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
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
was brought into force on 16 th
 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.
13. When   social   security   legislations   are   being   interpretated,   it
always   has   to   be   interpreted   liberally   with   a   beneficial   interpretation
and has to be given the widest possible meaning  which the language
permits, known as Beneficial Interpretation. When a statute is meant
for   the   benefit   of   a   particular   class   and   if   a   word   in   the   statute   is
capable of two meanings, i.e., one which would preserve the benefits
and one which would not, then the former is to be adopted.
14. Maxwell on Beneficial Construction   holds the following:
  “The   construction   of   a   statute   must   not   strain   the   words   as   to
include   cases   plainly   omitted   from   the   natural   meaning   of   the
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.”
15. This   Court   had   an   occasion   to   examine   discussions   in   detail
about   constructive   and   welfare   legislations.     The   judgment   in   State
Bank   of   India   Vs.   Shri   N.   Sundara   Money 1
  followed   with
Bangalore   Water   Supply   and   Sewerage   Board   Vs.   A.   Rajappa
and others 2
;   Sant Ram   Vs.   Rajinder Lal and others 3
  and later the
Constitution Bench in  Steel Authority of India Ltd. and others  Vs.
National   Union   Waterfront   Workers   and   others   4
  are   the
exposition of law on the subject.
16. When we examine the judicial precedents while interpreting  the
Act 1972, we come across certain judgments of this Court in  State of
Punjab   Vs.   Labour   Court,   Julludur   and   others 5
;   Ahmedabad
Private Primary Teachers’ Association  Vs.  Administrative Officer
1   1976(1) SCC 822
2   1978(2) SCC 213
3   1979(2) SCC 274
4   2001(7) SCC 1
5   1980(1) SCC 4
10

and   others 6
;   Jaya   Bachchan   Vs.   Union   of   India   and   others   7
;
State   of   Karnataka   and   others   Vs.   Ameerbi   and   others 8
  and
Birla Institute of Technology  Vs.  State of Jharkhand and others 9
may be in the different context.
17. While   adverting   to   the   facts   of   the   instant   cases,   it   manifests
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
learned Single Judge of the High Court vide judgment dated 6 th
 June,
2016 but the finding returned by the learned Single Judge came to be
6   2004(1) SCC 755
7   2006(5) SCC 266
8   2007(11) SCC 681
9   2019(4) SCC 513
11

reversed by the Division Bench of the High Court under the impugned
judgment primarily relying on the judgment of this Court in   Ameerbi
(supra).     The   details   of   each   of   the   appellant   who   had   served   in
Anganwadi workers/helpers are reproduced below:­
Date 
Of
Joining Date of
Retirement Number of
Years of
Service Amount
directed to
be paid 
towards
gratuity
SCA
1219/2016 1982 27.02.2011 29 Rs.20,913/­
SCA 
1220/2016 19.01.1984 30.04.2011 27 Rs.38,942/­
SCA 
1221/2016 03.08.1983 30.04.2006 23 Rs.13,269/­
SCA 
1222/2016 16.04.1981 29.02.2012 31 Rs.22,356/­
SCA
1223/2016 03.06.1989 20.02.2006 21 Rs.15,144/­
18. This   Court   took   a   judicial   notice   that   after   the   incumbent   has
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

19. The role of Anganwadi workers (AWW) and Anganwadi helpers
(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
introduced on 2 nd
  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.
23. When we talk about fundamental rights and rights of children
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
others   Vs.  State of Andhra Pradesh  and others 10
.
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
development,   Article   21­A   was   inserted   through   the   86 th
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.
43. The relevant part of the policy  decision dated 15 th
  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
composite   scheme   vide   its   Resolution   dated   25 th
  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
by   the   State   of   Gujarat   under   its   Resolution   dated   25 th
  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   Ameerbi   (supra)   on   which   the
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
accordingly   allowed   and   the   impugned   judgment   dated   8 th
  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.
1. The   issue   involved   in   these   appeals   is   whether
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.
Rajappa   and   others 11
,  it  was  submitted   that  as   there   is   a
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.
Administrative   Officer   and   others 12
,   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.
Ameerbi   and   others 13
  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
and others 14
.
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
and others 15
.
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
increased, under the Government Resolution dated 21 st
 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
Turf   Club   Limited   v.   Regional   Director,   Employees’   State
Insurance   Corporation 16
,   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
Government   of   India   launched   ICDS   on   2 nd
  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. 
7. The   2013   Act   came   into   force   on   5 th
  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
and   lactating   mothers.­   Subject   to   such
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
standards specified in Schedule II;  and
(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

