Section 2 explained: this guide covers what it means, who it applies to, the step-by-step process, documents required, fees, due dates and penalties in India — so you can stay compliant with confidence and avoid costly mistakes.
Section 2 is the dictionary of the Act, and it has 47 numbered clauses. This is the first of three articles on it. It covers the clauses that decide who can complain and about what: complainant (5), complaint (6), consumer (7), consumer dispute (8), consumer rights (9) and person (31). If you plan to file a consumer complaint, these are the words you must fit. The other clauses are in the second article and the third article.
A consumer is a person who buys goods or hires or avails of a service for a consideration paid, promised or partly paid and partly promised, or under deferred payment, but not a person who obtains goods for resale or any commercial purpose, or avails a service for any commercial purpose (2(7)). A complainant can be a consumer, a registered voluntary consumer association, the Central or a State Government, the Central Authority, one or more consumers with the same interest, a legal heir, or a parent or guardian of a minor consumer (2(5)). A complaint must be an allegation in writing for relief under the Act (2(6)).
Clause numbers covered in this article
| Clause | Term | What it fixes |
|---|---|---|
| 2(5) | complainant | Who may bring a complaint |
| 2(6) | complaint | What may be complained of |
| 2(7) | consumer | Who is protected |
| 2(8) | consumer dispute | When a complaint becomes a dispute |
| 2(9) | consumer rights | The six rights the Act names |
| 2(31) | person | Who counts as a "person" |
Section 2(7): who is a consumer
The definition has two limbs.
Goods, 2(7)(i). A consumer is any person who "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". It "includes any user of such goods" other than the buyer, when the use is made with the approval of the buyer. So a family member who uses a washing machine bought by the head of the household is covered, if the use has the buyer's approval. It excludes a person who obtains goods "for resale or for any commercial purpose".
Services, 2(7)(ii). A consumer is also a person who "hires or avails of any service" for consideration paid, promised, partly paid and partly promised, or deferred. It includes a "beneficiary" of the service when the service is availed with the approval of the person who hired it. It excludes a person who avails of a service "for any commercial purpose".
Explanation to clause (7).
- "Commercial purpose" does not include use of goods bought and used exclusively to earn a livelihood by self-employment. A tailor who buys a sewing machine only to earn his own living is not excluded for that reason.
- "Buys any goods" and "hires or avails any services" include offline and online transactions by electronic means, teleshopping, direct selling or multi-level marketing.
Example. Meera buys a laptop online for her daughter's studies, paying by instalments. Meera is a consumer; her daughter, using it with Meera's approval, is also a consumer. If a trader buys twenty laptops to resell, he is outside the definition for those goods.
The text does not define "consideration" and does not say how large a commercial activity must be before it is "commercial purpose". Beyond the livelihood explanation, the words are left to be applied to the facts. Note too that the definition of "service" in clause 42 leaves out services without charge, which is covered in our next article.
Section 2(5): who can be a complainant
A complainant means:
- a consumer; or
- any voluntary consumer association registered under any law for the time being in force; or
- the Central Government or any State Government; or
- the Central Authority; or
- one or more consumers, where there are numerous consumers having the same interest; or
- in case of death of a consumer, his legal heir or legal representative; or
- in case of a consumer being a minor, his parent or legal guardian.
These are sub-clauses (i) to (vii). Sub-clause (v) is the basis for a group complaint where many buyers share the same grievance, and (vi) and (vii) take care of a deceased consumer and a minor. The clause lists governments and the Central Authority as complainants, but it does not give the steps for a representative complaint; those are in section 35. See our article on how a complaint is filed.
