sons employed, rationalisation or other efficiency systems of work, wages and the period and mode of payment; hours of work and leave with or without (1) Report of the Conunittee on Fair Wages, pp. 26-27, para, 51, 52. s.c.n. SUPREME COURT REPORTS !)!) z958 to form committees for local areas for It is obligatory on The Union of India pay. When a matter has been referred to a wages board, no proceedings may be commenced or conti- Express .Vews· nued before a conciliator, conciliation board, labour papers (Private) court or industrial court. The wages boards are autho- Ltd .• c;, Another purpose of making enquiries. Government to declare the decisions of the wages boards binding, but where Government feel that it will be inexpedient on public grounds to give effect to the whole or any part of the decision, the matter has to be placed before the Provincial Legislature, the deci- sion of which will be binding. There is provision for the filing of appeals from the decisions of the wages boards to the Industrial Court." (1 Those wage boards moreover are under the super intendence of the Industrial Court. & Others llilagwau f. v. ) We may also notice here Recommendation 30, being the recommend:i.tion concerning the application of Minimum Wage-Fixing Machinery made by the Inter national Labour Office, 1949 (') : "(1) The minimum wage-fixing machinery what ever form it may take (for instance, trade board for individual trades, tribunals), slwuld operate by way of investigation into the relevant conditions in the trade or part of trade concerned and consultation with the interests primarily and principally affected, that is to say, the employers and workers in the trade or part of trade, whose views on all matters relating to the fixing of the minimum rate of wages should in any case be solicited and be given full and equal consideration. "(2) (a) To secure greater authority for the rates that may be fixed, it should be the general policy that the employers and workers concerned th1·ough repre sentatives equal in number or having equal voting strength, should jointly take a direct part in the deli berations and decisions of the wage-fixing body; in any case, where representation is accorded to one side, the other side should be represented on the same foot ing. The }Vage-fixing body should also include one or more independent persons whose votes can ensure (1) Report of the Committee on Fair \Vages, p. 27, para. s2. (2) Extracts from Conventions & Recommendations, 1919.49, published by International Labour Office (1949). 100 SUPRI~ME COUH.T l{EPORTS [1959) r958 effective decisions being reached in tho event of the votes of the employers' and workers' representatives Such independi>nt persons should, as far as possible, he selected in agreement with or ·after consultation with the employers' and Exprsss News- being equally divided. papers {Private) Ltd., 1..9" ,"lno er v. £ , The Union of India workers' representatives on the wage fixing body. &- Oihers Bhagwati ]. "(b) In order to ensure that the employers' and workers' representatives shall he persons having the confidence of those whose interests they respectively represent, the employers and workers concernerl.should be given a voice 3S far as is practicable in the circum stances in the selection of their representatives, ancl.if any organisations of the employers and workers exist these should in any case be invited to submit names of persons recommended by them for appointment on the wage-fixing body: (c) The independent person or persons mentioned in paragraph (a) should be selected from among men or women recognised as possessing the necessary qua lifications for their duties and as being dissociated from any interest in the trade or part of trade con to put their im cerned which might be calculated partiality in question. " ................................................................... The following appraisement of the system of esta blishing trader boards by the committee on fair wages may be noted in this context: " A trade board has the advantage of expert knowledge of the special problems of the trade for which it has been set up and is, therefore, in a position to evolve a scheme of wages suited to the conditions obtaining in the trade. The system, however, suffers from the limitation that there is no one authority to co-ordinate the !l>Ctivities of the various boards with the result that wide disparities may arise between the scales sanctioned for similar industries. A general board ensures due op-ordination but is far less com petent than a trade board to appreciate -the special problems of each trade. The Bombay Textile Labour Inquiry Committee have stated in their report that the trade board system is the best suited to Indian conditions, particularly because the very manner of f'.I '. R. RUPREME cornr REPORT~ IOI ,; functioning of trade boards is weh that wagps are arrived at lar0<relv by· rliscussion and conciliation and Express l•lews· that it is only in exeeptional cases that the deciding papers (Privat•) voles of the Chairman and of the independent mem- Ltd ... & Anothu hers have to ho given." (') It is clear therefore that a wage board relating to a l/u u;•i;;h of India r95B v. particular trade or industry constituted of eqnal num- her of representatfres of employers :tnd <'mployef;S, with an independent memb<'f or members one of whom is appointed a chairnrnn, is best rakulatC'd to arrive at the proper fixation of wages in that industry. ""_:_" IJhagwat.i J. Principles for guidance. Jf a wage board is thus appointed it is necessary that the prineiples for its guidance in wage fixation should also be laid down by the appointing authority. The following passage from" Minimum Wage-An In tt>rnational Snrvey-1.L.O. Geneva, 1939, summarises the position as it obtains in various f'ountries: " As will be clear from the analysis of legislation given eal'!iC'r in this monograph, the fundamental principle of the Australian syst<:'m, both in the Com mo1111·l'a!th an:d thr f.>tate sphere, is that of the living wage. Even in those case's 11·here the law con tains no rcfercne<:' to this prineiple its importanrc is in practice great ............ As a criterion of wage regu- lation the principle of the living wage is how<:'ver no more than a vague and general indication of the pur pose of the l<'gislation. lt leaves the broadest possible In diseretion in pru.ctice to the wage tixing tribunals. the ca8e of the Commonwealth laws indeed the Court is left c·omplctely free to determine the principles on which the basic or Jiying wage is to bt> assessed. Under certain of the State laws speciri<', though limited, directions are given. Thus in Q11Penslancl there is a statutory detinition of the family unit on whose rpquirements thC' basic wage is to.be calculated. In certain C'ascs the general emphasis on thr criterion of th<' workers' ne1.'Cls is supplemented by directions to tix w:ige rates that will be "fair and reasonable " an<l in doing so to take into account, the averag<' standard (1) Report of the Committee oa Fair \\'ag'cs, p. 17, para. 53. 102 SUPREME cornT HEPOHTN [l!J59 J ~ I9jS of COlllfort being Clljoye<l by workers in the SttllH' loca- lity or in similar oce111mtions. Such reforencos, it ma,y EA:f'rr.ss Ne11.1)· papers (Private) he noted, invoh-c at least an indirect allusion to gcne- Ltd.,"" A1101hn ral economic conditions and the capacity of industry to pay, since the standards currently enjoyed arc In at least one case (in Queensland) the Court is specifically directed to examine the probable effects of its d~cisions upon industry and the community in general." He Union of fodia closely related to these factol's. H/1agwati ] . ""Other.< v. - In the United States of America the Fair Labour Standards Act of 1938 enunciates certain principles for the guidance of the industry committees which are convened by the Administrator under the Act : "The committee shall recommend to the Admini strator the highest minimum wage rates for the industry which it determines, having due regard to economic and competitive conditions, will not substantially curtail employment in the industry" and further " in determining whether such elassifications should be made in any industry in making such classification, and in determining the minimum wage rates for such classification, no classification shall be made, an<l no minimum wage' rate shall be fixed, solely on a regional basis, hut the imlustry committee and the Admini ,,h'ator shall consider among ot.her relevant factors the following. (I) competitive conditions as affected by trans portation, living, and production cost; (2) tlH' wages t>Rtablished for work of like or romparable character hy collective labour agreements negotiated between employers and employees hy rc-presentatives of their own choosing; an<l (3) the wages paid for work of like or eomparable ,·oluntarily maintain character by employers who minimum wag<' standards in the industry. No rlasRification shall he made undc>r this section on the uasis of age or sex." The normal rule however i> to le1i,-e a wide discre tion to the tribunals responsible for the fixation of wages inasmuch as they being constituted of equa~ numbers of representatives of the employers and the S.C.R. SUPREME COURT REPORTS 103 Pmployces arc best calculated to appreciate the "·hole position and arrive at correct results. Procedure to be fallowed : The procedun> to be followed by the wage boards Express News· pap, ers (Private) Ltd., & Another l . . . .• d d h u• is equally fluid. The wage councils and the central Th co.on 111atmg conun1ttees appomk un er t e n ages Council Act, 1945, as also the agricultnral wages committees and the agricultural hmtrds appointed under the Agricultural Wages Regulation Act, 1924, in the United Kingdom eaeh of them subject, of course, to the regulations which might be made by the minister as to the meetings and procedure of these bodies including quorum, etc., is entitled to regulate its procedure in such manner as it thinks fit. , •. v. 1 e c 111011 o & Otlim I· d" 11 1a Hliagwati ]. The wage boards in Australia "are called together infonually by the chairman upon request of either p;irt)'. No IPgal formalities or procedures need be rnmplied with. Meetings of wage boards are held in the offkes of the Department of Labour an officer of the departmPnt acting as secretary."(') The wage boiirds thus constituted are left to regulate their procedure in such manner as they think fit and it is not necessary that any regulation should be ma.de in regard to the procedure to be adopted by them in the conduct of the enquiry beforp them. There art', however, a number of safeguards which luwe been provided in order to protect the interests of the parties concerned. The wages councils csta.blish Pd b\' the '.llinistcr of Labour and .N" a.tiona.l Services in the U nitcd Kingdom are so Pstablished after consider ing objections frorn persons appearing to be affected thereby and \rngP regulation orders a.re also recom mended by these councils a.ft.er considering the written reprnsentations in regard to their proposals which a.re duly published ·in the manner prescribed. These reeommenda.tions are age.in in their turn considered by the minister and it is only after the minister is satisfied that these wage regulation orders a.re promul gated, the minister having the power in proper cases to send the same back for reconsideration by the wage (1) Ke.nnt-th F. \Valker "Industrial Relations in Australia.", p. 24. 104 sernEME COCRT REPORTS [ lflii\i l r958 Express i\' ews- papers {Private) Ltd .. & Another v. <·01meil8. Wlwn tl1es<' prnposals are again suhmittl>d by the wage council the same procedure is followed as in t w c;isc o ori~ina lll'O)H>S<t s ma( e >.)' t icm. ] } } 1 J f ] u & - 01 """ JJhagwati J. The reports of the industry committees convened by the administrator in tl1c United Htates of America n, Union of I<>''" an• subject to scrntin.)> by the 11dministrntor who gi vcs notice to all interested persons and gives them an opportupity of being heard in rcg<trd to the same. It is only after this is d\Jne that he approves and carries into effect the rcconrnwndations in thes<• reports on his being fully satisfic>d that they are proper and if he disapproves of these recommendations he again refors the matter to such committees for further considera reoomnwrnlations. The orders of the tions and in the <tdministrator arc 11gain subject to Circuit Co mt of Appeal8 in the United Fltate8 am! further revision in the l'. N. Supreme l'ourt upon certiorari or certification. review As regards the determinations of the special li(mr<lR in some of the Ntatrs of the Commonw<'ltlth ofAu8tra lia appeals lie against tl:e sanw to the com'l of industrial appeals and they are al- > challengcablP before the High O'mrt. Such safoguards are also provided in our :\linimum Wages Act, 11J48. Herc the work of the committees, sub-committees anrl ad,·isor\' committees is co-ordinat- ed by a<lvisory boards and 'the work of the advisory I.wards is co-ordinated bv the central advison· board which arh·iscs the CLmtr~l Government in the· matter of the fixing oft he minimum rates of wages and other matte1·s under the Act and it is after the receipt of such advi~e from the CPntral ad\'isory hoarrl by the appro- priate Government that the latter takes action in the matter of fixation or rcvi8ion of minimum rates of wages. Where, however, the appropriate Government proposse to fix the minimum rates of wages without reference to the various committees, or sub-crnnmittPes, it publishes its proposals by notification in the Official <:azettc ft r thL· inform1Ltion of persons likely to be thereby and fixes the mi11imum rates of afft·f't<'fl wages only after considering the representations receivBd by it from the interested parties. I - S.C.R. SUPREME COURT REPORTS 105 The wage boards appointed by the amended Bombay Industrial Relations Act, 1946, are subject to the appellate jurisdiction as well as supervisory i"urisdic- Express News· papers (Private) tion of the industrial courts in the State and parti~ Ltd .• c;. Allother affected by their decisions are entitled to file appeal~ against the same in the industrial.courts. r958 v. The U>1io• of Ind;" c;. Others Rhagwati ]. d d h h f h If these safeguards are provided against the determi. nations of the wage boards, it will be really immaterial w at proce ure t ey a opt in the course o t e proceed. ings before them. They would normally be expected to adopt all procedure necessary to gather sufficient data and collect sufficient materials to enable them to come to a proper conclusion in regard to the matters submitted to them for their determination. If however at any time they flouted the regulations prescribed in regard to the procedure to be followed by them or in the absence of any such regulations ad.opted a proce- dure which was contrary to the principles of natural justice their decision would be vitiated and liable to be set aside by the appropriate authority. Character of the functions perf armed : There is considerable divergence of op1mon regard to the character of the functions performed by these wage boards and a controversy has arisen as to whether the functions performed by them are admini legislative in strative, judicial or quasi- judicial or character. The question assumes importance on two grounds : viz., (i) whether the decisions of the wage boards are open to judicial review and (ii) whether the principle of audi alteram partem applies to the proceed ings before the wage boards. If the functions performed by them were administrative or legislative in character they would not be subject to judicial review and not only would they not be amenable to the writs of certiorari or prohibition, under Arts. 32 and 226 of the Constitution, they would also not be amenable to the exercise of special leave jurisdiction under Art. 136. Their decisions moreover would not be vulnerable on the ground that the principle of audi alteram partem, i. e., no man shall be condemned unheard; was not followed in the course of the proceedings before them 11 1011 SUPREME COURT REPORTS [19.19] '958 iutd the procedure adopted by them was contrary to the principles of natural justice. :::;:;«;,;~~~~) . ~t is ~ell .settled that writs of ce~tiora.ri and proh! Ltd., .:;. A••'"" b1t10n will he only m respect of judicial or quas1- v. n. Union of India <> Others Bhagwati J. judicial acts : "the orders of certiorari and prohibition will lie to bodies and persons other than courts stricto sensu. Any body of persons having legal authority to deter- j mine questions affecting the rights of subjects, am having the duty to act judicially, is subject to thr eontrolling jurisdiction of the High Court of justicr, f'xercised by means of these orders." (1). The principle of aUlU alteram partem also applies only to judicial or quasi-judicial proceedings: As was observed by the Judicial Committee of the Privy Council in Patterson v. District Commissioner of Accra('}:- "On this part of the case, counsel suggested that the provisions of s. 9 were in the nature of a " mass punishment " of the inhabitants of the proclaimed district and he relied on the well-known passage from the judgment of the court in Banaker v. Evans (3 ), " no proposition can be more clearly established than that a man cannot incu~ the loss of liberty or property for an offence by a judicial proceeding until he has had a fair opportunity of answering the charge against him, unless indeed the legislature has expressly or impliedly given an authority to act, without that necessary pre liminary. This is laid down in [here a number of cases are mentioned] and many other cases, concluding with that of Capel v. Child (') in which Bayley B. says he knows of no case in whic:h you are to-have a judicial proceeding, by which a man is to be deprived of any part of his property, without his having an opportu nity of being heard." ......... Their Lordships have already indicated that, in their view, the section does not contemplate any judicial proceeding, and thus a decision against the appellant does not infringe the principles stated in Bonaker v. Evans." (') (r) Ha.bbury's Laws oi England, 3rd Edn., Vol. IJ, at p. 55, para. 114. (2) [I9i8J A.G. 3iI, 350. (3) ID Q.B. 102, 171. (·I) (1832) 2 C • .!: J. 558, S.C.R. SUPREME counT REPORTS 107 The diBtinetion between a legislative and a judicinl 1958 function is thns hronght ont in Cooley's Constitutionn,l Exp,,ess Newj· Limitations, 8th Edn., Vol. I, eh. V under the caption papers (Privati) of "thr powers which t.he legislative (lepartment may Ltd., & Anoth" exercise", at p. 185 :- v. "On general principle", therefore, thoi;e inquirie8, r;., Union •! Tndia & Othm Bliagwali J. delibemtions, orders, and decrees, which arc peculiar to such a department, must in th0ir nature be judicial <wts. Nor can they be both judicial and legislative ; becairne a marked difference exists between the employ. ment of judicial and legislative tribunals. The former decide upon the legality of claims and conduct, and the latter make rules upon which, in connection with the It is oonstitution, those decisions should be founded. the province of judges to determine what is the law upon In fine, the law is applied by one, and existing cases. made by the other. To do the first, therefore, is to compare, the claims of parties with the law of the land before established-is in its nature judicial act. But to do the last-to pass new rules for the regulation of new controversies-is in its nature a legislative act; and if these rules interfere with the past, or the present, and do not look wholly to the future, they violate the definition of a law as "a rule of civil conduct", because no rule of conduct can with consistency operate upon what occurred before the rule itself was promulgated. "It is the province of judicial power, also to decide private disputes between or concerning persons; but of legislative power to regulate public concerns, and to make laws for the benefit and welfare of the State. Nor does the passage of private statutes, when lawful, are .inacted on petition, or by the consent of all concerned; or else they forbear to interfere with past transactions and vested rights." The following classic passage from the opinion of Holmes, J., in Prentis v. Atlantic Coast Line Cu. Ltd., (1 ), is very apposite in this ~ontext: " A judicial inquiry investigates, declares, and enforces liabilities as they stand on present or past facts and under laws supposed already to exist. That is its purpose and end. Legislation, on the other hand (1) (1908) ir1 U.S. 210, 226-2'7; 53 L. Ed. 150, 158, 159. 108 SUPREME COURT REPORTS ll959] r958 looks to the future and changes existing conditions by . . making a 1ww rule, to be applied tlw1w1f[.cr to all or 1:x;:ress(PN·""',-) some part of those subi·ect to its lJOwer. The establish- ui1 crs 1 ud, ~-Another mcnt of a rate is the making of a rule for the future, and therefore, is an act legish1tive not judicial in riva e v. The Union oJ India kind,., ....... '' L:-.. Otheis Bhacwati ]. ..................................................................... That question depends not upon the character of the body, but upon the charncter of the proceedings . ..................................................................... The nature of the final act determines the nature of the previous enquiry." (f'ee also Mitchell Coal & Coke Co. v. Pennsylvania ) and Louisville & Nashville Railroad R, Co. Company v. Green Garrett (') ). (1 A pracyical difficulty however arises in thus charac terising the functions as legislative or judicial because the functions performed by administrative agencies do not fall within water-tight compartments. Stason and Cooper in their treatises on "'Cases and other materia]R on Administrative Tribunals" point out : "One of the great difficulties of properly elassify ing a particular function of an administrative agency is that frequently-and, indeed ; typically-a single It is partly legislative, function has three aspects, partly judicial and partly administl'ative. Consider, for example, the function of rate-making, It has some times been characterised as legislative, sometimes as In some aspects, actually, it involves merely judicial. executive or administrative powers. For example, where the Interstate Commerce Commission fixes a tariff of charges for any railroad, its function is viewed as legislative. But where the question for decision is whether a shipment of a mixture of coffee and chicory 8hould be charged the rate established for coffee or the lower rate established for chicory, the question is more nearly judicial. On the other hand, where the problem is mcroly the calculation of the total freight charges due for a particular shipment, the determination can fairly be described as an administrative act." (1) (1913) 230 U.S. 2~7; 57 L. Ed. 1172, 148•. (2) (1913) 131 U.S. •98 ; 58 L, Ed. 229, 239. s.c.n. SUPREME COURT H.~~POHTS 109 This difficulty is solved by the Court coHKirlering in a IJroper case whether thr' :vlministr:ttivc agency [lPL"- .Vews· [;.'}.·press ,_, juclicial or forms a prcrlominantly IPgislative or tapers (l'rivate) administrative function and determining its character Ltd., & A>1othcr (Vidc: Village of Saratoga Spring~ accordingly. v. Saratoga Gas, Electrfo Light,(, Po1.Nr Co.('), and The Union of Indi" People ex rel. Central Park, North ,(· East RfrPr R. Cn. v. Willcox ('). "'." 11,,,8 .. ah J. 1 958 v. 01 & The function of the wage board in the l'nitecl King <lom had been characterisPd as legiK!ativc in drnractPr by various text-book writcrn. Robson's ,Justice and Administratin• Law, 3rd Ecln., states at p. 608 (foot-note): · "An example of a subordinate body of this typ~ is a Wage Council, which is not an administrative tribunal but a subordi1mtc legislative authority." Griffith's Principles of Administratiw Law contains the following passage at p. 39 : "The subordinate legislation which occupit>s morr space than any other subject relates to \\!ages Councils. Ry the Wages Councils Act, 1945, the Minister of Labour and Nationa.! Service was empowered to establish by order Wages Councils to operate in indus tries and trades. Six such orders were made in 194 7. Wages Councils, under the Act, n1ay submit to the Minister detailed " wages regulations proposals" for fixing remuneration and making provisions for holidays. The Minister then makes orders embodying and giving effect to these proposals. In 194 7, fifty-five such orders were made, covering thirty-one different trades." Barbare Wootton in "Social Foundations of Wage Policy; Modern Methods of Wage Determination " makes the following observations at p. 88: "Both arbitration tribunals and courts of inquiry share with-one important difference-the tripartite structure of statutory wage councils ; they are compos ed of equal numbers of representatives of employers and of workers under an independent chairman toge ther with (in some cases) additional independent mem bers. The essential difference between their structure and that of statutory wage authorities is that the (1) (1908) 191 New York u3. (2) (1909) 194 New York 383. 110 Sl'PREME COURT REPORTS [l!J59] v. 1 ~5~ & Others sors who Express ;\1c.i.1.'i· pa per s { l' rival r} Ltd • .:;. .1"0111it represcutati V<' members of the l<ttter are chosen from within the industr,\.' concerned, whereas employers and workers on arbitration tribunal come from outside the industry whose disputes they have to resolve; if in any case technical knowledge of a particular industry is re- Tlte Union °! India quired, this is norma, ll.Y. supplied by the help of asses- take no part in the final award. This Ilhagwati f. difference between the co1rntit11tion of wage boards and that of arbitration tribunals clearly implies a corres ponding distinction between the lcgisltitive function of the former and the judicial function of the latter. Tlw wages board drafts laws for its own industry, whereas the arbitration court. gives judgment on matters sub mitted bv others. The choice of industrial arbitrators unconne~ted with the industries the merits of whose claims they must pledge, is evidently intended as a guarantee that they, like ot.hcr judges, will he free from bias arising from personal interest". The High Court of the Commonwealth of Australia has taken a similar view in A it8lralian Boot 'l'rade Em ployees Federation Y. Whybrow ,(, Go. (1), in discussing an award made by the 'rnges board empowered by a .State statnto to !ix minimnm mtes of wages. The test applied for determining the clmraot<:r of that function may be stated in the words of Issacs J. at p. 318: "If the di~putc is as to the rchitive rights of parties as they rest on past or present eircumstanccs, the award is in the 1mturo of a jndgment, which might ha YO been the decree of trn onli1mry judicial tribunal <'lcting under the onli11ary judicial power. There the If, how law applieahle to the ease must be observe<!. ever, the dispute is as to what shall in the future ho th" mntnal rights and responsibilities of the parties if no present rights arc asserted or in othe1· words, denied, lmt a fttturc rnle of cornl1wt is to he prescribed, thus crettting nc\\· rights <tnd obligations, with sanctions for non-confonnitv-tlwn 1.hc determination that so prescribes, ml! it ,;n award, or nrbitration, determina tion, or decision or wlrnt you will, i., csscnti<Lily of a. legislative clmnwte1-, and limited only by the law which there are neither pr<>sent authorises it. lf; again, (I) (1910) IO C. L. R. 266, 316. S.C.R. SUPREME COURT REPORTS 111 rights asserted, nor a. future rule of conduct prescribed, but merely a fact ascertained necessary for the practi- Express News the proceeding, papers (Private) ca.l effectuation of admitted rights, though ca.lled an arbitration, is rather in the nature of Ltd., & Another an appraisement or ministerial act." r95S v . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . , ....... , . , , .......... , .... , . The Union of India <.f>. Others Dhagwali ]. As against this trend of opinion it has been urged that the decisions of the Wage Councils in the shape of wage regulation proposals submitted to the minister in Great Britain under the vVage Councils Act derive their sanction from the orders made by the minister giving effect to these proposals; hut for such orders of the minister they would merely remain the determina tions of the Wage Councils aµd would not acquire any In regard to the determinations legislative character. of the wage boards empowered by the statutes to fix the minimum rates of wages in the Commonwealth of Australia also it is pointed out that under the provi sions of the Factories and Shops Act, 1905, of Victoria "Every determination of any Special Board shall unless and until so quashed ......... have the like force; validity and effect as if such determination had been enacted in this Act ............ " thus investing the deter- mination of the boards with the characteristics of a legislative act. Reference is made to the provisions of the Fair Labour Standards Act of 1938 in the United States of America, where the wages orders ultimately approved by the Administrator are subject to judicial review in the Circuit Courts of Appeals or in the United States courts of appeals of the particular District and also sub ject to further review by the Supreme Court of the United States of America on certification. The Minimum Wages Act, 1948, in our country also provides for the committees, sub-committees, advisory sub-committees, advisory boards and central advisory boards for fixing minimum rates of wages and the re commendations of these committees are forwarded to the appropriate Government who by notification in the official gazette fix minimum rates of wages in respect of each scheduled employment. The notification is a token of the approval by the appropriate Government 112 SUPREME COURT REPORTS [1959] i958 of these recommendations of the Committees and invests them with legal sanction. v. &- 0111,,... £%pre.ss .Vews- The recent amendment of the Bombay Industrial papers (Private) Ltd., o;. A•other Relations Act, 1946, empowers the State Government by notification in the official Gazette to constitute for Tile Union of India one 01· more industries a W<tgc board for the State and enjoins these wage boards to follow the same proced11rr as the Industrial Court in respect of arbitration pro- £ f. d cee ·ngs be ore 1t an rom t e ecisions of these wage boards lie to the Industrial Courts which has powers of superintendence and control over these wage boards and it cannot, under the circumstances, be urged that these wage boarrlR perform any Jc,gi~la­ tive functions. I appea s Bhag:miti ]. h d · These are the two opposite points of view which have been pressed before us and it is impossible to state that the functions performed by the wage boards It i,q no are necessarily of a legislative character. doubt true that their determinations bind not only thr employers ~ind the employees in the present, but they also opera.te when accepted by the appropriate govern ment or authorities and notified in accordance with law, to hind the future employers and employees in the industry. If that were the only consideration thr' diutum of Justice Holmes cited 1~bove would apply and the functions performed by these wage boards woul<l be invested with 11 legislative cluiracter. This is how. ever not all, and regard mnst be had to the provisions of the statutes con~tituting the wage boards. If on n scrutiny of the provi~ions in regard thereto one can eome to the conclusion that they are appointed only with '' view lo determine the rclat.ion~ bt'tween the em ployern and tlw employees in t,hc future in regard to t,he wages payable to the em ployecs there woul<! lw tha,t they were performing justification for holding If, however, on a consideration legish1tive fn1H:tions. of 1Lll the rclc\•1int provi, ions of the statutes bringing the wage bo1rnls into <'xist<'llCP, it :1ppears that the powers and proePdurc exercised by them are assimilat ed to those of Industrial Tribunals or their adjudica. tions are subject to judicial re\'iew at the hands of higher Tribunals exercising judicial or quasi-judicial S.C.R. SUPREME COURT REPORTS 113 · h ey exercise t ese unctions or not IS t us to e eter- functions, it cannot be predicated that these ·wage boards are exercising legislative functions. Whether . E p . •W•· papers (Private) mined by the relevant provisions of the statutes Ltd., & Another incorporating them and it would be impossible to lay down any universal rule which would help in the The llnion °! India determination of this question. ' h b d x ress r958 v. · f N & Others llha~~-;;111 Even if on the construction of the relevant provi- sions of the statute we come to the conclusion that the functions performed by a particular wage board are not of a legislative character, the question still remains whether the functions exercised by them are admini- strative in character or judicial or quasi-judicial in character, because only in the latter event would their decision be amenable to the .writ jurisdiction or to the special leave jurisdiction above referred to. There is no doubt that these wage boards are not exercising purely judicial functions. They are not courts in the strict sense of the term and the functions which they perform may at best be quasi-judicial in character. The fact that they are administrative agencies set up for the purpose of fixation of wages do not necessarily invest their functions with an admini strative character and in spite of their being admini strative bodies they can nevertheless be exercising ·quasi-judicial functions if certain conditions are ful filled. The position in law has been thus summarised in Halsbury's Laws of England, 3rd Ed., Vol. 11, at pp. 55-56 :- " The orders of certiorari and prohibition will lie to bodies and persons other than courts stricto sensu. Any body of persons having legal authority to deter mine questions affecting the rights of subjects, and having the duty to act judicially, is subject to the controlling jurisdiction of the High Court of Justice, exercised by means of these orders. It is not necessary that it should be a court; an administrative body in ascertaining facts or law may be under a duty to act judicially notwithstanding that its proceedings have none of the formalities of, and are not in accordance '5 114 SUPREME COURT B,EPORTS [1959] . v. with the practice of, a court of law. It is enough if it is E~pms News- exercising, after hearing evidence, judicial functions in papers (Private) the sense that it has to decide on evidence between a Ltd., c£. Another proposal and an opposition. A body may be under a . duty, however, to act judicially (and subject to control The u;·~;h01 Indrn by means of these orders) although there is no form of lis inter partes before it; it is enough that it should BhogwaJi .J. have to determine a question solely on the facts of the particular case, solely on the evidence before it, apart from questions of policy or any other extraneous considerations." 'rs "Moreover an administrative body, whose dcl"ision is actuated in whole or in part by questions of policy, may be under a duty to act judicially in the course of arriving at that decision. Thus, if in order to arrive at the decision, the body concerned had to consider proposals and objections and consider evidence, if at some stage of the proceedings leading up to the decision there was something in the nature of a lis before it, then in the course of such consideration and at that stage the body would be under a duty to act judicially. If, on the other hand, an administrative body in arriv ing at its decision has before it at no stage any form of lis and throughout has to consider the question from the point of view of policy and expediency, it cannot be said that it is under a duty at any time to act judicially." (See also the decision of this Court in N agendra Nath Bora v. Cammissioner of Hills Division and Appeals, Assam (1). In order therefore to determine whether an admini strative body is exercising a quasi-judicial function, it would be necessary to examine in the first instance, whether it has to decide on evidence between a proposal and an opposition and secondly, whether it is under a duty to act judicially in the matter of arriving at its decision. "The duty to act judicially may arise in widely differing circumstances which it would be impossible to attempt to define exhaustin1ly. The question whether or not there is a duty to act judicially must be devidcd (1) [1958) S.C.R. 1240, S.C.R. SUPREME COURT REPORTS 115 in each case in the light of the circumstances of the particular case and the construction of the particular statute, with the assistance o the general principles papers (Privatd already set out." Ltd .. & Anothe> v. The decision in R. v. Manchester Legal Aid Committee (Ibid, para. 115). E~press N 1·111,, r95S f Ex parte R. A. Brand & Co. Ltd. (1), lays down when The Union of lnd;a an administrative body can be said to have a duty to act judicially: & Others Bhagwati ]. "The true view, as it seems to us, is that the duty to act judicially may arise in widely different circum stances which it would be impossible, and, indeed, inadvisable, to attempt to define exhaustively. Where the decision is that of a court, then, unless, as in the case, for instance, of justices granting excise licences, it is acting in a purely ministerial capacity, it is clearly under a duty to act judicially. When, on the other hand, the decision is that of an administrative body and is actuated in whole or in part by questions of policy, the duty to act judicially may arise in the course of arriving at that decision. Thus, if, in order to arrive at the decision, the body concerned had to consider proposals, and objections and consider evidence, then there is the dut.,y to act judicially in the course of that inquiry. That, as it seems to us, is the true basis of the decision in Errington v. Minister of Health(')- ................................ " (Sec also Rex v. The London Country Council: /Cx parte Entertainments Protection Association Ld. (') ...... "Further, an administrative body in ascertaining facts or law may be under a duty to act judicially not withstanding that its proceedings have none of the formalities of and are not in accordance with the practice of a court of law," V'ide Board of Education v. Rice('): ......................................................................... " More recently it has been held by this Court on many occasions that certiorari will lie to quash the decision of rent control tribunals, and this notwith <•l [1952] 2 Q.B. 413. 428. 429. 430. (2) [1935] I K.B. 249. (3) [1931] 2 K.B. 215, 233-1. (4) f1911] A.C. 179, 18z. 116 SUPREME COURT REPORTS [19.59] 1958 st.anding that such a tribunal is entitled to act on its own knowledge and information, without evidence E«pms Niws· unless submitted, and without a hearing except on pape'fS (Privaft) u<1 .. '"' Anotil" notice from a party; see Rex v. Brighton and Area v. 1'11t u,.ion •!India & Otliers J.'/;agwali ]. Rent Tribunal('). " If, on the other hand, an administrative body in arriving at its decision at no stage has before it any form of lis and throughout has to consider the question from the point of view of policy and expediency, it cannot be said that it is under a duty at any stage to act judicially: Compare Franklin v. Minister of Town rind Country Pl,anning." ('). It is strenuously urged before us by learned counsel for the petitioners that if the £unctions which the wage boards perform in the matter of fixation of the rates of wages are considered in the light of the principles cited above, it would appear that as between the em ployers, on the one hand, and the employees, on the other, there is a proposition and opposition.' The Pmployees demand that a particular statutory minimum wage should be fixed and the scales of wages should also be determined in a particular manner. The em ployers on their part would maintain that the status quo should continue i>r that, in any event, much less than the statutory minimum wage demanded by the employees should be fixed and also that the scales of wages should be fixed on a gradation which is much less than or in any event, different from that suggested by the employees. The employees may say that l't'rtain factors which are material in the fixation of wagcti and which affect the employees shtmld be l'onsidc·rcd as determinative of the rates of wages while the importance of these factors may be sought to be minimized by the employers who might put forward <'f.'rtain other factors affecting them, in their turn, as determinative of those rates, t.he importance of which niay be sought to be minimized by the employees on the other hand. All these would create proposition and opposition on both sides with the result that a lis would arise between them. The determination of these (1) [1950] 2 K.B. 410. (2) (1948] A.C. 87, 102. S.C.R. SUPREME COURT REPORTS 117 v. r95B points at issue would have to be arrivad at by the wage boards and the wage boards- could only do so Express News· after collecting proper data and materials and hearing papers (Privat•) evidence in that behalf. If the functions performed by Ltd .• & Another the wage board would thus consist of the determina- tion of the issues as between a proposition and an The Union of India opposition on data and materials gathered by the board in answers to the questionnaire issued to all parties interested and the evidence led before it, there is no doubt that tlwre would be imported in the proceedings of the wage board a duty to act judicially and the functions performed by the wage board would be quasi- judicial in character. It has been on the other hand urged before us by the learned counsel for the respon- dents that the very constitution of the wage boards is against the fundamental principle of jurisprudence which postulates that no man should be a judge in his own cause. It was laid down hy the House of Lords in Franklin v. Minister of Town and Country Pl.anning (')at p. 103: "'Others -Bhagwati J. "My Lords, I could wish that the use of the word " bias" should be confined to its proper sphere. Its proper significance, in my opinion, is to denote a departure from the standard of even-handed justice which the law requires from those who occupy judicial office, or those who are commonly regarded as holding a quasi-judicial office, such as an a.rbitrator. The rC'ason for this clearly is, that having to adjudicate as between two or more parties, he must come to his adjudication with an independent mind, without any inclination or bias towards one side or other in the dispute." The representatives of the employers and the repre sentatives of the employees who are appointed on the wage board along with an independent chairman and some other members, it is submitted, would necessarily have a bias in favour of those whom they represent and therefore would not be competent to be judges and the wage board thus constituted could hardly be called a judicial body. There is considerable force in these contentions, but (I) [1948] A.C. 87, •••. 118 SUPREME COURT REPORTS [1959] v. x958 & Others maewati J. we do not feel called upon to express our final opinion on this question in view of the conclusion which we Express .Vews· papers (Private) have hereafter reached in regard to the ultra vires Ltd., & Another character of the decision of the Wage Board itself. \Ve are however bound to observe that whatever be the The Unio11 of India character of the functions performed by the wage boards whether they be legislative or quasi-judicial, if proper safeguards are adopted of the nature discussed earlier, e. g., provision for judioial review or the adopt ing of the procedure as in the case of the recommenda tions of the wage councils in the United Kingdom, or the reports of the advisory committees which come to be considered by the administrator under the .Fair Labour Standards Act of 1938 in the United States of America, no objection could ever be urged against the determiQations of the wage boards thus arrived at on the score of the principles of natural justice having been violated. We now proceed to consider how far the impugned Act violates the fundamental rights of the petitioners. Re: Article 19 (l)(a). Art. 19 (l) (a) guarantees to all citizens the right to freedom of speech and expression. It has, however, got to be read along with Art. 19 (2) which lays down certain constitutionally permissible limitations on the exercise of that right. Art. 19 (2) as substituted by the Constitution (.First Amendment) Act, 1951, with retrospective effect reads as 11nder : "Nothing in sub-clause (a) of clause (1) shall affect the operation of any existing law, or pre'vent the State from m~king any law, fo so far as such law imposes reasonable restrictions on the exercise of the right con- . ferred by the said sub-clause in the interests of the security of the State, friendly relations with foreign States, public order, decency or morality, or in relation to contempt of court, defamation or incitement to an offence." If any limitation on the exercise of the fundamental right under Art. 19 (1) (a) does not fall within the four corners of Art. 19 (2) it cannot be upheld. l<'reedom of speech and expression includes within its scope the freedom of the press a.nd it would be S.C.R. SUPREME COURT REPORTS . UO apposite here to refer to the following passages from " ·Freedom of the Press-A Framework of Principles" J::xpress News- (Report of the Commission on Freedom of Press in the pipers (Private) United States of America). Ltd .. &- Another i95B v. The (.'nion of India 16 011 ers Bhagwati J. The General Meaning of Freedom: • , To be free 1s to have the use of one s powers of action (i) without restraint or control from outside and (ii) with whatever means or equipment the action requires. " The primary suggestion of the term " freedom " is the negatfre one, the absence of external interference w hethC'r to suppress or to constrain. To be free is essentially to be free f rorn something-some arbitrary impediment to action, some dominating power or authority. And so long as it can be taken for granted that the unhindered person has all he needs to act with which is usually the case the negative mC'aning remains the chief element of the conception. "But since freedom is for action, and action is for an end, the positive kernel of freedom lies in the ability to achieve the end; to be free means to be free for some accomplishment. And this impli<'s command of the means to achieve the encl. Unless the equipnwnt neeessary for effective action is at hand, unrestraint may be a mockery offrecdom .................. Unrestraint without equipment is not liberty for imy end which demands equipment." ········································································ (pp. 54-55). Resulting Conception of Freedom of the Press: " The emerging conception of freedom of the press may be summarised as follows : As with all freedoms, press freedom means freedom from and freedom for. A free press is free from compulsions from whatever source, governmental or social, external or internal. From compulsions, not from prc>ssures; for no press can be free from pressures except in a moribund society empty of contending forces and beliefs. These pressures, however, if they are persistent and distorting-as financial, clerical, popular, institutional pressures may become-approach compulsion; and something is then lost from effective 120 SUPREME COURT REPORTS [1959] 1958 v. & Oth"'" freedom which the press and its public must unite to restore. existing techniques make possible. Express ,\' &1• s~ "A free press is free for tho expression of opinion papers (l'rivale) Ltd., c< 4nother in all its phases. It is free for the achievement of those goals of press service on which its own ideals and the The Union °! India requirements of the communitv combine and which ]'or these ends it Bhagwati 1. must have full command of technical resources, finan cial strength, reasonable ac·ress to sources of infor mation at home and abrcad, and the necessary facilities for bringing information to the national market. The press must grow the measure of this market." (p. 228) . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . There is paucity of authority in India on the nature, scope and extent of this fundamental right to freedom of speech and expression enshrined in Art. 19 (1) (a) of the Constitution. The first case which came up for r!ecision before this court was that of Ramesh Thaper v. The State of Madras('). It was a case of a ban on the entry and circulation of the appellant's journal in the State of Marlras under the provisions of section 9 (1-A) of the Madras Maintenance of Public Order Act, 1949, and it was observed by Patanjali Sastri J. (as he then was) at p. 597 : " There can be no doubt that freedom of speech and expression includes freedom of propagation of ideas, and that freedom is ensured by the freedom of circulation. "Liberty of circulation is as essential to that freedom as the liberty of publication. Indeed, without circulation the publication would be of little value.": Ex parte Jackson('). See also Lovell v. City of Griffin (3 ). Brij Bhushan & Anr. v. The State of Delhi(') was the next case which came up for decision before this Court and it concerned the constitutionality of section 7 (i) (c) of the East Punjab Public Safety Act, 1949. It was a provision for the imposition of pre-censorship on a journal. Patanjali Sastri J. (as he then was) (1) [19~0] S.C.R. 5% 597. (2) (1877) 96 U.S. 727; "IL. Ed. 877. (3) (1937) J03 U.S. 444; 82 L. Ed. 949. (4) [1950] S.C.R. 6o5, 6o8. S.C.R. SUPREME COURT REPORTS 121 who delivered the majority p. 608 :- judgment observed at 1958 "There can be little doubt that the imposition of Expms N•w ... papers (Prival•) precensorship on a journal is a restriction on the liberty Ltd .. .s. An-0ther of the press which is an essential part of the right to freedom of speech and expression declared by Art. Th• Union of In4i• 19 (1) (a). As pointed out by Blackstone in his Com- mentaries "the liberty of the Press consists in laying no previous restraint upon publications, and not in freedom from censure for criminal matter when published. Every freeman has an undoubted right to lay what sentiments he pleases before the public; to forbid this, is to destroy t.hA freedom of the press. (Blackstone's Commentaries, Vol. IV, pp. 151, 152)." Bh•tw•li /. .s.01/ons v. These are the only two decisions of this Court which involve the interpretation of Art. 19 (1) (a) and they only lay down that the freedom of speech and expres sion includes freedom of propagation of ideas which freedom is ensured by the freedom of circulation and that the liberty of the press is an essential pa.rt of the right to freedom of speech and expression and that liberty of the press consists in allowing no previous restraint upon publication. There is however, a considerable body of authority to be found in the decisions of the Supreme Court of the United States of America bearing on this concept of the freedom of speech and expression. Amendment I of that Constitution lays down : "Congress shall make no law .................. a.bridg- ing the freedom of speech or of the press .................. " It is trite to observe that the fundamental right to the freedom of speech and expression enshrined in Art. 19(l)(a) of our Constitution is based on these provisions in Amendment I of the Constitution of the United States of America and it would be therefore legitimate and proper to refer to those decisions of the Supreme Court of the United States of America in order to appreciate the true nature, scope and extent of this right in spite of the warning administered by this Court against the use of American and other cases, (Vide State of Travancore-Oochin & Ors. v. Bombay Go. 16 122 SUPREME COURT REPORTS [1959] 1958 Ltd. (1) and State of Bombay v. R.M.D. Chamarbaug- wa/,a ('). Grosiean v. American Press Co. (3 ), was a case where E>prm N'"'·'" papers (Private) Ltd., & Another a statute imposed a license tax on the business of it was observed publishing advertisements and v. J The Union of Indi• at p. 668: & Others "The evils to be prevented were not the censorship of the press merely, but any action of the Government Bhagwati f. by means of which it might prevent such free and general discussion of public matters as seems absolutely essential to prepare the people for an intelligent exer cise of their rights as citizens." (Vide Cooley's Constitu tional Limitations, 8th Edn., Vol. 11, p. 886). The statute was there struck down as unconstitu tional because in the light of its history and of its present setting it was seen to be a deliberate and calculated device in the guise of a· tax to limit the circulation of information to which the public was entitled in virtue of the constitutional .. guarantees. The following passage from the dissenting opinion in The Associated Press v. The National Labour Rela tions Board (') is also instructive: " If the freedom of the press does not include the right to adopt and pursue a policy Without govern mental restriction, it is a misnomer to call it freedom. And we may as well deny at once the right to the press freely to adopt a policy and pursue it, as to concede that right and deny the liberty to exercise an uncensored judgment in respect of the employment and discharge of the agents through whom the policy is to be effectuated." It was also observed there at p. 965: " Due regard for the constitutional guarantee requires that the publisher or agency of the publisher of news shall be free from restraint in respect of em ployment in the editorial force." Schneider v. I rvi11{/tor (') was concerned with the effect of the Municipal R~gulations against littering of (1) [195•] S.C.R. 1112, 1120. (3) (1935) 297 U.S. 233, 249; !o L. Ed, 660, 668. (t,) (1936) 301 U.S. 103, 136; 81 L. Ed. 953, 963. (5) (1939) 3o8 U.S. 147; 84 L. Ed. 155, 164. (2) [1957] S.C.R.0 874, 918. S.C.R. SUPREME COURT REPORTS 123 " h d r95B Th. 1s court . d h t e as c aracterize streets. In the course of its decision the Court made the following observations at p. 164: h E .. •press News· f ree om o P•P•" (Private) speech and that of the press as fundamental personal Ltd., & Another rights and liberties. The phrase is not an empty one and was not lightly used. framers of the Constitution that exercise of the rights lies at the foundation of free government by free press. It stresses, as do many opinions of this court, the importance of preventing the restriction of enjoyment of these liberties." It reflects the belief of the The Union of India Bhagwati ]. & Others f v. Non-interference by the State with this right was emphasized in Thomas v. Collins (1) at p. 448 :- "But it cannot be the duty, because it is not the right, of the State to protect the public against false doctrine. The very purpose of the First Amendment to foreclose public authority from assuming a guardianship of the public mind through regulating the press, speech, and religion. In this field every person must be his own watchman for truth, because the forefathers did not trust any Government to sepa rate the true from the false for us" ......... In 93 L. Ed. at p. 1151 is given a summary of the decisions of the Supreme Court of the United States of America on this subject under the heading " The Supreme Court and the right of Free Speech and Press" and it contains at p. 115~ the following passage under the caption " Right in General : Freedom from Censorship and Punishment" : " The freedom of speech and of press are funda mental personal rights & liberties, the exercise of which lies at the foundation of free Government by free men ............ The very purpose of the first Amendment is to foreclose public authority from assuming a guardianship of the public mind through regulating the press, speech, and religion; it rests on the assumption that the widest possible dissemination of information from diverse and antagonistic sources is essential to the welfare of the public." The dissenting opinion of Douglas J. in Beauharnai~ v. Illinois(') contains the following at p. 943: (t) (1944) 3•3 U.S. 516, 545; 89 L. Ed. 430, H8· (•) (1951) 343 U.S. 250, i85; 96 L. Ed. 919, 943· 124 SUPREME COURT REPORTS [1959) v. r958 &- Others " There is room for regulation of the ways and means of invading privacy. No such leeway is granted the invasion of the right of free speech guaranteed by E•P"'' News- jJapers (P¥ivate) Lid., & Another the First Amendment. C ntil recent years that had been the course and direction of constitutional law. The Union of India Yet recently the Court in this and other cases has engrafted the right of regulation onto the First Amend- Bhagwatl J. ment by placing in the hands of the legislative branch the right to regulate " within reasonable limits" the right of free speech. This to me is an ominous and alarming trend. The free trade in ideas which the framers of the Constitution visualised disappears. In its place there is substituted a new orthodoxy-an orthodoxy that changes with the whims of the age or the day, an orthodoxy which the majority by solemn judgment proclaims to be essential to the safety,. welfare, security, morality, or health of Society. Free speech in the constitutional sense disappears. Limits are drawn-limits dictated by expediency, political opinion, prejudices or some other desideratum of legis lative action." It is clear from the above that in the United States of America: (a) the freedom of speech comprehends the freedom of press and the freedom of speech and press are fundamental personal rights of the citizens; (b) the freedom of the press rests on the assump tion that the wide.st possible dissemination of informa tion from di verse and antagonistic sources is essential to the welfare of the public ; (c) Such freedom is the foundation of free Govern· ment of a free people ; (d) the purpose of such a guarantee is to prevent public authorities from assuming the guardianship of the public mind and (e} freedom of press involves freedom of employ ment or non-employment of the necessary means of exercising this right or in other words, freedom from restriction in respect of employment in the editorial force. This is the concept of the freedom of speech and expression as it obtains in the United States of America S.C.R. SUPREME COURT REPORTS 125 and the necessary corollary thereof is that no measure can be enacted which would have the effect of impos- ing a . pre-censor~hip, curtailing the circulation or ::::::~P~::;;) restrictmg the chowe of employment or unemployment Ltd., .s. Anoth" in the editorial force. Such a measure would certainly tend to infringe the freedom of speech and expression The Union of India and would therefore be liable to be struck down as unconstitutional. & Others '958 v. Bhapdli l· The press is however, not immune from the ordinary forms of taxation for support of the Government nor from the application of the general laws relating to industrial relations. It was observed in Grosjean v. American Press Co.