CONSUMER PROTECTION ACT, 1986

CONSUMER PROTECTION ACT, 1986
1. The preamble to the Act states that the Act is legislated to provide for better protection
of the interests of consumers and for that purpose to make provision for the establishment
of consumer councils and other Authorities for the settlement of consumer’s disputes
and for matters connected therewith.
An Act to provide for better protection of the interests of consumers and for that purpose to
make provision for the establishment of consumer councils and other Authorities for the settlement
of consumers’ disputes and for matters connected therewith.
SHORT TITLE, EXTENT, COMMENCEMENT AND APPLICATION
(1) This Act may be called the Consumer Protection Act, 1986.
(2) It extends to the whole of India except the State of Jammu and Kashmir.
(3) It shall come into force on such date 1 as the Central Government may, by notification
appoint and different dates may be appointed for different States and for different
provisionsof this Act.
(4) Save as otherwise expressly provided by the Central Government, by notification, this
Act shall apply to all goods and services.
2. ESTABLISHMENT OF DISPUTES REDRESSAL AGENCIES
The Act provides for a three tier system for adjudicating the consumer disputes.
a. District Forum.
b. State Commission.
c. National Commission.
Definitions.
(1) In this Act, unless the context otherwise requires,-
[(a) “Appropriate laboratory” means a laboratory or organisation-
(i) Recognized by the Central Government;
(ii) Recognized by a State Government, subject to such guidelines as may be prescribed
by the Central Government in this behalf; or
(iii) Any such laboratory or organisation established by or under any law for the time
being in force, which is maintained, financed or aided by the Central Government or
a State Government for carrying out analysis or test of any goods with a view to
determining whether such goods suffer from any defect;
COMMERCIAL & INDUSTRIAL LAWS A 305
[(aa)“Branch office” means—
(i) Any establishment described as a branch by the opposite party; or
(ii) Any establishment carrying on either the same or substantially the same activity as
that carried on by the head office of the establishment;
(b) “Complainant” means—
(i) A consumer; or
(ii) Any voluntary consumer association registered under the companies Act, 1956 (1
of 1956), or under any other law for the time being in force; or
(iii) The Central Government or any State Government, who or which makes a
complaint;
(iv) One or more consumers where there are numerous consumers having the same
interest;
(v) In case of death of a consumer, his legal heir or representative who or which makes a
complaint;
(c) “Complaint’’ means any allegation in writing made by a complainant that—
(i) An unfair trade practice or a restrictive trade practice has been adopted by any
trader or service provider;
(ii) The goods bought by him or agreed to be bought by him] suffer from one or more
defects;
(iii) Service hired or availed of or agreed to be hired or availed of by him] suffer from
deficiency in any respect;
(iv) A trader or the service provider, as the case may be, has charged for the goods
or for the service mentioned in the complaint, a price in excess of the price in
excess of the price-
(a) Fixed by or under any law for the time being in force;
(b) Displayed on the goods or any package containing such goods;
(c) Displayed on the price list exhibited by him by or under any law for the time
being in force;
(d) Agreed between the parties;
(v) Goods which will be hazardous to life and safety when used are being offered for
sale to the public;-
(a) In contravention of any standards relating to safety of such goods as required to
be complied with, by or under any law for the time being in force;
INDUSTRIAL LAWS
A 306 COMMERCIAL & INDUSTRIAL LAWS
(b) If the trader could have known with due diligence that the goods so offered
are unsafe to the public;]
(vi) Service which are hazardous or likely to be hazardous to life and safety of the
public when used, are being offered by the service provider which such person
could have known with due diligence to be injurious to life and safety.
