Holding

Section 13(2)(a) is a directory provision; the forum may extend the time for filing a reply beyond 45 days and a reply filed after that period cannot be automatically rejected.

Summary

The appellant, Topline Shoes Ltd., challenged a decision of the Gujarat State Consumer Disputes Redressal Commission that it had accepted a reply from the respondent, Corporation Bank, filed after the 45‑day period prescribed under Section 13(2)(a) of the Consumer Protection Act, 1986. The appellant argued that the provision was mandatory and that the forum could not extend the time beyond 45 days, whereas the respondent contended that the time‑limit was procedural and could be extended at the forum's discretion. The Supreme Court held that the 45‑day limit is directory, not mandatory, and that the forum may grant additional time without the reply being automatically rejected. It emphasized that the provision aims at speedy disposal and must be interpreted in light of natural‑justice principles, and that no penal consequence follows an extension beyond 15 days. Consequently, the appeal was dismissed with costs.

Issues considered

Whether Section 13(2)(a) of the Consumer Protection Act, 1986 imposes a mandatory 45‑day limit for filing a reply.
Whether the provision prescribing the time limit is mandatory or directory in nature.
Whether the State Consumer Disputes Redressal Commission can extend the time for filing a reply beyond the total period of 45 days.
Whether a reply filed beyond 45 days must be rejected as inadmissible.

Legislation cited

Consumer Protection Act, 1986s. 13(2)(a)
General Clauses Acts. 14

Subjects

Consumer Protection ActSection 13(2)(a)reply filing deadlinedirectory provisionmandatory provisionextension of timenatural justiceState Consumer Disputes Redressal Commission

Judgment

l

TOPLINE SHOES LTD. A
v.
CORPORATION BANK

JULY 8, 2002

[D.P. MOHAPATRA AND BRIJESH KUMAR, JJ.] B

Consumer Protection Act, 1986~~ection I 3(2)(a)-Reply-Filing a/-
' Grant of time by forum beyond a total period of 45 days-Power of-Held,
the forum could grant time to the opposite party to file reply beyond a total C
period of 45 days, the provi:,ion prescribing limit/or filing repb' being directo!J'
in nature-Thus, on facts even though the opposite party filed reply beyond
a total period of 45 days, reply could not be rejected

In this appeal, the question before this Court was whether in view
of Section 13(2)(a) of the Consumer Protection Act, 1986 the State D
Consumer Disputes Redressal Commission could grant time to the
respondent for file his reply, beyond a total period of 45 days and whether
the provision prescribing limit for filing reply is mandatory or dir-cctory
in nature.

Appellant contended that the state Commission had not power to E
accept a reply filed beyond a total period of 45 days and the discretion
vested in the forum/commission to extend the time cannot be exercised
from time to time since that would frustrate the purpose of the provision
itself.

Respondent contended that the provision fixing a period for F
submission of reply is only procedural in nature and it cannot be
interpreted in a manner so as to deprive a party the opportunity of being
heard on merits of his case. It also submitted the respondent had filed his
reply within the time allowed and extension was sought only once, thus
there, was no occasion to plead that the reply be rejected. G
Dismissing the appeal, the Court

HELD: I. Section 13 (2) (a) of the Consumer Protection Act, 1986
makes it clear that the District Forum would give time of 30 day; to the
opposite party for the purposes of giving his version. An extension of time H
1167
1168 SUPREME COURT REPORTS [2002) 3 S.C.R.

A for filing reply could be granted but not exceeding 15 days. The total
period during which the reply can be filed is 45 days . After extension of
fifteen days is granted, Thus the intention to provide a time frame to file
reply, is really meant to expedite the hearing of such matters and to avoid
unnecessary adjournments to linger on the proceedings on the pretext of
B filing reply. The provision however, as framed, does not indicate that it is
mandatory in nature. In case the extended time exceeds 15 days, no penal
consequences are prescribed therefor. The period of extension of time not
...
exceeding 15 days "does not prescribe any kind of period of limitation.
The provision appears to b.e directory in nature, whic·h the consumer
forums are ordinarily supposed to apply, in the proceedings before them.
C It does not mean that orders extending the time to file reply may be passed
repeatedly unmindful of and totally ignoring the provision that the
extension may not exceed 15 days. This provision has always to be kept
in mind while passing an order extending the time to file a reply to the
petition. 11171-G, H; 1172-D, E; 1175-D, E)

