MANIBEN MAGANBHAI BHARIYA vs. DISTRICT DEVELOPMENT OFFICER

REPORTABLE IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION CIVIL APPEAL NO(S). 3153      OF 2022    (@ SLP(CIVIL) No. 30193 of 2017] MANIBEN MAGANBHAI BHARIYA … APPELLANT(S) v. DISTRICT DEVELOPMENT OFFICER DAHOD & ORS. … RESPONDENT(S) WITH  CIVIL APPEAL NO(S). 3154      OF 2022    (@ SLP(CIVIL) No. 30834 of 2017] CIVIL APPEAL NO(S).  3155      OF 2022    (@ SLP(CIVIL) No. 30809 of 2017] CIVIL APPEAL NO(S).  3156    OF 2022    (@ SLP(CIVIL) No. 30820 of 2017] CIVIL APPEAL NO(S). 3157   OF 2022    (@ SLP(CIVIL) No. 5392 of 2018] AND Signature Not Verified Digitally signed by NIRMALA NEGI Date: 2022.04.25 18:46:45 IST Reason: CIVIL APPEAL NO(S). 3158   OF 2022    (@ SLP(CIVIL) No. 29011 of 2018] 1 J U D G M E N T Rastogi, J. 1. I   have   had   the   advantage   of   going   through   the   judgment penned by my brother Abhay S. Oka, J.   I entirely agree with the conclusions which my erudite Brother has drawn, based on the remarkable   process   of   reasoning.     I   wish   to   add   few   lines   and express my views not because the judgment requires any further elaboration  but looking for the  question of  law  that emerged of considerable importance. 2. The   moot   question   which   has   been   raised   in   the   instant appeals for our consideration indeed is a question which may not only determine the rights of the contesting appellants working as Anganwadi workers/helpers who are discharging a pivotal role in the society at the grassroot level and are the role model of the ICDS 2 scheme which is one of the extended arm of the Ministry of Women and   Child   Development,   at   the   given   time,   it   may   also   give   a thought process to the Legislature to consider as to whether the applicability   of   gratuity   being   a   social   security   measure,   be extended   to   the   employees   who   served   the   establishment   in   an organized   or   unorganized   sector   and,   in   one   way   or   the   other, contributing in the sustainable development of the nation. 3. Looking   to   the   large   number   of   persons   working   in   the organized/unorganized sector by passage of time, different social security legislations have been introduced in this largest democratic country, which can be divided into two broad categories, namely, the contributory and non­contributory.   The contributory laws are those which provide for financing of the social security programmes by contributions paid by employees and employers and in some cases supplemented by contributions/grants from the Government. At the same time, we have major non­contributory laws such as the Employee’s   Compensation   Act,   1923,   the   Maternity   Benefit   Act, 1961 and the Payment of Gratuity Act, 1972 with which we are presently concerned. 3 4. When   we   talk   about   social  security   legislations,   two   broad categories   are   social   insurance   legislation   and   social   assistance legislation.     In   social   insurance,   benefits   are   generally   made available to the insured persons under the condition of having paid the required contributions and fulfilling certain eligibility conditions and as regards social assistance, the beneficiaries receive benefits as a matter of right, but they do not have to make any contributions and to support thereof, the finance is made available either by the State or a source provided by the State/Central Government.   5. Before the enactment of the Payment of Gratuity Act, 1972 (hereinafter referred to as “Act, 1972”), there were two State Laws providing for payment of gratuity. These were the Kerala Industrial Employees’ Payment of Gratuity Act, 1970 and the West Bengal Employees’ Payment of Gratuity Act, 1971.   The question of having a central legislation on the subject was discussed at length in the Labour Minister’s Conference held on many occasions and after general   consensus   was   reached,   the   Central   Legislation   was 4 enacted in the form of The Payment of Gratuity Act, 1972, which th was brought into force on 16  September, 1972. 6. When we talk about the mandate of the Act 1972, if one looks into the scheme in a holistic manner, gratuity is a reward for good, efficient and faithful service rendered for a considerable period and the employee who remains in continuous service for 5 years or more including   superannuation/retirement/resignation/untimely   death becomes qualified to claim gratuity in terms of the computation as has been provided under Sub­section (2) of Section 4 of the Act, 1972   which   covers   in   its   fold,   the   large   sector   of organized/unorganized   workers/employees   who   are   employed   in various class of establishments covered under Section 1(3)(a) & (b) and also notified by the Central Government under Section 1(3)(c ) of   the   Act   1972.     Such   of   the   employees   working   under   the establishments referred to under Section 1(3) (a),(b) and (c ), as the case may be, shall be eligible to claim payment of gratuity in terms of Section 4 of the Act, 1972 and so far as the term ‘wages’ defined under Section 2( s) of the Act 1972 is concerned, it appears to be only for the purpose of computation as provided under Sub­section 5 (2)   of   Section   4   of   the   Act   and   withholding   of   gratuity   is   not permissible under any circumstances other than those enumerated under Sub­section (6) of Section 4 of the Act, 1972.   The employee defined   under   Section   2(e)   has   a   right   to   claim   gratuity   as   a statutory right while working in the establishment covered under Section 1(3) of Act 1972.  Section 1(3) and 2(e) and 2(s) of Act, 1972 relevant for the purpose are referred to as under:­ “1(3) It shall apply to –  (a)   every   factory,   mine,   oilfield,   plantation,   port   and   railway company;  (b) every shop or establishment within the meaning of any law for the time being in force in relation to shops and establishments in a State,   in   which   ten   or   more   persons   are   employed,   or   were employed, on any day of the preceding twelve months;  (c) such other establishments or class of establishments, in which ten or more employees are employed, or were employed, or, any day of the preceding twelve months, as the Central Government may, by notification, specify in this behalf. 2.     Definitions.   –   In   this   Act,   unless   the   context   otherwise requires,  ­ ……………… (e) "employee" means any person (other than an apprentice) who is employed for wages, whether the terms of such employment are express or implied, in any kind of work, manual or otherwise, or in connection with the work of a factory, mine, oilfield, plantation, port, railway company, shop or other establishment to which this Act applies, but does not include any such person who holds a post under the Central Government or a State Government and is governed by any other Act or by any rules providing for payment of gratuity. …………… 6 (s)   “wages”   means   all   emoluments   which   are   earned   by   an employee while on duty or on leave in accordance with the terms and  conditions  of  his  employments  and  which  are  paid  or  are payable to him in cash and includes dearness allowance but does not   include   any   bonus,   commission,   house   rent   allowance, overtime wages and any other allowance.” 7. Act, 1972 on the genre of statutes like The Minimum Wages Act, Employees State Insurance Act, etc. is a welfare measure to secure social and economic justice to employees to assist them in old age and to ensure them a decent standard of life on retirement. 8. Derived from a Latin word ‘Gratuitas’, the term Gratuity means a ‘Gift.’ In the industrial sector, gratuity is considered as a gift from the employers to their employees. Gratuity is a lump sum payment paid by an employer to the employee for his/her past dedicated services.  It is   a   gesture   to   appreciate   the   efforts   of   a   person   towards   the betterment, development and prosperity of an establishment and that is the reason for which gratuity is considered to be a social security, and with passage of time, it has become a statutory obligation on the part of employers. 9. Thus,   gratuity,   as   a   social   welfare   legislation,   its   effective implementation is of paramount importance to fulfil the legitimate 7 expectation of the employees.  So far as the unorganized sectors are concerned, these Acts have been pillars in social security and laid the   foundation   for   improvement   in   standards   of   living   of   the employees. 10. The Act 1972 is a social security legislation to wage earning population   in   industries,   factories   and   establishments,   etc. Therefore, considering the inflation and wage increase even in case of employees engaged in private sector, the Government decided that   the   entitlement   of   gratuity   should   be   revised   in   respect  of employees who are covered under Act, 1972 and accordingly, the Government initiated the process for amendment to Act, 1972 to increase the maximum limit of gratuity to such amount as may be notified by the Central Government from time to time. 11. This   will   indeed   ensure   harmony   amongst   employees   in   the private   sector   and   in   Public   Sector   Undertakings/Autonomous Organizations under Government who are not covered under CCS (Pension) Rules. These employees will be entitled to receive higher 8 amount  of   gratuity  may   not  be   at  par  with  their   counterparts in Government sector. 12. That appears to be the reason for which amendments are made in the year 2007 to widen the definition of the term “employee” and to bring under its fold the large number of employees working in various establishments   employed   for   wages   or   in   any   kind   of   work   or   in connection with the work of a factory, mine, oilfield, plantation, port, railway company, shop or any other establishment.     Even by later notification, teachers have also been held eligible to claim gratuity.

