CHIEF COMMISSIONER, DELHI AND ORS. versus FEDERATION OF INDIAN CHAMBERS OF COMMERCE AND INDUSTRY, NEW DELHI & ORS.

348

CHIEF COMMISSIONER, DELHI AND ORS. v. FEDERATION OF INDIAN CHAMBERS OF COMMERCE AND INDUSTRY, NEW DELHI & ORS. April 30, 1974 [Y. V. CHANDRACHUD, P. K, GOSWAMI AND R. S. SARKARIA, JJ.]

Delhi Shops and Establishments Act, (7 of 1954), s. 2(5) mid (21)

'Sliop' and 'Co1n1nercial esrablishment' scope of.

The respondent was required by the Chief Inspector of Shops and Es tablishments to register its 'e·stablishment• under the Delhi Shops and Estab lishments Act, 1954. The respondent contended that it was not an 'establish- ment' which is defined in s. 2(9)' as meaning ·a shop or a c-omn1ercial estab lishment'_ and did not comply with the direction. Proceedings for prosecu tion of its Secretary were instituted, where-upon the respondent filed a peti tion in the High Court for quashing the order of the appellant and for direct ing the Magistrate not to proceed with the complaint. Before the High Court the appellant contended that the respondent was a 'co1nn1ercial establishment' because, the activity of the respondent amounted to a 'profession', and alter natively, that the case f·~ll within the latter part of the definition of 'com1nercial cst4blishment' in s. 2(5), inasmuch a<; its activities were connected with trade and business generally, but, it was not urged that the activity of the n~spon­ dcnt an1ounted to carrying on ar.y 'business or trade' in its pren1iscs.

A

B

c

D

'I he writ petition was allowed by the High Court, holding that premises of the respondent were not a 'commercial establishment'. Jn appeal to this Court it was. contended that the_ activities of the respondent an1ounted .to a 'trade or business', 'commercial es1ablishment' and that the matter l\,Ja11agen1ent of the Federation o.f Indian Cha111bers of Co111111erce and lnd11str)' v. Sri R. K. Mittal [1972] 2 S.C.R. 353 .

that therefore it was a

(:overed by

\Vas

. Allowing the appeal.

HELD :-( 1) It is not proper to shut out the contentions of the appellant now' raised about the activity of the respondent being a 'trade or business' merely on the ground that the point was not properly put before the High Court. The question is only one of drawing a correct inference about the point in issue from the material already on record and will not require any additional material for decision.

[354E-F]

( 2) A place, in order to fall within the definition of 'commercial estab- lishment' must, in the first instance, be 'premises'. and secondly, should be premises wherein, (a) any trade, business or profession is carried on, or (b) any work in connection \vith or incidental or ancillary thereto is carried on. [353C-Dl

F

(3) The registered office of the respondent is 'premises'.

[353D]

( 4) All the activities of the respondent are business activities and are carried on systematically. Though the profit made by it is ploughed back for ils purposes as set out in its Memorandum of Association and is nor distri buted among its members. T'heref-i;>re, the decision in }vfittal's case [1972] 2 S.C.R. 353 that the activity of the respondent is in the nature of 'business or trade' is correct and that case does not require reconsideration. [356A-E. 3570-E]

(5) A· systematic activity can be a business activity even if no dividends

are declared or profits shrtred. [356F-GJ

•

G

Jn the niatter of Incorporated Council of Law Repurting for England and

Wales [1889] 2 Q.B.D. 279, applied.

H

(6) The pren1ises of th~ re·spondent, !herefore, are a 'comn1crciaf e~tablish-

ment. [357E]

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B

c

D

E

F

G

H

*

•

CHIEF COMMR. DELHI v. FICCI (Sar~aria, J.)

349

(7) For the application of the Act to the respondent it is immaterial V<hether its activities bring its premises within the ambit of a 'shop' or 'rom In Mittal's case it mercial establishment' within the meaning of the Act. was held that the activities of the respondent are also in the nature of mate rial services within the wider definition of 'industry' and, any premises where services are rendered to customers fall within the definition of a 'shop'.

l356E-Fl CIVIL APPELLATE JURISDICTION: Civil Appeal No. 1604 of

1%7.