Section 2(6): what is a complaint
A complaint is "any allegation in writing, made by a complainant for obtaining any relief provided by or under this Act". The allegation must be one of seven kinds:
| Sub-clause | The allegation |
|---|---|
| (i) | An unfair contract, unfair trade practice or restrictive trade practice has been adopted by a trader or service provider |
| (ii) | Goods bought or agreed to be bought suffer from one or more defects |
| (iii) | Services hired or availed, or agreed to be, suffer from any deficiency |
| (iv) | A price in excess of the price fixed by or under any law, displayed on the goods or package, displayed on the price list, or agreed between the parties, has been charged |
| (v) | Goods hazardous to life and safety are offered for sale to the public, in contravention of safety standards required by or under any law, or where the trader knows they are unsafe |
| (vi) | Services hazardous or likely to be hazardous to life and safety are offered by a person who knows them to be injurious |
| (vii) | A claim for product liability action lies against the product manufacturer, product seller or product service provider |
Two points to notice. First, the complaint must be in writing; the clause does not say what form the writing takes, and the manner of filing is dealt with in section 35 and the rules. Second, sub-clause (ii) and (iii) cover goods or services that are bought or agreed to be bought, so a buyer need not have taken delivery.
Example. A shop sells a packaged item at a price higher than the maximum printed on the pack. The buyer's written allegation fits sub-clause (iv)(b), which covers a price in excess of the price displayed on the goods or on the package.
Section 2(8): consumer dispute
A consumer dispute is "a dispute where the person against whom a complaint has been made, denies or disputes the allegations contained in the complaint". The practical meaning is that a dispute exists only once the other side denies or disputes the allegation; a complaint that the opposite party accepts is not a dispute in this sense. The text gives no further test.
Section 2(9): the six consumer rights
"Consumer rights" includes six rights. The word "includes" shows that the list is not closed.
- (i) the right to be protected against the marketing of goods, products or services which are hazardous to life and property;
- (ii) the right to be informed about the quality, quantity, potency, purity, standard and price of goods, products or services, so as to protect against unfair trade practices;
- (iii) the right to be assured, wherever possible, access to a variety of goods, products or services at competitive prices;
- (iv) the right to be heard and to be assured that the consumer's interests will receive due consideration at appropriate fora;
- (v) the right to seek redressal against unfair trade practice or restrictive trade practices or unscrupulous exploitation of consumers; and
- (vi) the right to consumer awareness.
The older article on consumer rights under section 2(9) looks at this clause on its own. These rights also feed into the Central Authority's role under section 10, which refers to the "violation of rights of consumers".
Section 2(31): who is a person
"Person" includes an individual, a firm whether registered or not, a Hindu undivided family, a co-operative society, an association of persons whether registered under the Societies Registration Act, 1860 or not, any corporation, company or body of individuals whether incorporated or not, and any artificial juridical person not falling within the earlier items. Because "consumer" begins "any person who", a company, a firm or a society can be a consumer if it does not buy for resale or commercial purpose. The same word applies to the other side, so an unregistered firm can be an opposite party.
Need help with a consumer complaint?
Before you file, it helps to know whether you are a "consumer", whether your purchase is for a commercial purpose, and which allegation in clause (6) fits your facts. We can read your papers and prepare the complaint through our consumer complaint filing service. Bring the bill, the order confirmation and any messages with the seller.
Key takeaways
- A consumer buys goods or hires services for consideration; buying for resale or commercial purpose is excluded (2(7)).
- Self-employment livelihood use is not commercial purpose; online, teleshopping and direct selling transactions count.
- Seven kinds of complainant are listed, from a consumer to the Central Authority (2(5)).
- A complaint is a written allegation of one of seven kinds (2(6)).
- A dispute exists only when the other side denies or disputes the allegation (2(8)).
- The six consumer rights listed are not exhaustive (2(9)).
Read next
- Section 2: defect, deficiency, goods, service and product liability terms
- Section 2: unfair trade practice, e-commerce and other definitions
- Key Definitions: Consumer, Complaint, Defect, Deficiency
- Section 35: how a complaint is filed
Disclaimer: Based on the Consumer Protection Act, 2019 as enacted, as consulted on 1 October 2026. Monetary limits, fees and procedure are set or revised by rules and regulations made under the Act and should be checked in their current form. This article is general information, not legal advice; check the official text before acting.