9 language.   Nevertheless,   even   where   the   usual   meaning   of   the words falls short of the object of the legislature, a more extended meaning will be attributed to them if they are fairly susceptible to it. The relaxation of strictly literal rule of interpretation is known as beneficial construction.”

exposition of law on the subject.

10

may be in the different context.

from   the   record   that   the   five   appellants   joined   as   Anganwadi workers/helpers between the period 1982­1985 and served for 21­31 years and stood retired between February 2006 and February 2012. When   gratuity   was   not   paid   to   them,   each   of   them   filed   their applications before the prescribed authority.  After taking note of the claim of each of the appellants, the prescribed authority held in their favour with a direction to the respondents to pay gratuity in terms of the procedure for computation referred to under Section 4 of the Act 1972.   The order of the prescribed authority under the Act, 1972 came to be confirmed  by the  appellate authority and  also  by the

2016 but the finding returned by the learned Single Judge came to be

11 reversed by the Division Bench of the High Court under the impugned

(supra).    The   details   of   each   of   the   appellant   who   had   served in Anganwadi workers/helpers are reproduced below:­

served for 21­31 years but because of the wages being admissible at the relevant time being Rs. 1000/­ or Rs. 1250/­ per month, the amount which has been computed towards gratuity in terms of the provisions of the Act 1972 is only into thousands of rupees. 12

(AWH) is not only at war against malnutrition but have played a pivotal and significant role during the Covid­19 pandemic which was   the   unprecedented   health   war   faced   by   the   nation   in responding to the various challenges posed.  These frontline women workers are the backbone of the ICDS.   The ICDS scheme was nd introduced on 2  October, 1975 and by this time has successfully completed its journey of 47 years and established its roots.   The record shows that ICDS is the world’s largest programme for early childhood care and development, covering over 158 million children as per 2011 census, and pregnant and lactating mothers in the country.  If we go as per the statistics as of June 2018, there were 1.36 million functional Anganwadi centres spread across all the districts in the country.   These districts are staffed by frontline health  staff:   one   Anganwadi   worker   and   one   Anganwadi  helper. Majority of these centres are located in difficult terrains and these women  have  to trek  for  kilometres  every day  to discharge  their duties. In the pandemic, these workers took the additional duty to home­deliver ration to ICDS beneficiaries and also educate rural 13 people about dos and dont’s of coronavirus and prepare a list of outsiders visiting the villages.  20. ICDS scheme is not just a welfare scheme but a means of protecting the rights of children under six­ including their right to nutrition, health and joyful learning and rights of pregnant and lactating mothers. The survival, well­being and rights of children become social issues of interest to the whole community and not just to the mothers of the families concerned. “Socialised childcare” also contributes to the liberation of women: it lightens the burden of looking after children, provides a potential source of remunerated employment for women and  gives them an opportunity to build women’s   organizations.     In   light   of   these   rich   contributions   of childcare to social progress, ICDS deserves far greater attention in public policy since ICDS acts as an institutional mechanism for realization   of   child   and   women   rights.   Yet   these   services   are regarded as State largesse rather than as enforceable entitlements.   21. If   we   take   a   holistic   view   of   the   matter,   extending   social security   to   the   early   child   care   and   development   of   millions   of 14 children of this country, health and nutrition services to children is a   good   investment.     The   study   indicates   that   returns   to   child nutrition   are   quite   high,   or   at   least   can   be   quite   high   in   this country. Thus, ICDS is an extended arm of the Ministry of Women and Child Development and their nature of services been provided to a common man must be acknowledged by the legislation. 22. The National Family Health Survey (2005­06) indicates that 48% of children under five are stunted and 43% are underweight for their age.  There is a worldwide consensus among psychologists, educationists,   pediatricians   and   sociologists   regarding   the significance of early years of life for the optimum development of child.  Early childhood is a time of remarkable brain development that   lays   the   foundation   for   later   learning   and   any   damage   or impoverishment suffered at this stage is likely to be irreparable. These are years of extreme vulnerability and tremendous potential during   which   adequate   protection,   care   and   stimulation   are essential to provide the foundation for the child’s well­being and development.   A  lack   of   adequate   nutrition   and   proper   care  has irreversible consequences. Poor nutrition has a negative impact on 15 school enrollment and readiness. Undernourished children are less likely to enroll in school and would drop out, if enrolled. A severe or chronic lack of essential nutrients in childhood impairs language, motor and socioemotional development.  In addition, extending the provision of safe drinking water and proper sanitation would reduce infant and child mortality drastically.

