R.K. Mahajan, J.
1. The petitioner is running a flour mill at Gairsan. District Chamoli. The petitioner has been making complaints to the respondents, i.e., local electrical authorities at Gopeshwar that there is excessive billing since 1992. The petitioner's grievance was that his meter was defective and the meter be replaced. Repeated applications were given and we need not refer the details of the applications. Ultimately meter was changed and a new meter was replaced. The earlier meter was found running fast by 10%. The petitioner was not satisfied and he deposited charges from April, 1992 to August, 1994, i.e., Rs. 26.053.80 paise and requested the authorities to correct the bills from April. 1992 to August 1994. The petitioner alleges that no correction was made but the power connection was disconnected on 7.11,1994. Despite requests made and applications filed, the connection was not restored. On 10.6.1996. Tehsildar, Karanprayag issued notice to the petitioner to pay entire arrears of bill (Annexure No. 9 to the writ petition), i.e., Rs. 70,220. Again a request was made to the Collector to rectify the bill and Collector asked the Executive Engineer to postpone the recovery proceedings. Petitioner's grievance is that after the rectification of bill, the maximumconsumption from September. 1994 to October. 1995 was not more than 440 units. Petitioner further alleges in para No. 17 that average bills are not more than Rs. 1,000-1,200 per month for October, 1994 to October, 1996.
2. Petitioner filed complaint before the District Consumer Forum, Chamoli. The term of the two members expired in October, 1996 and no member was appointed. In view of this situation, the petitioner would not get justice from the Consumer Forum. He has to knock the door of the High Court, The High Court entertained the writ petition in special circumstances under Article 226 of the Constitution of India and passed different orders on different dates for payment of the bill and also ordered the restoration of the connection of the petitioner. This Court also found the functioning of the Consumer Forum not satisfactory at District level as well as State level and passed different orders directing the Government of Uttar Pradesh to make the working of the consumer courts effectively.
3. It may be mentioned here that the controversy has been narrowed down and we would like to dispose of this writ petition. However, we would like to pass some directions regarding the working of consumer courts effectively at District level and State level.
4. It appears that this Court granted opportunity to file statutory representations before the electricity authorities and the latest representation dated 16.7.1998 has been rejected by the Superintendent Engineer as per rules and that deduction of 10% was allowed.
5. We have also perused the affidavit of the Executive Engineer raising so many pleas including the plea of alternative remedy. On merits, it was averred that adjustment according to rules to the extent of 10% has been allowed with respect to defective meter.
6. First of all, we would like to dispose of the petition on merits. We are not convinced with the plea of alternative remedy as the citizencannot be left remediless. If the forum was not functioning on account of non-constitution of the same and the petitioner was well within his rights to knock the door of the High Court under Article 226 of the Constitution of India. On the direction of this Court, the petitioner deposited Rs. 25,000 on different dates. We propose to pass the following order :
Remaining amount after deducting Rs. 25,000 be paid by the petitioner within ten months from today including other charges under Regulations besides the payment of current bill at every month. The petitioner would not be penalised if the above conditions are fulfilled.
7. Mr. Sudhir Agarwal, learned counsel appearing for U. P. State Electricity Board has no objection for passing the proposed order. Mr. Negi, learned counsel for the petitioner has some hesitation but could not convince us and we dispose of this writ petition with the aforesaid order.
8. However, during the course of arguments we passed an order on 20.10.1997, asking the State Government to inform this Court about the functioning of the Consumer Forums at State Level and at District Level and to make the working of the Consumer Forum effectively under Sections 10 and 16 of the Consumer Protection Act, as the Court was not satisfied with the stats of affairs going on in the consumer Courts. Operative portion of the order dated 20.10.1997 is quoted with an advantage :
'..........However, for the time being it is relevant to mention here that since there is only one State Commission which has been designed to sit at Lucknow with two non-judicial members and the pendency of the appeals being more than 10,000 in number, it appears to be in the fitness of the things to desire that there may have to be State Commissions which should be five in number atleast expecting decisions of 2,000 or 2.500appeals by a State Commission annually. It may be mentioned here that direct complaints which have been entertained and are entertainable under law by the State Commission have also been noted to be around 1,000 in number. These may require more time for deciding than an appeal. Likewise, the District Consumer Forum has the pendency of 54,500 cases and the Additional District Consumer Fora have been created only in 4 districts, i.e., Lucknow, Bareilly. Agra and Moradabad. Immediate steps, therefore, may have to be taken to create and establish Additional District Fora in other districts also where the pendency of the cases is high.
Since the matter is genuinely urgent requiring immediate attention of the State Government and any delay is likely to frustrate the object of the enactment itself, it is hereby directed that a counter-affidavit may be filed within six weeks from today indicating what steps State Government has taken by that time keeping in view the observations made above and the requirements of the citizens which must have to be met by the State Government keeping in line with the provisions of the Consumer Protection Act, 1986.