From the judgmeut and order dated the 8th February, 1967 of the

Delhi High Court in Civil Writ No. 531-D of 1964.

P.P. Rao and R. N. Sachthey, for the appelrants. G. P. Pai, P. C. Bhartari and 0. C. Mathur, for respondents nos.

1 & 2.

The Judgment of the Court was delivered by- SARKARIA J. Whether the Federatiou of Indian Chambers of Commerce and Industry, New Delhi (Respondent 1) is a "commer cial establishment" within the meaning of s.2(5) of the Delhi Shops und Establishments Act, 1954 (for short the Act) is the sale question that falls for determination in this appeal by certificate directed against the judgment dated February 8, 1967 of the High Court of Delhi.

The facts bearing on this question may now be stated: Respondent 1 (hereinaftor referred to as the Federation) is a Company registered under s. 26 of the Indian Companies Act, 1913. ·1 he primary objects of the Federation as given in the Memorandum of 1\ssociation are :

"(a) To promote Indian business in matters of inland and foreign trade, transport, industry and manufactures, finance and all other economic subjects and to en courage Indian banking, shipping and insurance. (bl To encourage friendly feeling and unanimity among business community and association on all subjects connected with the common good of Indian business.· (cl To secure organised action on all subjects mentioned

above.

(d) To collect and disseminate statistical and other infor mation and to make effort for the spread of commer cial and economic knowledge .

( e) To take all steps by lawful means which may be necessary for promoting supporting or opposing legislation or other action affecting aforesaid economic interests and in general to take the initia tive to assist and promote trade commerce and industry.

the

(f) To .provide for arbitration in respect of disputes ansmg m the course of trade, industry or transport or other business matters, and to sec11re the services

350

SUPREME COURT REPORTS

(1975! 1 S.C.R.

of expert technical and other men to necessary or desirable.

that end

if

(g) To conduct undertake the conduct of and participate

in national' and international exhibitions.

(h) To set up museums or show-rooms, to exhibit the products of India and other countries and to parti cipate in such activities.

( i) To secure the interests and well-being of the Indian

business communities abroad.

To attain those advantages by united action which each member may not be able to accomplish in its separate capacity.

To help in the organisation of Chambers merce or Commercial Associations in commercial centres of the country.

of Com different

(j) (k)

(1)

(m)

(n)

(o)

(p)

(q)

(r)

(s) (t) (u) (v) (w) (x) (y) To sell or dispose of the undertaking of the Federation or any part thereof for such consideration as the Federation may think fit and in particular for shares, debentures, or secnrities of any other association or company having objects altogether or in similar to those of the Federation.

(z) To take or otherwise acquire and hold shares in any other association or company having objects alto gether or in part similar to those of the Federation.

(zl) To establish a Trust or Trusts

and/or appoint Trustees thereof from time to time and vest the funds or the surplus income or any property of the Fede ration in the Trustees who shall hold and deal with the funds, .surplus income or property in such manner as the Committee may decide.

'

(z2)

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c

D

E

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•

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CHIEF COMMR. DELHI v. FICCI (Sarkaria, J.)

351

(z3)

(z4) (4)

To draw, make, accept, discount, exec~te and is~ue bills of exchange, promissory notes, bills of ladmg, warrants, debentures and other negotible instruments or securities.

The income and property of the Federatiw, whence soever derived, shall be applied solely towards the promotion of the objects of the Federation as set f~rth in the Memorandum of Association; and no port10n thereof shall be paid or transferred directly or in directly, by way of dividend, bonus, or otherwise by way of profit to the members of the Federation .... "

The Articles of Association inter alia provide that a Chamber or an Association can become an ordinary member of the Federation on payment of annual subscription of Rs. 1,000/- or such higher amount as may from time to time be fixed by the Federation in addition to the admission fee of Rs. 500/-. The scales of subscription on the basis of turnover, deposits or premia for associate members have also b.een prescribed.