under   six   years,  recognizing   the   significance   of   child­care   and development in realizing the goal of national progress, the Founding Parents   enacted   several   provisions   concerning   welfare   and development   of   children,   especially   in   Parts   III   and   IV   of   the Constitution. The Fundamental Rights and Directive Principles of State   Policy   have   provided   an   inspiration   to   all   legislations concerning child welfare, education and development. 24. Article   15(3)  provides   for   affirmative   action  for   women  and children and is of great significance under which several beneficial laws and programmes have been passed.  Jurisprudence developed by passage of time under Article 21 of the Constitution by this 16 Court   underlines   the   primary   importance   of   early   childhood developments.   As   right   to   food,   nutrition   and   health   have   been judicially crafted as being part and parcel of the Right to Life to which every citizen, including a child is entitled to.  It is taking this approach that right to free education up to the age of 14 years was read into Article 21 by this Court in   Unni Krishnan J.P.  and 10 . others  Vs.  State of Andhra Pradesh and others 25. This   Court,   while   creating   such   right   made   an   important observation that Right to Life has to be read in light of Directive Principles of State Policies, viz. Articles 41, 45 and 46, eventually, give specificity of the needs of children under six, and the value of having   a   positive   right   ensuring   to   the   child   the   right   to   full th development,   Article   21­A   was   inserted   through   the   86 Amendment   Act,   2002   in   the   Constitution,   recognising   the fundamentality of the right to education for children between the age   group   of   six   to   fourteen.     Although   the   86th   Amendment brought  a  Directive   Principle  of   State   Policy,  ignored  until  now, within the folds of Part III of the Constitution, it excluded children 10 (1993)4 SCC 111 17 below the age of six, thus denying them education for proper growth and development. 26. When we talk of national development, their concerns were amply reflected in the enactment of Articles 39(e) and (f) of the Constitution.    These  two  provisions provide for health care and protection   of   its   citizens,   including   children.   While   Article   39(e) stipulates that the State shall direct its policy towards securing “that the health and strength of workers, men and women and the tender age of children are not abused” and “that the citizens are not forced by economic necessity to enter avocations unsuited to their age or strength”.   At the same time, Article 39(f) requires the State to ensure that “the children are given opportunities and facilities to develop  in  a  healthy  manner   and  in   conditions   of   freedom  and dignity and  that  the  childhood  and  youth  are  protected  against exploitation and against moral and material abandonment.” 27. Article 45 provides that “the State shall endeavor to provide early   childhood   care   and   education   for   all   children   until   they complete the age of six years”.   This provision makes the right to 18 early   childhood   care   and   education   an   explicit   Constitutional Objective, which can be further supported by later enactment in October 2010, i.e., the Right of Children to Free and Compulsory Education Act, 2009 (RTE), that came to be introduced “with a view to prepare children above the age of three years for elementary education and to provide early childhood care and education for all children until they complete the age of six years, the appropriate Government may make necessary arrangement for providing free pre­school education for such children”. 28. Health and nutrition are other sectors which are also primary area for young child.  The right to nutrition and healthcare in fact constitutes   the   most   basic   and   fundamental   right   of   children. Absence   of   legally   enforceable   entitlements   makes   children especially under­six more vulnerable to neglect and discrimination. 29. At the same time, health, especially the reproductive health of the mother and the health of the infant child are closely related. Recognizing   this   close   relationship,   this   Court   in   a   petition (popularly known as petition for right to food) filed by the PUCL 19 held Central and State Government responsible for providing ICDS services including supplementary nutrition, nutrition and health, education, etc. not only to every child under the age of six but to pregnant   women   and   lactating   mothers   as   well   –   a   clear endorsement of binding relation of mother and child’s health. 30. Further   recognizing   the   special   needs   of   pregnant   and lactating mother and its relation to child’s health, which has been acknowledged and recognized under Section 4 of the National Food Security Act, 2013 wherein provisions have been made entitling such women to “meal, free of charge during pregnancy and six months after the child­birth, through local Anganwadi, so as to meet the nutritional standards specified in Schedule II of the Act.” 31. The vision of ICDS scheme is to empower women living with dignity   to   contribute   as   equal   partners   in   development   in   an environment free from violence and discrimination along with well nurtured   children   with   full   opportunities   for   growth   and development in a safe and protective environment. 20 32. The mission and mandate of the scheme of ICDS is to promote social and economic empowerment of women through cross­cutting policies and programmes, mainstreaming gender concerns, creating awareness   about   their   rights   and   facilitating   institutional   and legislative support for enabling them to realize their human rights and   develop   to   their   full   potential.     The   second   is   to   ensure development, care and protection of children through cross­cutting policies and programmes, spreading awareness about their rights and   facilitating   access   to   learning,   nutrition,   institutional   and legislative support for enabling them to grow and develop to their full potential. 33. When   we   go   further   and   take   note   of   ICDS   scheme implemented through Anganwadis, a pivotal role is being played by Anganwadi   workers   and   Anganwadi   helpers,   by   taking   care   of children in the age group 0­6 years, which, as already observed, constitutes around 158 million children as per 2011 census. These children   are   the   future   human   resource   of   the   country.     The Ministry of Women and Child Development is implementing various schemes for welfare, development and protection of children. 21 34. ICDS   Scheme   is   one   of   the   flagship   programmes   of   the Government of India and represents one of the world’s largest and unique programmes for early childhood care and development.  It is the foremost symbol of country’s commitment to its children and nursing mothers, as a response to the challenge of providing pre­ school non­formal education on one hand and breaking the vicious cycle   of   malnutrition,   morbidity,   reduced   learning   capacity   and mortality   on  the   other.   The   beneficiaries   under   the  Scheme  are children   in   the   age   group   of   0­6   years,   pregnant   women   and lactating mothers.   35. The objectives of the Scheme are: ● to   improve   the   nutritional   and   health   status   of children in the age­group 0­6 years; ● to lay the foundation for proper psychological, physical and social development of the child; ● to   reduce   the   incidence   of   mortality,   morbidity, malnutrition and school dropout; ● to   achieve   effective   co­ordination   of   policy   and implementation   amongst   the   various   departments   to promote child development; and ● to enhance the capability of the mother to look after the normal health and nutritional needs of the child through proper nutrition and health education. 22 36. If we examine the role of Anganwadi workers/helpers, in the context of community support and participation, they have played a significant role in facilitating child nutrition. A conjoint reading of Sections 3, 4, 5, 6 & 7 of the National Food Security Act, 2013 would unerringly point to the fact that effective implementation of the aforementioned provisions of the Act largely depends on the Anganwadis, which are run by Anganwadi workers/helpers, etc., who are village level workers/ward level workers and in charge for delivery of the various services envisaged under the Act. 37. Their daily tasks include taking responsibility for pre­school activities   for   children   in   the   age   group   of   3­6   years,   arranging supplementary nutritional food for children of age group 6 months to 6 years and expectant and nursing mothers, giving health and nutrition education to mothers, making home visits for educating parents, eliciting community support and participation, assisting the Primary Health Centre Staff in implementation of immunization, among others. 23 38. Anganwadi workers/helpers are the key facilitators of child nutrition initiatives at the ground level and involved in performing the   work   of   dissemination,   publicity,   building   awareness,   and implementation of various schemes of the Government.  No wonder, the   strength   of   Anganwadi   Centres   has   increased   manifold   by passage of time in the country. 39. Anganwadi workers/helpers also function as a bridge between the   Government   and   the   targeted   beneficiaries   in   delivering   a bouquet   of   services   stipulated   under   the   NFSA.   They   work   in proximate   quarters   with   the   beneficiaries   and   their   services   are utilized by the respective State Governments for a wide range of activities   ­   be   it   survey,   promotion   of   small   savings,   providing health care, group insurance, or non­formal education. 40. If   we   look   towards   the   problems   plaguing   the   Anganwadi workers/helpers, the first and foremost, they are not holders of civil posts due to which they are deprived of a regular salary and other benefits that are available to employees of the State.  Instead of a salary, they get only a so called paltry ‘ honorarium ’ (much lower 24 than the minimum wages) on the specious ground that they are part­time voluntary workers, working only for about 4 hours a day. 41. The other argument which has been advanced by the learned counsel   for   the   respondents   denying   them   parity   with   other employees   is   that   their   work   is   stated   to   be   of   a   community participation   and   their   names   are   neither   sponsored   from   the employment exchange nor they are bound by the code of conduct. The   further   objection   raised   is   that   posts   have   been   filled   up without advertisement and there is no requirement to comply with any statutory recruitment rules. 42. It may be relevant to note that the contribution of Anganwadi workers/helpers at the grassroot level under the ICDS scheme is being well acknowledged by the Government of India, Ministry of Women and Child Development and in the last few years, it has also witnessed   not   only   an   exponential   increase   in   the   Anganwadi centres/workers   but   also   significant   specific   efforts   aimed   at ensuring   quality   in   the   delivery   of   services   and   community participation.     