Judgement

HIDAYATULLAH, J. : The appellant is the proprietor of two Establishments called Ananda Bhavan Boarding and Lodging and Hotel Brinda Palghat. He was convicted by the Special First Class Magistrate, Kozhikode on three counts under paragraph 76 (c) and (e) of the Employees Provident Fund Scheme 1952 read with Section 14 of the Employees Provident Funds Act, 1952 for having failed to submit the returns; statements and other documents required by the Scheme in respect of three quarters July to September, 1961, October to December, 1961 and January to March, 1962. He was fined Rs.25 on each count. His application for revision in the High Court of Kerala was dismissed. He has now filed these appeals by special leave of this Court.

2. Ananda Bhavan Boarding and Lodging was started by him on December 6, 1949 and Hotel Brinda on January 15, 1959. He had a third establishment which went under the name of Anand Bhavan started on September 15, 1948 but it was sold by him in April, 1962 Complaints were filed against him by the Provident Fund inspector, Trichur on December 16, 1962, alleging that he had contravened paragraphs 36 (2) (a) and (b) and 38 of the Scheme. Under these provisions he was required to submit within 15 days of the close of the month a return of the employees qualified to become members of the Fund for the first time during the preceding month together with a declaration of such qualifying employees and to pay to each member his wages in respect of and period or part of the period for which contributions were payable after deducting the employees contribution from his wages which together with his own contribution as well as an administrative charge were to be paid to a Fund established under the Scheme. He was also required to forward to the Commissioner within 15 days of the close of the month a consolidated statement. The appellant contended that two employees were working in the Anand Bhavan Lodging and 11 members in the Hotel Brinda. He claimed exemption for five years under the Act. His further defence was at the three establishments formed different units and that 20 persons were not employed in any one of those places and that even if the three establishments could be deemed to be a single establishment the number of employees reached the figure 20 (which the Act puts down as the minimum) after Hotel Brinda was opened in January 1959 and he was entitled to an exemption under the Act for a further period of five years from January 15, 1959. Lastly, he pleaded that if there was a doubt on all these points the matter could only be decided after the doubt was cleared by an order of the Central Government under Section 19A of the Act. His pleas were not accepted by the High Court and the Magistrate and he has raised some of the contentions before us.

3. Before we consider the arguments which have been urged before us we may refer to some of the provisions of the Act. Employees Provident Funds Act became law on March 4, 1952 and the scheme was published on September 2, 1952. A part of the Scheme became operative from October 31, 1953; other portions came into operation on subsequent dates. It was not contended before us that the relevant parts of the Scheme were not in force. The Act applies to the whole of India and subject to the provisions contained in Section 16 of the Act it applies (a) to a factory engaged in any industry specified in Schedule I in which 20 or more persons are employed and (b) to "any other establishment employing 20 or more persons or class of such establishments which the Government may by notification in the Official Gazette specify "in this behalf" These establishments come within the (b) and are governed by the appropriate notification issued by the Central Government. No contention has been raised before us that the Act and the Scheme were not applicable to the kind of establishments here. Since the objection is that Section 16 excludes the establishments for a period we may read tha