('): · "It is not intended by anything we have said to suggest that the owners of newspapers are immune from any of the ordinary forms of taxation for support of the Government ; But this is not a,n ordinary form of tax but one single in kind with a long history of hostile misuse against the freedom of the press. "The predominant purpose of the grant of immu nity here invoked was to preserve a,n untrammelled press as a vocal source of public information. The newspapers, magazines and othei; journals of the country, it is safe to say, have shed and continue to shed, more light Oii. the public and business affairs of the nation than any other instrumentality of publicity; .and since· informed public opinion is the most patent of all restraints upon mis-government, the suppression or. abridgment of the publicity afforded by a free press cannot be regarded otherwise than with gave concern. The tax here involved is bad not because it takes money from the pockets of the appellees. If that were all, a wholly different question would be presented. It is bad : Because, in the light of it~ history a.nd of its present setting, it is seen to be a deliberate and cal culated device in the guise of a tax to limit the circula tion of information to which the public is entitled in virtue of the constitutional guarantees. A free press stands as one of the great interpreters between the Government and the people. To allow it to be fettered is to f*er ourselves." (1) (f935) 297 U.S. 233, 249; 8o L. Ed. 66o, 668. 126 SUPREME COURT REPORTS [1959] v. r9ss Board (1 In The Associated Press v. National Lahour Relations ), it was held that the freedom of the press d Express ~Vews- papm (l?rivate) safeguarded by the First Amen ment was not abridged ltd., & Another by the application in the case of an editor employed by the Associated Press to determine the news value of n, Union of Indi" the items received and 'to rewrite them for transmission to members of the association throughout the United States who must function without bias and prei'udice, of the provisions of the National Labour Relations Act which inhibited an employer from discharging an em It was further ployee because of union activities. observed at p. 960 : Bl1aewali } . & Others "So it is said that any regulation protective of union activities, or the right collectively to bargain on the part of such employees, is necessarily an invalid invasion of the freedom of the press. We think that the contention not only has no relevance to the circum stances of the instant case but is an unsound genera.li zation." Murdockv. Pennsylvania (2 ), was a case of a license fee for the sale of religious books and Mr. Justice Frank furter in his dissenting opinion at p. 1311 observed: "A tax upon newspaper publishing is not invalid simply because it falls upon the exercise of a constitu tional right. Such a tax might be invalid if it invidi ously singled out newspaper publishing for bearing the burden of taxation or imposed upon them in such ways as to encroach on the essential scope of a free press. If the Court could justifiably hold that the tax measures in these cases were vulnerable on that ground, I would unreservedly agree. But the Court has not done so, and indeed could not. " In Oklahoma Press Publishing Co. v. Walling ('), and in Mabee v. White PJ,anis Publishing Co. (')the Federal Fair Labour Standards Act was held applicable to the press and it was observed in the former case at p. 621 : " Here there was no singling out of the press for treatment different from that accorded other business in general. Rather the Act's purpose was to place (1) (1936) 301 U.S. 103, 136; 81 L. Ed. 953, 963. (2) (1942) 319 U.S. 105, 136; 87 L. Ed. 1292, 1311, (3) (1945) 327 U.S. 186, 194; go L. Ed. 614, 621. (4) (1945) 327 U.S. 178; 90 L. Ed. 607. S.C.R. SUPREME COURT REPORTS 127 r958 publishers of newspapers upon the same plane with other businesses and the exemption for small news- papers had the same object. Nothing in the Grosjean Express News case (1), forbids Congress to exempt some publishers P•Pm (Private) C.t,l., ~Another because of size from either a tax or a regulation which v. would be valid if applied to all." The Union of Tndia a; Othm The Constitution of the United States of America-. Analysis and Interpretation-Prepared by the Legisla- tive Reference Service, Library of Congress, summarises the position thus at p. 792 : Bhagwati f. " The Supreme Court, citing the fact that the American Revolution " really began when .............. . that Government (of England) sent stamps for news paper duties to the American colonies " has been alert to the possible uses of t&xation as a method of sup pressing objectionable publioations. Persons engaged in the dissemination of ideas are, to be sure, subject to ordinary forms of taxation in like manner as other persons. With respect to license or privilege taxes, however, they stand on a different footing. Their pri vilege is granted by the Constitution and cannot be withheld by either State or Federal Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . ... . . . . . . . . . . . . . . . . . "The application to newspapers of the Anti-Trust Laws, the National Labour Relations Act, or the Fair Labour Standards Act, does not abridge the freedom of the press." The Laws regulating payment of wages have simi larly been held as not abridging. the freedom of speech and expression and the following observations in the ea.me publication (at p. 988) in regard to the Minimum Wage Laws are apposite: "MINIMUM w AGE LAWS : The theory that a law prescribing minimum wages for women and children violates due process by impairing freedom of contract was finally di&0arded in 1937 (West Coast Hotel Co. v. Parrish, 300 U.S. 379). The current theory of the Court, particularly when labor is the beneficiary •Jf legislation, was recently stated by Justice Douglas for a majority of the Court, in the following terms: "Our recent decisions make plain that we do not sit as a super-legislature to weigh the wisdom of legislation nor (r) (1935) 197 U.S. 133, 249; 89 L. Ed. 66o, 668. 128 SUPREME COURT REPORTS [1959] v. 1 z958 to decide whether the policy which it expresses offends the public welfare ............ But the state legislatures Expr1ss News· h ave ~onstitutiona authority to experiment wit new papm (Private) Lid.,"' Another techniques; they are entitled to their own stan~ard of the public welfare ; they may within extremely broad The Union of India limits control practices in the business-labor field, so long as specific constitutional prohibitions are not vio- lated and so long as conflicts with valid and controlling federal laws are avoided (Day-Brite Lighting, Inc. v. Missouri, 342 U. S. 421, 423 (1952) )." "' Othm . Bhagwo1i 1 h While therefore no such immunity from the general laws can be claimed by the press it would certainly not be legitimate to subject the press to laws which take away or abridge the freedom of speech and ex pression or which would curtail circulation and there by narrow the scope of dissemination of information, or fetter its freedom to choose its means of exercising the right or would undermine its independence by driving it to seek Government aid. Laws which single out the press for laying upon it excessive and prohibi tive burdens which would restrict the circulation, the instru impose a penalty on its right to choose ments for its exercise or to seek an alternative media, prevent newspapers from being started and ultimately drive the press to seek Government aid in order to survive, would therefore be struck down as unconsti- tutional. - Such laws would not be saved by Art. 19(2) of the Constitution. This Court had occasion to consider the scope of Art. 19(2) in'Brij Bhushan & Anr. v. The State of Delhi (1), where Faz! Ali J. in his dissenting judgment observed at p. 619: "It must be recognized that freedom of speech and expression is one of the most valuable rights gua ranteed to a citizen by the Constitution and should be jealously guarded by the Court. It must also be recognised that free political discussion is essential for the proper functioning of a democratic government, and the tendency of the modern jurists is to deprecate censorship though they all agree that "liberty of the press " is not to be confused with its " licentiousness ". (1) (1950) S.C.R. 605, 608. S.C.R. SUPREME COURT REPORTS 129 But the Constitution itself has prescribed certain limits and this Court is only called upon to dee whether a pa icu ar case comes wit in t ose limits. rt. 1 E~pr8ss News· P•Pm (Priv•t•) Unless, therefore, a law enacted by the Legislature Lid.. ,s. Another ~38 · h ,, h · comes squarely within the provisions of Art. 19 (2) it would not be saved and would be struck down as TM u,.;01' of India unconstitutional on the score of its violating the funda- mental right of the petitioners under Art. 19 (1) (a). v. ,s. <HNrs . B/ulglfl"ti 1 In the present case it is obvious that the only justification for the enactment of the impugned Act is that it imposes reasonable restrictions in the interests of a section of the general public, viz., t.he working journalists and other ·persons (lmployed in the news paper establishments. It does not fall within any of the categories specified in Art. 19 (2), viz., " 'In the interests of the security of the State. friendly relations with foreign States, public order, decency or morality, or in relation to contempt of court, defamation or incit.ement to an offence." Article 19 (2) being thus out of the question the only point that falls to be determined by us is whether the provisions of the impugned Act in any way take away or abridge the petitioners' fundamental right of free· dom of speech and expression. It was contended before us by the learned A~torney­ Genera.l that it was only legislation directly deoling with the right mentioned in Art. 19 (1) (a) that was protected by it. If the legislation was not a direct legislation on the subject, Art. 19 (1) {a) would have no application, the test being not the effect or result of legislation but its subject-matter. In support of his contention he relied upon the following observe.· tions of Kania C. J. in A. K. GoprMn. v. The ~e of Madras( 1 ). " As the preventive detention order results in th11 detention of the applicant in a cell it was contended on his behalf that the rights specified in arlicle 19 (1), {a), (b), {c), (d), {e) and (g) have been infringed. It was argued that because of his detention he cannot havti a free right to speech as and where ha desired and tat <•> [1950) s.c.R. ss, """ '7' 130 SUPREME COURT REPORTS [1959] zg,a v. h lthoug .s. °'111" Bhagwai; 1 same argument was urged in respect of the rest of the rights mentioned in sub-clauses (b), (c), (d), (e) and (g). ENpt6ss News- A this argument is advanced in p, case which papm (Private) Lid., .s. A.11o1her dealS with preventive detention, if correct, it should be applicable in the case of punitive detention also to any TA• Union of India one sentenced to a term of imprisonment under the relevant section of the Indian Penal Code. So consider- . ed, the argument must clearly be rejected. In spite of the saving clauses (2) to (5), permitting abridgement of the rights connected with each of them, punitive detention under several sections of the Penal Code, e. g., .for theft, cheating, forgery and even ordinary assault, will be illegal. Unless such conclusion neces sarily follows from the article, it is obvious that such construction should be avoided. In my opinion, such result is cilearly not the outcome of the Constitution. The article has to be read without any pre-conceived notions. So read, it clearly means that the legislation to be examined must be directly in respect of one of If there is a the rights mentioned in the sub-clauses. legislation directly attempting to control a citizen's freedom of speech or expression, or his right to assemble peaceably and without arms, etc., the question whether that legislation is saved by the relevant saving clause of article 19 will arise. If, however, the legislation is not directly in respect of any of these subjects, but as a result of the operation of other legislation, for instance, for punitive or preventfve detention, his right under any of these sub-clauses is abridged, the question of the application of article 19 dpes not arise. The true approach is only to consider the directness of the legislation and not what will be the result of the detention otherwise valid, on the mode of the detenu's life. On that short ground., in my opinion, this argu ment about the infringement of the rights mentioned in article 19 (1) generally must fail. Any other con struction put on the article, it seems to me, will be unreasonable." This opinion was expressed by Kania. C. J. alone, the Bench not the other learned judges forming expressing themselves on this question. This passage was, however, cited, with approval by a Bench of this S.C.R. SUPREME COURT REPORTS 131 l v. 19$8 11 b treated these constitutional n, Union of In4ill Court in Ram Singh & Ors. v. The State of Delhi (1 ). It was held by the Full Court in that case that though Expr1ss N IWS• l h i erty is su cient y compre ensive to inc ude P•Jms (Priua.I•) persona the freedoms enumerated in Art. 19 (1) and its depriva- ua .. .s. Anollln tion would result in the extinctiQn of these freedoms, the Constitution has liberties as distinct fundamental rights and made separate provisions in Arts. 19, 21 and 22 as to the Bh•lfll"li J. limitations and conditions subject to which alone they could be taken away or abridged. Consequently, even though a law which restricts the freedom of speech and expression is not directed solely against the undermining of security of the State or its overthrow but is concerned generally in the interests of public order may not fall within the reservation of cl. (2) of Art. 19. and may therefore be void, an order of preven- tive detention cannot be held to be invalid merely because: .s. Others " the detention is made with a view to prevent the making of speeches prejudicial to the maintenance of public order ............... " This was also a case of detention under the Preven tive Detention Act and the detention of the detenu had been ordered with a view to prevent him from making speeches prejudicial to the maintenance of public order. Public order was not one of the cate gories mentioned in Art. 19 (2) as it then stood, and any restriction imposed upon the freedom of speech and expression could not be justified on that ground, the only relevant ground in that connection then being undermining of the security of the State or its overthrow. A restriction on the freedom of speech and expression in the maintenance of public order would therefore not have been justified under Art. 19 (2) and if the Court had come to the conclusion that there was an infringement of the right of freedom of speech and expression the order could not have been saved under Art. 19 (2). The Court, however, took the view that the direct object of the order was preventive detention and not the infringement of the right of freedom of speech and expression, which was merely (1) (1951] S.C.R. 451, 455. 132 SUPREME COURT REPORTS [1959] 1958 consequential upon the detention of the de.tenu and therefore upheld the validity of the order. It was, ::::::;~:::;) therefore, urged by the learned Attorney-General that the object of the impugned Act was only to regulate Ltd., ,s. Another certain conditions of service of working journalists and v. Th• Unio11 of India other persons employed in the newspaper establish- & Othm ments and not to take away or abridge the right of freedom of speech and expression enjoyed by the petitioners. and that therefore the impugned ct could not come within the prohibition of Art. 19 (1) (a)· read with Art. 13 (2) of the Constitution. Bha1woli ]. A It was contended, on the other hand, on behalf of the petitioners that the Court has got to look at the true nature and character of the legislation and judge its substance and not its form, or in other words, its It was pointed out that the effect and operation. impugned Act viewed as a whole was one to regulate the employment of the necessary organs of newspaper publications and therefore related to the freedom of tho Press and as such came within the prohibition. Reliance was placed in this behalf on the following passage in Minnesota Ex Rel. Olson (1) : " With respect to these contentions it is enough to say that in passing upon constitutional questions the Court has regard to substa.nce and not to mere matters of form, and that, in accordance with familiar princi ples, the statute must be tested by its operation and effect." The following observations of Mahajan J. (as he then was) in Dwarkadas Shrinivas of Bomhay v. The Sholapur Spinning and Weaving Co., Ltd. (') were also relied upon : " In order to decide these issues it is neeessary to examine with some strictness the substance of the legislation for the purpose of determining what it is that the legislature has really done; the Court, when such questions arise, is not overpersuaded by the mere In relation to Constitu appearance of the legislation. tional prohibitions binding a legislature it is clear that the legislature cannot disobey the prohibitions merely (1) (1930) 283 U.S. 6<)7, 708; 75 L. Ed. 1357, 1363. (2) [1954] S.C.R. 674, 683. S.C.R. SUPREME COURT REPORTS 133 by employing indirect method of aehieving exactly the same result. Therefore, in all such cases the court Express N tws· has to look behiml thE' names, forms and appearances papers (Private) to discover the trnE' character and nature of the Ltd., o;. Another legislation." r9j8 v. The impugned Act is as its long title shows an act to Th• Union of India & Others Bhagwati J. regulate certain eonditio1rn of service of working journa- lists and other persons employed in news pa per establish- ments and iu the vcrv forefront of the Act, the Indus- trial Disputes Al'.t., 194 7, is by s. 3 made applicable to working journalists with certain modification in connec- tion with the application of s. 25F of. that Act. The rest of the provisions contained in ch. II concerned themselves with the payment of gratuity, hours of work and leave and fixation of wages of the working journalists. The regulation of the conditions of service is thus the main object which is sought to be achieved by the impugned Act. Chapter III of the Act applies the provisions of the Industrial Employment (Standing Orders) Act, 1946, and t.he Employees' Provident Funds Act, 1952, to all the employees of the newspaper establishments wherein twenty or more newspaper employees are employed and covers working journalists as well as other employees in the employ of the news- paper establishments. The miscellaneous ·provisions contained in ch. IV are designed merely to implement or to carry out the provisions of the · main part of the Act and they do not make any difference so far as the effect and operation of the Act is concerned. If this is the true nature of the Act, it is impossible to say that the Act was designed to affect the freedom of speech and expression enjoyed by the petitioners or that, that was its necessary effect and operation. It was conceded in the course of the arguments that if a general law in regard to the industrial or labour relations had been applied to the press industry as a whole no exception could have been taken •tu it. If the matter had rested with the application of the Industrial Disputes Act, 1947, to the working journalists or with the application of the Industrial Employment (Standing Orders) Act, 1946, or the Employees' Provident Funds Act, 1952, to them no exception could have been taken to this 134 SUPREME COURT REPORTS [1959] v. l' d h r958 h · &- Others Bhagwali ]. measure. It was, however, urged that apart from the application of these general laws to the working · · Express News- · papers (Private) 3ourna 1sts, t ere are prov1s1ons enacte int c 1m pugn- Lld .• &- Another ed Act in relation to payment of gratuity, hours of work, leave and fixation of the rates of wages which The Union of India are absolutely special to the press industry qua the working journaiists and they have the effect of singl ing out the press industry by creating a class of pri- vileged workers with benefits and rights which have not been conferred upon other employees and the provisions contained therein have the effect of laying a direct and preferential burden on the press, have a tendency to curtail the circulation and thereby narrow the scope of dissemination of information, fetter the petitioner's freedom to choose the means of exercising their right and are likely to undermine the indepen dence of the press by having to seek Government aid. It is obvious that the enactment of this measure is for the amelioration of the conditions of the workmen in the newspaper industry. It would not be possible for the Stat•; to take up alf the industries together and even as a ,,.atter of policy it would be expedient to take the industries one by one. Even in regard to the workmen employed it would be equally expedient to take a class of employees who stand in a separate ca.tegory by themselves for the purpose of benefiting them in the manner contemplated. This circumstance by itself would therefore not be indicative of any undue preference or a prejudicial treatment being meted out to that particular industry, the main object being the amelioration of the conditions of those workmen. It could not also be said that there was any ulterior motive behind the enactment of such a measure beoa.use the employers may have to share a greater financial burden than before or that the working of the. industry may be rendered more difficult than ~efore. These are all incidental disadvantages which may manifest themselves · in the future working of the industry, but it could not be said that the Legislature in enacting that measure was aiming at these dis advantages when it was trying to ameliorate S.C.R. RUPREME COURT REPORTR 135 v. r958 cS- Others Bhagwoti J. conditions of the workmen. Those employers who are favourably situated, may not feel the strain at all Express News while those of them who are marginally situated may papm (Private) not be able to bear the strain and may in conceivable Ltd., o;. Another cases have to disappear 1tftpr closing down their establishments. That, however, would be a consequence The Union °! India which would be extraneous and not within the contemplation of the Legislature. It could therefore hardly be nrged that the possible effect of the impact of these measures in conceivable cases would vitiate the legislation as such. All the consequences which have been visualized in this behalf by the petitioners, viz., the tendency to curt>J.il cirPulaiion and thereby narrow the scope of dissemination of information, frtters on the petitioners' freedom to choose the means of exercis- ing the right, likelihood of the independence of the press being undermined by having to seek government aid ; the imposition of penalty on the petitioners' right to choose the instruments for exercising the freedom or compelling them to seek alternative media, etc., would be remotu and clepen<i! upon various factors which may or may not come into play. Unless these the direct or itlE'vitablc consequences of the measures enacted in the impugned Act, it would not be possible to strike down the legiS!ation as having that effect and operation. A possible eventuality of this type would not necessarily be the consequence which could be in the contemplation of the Legislature while enacting a measure of this type for the benefit of the workmen concerned. Even though the impugned ""ct enacts measures for the benefit of the working journalists who are employ ed in newspaper establishments, the working journa lists are but the vocal organ1> and the necessary agencies for the exercise of the right of free speech and expression, and any legislation directed towards the amelioration of their conditions of service must neces. sarily affect the newspaper estii, blishments and have its repercussions on the freedom pf Press. The impugn ed Act can therefore be legitimately characterized as a measure which affects the press, 1and if the intention or the proximate effect and operati<;>n of the Act Wills such 136 SUPREME COURT REPORTS [1959] x95B as to bring it within the mischief of Art. 19(1) (a) it would certainly be liable to be struck down. The.real Express N 1ws· papers (Private) difficulty, however, in the way of the petitioners is that whatever be the measures enacted for the benefit Ltd., & Anothlr of the working journalists neither the intention nor v. The Union °! India the effect and operation of the impugned Act is to take away or abridge the right of frerdom of speech and expression enjoyed by the petitioners. & Others Bhagwati J. The gravamen of the complaint of the petitioners against the impugned Act, however, has been appointment of the Wage Board for fixation of rates of wages for the working journalists and it is contend ed that apart from creating a class of privileged workers with benefits and rights which were not conferred upon other employees of industrial establish ments, the Act has left the fixation of rates of wages to an agency invested with arbitrary and uncanalised powers to impose an indeterminate burden on the wage structure of the press, to impose such employer-em ployee relations as in its discretion it thinks fit and to impose such burden and relations for such time as it thinks proper. This contention will be more appropriately dealt with while c011sidering the alleg ed infringement of the fundamental right enshrined in Art. 19(1) (g). Suffice it to say that so far as Art. 19(1) (a) is concerned this contention also has a remote bearing on the same and 1werl not be discuss ed here at any ,particular length. Re: Article (19(1\ (g). The fundamental right of the petitioners herein is trade or the right to carry on any occupation, business. This freedom also is hemmed in by limitations which are to be found in Art. 19(6), which in so far as it is relevant for our purposes enacts: "Nothing in sub-clause (g) of the said clause shall affect the operation of any existing law in so far as it imposes, or prevent the State from making any law imposing, in the interests of the general public, reasonable restrictions on the exercise of the right, conferred by the said sub-clause." S.C.R. SUPREME COURT REPORTS 137 The contention under this. head is thus elaborated z958 on behalf of the petitioners i l. The impugned Act impbses unreasonable restric- tions on the freedom to carry ion business: (a) in empowering the fixii.tion of rates of wages E~press News· papers (Private) Ltd., o;. Anoth" v. on criteria relevant only for' fixation of minimum The Union °! India wages ; <!> Others ' (b) in empowering fixation of wages, grant of gratuity and compensation without making it incum- bent on the Board to consider the major factor of the capacity of the industry to pay ; flhagwati J. (c) in authorizing the Board to have regard to not what is relevant for such fixation but to what the Board deems relevant for the purpose ; and (d) in providing for a pro~cdure which does not compel the Board to confor~ to the rules under the Industrial Disputes Act, 194 'i1, thus permitting the Board to follow any arbitrary 1irocedurc violating the principle of audi al.teram partem.