Indeed,   the   responsibilities   of   the   Anganwadi 25 workers/helpers have tremendously increased which now require to perform   multiple   tasks   ranging   from   delivery   of   vital   services, involving   Community/women’s   groups/Mahila   Mandals   and   for ensuring the effective convergence of various sectoral services.    For restructuring   and   strengthening   of   ICDS,   provisions   have   been made for rationalization of appointment of Anganwadi workers as Supervisors which is a cadre post under the Government. th 43. The relevant part of the policy decision dated 15  September, 2015 is referred to as under:­ “The above position has been reviewed keeping in view the aspirations   of   these   field   functionaries,   to   encourage   their participating   in   the   higher   posts   vis   a   vis   their   merit   and   to improve   their   career   prospects.     The   following   guidelines   on promotion and appointment of AWWs to the posts of Supervisors, in   supersession   of   earlier   guidelines,   are   conveyed   to   the States/UTs for compliance: (i) The 50% of vacancies in the posts of Supervisors would be filled up by promotion from amongst AWWs with 10 years of experience as AWWs and having the prescribed educational qualifications as per the Recruitment Rules for the post of Supervisor, failing which the vacancies would be filled up by direct recruitment; and (ii) The remaining 50% vacancies in the posts of Supervisors would be filled up by direct recruitment. … It is requested that the States/UTs may amend recruitment Rules for the posts of Supervisors as per the above guidelines on urgent 26 basis and a copy of such Recruitment Rules, after being notified, may be sent to the Ministry.” 44. This appears to be the reason that on acknowledging their services   on   account   of   an   exponential   increase   in   Anganwadi centres/workers   which   has   been   recognized   by   Government   of India,   the   opportunities   are   made   available   to   Anganwadi workers/helpers being brought into the mainstream and to become Government employee, with a passage of time. 45. That apart, the Government of Gujarat has also come with a th composite scheme vide its Resolution dated 25   November, 2019 laying down the procedure according to which selections shall be made through a transparent procedure to be followed laying down the eligibility criteria (including academic qualification) according to which the merit list of the candidates who had participated in the selection process for post of Anganwadi workers/helpers shall be made and if any participant/applicant is dissatisfied or aggrieved by the   process   of   selection   held   by   the   authorities,   can   prefer   an appeal to the Committee constituted for the said purpose. 27 46. Further,   those   who   are   finally   selected   and   appointed   as Anganwadi   workers/helpers   shall   be   governed   by   the   Code   of Conduct and they could also to be terminated, if any misconduct being committed in discharge of duties or on attaining the age of superannuation.   47. Thus, the in­built transparent procedure has been prescribed th by the State of Gujarat under its Resolution dated 25  November, 2019   laying   down   the   mode   of   selection   along   with   service conditions   to   be   regulated   while   working   as   Anganwadi workers/helpers at Anganwadi centres and they shall retire at the age   of   superannuation.     This   controls   the   effective   working   of Anganwadi workers/helpers in various Anganwadi centres. 48. Learned counsel for the State has given much stress on the honorarium paid to the Anganwadi workers/helpers.   Suffice it to say   that   the   honorarium   is   basically   the   quantum   of   money offered/conferred to somebody who is especially a professional or a well   honoured   person   for   providing   services.     It   is   a   voluntary process.     However,   what   is   being   paid   to   Anganwadi 28 workers/helpers with a nomenclature used by the respondents in projecting the term ‘honorarium’, is in fact the ‘wages’ that has been paid for the services rendered at the end of the month.   It is the form of emoluments which is being earned on discharge of duty in accordance with the terms of employment defined under Section 2(s) of the Act 1972. 49. So   far   as   the   judgment   in   (supra)   on   which   the Ameerbi   Division Bench of the High Court has placed reliance is concerned, it was a case where the question raised for consideration was as to whether those who are appointed as Anganwadi workers/helpers are holders  of   civil  posts  and   are   entitled   to  seek   protection  of Article 311 of the Constitution.  In that context, it was held by this Court that they are not holders of civil posts and  protection of Article 311 of the Constitution is not available and that was the reason for which the application which was filed at the behest of Anganwadi workers/helpers under Section 15 of the Administrative Tribunal Act, 1985 was held to be not maintainable. 29 50. In the instant cases, the question which has been raised for consideration is limited to the extent as to whether those who are working as Anganwadi workers/helpers are eligible to claim gratuity under the provisions of the Act, 1972. 51. The judgment of  Ameerbi  (supra) relied upon by the Division Bench of the High Court and placed by the respondents before this Court is of no assistance  and  has no application so far as the question raised before us in the instant appeals. 52. Before parting with the order, I would like to observe that the time has come when the Central Government/State Governments has to collectively consider as to whether looking to the nature of work and exponential increase in the Anganwadi centers and to ensure   quality   in   the   delivery   of   services   and   community participation   and   calling   upon   Anganwadi   workers/helpers   to perform multiple tasks ranging from delivery of vital services to the effective   convergence   of   various   sectoral   services,   the   existing working   conditions   of   Anganwadi   workers/helpers   coupled   with lack of job security which albeit results in lack of motivation to 30 serve in disadvantaged areas with limited sensitivity towards the delivery of services to such underprivileged groups, still being the backbone of the scheme introduced by ICDS, time has come to find out modalities in providing better service conditions of the voiceless commensurate to the nature of job discharged by them. 53. In my considered view, the appeals deserve to succeed and are th accordingly allowed and the impugned judgment dated 8  August, 2017   of   the   Division   Bench   of   Gujarat   High   Court   being unsustainable in law is hereby set aside.  ………………………J. (AJAY RASTOGI) NEW DELHI APRIL 25, 2022. 31 REPORTABLE IN THE SUPREME COURT OF INDIA CIVIL APPELLATE JURISDICTION CIVIL APPEAL NO.   3153    OF 2022 [@ SLP (CIVIL) No. 30193 of 2017] MANIBEN MAGANBHAI BHARIYA           …  APPELLANT v.   DISTRICT DEVELOPMENT OFFICER DAHOD & ORS.                                       …  RESPONDENTS WITH CIVIL APPEAL NO.  3154     OF 2022 [@ SLP (CIVIL) No. 30834 of 2017] CIVIL APPEAL NO.  3155     OF 2022 [@ SLP (CIVIL) No. 30809 of 2017] CIVIL APPEAL NO.  3156   OF 2022 [@ SLP (CIVIL) No. 30820 of 2017] CIVIL APPEAL NO.   3157    OF 2022 [@ SLP (CIVIL) No. 5392 of 2018] AND  CIVIL APPEAL NO. 3158   OF 2022 [@ SLP (CIVIL) No. 29011 of 2018] 1 J U D G M E N T ABHAY S. OKA, J. Leave granted. The   issue   involved   in   these   appeals   is   whether 1. Anganwadi workers and Anganwadi helpers appointed to work in   Anganwadi   centres   set   up   under   the   Integrated   Child Development Scheme (for short “ICDS”) are entitled to gratuity under the Payment of Gratuity Act, 1972 (for short “the 1972 Act”).   The appellants are Anganwadi workers and/or their organisations.  The appeals arise out of writ petitions filed by the District Development Officer and two other officers for taking   exception   to   the   orders   passed   by   the   Controlling Authority under the 1972 Act.   The finding rendered by the Controlling Authority which was confirmed by the Appellate Authority   was   that   Anganwadi   Workers   (AWWs)   and Anganwadi Helpers (AWHs) are entitled to gratuity under the 1972 Act. The Appellate Authority confirmed the said orders. The learned Single Judge dismissed the writ petitions.    In 2 Letters   Patent   Appeals,   a   Division   Bench   of   Gujarat   High Court   interfered   and   set   aside   the   orders   passed   by   the Controlling Authority and the appellate authority under the 1972 Act.   The Division Bench held that AWWs and AWHs could not be said to be employees as per Section 2(e) of the 1972   Act,   and   the   ICDS   project   cannot   be   said   to   be   an industry.  It was held that as the remuneration or honorarium paid to them cannot be treated as wages within the meaning of Section 2(s) of the 1972 Act, they are disentitled to gratuity. The Judgment of the Division Bench is the subject matter of challenge before this Court. SUBMISSIONS OF THE APPELLANTS 2. Detailed submissions have been made on behalf of the appellants in support of the appeals.  The submissions have been made by Shri Sanjay Parikh, the learned Senior Counsel, and Shri P.V. Surendranath, the learned Senior Counsel. The submissions can be summarised as under:  a) The 1972 Act is a social security welfare legislation.   The 1972 Act recognizes that all persons in the society need 3 protection   against   loss   of   income   due   to   unemployment arising out of incapacity to work due to invalidity, old age, etc. b) Anganwadi centres set up under ICDS are ‘establishments’ within the meaning of clause (b) of Section 1(3) of the 1972 Act. c) The concept of ‘establishment’ under the 1972 Act is much broader than the definition of ‘industry’ under Section 2(j) of the Industrial Disputes Act, 1947 (for short, “the 1947 Act”). d) Relying   upon   a   decision   of   this   Court   in   the   case   of Bangalore   Water   Supply   and   Sewerage   Board   v.   A. 11 , it was submitted that as there is a Rajappa and others systematic  and organized activity carried out in Anganwadi centres with the cooperation of the employer and employees for rendering services, Anganwadi centres will have to be treated as ‘industry.’ 11 1978 (2) SCC 213 4 e) In the alternative, it was submitted that even if clause (b) of Section 1(3) of the 1972 Act does not apply to Anganwadi centres,   clause   (c)   of   Section   1(3)   will   apply   as   the Government of India has exercised power under clause (c) of Section 1(3) by notifying educational institutions as a class of establishment to which the 1972 Act will apply. Under the ICDS scheme, pre­school non­formal education is provided in Anganwadi centres to children in the age group of 3 to 6.  Even teaching about nutrition and health is imparted in Anganwadi centres.  Hence, the Anganwadi centres are educational institutions. f) Placing reliance on a decision of this Court in the case of Ahmedabad   Pvt.   