Section 28 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 28 opens Chapter IV, "Consumer Disputes Redressal Commission". It requires each State Government to set up a District Consumer Disputes Redressal Commission, called the District Commission, in each district, and allows more than one in a district. It also says each Commission has a President and not less than two members. This is the first forum a consumer usually approaches, so a clear view of how it is constituted helps; a consumer complaint filing service can prepare the complaint once you know it belongs here.
The State Government shall, by notification, establish a District Consumer Disputes Redressal Commission, the District Commission, in each district of the State (28(1)). The State Government may, if it deems fit, establish more than one District Commission in a district (proviso). Each District Commission consists of a President and not less than two and not more than such number of members as may be prescribed, in consultation with the Central Government (28(2)).
Section 28 at a glance
| Sub-section | Subject | Key point |
|---|---|---|
| 28(1) | Establishment | State Government, by notification, in each district of the State |
| Proviso | More than one | State Government may establish more than one in a district if it deems fit |
| 28(2)(a) | President | One |
| 28(2)(b) | Members | Not less than two; not more than the prescribed number, prescribed in consultation with the Central Government |
Section 28(1): one in each district, by notification
"The State Government shall, by notification, establish a District Consumer Disputes Redressal Commission, to be known as the District Commission, in each district of the State".
- Who: the State Government, not the Central Government.
- Duty: the word is "shall", so each district must have one.
- How: by notification. The Act does not give a date; the date is in each State's notification.
- Name: the District Consumer Disputes Redressal Commission, called the District Commission. Section 2(15) defines "District Commission" by reference to this sub-section. See our article on the section 2 definitions.
The text does not say where in the district the Commission sits, who provides the building, or how its address is made known. It also does not address how existing bodies under the older 1986 Act carry on. Section 31, covering persons appointed before the commencement of this Act, speaks to the people and not to the premises; see our article on sections 29-33.
The proviso: more than one Commission in a district
"Provided that the State Government may, if it deems fit, establish more than one District Commission in a district."
This lets a State with a large or busy district set up additional Commissions. Two consequences follow, and the text does not resolve both:
- Which Commission hears a complaint? If a district has several Commissions, a complainant needs to know which has the case. The jurisdiction rules in section 34 deal with limits and place; they do not speak of how work is divided between two Commissions in one district. That would be settled by the State's notification. See our article on section 34.
- Vacancy cover. Section 32 lets the State Government direct another District Commission to exercise jurisdiction in a district when the office of President or a member is vacant.
Example. A populous district has two District Commissions by State notification, one for the north of the district and one for the south. A buyer in the south files at the southern Commission, assuming that is what the notification says. The Act does not itself divide the work; the notification does, so check it.
Section 28(2): composition
"Each District Commission shall consist of— (a) a President; and (b) not less than two and not more than such number of members as may be prescribed, in consultation with the Central Government."
| Post | Number | Source |
|---|---|---|
| President | One | 28(2)(a) |
| Members | At least two; maximum as prescribed | 28(2)(b) |
Three points:
- The minimum is fixed by the Act: at least two members, so at least three people in all, a President and two members.
- The maximum is not in the Act. It is "such number of members as may be prescribed, in consultation with the Central Government". This article gives no figure; the rules fix it.
- Who prescribes. "Prescribed" in section 2(32) means prescribed by rules made by the Central Government or, as the case may be, the State Government. Here the sub-section adds a consultation with the Central Government, so the State's rule on the maximum is made in consultation with it.
The qualifications, recruitment and term of the President and members are left to rules under section 29, and pay and allowances to rules under section 30. They are not in section 28.
| Question | Where answered |
|---|---|
| Who may be President or member | Rules under section 29 |
| Pay and allowances | Rules under section 30 |
| Vacancy | Section 32 |
| Staff | Section 33 |
| Jurisdiction | Section 34 |
Why the District Commission matters
The District Commission is the first-level forum. Under section 34, which we explain separately, it hears complaints within the money limits printed there. The complaint is filed under section 35 and decided under sections 36 to 39. See our article on how a complaint is filed and, for a plain-language site overview of all three levels, Consumer Dispute Redressal Commissions: District, State, National.
The Act uses the word "Commission". The older word "Forum" belongs to the earlier law; the section headings of this Act speak of "District Consumer Disputes Redressal Commission". This article uses the current term.
What section 28 leaves out
- No statement of where the Commission sits or its working hours.
- No division of work among several Commissions in one district.
- No term of office, qualification, pay, or oath for the President and members.
- No maximum number of members; it is prescribed.
Need help filing at the District Commission?
Knowing which Commission and which district to approach is the first step in a complaint. Our team can check the facts, the money value and the place of cause of action, then draft and file the complaint. Start with consumer complaint filing and bring your bill, contract and correspondence with the seller.
Key takeaways
- Each State Government must establish a District Commission in each district by notification (28(1)).
- More than one District Commission may be established in a district (proviso).
- Each has a President and not less than two members; the maximum is prescribed in consultation with the Central Government (28(2)).
- Qualifications, pay and staffing are in sections 29 to 33, not in section 28.
Read next
- Sections 29-33: District Commission president, members, vacancy and staff
- Section 34: jurisdiction of the District Commission
- Consumer Dispute Redressal Commissions: District, State, National
- How to File Consumer Complaint at District Forum
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.