Sitaram Ramcharan Etc. v. M. N. Nagarshana & Others

##### S.C.R. SUPREME COURT REPORTR 875 their case of benami acquisitJon of these properties- I959 a case which is not now questioned-the fact that the _K_ signatures of Prahlad Rai and others on some relative _edar Nath Motani_ documents were not their own, cannot disentitle the Prahl:~ _Rai_ plaintiffs-appellants to a decree. The exceptions to the rule contained in the maxim were not considered _Hidayatullah_ _J._ by the High Court, which proceeded entirely upon the supposition that every illegality or fraud disentitled a plaintiff to a judgment. That, however, is not ##### the law. We accordingly hold that the appellants were entitled to a decree in their favour, and with ##### respect, it was wrongly disallowed by the High Court. \Ve set aside the judgment and decree of the High Court of Patna, and restore those of the Subordinate ##### Judge, Motihari. In the circumstances of this case, we think that we should make no order about costs ##### of this appeal. _Appeal allowed._ SITARAM RAMCHARAN ETC. ##### _v._ M. N. NAGARSHANA & OTHERS (B. P. SINHA, P. B. GAJENDRAGADKAR and K. N. WANCHOO, JJ.) _Payment of_ l-V _ages-Application claiming overtime wages-Bar_ _of limitatron-Condonation of_ _delay-Applicant,_ _if_ _must_ _show_ _sufficient cause for delay till presentation-Payment_ _of_ _Wages Act,_ _r936,_ (4 _of_ r936), _s._ r5(2), _second_ _proviso._ The appellants, who were employees in the Watch and Ward Department of various textile Mills of Ahmedabad, applied for overtime wages under s. r5(2) of the Payment of Wages, r936. The applications were presented to the authority under that Act between July 22, r953, to October 6, 1953, claiming overtime wages for the period between January r95r, to December, r95r, beyond the period of six months prescribed by the first proviso to that sub-section. Their case as made in the applications for condonation of delay under the second proviso, in substance, was that they were unaware of their rights under s. 70 of the Bombay Shops and Establishments Act, r948, until that section was for _September 25_ ##### 876 SUPREME COURT REPORTS (1960(1)] _r959_ the first time correctly interpreted in the _Ruby Mills_ _case_ (Vide Bombay Labour Gazette dated January 1953, Vol. 32, No. 5, _Sitaram_ p. 521.) on May 2, 1952, as making s. 59 of the Factories Act, _Rameilar•n Etc,_ 1948, applicable to them and that they were diligently prosecuting v. their remedy in the industrial Court which held against them. _M.N. Nagarshana_ The authority held against the appellants and the High Court _and Others_ refused to interfere under Arts. 226 and 227 of the Constitution. The authority found that the appellants had failed to prove sufficient cause for the delay even after the decision in _Ruby_ _Mills Case._ The second_proviso to s. 15(2) of the Payment of Wages Act, 1936, provides as follows, " Provided further that any application may be admitted after the said period of six months when the applicant satisfies the authority that he had sufficient canse for not making the ##### application within such period." It was contended on behalf of the appellants in this Court that once it was proved that there was snfficient cause for not making the application within the prescribed period; and in the present cases the ignorance of the true scope and effect of s. 70 of the Bombay Shops and Establishments Act, 1948, was such a canse, the bar of limitation was wholly out of the way and the ·application could be filed at any time. _Held,_ that the contention must fail. The second proviso to s. 15(2) of the Payment of Wages Act, 1948, was in substance similar to the provision of s. 5 of the Indian Limitation Act and could be availed of only by proving sufficient cause for the entire delay till the presentation of the application. _Ram Narain Joshi_ v. _Parmeswar Narain Makta,_ (1903) I.L.R. 30 Cal. 309, referred to. _Lingley_ v, _Thomas Firth_ & _Sons, Ltd.,_ (1921) l K.B. 655, _Powell_ v. _The Main Colliery_ _Co._ _Ltd.,_ 1900 A.C. 366, _J. Hogan_ v. _Gafur Ramzan,_ XXXV B.L.R. n43, _Salamat_ _v. A/(ent, East Indian_ _Railway;_ (1938) I.L.R. 2 Cal. 52 and _Kamarhatti_ _Co._ _Ltd._ v. _Abdul_ _Samad,_ (1952) I L.L.J. 490, distinguished and held· inapplicable. The finding of the authority that the appellants had failed to