used,   wherever   required,   as   per   the   guidelines
issued by the Central Government.
6. Prevention   and   management   of   child
malnutrition.­The   State   Government   shall,
through   the   local   anganwadi,   identify   and
provide meals, free of charge, to children who
suffer   from   malnutrition ,   so   as   to   meet   the
nutritional standards specified in Schedule II.”
                       (emphasis added)
11. The   provisions   mentioned   above   lay   down   the
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

“3.   Nature   of   entitlements.   ­   (1)   The
entitlements   referred   to   in   sections   4,   5   and
section   6   of   the   Act   shall   be   provided   under   the
Supplementary   Nutrition   Programme   of
Anganwadi   Services   (Integrated   Child
Development   Services   Scheme)   of   the   Central
Government   to   every   pregnant   woman   and
lactating   mother   till   six   months   after   childbirth,
and every child in the age group of six months to
six   years   (including   those   suffering   from
malnutrition).
(2)   The   Supplementary   Nutrition   under   the
Anganwadi   Services   (Integrated   Child
Development   Services)   is   primarily   designed   to
bridge   the   gap   between   the   Recommended
Dietary Allowance and the Average Daily Intake.
4.   Place   of   serving   meal.   ­   (1)   The   Anganwadi
Services   (Integrated   Child   Development   Services)
is a self­selecting scheme and   the entitlements,
as mentioned in clause (a) of section 4, clause
(a) of sub­section (1) of section 5 and section 6
shall   be   available   to   those   who   enroll
themselves   and   visit   the   nearest   anganwadi
centre   during  its   working  hours,   as notified by
the   State   Government   or   the   Union   territory
Administration from time to time.
(2)   The   meal   shall   be   served   at   the   nearest
anganwadi   centres   where   the   beneficiary   is
registered or enrolled.”
(emphasis added)
17

12. Thus,   Anganwadi   centres   have   been   entrusted   with   the
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
Resolution   dated   25 th
  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
Government   Resolution   dated   25 th
  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
pre­school   education .   —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.”
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
primary   schools   as   well.   We   may   also   note   here   that   on   8 th
  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
Government of Gujarat dated 25 th
 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   Ameerbi  will not detain this Court any further from deciding the
issue.     For   the   reasons   stated   above,   the   decision   in   the   case   of
Ameerbi   will   not   have   any   bearing   on   the   issue   involved   in   these
appeals.
PLIGHT OF AWWs AND AWHs
20. AWWs   and   AWHs   have   been   assigned   all­pervasive   duties,
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
Government   Resolution   dated   25 th
  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:
( 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.”
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)( b )  of  the  Payment
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)( b ),   to   refer   to   a   law   relating   to
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
State.   Such   an   establishment   would   include   an
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 : 
“(e)  "establishment" means­
(i) any office or department of the Government or a 
local authority, or ­
(ii) any place where any industries, trade, business, 
manufacture or occupation is carried on.”
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
assent   of   the   President   on   8 th
  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
the   President   on  28 th
  September  2020.   These  provisions  show  the
legislative intent to include the various Government establishments
in the category of establishments in the welfare statutes. 
27. It   is   not   the   case   of   the   State   Government   that   every
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
dated   3 rd
  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
Judgment   dated   8 th
  August   2017   of   the   Division   Bench   of   Gujarat
High   Court   and   restore   the   Judgment   of   the   learned   Single   Judge
dated   6 th
  June   2016   in   Special   Civil   Application   no.   1219   of   2016
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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.
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