The Chief Inspector of Shops and Establishments. Ddhi (Appel lant 2 herein) called upon the Federation to register its establishment under the Act. The Federation failed to comply with fue direction and contended that it was not an "establishment" as defiµed in s. 2(9) of tho Act. This contention did not find favour with the Chief Inspector who, in consequence, made a complaint under the Act for prosecution of the Secretary of the Federation (Respondent 2 herein) under the appropriate penal provisions of the Act in the Court of the Magistrate, !st Class, Parliament Street, New Delhi. The Federation then moved the High Court under Article 226 of the Constitution for bringing up and quashing the order, dated February 4, 1964 passed by the Chief Inspector (Appellant 2). They further prayed for a writ of Prohibition directing the Magistrate not to proceed with the complaint.

Before the High Court, the contention oLthe Federation was that the premises in which the registered office of the Federation is located is not a "cc:mm~rcial establishment" within the meaning of s. 2(5) of the Act which, m consequence had no application.

B

c

D

E

F

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G

From the side of the present appellant, at first,

a half-hearted a_ttempt ;-v~s i;i;ade to show '.hat the Federation is carrying on a profes tendermg advice to all businessmen and traders". This sion as it is contention was negatived in these terms :

H

" .... that contention overlqoks the fact that the advice in ques_tion is not tendered for any consideration. It is done Ill t~e mte.rest of !rad~ and business of the country. The 1st petitioner is no_t tende~mg any advice or giving any assistance to any trader m particular. It deals with the trade or busi ness in. general to se~ure the interest of the country. It is predommantly a chantable organization and not a profes sional one."

f

352

SUPREME COURT REPORTS

· (1975] 1 s.c.R.

It was then contended that the activities of the Federation carried on A in the premises in question amounted to "work in connection with, or incidental or ancillary" to trade or business in general within the latter part of the definition of "commercial establishment". This contention was also rejected with the observation that since the earlier part of the definition refers to "some particular business or trade carried on in a premises" the words "any work in connection with or incidental or necessary thereto" obviously refer to such particular business or B trade and not to trade or business in general". In the result, it was held that the premises of the Federation were not a commercial establish ment, and the writ petition was allowed. A certificate, however, was granted under Article 133 (1 )( c) of the Constitution that the case was fit for appeal to this Court. Hence this appeal.

Before dealing with the contentions canvassed before us, it will C

be useful to notice briefly, the scheme and the relevant provisions of the Act.

The title of the Act is Delhi Shops and Establishments Act, 1954. The main object of the Act as stated in its preamble is "regulation of hours of work, payment of wages, leave, holiday, terms of service and other conditions of work of persons employed in shop, commercial D establishment, establishments for public entertainment or amusement and other establishments and to provide for certain matters connected therewith." Section 1 ( 4) indicates its extent and application. It shall apply in the first instance, only to the municipal areas, notified areas of Delhi and New Delhi etc., but Government may by notification extend or apply it to shops and establishments in the other local area or areas. The definitions of "commercial establishment", ''establish- men!" and "shop" given in sub-sections (5), (9) and (27) of section 2 are material for our purpose. They read :

E

"Con1n1ercial establishment" means any premises where in any trade, business or profession or any work in connec tion with, or incidental or ancillary thereto is carried on and includes a society registered under the Societies Registration Act, 1860, and charitable or other trust, whether registered or not, which carries on any business, trade or profession or work in connection with or incidental or ancillary thereto, journalistic and printing est'!blishments, quarries and mines not governed by the Mines Act 1952, educational or other tastitutions run for private gain and premises in which busi J!.¢-SS of banking, insurance. stocks and shares, brokerage or produce exchange is carried on, but does not include a shop or a factory registered under the Factories Act, 1948, or theatres, cmemas, restaurants, eating houses residential hotels clubs or other places of public amusement or entertainment."

"Establishment" means a shop, a commercial establish ment, residential hotel, restaurant, eating house, theatre or other places of public amusement or entertainment to which this Act applies and includes such other establishment as Government may by notification in the Official Gazette,

F

G

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CJUEF COMMR. DELHI v. FICCI (Sarkaria, J.)