#2. The restrictions enumerated above in so far as they affect the destruction of the petitioners' business exceed the bounds of permissible legislation under Art. 19(l)(g). The unreasonableness of the restriction is further sought to be emphasized by pointing out that under s. 12 of the impugned Act, the decision of the Board is declared binding on all employers, though the work ing journalists are not bound by the same and are entitled, if they are dissatisfied with it, to agitate for further revision by raising industrial disputes between themselves and their employers and having them adjudicated under the Industrial Disputes Act, 1947. The test of reasonable restrictions which can be imposed on the fundamental right enshrined in Art. 19(1Xg) has been laid down by this Court in two decisions: In Chintaman Rao v. Tke State of MadhyaPraduh(1) Mahajan J. (as he then w&S) observed at p. 763 : "The phrase " reasonable re11triction " connotes tha.t the limitation imposed on a. person in enjoyment (1) [•9sc>] S.C.R. 7~9. 763. 18 138 SUPREME COURT REPORTS [1959j v. z958 of the right should not be arbitrary or of an excessive nature, beyond what is required in the interests of the E:ipress iVews- papers (P•ivate) public. The word " reasonable " implies intelligent Ltd., &- Another care and deliberation, that is, the choice of a course which reason dictates. Legislation which arbitrarily The Union of India or excessively invades the right cannot be said to contain the quality of reasonableness and unless it strikes a proper balance between the freedom guarante ed in article 19(l)(g), and the social control permitted by clause (6) of article 19, it must be held to be want ing in that quality." [cited with approval in Dwarka Prasad Laxmi Narain v. The State of Uttar Pradesh &: Ors. (1) and in Ch. Tika. Ramji v. State of Uttar Pradesh & Ors. (') ]. '"' Othm Bhagwati 1. The .State of Madras v. V. G. Rao (3 ) was the next to be considered case in which this phrase came by this Court and Patanjali Sastri C. J. observed at p. 606:- " This Court had occasion in Dr. Khare' s case(') to define the scope of the judicial review under clause (5) of Art. 19 where the phrase " imposing reasonable restrictions on the exercise of the right " also occurs and four of the five judges participating in the deci sion expressed the view (the other judge leaving the question open) that both the substantive and the procedural aspects of the impugned restrictive law should be examined from the point of view of reason ableness: that is to say, the Court should consider not only factors such as the duration and the extent of the re~trietions but also the circumstances under which and tlw manner in which their imposition has been &ut horiscd. It is important in this context to bear in mind that the test of reasonableness, where-ever pre ""ribed, should be applied to each individual statute i 111 pugned, and no abstract standard, or general pattern, of reasonableness can be laid down as applic able to all cases. The nature of the right alleged to have been infringed, the underlying purpose of the restrictions imposed, the extent and urgency of the evil sought to be remedied thereby, the disproportion {1) (3) [1954] S.C.R. 8o3, 811. (1952] S.C.R. 597, 6o6, f>o7. [1956] S.C.R. 393, 44' (2) (4) [1950] S.C.R. 519. S.C.R. SUPREME COURT REPORTS 139 · •t d r958 Th. if W f . S 18 en er1on was approve o m of the imposition, the prevailing conditions at the time, should all enter into the judicial verdict." tate o Express News- est papers (Priu<ltt) Bengal v. Subodh Uopal Bose & Others(') where the Ltd .• o;. Anoth" present Chief Justice further expressed his opinion that the fact of the statute being given retrospective The Union of llldia operation may also be properly taken into considera- tion in determining the reasonableness of the restric- . · in t e interest o t e general public [see t10n impose also a recent decision of this Court in Virendra v. State of Punjab(')]. Bhagwati ]. <>-Others f h h d v. The appointment of a wage board for the purposes of fixing rates of wages could not be and was not challenged as such because the constitution of such wage boards has been considered one of the appro priate modes for the fixation of rates of wages. The Industrial Disputes Act, 1947, can only apply when an industrial dispute actually arises or is apprehended to arise between the employers and the employees in a particular industrial establishment. Though under the amendment of that Act by the Industrial Disputes (Amendment and Miscellaneous Provisions) Act, 1956, (36 of 1956), then1 is a provision for the appointment of a National Tribunal by the Central Government for the adjudication of industrial disputes which in the opinion of the Central Government involve questions of national importance or are of such a nature that industrial establishments situated in 'more than one 8tate are likely to be interested in, or affected by, such dispute (Vide s. 7-B) the condition precedent, however, is the existence of a.n industrial dispute or the appre hension of one. If the wages for the employees of a particular industry have got to be fixed without such a.n industrial dispute ha. ving arisen or being a. ppre hended to arise, the only proper mode of such fixation would be the appointment of wage boards for the purpose. They take the place of Industrial Tribunals or National Industrial Tribunals and are generally constituted of equal number of representatives of the employers and the employees in that particular industry along with a. quota of independent member or (1) [1954) 5.C.R. 587, 626. (2) [1958) S.C.R. 308. 140 SUPREME COURT REPORTS [1959] r958 members one of whom is appointed the chairman of the Board. T f h h h v. .s- Others The Union of India Section 8 empowered the Central Government Express N cw.~· he main grievance o t e petitioners, owever, as papers (Private) Ltd .. .s- Another been that the relevant criteria for the fixation of rates of wages were not laid down in s. 9(1) of the Act. constitute a wage board for fixing rates of wages in respect of working journalists in accordance with the Bhagwali 1· provisions of the Act and s. 9(1) directed that in fixing such rates of wages the Board shall have regard to the cost of living, the prevalent rates of wages for compar able employments, the circumstances relating to the newspaper industry in different regions of the country and to any other circumstances which to the Board may seem relevant. These criteria., it was contended, were only relevant for fixing minimum rates of wages, though the word " minimum" which had been used in the Bill No. 13 of 1955 as introduced in the Rajya Sabha was deleted when the Act actually came to be passed and it was further contended that the capacity of the Industry to pay which was an essential circum stance to be tiiken into consideration in the fixation of wages was not set out as one of the circumstances to be taken into consideration by ·the Boa.rd in fixing It was also contended that the other ra. tes of wages. circumstances which the Boa.rd was directed to consider in addition to those specifically enumerated in s. 9(1) were such as to the Boa.rd may seem relevant thus relegating these circumstances to the subjective determination of the Boa.rd with the necessary conse quence that no Court or other authority could scrutinize the same objectively. We do not propose t-0 enter into any elaborate dis cussion on the question whether it would be competent to us in arriving at a proper construction of the expres sion "fixing rates of wages" to look into the Statement of Objects- and Reasons attached to the Bill No. 13 of 1955 as introduced in the Ra.jya Sabha or the circum stances under which the word " minimum" came to be deleted from the provisions of the Bill relating to rates of wages and the Wage Board and the fact of such deletion when the Act came to be passed in its present S.C.R. SUPREME COURT REPORTS 141 v. r95B to be given & Oiiers Bhagwati J. form. There is a consensus of opinion that these are not aids to the construction of the terms of the Statute r~·xprrss Newt .. their plain and which have of course tapers (Priv•t•) grammatical meaning [See : Ashvini ]( umur Ghosh & Ltd .• &- Anoth<r Anr. v. Arabinda Bose & Anr. (')and Provat ]( umar Kar and others v. William Trevelyan Curtiez Parkar (')].The Union °1 India It is only when the terms of the statute are ambiguous or vague that resort may be had to them for the pur- pose of arriving at the true intention of the legisla.- la.ture. No such reference is, however, necessary in the case before us, even though perchance, the expres- sion " fixing rates of wages " be considered ambiguous in so far a.s it does not specify whether the "wages " there a.re meant to be "living wages", "fair wages", or" minimum wages". We have already stated in the earlier pa.rt of this judgment that the Aet was passed with a. view to implement the recommendations of the Press Commission's Report and we have already seen that the concept of minimum wage, as adopted by the Press Commission was not that of a bare sub- sistence or minimum wage but what it termed a minimum wage was meant to provide for not merely the bare subsistence of living, but for the efficiency of the worker, ma.king provision also for some measure of education, medical requirements and amenities. If this was the concept of a minimum wage which the Legislature set a.bout to implement, that minimum was certainly higher than the bare subsistence or minimum wage, and, in any event, required a. consideration by the Wages Boa.rd of the capacity of the industry to pay, even though the Press Commission itself did not think it necessary, to do so, it having expressed the opinion that if a. new spa. per industry could not afford to pay to its employees a minimum wage which would enable them to live decently and with dignity, that newspaper had no right to exist. This was the concept of a minimum wage which was eought to be implemented by the legislature and for that purpose the ca.pa.city of the industry to pay wa.s an essential circumstance to be ta.ken into considera tion a.nd the deletion of the word "minimum", if a.t (1) [1953] S.C.R. 1. (2) A.I.R. 1950 Cal. 116. 142 SUPREME COURT REPORTS [1959] '958 v. &Olhtrs Bhagwali ]. all, had the effect of widening the scope of the enquiry before the Wage Board. If the word "minimum " Exprt.ss N cws. papers (Private) had been 1rned in relation to the rates of wages and the Ltd., & Another Wage Board in the impugned Act, the Wage Board in its deliberations would have been necessarily confined n, Union of India to a consideration of that aBpert alone. But, by the the context the Wage deletion of that word from Board wa~ invested wit'1 a power to determine the question of the fixation of rates of wages unfettered by any such limitations and to fix the rates of wages in any proper manner having regard to the circumstances of the case, wh<;ither the resultant wages would be a statutory minimum wage or would approximate to a standard of wage, though having regard to the econo mic conditions of our country at present they could not find it within their power to fix living wages for the working journalists. The criteria which were specified ins. 9(1) of the Act comprised also the prevalent rates of wages for comparable employments. This criterion had no relation whatever to minimum wages. Refer ence may be made in this connection to a decision of the Industrial Court in the case of N ellimarla Jute Mills (1), where it was held that the comparison with rates of wages in other concerns could be undertaken for determining fair wage and the upper limit of wages but not for determining the minimum or floor level of wages which should depend on the minimum require ments of the workers' family consisting of three con sumption units. This criterion was no doubt taken into consideration by the members of the Committee on Fair Wages as also by the Press Commission and even though the Press Commission considered that to be an essential ingredient of the minimum wage as contemplated by it, we are not inclined to stress that circumstance so much and come to the conclusion that what was contemplated ins. 9(1) was merely a mini mum wage and no other. If, therefore, the criterion of the prevalent rates of wages for comparable employments can on a true con struction of s. 9(1) be considered consistent only with the fixation of rates of wages which are higher than (1) (1953] I L.L.J. 666. S.C.R. SUPREME COURT REPORTS 143 v. "t "t r958 t b .S. Othm e urge Hhagwati f• d th t th a . e en ena spec1 e the bare subsistence or minimum wage whether they be statutory minimum wage or fair wage or even living "fi d Esprm New•· ~age, l co . no papers (Private) m s. 9(1) of the Act were relevant only for fixation of Ltd., .s. Anoth<r minimum wages. The capacity of the industry to pay was therefore one of the essential circumstances to be n, Union of India taken into consideration by the Wage Board whether it be for the fixation of rates of wages or the scales of wages which, as we have observed before, were includ ed within the expression "rates of wages". This was by no means an unimportant circumstance which could be assigned a minor role. It was as important as the cost of living, and the prevalent rates of wages for comparable employments and ought to have been specifically mentioned in s. 9(1). The Legislature how ever, was either influehced in not mentioning it as such by reason of the view taken by the Press Com. mission in that behalf or thought that the third criterion which was specified ins. 9(1), viz., the circum stances relating to the newspaper industry in different regions of the count.ry was capable of including the same. Even here, there is considerable difficulty in reconciling oneself to this mode of construction. The capacity of the industry to pay, can only be considered on an industry-cum-region basis and this circumstance from that point of view would be capable of being included in this criterion, viz., the circumstances relat ing to the newspaper industry in different regions of the country. Even if it were thus capable of being included, the minor role assigned to it along with lite racy of the population, the popularity of the news papers, predilections of the population in the matter of language and other circumstances of the like nature prevailing in the different regions of the country would make it difficult to imagine that this circumstance of the capacity of the industry to pay was really in the mind of the Legislature, particularly when it is remem bered that the Press Commission attached no signifi cance to the same. From that point of view, the criticism of the petitioners would appear to be justified, viz., :-that it was not ma.de incumbent on the Boa.rd to consider the major factor of the ca.pa.city of the 144 SUPREME COURT REPORTS [1959) v. z958 industry to pay as an essential circumstance in fixing It is, however, well-recognized the rates of wages. Espyess N-- papm (Private) that the Courts would lean towards the constitution- Lt4.. ~ Another ality of an enactment and if it is possible to read this circumstance as comprised within the category of cir- Th• Union of Indiri cumst.ances relating to the newspaper industry in different regions of the country, the court should not strike down the provisions as in any manner whatever unreasonable and violative of the fundamental right of the petitioners. ~ Others Rlia8Wflli J. We are therefore of opinion that s. 9(1) did not eschew the consideration of this essential circumstance, viz., the capacity of the industry to pay and it was not only open but incumbent upon the Wage Board to consider that essential circumstance in order to arrive at the fixation of the rates of wages of the working journalists. The last criterion enumerated in s. 9(1) of the Act was" any other circumstance which to the Board may seem relevant" and it was urged that this was left merely to the subjective determination of the Board and the Boa.rd was at liberty to consider the circum stances, if »ny, falling within this category in its own absolute discretion which could not be controlled by any higher authority. If the matters were left to be objectively determined then it would certainly be enquired into and the existence or otherwise of such circumstances would be properly scrutinized in appro priate proceedings. The manner in which, however, this criterion was left to be determined by the Board on its subjective satisfaction was calculated to enable the Board to exercise arbitrary powers in regard to the same and that was quite unreasonable in itself. The case of Thakur Raghuhir Singh v. Court of Wards, Ajmer & Ors. (1 ), was pointed out as an illustration of such an arbitrary power having been vested in the Court of Wards which could in its own discretion and on its subjective determination assume the superinten dence of the property of a landed proprietor who habi tually infringed the rights of his tenants. The provi sion was there struck down because such subjective (1) [I9S3) S. C. R. 1049, 1052. s.c.R, SUPREME COURT REPORTS 145 determination which resulted in the superint~ndence of the property of a citizen being assumed could Express N tW$ not be scrutinized and the propriety thereof in vestiga t- P•Pers (Private) ed by higher authorities. Ltd., & Another v. This argument, however, does not help the petitioners '958 & Others Bhagwati J. because this criterion is on a par with or ejusdem The Union of India generis with the other criteria which have been speci- fically enumerated in the earlier part of the section. The major and important criteria have been specifically enumerated and it would be impossible for the Legisla- ture exhaustively to enumerate the other circumstances which would be relevant to be considered by the Board in arriving at the fixation of the rates of wages. In the course of the enquiry the Board might come across other relevant circumstances which would weigh with it in the determination 1:>f the rates of wages and it would not be possible for the Legislature to think of them or to enumerate the same as relevant considerations and it was therefore, and rightly in our opinion, left to the Board ·to determine the relevancy of those circumstances and take them into consideration while fixing the rates of wages. If the principles which should guide the Board in fixing the rates of wages were laid down with sufficient clarity and particularity and the criteria so far as they were of major importance were specifically enumerated there was nothing wrong in leaving other relevant considerations arising in the course of the enquiry to the subjective satisfaction of the Board. The Board was, after all, constituted of equal numbers of representa- tives of employers and the employees and they were best calculated to take into account all the relevant circumstances apart from those which were specifically enumerated in the section. It was, however, contended that the procedure to be followed by the Board for fixing the rates of wages was not laid down and it was open to the Board to follow any arbitrary procedu:re violating the principle of audi alteram partem and as such this also was unreasonable. Section 20 (2) (d) of the impugned Act gave po"'er to the Central Government to make rules 19 146 SUPREME COURT REPORTS .[1959] 1958 "' Others Bkagwati J. inter alia in regard to the procedure to be followed by the Board in fixing rates of wages and s. 11 provided Express News· papers (Private) that subject to any rules which might be prescribed the Board may, for the purpose of fixing rates of wages, Ltd., 0- Anoth" exercise the same powers and follow the same proce- v. Tk• Union of Indio dure as an Industrial Tribunal constituted under the Industrial Disputes Act, 194 7, exercises or follows for the purpose of adjudicating an industrial dispute referred to it. This was, however, an enabling provi sion which vested in the Board the discretion whether to exercise the same powers and follow the same procedure as an Industrial Tribunal. The Board was at liberty not to do so and follow its own procedure which may be arbitrary or violative of the principle of audi alt~ram partem. It has to be remembered, however, that in the United Kingdom the Wage Councils and the Central Co-ordinating Committees under the Wages Councils Act, 1945, and the Agricultural Wages Board under the Agricultural ·Wages Regulations Act, 1924, also are empowered to regulate their proceeding in such manner as they think fit. The Wage Boards in A ustra lia have also no formal procedure prescribed for them, though the Wage Boards which are established under the amended Bombay Industrial Relations Act, 1946, are enjoined to follow the same procedure as an indus trial court in respect of industrial proceedings before it. It would not therefore be legitimate to hold that the p.rocedure to be followed by the wage board for. fixing rates of wages must necessarily be prescribed by the statute constituting the same. It is no doubt contemplated in each o:f these statutes that rules of procedure may be prescribed; but even though they may be so prescribed, it is left to the discretion of the wage boards to regulate their procedure in such manner as they think fit, subject of course to the rules thus prescribed. A wide discretion is thus left with the wage boards to prescribe their own rules of procedure, but it does not therefore follow that they are entitled to follow any arbitrary rules of procedure. The wage beards are responsible bodies entrusted with the task of gathering data and materials relevant for the 1 S.C.R. SUPREME COURT REPORTS 147 ' 958 determination of the issues arising before them and · even though they are not judicial tribunals but admini- Express News strative agencies they would elicit all relevant informa- papers (Privat•) tion and invite answers to the questionnaire or Ltd., & Another representations from . evidence and arrive at their determination after con- The Union °1 India " . t e prmc1p es o natura 1ormmg o though they may perform, quasi-judicial functions, the exercise of arbitrary powers by them would not be countenanced by any court or higher authority. the parties concerned, hear l ' . E iustwe. Bhagwati ]. &Others 'l .v. f . In the present case, however, we have in the fore front of the impugned Act a provision as to the appli cation of the lnrlustrial Disputes Act, 1947, to working journalists. No doubt certain specific provisions as to payment of gratuity, hours of work and leave are specifically enacted, but when we come to the fixation· of rates of wages we find that a wage board has been constituted for the purpose. The principles to be followed by the Wage Board for fixing rates of wages are also laid down and the decision of the Board is to be published in the same manner as awards of indus trial courts under the Industrial Disputes Act. Then follows s. 11 which talks of the powers and procedure of the Board and there alscf, subject to any rules of procedure which may be prescribed by the Central Government, the Board is empowered to exercise the same powers and follow the same procedure as an Industrial Tribunal constituted under the Industrial If regard be had to this provision it is Disputes Act. abundantly clear that the intention of the Legis lature was constituted as much as possible to an Industrial Tribu nal constituted under the Industrial Disputes Act, 1947, and it was contemplated that the Board may for fixing rates of wages exercise the same powers and follow the same procedure. The decision of the Board was to be binding on all the employers, though the working journalists were at liberty to further agitate the question under the Industrial Disputes Act if they were not satisfied with the deci sion of the Wage Board and wanted a further increase in their rates of wages, thus determined. All these the Wage Board to assimilate 148 SUPREME COURT REPORTS [1959] 1 958 circumstances point to the conclusion that even though the Board was not bound to exercise the same powers Express News- the same procedure as an industrial papers (Private) and follow Ltd .. & Another tribunal constituted under the Industrial Disputes . Act, the Board was, in any event, not entitled to .v. . Tn, i:•• 0 01 Ind•• adopt any arbitrary procedure violating the princi- • "' Others Bliagwati J. f . 