Primary   Teachers’   Assn.   v. 12 Administrative   Officer   and   others ,   it   was   submitted that as per the notification mentioned above, teaching as well as non­teaching staff of educational institutions has been covered. It is submitted that the effect of the said 12 2004 (1) SCC 755 5 decision is that the 1972 Act will even cover employees other than teachers in educational institutions.   g) While   deciding   the   Ahmedabad   Primary   Teachers’ Association case , this Court relied upon the definition of ‘employee’ in the 1972 Act, which was restricted by the words “to do any skilled, semi­skilled or unskilled…...”.  By Act   No.   47   of   2009,   these   words   were   deleted,   and therefore, the definition of ‘employee’ under Section 2(e) of the 1972 Act has become very wide. h) This Court in the case of  State of Karnataka and others  v. 13 Ameerbi and others   held that AWWs and AWHs are not the employees of Anganwadi centres   or the ICDS   scheme. In the said case, the dispute was confined to an issue of whether  AWWs  can  be  said  to  be  holding  civil  posts to attract   the   jurisdiction   of   the   Karnataka   State Administrative Tribunal established under Section 15 of the Administrative   Tribunals   Act,   1985.     Hence,   the   said decision is not relevant in this case. 13 2007 (11) SCC 681 6 i) Merely because the monthly remuneration paid to AWWs is styled   as   honorarium,   it   cannot   be   conclusive.   Under Section 2(s) of the 1972 Act, the definition of ‘wages’ is very wide to include both the categories.  AWWs and AWHs are doing   full­time   jobs   involving   multiple   duties   concerning women and children.  Reliance was placed on a decision of this Court in the case of  Jaya Bachchan  v.  Union of India 14 and others . j) Reliance was placed on definitions of ‘establishment’ and ‘industrial establishment’ under various statutes.  On this behalf, a reference was made to a decision of this Court in the case of   State of Punjab   v.   Labour Court, Jullundur 15 and others . k) The submission is that the provisions of the 1972 Act apply to AWWs and AWHs. SUBMISSIONS OF THE RESPONDENTS 14 2006 (5) SCC 266 15 1980 (1) SCC 4 7 3. Ms. Aastha Mehta, learned counsel appearing on behalf of   the   State   of   Gujarat   submitted   that   ICDS   is   a   Central Government   scheme   which   the   State   Governments   are implementing.  Her submission is that AWWs and AWHs are appointed from amongst local inhabitants. Usually, women who   are   well­versed   in   cooking,   processing   food,   cleaning, etc., are appointed on a yearly basis.  They are being paid an honorarium   and   not   wages.     It   is   pointed   out   that   the honorarium payable to AWWs and AWHs has been enhanced in the year 2020. She submitted that though the share of the Central   Government   in   the   honorarium   has   not   been st increased, under the Government Resolution dated 21  March 2020, the State Government has increased its contribution, and now the remuneration of AWWs is Rs.7,800/­ per month. She submitted   that a number   of other benefits have been made available by the State Government to AWWs, set out in the counter affidavit.  It is pointed out by learned counsel that there are 53,029 Anganwadi centres established under the ICDS in the State of Gujarat, and presently there are about 8 51,560   AWWs   and   48,690   AWHs   in   the   entire   State.     If gratuity   is   held   to   be   payable   to   them,   there   will   be   a substantial financial burden on the State exchequer as the amount  payable   towards  gratuity  will  be   more  than  Rs.25 crores.  4. Ms. Aishwarya Bhati, the learned Addl. Solicitor General of   India   submitted   that   while   the   Government   of   India acknowledges   the   important   role   of   Anganwadi   centres   in implementing the ICDS scheme and consequently the role of AWWs and AWHs, the provisions of the 1972 Act do not apply to them.  She pointed out that clause (b) of Section 1(3) refers to ‘establishments’ within the meaning of any law for the time being in force in relation to shops and establishments in a State and therefore, in this case, the provisions of Gujarat Shops and Establishments Act, 1948 (for short “the Gujarat Act”) as applicable to the State of Gujarat will have to be considered.     Referring   to   the   definitions   of   ‘commercial establishments’ and ‘establishments’ under the Gujarat Act, she submitted that ICDS is not an establishment as it does 9 not carry on any business, trade or profession or any activity connected, incidental or ancillary thereto. She submitted that ICDS   is   a   welfare   scheme   designed   and   implemented   to benefit   children,   pregnant   women,   and   lactating   mothers. Relying upon a decision of this Court in the case of  Bangalore v. Turf Club Limited   Regional Director, Employees’ State 16 Insurance   Corporation ,   she   submitted   that   the   term ‘establishment’ used in the 1972 Act presupposes an element of commercial activity.  She submitted that what is being paid to AWWs is an honorarium which cannot be described as wages.  In support of the said submission, she relied upon a decision of the Delhi High Court in the case of  Akhil Bhartiya Anganwadi Kamgar Union (Regd.)  v.  Union of India & Ors. She also pointed out that the decision of this Court in the case of  Bangalore Water Supply and Sewerage Board  (supra) has been referred to a larger Bench. She pointed out that as AWWs   and   AWHs   render   valuable   assistance,   there   is insurance   coverage   provided   to   them   by   the   Central 16 2014 (9) SCC 657 10 Government as set out in the counter affidavit.   Apart from insurance   benefits,   other   benefits   are   being   extended   to AWWs.   REJOINDER OF THE APPELLANTS 5. The learned counsel appearing for appellants pointed out that Anganwadi centres are performing the statutory duty of implementing provisions of Sections 4, 5 and 6 of the National Food Security Act, 2013 (for short “the Act of 2013”).   By pointing out the duties of AWWs and AWHs, which are placed on record along with IA No. 161608 of 2021, it was pointed out   that   their   responsibilities   extend   not   only   to   running Anganwadi   centres   but   to   running   pre­primary   schools   in Anganwadis.   Apart   from   that,   they   are   obligated   to   make home visits for various purposes.  It is certain that they are doing   full­time   jobs   and   are   discharging   onerous responsibilities. ROLE OF ANGANWADI WORKERS AND HELPERS 11 6. I have given careful consideration to the submissions.   The nd Government of India launched ICDS on 2   October 1975.   Under ICDS, six services are being provided: ­ (i) supplementary nutrition, (ii) pre­school non­formal education, (iii) nutrition and health education, (iv) immunization, (v) health check­up and  (vi) referral services.   The cost of running ICDS and Anganwadi centres is being shared by the Government of India and the State Governments.  th 7. The 2013 Act came into force on 5  July 2013.  One of the objectives of enacting the 2013 Act was to give effect to Article 47 of the Constitution of India, which is a part of the Directive Principles of State Policy.  Article 47 reads thus: “ARTICLE   47:   DUTY   OF   THE   STATE   TO RAISE THE LEVEL OF NUTRITION AND THE STANDARD   OF   LIVING   AND   TO   IMPROVE PUBLIC HEALTH 12 The State shall regard the raising of the level of nutrition and the standard of living of its people and the improvement of public health as among its primary duties and, in particular, the State shall endeavour to bring about prohibition of the consumption except for medicinal purpose of intoxicating drinks and of drugs which are injurious to health.” 8. It is the duty of the State to improve the level of nutrition which is one of the best methods to improve public health. Apart from Article 47, India is a signatory to the Universal Declaration   of   Human   Rights   and   the   International Covenant on Economic, Social, and Cultural Rights.   The said   convention   casts   responsibilities   on   all   States   to recognize the right of citizens to adequate food.  As provided in the Statement of Objects and Reasons of the 2013 Act, one of its objectives is to improve the nutritional status of women and children.   The object of the 2013 Act was to bring about a shift in addressing the issue of food security. The approach was changed from the welfare approach to the rights­based approach.  The role of Anganwadi centres 13 finds a place in paragraph 7 of the Statement of Objects and Reasons of the 2013 Act. 9. Anganwadi centres were statutorily recognised under the 2013 Act.   Sub­section (1) of Section 2 of 2013 Act reads thus:  “(1)   “anganwadi"   means   a   child   care   and development centre set up under the Integrated Child   Development   Services   Scheme   of   the Central   Government   to   render   services   covered under section 4, clause (a) of sub­section (1) of section 5 and section 6.” 10. Anganwadi centres have been entrusted with a very vital and significant role in implementing Sections 4 to 6 of the 2013 Act, which read thus: “4. Nutritional   support   to   pregnant   women Subject   to   such and   lactating   mothers.­   schemes   as   may   be   framed   by   the   Central Government,   every   pregnant   woman   and lactating mother shall be entitled to— (a) meal, free of charge, during pregnancy and six months after the child birth, through the local anganwadi, so as to meet the nutritional and standards specified in Schedule II;  (b) maternity benefit of not less than rupees six thousand,   in   such   instalments   as   may   be prescribed by the Central Government: 14 Provided that all pregnant women and lactating mothers in regular employment with the Central Government   or   State   Governments   or   Public Sector Undertakings or those who are in receipt of   similar   benefits   under   any   law  for   the   time being  in  force  shall  not  be  entitled   to benefits specified in clause (b). 5.Nutritional support to children­­ (1) Subject to the   provisions   contained   in   clause   (b),   every child   up   to   the   age   of   fourteen   years   shall have   the   following   entitlements   for   his nutritional needs, namely:— (a) in the case of children in the age group of six months to six years, age appropriate meal, free of charge, through the local anganwadi so as to meet the nutritional standards specified in Schedule II : Provided that for children below the age of six months,   exclusive   breast   feeding   shall   be promoted; (b) in the case of children, up to class VIII or within   the   age   group   of   six   to   fourteen   years, whichever is applicable, one mid­day meal, free of charge, every day, except on school holidays, in all schools run by local bodies, Government and Government   aided   schools,   so   as   to   meet   the nutritional standards specified in Schedule II. (2)   Every   school,   referred   to   in   clause  (b)  of sub­section  (1) ,   and   anganwadi   shall   have facilities   for   cooking   meals,   drinking   water and sanitation : Provided   that   in   urban   areas   facilities   of centralised   kitchens   for   cooking   meals   may   be 15