Since the Central Government also happens to be directly connected with many of the activities under the provisions in the enactment, it appears necessary in the interest of justice to direct the Registrar to send a copy of this order for appraisal of the Central Government and for such action as may be thought necessary at that end. In view of what has been stated above it is hereby directed that a copy of this order shall be sent by the Registrar along with suitable forwarding letter within three days from today to the Cabinet Secretary, Government of India, Secretary. Personnel (Public Grievances andHuman Resources) Central Government. Secretary, Food and Civil Supply. Central Government, Chief Secretary. Government of U. P. and the Principal Secretary. Food and Civil Supply Government of U. P. ..............'
9. We are of the view that reasonable amendments be effected to make the working of the Slate Commission and at district level effectively to provide quick relief to the consumers. We were also of the view that vide order dated 4.2.1998 that State of U. P. and Union of India should file affidavit regarding what steps are being taken for the amendment of the Consumer Protection Act so as to make available Appellate Forum atleast at the 'Commissionary' level in the State of U. P. We are also of the view that steps be taken so that District Forum activity percolates to the Sub-Divisional level atleast if not at the 'tehsil level'.
10. Later on we requested the Advocate General of State of U. P. to appear on some hearings and let the Court be appraised of about the steps taken for making the working of the Consumer Forums effectively and also to press upon the Government to constitute more Benches of the State Forum at 'Commissionary' level after amending the Act or bringing other infra structural changes.
11. On 22.9.1998. Advocate General Shri R.P. Goyal appeared and he told the Court frankly that the Government would try to implement the directions of the Court as he could not contact the Chief Minister on account of flood situation, etc. in Uttar Pradesh.
12. We also sent the copies of the orders dated 4.2.1998 and 20.10.1997 to the Cabinet Secretary. Government of India ; Secretary Personnel (Public Grievances and Human Resources) Central Government : Chief Secretary, State of U. P., Lucknow and Secretary. Food and Civil Supply, Central Government. This was repeated in later orders but not an iota of assurance or reply came from these authorities.
13. Now the question arises if the State is showing 'inaction' whether at Central level or the Stale level and not performing its duties in implementing of the objects of the Act, this Court in our view in its extraordinary jurisdiction under Article 226 of the Constitution is not barred to remind the Government to implement the objects by way of doing its statutory duty under the Act by creating a proper infrastructure and take necessary steps to achieve the object. This Court would be completely justified to issue a writ of mandamus or direction to perform the statutory duties to give quick justice envisaged under the Consumer Protection Act to the aggrieved party. Article 21 of the Constitution of India envisages right to life. The Supreme Court has expanded its scope by giving so many judgments. Right to life includes to gel pure things and non-supply of sub-standard medicines and, edible oils. Is it not a duty of the State to create infrastructure to implement the minimum guarantee of civilised life envisaged under Article 21 of the Constitution of India by implementing the objects of the Consumer Protection Act. Article 14 of the Constitution of India also envisages reasonableness in performing administrative act by the State Government. It would be violation of Article 14 if the State does not take steps for creating infrastructure to implement the objects of the Consumer Protection Act. It is something difficult to expect from a State Consumer Forum at State level to dispose of appeal and complaints of the Original Jurisdiction within the time frame mentioned in the Act and Rules. Similar is the case at District level. The Consumer Forum at District level is not manned by the District Judge and staff to make the working of the Consumer Forum more effectively.
The Parliament has enacted the law to ensure remedy under the Consumer Protection Act for negligence on the part of the different Government agencies and also in other cases quick redressal by way of making reasonable compensation tothe aggrieved party which had been harmed. In fact idea of providing this remedy is supplement remedy without payment of court fees and less involvement of technical procedure followed than in the civil court. But the experience is otherwise. Now, a days disposal of redressal of complaints has become just like civil court proceedings.
14. State of U. P. comprises of more than 80 districts and the population is not less than 14 crores. It is admitted fact that more than 75% population of the State live in villages and small towns. In order to implement various resolutions of U.N.O. Conferences such type of legislation has come in different countries. The idea behind the Consumer Protection Act is that consumer should be protected but the practical experience is that consumer now-a-days is the worst victim. He suffers from sub-standard supply of edible oils, medicines, negligent death of child by wrong treatment, defective construction of houses and deficient service by so many institutions as referred under Section 2(a) of Consumer Protection Act. For the protection of the consumer, there was a movement in the world and later on it started in India and with the pressure of that movement. Consumer Protection Act, 1986, was enacted. Its idea was to provide 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 disputes and for matters connected therewith. The statement of objects and reasons of the Act at the time of passing of the legislation are quoted in verbatim :
'Statement of Objects and Reasons. --The Consumer Protection Bill. 1986, seeks 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 disputes and for matters connected therewith.