1 , 1 t p es o na ura iust1ce. If on the construction of the relevant sections of the statute the functions which the Wage Board was per forming would be tantamount to laying down a law or rule of conduct for the future so that all the emplo yers and the employees in the industry not only those who were participating in it in the present but also those who would enter therein in the future would be bound by it, the dictum of Justice Holmes would apply and the functions peirformed by the wage board could be characterised as legislatiVe in character. Where, however, as in the present case, the coi:istitu tion of the Wage Board is considered in the background of the application of the provisions of the Industrial Disputes Act to the working journalists and the provi sions for the exercise of the same powers and follow ing the same procedure as an industrial tribunal constituted under the Industrial Disputes Act, it would be possible to argue that the Wage Board was not exercising legislative functions but was exercising functions which were quasi-judicial in character. In this connection, it was also pointed out that the Legislature itself while enacting the impugned Act did not consider these fw1ctions ·as legislative at all. The Rules of Procedure and Conduct of Business in Lok Sabha (1957) provide in Rule .No. 70 for a Bill involving proposals for the delegation of legislative power shall further be accompanied by a memorandum explaining such proposals and drawing attention to their scope and stating also whether they are of normal or exceptional character. There is also a committee on subordinate legislation which is established for scrutinizing and reporting to the House whether the powers to make regulations, rules, sub-rules, by-laws, etc., conferred by the Constitution or delegated by Parliament are being properly exercised within such S.C.R. SUPREME COURT REPORTS 149 8 .v. '95 Bhaiwali J. delegation (vide Rule 317 ibid). The copstitution by the Legislature of the Wages Board in the matter of the Express N•ws fixation of rates of wages was not considered as a piece papers (Privm•) of delegated legislation in the memorandum regarding Ltd .. &- Anoth" delegated legislation appended to the draft Bill No. 13 . of 1955 introduced in the Rajya Sabha on September The u;·~~;;,:•d•• 28, 1955, and the only reference that was made there was to Cl. 19 of the Bill which empowered Central Government to make rules in respect of certain matters specified therein and it was stated that these were purely procedural matters of a routine character and related inter alia to prescribing hours of work, payment of gratuity, holidays, earned leave or ot.her kinds of leave and the procedure to be followed by the l\Iinimum Wages Board in fixing minimum wages and the manner in which its decisions may be published. Clause 19(3) of the Bill further provided that all rules made under this section shall as soon as practicable after they are made, be laid before both Houses of Parliament. These clauses were ultimately passed as s. 20 of the impugned Act but they were the only piece of delegated legislation contemplated by the Legislature and were covered by the memorandum regarding the same which was appended to the Bill. The decision of the Wage Board was not to be laid before both the Houses of Parliament which would have been the case if the fixation of rates of wages was a piece of delegated legislation. It was only to be published by the Central Government after it was communicated to it by the Wage Board in such manner as the Central Government thought fit, a provision which was akin to the publication of awards of the Industrial Tribunals by the appropriate Govern- ment under the provisions of the Industrial Disputes Act, 1947. This circumstance also was pointed out as indicative of the intention of the Legislature not to constitute the Wage Board a sub-legislative authority; While recognising the force of these contentions we may observe that it is not necessary for our purposes to determine the nature and character of the functions performed by the Wage Boa.rd here. It is sufficient to say that the Wage Board was not empowered or T 150 SUPREME COURT REPORTS [1959] 58 '9 Express News· authorised to adopt any arbitrary procedure and flout the principles of natural justice. o- h . d Bhagwati J. It was next contended that the restrictions imposed papers (Private) Ltd., & .Jnotlier on newspaper establishments under the terms of the , u .v. . impugned Act were nnreasonable in so far as they • "' nton of India would ave the euect of estroymg the busmess of & Others the petitioners and would therefore exceed the bounds of permissible legislation under Art. 19(6). It was urged that the right to impose reasonable restrictions on the petitioners' right to carry on business did not empower the legislature to destroy the business itself and reliance was placed in support of this proposition on Stone v. Farmers Loan arul Trust Co. ('), where it was observed:- . . "From what has thus been said it is not to be inferred that this power of limitation or regulation is itself without limit. This power to regulate is not a. power to destroy, and limitation is not the equivalent of confiscation." Similar observations of the Judicial Committee of the Privy Council in the Municipal Corporation of the Ci.ty of Toronto v. Virgo(') and the Attorney General for Ontario v. Attorney General for the Dominion (3 ) were also relied upon and particularly the following observations in the former case:- " But their Lordships think there is a marked distinction to be drawn betwe;m the prohibition or prevention of a trade and the regulation or governance of it and indeed a power to regulate and govern seems to imply the continued existence of that which is sought to· be regulated or governed." These observations were considered by this Court in 8aghir Ahmed v. State of U. P. & Ors. (') and after considering the various cases which were cited by both sides, this Court observed : " Be that as it may, although in our opinion the normal use of the word " restriction " seems to be in the sense of " limitation" and not "extinction '', we would on this occasion prefer not to express any final {1 l [1885] t 16 U.S. 307, 331: z9 L. Ed. 636, 644. (2) [18<)6] A.C. 88, 93· (J.C.) (4) [1955] I S.C.R. 707, 724. (3) [1896] A.C. 348, 363. S.C.R. SUPREME COURT REPORTS 151 opinion on this matter " and the Court ultimately wound up by saying that "whether the restrictions Express News are reasonable or not would depend to a large extent p"pers (Private) on the nature of the trade and the conditions prevalent Ltd .• &- A not lier in it." '95 v. 8 Even if the provisions of the impugned Act would The U.:.i~• hof India _' "' Bhagwati J. not necessarily have the effect of destroying the busi- ness of the petitioners but of crippling it and making it impossible for the petitioners to continue the same except under onerous conditions, they would have the effect of curtailing their circulation and drive them to seek government aid and thereby impose an unreason- able burden on their right to carry on business and would come within the ban of Art. 19( 1) (g) read with Art. 13(2) of the Constitution. Several provisions of the impugned Act were refer red to in this context. Section 2(f) of the Act which defines " working journalist " so as to include " proof reader " was pointed out in this connection and it was urged that even though the Press Commission Report recommended the exclusion of certain class of proof-readers from the definition of working journalists the Legislature went a step further and included all proof-readers within that definition thereby imposing upon the newspaper establishments an unreasonable burden far in excess of what they were expected to bear. The provision as to the notice in relation to the retrenehJnent of working journalist was also extended limitations specified in s. 25F of the beyond Industrial Disputes Act, 1947, and was extended t-0 six months in the case of an Editor and three months in the case of any other working journalist. The provision with regard to retrenchment was also made applicable retrospectively to all cases of retrenchment which had occurred between July 14, 1954, and March 12, 1955; so also the payment of gratuity was ordered not only in the cases usually provided for but also in cases where a working journalist who had been in continuous service for not less than three years voluntarily resign ed from service from a newspaper establishment. The hours of work prescribed were 144 hours only during any period of four consecutive weeks and they were 152 SUPREME COURT REPORTS [1959] '958 v. o;. Others far less in number than 1;he hours of work recommend- ed by the Press Commission gcport. The fixation of Express News- papm (Pri<ate) rates of wages was entrusted to the Wage Board which Ltd .. o;. Another could fix any wages which it thought proper irrespec- tive of the capacity of the industry to pay and might Th• Union of India be such as the industry could not bear. These provi- sions taken each one by itself may not have the effect Bhagwaii J. of destroying the petitioners' business altogether or even crippling it in the manner indicated but taken cumulatively along with the provisions contained in sR. 14 and 15 of the impugned Act which applied the provisions of the Industrial Employment (Standing Orders) Act, 1946, and the Employees' Provident l<'unds Act, 1952, to newspaper establishments would certainly bring about that result and would therefore constitute an unreasonable restriction on the peti tioners' right to carry on business. We shall deal with these contentions one by one. There is no doubt that "proof-readers" were not l}ll recommended by the Press Commission to be included in the definition of working journalists, but it has to be remembered that proof-readers occupy a very important p~sition in the editorial staff of a news paper establishment. B. Sen Gupta in his "J ourna lism as a Career" (1955) talks of the position of the proof-reader as follows : " The proof-reader is another important link in the production of a newspaper. On him depends, not to a small extent, the reputation of a paper. He has to be very careful in correcting mistakes and pointing out any error of fact or grammar that has crept into any news item or article through oversight or hurry on the part of the sub-editor. He ha.s not only to correct mistakes but also to see that corrections are carried out ", and the Kemsley Manual of Journalism has the following passage at p. 337 : "Having thus seen the proof-reader in action, let us consider in detail what proof-reading denotes. It is primarily the art and practice of finding mistakes in printed matter before publication and of indicating the needed corrections. It includes the detection of varia tions between the type and the copy from which it was S.C.R. SUPREME COURT REPORTS 153 h '958 set, mis-statements of facts, figures or dates, errors in grammar, inaccuracies in quotations, and other defects. Oft E~p,.ess New.~- en, too, it appens that, though the proof-reader papm (Privat•> does not feel justified in himself making a correction, Ltd .. .s. Anoth" he takes other action. If he think8 there is a mistake but is not sure, he must query the proof so that the The Uni.,. of fndia · editorial staff may decide. He may spot a libel, or think he has. In either case it is important that the matter shall be queried and passed back to editorial authority. .s. Othm Elhagwati J. v. "It is obvious from this that proof-readers should be men of exceptional knowledge and sound-judgment. They should be conversant "~~h current affairs, fami liar with nameJl of public men and quite sure how they in different should be spelled. Some specialize branches of sport, others in theatre, the cinema, music and so on. This saves much time in looking up books of reference, though, of course, the books are there." As a matter of fact, the Wage Boa.rd in the Schedule to its decision defines " proof reader" as "a person who checks up printed matter or "Proof" with edited copy to ensure strict conformity of the former with the latter. Factual discrepancies, slips of spelling, grammar and syntax may also be discovered by him and either corrected or get them corrected." If this is the important role played by the proof readers then no wonder that the Legislature in spite of the recommendations of the Press Commission includ ed them also in the definition of working journalist. No doubt they would be entitled to higher wages by reason of the fixation of rates of wages by the Wage Board but that would by itself be no ground for hold ing the inclusion of proof-readers within the definition of working journalist an unreasonable burden on news paper establishments. The provisions in regard to notice cannot be said to be per se unreasonable. Apart from the recommenda tions of the Press Commission in that behalf, Hals bury's Laws of England, Vol. 22, 2nd Edn., p. 150, 20 154 SUPREME COURT REPORTS [1959] r95B para. 249, foot note (e), contains the following state- ment in regard to the periods of reasonable notice to h f E~press ~Vews- papers (Private) w ich persons o various emp oyments Ltd., & Another found entitled:- b h 1 · v. Newspaper editor, from six months (Fox-Bourne v. The Union of Intlia Vernon & Co. Ltd., (1894) 10 T. L. R. 647); to twelve & Others months (Grundy v, Suri Printing and Publishing nhagwati J. Association, (1916) 33 T. L. R. 77, C. A.). Sub-editor of a newspaper, six months (Chamberlain v. Bennett, (1892) 8 T. L. R. 234). Foreign correspondent to The Times, six months period (Lowe v. Walter, (1892) 8'T. L. R. 358). The Press Commission also recommended that the period of notice for the termination of services should be based on the length of the service rendered and the nature of the appointment. There could be no hard and fast rule as to what the notice period should be. The practice upheld by law or by collective bargaining In England the varies from country to country. practice established by some judicial decisions is that the editor is entitled to a. year's notice and an assistant editor to six months' notice. · After examining the provisions in regard to notice which are in vogue in England, the Commission also noticed a decision in Bombay (Suit No. 735 of 1951 in the City Civil Court) where the judge concerned held that in the circum stances of the particular case the plaintiff, an assistant editor was entitled to a notice of four months although in normal times, he said, the rule adopted in England of six months should be the correct rule to adopt in India and a longer period of notice was suggested for editors because it was comparatively much more difficult to secure another assignment for a journalist of that seniority and standing in the profession. The period of six months, in the case of an editor, and three months, in the case of any other working journalists prescribed under s. 3(2) of the impugned Act was therefore not open to any serious objection. Xhe retrospective operation of this provision in regard to the period between July 14, 1954, and March 12, 1955, was designed to meet the few cases of those employees in the editorial staff of the newspaper S.C.R. SUPREME COURT REPORTS 155 establishments who had been retrenched by managements anticipating the implementation of the Express Ncu1.~· recommendations of the Press Commission. There was papers \Pmate) nothing untoward in that provision also. Ltd .. .s. Ano1t.er v. W·hen we come however to the provision in regard 1 958 to the payment of gratuity to working journalists who The Union of India voluntarily resigned from service from newspaper establishments, we find that this was a provision which 11 was not at a gratuity is a sc eme o bl A f retirement benefit and the conditions for its being awarded have been thus laid down in the Labour Court decisions in this country. reasona e. Bhagwati j. '""Others h In the case of Ahmedabad Municipal Corporation(') it was observed at p. 158 :- " The fundamental principle in allowing gratuity is that it is a retirement benefit for long services, a provision for old age and the trend of the recent authorities as borne out from various awards as well as the decisions of this Tribunal is in favour of double benefit ............ We are, therefore, of the considered opinion that Provident Fund provides a certain measure of relief only and a portion of that consists of the employees' wages, that he or his family would ultimately receive, and that this provision in the present day conditions is wholly insufficient relief and two retirement benefits when the finances of the concern permit ought to be allowed." (See also N undy droog Mine& Ltd. ('). These were cases however of gratuity to be allowed to employees on their retirement. The Labour Court decisions have however awarded gratuity benefits on the resignation of an employee also. In the case of Cipla Ltd. (3 ), the Court took into consideration the capacity of the concern and other factors therein referred to and directed gratuity on full scale ......... which included ......... (2) on voluntary retirement or resignation of an employee after 15 years continuous service. Similar considerations were imported in the case of (ti (1955) L.A.C. 55, 58. (2) (3) (1956) L.A.C. 265, 267. [1955) 2 L.L.J. 355, 358. 156 SUPREME COURT REPORTS [1959] i958 the Indian Oxygen & Acetylene Co., Ltd. (1 was observed: ), where it . v. t " ' Bhagwati J. Express 1Vew$- " It is now well-settled by a series of decisions of papers (Private) Lid .. & Another the Appellate Tribunal that where an employer . company has the financial capacity the workmen T/u u;10~ 1 Ind•• would be entitled to the benefit of gratuity in addition In consider- to the benefits of the Provident :Fund. ing the financial capacity of the concern what has to be seen is the general financial stability of the concern. The factors to be considered before granting a scheme of gratuity are the broad aspects of the financial condition of the concern, its profit earning capacity, the profit earned in the past, its reserves and the possibility of replenishing the reserves, the claim of capital put having regard to the risk involved, in short the financial stability of the concern. There also t¥ court awarded gratuity under ground No. 2, viz., on retirement or resignation of an employee after 15 years of oontinuous service and 15 months' salary or wage. It will be noticed from the above that even in those cases where gratuity was awarded on the employee's resignation from service, it was granted only after the completion of 15 years continuous service and not merely on a minimum of 3 years service as in the present case. Gratuity being a; reward for good, · efficient and faithful service rendered for a consider able period (Vide Indian Railway Establishment Code, Vol. I at p. 614--Ch. XV, para. 1503), there would be no justification for a.warding the same when an employee voluntarily resigns and brings about a termination of his service, except in exceptional cir cumstances. One such exception is the operation of what is term ed "The conscience clause". In Fernand Terron and Lucion Solal's Legislation for Press, Film and Radio in the World to-day (a series of studies published by UNESCO in 1951) the following passage occurs in relation to " Journalists' Working Conditions and their Moral Rights", at p. 404: (1) [1956] I L.L.J. 435· S.C.R. SUPREME COURT REPORTS 157 N l v. . . f IW'i• i958 ·xpress &. Others Bhagwati J. It concerns freedom of information. It is "Among the benefits which the status of profes- sional journalist may confer (whether it stems from E the law or from an agreement) is one o part1cu ar papers (Pri••I•) importance, since it goes to the very core of the pro- Ltd .• &. Ano1her fession. intended to safeguard the journalist's independence, 1 he U"io" •I lndi• his freedom of thought and his moral rights. It consti- tutes what has been called in France the " conscience clause". The essence of this clause is that when a journalist's integrity is seriously threate:i.ed, he may break the contract binding him to the newspaper concern, and at the same time receive all indemnities which are normally payable only if it is the employer who breaks the contract. In :France, accordingly, under the law of 1935, the indemnity for dismissal which, as we have seen, may be quite sub- stantial, is payable even when the contract is broken by a pr6fessional journalist, in cases where his action is inspired by'" a marked change in the character or policy of the newspaper or periodical, if such change creates for the person employed a. situation prejudicial to his honour, his reputation, or in a. general way his moral interests. " This moral right of a journalist is comparable to· the moral right of an author or artist, which the law of 1935 was the first to recognize, has since been acknowledged in a. number of countries. It was stated in the collective contra.ct of January 31, 1938, in Poland in this form : " The following a.re good and sufficient reasons for a. journalist to cancel his contra.ct without warning; (a.) the exertion of pressure by an employer upon a. journalist to induce him to perform an immoral action ; (b) a fundamental change in the political outlook of the Journal, proclaimed by public declaration or otherwise ma.de manifest, if the journa list's employment would thereafter be contrary to his political opinions or the dictates of· his conscience." A similar clause is to be found in Switzerland, in the collective agreement signed on April l, 1948, between the Geneva Press Association and the Geneva. Union of Newspaper Publishers: " If a marked change takes place in the character 158 SUPREME COURT REPORTS [1959] N h ews· 1958 · h d or fundamental policy of the newspaper, if the concern no longer has the same moral, political or religious · l h E>pms P•P•, (Private) c aracter t at 1t a at t e moment w en an 1toria Ltd.,'& Another employee was engaged and if this change is such as to prejudice his honour, his reputation or, in a general Th• Unian of India way, his moral interests, he may demand his instant In these circumstances he shall be entitled t.o release. an indemnity ............ This indemnity is payable in the same manner as was the salary." & Ollws Bhagwati J. ed" h h v. The other exception is where the employee has been in continuous service of the employer for a period of more than 15 years. Where however an employee voluntarily resigns from service of the employer after a period of only three years, there wilI be no justification whatever for awarding him a gratuity and any such provision of the type which has been made in s. 5(l)(a)(iii) of the Act would certainly be unreasonable. We hold there fore that this provision imposes an unreasonable restriction on the petitioners' right to carry on business and is liable to be struck down as unconstitutional. The provision in regard to the hours of work also cannot be considered unreastuable having regard to the nature and quality of the work to be done by working journalists. That leaves the considerations of fixation of rates of wages by the Wage Board. As we have already observed, the Wage Board is constituted of equal numbers of representatives of the newspaper establish ments and the working journalists with an indepen dent chairman at its head and principles for the guidance of the Wage Board in the fixation of such rates of wages directing the Wage Board to take into consideration amongst other cfrcumstances the capa city of the industry to pay have also been laid down and it is impossible to say that the provisions in that behalf are in any ·manner unreasonable. It may be thatthe decision of the Wage Board may be arrived at ignoring some of these essential criteria which have been laid down ins. 9(1) of the Act or that the proce dure followed by the Wage Board may be contrary to the principles of natural justice. But that would S.C.R. SUPREME COURT REPORTS 159 f f d h d rg58 affect the validity of the decision itself and not the constitution of the Wage Board which as we have seen cannot be objected to on this ground. to t e recovery o money ue rom an em- ExPJ<m N_•ws- The further provision contained in s. 17 of the Act pap.,, (Pnvat•) Lid., <So A.nolh" .. . m regar ployer empowering the State Government or any such TJr, Uni.;. of India . authority appointed in that behalf to issue a certificate for tha,t amount to the collector in the same manner as an arrear of land revenue was also impeached by Bhagwati f. the petitioners on this ground. That provision, how- ever, relates only to the mode of recovery and not to the imposition of any financial burden as such on the employer. We shall have occasion to deal with this provision in connection with the alleged infringement of the fundamental right under Art. 14 hereafter. We do not subscribe to the view that such a provision infringes the fundamental right of the petitioners to carry on business under Art. 19(l)(g). & Others This attack of the petitioners on the constitutiona lity of the impugned Act under Art. 19(l)(g), viz., that it violates the petitioners' fundamental right to carry on business, therefore, fails except in regard to s. 5(l)(a)(iii) thereof which being clearly severable from the rest of the provisions, can be struck down as un constitutional without invalidating the other parts of the impugned Act. Re. Article 14. The question as formulated is that the impugned Act selected the working journalists for favoured treatment by gh>ing them a statutory guarantee of gratuity, hours of work and leave which other persons in similar or comparable employment had not got and in providing for the fixation of their salaries without the normal procedure envisaged in the following Industrial Disputes Act, 1947. The following propo sitions are advanced :-

#1. In selecting the Press industry employers from all industrial employers governed by the ordinary law regulating industrial relations under the Industrial Disputes Act, 1947, and Act I of 1955, the impugned Act subjects the Press industry employers to discrimi natory treatment. 160 SUPREME COURT REPORTS [1959]

#2. Such discrimination lies in (a) singling out newspaper employees for differen. z9,s E•pms N..,,. ~"'' (Pri11•t•l tial treatment; Ltd., & Anotiur . v. (b) saddling them with a new burden in regard to . a section of their workers in matters of gratuities, Tiu! llM•°" 01 India compensation, hours of work and wages; (c) devising a machinery in the form of a Pay & Ol•trs BhagwoJi 1. Commission for fixing the wages of working journa. lists; (d) not prescribing the major criterion of capacity to pay to be taken into consideration; (e) allowing the Board in fixing the wages to adopt any arbitrary procedure even violating the principle of audi alteram partem ; (f) permitting the Board the discretion to operate the procedure of the Industrial Disputes Act for some newspapers and any arbitrary proced.ure for others; (g) making the decision binding only on the em ployers and not on the employees, and (h) providing for the recovery of money due from the employers in the same manner as an arrear of land revenue.

