Singh CONSUMERPROTECTIONACT
Singh CONSUMERPROTECTIONACT
Singh CONSUMERPROTECTIONACT
DEVELOPMENTS
Author(s): Gurjeet Singh
Source: Journal of the Indian Law Institute , January-March 1999, Vol. 41, No. 1
(January-March 1999), pp. 56-65
Published by: Indian Law Institute
Stable URL: https://www.jstor.org/stable/43951696
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Journal of the Indian Law Institute
I Introduction
B Y VIRTUE of its section 1(4), the Consumer Protection Act 1986 (CPA) has be
made applicable to "all goods and services." However, attempts by the consum
forums, envisaged and established under this Act, to bring various types of servic
within its ambit have met with considerable resistance. Despite strong and repeate
protestations from some of the concerned sectors, the issues concerning inclusion
of services rendered by airlines, banks, housing boards, insurance companie
railways, roadways and telecommunications within the jurisdiction of CPA h
been by and large settled now. It may also be appropriate to mention here that th
attempts by the consumer forums to bring at least three types of services (
housing, medical and educational services) within the fold of CPA had met w
resistance to such an extent that in two cases (i.e., housing and medical profession
the matters went up to the Supreme Court for a final word and the third issue (i.
educational services) is also likely to be debated there. Thus with the pronoun
ments of the apex court in Lucknow Development Authority v. M.K.Gupta[ and in
the case of Indian Medical Association v. V.P.Shantha 2 the issues relating to
services rendered by the housing boards/societies/corporations and the ones r
dered by the medical professionals respectively appear to have been settled. Ho
ever, as far as applicability of CPA to the educational services is concerned, th
have been a large number of decisions - both in favour3 as well as against4 th
inclusion within the ambit of CPA - which has given rise to a lot of controver
and speculation. Nevertheless, the inevitable conclusion is that till the final w
on this issue too comes from the Supreme Court, the matter will certainly remain
in contention.5
It may be appropriate to mention here that whereas CPA has been made appli
cable to "all goods and services"6 two types of services have categorically
kept out of the purview of this Act. These are, (i') services rendered free of cha
and ( ii ) services rendered under a contract of personal service.8 Whereas, there
hardly been any controversy with regard to the first term, the second term 'cont
of personal service' has been vehemently debated before the consumer forum
a large number of cases.9 In the context of medical profession, for instance
highest decision-making body under CPA - the National Consumer Dispute
Redressai Commission - has observed that a "contract of personal service' is
one which involves a "master and servant relationship"10 and which is wh
different from a "doctor-patient relationship."11 Thus according to the Nat
Commission, the service rendered by a medical doctor to his patients canno
called as 'personal service' coming within the exempted category mentione
section 2(1 )(o) of CPA.12
The aforesaid issue was ultimately debated at length before the Supreme Cour
in the case of Indian Medical Association v. V.P. Shantha .l3 It was in this casé th
the Supreme Court had finally held that CPA was applicable to the medical
fession in India. The Supreme Court had defined, distinguished and elaborat
discussed the two allegedly controversial terms, i.e., 'contract for services'
'contract of service' in this case and had observed:
6. S. 1(4).
7. S.2(l)(o).
8. Ibid.
9. See, e.g., Motibai Dalvi Hospital v. M.I.Govilkar , 1991(1) CPR 334; Mappooyan v.
Premavathy Illango , 1991(2) CPR 460; Navaneethan v. Dr.Rathinasamy , 1992(1) CPR 41:
A.C.Modagi v. Cross Well Tailor, II (1991) CPJ 586 (NC); and Cosmopolitan Hospitals v.
Vasantha P. Nair , I (1992) CPJ 302 (NC). However, for a detailed discussion of these various
other cases and the issues contested therein, see, Gurjeet Singh, "The Concept of * Contract of
Personal Service' Under the Consumer Protection Act, 1986", 2(3) CT J 51-56 (March 1994).
10. See, Cosmopolitan Hospitals v. Vasantha P. Nair, id. at 310.
1 1 . Ibid.
12. Ibid. For a detailed analysis and comprehensive study of various cases, issues and
arguments advanced for and against the inclusion of medical profession within the jurisdiction
of the Consumer Protection Act 1986, see, Gurjeet Singh, "The Consumer Protection Act, 1986
and the Medical Profession in India: Conflicts and Controversies", 37 JILI 324-63 (1995).
13. Supra note 2.
14. Id. at 984.
With the aforesaid verdict of the Supreme Court, at least the controvers
relating to the applicability of CPA to the medical profession in India appears
have been finally settled, notwithstanding the views expressed in favour17 an
against the verdict.18
As a matter of fact, a thorough study of the verdict of the Supreme Court in
general and a clear understanding of the interpretation of the two words 'contract
of service' and 'contract for services' given by the apex court in particular shou
have brought a clear cut message for other professionals that they too were within
the ambit and jurisdiction of CPA. However, this did not happen. This is notwit
standing the fact that many consumer protagonists have been time and again
arguing about it. For instance, one of the consumer activists had observed:
15. Ibid.
16. Id. at 985.
17. See, e.g., Sheeraz Latif A. Khan, "Patient as Consumer", 2(2) CPJ 4-7 (June 1996
18. See, e.g., C. Manickam and K.R.Mythili, "Medical Profession and the Consumer Pro
tection Act in India", 1(2) CPJ 1-6 (Feb. 1997).