(d) “Consumer” means any person who, -
(i) Buys any goods for a consideration which has been paid or promised or partly paid
and partly promised, or under any system of deferred payment and includes any
user of such goods other than the person who buys such goods for consideration
paid or promised or partly paid or partly promised or under any system of deferred
payment when such use is made with the approval of such person but does not
include a person who obtains such goods for resale or for any commercial purpose;
or
(ii) [Hires or avails of] any services for a consideration which has been paid or promised
or partly paid and partly promised, or under any system of deferred payment
and includes any beneficiary of such services other then the person who 8[hires or
avails of] the services for consideration paid or promised, or partly paid and partly
promised, or under any system of deferred payment, when such services are
availed of with the approval of the first mentioned person [but does not include a
person wo avails of such services for any com mercial purpose];
[Explanation.- For the purposes of this sub-clause “commercial purpose” does not include
use by a consumer of goods bought and used by him and services availed by him exclusively
for the purposes of earning his livelihood, by means of self-employment;]
(e) “Consumer dispute’’ means a dispute where the person against whom a com plaint has
been made, denies or disputes the allegations contained in the com plaint;
(f) “Defect” means any fault, imperfection or short coming in the quality, quantity, potency,
purity or standard which is required to be maintained by or under any law for the time
being in force or [under any contract express or implied or] as is claimed by the trader in
any manner whatsoever in relation to any goods;
(g) “Deficiency” means any fault, imperfection, shortcoming or inadequacy in the quality,
nature and manner of performance which is required to be maintained by or under any
law for the time being in force or has been undertaken to be performed by a person in
pursuance of a contract or otherwise in relation to any service;
(h) “District Forum” means a Consumer Disputes Redressal Forum established un der Cl. (a)
of sec. 9;
(i) “Goods” means goods as defined in the sale of Goods Act, 1930 (3 of 1930);
(j) “Manufacturer” means a person who-
(i) Makes or manufactures any goods or parts thereof; or
COMMERCIAL & INDUSTRIAL LAWS A 307
(ii) Does not make or manufacture any goods but assembles parts thereof, made
or manufactured by others; or
(iii) Puts or causes to be put his own mark on any goods made or manufactured by
any other manufacturer.
Explanation.- Where a manufacturer despatches any goods or part thereof to any branch
office maintained by him, such branch office shall not be deemed to be the manufacturer
even though the parts so despatched to it are assembled at such branch office and are sold or
distributed from such branch office:
[(j) “Member” includes the President and a member of the National commission
or a State Commission or a District Forum, as the case may be;]
(k) “National Commission” means the National Consumer Disputes Redressal Commission
established under CI. (c) of sec. 9:
(l) “National” means a notification published in the official Gazette;
(m) “Person” includes, -
(i) A firm whether registered or not;
(ii) A Hindu undivided family;
(iii) A Co-operative society;
(iv) Every other association of persons whether registered under the societies Registration
Act, 1860 (21of 1860), or not;
(n) “Prescribed” means prescribed by the rules made by the State Government, or as the
case may be, the Central Government under this Act;
[(nn) “regulation” means the regulations made by the national Commission under this Act;
[(nnn) “restrictive trade practice” means a trade practice which tends to being about manipulation
of price or its conditions of delivery or to affect flow of supplies in the market
relating to goods or service in such a manner as to impose on the consumers unjustified costs
or restrictions and shall include—
(a) delay beyond the period agreed to be a trader in supply of such goods or in providing
the services which has led or is likely to lead to rise in the price;
(b) any trade practice which requires a consumer to buy, hire or avail of any goods or,
as the case may be services as-condition precedent to buying, hiring or availing of
other goods or services.]
(o) “Services” means service of any description which is made available to potential [users
and includes, but not limited to, the provision of] facilities in connection with banking,
Financing insurance, transport, processing, supply of electrical or other energy, board
INDUSTRIAL LAWS
A 308 COMMERCIAL & INDUSTRIAL LAWS
or lodging or both, [housing construction] entertainment, amusement or the purveying
of news or other information, but does not include the rendering of any service free of
charge or under a contract of personal service;
[(oo) “spurious goods and services” mean such goods and services which are claimed to be
genuine but they are actually not so,]
(p) “State Commission” means a Consumer Disputes Redressal Commission established in a
State under CI (b) of Sec. 9;
(q) “Trader” in relation to any goods means “ a person who sells or distributes any goods for
sale and includes the manufacturer thereof, and where such goods are sold or distributed
in package form, includes the packer thereof”;
(r) “Unfair trade practice” means a trade practice which, for the purpose of promoting the
sale, use or supply of any goods or for the provision of any service, adopts any unfair
method or unfair or deceptive practice including any of the following practices, namely:
(1) The practice of making any statement, whether orally or in writing or by visible representation
which, -
(i) Falsely represents that the goods are of a particular standard, quality, quantity;
grade-composition, style or model;
(ii) Falsely represents that the service of a particular standard, quality or grade;
(iii) Falsely represents any re-built, second-hand, renovated, reconditioned or old
goods as new goods;
(iv) Represents that the goods or service have sponsorship, approval, performance,
characteristics, accessories, uses or benefits which such goods or service do not
have;
(v) Represents that the seller or the supplier has a sponsorship or approval or affiliation
which such seller or supplier does not have
(vi) Makes a false or misleading representation concerning the need for, or the usefulness
of, any goods or service;
(vii) Gives to the public any warranty or guarantee of the performance, efficacy or
length of life of a product or of any goods that is not based on an adequate or
proper test thereof
Provided that where a defence is raised to the effect that such warranty or guarantee
is based on adequate or proper test, the burden of proof of such defence
shall lie on the person raising such defence;
(viii) Makes to the public a representation in a form that purports to be -
(i) A warranty or guarantee of a product or of any goods or service; or
(ii) A promise to replace, maintain or repair an article or any part thereof or to
repeat or continue a service until it has achieved a specified result, if such
COMMERCIAL & INDUSTRIAL LAWS A 309
purported warranty or guarantee or promise is materially misleading or if
there is no reasonable prospect that such warranty, guarantee or promise
will be carried out;
(ix) Materially misleads the public concerning the price at which a product or like
products or goods or service, have been or are, ordinarily sold or provided, and,
for this purpose, a representation as to price shall be deemed to refer to the price
at which the product or goods or service has or have been sold by sellers or provided
by suppliers generally in the relevant market unless it is clearly specified to
be the price at which the product has been sold or services have been provided by
the person by whom or on whose behalf the representation is made;
(x) Gives false or misleading facts disparaging the goods, services or trade of another
person;
Explanation.- For the purposes of CI. (1), a statement that is—
(a) Expressed on an article offered or displayed for sale, or on its wrapper or
container; or
(b) Expressed on anything attached to, inserted in, or accompanying an article
offered or displayed for sale or on anything on which the article is mounted
for display or sale; or
(c) Contained in or on anything is sold, sent, delivered, transmitted or in any
other manner whatsoever made available to a member of the public,
Shall be deemed to be a statement made to the public by, and only by, the
person who had caused the statement to be so expressed, made or contained;
(2) Permits the publication of any advertisement whether in any newspaper or otherwise,
for the sale or supply at a bargain price, of goods or the services that are not intended to
be offered for sale or supply at the bargain price, or for a period that is, and in quantities
that are, reasonable, having regard to the nature of the market in which the business is
carried on, the nature and size of business, and the nature of the advertisement.
Explanation.— For the purposes of CI. (2), “bargaining price” means
(a) A price that is stated in any advertisement to be a bargain price, by reference to an
ordinary price or otherwise, or
(b) A price that a person who reads, hears or sees the advertisement, would reasonably
understand to be a bargain price having regard to the prices at which the
product advertised or like products are ordinarily sold.
(3) Permits—
(a) The offering of gifts, prizes or other items with the intention of not providing them
as offered or creating impression that something is being given or offered free of
charge when it is fully or partly covered by the amount charged in the transaction
as a whole;
CIA-21
INDUSTRIAL LAWS
A 310 COMMERCIAL & INDUSTRIAL LAWS
(b) The conduct of any contest, lottery, game of chance or skill, for the purpose of
promoting, directly or indirectly, the sale, use or supply of any product or any
business interest;
[(3A) withholding from the participants of any scheme offering gifts, prizes or other items
free of charge, on its closure the information about final results of the scheme.
Explanation:- for the purposes of this sub-clause, the participants of a scheme shall be deemed
to have been informed of the final results of the scheme where such results are within a reasonable
time published, prominently in the same newspapers in which the scheme was originally
advertised.
(4) Permits the sale or supply of goods intended to be used, or are of kind likely to be used,
by consumers, knowing or having reason to believe that the goods do not comply with
the standards prescribed by competent authority relating to performance, composition,
contents. Design, constructions, finishing or packaging as are necessary to prevent or
reduce the risk of injury to the person using the goods;
(5) Permits the hoarding or destruction of goods, or refuses to sell the goods or to make
them available for sale or to provide any service, if such hoarding or destruction or
refusal raises or tends to raises or is intended to raise, the cost of those or other similar
goods or services.”
(6) Manufacture of spurious goods or offering such good for sale or adopting deceptive
practices in the provision of Services.