D 2. In the instant case at that first instance the Commission itself had
fixed the date beyond 30 days and the respondent sought further time
which prayer was accepted and next date was fixed. The respondent filed
his reply on the date fixed. In such circumstances there was no occasion
to contend that the reply of the respondent should be rejected. Also there
E is no force in the submission that in no event whatsoever, the reply of the
respondent could be taken on record beyond the period of 45 days. The
provision is more by way. of procedure to achieve the object of speedy
disposal of such disputes. It is an expression of "desirability" in strong
terms, But it falls shc..·t of creating any kind of substantive right in favour
of the complainant by reason of which the respondent may be debarred
F from placing his version in defence in any circumstances whatsoever. It
is for th.e forum or the commission to consider all facts and circumstances
along with the provisions of the Act providing time frame to file reply, as
a guideline, and then to exercise its.discretion a·s best it may serve·the ends
of justice and achieve the object of speedy disposal of such cases keeping
G in mind principles of naturat'justice as well. The form may refuse to extend
time beyond 15 days, in view of Section 13 (2 )(a) of the Act but exceeding
the period of 15 days of extension, would not cause any fatal illegality in
the order which may deny or deprive the respondent to file his reply within
the time granted by the forum/commission. Also in the absence of any
penal consequences to follow, it will no~ be open for the appellant to
H contend that the reply filed by the respondent within the time granted
TOPLINE SHOES LTD. v CORPORATION BANK [BR I.I ESH KUMAR, J.] J 169

though beyond 45 days, is liable to be rejected. A
(1175-E, F; 1172-E-H; 1173-C, DI

National Sewing Thread Co .• Chidambaram v. James Chadwick and
Bros. ltd., AIR (1953) SC 357; Vasantlal Maganbhai Sanjanwala v. The State
of Bombay, AIR (1961) SC 4; Sharif-ud-Din v. Abdul Gani lone, AIR (1980)
S.C. 303; life Insurance Corporation of India v. Escorts ltd. and Or.<., AIR B
(1986) S.C. 1970 and Siraj-ul-Haq Khan and Ors. v. The Sunni Central Board
of Waqf, UP. and Ors., AIR (1995) S.C. 198 held inapplicable.

' Sangram Singh v. Election Tribunt Kotah and Anr., AIR (1955) SC 425
and Ganesh Prasad Sah Kesari and Anr. v. Lakshmi Narayan Gupta, (19851 C
3 sec 53. referred to.

CIVIL APPELLATE JURISDICTION : Civil Appeal Nos. 3654-58 of
2002.

From the Judgment and Order dated 9.4.2001 of the National Consumer
Disputes Redressal Commission in Revision Petition No. 436 of 200 I. D
Petitioner-in-Person.

S.N. Bhat for the Respondent.

The Judgment of the Court was delivered by E
BRIJESH KUMAR, J. Leave granted. Heard appellant in person and
the learned counsel for the Respondent.

This appeal has been preferred against the order dated April 9, 2001
passed by the National Consumer Disputes Redressal Commission dismissing F
the revision filed by the appellant. The short point in controversy is, as to
whether .or not the State Consumer Disputes Redressal Commission, could
grant time to the respondent to file his reply, beyond a total period of 45
days, in view of Section 13 (2) (a) of the Consumer Protection Act 1986 (for
~~ilie~. G
The appellant filed a complaint before the Gujarat State Consumer
Redressal Commission, clain1ing co1npensation against the respondent, on
account of alleged failure on the part of the re·-pondent in advancing the loan
to the appellant despite of furnishing the security for the same. The responden:
received notice, issued by the Commission, on 22.2.2000. According to the H
1170 SUPREME COURT REPORTS [2002] 3 S.C.R.