19. P.D. Dalmia, "Consumers Versus Professional", 1(4) CPJ 15 at 16 (April 1996).
Notwithstanding the above and similar other observations from various con-
sumer protagonists, the professionals, especially the advocates, continued to con-
sider themselves outside the jurisdiction of CPA. Another factor that contributed
to the apathy of the advocates towards the consumers/litigants was a decision of
the National Consumer Disputes Redressai Commission in K. Rangaswamy v. J ay a
Vittal 21 which was pronounced as far back as in the year 1990. In this case, the
Commission had categorically stated that the service offered by an advocate to ą
litigant was the one under the 'contract for personal service' and therefore could
not be considered as the 'service' within the meaning of CPA. However, the Madras
High Court has recently pronounced a landmark decision on the said issue which
is completely opposed to the one pronounced by the National Commission. In the
following sub-sections of the present paper, are discussed the cases and some of the
issues therein have been highlighted as well as the probable implications of these
decisions for the legal profession in the country.
20. Ibid.
21. I (1991) CPJ 685 (NC).
22. Roscoe Pound quoted in M.K.Ramesh, "Consumer Interest in Legal Profession: Problems
and Perspectives", Cochin U L Rev 405 at 408 (1989).
23. T.H. Marshall quoted in M.K.Ramesh, ibid.
24. M.K. Ramesh, Ibid.
25. Ibid.
to pay the said amount. The respondent failed to appear on behalf of the com
ant on the day of the next hearing and the case of the complainant was accor
dismissed. On being informed about the dismissal of the writ petition, the re
dent advised the complainant to file an appeal before the Supreme Court
promised to help the complainant by entrusting his appeal to some of his
at New Delhi on the payment of a fee of Rs. 10,000. The complainant h
spurned his offer and instead filed a complaint against the respondent f
professional misconduct. Thus the main issue involved in this case was whethe
services rendered by an advocate to a litigant for a fee was a 'contract of per
service'? The National Consuitier Disputes Redressai Commission answer
question in the affirmative and held that the service offered by the responde
the complainant was one under the 'contract of personal service' and the
could not be considered as 'service' within the meaning of CPA. According
Commission, the complainant was not a consumer within the meaning of
2 (d) of CPA and the dispute between him and the respondent could not be te
as a "consumer dispute".31
The above issue has, once again, been vehemently contested in Srimci
Union of India?2 - a recent case decided by the Madras High Court. In th
the court held that the consumer forums have got the necessary jurisdiction
with the claims- against the advocates. The decision in this case has given
another controversy and that concerns the applicability of CPA to the leg
fession in India.
The Madras High Court in this case was dealing with a bunch of writ petitions
which had been filed by the practising advocates against whom claims had been
filed by certain persons in the respective cases before the consumer disputes
redressai forums. The common question raised in these writ petitions was regarding
the validity of section 3 of CPA and a prayer was made in all the writ petitions for
a declaration that section 3 of the Act was unconstitutional being opposed to the
objects of the said Act. It may be mentioned here that section 3 of the Act lays down
that this Act is "in addition to and not in derogation of the provisions of any other
law for the time being in force." According to the petitioners, if section 3 was struck
down as unconstitutional, it would not be possible for any person to drag the
advocates before the consumer forums as the claim will be outside the scope of the
said Act. It.was further submitted that in a proceeding before the consumer forum,
no court fee is payable and that it may be possible for any person to file a frivolous
action against the advocate in that forum and even if that persons fails ultimately,
he would lose nothing. However, on the other hand, if the advocate concerned
wanted to file a claim for damages, it could not be filed without the payment of
the court fee by him in the civil court. According to the petitioners, such provisions
could cause "undue hardship and place the advocate in a hazardous situation
thereby making his profession worthless".33
The fact that medical practitioners belong to the medical profession and
are subject to the disciplinary control of the Medical Council of India aild/
or State Medical Councils constituted under the provisions of the Indian
Medical Council Act would not exclude the services rendered by them
from the ambit of the Act.38
In raising the contention that the advocates were governed by the Indi
Advocates Act, the petitioners placed reliance on the decision in the case o
Nathamal Ashok Kumar v. Western Railway}9 The main issue involved in that
was whether a complaint filed before the consumer forum under section 12
The Madras High Court also rejected the argument that an advocate will have
to pay court fee if he wanted to proceed against his client for damages or other
remedies, whereas the client did not require to pay the court fee if he went before
the consumer redressai forum. According to the High Court, that could not in any
way invalidate the provisions of CPA.
The petitioners finally argued that a client who engaged an advocate for
professional services, was not a 'consumer' under section 2(1 ){d) of CPA. This
contention was also rejected by the High Court. The court held that the language
of the said section was very wide and that it used the expression 'avails of any
service for a consideration'. Thus according to the court, "that will not certainly
exclude the services rendered by an advocate."42 The High Court referred to the
definition of the term 'service' as given in section 2(1 )(d) of CPA. A reference was
also made to a landmark decision of the Supreme Court, that is the case of Lucknow
v. Union of India*9 has held the opposite. Once again, this issue too is likely
be debated before the Supreme Court. Therefore, till the final word comes from
apex court, the matter shall remain in contention. Till then, one thing is clear, a
that is with the aforesaid thought provoking decision by the Madras High C
holding that advocates were within the jurisdiction of CPA no professional
seems to be outside its purview. While concluding the discussion, once again
may be argued that with the implementation of CPA and as a result of some of
far reaching decisions pronounced by the consumer disputes redressai forums, t
is a clear message for accountability on the part of every segment of society
general and that of the professionals in particular. Irrespective of the nature
style of their job and duties, they would now have to be accountable and ans
able to the society in general and to the consumers who engage them in particul
Medical professionals are not the only ones being held liable for profes-
sional negligence under the Consumer Protection Act. The long arm of the
law extends to almost everyone who renders service for a fee - lawyers,
architects, engineers, chartered accountants.50
Gurjeet Singh*