(2) Any reference in this Act to any other Act or provision thereof which is not in force in
any area to which this Act applies shall be construed to have reference to the corresponding
Act or provision thereof in force in such areas.
3. JURISDICTION
District Forums : have the Jurisdiction to entertain complaints -
If the cost of goods or services and compensation asked for is up to rupees twenty lakh.
State Commission : has the Jurisdiction to entertain complaints,
If the cost of goods or services and compensation asked for is more than rupees twenty lakh,
but less than rupees one Crore.
The State Commission also has the jurisdiction to entertain appeal against the orders of any
District Forum within the State.
The State Commission also has the power to call for the records and pass appropriate orders
in any consumer dispute which is pending before or has been decided by any District Forum
within the State if :-
(a) it appears that such District Forum has exercised any power not vested in it by law or
(b) has failed to exercise a power rightfully vested in it by law, or
(c) has acted illegally or with material irregularity.
COMMERCIAL & INDUSTRIAL LAWS A 311
National Commission : has jurisdiction to entertain complaints—
If the cost of goods or services and compensation asked for exceed rupees one crore then the
complaint can be filed before the National Commission at New Delhi.
The National Commission besides entertaining the original complaints also has jurisdiction
to entertain appeals against the orders of any State Commission; and to call for the records
and pass appropriate orders in any consumer dispute which is pending before, or has been
decided by any State Commission:
(a) where it appears to it that such Commission has exercised a jurisdiction not vested
in it by law, or
(b) has failed to exercise a jurisdiction so vested, or
(c) has acted in the exercise of its jurisdiction illegally or with material irregularity.
4. PLACE OF INSTITUTING A CONSUMER COMPLIANT
Acomplaint shall be instituted in the District Forum/State Commission/National Commission
within the local limits of whose jurisdiction—
(a) The opposite party at the time of the institution of the complaint, actually and voluntarily
resides or carries on business or has a branch office or personally works for
gain, or
(b) Any of the opposite party(s), at the time of the institution of the complaint, actually
and voluntarily resides, or carries on business or has a branch office, or personally
works for gain, provided that in such case either the permission of the District forum/
State Commission/National Commission is given, or the opposite party(s) who
do not reside, or carry on business or have a branch office, or personally work for
gain, as the case may be, acquiesce in such institution, or
(c) The cause of action, wholly or in part, arises.
5. WHO MAY/CAN FILE COMPLAINTS
Complaints may be filed with the District Forum/State Commission/National Commission
by :-
1. The consumer to whom such goods are sold or delivered or agreed to be sold or delivered
or such service provided or agreed to be provided.
2. Any recognised consumer association, whether the consumer to whom goods sold or
delivered or agreed to be sold or delivered or service provided or agreed to be provided,
is a member of such association or not.
INDUSTRIAL LAWS
A 312 COMMERCIAL & INDUSTRIAL LAWS
3. one or more consumers, where there are numerous consumers having the same interest
with the permission of the District Forum, on behalf of or for the benefit of, all consumers
so interested.
4. The Central or the State Government.
Every compliant filed shall be filed along with such amount of fee as may be prescribed.
6. LIMITATION PERIOD FOR FILING OF COMPLAINT
The Period of Limitation prescribed for the filing of complaints before District Forum, the
State Commission, or the National Commission is two years from the date on which the
cause of action has arisen. However, if the complainant satisfies the District Forum / State
Commission, that he had sufficient cause for not filing the complaint within two years, such
complaint may be entertained by it after recording the reasons for condoning the delay.
7. PROCEDURE ON ADMISSION OF COMPLAINT
On admission of a complaint, a copy of the complaint is to be referred to the opposite party
within 21 days, directing him to give his version of the case within 30 days. This period may
be extended by another 15 days.
Where the opposite party denies or disputes the allegations or omits or fails to take any
action to represent his case within the time provided, the dispute will be settled in the following
manner :-
I. If the Dispute Relates to Goods : Where the complaint alleges a defect in the goods
which cannot be determined without proper analysis or test of the goods, a sample of the
goods shall be obtained from the complainant, sealed and authenticated in the manner
prescribed for referring to the appropriate laboratory for the purpose of any analysis or
test whichever may be necessary, so as to find out whether such goods suffer from any
other defect. The appropriate laboratory’ would be required to report its finding to the
referring authority, i.e. the District Forum or the State Commission within a period of
forty- five days from the receipt of the reference or within such extended period as may
be granted by these agencies.