#3. The classification made by the impugned Act is arbitrary and unreasonable', in so far as it removes the newspaper employers vis-a-vis working journalists from the general operation of the Industrial Disp11tes Act, 1947, and Act I of 1955. The principle underlying the enactment of Art. 14 has been the subject-matter of various decisions of this Court and it is only necessary to set out the sum mary thereof given by Das J. (as he then was) in Budhan Chaudhry & Others v. The State of Bihar (') :- " The provisions of article 14 of the Constitution have come up for discussion before this Court in a number of cases, namely, Chiranjit Lal Chowdhuri v. ), The State of Bombay v. F. N. The Union of India (2 Balsara ('),The State of West Bengal v. Anwar Ali (1) [1955) I S.C.R. 1045, 1048. (2) [1950) S.C.R. 86g. (3) [1951) S.C.R. 682. S.C.R. SUPREME COURT REPORTS 161 v. ·z9,& .s- OIAm Bliafll'"ll J. ), Kathi Baning Rawat v. The State of Sau- Sarkar (1 rashtra ('), Lachmandas Kewalram Ahuja v. The State of Bombay{'), Quasim Razvi v.·The State of Hyderabad('), ::::::;P~::;;l andHabeeb Mohamad v. The State of Hyderabad('). It Lltl.,.S-AtwlAn is, therefore, not necessary to enter upon any lengthy discussion as to the meaning, scope and effect of the T1" u .. ;.,. of India It is now well-established that article in question. while article 14 forbids class legislation, it does not forbid reasonable classification for the purposes of legislation. In order, however, to pass the test of per- missible classification two conditions must be fulfilled, namely, {i) that the classification must be founded on an intelligible differentia which distinguishes persons ot things that are grouped together from others left out of the group and (ii) that that differentia must have a rational relation to the object sought to be achieved by the statute in question. The classification may be founded on different bases; namely, geographica.~ or according to objects or occupations or the like. What is necessary is that there must be a nexus between the basis of classification and the object of the Act under consideration. It is also well-established by the deci- sions of this Court that article 14 condemns discrimi- nation not only by a substantive law but also by a la.w of procedure." It is in the light of these observations that we shall now proceed to consider whether the impugned Act violates the fundamental right of the petitioners guaranteed under Art. 14 of the Constitution. We have already set out what the PreBB Commission 'iad to say in regard to the position of the working iournalists in our country. A further paBBa.ge from the Report may also be quoted in this context: " It is essential to realise in this connection that the work of a journalist demands a high degree of general education and some kind of specialised train ing. Newspapers a.re a vital instrument for the education of the maBBes and it is their busineBS to protect the rights of the people, to reflect and guide (1) [1952] S.C.R. 214. (3) [195•] S.C.R. 710. •• (5) [1953) S.C.R. 661 . (2) [195>] S.C.R. 435. (4) [1953) S.C.R. 581, 162 SUPREME COURT REPORTS [1959] v. z95B its place in that edition. public opinion and to criticize the wrong done by any individual or organization however high placed. They EKpress News- papers (Private) thus form an essential adjunct to democracy. The ua .. .s. Another profession must, therefore, be manned by men of high intellectual and moral qualities. The journalists are Th• Union of India in a sense creative artists and the public rightly or .s. Othm wrongly, expect from them a general omniscience and a capacity to express opinion on any topic that may Bhagwaii J. a.rise under the sun. Apart from the nature of their work the conditions under which that work is to be performed, are peculiar to this profession. Journalists hav'e to work at very high pressure and as most of the papers ·come out in the morning, the journalists are required to work late in the night and round the clock. The edition must go to press by a particular time and all the news that breaks before that hour has got to .:f ournalism thus becomes a highly specialized job and to handle it adequately a person should be well-read, have the ability to siZ!l up a situation and to arrive quickly at the correct conclusion, and have the capacity to stand the stress and strain of the work involved. His work cannot be measured, as in other industries, by the quantity of the output, for the quality of work is an essential element in measuring the capacity of the journalists. Moreover, insecurity of tenure is a peculia-r feature of this profession. This is not to say that no insecurity exists in other professions but circumstances may arise in connection with profession of journalism which may lead to unemployment in this profession, which would not necessarily have that result in other professions. Their security depends to some extent on the whims and caprices of the proprietors. We have come across cases where a change in the owner ship of the paper or a change in the editorial policy of the paper has resulted in a considerable change in the editorial staff. In the case of other industries a change in the proprietorship does not normally entail a change in the staff. But as the essential purpose of a newspaper is not only to give news but to educate a.nd guide public opinion, a change in the proprietor ship or in the editorial policy of the paper may result S.C.R. SUPREME COURT REPORTS 163 8 and in some cases has resulted in a wholesale change of the staff on the editorial side. These cfrcums.tances, Express News which are peculiar to journalism must be borne in papers (Private) mind in framing any scheme for improvement of the Ltd .• & Another conditions of working journalists." (para. 512). 'd '95 v. Th ese were e cons1 era 10ns w IC we1g e wit t• the Press Commission in recommending the working journalists for special treatment as compared with the other employees of newspaper establishments in the matter of amelioration of their conditions of service. · h d h" h _"' Bhagwati J. . h The Union of India & Oth We may also in this connection refer to the follow - ing passage from the Legislation for Press, Film and Radio in the world to-day (a series of studies publish ed by UNESCO in 1951) (supra) at p. 403 :- "Under certain systems, special advantages more extensive than those enjoyed by ordinary employees are conferred upon journalists. These may be sanction. ed by the law itself. For instance, certain Latin American countries have enacted legislation in favour of journalists which is in some cases very detail!Jd and far-reaching and offers special benefits, more parti cularly in the form of protection against the risk of sickness or disability, dismissal or retirement. In Brazil, professional journalists, who must be of Brazilian birth and nationality, enjoy very consider able tax exemptions. "In France, the law of 29 l\Iarcli, 1935, conferred on journalists substantial advantages which at the time were far in advance of general social legislation. Thus, for example, this law gives all professional journalists the right· to an annual holiday with pay. One month's holiday is granted to journalists who have been working for a newspaper or periodical for at least one year, and five weeks to journalists whose contract has been in force for 10 years at least. Should a contract of indefinite duration be terminated, the journalist is entitled to one or two month's notice and also to an indemnity for dismissal which may not be less than one month's salary per year or pa.rt of a year of service, at the most recent rate of pay. How ever, if the period of service exceeds 15 yea.rs, the 164 SUPREME COURT REPORTS [1959) · v. h b h r958 amount of the indemnity is fixed, as we have seen, by an arbitra.l committee." l' k .s. Others Bha;:;i ]. Express News· The wor ing ]Ourna 1sts are t us a group y t em- papers (Private) Ltd., & Anol/ier selves and could be classified as such apart from the other employees of newspaper establishments :i,nd if Tiu Union of Indi•the Legislature embarked upon a legislation for the purpose of ameliorating their conditions of service there was nothing discriminatory about it. They could be singled out thus for preferential treatment against the other employees of newspaper cstablit;h ments. A classification of this type could not come within the ban of Art. 14. The only thing which is prohibited under this article is that persons belonging to a particular group or class should not be treated differently as amongst themselves and no such charge could be levelled against this piece of legislation. If this group of working journalists was specially treated in this manner there is no scope for the objection that that group had a special legislation enacted for its benefit or that a special machinery was created, for fixing the rates of its wages different from the machi nery employed for other workmen under the Industrial Disputes Act, 1947. The payment of retrenchment compensation and gra, tuities, the regulation of their hours of work and the fixation of the rates of their wages as compared with those of other workmen in the newspaper establishments could also be enacted without any such disability and the machinery for fixing their rates of wages by way of constituting a wage board for the purpose could be similarly devised. There was no industrial dispute as such which had arisen or· was apprehended to arise as between the employers and the working journalists in general, though it could have possibly arisen as between the employers in a particular newspaper establishment and its own working journalists. What was contem plated by the provisions of the impugned Act how ever, was a general fixation of rates of wages of working journalists which would ameliorate the condi tions of their service and the constitution of a wage board for this purpose was one of the established If, therefon., such a mod('s of achieving that object. S.C.R. SUPREME COURT REPORTS 165 v. '958 '"' Others Bhagwati J. machinery was devised for their benefit, there was nothing objectionable in it and there was no discrimi- Express News· nation as between the working journalists and the papm (Private) other l.'mployecs of newspaper establishments in that ua.,,;. Anoth". behalf. The capacity of the industry to pay was certainly to be taken into consideration by the Wage The Union of Inllia Board, as we have already seen before, and the proce- <lure of the Board also was assimilated to that adopted by an industrial tribunal under the Industrial Disputes Act, 1947, or was, in any event, to be such as would not be against the principle of uudi ulterum purtem or the principles of natural justice. There was no occa- sion, if the Wage Board chose to exercise the same powers and follow the same procedure as the Indus- trial Tribunal under the Industrial Disputes Act, 1947, for it to discriminate between one set of newspaper establishments and others. If it in fact assumed unto itself the powers of the Industrial Tribunal it would be hound to follow the procedure prescribed under the Industrial Disputes Act, 1947, and if it were thus to follow the same, no discrimination could ever be made in the manner suggested. The decision of the Wage Board was no doubt made binding only on the employers and the working journalists were at liberty to agitate the question of increase in their wages by raising an industrial dispute in regard thereto. Once the rates of wages were fixed by the Wage Board, it would normally follow that they would govern the relationship between the employers and the working journalists, but if liberty was reserved to the working journalists for further increase in their wages under the provisions of the Industrial Disputes Act there was nothing untoward in that provision and that did not by itself militate against the position that what was done for the benefit of the working journalists was a measure for the amelioration of their conditions of service as a group by themselves. There could not be any question of discrimination between the employers on the one hand and the working journalists on the other. They were two contesting parties ranged on opposite sides and the fact that one of them was treated in a different manner from the other in the 166 SUPREME COURT REPORTS [1959] 1958 matter of the amelioration of the conditions of service of the weaker party would not necessarily vitiate the Express News- decision of the Wage l3oa, rcl. The weaker of the two papers (Privntc) Ltd .• .,, .·lnothcr parties could certainly be treated as a class by itself and the conferment of specitd benefits in the matter of The Union of India tryin" to ameliorate their conditions of service could v. • 0 & Others Bhagwati ]. certainly not be discriminatory. Tlw provisions containecl ins. 17 of the Act in regard to tlw n·<·ovcry of money due' from the employers in thP Rltlll<" m<tmwr <ts an arr<'ar of land revenue also In the conflict between the was nut cliscriminatorv. employers tmd the em1!loyees it very often came about that the <'mployers did not implement the measures which had been enacted for the benefit of the em ployee8 and the employees were thus hard put to re>ilioP and cash those benefits. Even the Industrial Disputes Aet, 194 7, contained a like provision ins. 33C thereof (vide the amPndml'nt incorporated therein by Act 36 of Hl56) whieh in its turn was a reprocludion of tlw olcl s. 25-1 which had bePn inserted thf'r0in by Act 43 of 1953. It mav lw remembered that if the provisions of the Industri~l Disputes Act, 1947, 'Yhich was a geHc:ral Act, had been made applicabk to the working journali8ts there would have been uo <J tutrrel with the same. l\luch less there could be any quarrel with the introduction of s. 17 into the impugned Act when the aim and object of such provision was to provide the working journalists who were a group by themselves from amongst employees employed in the newspaper establishments with a remedy for recovcrv of the monies due to them in the same manner" as the workmen under the Industrial Disputes· Act, 1947. \Ve do not see anything discriminatory in making such a provision for the recovery of monies due by the employers to these working journalists. Similar is the position in regard to the alleged dis crimination between Press industry employers on the one hand and the other industrial employers on the other. The latter would certainly be governed by the ordinary law regulating industrial relations under the Industrial Disputes Act, 1947. Employers qua the working journalists again would be a class by them- S.C.R. SUPREME COURT REPORTS 167 v. d- b d r958 not e treate as '"' Others Bhagwati J. selves and if a law was enacted to operate as between them in the manner contemplated by the Act that Express News- iscriminatory. If measures papers (Private) CO have got to be devised for the amelioration of the Ltd .. o;, Another conditions of working journalists who are employed in the newspaper establishments, the only way in which The Union of India it could be done was by directing this piece of legisla- tion against the Press Industry employers in general. Even considering the Act as a measure of social wel- fare legislation the State could only make a beginning somewhere without embarking on similar legislations in relation to all other industries an<l if that was <lone in this case no charge could be levelled against the State that it was discriminating against one industry as compared with the others. The classification could. well be founded on geographical basis or be according to objects or occupations or the like. The only question for consideration would be whether th('rc was a n('XUS hetween the basis of classification and the object of the Act sought to be challenged. In our opinion, both the conditions of permissible classification were fulfilled in the present case. The classification was base<l on an intelligible differentia which distinguished the working journalists from other employees of newspape.r" establishments and that differentia had a rational relation to the object sought to be achieYed, viz., the amelioration of the conditions of service of working journalists. This attack on the constitutionality of the Act also therefore fails. Re. Article 32 :- In regard to the infringement of Art. 32, the only ground of attack has been that the impugned Act did not provide for the giving of the reasons for decision by the \Vage Board and thus rendered the petitioners' right to approach the Supreme Court for enforcement of their fundamental right nugatory. It is contended that the right to apply to the Supreme Court for a writ of certiorari required an order infring ing a fundamental right, that such a right was itself a fundamental right and any legislation which attempt ed to restrict or defeat this right was an infraction of 168 SUPREME COURT REPORTS [1959] It is further contended Art. 32 and was as such void. that a writ of certiorari could effectively be directed Express News- only against a speaking order, i. e., an order disclosing papers (Private) Ltd., & Another reasons, and if a statute enabled the passing o an order that need give no reasons such statute attempted The Union of Indiu to sterilize the powers of this Court from investigating the validity of the order and waH therefore violative of Art. 32. o;. Others f v. Bhagwati ]. I.earned Counsel for the petitioners has relied upon a decision of the English Court in Rex v. N orthumber land Compensation Appeal Tribunal, Ex parte Shaw (') where Lord Goddard C. J. observed at p. 718 :- " Similarly anything that is stated in the order which an inferior court has made and which has been ·brought up into this court can be examined by the court, if it be a speaking order, that is to say, an order which sets out the grounds of the decision. If the order is merely a statement of conviction that there shall be a fine of 40s., or an order of removal or quashing a poor rate, there is an end of it, this court cannot examine further. Tf the inferior court tells this court why it had done what it has and makes it part of its order, this court can examine it." This decision wlts affirmed hy the Court of Appeal (and the decision of the Court of Appeal is reported in Rex v. Northumber/,and Compensation AJJpeal 'l'ribunal, Ex parte Shaw(') and while doing so J)(•1ming L. ,J. (as he then was) discussed at p. 352, wh11l ,1·11s it that constituted the record:- "What, then, is the reocml? ...... Following these cases 1 think the record must contain at least the document which initiates the proceedings; thc1plead if any; and the adjudication; but not the evidence, nor the reasons, unless the trihunal chooses to incorporate them. If the tribunal does state its reasons, and these reasons are wrong in law, certiorari lies to quash the decision." This decision only affirmed that certiorari could lie only if an order made by the inferior tribunal was 'a It did not lay down any duty on the speaking order. inferior tribunal to set out the reasons for its order but (1) [1951) 1 K. B. 7u, 718. (2) (1952) 1 K. B. 338. s.c.~. SUPREME COURT REPORTS 169 only pointed out that if no reasons were given it would be impossible for the High Court to interfere by exercising its prerogative jurisdiction in the matter of Express NIW.<· papm (Privalt) certiorari. Ltd., c;. A.nolh" v. A more relevant decision on this point is that of this r95B ). &- Others d 1 Bhagwati ]. Court in A. K. Gopalan v. The 'State of Madras and Th• Union of India In that case the provision of law which was Anr. (1 impugned amongst others was one which prevented the d isc osing to t e etenu on pa.in of prosecution om h Court the grounds of his detention communicated to him by the detaining authority. This provision was struck down as ultra vires and void. The reason given by Mahajan J. (as he th.en was) is stated at • p. 243: " This Court would be disabled from exercising its functions under article 32 and adjudicating on the point that the grounds given satisfy the requirements of the sub-clause if it is not open to it to see the grounds that have been furnished. It is a guaranteed right of the person detained to have the very grounds which a.re the basis of the order of detention. This Court would be entitled to examine the matter and to see whether the grounds furnished a.re the grounds on the basis of which he has been detained or they contain some other vague or irrelevant material. The whole purpose of furnishing a. detained person with the grounds is to enable him to make a representation refuting these grounds and of proving his innocence. Jn· order that this Court may be able to safeguard this fundamental right and to grant him relief it is absolutely essential that the detenu is not prohibited under penalty of punishment to disclose the grounds to the Court and no injunction by law oan be issued to this Court disabling it from having a look at the grounds. Section 14 creates a substantive offence if the grounds are disclosed and 'it also lays a duty on the Court not to permit the disclosure of such grounds. It virtually amounts to a suspension of a guaranteed right provided by the Constitution inasmuch as it in directly by a stringent provision makes administration of the law by this Court impossible anq at the same (r) 81950] S.C.R. 88, 100, •• 170 SUPREME COURT REPORTS [1,959] 1958 time it deprives a detained person from obtaining justice from this Court. In my opinion, therefore, this d h"b h E~press .. Vews- papers (Private) section w en it pro 1 its t e 1sc osure o t e groun s Ltd., & Anoth" contravenes or abridges the rights given by Part III to a. citizen and is ultra vires the powers of Parliament to h d" 1 f h v. Th• Union of Indiuthat extent." & Othm Bhagwati ;. It is no doubt true that if there was any provision to be found in the impugned Act which prevented the Wage Board from giving reasons for its decision, it might be construed to mean that the order which was thus made by the Wage Board could not be a speaking order.and no writ of certiorari could ever be available t9 the petitioners in that behalf. It is also true that in that event this Court would be powerless to redress the grievances of the petitioners by issuing a writ in the nature of certiorari and the fundamental right which a citizen has of approaching this Court under Art. 32 of the Constitution would be rendered nugatory. The position, however, as it obtains in the present ca.se is that there is no such provision to be found in the impugned Act. The impugned Act does not say that the Wage Board shall not give any reason for its decision. It is left to• the discretion of the Wage Boa.rd whether it should give the reasons for its deci sion or not. In the absence of any such prohibition it is impossible for us to hold that the fundamental right conferred upon the petitioners under Art. 32 was in any manner whatever sought to be infringed. It may be noted that this point was not at all urged in the petitions which the petitioners had filed in this Court but was taken up only in the course of the arguments by the learned Counsel for the petitioners. It appears to have been a clear after-thought; but we have dealt with the same as it was somewhat strenuously urged before us in the course of the argu ments. We are of the opinion that the Act cannot be challenged as violative of the fundamental right enshrined in Art. 32 of the Constitution. In regard to the constitutionality of the Act there fore we have.come to the conclusion that none of the provisions thereof is violative of the fundamen ta! S.C.R. • SUPREME COURT REPORTS • 171 rights enshrined in Arts. 19(l)(a), 19(1)(g), 14 and/or 32 save the provision contained in s. 5(l)(a)(iii) of the Express New.< the fundamental right papers (Private) Act which is violative of guaranteed under Art. 19(l)(g) of the Constitution and Ltd.,~ A•oth., is therefore unconstitutional and should be struck down. r95S v. The Union of India .s. Others Bhagwati J. Apart from challenging the vires of the Act dealt • with above, the petitioners contend that the decision of the Wage Board ,itself is illegal and void because=~ (1) Re-constitutiop of the Board was ultra vires and unauthorised by the Act as it stood at the time, the rules having been published only on July 30, 1956. (2) The decision by a majority was unwarranted by the Act and since there was no provision in the Act, the Rules providing for the same went beyond the Act and were therefore ultra vires. (if) The procedure followed by the· Board offended the principles of natural justice and was therefore invalid; (4) The decision was invalid, because (a) no reasons wl3re given, (b) nor did it disclose what considerations prevail ed with the Board in arriving at its decision; (5) Classification on the basis of gross revenue was illegal and unauthorised by the Act. (6) Grouping into chains or multiple units was un- authorised by the Act. . (7) The Board was not aftthorised by the Act to fix the/ salaries of journalists except in relation to a particular industrial establishment and not on an All India basis of all newspapers taken together ; (8) The decision was bad as it did not disclose toot the tiapacity to pay of any particufar establishment was ever taken into consideration. (9) The Board had no authority to render a decision which was retrospective in operation. • (10) The Board had no authority to fix scales of pay for a period of 3 yeitrs (subject to review by the Govt . by appointing another W'age Board at the end of these 3 years) and (Ill The Board was handicapped for want of Cost of .. • Livinf5 Jindex. ~ . -... __ . . .... ' - 172 SUPREME COURT REPORTS • The position in law is that the decisi"on would be [1959] r95B illegal on any of the following three grounds, viz., ·(A) Because the Act under which it was made Expms News- papers (Private) ua., 4- Airother was ultra vires; [See Mohammad Yasin v. Town Area Committee, JalaUibad & anr. (1) and Himmatlal Harilal v. The Union of India Mehta v. State of Madhya Pradesh (') ]. & Others (B) Because the decision itself infringed the fund a- Bhagwati 1. mental rights of the petitioners. [ See Bidi Supply Co. , v. Union of India & ors. (') ]. 