353-

declare to -be an establishment for the purposes of Act .. -"

the

"Shop" means any premises where goods are sold, either by retail or wholesale or where services are to customers, and includes an office, a store-room, godown, ·warehouse or workhouse or work place, whether in the same premises· or otherwise, used in or in connection '".ith su~h trade or business but does not include a factory or commercial establishment.''

rendered

'

It will be seen that while the definition of "establishment" includes. a 'shop' and 'commercial establishment', the definitions of 'shop' and 'commercial establishment' are mu!Ually exclusive. Further, the defi nition of "commercial establishment" is wider than that oi "shop". A place in .. order to faU within the definition of "commercial Establish ment" must in the first instance be "premises". Secondly, it should be premises wherein (a) any trade, business or profession is carried on, or (b) any work in connection with or incidental or ancillary thereto is carried on. Sulrclause (b) is only ancillary to (a). There is no doubt that the registered office onhe Federation is premises. The con- . troversy centres round the question, whether the activity of the Fede ration carried on in these premises is a "trade, business or profession" within the meaning of part (a) of the definition.

This question is not res integra . .It came up for consideration be fore this Court in Management ·of the Federation of Indian Chambers · of Commerce and Industry v. Their Workman, Shri R. K. Mittal.(1) After considering its Memorandum of Association, Articles of Asso ciation and other material, which was more or less. the same, as in ·the present case, it was held by this Court that the activity of this Fede- ration is in the nature of a business or trade.

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c

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Mr. Rao, learned Counsel for the appellants strongly relies. on thee

aforesaid decision.

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Mr. - Pai, learned Counsel tor the Federation has firstly raised a preliminary objection that before the High Court, at no stage, it was urged on behalf of the Appellants that the activity of the Federation ·carried on in the premises -was a business or trade. It is added that a half-hearted argument. was advanced that its activity was a 'profession' a~d that,. too, was soon given up. In these. circumstances, it is sub mitted, the appellant& should not be allowed to commit a volte-face and take. _up in this Court a· stand which was either not taken or was given up in the High Court. In the alternative, learned Counsel con !< nds that even if this plea is allowed to be raised, then also the pri mary activity of the Federation cannot, by any stretch of reasoning; be called a 'trade, business of profession' within the. definition of "commercial establishment" given in the Act. According to Counsel the activity ·of the Federation is one of general utility· the only sourc~ of its income is from subscriptions. The occasional' exhibitions or ii · museums organised. by it are activit.ies which are only incidental 01

G

. ·ancillary to the p~ charitable dbject of the Federation. No divi- ,

(I) (1972] 2 S.C.R. 353.

:354

SUPREME COURT REPORTS

[1975] i S.C.R.

dends are declared; no profits are shared or divided amorig the, indi vidual niembers, and no goods are sold or exchanged. In support of· his contentions, learned Counsel has to · Commissioner ·of Income-tax v. Andhra Chamber of Commerce.(') ·

referred

.

.

.

.

· Mr. Pai further maintains that the ratio in · R. K. Mitta/'s. case ·

(supra) is· not applicable to the instant case because the definition of ••industry" in s. 2(j) of the Industrial Disputes Act, 1947 is far wider. than that of "commercial establishment" ins. 2(5) of the Act.

B

Mr. Pai furthe~ doubts the correctness of the dedsion in · R. · K. Mittal's case (supra) inasmuch as it holds that the activity of. the Federation partakes the character of trade or business. This finding, it is urged, is based on a misapprehension of"filcts and requires reconsi deration. It is pointed out.that it was wrongly assumed ip Mittal's.case C {supra) that the .Federation was systematically assisting not only its members but also·· other business-men and. industrialists even if they were not it! members. The fact of the matter is !hat the Respondent is a Federation1 of Federations and not an association· of any jndl vidual: traders,~ industrialists or. businessmen.

.beforc .. ·the D .·

· . ·.As regards the preliminary objection, it is tn,ie tliat . High Coqrt, it was not argued that the activity of the Federation ainounts to. the carrying on of any biisiness or trade. in the premises in question.· All that was attempted to argue there was, that its :icti- " vity amounted to a•'profession'. · Alternatively, it was· contended that . the ca~e fell within part (b) of the definition of "commercial establish ·ment" inasmuch as its activities -were connected with trade. and busi- ness, generally. .. '.We do' not ihink it proper to shut out th~ contentions no."v raised· before us· aboutthe activity of the .Federation being a trade or- busi- • ness; merely on the 'ground, that the point was ·not properly put before . the llighCourt.. This point will not require: any. additi9nal material for its decision; . The question is only of drawing a co:rrectinferenc~ · about the point in issue from the .material. already on record. ·we,. F. therefore, overrule the prelin:iinary objection. · . Thi! takes us t~ the merits of the case~ In R. K. Mittal's .c~se;· ·!his.Court was considering· the activity of this Federation· in the con . iext of 'industry' as defined in. s.2 (j) of the Industrial Dispµtes Act. That definition reads:

E

.