The   provisions   mentioned   above   lay   down   the 11. entitlements   of   pregnant   women,   lactating   mothers,   and children   in   the   age   group   of   6   months   to   6   years.   In addition,   the   children   who   suffer   from   malnutrition   are entitled   to   the   benefit   of   free   meals   through   Anganwadi centres. These entitlements confer corresponding rights on the said beneficiaries. The benefits referred to in Sections 4,5 and 6 of the 2013 Act are provided through Anganwadi centres as set out in the Supplementary Nutrition (under the Integrated Child Development Services Scheme) Rules, 2017 (for short “The Supplementary Nutrition Rules”). Rules 3 and 4 of the Supplementary Nutrition Rules are relevant which read thus:  16

(emphasis added) 17

onerous responsibility of implementing some of the most important and   innovative   provisions   of   the   2013   Act.   It   can   be   said   that Anganwadi   centres   perform   a   pivotal   role   in   discharging   the statutory obligation of the State to provide nutritional support to pregnant women, lactating mothers and children in the age group of 6 months to 6 years.  A free meal is provided to pregnant mothers during   pregnancy   and   6   months   after   childbirth   through   the Anganwadi centres. In the case of children in the age group of 6 months to 6 years, an age­appropriate free meal is to be provided in Anganwadi centres. In addition, the important duty of providing free meals   to   the   children   who   suffer   from   malnutrition   has   been entrusted to Anganwadi centres.   The free meals to be provided through   Anganwadi   centres   must   satisfy   the   nutritional requirements and standards   specified in Schedule II of the 2013 Act.     Therefore,   under   sub­section   (2)   of   Section   5,   there   is   a provision that every Anganwadi centre shall have a proper facility of cooking   meals,   drinking   water   and   sanitation.     Another   crucial statutory duty assigned to local Anganwadi centres is to identify 18 children who suffer from malnutrition so that free meals can be provided   to   such   identified   children.   The   AWWs   and   AWHs constitute the backbone of Anganwadi centres and therefore, this onerous responsibility of extending benefits under the 2013 Act to the beneficiaries is on them. Anganwadi centres are responsible for ensuring the healthy growth of the children in the age group of 6 months to 6 years and the children who suffer from malnutrition.  13. Now,   coming   to   the   State   of   Gujarat,   the   Government th Resolution   dated   25   November   2019   (Annexure   A­1   of   IA   no. 161608   of   2021)   lays   down   exhaustive   provisions   regarding selection criteria, duties, disciplinary action, rules, etc. in respect of AWWs   and   AWHs.     In   fact,   by   the   said   Resolution,   the   State Government has framed the Anganwadi Worker/Helper (Selection Criteria, Honorary Service, Review and Discipline) Rules (for short “the said Rules”). Duties of AWWs and AWHs have been laid down in   Appendix­1   to   the   Government   Resolution.   Very   important functions   and   responsibilities   have   been   assigned   to   AWWs   in Appendix­1. We are reproducing some of the onerous duties and functions assigned to AWWs : 19 (a)  The AWWs shall carry out the survey within their area of duty and shall update the record regularly by taking note of the occurrence of new events; (b)  Apart from providing health and nutrition services to the children within their jurisdiction, AWWs are under a   duty   to   monitor   the   growth­development   of   all children. They are also under an obligation to identify severely malnourished children and children in need of medical attendance; (c) AWWs   have   a  duty  of   monitoring   the  growth  of  the children in the age group of 0 to 3 years, including monitoring   their   weight.   They   are   responsible   for maintaining a growth chart for measuring the child’s individual growth.  They must identify children who are significantly underweight and take special care of such children; (d)  To   make   four   follow­up   visits   every   fortnight   to   the children   rehabilitated   at   Children   Malnutrition Treatment   Centres/Nutrition   Rehabilitation   Centres 20 and   ensure   that the said children get supplementary food at Anganwadi centres; (e) AWWs are also required to cater to vaccination services with the help of Aasha workers.   They are also duty­ bound   to   undertake   activities   relating   to   health, nutrition, and hygiene education; (f)  They are responsible for following safety and hygiene norms   in   respect   of   food   materials   in   Anganwadi centres; (g) AWWs must make home visits at least three times a week   and   meet   children   below   the   age   of   3   years, pregnant women, and lactating mothers; (h)  With   a   view   to   ensuring   public   participation   in   the activities of Anganwadis, they are required to celebrate various special days on all four Tuesdays; (i) It is   the   duty   of   the   AWWs   to  identify   handicapped children   or   children   with   slow   growth   and   provide referral services to them by referring them for health screening; 21 (j) AWWs are required to conduct pre­primary education activities for the children of the age group of 3 to 6 years   following   pre­school   timetable   and   using   pre­ school kit; (k)  Appendix­1 provides for AWWs attending meetings of various committees; (l)  The   AWWs   are   required   to   look   after   the implementation   and   coordination   of   various   other services under various Government schemes; (m)  Their duties are to carry out Aadhar registration of the children attached to Anganwadis; and (n) They are required to maintain several reports, registers, records   relating   to   beneficiaries,   deaths   of   children, registration of births and deaths, and submit monthly or annual reports. 14. The   duties   and   functions   of   AWHs   are   also   very   onerous. Some of the important duties are as under: ● To  report  half  an   hour   before  the   working  hours of Anganwadi centres and clean Anganwadi centres every 22 day. To maintain a neat and clean environment within the Anganwadi centres; ● To cook and serve healthy food to the beneficiaries; ● To bring children to Anganwadi and to drop them at their houses; ● To clean the utensils used for cooking and serving; ● To maintain personal hygiene of children;  ● To   help   AWWs   in   public   relations   and   public participation works; and  ● To   perform   all   duties   relating   to   ICDS   as   may   be assigned   by   the   Child   Development   Program   Officer and the State  Office of ICDS. 15. One of the important functions of Anganwadi centres is to conduct pre­primary education activities for the children of the age group of 3 to 6 years by following the pre­school timetable and by using   the   pre­school   kit.   That   is   the   specific   provision   in   the th Government   Resolution   dated   25   November   2019.     It   is   also provided therein that the Anganwadi children admitted to primary schools shall be issued a certificate of pre­primary education signed 23 by   the   Child   Development   Programme   Officer.     On   this   aspect, Section   11   of   the   Rights   of   Children   to   Free   and   Compulsory Education Act, 2009 (for short, ‘the RTE Act’) is relevant.  Section 11 reads thus: “11.   Appropriate   Government   to   provide   for . —With a view to prepare pre­school education children   above   the   age   of   three   years   for elementary   education   and   to   provide   early childhood   care   and   education   for   all   children until   they   complete   the   age   of   six   years,   the appropriate   Government   may   make   necessary arrangement   for   providing   free   pre­school education for such children.” The appropriate Government, in this case, is the Government of Gujarat.  For giving effect to Section 11 of the RTE Act, a provision has been made by the State Government to conduct pre­primary schools for children above the age of three years in the Anganwadi centres.     Moreover,   as   specifically   laid   down   in   the   aforesaid Government   Resolution,   it   is   the   duty   of   AWWs   to   provide   a pleasant educational environment at Anganwadi centres.  It is also the duty of AWWs to assess the growth of children and make entries in the booklet titled “My Growth Story”.  Thus, Anganwadi centres are also running pre­primary schools for children in the age group 24 of 3 to 6 years. The educational activity of running pre­school is an integral   part   of   Anganwadi   centres.   AWWs   and   AWHs   who   are managing the Anganwadi centres have a duty to look after pre­ th primary schools as well. We may also note here that on 8  March 2018, the Government of India has launched the National Nutrition Mission by the name “The Prime Minister’s Overarching Scheme for Holistic Nourishment”. The responsibility of implementing a part of the   scheme   is   of   the   Anganwadi   centres.   Under   the   National Education Policy, 2020, there is a proposal to make available Early Childhood Care and Education (ECCE) to children having socio­ economic disadvantaged backgrounds. It is provided that ECCE will be extended through Anganwadi centres.   THE DECISION IN THE CASE OF AMEERBI    16. In the case of  Ameerbi  (supra), this Court dealt with the issue whether AWWs and AWHs were holding civil posts.  The issue was whether the original applications filed by AWWs before the State Tribunal established under the Administrative Tribunals Act, 1985 were maintainable.  This Court held that the posts of AWWs were 25 not statutory posts and the same have been created in terms of ICDS.     Therefore,   there   was   no   relationship   of   employer   and employee between the State Government and AWWs.   It was held that the AWWs do not carry on any function of the State.  It was observed   that   no   Recruitment   Rules   have   been   framed   for appointing AWWs. Much water has flown after the decision in the case of  Ameerbi  (supra)   was rendered in the year 2007.  When the said decision was rendered by this Court, the 2013 Act was not on the   statute   book.     As   noted   earlier,   the   Anganwadi   centres established under ICDS have been given statutory status under the 2013 Act.  Moreover, under Sections 4, 5 and 6 of the 2013 Act, the Anganwadi centres perform statutory duties under the 2013 Act.  I have   already   referred   to   the   Government   Resolution   of   the th Government of Gujarat dated 25  November 2019  .  in extenso 17. The Resolution incorporates the said Rules which lay down selection   criteria,   educational   qualifications,   the   process   of selection, etc. of AWWs and AWHs.  Under the said Rules, a detailed process  of  making  appointments  of   AWWs   and   AWHs   has  been incorporated.     It   also   incorporates   the   marking   system   for   the 26 selection   of   AWWs   and   AWHs.   