A said notice 4.4.2000 was the date fixed before the State Commission. The
respondent appeared on 4.4.2000 and moved an application for adjournment
of the case and grant of time to file reply. The case was adjourned for
4.5.2000. On the said date, namely, 4.5.20CO~ the respondent-Bank filed its
reply. The appellant thereafter seems to have filed their rejoi~der to the reply
filed by the respondent. On the next date, namely, 24.7.2000 the appellant
B moved an application before the State Commission saying that the reply filed
by the respondent was beyond a period of 30 days initially admissible for
filing reply and also beyond a further period of 15 days as could be extended
for the purpose. Hence, it was prayed that the reply of the respondent may
not be accepted on record and the rejoinder filed by the appellant may also ·
C be returned to it. According to the appellant, a total period of time for filing
of reply could not exceed beyond 45 days, as per Section 13 (2)(a) of the
Act. The application was, however, rejected by the State Commission but a
cost of Rs. 500 was imposed upon the respondent for late filing of the reply.

While refusing the prayer to reject the reply, the Commission observed
D that the delay did not appear to be gross or contrary to the order passed
granting adjournment on 4.4.2000. The Commission further observed that the
discretion vested to extend time for 15 days could be exercised from time to
time as the occasion may require and for arriving at this conclusion, the State
Commission has relied upon decisions of this Court reported in National
E Sewing Thread Co., Chidambaram v. James Chadwick & Bros. Ltd. AIR
(1953) SC 357 and Vasant/al Maganbhai Sanjanwala v. The State of Bombay,
AIR (1961) SC 4 as well as on Section 14 of the General Clauses Act. It has
also been observed that these are matters of procedure which are hand-made
of justice. The revision preferred against the said order before the National
Consumer Disputes Redressal Commission was dismissed as it was considered
F that no ground was made out to interfere in exercise of its revisional
jurisdictions.

Shri H.M.G. Murthy who appeared in person for the appellant, submitted
that the State Commission had no power to accept a reply filed beyond a total
period of 45 days. Initially the respondent is required to submit the reply
G within 30 days which period could be extended not exceeding 15 days as
would be evident from the plain and bare reading of Section 13 (2) (a) of the
Act. It is also submitted that the discretion vested in the Forum/Commission
to extend the time cannot be exercised from time to time as held by the State
Commission since that would frustrate the purpose of the provision itself.
H The case of the Respondent is that the provision fixing a period for submission
TOPLINE SHOES LTD. v. CORPORATION BANK [BRIJESH KUMAR. J.] 1171

of reply, is only procedural in nature, and it cannot be interpreted in a manner A
so as to deprive a party of being heard on merits of his case. It is also
·submitted, on facts, that the notice was received on 22.2.2000 and the appellant
was required to be present before the State Commission on 4.4.200.0 that is
to say after a period of 30 days. On application for adjournment the time was
extended upto 4.5.2000. The respondent had submitted his reply within the B
time allowed. Extension was sought only once. The appellant had also filed
their rejoinder to the reply. There was therefore no occasion to plead that the
written statement be rejected and the rejoinder of the appellant be returned.

We may peruse the relevant provisions of Section 13 of the Consumer
Protection Act, 1986. It reads as under: C
"Section 1 3 . - - - - - - - - - - - - - - - - - - -

Sub-section ( 2 1 - - - - - - - - - - - - - - - - - - - -
(a) refer a copy of such complaint to the opposite party directing him
to give his version of the case within a period of thirty days or such D
extended period not exceeding fifteen days as may be granted by the
District Forum;

(b) where the opposite party, on receipt of a copy of the complaint,
referred to him under clause (a) denies or disputes the alle.gations
contained in the complaint, or omits or fails to take any action to E
represent his case within the time given by the District Forum, the
District Forum shall proceed to settle the consumer dispute,-

(i) on the basis of evidence brought to its notice by the complainant
and the opposite party, where the opposite party denies or disputes
the allegations contained in the complaint, or F
(ii) on the basis of evidence brought to its notice by the complainant
where the opposite party omits or fails to take any action to
represent his case within the time given by the Forum.

A reading of clause (a) of sub-section (2) of Section 13 no doubt makes
it clear that the District Forum would give time of 30 days to the opposite G
party for the purposes of giving his version. An extension of time for filing
reply could be granted but not exceeding 15 days. Thus the total period
during which the reply can be filed is 45 days after extension of fifteen days
is granted. The question which however arises is as to whether the provision
prescribing limit for filing reply is mandatory or directory in· nature. H
1172 SUPREME COURT REPORTS [2002] 3 S.C.R.