prove sufficient cause for the delay subsequent to the decision in _Ruby Mill• Case_ was a finding of fact and could not be challenged in this Court. CIVIL APPELLATE JURISDICTION: Civil Appeals Nos. 9 to 28 of 1957. Appeals from the judgment and order dated June 22, ##### 1954, of the Bombay High Court, in Sp(ll:Jial Civil Applications Nos. 285, 348, 1214 to 1221, and 2356 to 2365of1954, S.C.R. SUPREME COURT REPORTS 877 ##### N. V. Pha.dke, S. S. Shukla and Mrs. Udayaratnam, z959 for the appellants. _Silaram_ ##### _M. 0. Setalvad, Attorney-General for India, J. B. Ramcharan Etc._ Mehta, .!. B. Dadachanji, S. N. Andley and Ramesh- v. war Nath, for respondent No. 2 (in C. As. Nos. 9-14, M. N. dNaOgharshana 1 16-20 and 22-28). _an_ _ers_ ##### B. K. B. Naidu and J. N. Shroff, for respondent No. 2 (in C.A. No. 15 of 1957). 1959. September 25. The Judgment of the Court was delivered by ##### GAJENDRAGADKAR J.-This group of consolidated Gajendragadkar J. appeals has come before this Court with a certificate granted by the High Court at Bombay, under Art. 133 of the Constitution ; the certificate shows that according to the High Court the amount of the value of the subject-matter in dispute involved in these consolidated appeals exceeds Rs. 20,000 and they raise a substantial question of law. The 385 appellants concerned in these 20 appeals ##### are employees in the Watch & Ward Department of various textile mills in Ahmedabad. They had filed 20 applications between July 22, 1953, to October 6, ##### 1953, before the authority under the Payment of Wages Act (hereinafter called the authority) and had claimed overtime wages for the period between January, 1951, to December, 1951, and June-July, 1953. These applications \Yere accompanied by another set of 20 applications in which they prayed for condonation of delay made in putting forward the claim for overtime wages under the second proviso to s. 15(2) of the Payment of Wages Act 4 of 1936 (here. ##### inaner called the Act). The authority considered the case made out by the appellants for condonation of delay and held that they had failed to prove sufficient cause for not making their applications within the prescribed period. The appellants then moved the High Court at Bombay under Arts. 226 and 227 of the Constitution. These applications also failed and were dismissed; Then the appellants moved the High Court for a certificate, and a certificate was granted to Ill 878 SUPREME COURT REPORTS (1960(1)] #### 1 959 them, It is with this certificate that they have come to this Court. _**Sitar am**_ #### Rameharan Etc. It is necessary at first t.o set out the circumstances v. under which the appellants have made their claim for _M.N. Nagarshanaovertime_ wages in their present applications. Section _and Others_ 59 of the Factories Act, 1948 (63 of 1948) which came #### . -k into force on September 23, 1948, provides for the _**Ga1endragad ar**_ _1_ . payment - f extra wages,. ior overtime . to persons who #### are workers as defined by s. 2( 1) of the Act. It is common ground that the appellants are not workers under the said section ; and so they did not claim any ##### of the benefits conferred on workers by the provisions of the Factories Act. The Bombay Shops and Establishments Act, 1948 (Bombay Act 79 of 1948) came into force in the State of Bombay on January 11 1949 ; and it is not denied that the appellants are employees under s. 2(6) of the said Act. S. 70 of this Act provides for the application of s. 59 of the Factories Act to all employees working in factories like the appellants, but the words used in s. 70 are not very ##### clear and the effect of its provisions was a matter of doubt which was finally resolved by the decision of this Court in the case of Shri B. P. Hira, Works _Manager, Central Railway, Parel, Bombay,_ _etc._ _v. Shri_ #### C. M. Prarlhan etc., (~) on May 8, 1959. It is because the true effect of this section was not appreciated by the appellants that the present difficulty has arisen. Not knowing that they were entitled to the benefits ##### of the relevant provisions of the Factories Act. by virtue of s. 70 of the Bombay Shops and Establishments Act, the representative union of the appellants raised an industrial dispute by a notice on September 20, 1949, claiming some of the amenities provided by the Factories