·

. " •industry" means any business,

trade, undertaking, . manufacture or calling of employers and includes any cal- ling, service,. employment, handicraft or industrial occupa- · tion Or .evocation of workmen."

. _ -·

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G .

.I;·wfilbe seen that "any busii:tess, trade" is. an element commo!1 to the d~tinitions of "commercial esl.'J.blishment" and "industry" . given

· in the . activit}'.\ of .the Federaticom is a. business or trade actiVIty, was

respective statutes. That .·was why the questi?n, whethd~r ttlhe H . 1

rrec Y

(IJ (1965) l $.C.R. 565;

CHIEF COMMR; DELHI v. FICCI" (Sarkaria, J.)

355 -

A

and substantially in issue in R. K. Mittal's case. Therein,, the Memo rar.dum of Association, Articles of Association and the other !ll'aterial placed before the court were closely examined. The entire case law was surveyed, _The contentio_ns now canvassed were also raised and - Jagnmohan Reddy J. speaking·for the Court,. · considered in that case.

pcsed the question for decision thus :

e·

. C.

D

E

' '.'In OU~ 'view the Unch-pin of the definition of ind~try' is to •ascertain the systematic activity which the organization is. tlischarging -namely,· whether it partakes the nature .of a business or trade; . or is an· undertaking or manufacture or (emphasis added) calling of employers".

The answer given _to this question has 'been correctly summed up

in the head-note of the Report; as under:

_

_

·-

_-.

"The above being the position in lllw the were fact that the appellant Federatio.n had charitable ainis and · objects would not take it out of the definition of industry._ Ari examination of the : activities of the Federation showed that the Federation carried on systematic •activities to assist _its members and other businessmen and. industrialists arid even to non-members as for instance in giving them the right to subscribe_ to their bulletin; in taking up their cases and sol- · ving their difficulties and in obtaining concessions and faci- - lilies -from them from the Government.. These ac1ivities were business activities and material services rendeltd to . biisiiiessmen, 'traders .arid industrialists who are meiribers of the constituents of the Federation: There could ~ no doubt that' the Federation waS an. industry within the ineaning of

.. s.2(j) of the Act."

(The crucial words are those that have been unlferlined).

F

The case under the Income~tax Act· wherein the main ·object of the or&-~nization was' charitable, were also considered 11nd fOun'd or little assistance. _ It _was obsen'ed Chat:

-- "th~ object of an organisation may be charitable but never- - .theless its activity may be commercial .so as to satisfy the_ definition of an industry as explained and illustl\lted by this Court particularly in Safdarjanf/ .- Hospital's case.( 1) . . We could therefore envisage an institution having its_ aims and objects charitable and yet its activities could. bring it within the definition of indu_stry"

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- 'The •above observations were.made in the context of the definition of 'industry but. they are equally'applicabl~ in the. present case._ Th~ very definitio:i of "com?lercial e~tablishment" indicates. that the aci; \•ity -of a reg1s'.·~red society, chantable <;ir other trust will not take 1t - out of the definition if the ttctivity carried on by it amounts to a busi-

(l) (1971] t,'s.C.R. tn.

356

SUPRE~OURT REPORTS

(1975] 1 S.C.R.

... iess, trade or profession or any work in collneCtion therewith or inci-

.d~ntal thereto.

·

·.

.

.

.

.. ·

A.