1 (0) Because the decision was 11ltra vires the Act. [See Pandit Ram Narain v. State of Uttar Pradesh & ors. (') ]. The decision of the Wage Board be fore us cannot be challenged on the grounds that the impugned Act under which the decision is made is ultra vires or that the decision itself infringes the fundamental rightfl of the petitioners. In the circumstances, the challenge must be confined only to the third ground, viz., that · the decision is ultra vires the Act itself. , - • , Re. (1). The first ground of attack is based on the circum-· stance that Shri K. P. Kesava Menon who was originally appointed a member of the Wage Board resigned on or about June 21, 1956, which resignation was accepted by the Central Government by a notifica tion dated July 14, 1956, and by the same notification the Central Government a:J'pointed in his place Shri K. M. Cherian and thus reconstituted the Wage Board. There was no provision in the Act for the resignation of any member from his membership or for the filling in .of the vacancy which thus arose in the membership of the Board. A provision in this behalf 0wali incorporated only in the Working Journalists Wage Board Rules, 1956, which were published by a notifica tion in the Gazette of India Part II-Section 3 on date July 31, 1956. It was, therefore, contended that such re-constitution of the Board by the appointment of Shri K. M. Cherian in place of Shri K. P. Kesava Menon was unauthorised by the Act as it then stood (1) (2) [1952] $.C.R. 572o 578. [1954] S.C.R. U22, II27. • • • (J) [1956] S.C.R. 267. ~I (f) [1956] S.C.R. (94. '-· - . . ..- ·' S.C.R. SUPREME COURT REPORTS • 173 and the Board which actually published the decision in question was therefore not properly constituted. v. & Others Bhagwati J. Express News- lt is necessary to remember in this connection that paper's (Prival•) s. 8 of the Act empowered the Central Government by Ltd.,.& .Another notification in the Official Gazette to constitute a Wage Board. This power of constituting the Wage Board The Union °! Inditi must be construed having regard to s. 14 of the General • Clauses Act, 1897, which says that where by any Central Act or Regulation made after the commence ment of the Act, aw power is conferred then, unless a different intention appears that power may be exercis ed from time to time as occasion arises. If this is the true position there was nothing objectionable in the Central Government re-constituting the Board on the resignation of Shri K. Ji. Kesava Menon being accept ed by it. The Wage Board can in any event be deemed to have been constituted as on that date, viz., July 14, 1956, when all the 5 members within the contemplation of s. 8(2) of the Act were in a position function. Shri K. P. Kesava Menon had not attended the preliminary meeting of the Board, which · had been held on May 26, 1956, and the real work of the Wage Board was done after the appointment of · Shri K. M. Cherian in his place and stead and it was only ~fter July 14, 1956, that the Wage Board as a whole constituted as it was on that date really func- tioned as such. The objection urged by the petitioners in this behalf is too technibal to make any substantial difference in regard to the constitution of the Wage ' Board and its functioning. . ' ... ' Re. 2. 'J:'his ground ignores the fact that the Working • Journalists Wage Board Rules, 1956, which were published on July 31, 1956, were made by the Central Government in exercise of the power conferred upon it by s. 20 of the Act. That section •empowered the Central Government to make rules to carry out the purposes of the Act, in particular to provide for the procedure to be followed by the Board in fixing rates of wages. Rule 8 provided that every question con- y.d ed at a meeting of the Board was to be decided . ~ajor~ of th<il votes of the members present and "-...... . • .~ I 174 SUPREME COURT REPORTS • . . [1959] N · • v. • " ews- · · i958 • "" h d f h B t at t e ec1s10n o ereiore prescn e . & Others Bhagwati 1. voting. In the event of equality of votes tbe Chair- man was to have a casting vote ............... This Rule £ P d 'b d h t e oar papers (Private) Ltd .. &. An~th;, could be reached by a majority and this was the rule . which was followed by the Board in arriving at its The Union of India decision. The rule was framed by the Central Govern- ment by virtue of the authority vested in it under s. 20 of the Act and was a piece of delegated legisla- tion which if the rules were laid before both the Houses of Parliament in accordance.with s. 20(3) of the Act acquired the force of law. After the publication of these rules, they became a part of the Act itself and any decision thereafter reached by the Wage Board by a majority as prescribed therein was therefore law ful and could not be impeached in the manner suggested. Re. (3). This ground has reference to the alleged violation by the Wage Board of the principles of.natural justice. It is urged that the procedure established under the Industrial Disputes Act was not in terms prescribed for the Wage Board, the Board having been given under s. 11 of the Act the discretion for the purpose of fixing rates of wages to exercise the same powers and follow the same procedure as an Industrial Tribunal ; constituted under the Industrial Disputes Act, 1947, while adjudicating upon an industrial dispute referred to it. On two distinct occasrons, however, the Wage ~oard definitely expressed itself that it had the powers of an Industrial Tribunal constituted under the Indus- trial Disputes Act. The first occasion was when the questionnaire was issued by the Wage Board and in tlte questionnaire it ment.ioned that it had such powers • under s. 11 of the Act. The second occasion arose when a number of newspapers and journals tcf whom the questionnaire "was addressed failed to send their replies to the same and the Wage Board at its meeting held on August 17, 1956, reiterated the position and decided to issue a Press Note requesting the news- papers and journals to send their replies as soon as possible, inviting their attention to the fact that ~e -, . Board had powers of an Industrial Tribunal under - , e • . __,. ._ . . S.C.R. SUPREME COURT REPORTS • 175 Act and if newspapers failed to send their replies, the Board would be compelled to take further steps in the :tnatter. This is clearly indicative of the fact that the Express News- papers (Private) Wage Board did seek to exercise the powers un er the Ltd., & A"nother terms of s. 11 of the Act. Even though, the exercise of such powers was discretionary with the Board, the Tlte Union of India Board itself assumed these powers and assimilated its • position to that of ~n Industrial Tribunal constituted If, then, it • assumed those powfll's, it only followed that it was also bound to follow the procedure which an Industrial Tri bunal so constituted was'bound to follow. under the Industrial Disputes Act, 1947. Bhagwati f. &- Others d v. • It is further urged that in the whole of the question naire which was addressed by the Wage Board to the newspaper establishments, there was no concrete pro- posJtl which was submitted by the Wage Board to them for their consideration. The only question which was addressed in this behalf was Question No. 4 in Part "A" which asked the newspaper establishments whether the basic minimum wage, dearness allowance and metropo- litan allowance suggested by the Press· Commission were acceptable to them and if not, what variations would they suggest and why. The question as framed would not necessarily focus the attention of the news- paper establishments to any proposal except the one which was the subject·~matter of that question, viz., the proposal of the Press Commission in that behalf and the newspaper establishments lo· whom the questionnaire was addressed would certainly not have before them any indication at all as to what was the wage struc-. ture which was going to be adopted by the Wage Board. Even though the Wage Board came to the ~on~lusion, as a result of its having collected the requi- site data and gathered sufficient materials, after receiving the answers to the questionnaire and examin- ing the witnesses, that certain wage ~tructure was a proper one in its opinion, it was necessary for the Wage Board to communicMe the proposals in that regard to the various newspaper establishments concerned and to make their representations, if any, invite them wi7h · a specified period. It was only after such re- tations were repeived from the interested parties ~ . . """--... . . • ... .. ' • v. The Union of India 176 SUPREME COURT REPORTS • [1959] • z958 that the Wage Board should have finalized its propo- sals and published its decision. If this procedure had Express News b een adopted the decision of the Wage Board could not papers (Private) Ltd., i;. A .. oth" have been challenged on the score of its being contrary to the principles of natural justice. It would have been no doubt more prudent for the & Othm Wage Board to have followed the procedure outlined Bhagwati J. above. The ground No. 8 is, in our opinion, sufficiently • determinative of the question as to the ultra vires cha racter of the \Vage Board decisio11 and in view of the conclusion reached by us in regard to the same, we refrain from expressing any opinion on this ground of attack urged by the Petitioners. · Re. 4. This ground is urged because no reasons were given by the Wage Board for its decision. As a matte• of fact, the Wage Board at its meeting dated April 22, 1957, agreed that reasons need not be given for each of the decisions and it was only sufficient to record the same and accordingly it did not give any reasons for the decision which it published. In the absence of any such reasons, however, it was difficult to divine what considerations; if any, prevailed with the Wage Board in arriving at its decision on the various points involv ed therein. It was no doubt not incumbent on the Wage Board to give any reasons for its decision. The Act made no provision in this behalf and the Board was perfectly within its rights if it chose not to give any reasons for its decision. Prudence should, however, have dictated that it gave reasons for the decision which it ultimately reached because if it had done so, we would have been spared. the necessity of tryin.g to probe into its mind and find out whether any particu., lar circumstance received due consideration at its hands in arriving at its decision. The fact that no reasons are thus given, however, would not vitiate the decision in any manner and we may at once say that even though no reasons are given in the form of a regular judgment, we have sufficient indication of the Chairman's mind in the note which he made on April 30, 1956, which is a contemporaneous reco~x­ plaining the reasons for the decision of the ntaj rity. . __,. • • , . • • • , .. • .i ; - - S.C.R. S.UPREME COURT REPORTS 177 This note of the Chairman is very revealing and throws considerable light on the question whether particular Express N cw.<• circumstances were at all taken into consideration by papers (Private) the Wage Board before it arrived at its decision. Ltd., 6- ffnoth .. R~~ This ground concerns the classificatioi.i of newspaper The U:,~~ of India ~ _••s Bhagwati J. • establishments on the basis of gross revenue. Such classification was challenged as illegal and unauthorised by the Act. The . Act certainly says nothing about • classification and <tould not be expected to do so. What the Act authorised it to do was to fix the rates of wages for working journalists having regard to the principles laid down ins. 9(1) of the Act. In fixing the wage structure the Wage Board constituted under the Act was perfectly at liberty if it thought necessary to claS'Sify the newspaper establishments in any lllanner it thought proper provided of course that such classifi cation was not irrational. If the newspaper establish ments all over the country had got to be considered in regard to fixing of rates of wages of working journa lists employed therein it was inevitable that some sort of classification should be made l!aving regard to the size and capaoity of newspaper establishments: Various criteria could be adopted for the purpose of such classi fication, viz., circulation of the newspaper, advertise :qient revenue, gross re; venue, capital invested in the business, etc., etc. Even. though the proportion of advertisement revenue to the gross revenue of news- paper establishments may be a relevant consideration for the purpose of classification, we are· not, prepared to say that the Wage Board was not justified in ado:et ing 1'his mode of classification on the basis of gross :r-evenue. It was perfectly withinits competence to do so and if it adopted that as the proper basis for classifi- cation it cannot be said that the 'basis which it adopted was radically wrong or was such as to vitiate its decision. If the need for classification is accepted, as it should be, having regard to the various sizes and capacities of newspaper. establishments all over the country it was certainly necessary to adopt a work- a/be st for such classification and if the Wage Board • • • • "-...... ' . , - r958 178 SUPREME COURT REPORTS • ha.d adopted classification· on the basis of the gross revenue, we do not see any reason why that decision [1959] Express N'ws- of its was in any manner whatever unwarranted. paper~ {Private) Ltd .• & Al!oth" _v. It may be remembered in this connection that the . Newspaper Industry Inquiry Committee in U. P. ha,d. The Union °1 Ind•asuggested in its report dated March 31, 1949, <Jlassifica- t" 10n o newspapers m . th '- f " 11 e manner 10 owmg :- . • & Others Bhagwati J. • , "A" Class-Papers with (1) a circulation of 10,000 coRies or above or (2) an invested capital of rupees 3 lakhs or more (3) an annual income of rupees 3 lakhs or more ; "B" Class-Papers with 1 (1) a circulation below 10,000 but above 5,000 copies or • (2) an invested capital between rupees one lakh and 3 lakhs or (3) an annual income between rupees one lakh and 3 lakhs; "C" Class-Papers with (1) a circulation below 5000 copies or (2) an invested capital below rupees one lakh or (3) an annual income below rupees one lakh. The classification on the basis of gross revenue was attacked by the petitioners on the ground that in the tlarned by the newspaper gross revenue which is establishments, advertisement revenue ordinarily forms a large bulk of such revenue and the revenue earned by circulation of newspapers forms more often than not a small part of. the same, though in re~ard to language newspapers the position may. be some what different. Unless, therefore, the proportion 01" advertisement revenue in the gross revenue of news paper establisMnents were taken into consideration, it would not be possible to form a correct estimate of the financial status of that new81Japer establishment with a view to its classification. The petitioners on the other hand suggested that the profit and loss of the newspaper establishments should be adop~as the proper test and if that wi::re adopted a tli erent . .,.,..,, - • • . .. < • • S.OtR. • - SUPREME COURT REPORTS • 179 picture altogether would be drawn. The _balance sheets and the profit and loss accounts of the several Express News· newspaper establishments would require to be con- papers (Priv~t•) sidered and it was contended that even if the gross Ltd.,.& Anothtr revenue of a particlar newspaper establishment were so large as to justify its inchision on the basis of gross The Union of India revenue in Class " A " or Class " B " it niight be work- • ing at a loss and its classification as such would not be & Others Bhagwati J. v. justified. We have already.referred in the earlier part of this judgment to the unsatisfactory nature of the profit and loss test. Even though the profit and loss accounts and the balance-sheets of the several limited com panies may have been audited by their auditors and may also have been accepted by the Income-tax auihorities, they would not afford a satisfactol'.y basis for classification of these newspaper establishments for the reasons already set out above. As a matter of fact, even before us attempts were made by the respondent, the Indian Federation of Working Journalists to demonstrate that the profit and loss accounts and the balance-sheets of several petitioners were manipulated and unreliable. We are not called upon to decide whether the profit and loss test is one which shou_ld be accepted ; it is sufficient for our purpose to say that if such a test was not ' accepted by the Wage Board, . the Wage Board was certainly far from wrong rn :doing so. • • ' Re. 6. This ground relates to -grouping into chains or multiple units and the ground of attack is that such· grQuping is unauthorised by the Act. • The short answer tO this contention is that if such gmuping into chains or multiple units was justified having regai·d to the conditions of the newspaper industry in the country, there was ncfthing in the Aet which militated against such grouping. The Wage Board wa.s .authorised to fix. the wage structure for working journalists who were ,employed in various newspaper establishments all over the country.: If the ch1tins or multiple units existed in the country the 7s1~per ~st~ments which formed such eh:ins " "-:'- .. 180 SUPREME COURT REPORTS • [19.59] '· v. h h r958 & Others or. multiple units were well within'the purview of the inquiry before the Wage Board and if the Wage Board h Express News- papers (Private) t us chose to group t em together in t at manner Ltd., &.A"llther such grouping by itself could not be open to attack. The Act could not .have expressly authorized the Wage The Union of Indi" Board to adopt such grouping. It was up to the Wage Board to consider whether such grouping was justified under the circumstances or not and unless we find something in the Act which prohibits the Wage Board · from doing so, we would not deem ¥1Y such grouping as unauthorised. The real difficulty, however, in the matter of grouping into chains or multiple units arises in connection with the capacity of the industry to pay, a topic which we shall discuss hereafter while discuss ing the ground in connection therewith. Bhagwati J. • • Re. 7. This ground is based on the definition of" newspaper establishment" found in Sec. 2 (d) of the Act. "News paper establishment" is there defined as" an establish ment under the control of any person or body of persons, whether incorporated or not, for the pro duction or publication of one or more newspapers or for conducting any news agency or syndicate." So, the contention put forward is that "an establish can only mean "an establishment " and ment " ' not a group of them, even though such an indivi dual establishment may P.roduce or publish one or more newspapers. The "definition may comprise within its scope chains or multiple units, but even so, the establishment should be one individual establish ment producing or publishing a chain of newspapers or multiple units of newspapers. If such chains 0or multiple units were, though belonging to some person • or body of persons whether incorporated or not, pro duced or published by separate newspaper establish ments, common c"ontrol would not render the consti tution of several newspaper establishments as one establishment for the purpose of tllis definition, they would none the less be separate newspaper establish ments though under common control. Reliance was placed in support of this contentioqon a decision of the Calcutta High Court in P;avat ~u~r . . _., ~ · • • , ' • S.C.R. SUPREME COURT REPORTS • 181 v. W. T. C. Parker (1), where the expression which came up for construction before the Court was " employed Express N•ws in ·an industrial establishment " and it was observed papers '(Private) that:- Ltd., e. A~other v. " Employed in an industrial establishment "must x951> mean employed in some particular place, that place The Union of India being the place used for manufacture or an activity • amounting to industry, as that term is used in the &- Others Bhagwati J. Act." A similar interpretation was . put on the expression "industrial establishment " by the Madras High Court in S. R. V. Service Ltd. v. State of Madras( 2 ), where it was observed at p. 12 :- "They referred only to a dispute between the industrial workers and the management of one establishment, the Kumbakonam branch of the S. R. V. "s. Ltd. I find it a little difficult to accept the contention of the learned counsel for the Madras Union, that the Kumbakonam branch of the S. R. V. S. Ltd., is not an industrial establishment as that expression has been used in the several sections of the Act ..................................................... I need refer only to section 3 of the Act to negative the contention of the learned counsel for the Madras Union, the S. R. V. S. Ltd., with all 1 its branches should be taken as one industrial establishment." These decisions lend support to the contention that a newspaper establishment9Iike an industrial establish- ment should qe located in one place, even though it may be carrying on its activities of production or If these publication of more newspapers than one. activities are carried on in different places, e. g.; in different towns or cities of different States, the news- paper establishments producing or publishing such newspapers cannot be individual establishment but should be treated as• separate news- paper establishments for the purpose of working out the relations betwee"n themselves and their employees. There would be no justification for including these different newspaper establishments into one chain or multjple unit and treating them, as if they were one treated as one " A.I. R. 1950 Cal. u61 u8, para. zo. A.i,; R. 1951i Mad. rr5, 122. ........ ..... . . - ' .... .. • 182 SUPREME COURT REPORT~ [1959] • "" 011 v. "" Bhagwali J. newspaper establishment. Here again, the petitioners are faced with this difficulty that there is nothing in Express News papers (Priva") the Act to prohibit such a grouping. If a classification Ltd., d;. A'nother on the basis of gross revenue could be legitimately adopted by the Wage Board then the grouping into Th• Union of India chains or multiple units could also be made by it. There is nothing in the Act to prohibit the treating of several newspaper establishments producing or publish- • ing one or more newspapers though in different parts of the country as one newspaper e~tablishment for the purpose of fixing the rates of wages. It would not be illegitimate to expect the same standard of employment and conditions of service in several newspaper establish ments under the control of any person or body of persons, whether incorporated or not; for an employer to think of employing one set of persons on higJier scales of wages and another set of workers on lower scales of wages would by itself be inequitous, though it would be quite legitimate to expect the difference in scales having regard to the quality of the work requir ed to be done, the conditions of la hour in different regions of the country, the standard of living in those regions and other cognate factors. ' .. • • All these considerations would necessarily have to be borne in mind by the Wage Board in arriving at its decision in regard to· the wage structure though the relative importance to be attached to one circumstance or the other may vary in• accordance with the con ditions in different areas or regions where the news paper establishments ai-e located. Re. 8 . We now come to the most important ground, ¥iz., that the decision of the Wage Board has not taken into. consideration the capacity to pay of any particular newspaper esta~lishment. As we have already seen, the fixing of rates of wages by the Wage Board did not prescribe whether the wages wpich were to be fixed were minimum wages, fair wages, or living wages and it was left to the discretion of the Wage Board to deter mine the same. The principles for its guidance were, however, laid down and they prescribed the cittmr. stances which were to be taken into consi<ierati~tJ. ~ora • . ,J " - - , ·~ S.C.R. SUPREME COURT REPORTS ' 183 v. r95S & Others Bhagwati 1. such determination was made by the Wage Board. One. of the essential considerations was ~he ca J?ac.ity of Expr"ss News the mdustry to pay and that was comprised w1thm the papers (Privat•) category "the circumstances relating to newspaper Ltd., p. .Another industry in different regions of the country". It remains to consider, however, whether the Wage Board The Union of India really understood this category in that sense and in • fact applied its mind to it. At its preliminary meeting held on May 26, 1956, the Board set up a Sub- Committee to draft.a questionnaire to be issued to the various journals and organisations concerned, with a .view to eliciting factual data and other relevant inforlllfl'tion required for the fixation of wages. . The Sub-committee was requested to bear in mind the need inter alia for proper classification of the country into different areas on the basis of certain criteria like population, cost of living, etc. This was the only reference to this requirement of s. 9(1) and there was no reference herein to the capacity of the industry to pay which we have held was comprised therein. The only question in the questionnaire as finally framed which had any reference to this criterion was Question No. 7 in Part " A " under the heading " Special Circumstances" and that question was : "Are there in yoµr regions any special conditions in respect of the newspaper industry which affect the fixing of rates of wages of working ' journalists? If so, specify the conditions and indicate how they affect the questfon of wages." But here also it is difficult to find that the capacity of the industry to pay was really sought to be included in these special conditions. The Wage Board no doubt asked for detailed accounts of newspaper establishments and also re•quired information which would help it in the proper • evaluation of the nature and quality of work of various categories of working journalists, but the capacity of the industry to pay which was one of the essential considerations was nowhere prominently brought in issue and no information on that point was sought from the various newspaper establishments to whom the questionnaire was going to be addressed. The a~wers to Question No. 7 as summarized by the Wage B)ar~ no d?ubt referred in some cases to the capacity " • . • ~ ' . . ) .