Act (Ref. (IC) No. 192 of 1949). While delivering its award on this reference on November 25 1950, the Full Bench of the Industrial Tribunal observed that the employees did not appear to be ##### covered by the Factories Act and on that basis it awarded to them a nine-hour day, two holidays per #### month and a limited provision for overtime wages. It is clear that this award proceeded on the assumption (1) (1960] I S.C.R. 3" ##### B.C.R. SUPREME COURT REPORTS 879 ##### that the relevant provisions of the Factories Act did z959 not apply to the appellants. On May 2, 1952, the _Sitaram_ appellate decision delivered by the Chief Judge of the _Ramcharan Etc._ ##### Court of Small Causes, in the case of Ruby Mills ( [1] ), v. however, construed s. 70 of the Bombay Shops and _M. N. Nagarshana_ Establishments Act and held that the employees fall- _and_ _Others_ ing under the provisions of the said section were _G_ . _d-adk_ . . . d f h _a;en rag_ ar _1_ . entitled to claim overtime wages un er s. 5 9 - t e ##### Factories Act. In other words, this decision for the first time properly construed s. 70 of the Bombay Act ##### and held that the said section in substance extended the provisions of s. 59 of the Factories Act to the employees covered by s. 70. When the appellants' union come to know about this decision it moved the Minister of Labour, Bombay, on October 30, 1952, and requested him to persuade the Ahmedabad mills to extend the benefits of the Factories Act to their Watch & Ward staff; on November 1, 1952, the union received a reply from the Minister stating that he had drawn the attention of the factories Department to the judgment in the _Ruby Mills'_ _case_ ( [1 ] ). Thereafter the secretary of the union requested the Chief Inspector of Factories, Ahmedabad, to enforce the above decision in Ahmedabad. Subsequ ent correspondence followed between the union, the factory authorities and the Mill Owners' Association, ##### Ahmedabad. In May, 1953, the Mill Owners' Asso ciation accepted the position that the appellants were covered by the Factories Act and in .July, 1953, the appellants were for the first time paid for overtime at the rate provided under the ]factories Act. Some mills paid the overtime wages with effect from January, 1953, some from May, 1953, and some from July, 1953. ##### In August, 1953, the secretary of the new union, which the appellants had joined in the meanwhf'le, wrote to the employers requesting them to pay overtime wages for the prior period ; and when this request did not receive a synpathctic response from the employers the present applications were tiled before the authority making a claim for overtime wages for the period already mentioned. (I) _Vide_ Bombay Labour Gazette dated January 1953, Vol. 32, No. _5,_ p . .;zr. 880 SUPREME COURT REPORTS [1960(l)J ##### '959 In their applications for the condonation of delay _Sita.am_ the appellants alleged that they had _bona fide_ believed ##### Ramcharan Etc. that neither the Factories Act nor the Bombay Shops v. and Establishments Act applied to the Watch & ward _M._ _N. Nagarshan•_ staff, and so they had moved the industrial court for _•.nd Others_ redress of their grievances. The step thus taken by _G_ . _nd-_ _dk_ the appellants shows that in asserting their rights they _1_ _•.nd Others_ redress of their grievances. The step thus taken by _nd-_ _1_ ## a;• ••g• •• · were exercising due diligence and care. The employ ers conceded the position that the appellants were entitled to claim overtime· wages only in May, 1953, and then the appellants tried to negotiate with them for the payment of the overtime wages claimed in the #### present applications. It is on these grounds that the appellants prayed that the delay made in presenting the claim should be condoned. This claim was resisted by the employers on two grounds; it was urged hy them that the main ground alleged by the appellants for claiming condouat10n of delay amounted to a plea of ignorance of law and that ignorance of law cannot be a sufficient cause ##### under the relevant proviso. It was also contended that no sufficient or satifactory reasons had been given by the appellants for the delay made by them in filing the present applications subsequent to May 2, 1952, when s. 70 of the Bombay Act had been authoritatively considered by the