The   said   Rules   provide   that   the AWWs and AWHs will continue in the service till the age of 58 years.  Even the minimum and maximum age of the candidates for participating in the  process of  recruitment has been laid  down. There are provisions made for the termination of services of AWWs and AWHs.  Though the said rules refer to their service as honorary service, the use of the word “honorary” is not determinative of the status of AWWs and AWHs.   18.   In view of the provisions of the 2013 Act and Section 11 of the RTE   Act,   Anganwadi   centres   also   perform   statutory   duties. Therefore, even AWWs and AWHs perform statutory duties under the said enactments.   The Anganwadi centres have, thus, become an extended arm of the Government in view of the enactment of the 2013 Act and the Rules framed by the Government of Gujarat. The Anganwadi   centres   have   been   established   to   give   effect   to   the obligations of the State defined under Article 47 of the Constitution. It   can   be   safely   said   that   the   posts   of   AWWs   and   AWHs   are statutory posts.   27 19. As far as the State of Gujarat is concerned, the appointments of AWWs and AWHs are governed by the said Rules. In view of the 2013 Act, AWWs and AWHs are no longer a part of any temporary scheme of ICDS. It cannot be said that the employment of AWWs and AWHs has temporary status.   In view of the changes brought about   by   the   2013   Act   and   the   aforesaid   Rules   framed   by   the Government of Gujarat, the law laid down by this Court in the case of   will not detain this Court any further from deciding the Ameerbi issue.   For the reasons stated above, the decision in the case of   will not have any bearing on the issue involved in these Ameerbi appeals. PLIGHT OF AWWs AND AWHs AWWs   and   AWHs   have   been   assigned   all­pervasive   duties, 20. which include identification of the beneficiaries, cooking nutritious food,   serving   healthy   food   to   the   beneficiaries,   conducting   pre­ school for the children of the age group of 3 to 6 years, and making frequent home visits for various reasons. Implementation of very important and innovative provisions relating to children, pregnant 28 women as well as lactating mothers under the 2013 Act has been entrusted to them.  It is thus impossible to accept the contention that the job assigned to AWWs and AWHs is a part­time job. The th Government   Resolution   dated   25   November   2019,   which prescribes duties of AWWs and AWHs, does not lay down that their job is a part­time job. Considering the nature of duties specified thereunder, it is full­time employment.   In the State of Gujarat, AWWs are being paid monthly remuneration of only Rs.7,800/­ and AWHs are being paid monthly remuneration of only Rs.3,950/­. AWWs working in mini­Anganwadi centres are being paid a sum of Rs.4,400/­   per   month.     The   important   tasks   of   providing   food security   to   children   in   the   age   group   of   6   months   to   6   years, pregnant women as well as lactating mothers have been assigned to them.  In addition, there is a duty to render pre­school education. For all this, they are being paid very meagre remuneration and paltry   benefits   under   an   insurance   scheme   of   the   Central Government.  It is high time that the Central Government and State Governments take serious note of the plight of AWWs and AWHs who are expected to render such important services to the society. 29 APPLICABILITY OF THE PROVISIONS OF THE 1972 ACT TO AWWs AND AWHs 21. Now, I turn to the provisions of the 1972 Act. Sub­sections (3) and (3A) of the 1972 Act deal with the applicability of its provisions. Sub­sections (3) and (3A) of Section 1 reads thus:  “(3) It shall apply to ­ (a) every factory, mine, oilfield, plantation, port and railway company;  (b)   every   shop   or   establishment   within   the meaning of any law for the time being in force in relation to shops and establishments in a State,   in   which   ten   or   more   persons   are employed, or were employed, on any day of the preceding twelve months;  (c)   such   other   establishments   or   class   of establishments, in which ten or more employees are employed, or were employed, on any day of the   preceding   twelve   months,   as   the   Central Government may, by notification, specify in this behalf.  [(3A) A shop or establishment to which this Act has   become   applicable   shall   continue   to   be governed by this Act, notwithstanding that the number of persons employed therein at any time after it has become so applicable falls below ten.]”                           (emphasis added) 30 22. Reliance has been placed by the appellants on clause (b) of Section  1(3)  and   in   the   alternative,   on  clause   (c).   Clause   (b)  of Section   1(3)   applies   to   every   shop   or   establishment   within   the meaning of any law for the time being in force in relation to the shops and establishments in a State in which ten or more persons are employed or were employed on any day of the preceding twelve months.   23. Though, during the course of submissions, reliance was first placed on the Gujarat Act as applicable to the State of Gujarat, by the Gujarat Shops and Establishments (Regulation of Employment and Conditions of Service) Act, 2019, the Gujarat Act has been repealed. 24. Now, the question is whether clause (b) of Section 1(3) of the 1972 Act will apply.  This Court in the case of the  Labour Court, Jullunder  (supra) has given a wide interpretation to clause (b).  In paragraph 3 of the said decision, this Court held thus: “3.  In this appeal, the learned Additional Solicitor General contends on behalf of the appellant that the   Payment   of   Gratuity   Act,   1972   cannot   be invoked   by   the   respondents   because   the   Project 31 does not fall within the scope of Section 1(3) of that Act. Section 1(3) provides that the Act will apply to: ( ) every factory, mine, oilfield, plantation, port a and railway company; ( b )   every   shop   or   establishment   within   the meaning of any law for the time being in force in relation to shops and establishments in a State, in which ten or more persons are employed, or were employed,   on   any   day   of   the   preceding   twelve months; ( )   such   other   establishments   or   class   of c establishments, in which ten or more employees are employed,   or   were   employed,   on   any   day   of   the preceding   twelve   months,   as   the   Central Government   may,   by   notification,   specify   in   this behalf.” According to the parties, it is clause ( b ) alone which needs to be considered for deciding whether the Act applies to the Project. The Labour Court has held that   the   Project   is   an   establishment   within   the meaning of the Payment of Wages Act, Section 2( ii ) ( g ) of which defines an “industrial establishment” to mean   any   “establishment   in   which   any   work relating   to   the   construction   development   or maintenance of buildings, roads, bridges or canals, relating   to   operations   connected   with   navigation, irrigation or the supply of water, or relating to the generation,   transmission   and   distribution   of electricity   or   any   other   form   of   power   is   being carried on”.  It is urged for the appellant that the Payment   of   Wages   Act   is   not   an   enactment contemplated by Section 1(3)( ) of the Payment b of Gratuity Act. The Payment of Wages Act, it is pointed out, is a Central enactment and Section 1(3)( b ), it is said, refers to a law enacted by the State Legislature. We are unable to accept the contention. Section 1(3)( b ) speaks of “any law 32 for the time being in force in relation to shops and establishments in a State”. There can be no dispute   that   the   Payment   of   Wages   Act   is   in force   in   the   State   of   Punjab.   Then,   it   is submitted, the Payment of Wages Act is not a law in relation to “shops and establishments”. As   to   that,   the   Payment   of   Wages   Act   is   a statute which, while it may not relate to shops, relates to a class of establishments, that is to say,   industrial   establishments.   But   it   is contended,   the   law   referred   to   under   Section 1(3)( b ) must be a law which relates to both shops and establishments, such as the Punjab Shops and Commercial Establishments Act, 1958. It is difficult to accept that contention because there is no warrant for so limiting the meaning of the expression   “law”   in   Section   1(3)( b ).   The expression is comprehensive in its scope, and can mean a law in relation to shops as well as, separately, a law in relation to establishments, or a law in relation to shops and commercial establishments   and   a   law   in   relation   to   non­ commercial establishments. Had Section 1(3)( b ) intended to refer to a single enactment, surely the appellant would have been able to point to such a statute, that is to say, a statute relating to shops and establishments, both commercial and   non­commercial.   The   Punjab   Shops   and Commercial Establishments Act does not relate to all kinds of establishments. Besides shops, it relates to commercial establishments alone. Had the intention of Parliament been, when enacting Section   1(3)( ),   to   refer   to   a   law   relating   to b commercial establishments, it would not have left   the   expression   “establishments” 33 unqualified.   We   have   carefully   examined   the various provisions of the Payment of Gratuity Act, and we are unable to discern any reason for giving   the   limited   meaning   to   Section   1(3)( b ) urged   before   us   on   behalf   of   the   appellant. Section   1(3)( b )   applies   to   every   establishment within   the   meaning   of   any   law   for   the   time being in force in relation to establishments in a Such   an   establishment   would   include   an State.   industrial   establishment   within   the   meaning   of Section   2( ii )( g )   of   the   Payment   of   Wages   Act. Accordingly, we are of opinion that the Payment of Gratuity Act applies to an establishment in which any work relating to the construction, development or   maintenance   of   buildings,   roads,   bridges   or canals,   or   relating   to   operations   connected   with navigation,   irrigation   or   the   supply   of   water,   or relating   to   the   generation,   transmission   and distribution of electricity or any other form of power is being carried  on.  The Hydel  Upper Bari Doab Construction Project is such an establishment, and the Payment of Gratuity Act applies to it.” (emphasis supplied) Hence,   ‘establishments’   contemplated   by   clause   (b)   can   be establishments within the meaning of any law for the time being in force in a State  in relation to establishments. Therefore, I have examined the laws in relation to establishments which are in force in the State of Gujarat.  25. I   may   refer   to   the   provisions   of   the   Contract   Labour (Regulation and Abolition) Act, 1970 (for short “the Contract Labour 34 Act”).  Establishments have been defined in clause (e) of Section 2 which reads thus : 