- 184 SUPREME COURT REPORT~ [1959] of the industry to pay but that was brought in by the newspaper establishments themselves who answered "•P"'' News- the question in an incidental manner and could not be papers {Private) Lid .. & A~other said to be prominent in the minds of the parties concerned. v. The Union of India & Others Bhagw".." J ' . It is pertinent to observe that even before the Press Commission the figures had disclosed that out of 127 newspapers 68 had been running into loss and 59 with • profits and there was an overall profit of about 1 % on a capital investment of seven cror.-~. The profit and loss accounts and the balance sheets of the various companies owning or controlling newspaper establish- ments were also submitted before the Wage Board but they had so far as they went a very sorry tale to tell. The profit and loss statements for the year 1954-55 revealed that while 43 of them showed profits 40 bJtd incurred losses. Though no scientific conclusion could be drawn from this statement it showed beyond doubt that the condition of the newspaper industry as a whole could not be considered satisfactory. Under these circumstances, it was all the more incumbent upon the Wage Board even though it discounted these profit and loss statements as not necessarily reflecting the true financial position of these newspaper establishments, to cunsider the question of the capacity of the industry to ' pay with greater vigilance. • · • • There was again another difficulty which faced the Wage Board in that behal! and it was that out of 5,705 newspapers to whom the questionnaire was addressed only 312 or at best 325 had responded and the Wage Board was in the dark as to what was the position in regard to other newspaper establishments. As a matter of fact, the chairman in his note dat~d • April 30, 1957, himself pointed out that the Wage Board had no data before it of all the newspapers and where it had, that was in many cases not satisfactory. This aspect was again emphasised by him in his note when he reiterated that the data available to the Wage Board had not been as complete as it would have wished them to be and "therefore recommended in the end the establishment of a standing administrajfve ma~hinery which would collect from.., al~ new~a"- "'""' ..... ) s.c.R. SUPREME COURT REPORTS ' 185 ,, v. &o Others Bhagwati J. establishments in the country on a sy~tematic basis detailed information and data stich as those on employ- Expfess News- :oient, wage rates and earnings, financial condition of papers (Private) papers, figures of circulation, etc., which may be Ltd., Jf,. Another required for the assessment of the effects of the decision of the Wage Board at the time of the review. The The Union of India Wage Board, in fact, groped in the dark in the absence • of sufficient data and information which would enable it to come to a proper conclusion in regard to the wage structure which it 'fas to determine. In the absence of such data and materials the Board was not in a position to work out what would be the impact of its proposals on the capacity of the industry to pay as a whole or even region-wise and the chairman in his note stated that it was difficult for the Board at that stage to work out with ·any degree of precision, the economic ana other effects of its decision on the newspaper industry as a whole. Even with regard to the impact of these proposals on individual newspaper establish- ments the chairman stated that the future of the Indian language newspapers was bright, having regard to increasing literacy and the growth ·of political con- sciousness of the reading public, and by rational manage- ment there was great scope for increasing the income of newspapers and even though there was no possibili~ of any adjustment which might satisfy all persons interested, it was hoped that no newspaper would be forced to close down as fl. result of its decision ; but that if there was a good paper and it deserved to exist, the Government and the public would help it to continue. This was again a note of optimism which does not appear to have been justified by any evidence on the record. • Even though, the Wage Board classified the news paper establishments into 5 classes from "A" to "E" on the basis of their gross revenue thti proportion of the advertisement revenue to the gross revenue does not appear to have been taken into consideration nor was the essential difference which subsisted between the circulation and the paying capacity of the language new\Papers as compared with newspapers in .. ' "" • 24 • . J • ·• ' - ..-· • x9ss 186 [1959] • & Othm Bhagwati J. SUPREME COURT REPORTS , English language taken into account. If this had been Exp•ess News· done, the basis of gross revenue which the Wage Board papers (Privafo) adopted would have been modified in several respects. The grouping of the newspapers into chains or Ltd., &A""ther multiple units implied that the weaker units in those v. The Union af India groups were to be treated as on a par with the stronger units and it was stated that the loss in the weaker units would be more than compensated by the profits • in the more prosperous units. The impa.ct of these proposals on groups of newspaper~ was only defended on principle without taking into consideration the result which they would have on the working of the weaker units. Here also the Chairman expressed the opinion that the Board was conscious that as a result of its decision, some of the journalists in the weaker units of the same group or chain may get much more than those working in its highest income units. however stated that if the principle was good and scientific, the inevitable result of its application should be judged from the stand-point of Indian Journalism as a whole and not the burden it casts on a particular establishment. It is clear therefore, that this principle which found favour with the Wage Board was sought to be worked out without taking into consideration the ~rden which it would impose upon the weaker units ' of a particular newspaper establishment. . . • • The representatives of the employers objected to the fixation of scales of wages rm the plea that fixation of rates of wages did not include the fixation of scales of wages. This contention was negatived by the represent atives of the employees as also by the Chairman and the" Wage Board by its majority decision accepted the position that it could, while fixing the rates of wages also fix the scales of wages. The Press Commission•. itself had merely suggested a basic minimum wage for the consideratid'n of the parties concerned but had suggested that so far as the scales of wages were concerned they were to be settled by collective bargain ing or by adjudication. Even though the Wage Board took upon itself the burden of fixing scales of wages as really comprised within the terms of their referen~, it the i~a~ of was incumbent upon it to conside:r what . 0 / ....... -- _, , f • S.C.R. SUPREME COURT REPORTS 187 . ' the scales of wages fixed by it w·ould b@ on the capacity of the industry to pay. There is nothing on the record Express News- to suggest that both as regards the rates of wages and papers (Private) the scales of wages which it determined the Wage Ltd.,6 nnotlter Board ever took into account as to what the impact of its decision would be on the capacity of the industry The Union of India to pay either as a whole or region-wise. y. &- Others Bhagwati J . • There is, however, a further difficulty in. upholding the decision of the Wage Board in this behalf and it is this that even as r~ards the fixation of the rates of wages of working journalists the Wage _Board does not seem to have taken into account the 1 other provisions of the Act which conforred upon the working journalists the benefits of retrenchment compensation, payment of gratuity, hours of work and leave. These provisions were bound to have their impact on the paying capa- ci~ of the newspaper establishments and if these had been borne in mind by the Wage Board it is highly likely that the rates of wages including the scales of wages as finally determined might . hav{) been on a lesser scale than what one finds in its decision. This difficulty becomes all the more formidable when one considers that the working journalists only constituted at best one-fifth of the total staff employed in the various establishments. The rest of the 8~ comprised persons who may otherwise be described ~0 factory workers who would be able to ameliorate their conditions of service by ha.-ing resort to the machinery under the Industrial Disputes Act. If the conditions of service of the working journalists were to be improv ed by the Wage Board the other employees of news paper establishments wer{) bound to be restive a.nd they would certainly, at the very earliest opportunity •raise industrial disputes with a view to the betterment of their conditions of service. Even though the Industrial Courts established under• the Industrial Disputes Act, 1947, might not give them relief commen surate with the reli!if which the Wage Board gave to the working journalists, there was bound to be an improvement in their conditions of service which the Indllstrial Court would qertainly determine having regaM to the benefits which .the working journahsts • . . • . 1 . • .. • • •· ' "-· ) 188 SUPREME COURT REPORTS , [1959] Id h" h enjoyed and this would indeed impose an additional financial burden on the newspaper establishments h Express News- su stant1a y auect t eir capacity to pay. papm (Private) w IC wou Ltd .. s A"other This consideration also was necessarily to be borne in mind by the Wage Board in arriving at its final The Union of India de"cisior:i and one does not find anything on the record which shows that it was actually taken into co-nsidera- tion by the Wage Board. <>- Others · 11 b v. - • Bhagwati J. \ The retrospective operation of the decision of the .Wage Board was also calculated tQ impose a financial burden on the µewspaper establishments. Even though this may be a minor consideration as compared with the other considerations above referred to, it was none the less a circumstance which the Wage Board ought to have considered in arriving at its decision in regard to the fixing of rates of wages. .. • • The financial burden which was imposed by the decision of the Wage Board was very vividly depicted in the statements furnished to us on behalf of the petitioners in the course of the hearing before us. These statements showed that the wage bill of these newspaper establishments was going to be considerably increased, that the retrospective operation of the deci sion was going to knock off a considerable sum from ~eir reserves and that the burden imposed upon the newspaper establishments by the joint impact of the provisions of the Act in regard to retrenchment compensation, payment of gratuity, hours of work and leave as well as the decision of the Wage Board in regard to the fixing of rates of wages and the scales of wages would be such as would cripple the resources of the newspaper establishments, if not necessarily lead to their complete extinction. The statements also sho~ed what extra burden was imposed upon the newspaper• establishments, if they wanted to discharge the work ing journalists ftom their employ which burden was all the greater, if per chance, the newspaper establish ments, even though reluctantly came to a decision that it was worth their while to close down their business rather than continue the same with all these financial burdens imposed upon them. f · These figures have been given by us in th\ earlier . ~ • • •• .; S.C.R. SUPREME COURT REPORTS ' 189 z958 part of our judgment and we need not repeat the same. The conclusion, however, is inescapable that the deci- Express News- 1 sion of the Wage ~oard imposed a very ea vy · nancia papers (Private) burden on the newspaper establishments, which burden Ltd., &-,Anothtr was augmented by the classification on the basis of gross-revenue; fixation of scales of wages, provisions as The Union of India regards the hours of work and leave, grouping of news- •papers into chains or multiple units and retrospective operation given to the decision of the Wage Board as therein mentioned. & Others Bha:wati J. h v. · If these proposals had been circulated, before being finalized, by the Wage Board to the various news paper establishments so that these newspaper establish ments could, if they so desired, submit their opinions thereupon and their representations, if any, in regard to the same to the Wage, Board for its consideration and• if the Wage Board had after receiving such opinions and representations from the newspaper establishments · concerned finalised it decision, attack on the ground of the Wage Board not having taken into consideration the capacity of the industry to pay as a whole or region-wise would have lost much of its force. The Wage Board, however, did nothing of Proposals were exchanged between the the type. representatives of the employers and the represenl..,.. atives of the employees. chairman had with each set of representatives did not bear any fruit and the cltairman: himself by way of mediation, as it were, submitted to them his own pro- posals presumably having regard to the different points of· view w;!iich had been expressed by both these parties. The decision in regard to the scales of wages, was, eas we have seen before, a majority decision which ~as not endorsed by the representatives of the em· ployers. The proposals of the ch~irman also were not , acceptable to the representatives of th@ employers but the representatives of the employees accepted them and they thus beca.me the majority decision of the Wage Board. The ultimate decision of the chairman on those points does not appear to have been the result of al\Y consideration of the capacity of the industry to pay as a whole or region-wise but reflects a compromise ' • . The discussion that the" •• • 190 SUPREME COURT REPORTS [1959] I • I958 which he brought about between the diverse views but which also was generally accepted only by the representatives of the employees and. not the represent Express News- papers (Private) Ltd .•• &,.4nother atives of the employers. Now here can we find in the instant case any genuine consideration of the capacity The Union of India of the industry to pay either as a whole or region-wise. & Others We are supported in this conclusion by the observa v. tions of the chairman himself in the note which he• Bhagwati f. made simultaneously· with the publication of the deci- sion on April 30, 1957, that it was difficult for the Wage Board at that stage to worlt out with any degree of precision, the economic and other effects of the decision on the newspaper industry as a whole. ' r An attempt was made on behalf of the respondents ·in the course of the hearing before us to shew that by the conversion of the currency into naye pyse and the newspapers charging to the public higher prim~ by reason of such conversion, the income of several news papers had appreciably increased. These figures were, however, controverted on behalf of the petitione_rs and it was pointed out that whatever increase in the reve nue was brought about by reason of this conversion of price into naye pyse was more than offset by the fall in circulation, ever rising price of newsprint and the J;i.igher commission, etc., which was payable by the .......... newspaper establishments to their comniission agents. The figures as worked out need not be described here in detail; but we are satisiied that the conversion of the price into naye pyse had certainly not the effect which was urged and did not add to the paying capa city of the newspaper establishments. ;rhe very fact that the Wage Board thought it necessary to express a pious hope that if thert!' is a good paper and it deserves to exist, the Governmen1' and the public will help it to co_ntinue, and also desired the interests ""'hich it felt had been hit hard bv its decision not to pass judgment in haste, but to ~atch the effects of its decision in actual working with patience for a period of 3 to 5 years, shows that the \V age Board was not sure of its own ground and was publishing its decision merely by way of anexperiyient. The chairman urged upon the Gqvernment of India • • • • .. • • S.C.R; • SlJPREME COURT REPORTS 191 the desirability of creating immediately a standing administrative machinery which could also combine in Express News- itself the functions of implementing and administering p,,pers (Privat•) its decision and that of preparing the ground for the Ltd., &"An'otl•er leview and revision envisaged after 3 to 5 years. This was again a pious· hope Board. It was not incumbent on the Government to •fulfil that expectation and there was no knowing whe- ther the Government would ever review or revise the • decision of the W ag<i Board at the expiration of such indulged in by the 'Vage The Union °1 India & Others Bhagwati 1 .. v. period. . We have carefully examined all the proceedings of the Wage Board and the different tables and state ments prepared by them. Neither in the proceedings nor in any of the tables do we see satisfactory evidence to show that the capacity of the industry to pay was examined by the Board in fixing the wage structure. As we have already observed, it was no doubt open to the Board not to attach undue importance to the state ments of profit and loss accounts submitted by various new spa per establishments, b~t, since these statements prima facie show that the trade was not making profit it was all the more necessary for the Board to satisfy itself that the different classes of the newspaper esta blishments would be able to bear the _burden impose~ by the wage structure which the Board had decided to fix. Industrial adjudication is familar with the method which is usually adopted to •determine the ca pa city of the employer to pay the burden sought to be ~mposed on him. into different classes it may not be necessary to consider the ca pa.city of each individual unit to pay but it would certain'ly be n~cessary to consider the capacity of the respective m.asses to bear the burden imposed on them. A cross- section of these respective classes may have to be taken for careful examination and all relevant factors may • have to be borne in mind in deciding what burden the class considered as a "whole can bear. If possible, an attempt can also be made, and is often made, to pro ject the burden of the wage structure into two or three succe, ding years and determine how it affects the financiarpositi?n of the· employer. The whole of the If the industry is divided •• • • • • 1 , 192 SUPREME COURT REPOR'J/' [1959] t95B & Othm Bhagwati j. record before the Board including the chairman's note Expms News· gives no indication at all that an attempt was made papers (P,ivate) by the Board to consider the capacity of the industry to pay in this manner. Indeed, the proceedings show Ltd.,~ '11101/ier that the demands made by the .representatives of the _ v. 1 he Union of India employees and the concessions made by the employers' representatives were taken as rival contentions and.the Chairman did his best to arrive at his final decision on• the usual basis of give and take. In adopting this course, all the members of the Bo~rd seem to have lost sight of the fact that the essential pre-requisite of deciding the wage structure was to consider the capa city of the industry to pay and this, in our opinion, introduces a fatal infirmity in the decision of the Board. If we had been satisfied that the Board had considered this aspect of the matter, we would natu rally have been reluctant to accept any challenge to the validity of the decision on the ground that the capacity to pay had not been properly considered. After all, in cases of this kind where speoial Boards are set up to frame wage structures, this Court would normally refuse to constitute itself into a court of appeal on questions of fact; but, in the present case, an essential condition for the fixation of wage structure _...-1_!'as been completely ignored and so there is no escape from the conclusion that the Board has contravened the mandatory requirement of s. 9 and in consequence its decision is ultra vires thii Act itself. ' • • • • Re. 9 . This ground, viz., that the Board had no authority to rm;1der a decision which was retrospective in operation · in also untenable. The Wage Board certainly had, the jurisdiction and authority to pronounce a decisior» which could be retrospective in effect from the date of its appointment and there was no legal flaw in the Wage Board prescribing that its decision should be retrospective in operation in the jllanner indicated by it. The retrospectivity may have its repercussions on the capacity of the industry to pay and we need not say anything more in _regard to the same. we; iave already dealt with it above. • • • • , • ., 1. S.C.R. fiUPREME COURT REPORTS 193 . d . h f h Re. 10. Ground No. 10 talks of the authority of the Wage Express News Board to fix scales of pay for a period of 3 years, sub- papers (PYivate) ject to review by the Government by appointing Ltd., g A'nother another Wage Board at the end of that period. We are h fix at10n o t e perm or t e not concerne wit sue • simple reason that the Board has not in terms done so. The only authority which it had was to fix the rates of wages and submit its decision in respect thereof to the • Government. Any pious hope expressed that the decision should be subject to review or revision by the Government by appointment of another Wage Board after the lapse of 3 or 5 years was not a part of its decision and we need not pause to consider the effect of such fixation of the period, if any, because it has in facJ; not been done. Bhagwati J. . d £ v. h The Union of India & Othe Re. 11. The last ground talks of the Wage Board being handicapped for want of Cost of Living Index. This ground also cannot avail the petitioners for the simple reason that the decision of the Wage Board itself referred in Clause 24 thereof to the all India cost of living index number published by the Labour Bureau of the Government of India 0 Base 1944: 100 alild fixed the dearness allowance in relation to the same~ These statistics were available to the Wage Board and it cannot be said that tlMJ Wage Board was in any . manner whatever handicapped in that respect. ·: On a consideration of all the grounds of attack thus levelled against the validity and the binding nature of the decision of the Wage Board, we have, therefore, confe to the conclusion that the said decision cannot •be sustained and must be set aside. The petitions will, therefore, be allowed and the petitioners will be entitled to an orde~ declaring that s. 5 (1) (a) (iii) of the Working Journalists (Conditions of Service) and Miseellaneous Provisions Act, 1955, is ultra vires the Constitution of India and that the decision of the Wage Board dated April 30, 1957, is ille~l and void. . )_ • • • • As regards the costs, in view of the fact that the 25 • -· . • 194 SUPREME COURT REPORT~ [1959] ' Express News papers (Private) Ltd., &. lnother v. The Union of India & Others Bhagwat; ·J. petitioners have failed in most of their contentions in regard to the constitutionality of the Act, the fairest order would be that each party should bear and pay its own costs of these petitions. Civil Appeals Nos. 699-703 of 1957. These Civil Appeals are directed against the decision of the \Vage Board and seek to set aside the same as • destroying the very existence of the newspaper establishments concerned and infringing their funda mental rights. Special leave uncfer Art. 136 of the Constitution was granted by this Court in respect of each of them, subject to the question of maintain ability of the appeals being open to be urged. These appeafa are also covered by the judgment just delivered by us in Petition No. 91 of 1957 & Ors., and the appellants would be entitled to a declaratio1t in each one of them that the decision of the Wage Board is ultra vires the Working Journalists (Conditions of Service) and Miscellaneous Provisions Act, 1955, and therefore void and inoperative. In view of the conclusion thus reached, we feel it unnecessary to .consider whether the appeals would be maintainable under Art. 136 of the Constitution. The Apellants having substantially succeeded in their respective petitions under Art. 32 of the Constitution, the question has now become purely academic and we need not spend any time o~er the same. The -result therefore is that there will be no orders save that all the parties thereto shall bear and pay their own costs thereof . Petitions allowed. • Appeals disposed of accordingly . • • • •• • • , • • • •