appellate court in the case of _Ruby Mills_ ( [1] ); and so the employers argued that the appellants were not entitled to ask for condonation of delay. The authority upheld both these contentions ##### raised by the employers. It considered the judicial decisions cited before it and held that even if the appellants were ignorant of the rights that they got under s. 70 of the Bombay Act such ignorance of ##### law cannot be said to be a sufficient cause. It also examined the conduct of the appellant subsequent to the date of the decision in the _Ruby Mills_ _case_ (') and held that ihe said conduct did not ##### justify the appellants' claim \hat they were acting _bona._ _.fide_ and with due diligence in asserting (I) _**Vide**_ **Bombay Labour Gazette, dated January 1953, Vol. 32, No.** _**5,**_ **p.** **521.** ##### S.C.R. SUPREME COURT REPORTS 881 their rights. In dealing with this latter question z959 the authority observed that the appellants did _Sitaram_ not specify when they came to know about the _Ramcharan Etc._ decision in the case of _Ruby_ _Mills_ ( [1] ), and no satis- v. factory explanation: had been given by them as to _M. N. Nagarshana_ why, immediately after coming to know of the said _and Others_ decision, they did not move the authority. Thee . _d-dk_ . l . d h d h _a1en_ _raga ar_ _1_ authority a so examme t e correspon ence t at passed between the parties after the decision in the _Ruby Mills'_ _case_ (1) and found that the appellants were even then claiming the benefit of the Factories ##### Act prospectively and not retrospectively. In the absence of any affidavit explaining the conduct of the appellants after May 2, 1952, when the _Ruby_ _Mills'_ _case_ (1) was decided, the authority came to ##### the conQlusion that the inaction of the appellants was not at all satisfactorily explained, and so no sufficient cause could be said to have been shown by them to justify the condonation of delay. As a result of these two findings the authority refused to excuse delay, and so the claim made by the appellants for overtime wages for a period beyond the prescribed period of limitation was rejected. When this decision was challenged by the appellants before the High Court by their petitions under Arts. 226 and 227 apparently the only point urged before the High Court was that the authority was in error in holding that an error of law cannot be a sufficient cause under the relevant proviso to· s. 15 (2) of ### the Act. It does not appear that the attention of the High Cour~ was drawn to the second finding made by ##### the authority, and so, that aspect of the matter has not been considered in the judgment of the High Court. Dealing with the point raised before it the High Court agreed with the view taken by the authority, and held that ignorance of law cannot con##### stitute a sufficient cause. "Ignorance of law", observed the High Court, " is ignorance of the rights of a party which the law confers upon him, whereas mistake of Jaw is mistake in establishing those rights (r) _Vide_ Bombay Labour Gazette, dated January 1953, Vol. 32, No. 5. p. 52r. ##### 882 SUPREME COURT REPORTS [1960(1)) _'959_ by, for instance, going to one forum instead of another." _Sitaram_ The High Court has observed that in cases where there _Ramcharan Etc._ is a mistake of law courts have altnost uniformly taken ##### v. the view that the time taken up by asserting the _M. N. Nagarshana_ rights in a wrong court or a wrong forum should be #### ••d Others excused, and in coming to this conclusion they had been largely influenced by the principle underlying _Gajendragadkar 1._ s. **14** of the Limitation Act. That is how the petitions filed by the appellants in the High Court were dismissed. Before dealing with the merits of the contentions raised by Mr. Phadke in the present appeals it is necessary to read the relevant provisions of s. 15 of ##### the Act. S. 15(1) provides for the appointment of the authority to hear and decide for any specified area all claims arising out of deductions from the wages, or delay in payment of the wages of persons employed or paid in that area. Sub·s. (2) provides, _inter alia,_ that ##### if any deduction has been made from the wages of an employed person contrary to the provisions of the Act or any payment of wages has been delayed, such person may apply to such