The District Forum / State Commission may require the complainant to deposit with it such
amount as may be specified towards payment of fees to the appropriate laboratory for carrying
out the tests. On receipt of the report, a copy thereof is to be sent by District Forum/State
Commission to the opposite party along with its own remarks.
In case any of the parties disputes the correctness of the methods of analysis/test adopted by
the appropriate laboratory, the concerned party will be required to submit his objections in
writing in regard to the report. After giving both the parties a reasonable opportunity of
COMMERCIAL & INDUSTRIAL LAWS A 313
being heard and to present their objections, if any, the District Forum/Slate Commission
shall pass appropriate orders.
II. If Dispute relates to Goods not requiring testing or analysis or relates to services:
Where the opposite party denies or disputes the allegations contained in the complaint within
the time given by the District Forum / State Commission, it shall dispose of the complaint on
the basis of evidence tendered by the parties. In case of failure by the opposite party to
represent his case within the prescribed time, the complaint shall be disposed of exparte on
the basis of evidence tendered by the complainant.
Where during the pendency of any proceeding before the District Forum, it appears to it
necessary, it may pass such interim order as is just and proper in the facts and circumstances
of the case
8. POWERS OF THE DISPUTE REDRESSAL AGENCIES
The District Forum, State Commission and the National Commission are vested with the
powers of a civil court under the Code of Civil Procedure while trying a suit in respect of the
following matters:-
1. The summoning and enforcing attendance of any defendant or witness examining the
witness on oath;
2. The discovery and production of any document or other material producible as evidence;
3. The reception of evidence on affidavits:
4 The requisitioning of the report of the concerned analysis or test from the appropriate
laboratory or from any other relevant source;
5. Issuing of any commission for the examination of any witness; and
6. Any other matter which may be prescribed.
They also have the power to :-
(i) to issue remedial orders against the opposite party.
(ii) to dismiss frivolous and vexatious complaints and to order the complainant to make
payment of costs, not exceeding Rs. 10,000 to the opposite party.
9. RELIEF(S) THAT MAY BE GRANTED UNDER THE ACT
The District Forum / State Commission / National Commission may pass one or more of the
following orders to grant relief to the aggrieved consumer :-
INDUSTRIAL LAWS
A 314 COMMERCIAL & INDUSTRIAL LAWS
(a) to remove the defect pointed out by the appropriate laboratory from the goods in
question ;
(b) to replace the goods with new goods of similar description which shall be free from
any defect ;
(c) to return to the complainant the price, or as the case may be, the charges paid by the
complainant ;
(d) to pay such amount as may be awarded by it as compensation to the consumer for
any loss or injury suffered by the consumer due to the negligence of the opposite
party;
Provided that the District Forum shall have the power to grant punitive damages in
such circumstances as it deems fit.
(e) to remove the defects in goods or deficiencies in the services in question;
(f) to discontinue the unfair trade practice or the restrictive trade practice or not to
repeat them ;
(g) not to offer the hazardous goods for sale ;
(h) to withdraw the hazardous goods from being offered for sale;
(i) to cease manufacture of hazardous goods and to desist from offering services which
are hazardous in nature;
(j) to pay such sum as may be determined by it if it is of the opinion that loss or injury
has been suffered by a large number of consumers who are not identifiable conveniently;
(k) to issue corrective advertisement to neutralize the effect of misleading advertisement
at the cost of the opposite party responsible for issuing such misleading advertisement;
(l) to provide for adequate costs to parties.
10. APPEALS
(i) Against the orders of District Forums :
Any person aggrieved by an order made by the Forum may prefer an appeal to the State
Commission within thirty days from the date of the impugned order.
COMMERCIAL & INDUSTRIAL LAWS A 315
(ii) Against the orders of State Commission :
Similarly, any person aggrieved by any original order of the State Commission may
prefer an appeal to the National Commission within thirty days from the date of the
impugned order.
(iii) Against the orders of National Commission :
Any person aggrieved by any original order of the National Commission may prefer an
appeal to the Supreme Court.
The Appellate authority may entertain an appeal after the said period of thirty days if sufficient
cause for not filling the appeal within the stipulated period is shown to its satisfaction.
The period of 30 days is to be computed from the date of receipt of the order by the parties
concerned.