A The Statement of Obj~cts and Reasons of the Consumer Protection Act,
1986 indicates that it has been enacted to promote and protect the rights and
interests of consumers and to provide them speedy and simple redressal of
their grievances. Hence, quasi-judicial machinery has been set up for the
purpose, at different levels. These quasi-judicial bodies have to observe the
B principles of natural justice as per clause (4) of the Statement of Objects and
Reasons which reads as under:

"To provide speedy and simple redressal to cons.umer disputes, a
quasi-judicial machinery is sought to be set up at the district, State
and Central levels. These quasi-judicial bodies will observe the
principles of natural justice and have been empowered to given relief
c of a specific nature_and to award, wherever appropriate, compensation
to consumers. Penalties for non-compliance of the orders given by
the quasi-judicial bodies have also been provided." (emphasis supplied)

Thus the intention to provide a time frame to file reply, is really meant
I) to 'expedite the hearing of such matters and to avoid unnecessary adjournments
to linger on the proceedings on the pretext of filing reply. The provision
however, as framed, does not indicate that it is mandatory in nature. In case
the extended time exceeds 15 days, no penal consequences are prescribed
therefor. The period of extension of time "not exceeding 15 days," does not
prescribe any kin.d of period of limitafon. The provision appears to be directory
E in nature, which the consumer forums are ordinarily supposed to apply, in the
proceedings before them. We do not find force in the submission made by
the appellant, in person, that in no event, whatsoever, the reply of the
respondent could be taken on record beyond the period of 45 days. The
provision is more by way of procedure to achieve the object of speedy disposal
F . of such disputes. It is an expression of "desirability" in strong terms. But it
falls short of creating of any kind of substantive right in favour of the
complainant by reason of which the respondent may be debarred from placing
his version in defence in any circumstances whatsoever. It is for the Forum
or the Commission to consider all facts and circumstances along with the
provisions of the Act providing time frame to file reply, as a guideline, and
G then to exercise its discretion as best it may serve the ends of justice and
achieve the object ofspeedy disposal of such cases keeping in mind principles
of natural justice as well. The Forum may refuse to extend time beyond 15
days, in view of Section 13(2) (a) of the Act but exceeding the period of 15
days of extension, would not cause any fatal illegality in the order.

H On behalf of the appellant reliance has been placed on a few decisions
TOl'LINE SHOES LTD. v. CORPORATION BANK [13Rl.IESH KUMAR, J.] 1173

of this Court reported in AIR 1930 S.C. 303 Sharifud-Din v. Abdul Gani A
. Lone. The case relates to election dispute under the Representation of People
Act, and non-co1npliance of require111ents as provided, such provisions were
held to be mandatory in nature. Specific consequences as a result of non-
compliance, were provided for. It is also observed that normally procedural
rules should not be considered as 1nandatory in nature. The election law is B
a technical la\.v \vhich also provides consequences of non-co1npliance of certain
provisions but in the present case \Ve find that no consequence is provided
in case the time granted to file reply exceeds total period of 45 days. It may
at best can be said to be .an irregular way of exercise of discretion. Normally
the Foru1n or Co1nmission would act in accordance with the provision relating
to procedural matters and while considering the question whether any further C
time 1nay or n1ay not be granted, it would be relevant to take into account the
limit placed for extension of time in accordance with the provisions of the
Act. In the absence of any penal consequences to follow, it will not be open
for the appellant to contend that the reply filed oy the respondent within the
iimc granted though beyond 45 days, is liable to be rejected. The appellant
therefore cannot derive any· help from the decision referred to above. The D
other case which has been relied upon is reported in AIR 1986 S.C. 1370 Life
Insurance Corporation of India v. Escorts ltd. and Ors. Our attention has
been drawn to the observations made by the Court that the proper way to
interpret a Statute is to give due weight to the use, as \Veil as the omission,
to use the qualifying words in different provisions of the Act. The provision E
of the Statute has to be read in the plain and simple manner and in the light
of the purpose which is sought to be achieved by the enactment. This case
also does not take the case of the appellant any further in view of discussion
earlier. Yet another case referred to is reported in AIR 1959 S.C. 198 Siraj-
ul-Haq Khan and Ors. v. The Sunni Central Board of Waqf, U.P. and Ors.
ft has also no application to the present case. Our attention has particularly F
been drawn to Paragraph 17 wherein it has been observed as follows:

" ......... These decisions illustrate the principle that where the literal
meaning of the words used in a statutory provision would manifestly
defeat its object by making a part of it meaningless and ineffective,
it is legitimate and even necessary to adopt the rule of liberal G
construction so as to give meaning to all parts of the provision and
to 1nake the whole of it effective and operative"

The above observations may perhaps help more to the respondent's stand.