authority for a direction under ##### sub-s. (3). It is under this sub-section that the present applications have been made. The firnt proviso to sub-s. (2) prescribes limitation, and says that every such application shall be presented within six months from the date on which the cause of action accrued. #### It is the second proviso with which we are directly concerned in the present appeals. This proviso lays down further that any application may be admitted after the said period of six months when the applicant satisfies the authority that he had sufficient cause for not making the application within such period. The principal question which has been agitated in the High Court and before the authority was whether ignorance of law can be said to constitute sufficient cause within the meaning of this proviso. #### ••d Others excused, and in coming to this conclusion they had Mr. Phadke contends that. this proviso confers wide discretion on the authority and Legislature has deliberately not circumscribed or regulated in any mo,nner the exercise of the sai(l discretion. He concedes that it has to be exercised judicially but he protests o,gainst # ##### S.O.R. SUPREME COURT REPORTS 883 the imposition of any rigid rule, or, as he called it, _z959_ self-denying ordinance, by which the authority would invariably refuse to treat ignorance of law as falling Ram;~:::nmEte. within the expression " sufficient cause " under the v. proviso. According to him there is no rule in IndiaM. _N._ _Nagarshana_ that ignorance of law cannot be a sufficient cause for _and Others_ explaining the delay made in instituting legal proceed- . ings; and he strongly urged that even if such a rule _Ga1mdragadkar_ _J._ applies to ordinary legal proceedings it would be singularly inappropriate in the interpretation of the provisions of welfare legislation like the Act. ##### In support of this argument Mr. Phadke has invited our attention to the decision of the House of Lords in _Hyman_ v. _Rose_ (1) as well as the decision of this Court in _Namdeo Lokman Lodhi_ v. _Narmadabai_ ( [2] ). Both these decisions dealt with the question of the discretion vested in the courts to grant relief against forfeiture, and .Mr. Phadke's argument was that the relevant words used in that behalf in conferring discretion on the courts have been construed in their widest denot1J,tion and are similar to those in the proviso with which we are concerned; and so the same construction should be adopted in interpreting it. He has also strongly relied on the decision of the Privy Council in _Brij Indar Singh_ v. _Kanshi Ram_ (3) where their Lordships have considered the trend of judicial decisions in India which interpreted s. 5 of the Indian Limitation Act, 1908, and have observed that there appeared to bea uniform practice in the Indian High Courts under which a mistake in law was in proper cases treated as sufficient cause for excusing delay. "Now ifthe matter were entirely open", said Lord Dunedin in delivering the judgment of the Board, " in as much as a mere mistake in law is not _per se_ sufficient reason for asking the court to exercise its discretion under s. 5, there would be a good deal to be said in argument in favour ## of making the rule universal . . . ... But the matter is not open. To interfere with a rule which after all is only a rule of procedure which has been laid down as a general rule by Full Benches in .all the Courts of (1) [1912] A.C. 623. (2) [1.953] S.C.R. 1009; 1027. (3) (1917.) L.R. 44 I.A. 218. 884 SUPREME COURT REPORTS **[1960(1)]** _'959_ India, and acted on for many years, would cause great _Sitaram_ inconvenience, and their Lordships do not propose so _Ramcharan Etc._ to interfere". Mr. Phadke argues that this decision is v. an authority for the proposition that in a proper• case _M. N. Nazarshana_ a mistake of law or ignorance of law may constitute a _and Others_ sufficient cause under s. 5 of the Limitation Act, and according to him, the same principle should apply in _Gajendragadkar_ _J._ construing the proviso in question. We do not propose to deal with this argument because, as we will presently point out, we have come to the conclusion that the appellants would fail even if we were to uphold Mr. Phadke's present contention. As we have already noticed the authority has held against the appellants