.No doubt, !he effectiv~ memb7rship-as distinguishe~ni Hono rary mem)Jership-<>f the Federat10n 1s open only to Chan~ -0f ·• Commerce or Commercial Associations of requisite strength and stanol; ' ing, but the fact reniains that it carries on systematic activities not only to assist its members but also other traders or busi.-:te>S'lllen members c,f the constituents of the Federation. · It ha3 set up Tribunals for arbitration in disputes arising between individual. traders. or· bU3iness · concerns in the course of trade; industry· or other bU3iness matters.:-: .It takes up with the concerned authorities the specific difficulties ex perienced by the trade in the day today business and ·endeavours to attain for the tmders and industrialists those material advantages by unified action which they may not be able to achieve in· their indivi- .dual capacity. It helps businessmen and industrialists by securing for them the services of expert technical men (vide clauses (f) and (k) of.the Memorandum of Association). It undertakes regular pub lication of periodioals, bulletins, .Reviews etc. for the benefit of ~usi- . nessmen, big or small and whether. or not they are members of the .. Federation. These publications are available on payment of subscrip- tion or price even to individual businessmen or traders who are not D members of the Federation. . All these are business activities are. that R. K. <:arried on systematically. We therefore do not Mittal's case (supra) was incorrectly decided and needs reconsidera- tion.

thllik

Ir

C ·

It is true that in R. K. Mitta/'s case (supra) it was held that these activities o(tlle Federation are. also in the nature of material services E .within the wider definition of 'industry'. Though th~ rcnderin;:i o( ser-· vices is not specifically mentioned as an element·of the definition.of "'commercial establishment", yet this very element appears in th~ ~fi­ nition of 'shop' ins. 2(27) of the Act: Any l?remises where services are rendered to customers fall within the defin1tion of a "shop". Thes;:: ·services are mat<;rial services. · For the application of the Act to the Federation, it is immaterial whether its activities bring its premises °\Vithin the ambit_ of a "shop" or a "commerctal establishment".

F

It is well settled that a systematic activity cen be a busine'5 actiyity

.

·

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.even if no dividends are declared or profits shared.

. . In the matter of Incorporated Council of Law Reporting for Eng~· ·

. land and Wales,(') the Queens Bench was considering the interpreta- tion of the expression "trade or business" in s. 11 of the English Customs and Inland Revenu~ Act 1885 witll reference to the activity of the lnc6rp.-rated Council of Law Reporting for England and Wales. The · association was established for the objects of preparing and publishing under gratuitous. professional control, reports of judical decisions; of In issuing digests and other publications relating . to legal subjects. . -carrying tllem out the association employed editors, reporters, printers, and publishers and supplied its publications to subscribers and others H for p<lyment. It was condended that the activity of the Association 'Was not "a business or trade" because by the Memorandum of Associ·

. G ..

(I) [1889] 2 Q. B. D. 27J.

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CHIEF COMMR. DELHI v. F!CCI (Sarkaria, J.)

357

alion all the property and income of the association were applic:ilile- · solely to the promotion of the above objects, and no part could be paid as dividend or otherwise; to any member.

thereof

Holding that the association was established for a "trade or busi

ness", Lord Coleridge C. J. repelled the contention in these terms:

"Though it m_ay b_e true that in the great majority of· . cases the carrying on of a trade does, in fact, include the idea of profit, yet the definition of the mere word 'trade' does not necessarily mmn something by which a profit. is made. But putting aside the' question whether they carry on a trade, how can it be denied that the Council carry on. a business? They ure incorporated; they have a secretary; they emplo:r oditors, reporters, and· printers; they print books, they sell those. books, they do all that is ordinarily done in carrying on the business of a bookseller."

The above observations apply mutatis mutandis to the· activity of . the Federation. It will bear repetition that the Fede.ration also pub lishes periodicals, bulletins etc .. and issues the same to members free cf this Court in R. K. Mittal"s case (supra) we would hold that the commercial or· industrial exhibitions, runs museums and makes profits. · Oi course, that profit is ploughed back for the purposes of the Federa tion as set out in its. Memorandum of Association, and is not distri buted among its members .. But that does not "alter the fact tlrat its activity is a trading or business activity.

·

E

For all the foregoing reasons, particularly in view of the c;leeision of this Court in R. K. Miltars case, ("supra) we would hold that the pre· · premises· of the· Federation are a '"commercial estab!ishm"nt" ·within

the meaning _of s. 2(5j of the Act.

·

In the· result we allow this appeal, set aside the judgment of the High Court and dismiss the writ petition. In the circumstances of the case we make no order as to costs.

V.P.S.

; ,_

. -~ -

Appeal allowed.

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