Learned counsel appearing for the respondent on the other hand, placed H
1174 SUPREME COURT REPORTS [2002] 3 S.C.R.

A reliance on a decision reported in AIR 1955 S.C. 425 Sangram Singh v.
Election Tribunt Kotah and Anr. The matter relates to an election petition
where ex parte proceedings were ordered. This Court as a general proposition
of interpretation of Statutes observed as follows:

"Now a code of procedure must be regarded as such. It is 'procedure'
B something designed to facilitate justice and further its ends: not a
penal enactment for punishment and penalties; not a thing designed
to trip people up. Too technical a construction of sections that leaves
no room for reasonable elasticity of interpretation should therefore be
guarded against (provided always that justice is done to ·both sides')
lest the very means designed for the furtherance of justice be used to
c frustrate it.

Next, there must be ever present to the mind the fact that our laws
of procedure are grounded on a principle of natural justice which
requires that men should not be condemned unheard, that decisions
should not be reached behind their backs, that proceedings that affect
D
their lives and property should not continue in their absence and that
they should not be precluded from participating in them. Of course,
there must be exceptions and where they are clearly defined they
must be given effect to. But taken by and large. and subject to that
proviso, our laws of procedure should be construed, wherever that is
E reasonably possible, in the light of that principle"

Another d~;sion relied upon on behalf of the respondent is reported in
[ 1985] 3 SCC 53 Ganesh Prasad Sah Kesari and Anr. v. laksJ1111i Narayan
Gupta. The tenant had failed to deposit the rent within the time permitted
under the provisions of the Act. It was held that period of 15 days as provided
F was directory in nature. The Court had discretion to extend the period in -:-
suitable cases.

We have already noticed that the provision as contained under clause
(a) of sub-section (2) of Section 13 is procedural in nature. It is also clear that
G with a view to achieve the object of the enactment, that there may be speedy
disposal of stJth cases, it has been provided that reply is to be filed within
30 days and the extension of time may not exceed 15 days. This provision
envisages that proceedings may not be prolonged for a very long time without
the opposite party having filed his reply. No penal consequences have however
been provided in case extension of time exceeds 15 days. Therefore, it could
H not be said that any substantive right accrued in favour of the appellant or
..
TOl'Lll'\E SHOES LTD. v. CORPORATION BANK [BRIJESH KUMAR, J.] 1175

there was any kind of bar of limitation in filing of the reply within extended A
time though beyond 45 days in all. The reply is not necessarily to be rejected.
All facts and circumstances of the case must be taken into account. The
Statement of Objects and Reasons of the Act also provides that principles of
natural justice have also to be kept in mind.

We would like to observe that the decision of this Court in the cases B
of Nalional Sewing Thread Co. and Vasantla/ Maganbhai Sanjanwala (supra)
would not be applicable to the case in hand. In those cases it was held that
a power which is vested in the Court can be exercised repeatedly in the
absence of intention to the contrary contained in the Statute. Such a question
is not involved in the present case. The power to extend time under Clause C
(a) is with a rider that the extension may not exceed 15 days. We have,
. however, already held that the provision saying that extended time may not
exceed 15 days is directory in nature. It does not mean that orders extending
the time to file reply may be passed repeatedly unmindful of and totally
ignoring the provision that the extension may not exceed 15 days. This
provision has always to be kept in mind while passing an order extending the D
time to file a reply to the petition. It is another matter, as we have found that
in case time is extended exceeding 15 days, it may not be kind of an illegality
which may deny or deprive the respondent to file his reply within the time
granted by the Forum/Commission.

So far the facts of the present case are concerned, we find that at the E
first instance the Commission itself had fixed the date beyond 30 days and
the respondent sought further time which prayer was accepted and 4.5.2000
was fixed. The respondent filed his reply on the date fixed. In such
circumstances there was no occasion to contend that the reply of the respondent
should be rejected. F
For the discussion held above, we find no merit in the appeal. The same
is dismissed with costs.

N.J . Appeal dismissed.

..,