The   Contract   Labour   Act   is   applicable   to   establishments   as provided in sub­section (4)(a) of Section 1.  In view of sub­section (2) of Section 1, the Contract Labour Act is applicable to the State of Gujarat. Therefore, it is legislation in relation to establishments in the State of Gujarat.  As stated above, under the said Rules, now the selection and appointments of AWWs and AWHs are being made by the Government of Gujarat.  An officer of the said Government is empowered   to   issue   an   order   of   termination   of   employment   of AWWs   and   AWHs.     As   stated   earlier,   Anganwadi   centres   have become an extended arm of the Government.  Now, it operates as an establishment or a wing of the Government. The remuneration to AWWs and AWHs is paid by the State Government. However, the State Government gets contributions from the Central Government. Moreover, it can always be said that occupation is carried out in the 35 establishments of Anganwadi centres.  Hence, Anganwadi Centre is an establishment within the meaning of clause (e) of Section 2 of the Contract Labour Act.   26. The Code of Wages, 2019 is an enactment that received the th assent of the President on 8   August 2019.   However, only a few provisions therein have been brought into force so far.  Clause (m) of Section 2 thereof defines establishment which means any place where any industry, trade, business, manufacture, or occupation is carried out and it includes the Government establishments.  There is a similar definition of establishment under clause 29 of Section 2 of the Code on Social Security, 2020 which received the assent of th the President on 28  September 2020.  These provisions show the legislative intent to include the various Government establishments in the category of establishments in the welfare statutes.  It   is   not   the   case   of   the   State   Government   that   every 27. Anganwadi centre is a separate entity.  Anganwadi centres and Mini Anganwadi centres are a part of the Anganwadi establishment of the   State   Government.     The   Anganwadi   centres   have   been 36 employing ten or more AWWs and AWHs in the State.  Therefore, I have   no   manner   of   doubt   that   Anganwadi   centres   are establishments   contemplated   by   clause   (b)   of   sub­section   (3)   of Section 1 of the 1972 Act.  The learned Additional Solicitor General relied upon a decision of this Court in  Bangalore Turf Club  (supra). It was a case arising out of the Employees’ State Insurance Act, 1948. The said Act does not define “establishment”. The decision has no relevance in this case. 28. Clauses (e), (f), and (s) of Section 2 of the 1972 Act which define ‘employee’, ‘employer’ and ‘wages’ are relevant.   The same read thus: “(e)   “employee”   means any person (other than an apprentice) who is employed for wages, whether the terms of such employment are express or implied, in any   kind   of   work,   manual   or   otherwise,   in   or   in connection with the work of a factory, mine, oilfield, plantation,   port,   railway   company,   shop   or   other establishment to which this Act applies, but does not include any such person who holds a post under the Central Government or a State Government and is governed by any other Act or by any rules providing for payment of gratuity; (f)   “employer”   means,   in   relation   to   any establishment, factory, mine, oilfield, plantation, port, railway company or shop: ­  37 (i) belonging to, or under the control of, the Central Government   or   a   State   Government,   a   person   or authority appointed by the appropriate Government for   the   supervision   and   control   of   employees,   or where no person or authority has been so appointed, the   head   of   the   Ministry   or   the   Department concerned,  (ii) belonging to, or under the control of, any local authority, the person appointed by such authority for the supervision and control of employees or where no person   has   been   so   appointed,   the   chief   executive officer of the local authority.  (iii)   in   any   other   case,   the   person,   who,   or   the authority  which,  has   the   ultimate  control over  the affairs   of   the   establishment,   factory,   mine,   oilfield, plantation, port, railway company or shop, and where the said affairs are entrusted to any other person, whether called a manager, or managing director or by any other name, such person; (s) “wages”  means all emoluments which are earned by   an   employee   while   on   duty   or   on   leave   in accordance   with   the   terms   and   conditions   of   his employment and which are paid or are payable to him in cash and includes dearness allowance but does not include   any   bonus,   commission,   house   rent allowance, overtime wages and any other allowance.”   29. The definition of ‘wages’ is very wide.  It means all emoluments which are earned by an employee on duty.  Thus, the honorarium paid to AWWs and AWHs will also be covered by the definition of 38 wages.  As AWWs and AWHs are employed by the State Government for wages in the establishments to which the 1972 Act applies, the AWWs and AWHs are employees within the meaning of the 1972 Act.   In view of the said Rules of the Gujarat Government, the Anganwadi   centres   are   not   under   the   control   of   the   Central Government.     Therefore,   the   State   Government   will   be   an appropriate Government within the meaning of clause (a) of Section 2 of the 1972 Act.  Accordingly, a person or authority appointed by   the   appropriate   Government   for   the   supervision   and   control   of AWWs and AWHs will be the employer within the meaning of clause (f) of Section 2.   30. I may add here that the Government of India by a notification rd dated   3   April   1997   has   notified   educational   institutions   as establishments under clause (c) of sub­section (3) of Section 1 of the 1972 Act.  In the Anganwadi centres, the activity of running a pre­ school for the children in the age group of 3 to 6 years is being conducted.  It is purely an educational activity.  The job of teaching is done by AWWs and AWHs. The State Government is running pre­ 39 schools in Anganwadi centres in accordance with Section 11 of the RTE Act. 31. For the reasons recorded above, I have no manner of doubt that the 1972 Act will apply to Anganwadi centres and in turn to AWWs and AWHs. In the impugned Judgment, the Division Bench was swayed by the view taken by this Court in the case of  Ameerbi which was followed by the Delhi High Court in the case of   Akhil Bhartiya   Anganwadi   Kamgar   Union   (Regd.)   (supra).   These decisions, for the reasons recorded earlier, have no bearing on the issue involved in these appeals.  The learned Single Judge was right in holding that the 1972 Act was applicable to AWWs and AWHs. The  Controlling Authority has granted simple interest at the rate of 10% on the overdue gratuity amounts.  All eligible AWWs and AWHs shall be entitled to the benefit of interest.  32. Hence,   I   allow   the   appeals   and   set   aside   the   impugned th Judgment dated 8  August 2017 of the Division Bench of Gujarat High Court and restore the Judgment of the learned Single Judge th dated 6  June 2016 in Special Civil Application no. 1219 of 2016 40 and other connected cases by holding that the provisions of the 1972 Act apply to AWWs and AWHs working in Anganwadi centres. Within a period of three months from today, necessary steps shall be taken by the concerned authorities in the State of Gujarat under the 1972 Act to extend benefits of the said Act to the eligible AWWs and AWHs.   We direct that all eligible AWWs and AWHs shall be entitled to simple interest @ 10% per annum from the date specified under sub­section 3A of Section 7 of the 1972 Act.  …………..…………………J. (ABHAY S. OKA) New Delhi; April 25, 2022. 41