on two grounds, one that ignorance of law cannot be a sufficient cause, and second that, even if it was, in fact the appellants had not explained the delay made by them in making the present applications after they knew of the decision in the case of _Ruby Mills(')_ on May 2, 1952. This latter conclusion is a finding on a question of fact and its propriety or validity could not have been challenged before the High Court and cannot be questioned before us in the present appeals. Unfortunately it appears ##### that the attention of the learned judges of the High Court was not drawn to this finding ; otherwise they would have considered this aspect of the matter before they proceeded to deal with the interesting question of law raised before them. Mr. Phadke fairly .conceded that he could not effect##### ively challenge the finding of the authority that no satisfactory explanations had been given for the delay in question. He, however, argued that the said finding would not effect the final decision because, according ##### fo him, once it is held that ignorance of law can be a sufficient cause, then the period until May 2, 1952, .,. would be covered by the appellants' ignorance about the true scope and effect of th.!l provisions of s. 70 of the Bombay Shops and Establishments Act. This posi#### tion may be conceded. It is true that the true effect of the said section was not appreciated by either the **(1)** _**Vide**_ **Bombay Labottr Gazette,** **dated** **January** **19,53.** **Vol. 32, No. 5,** **p,** **521.** ##### S.C.R. SUPREME COURT REPORTS 885 workmen and their union or the employers or the _1 ?so_ authorities under the Factories Act, or even by the _Sitaram_ industrial courts. But the question still remains _Ranicharan Ft"._ whether the appellants are not required to expla.in the _v._ delay made by them after May 2, 1952. Mr. Phadke _M._ _N: :Vagarshana_ says that it is not necessary for his clients to explain _anu Othe1s_ this delay. His argument is that what the relevant _Gajendra•adkar_ _J._ proviso really means is that if sufficient cause has been ° . shown for not making the application within the prescribed period of six months then the application can be made any time thereafter. The statutory bar created by the prescribed limitation is removed once it is shown that there was sufficient cause for not making the application within the said period; and once that bar is removed, there is no further question of limitation and the applicant cannot be called upon to explain the subsequent delay. That is the effect of the argument urged by Mr. Phadke on the relevant proviso. This argument is substantially founded on the decision of the Court of Appeal in _Lingley_ v. _Thomas Firth_ _&_ _Sons Ltd._ ( [1 ] ). In that case the court had to construe the words "reasonable cause" used in proviso (b) to s. 2, sub-s. (1) of the Workmen's Compensation Act, 1906 (6 Edw. 7, C. 58). S. 2 (1) prescribes a limitation of six months for the making of a claim for compensation arising out of an accidt'nt caused to the workmen falling within its purview, and proviso (b1 lays down that the "failure to make a clann within the period above specified shall not be a bar to the maintenance of such proceedings if it is found that the' failure was occasioned by mistake, absence from the United Kingdom or other reasonable cause." In the case of _Lingley_ { [1 ] ) the claim had been admittedly made beyond the period of six months and within a. couple of months thereafter an application for arbitra.1 ioll for compensation was filed. The County Court Judge was s<tt.isfil'd that there was reasonable cauRe within 8. 2, sub-s. (1) for the applicant's failure to make a claim within the prescribed period, and he held that whee once the bar to the proceedings had been surmounted by the (I} (1921) I K.B. 655. 