(2) It seeks, infer alia, to promote and protect the rights of consumers such as-
(a) the right to be protected against marketing of goods which are hazardous to life and property ;
(b) the right to be informed about the quality, quantity, potency, purity, standard and price of goods to protect the consumer against unfair trade practices ;
(c) the right to be assured, wherever possible, access to variety of goods at competitive prices ;
(d) the right to be heard andto be heard and to beassured consumers'interests will receive dueconsideration atappropriate forums ;
(e) the right to seek redressalagainst unfair tradepractice or unscrupulousexploitation ofconsumers ; and
(f) right to consumer education.
(3) These objects are sought to be promoted and protected by the Consumer Protection Councils to be established at the Central and State level.
(4) To provide speedy andsimple redressal to consumerdisputes, a quasi-judicialmachinery is sought to be set upat the District, State and Centrallevels. These quasi-judicial bodieswill observe the principles ofnatural justice and have beenempowered to give reliefs of aspecific nature and to award,wherever appropriate,compensation to consumers.Penalties for non-compliance ofthe orders given by the quasi-judicial bodies have also beenprovided.
(5) The Bill seeks to achieve the above objects. The notes onclauses explains in detail the provisions of the Bill.'
15. The idea behind this enactment is that the lengthy and protracted procedure of a civil court should be avoided. The Consumer should get the services of the District Consumer Forum and then at State level State Consumer Forum and at national level National Commission expeditiously and speedily. Another question which arises, can one State Consumer Forum of any State which is big in size and its population is not less than 14 crores, may be more, can effectively deal with the grievances of the consumers in its original jurisdiction or by way of appeal? Similarly Consumer Forums at the District level which are not properly manned as they are not having proper infrastructure facilities etc. Another question which arises, should a consumer at Tehsil level or Taluka level for a defective supply of a pair of shoes or T.V. or Refrigerator, etc. travel to District for redressal of grievance and finding there that the District Consumer Forum does not work either for want of Judicial Officer or for want of proper staff and return back without any hearing. The consumer is fed up with the redressal of his grievances and he spends more than what he gets. Some consumers have complained that they suffer punishment by filing complaints before the Consumer Forums and are getting no fruitful result at all.
16. Considering the nature of big State of U. P., etc. and other factors we would like to pass the following directions in this case.
17. We direct the State Government to constitute at least five State Consumer Forums at State level as discussed under Section 16 of Consumer Protection Act by bringing necessary amendment. The State Government can also as law by making local amendment with the prior consent of the President of India under Article 254 of the Constitution of India if it falls under Concurrent List and the Benches can be constituted at 'Commissionary level' at the beginning with at five places on the pattern of Benchesconstituted under Administrative Tribunal Act. We further direct that the Presiding Officer of a Bench will be a retired High Court Judge who would enjoy the same facilities and amenities as enjoyed by a sitting High Court Judge as an Vice Chairman of Administrative Tribunal. At present the President of State Commission is not enjoying the facilities of a Judge of High Court.
18. We are also of the view that the infrastructure facilities of proper building and recruitment powers of staff be given to the Presiding Officer of State Commission or Vice President and be given proper budgetary power to regulate the budget within the allocated sufficient budget so that he has not to run to the administrative department off and on.
19. We make it clear that in case if it does not fall within the jurisdiction of State Government to issue Ordinance by local amendment or enact law, then the State Government is to approach immediately in view of the above discussion to the Central Government for making necessary infrastructure facilities regarding constitution of Benches and proper staff, building, etc. so that the functioning starts within four months to mitigate the suffering of the consumers.
20. Before parting with the judgment, we would like to observe again that what is the idea of the filing of the cases in thousands when it is not humanly possible to dispose of by the State Commission as well as by District 'Forums. The State Government and the Central Government have to consider themselves in a position of ordinary and prudent man in the street and answer the question, can one Judge at a State Forum can render justice to 14 crores people of State of U. P. living in more than 80 districts. The answer would be 'Impossible, impossible'. This human impossibility has to be rectified by the State/Central Government to achieve the object. We, accordingly, issue the directions as discussed and direct the State Government to do theneedful within four months from the date of receipt of this order and State Forums/Benches should start working within this period.
21. We, therefore, dispose of this writ petition in view of the above directions. There will be no order as to costs.
A copy of this order be sent by Registrar of this Court to the Cabinet Secretary. Government of India. New Delhi, Secretary. Food and Civil Supply. Central Government. New Delhi. Chief Secretary, Government of U. P., Lucknow and Principal Secretary, Food and Civil Supply, Government of U. P. within a week from today for necessary action in view of the directions.