Form 11 must be filled out by those employees who were covered under PF in their last organization. Once they leave the company, they should continue using the same PF Account. However, many employees are reluctant to transfer their PF Fund to the new organization. As a result, they withdraw all the money and open a new PF account in the new organization.
It's instructed by the EPF department not to open any new account unless employees want to do so. Form 11 is a supporting document that may be shown to any PF Officer during an inspection or PF audit to explain why his/her new PF account has been opened when he/she already had an account in the last organization. It's not submitted to the PF but should be kept in the employee's personal file. Additionally, you should also have it signed by those employees who have worked in the past but never contributed towards PF.