112 ##### 886 SUPREME COURT REPORTS (1960(1)] _r959_ establishment of reasonble cause, there was no further limited period within which the claim must _**Sita ram**_ l _Romch•r•n Etc._ be made. According y, compensation was awarded v. to the, applicant. The employer appealed against _M._ _N._ _Nagarshana_ this award and his appeal was allowed. The Court _and Others_ of Appeal reversed the finding of the County Court ##### - Judge on the first point, and held that for the _G_oj..,dragadhar ]._ applicant's failure to make the claim within six months she. had not shown any reasonable cause, and ##### that naturally led to the reversal of the award. Even so, in considering the question of the construction of #### s. 2(1), proviso (b), the learned judges observed that if sufficient cause had been established by the applicant she would have succeeded in obtaining compensation, b<>cause they agreed. that, if the bar imposed by the statutory period of six months prescribed for the making of the claim had been raised, the claim of the applicant could not be subjected to any further bar of #### limitation. It is this view on which Mr. Phadke relies, and he contends that the same principle should be applied in construing the relevant proviso to s. 15 ##### of the Act. In this connection Mr. Phadke has invited our attention to three Indian decisions-J. _Hogan_ v. _Gafur Ramzan(_ _[1]_ _),_ _Salamat_ v. _Agent, East Indian Rail-_ _way_ ( [9] ), and _Kamarhatti_ _Oo._ _Ltd._ v. _Abdul Samad(')._ These decisions were concerned with claims for compensation made under s. 10 of the Workmen's Compensation Act (VIII of 1923), the first two under s. 10 as it stood prior to its amendment in 1938, and the last one #### under the said section as it was amended in 1938. It ##### may be added that all the three decisions purport to adopt the view taken by the Court of Appeal in the case of _Lingley_ ( • ). Now in order to appreciate the effeot of the decision in the case of _Lingley(')_ it would be relevant to emphasize ##### that in that case the Court of Appeal was really giving effect to an earlier dePision of the House of Lords in _Powell_ v. _The_ _Main_ _Colliery_ _Co._ _Ltd.(')_ and, as the judgments of all the learned judges indicate, they were following the said decision with some reluctance. (1) XXXV B.L.R. JJ4). (3) (1952) I L.L.J. 490, 49z. (2) \1938) I.L.R. 2Cal. _5z,_ 58. 14) (1921) 1 K.B. 655. (5) (1900) A.C. 366. ##### S.C.R. SUPREME COURT REPORTS 887 #### • ##### In the case of Powell ( [1] ) the House of Lords had held r959 thet the claim for compensation specified in s. 2(1) of _Sitarani_ the English Act does not mean initiation of the pro- _Ramcharan Etc._ ceedinga before the tribunal by which compensation is to v. be assessed, but a notice of claim of compensation sentM. _N._ _Nagarsl1ana_ ##### to the workman's employer. In other words, according ana Others tho that( decisi?n, thehlimita:tionfof s~x moh~thhs presckribed Gajentlragatlkar J. y s. 2 1) app 1ies tot e notice o c aim w 1 _w_ a wor man has to give to his employer; it had no reference to the proceedings which a workman would institute before the tribunal claiming to recover the said compensation. The notice of claim had to be served on the employer within six months after the date of the accident, and after serving such notice, proceedings had to be initiated before the tribunal claiming compensation. The effect of the two English decisions, therefore, is that if a workman shows sufficient. cause for the delay· made by him in serving the notice of claim on the employer there was no question of calling upon him to explain any further delay made by him in instit,uting the proceedings before the tribunal ##### for the recovery of compensation. In fact, for the institution of such proceedings there was no statutory limitation at all. Let us now turn to s. 10 of our Workmen's Compensation Act. S. 10(1) as it originally stood prescribed a period of six months for the making of the claim ##### for compensation. It also required that notice of the accident had to be given as soon as practicable after the happening thereof and before the workman had voluntarily left the employment in which he was injured. The second proviso to s. 10(1) lays down ##### that the Commissioner may admit and decide any claim to compensation notwithstanding that the notice had not been given or the claim had not been instituted in due time as provided by the sub-section ##### if he is satisfied that the failure so to give notice or to institute the claim as the case may be was due to ##### sufficient cause. It appears that in construing the material terms of this proviso it was thought that the position under the proviso was similar to the position (1) [1900] A.C. 366. 888 SUPREME COURT REPOHTS [1960(1)) ##### '959 under the proviso (b) of s. 2(1) of the English Act. It is open to argument whether that is really so; but, in _**Sitaram**_ _Ramchamn Etc._ any case, after s. 10 was amended in 1938, the position v. is clearly different and distinguishable from the posi_M._ _N. Naga,;hana_ tion of the English section. The relevant proviso #### · _and_ _Othm_ under the amended section lays down that a Commis _G_ . _d-dh_ sioner may entertain a.nd decide any claim for com_1_ _1_ ##### •J'" .aga ar • pensation in any case notwithstanding that notice has - not been given, or the claim has not been preferred before it in due time as provided bys. 10, sub.a. (1), if he is satisfied that the failure so to give the notice or prefer the claim as the case may·be was due to suffici##### ent cause. It is significant that s. 10(1) requires the notice of accident to be given as soon as practicable and the claim to be preferred before the Commissioner within six months. This period has subsequently been enlarged to a period of one year; but that is another matter. Thus the position und~r s. 10 as amended clearly is that the six months' limitation has been prescribed for preferring the application for compensation before the Commissioner; and so there can be no analogy between the limitation thus prescribed and the limitation prescribed by s. 2(1) of the l<Jnglish Act. With respect, we may add that in the case of _Kamarhatti_ _Co.,_ _Ltd._ ( [1] ) where the learned judges held that the decision in _Lingley's case(')_ was applicable to the case before them, their attention was not drawn to the material change made by the amendment of s. 10 of the Indian Act. But the view expressed by the eourb in that case on the poi'nt of law is clearly _obiter._ The actual decision was that no sufficient cause had been shown by the chimant even on the liberal construction of the proviso, and so the order directing the employer to pay compensation to his workmen was set aside. Thus it would be clear ##### that the decisions on which Mr. Phadke founds his argument were concerned with a statutory provision as to limitation which is essentially different from the provision made by the proviso with which we are concerned. (1) (1952) I L.L.J. 490, 492. (2) (1921) l K.B. _655._ ##### S.C.R. SUPREME COURT REPORTS 889 The proviso with which we are concerned has pres- . _z959_ cribed the limitation of six mo11ths for the institution #### of the application itself, and so the principle laid Ram~~;;;;: Etc. down in _Lingley's case_ (1) can have no application to v. the question which we have to decide. Indeed, the _M._ _N._ _Nagarshana_ present proviso is in subst,a.nce similar to the provision _and_ _Othm_ in s. 5 of the Limitation Act and Mr. Phadke has fairly conceded that there is consensus of judicial _Gaje .. aragadkar_ _J._ ##### opinion on the question of the construction of s. 5. It cannot be disputed th<~t in doaling which t.he question of condoning delay under s. _5_ of the Limitation Act the party has to satisfy the court that he had sufficient cause fol' ·not preferring the appeal or making the . application within the prescribed time, and this has always been understood to mean that the explanation has to cover the whole of the period of delay (Vide _Ram Narain Joshi_ v. _Parame.swar_ _Narain Mehta_ ( [2] )). Therefore the finding recorded by the authority that the aprellants have failed to establish sufficient. cause for tl:· ir inaction between l\Iay 2, 1952, and the respective dates on which they filed their present applications is fatal to their claim. That is why wc think it unnecessary to consider the larger question of law whinh Mr. Phadke sought to raise before us. We would like to add that the leamed AttomeyGeneral had raised a prelimiuary objection against the validity of the certificate granted by the High Court in the present appeals. He wanted to urge that the High Court was in error in considering the total value of the consolidated appeals· for the purpose of granting certificate under Art. 133. We have, however, not thought it necessary to consider this argument. The result is the appeals fail and are dismissed. The respondent has fairly not pressed for his costs, and so we direct that the parties should bear their own costs in this Court. No order as to Court fees. _l1..J1J1eals_ _dismissed._ (l) (1921) l K.B. 655. (2) [1903] I.L.R. 30 Cal. 309.