Module 1: Understanding Legal Services Institutions
1.5 Governance and Structure:
LSIs in India were established to further the notions of democratic and distributive justice. The Indian Constitution guarantees the right to legal aid under Article 21 (right to life and liberty) and imposes a duty on the State to provide legal aid services and ensure that no citizen's right to secure justice is denied. In light of these mandates, the Legal Services Authorities Act, 1987 (Act) was passed to create LSIs and establish a legal foundation for legal aid programs across India.
LSIs operate like other similarly placed institutions in a federal system with roles, responsibilities and decision-making power being divided between the centre, states, and districts. The Act created the National Legal Services Authority (NALSA) as a central authority, State Legal Services Authorities (SLSAs) at the state level, as well as District Legal Services Authorities (DLSAs) at the local levels. The Act also provides for constitution of Supreme Court Legal Services Committee (SCLSC) for providing legal aid in matters coming before the Supreme Court and High Court Legal Services Committee (HCLSC) to provide legal aid to the eligible persons in legal matters coming before the High Courts.
NALSA is headed by the Chief Justice of India as its Patron-in-chief who is supported by the Executive Chairman who is a senior judge of the Supreme Court. NALSA also has a Member Secretary, an administrative role, which is usually a district-level judicial officer for a tenure of 4-5 years. Similarly, in every state, the SLSA leadership comprises the Chief Justice of the concerned High Court, the second senior-most Judge as an Executive Chairperson, and a judicial officer as the Member Secretary. Finally, DLSAs are chaired by a district-level judicial officer of that jurisdiction who serves as the Secretary. The SCLSC is headed by a sitting Judge of the Supreme Court, who acts as its Chairman, ensuring judicial oversight and leadership in the discharge of its functions, and the HCLSC is chaired by a sitting Judge of the High Court.
The graphic (left) sets out the aforementioned governance structures along with details of relevant ecosystem and pipeline institutions.
1.6 Functions and Responsibilities
National Legal Services Authority (NALSA)
The National Legal Services Authority (NALSA) is the apex statutory body established under Section 3 of the Legal Services Authorities Act, 1987. It is entrusted with the mandate to oversee and guide the implementation of legal aid programmes across the country. The Central Government is obligated to constitute this Authority to perform the functions and exercise the powers conferred under the Act, particularly as outlined in Section 2(aa).
The Legal Services Authorities Act assigns a wide array of responsibilities to NALSA under Section 4. The Authority plays a pivotal role in laying down the framework and strategies for delivering legal services across India. Among its key functions are:
NALSA is headed by the Chief Justice of India as its Patron-in-chief who is supported by the Executive Chairman who is a senior judge of the Supreme Court. NALSA also has a Member Secretary, an administrative role, which is usually a district-level judicial officer for a tenure of 4-5 years. Similarly, in every state, the SLSA leadership comprises the Chief Justice of the concerned High Court, the second senior-most Judge as an Executive Chairperson, and a judicial officer as the Member Secretary. Finally, DLSAs are chaired by a district-level judicial officer of that jurisdiction who serves as the Secretary. The SCLSC is headed by a sitting Judge of the Supreme Court, who acts as its Chairman, ensuring judicial oversight and leadership in the discharge of its functions, and the HCLSC is chaired by a sitting Judge of the High Court.
The graphic (below) sets out the aforementioned governance structures along with details of relevant ecosystem and pipeline institutions.
In discharging its multifaceted responsibilities, NALSA is encouraged, under Section 5, to work in coordination with other governmental bodies, non-governmental organizations, universities, and various agencies involved in promoting legal services for the underprivileged.
Supreme Court Legal Services Committee (SCLSC)
Supreme Court Legal Services Committee (SCLSC) plays a crucial role in ensuring access to justice at the apex level of the Indian judiciary. Established under Section 3A of the Legal Services Authorities Act, 1987, this Committee is constituted by the Central Authority (NALSA) specifically to provide legal aid and assistance in matters pending before the Supreme Court of India. The composition, powers, and functions of the SCLSC are guided by the provisions of the Act and further elaborated in the Supreme Court Legal Services Committee Regulations, 1996, framed by the Central Authority.
The primary mandate of the Supreme Court Legal Services Committee is to ensure that legal aid is made available to eligible persons in cases pending before the Supreme Court. To this end, the Committee undertakes a variety of functions, which include:
Processing applications for legal aid and determining eligibility based on the guidelines laid down under the Act and NALSA regulations.
Assigning panel advocates to represent eligible applicants before the Supreme Court. These panel lawyers are selected for their competence and experience in handling cases at the apex court level.
Performing other functions as specified under the NALSA Regulations and as may be entrusted by the Central Authority.
State Legal Services Authority (SLSA)
The State Legal Services Authority (SLSA) serves as the nodal institution for implementing legal aid programmes at the state level. Constituted under Section 6 of the Legal Services Authorities Act, 1987, each SLSA is established by the respective State Government to perform the functions and exercise the powers assigned to it under the Act. The SLSA plays a pivotal role in translating national legal aid policy into state-level action and ensuring access to justice for marginalised and disadvantaged sections of society.
The core mandate of the SLSA is to give effect to the policies and directions of NALSA and to undertake a broad range of functions that contribute to the promotion of legal awareness and the delivery of free legal services. These are provided in the graphic on the bottom right:
In performing its functions, the SLSA works in close coordination with various governmental departments, non-governmental organisations, law colleges, universities, and other institutions engaged in legal empowerment and access to justice. As provided under Section 8 of the Act, the SLSA is also guided by written directions issued by NALSA, ensuring alignment with the national legal services framework.
High Court Legal Services Committee (HCLSC)
The High Court Legal Services Committee (HCLSC) is constituted under Section 8A of the Legal Services Authorities Act, 1987, by the State Legal Services Authority (SLSA) for each High Court. Its primary role is to ensure the provision of free legal services in matters pending before the High Courts, thereby strengthening access to justice at the higher judiciary level within each state.
While the Legal Services Authorities Act does not explicitly enumerate the functions of the HCLSC, its powers and responsibilities are defined through regulations made by the SLSA. These typically include processing applications for legal aid in High Court matters, assigning panel advocates, and facilitating Lok Adalats for High Court cases, among other duties aligned with the objectives of the Act.
District Legal Services Authority (DLSA)
The District Legal Services Authority (DLSA) is the principal body responsible for implementing legal aid programmes at the district level. Established under Section 9 of the Legal Services Authorities Act, 1987, every DLSA is constituted by the State Government in consultation with the Chief Justice of the High Court. As the operational arm of the State Legal Services Authority (SLSA), the DLSA plays a vital role in ensuring the delivery of legal services to the grassroots. It’s functions are provided in the graphic below.
As outlined in Section 11, the DLSA is expected to work in collaboration with government departments, NGOs, universities, and other local institutions engaged in advancing legal awareness and access to justice. It is also guided by written directions issued by NALSA or SLSA, ensuring consistency with broader legal aid policies and strategies.
Taluk Legal Services Committee (TLSC)
The Taluk Legal Services Committee (TLSC) serves as the foundational unit of the legal aid delivery system at the sub-district level. Constituted under Section 11A of the Legal Services Authorities Act, 1987, the TLSC may be
established by the State Legal Services Authority (SLSA) for each taluk, mandal, or group of taluks or mandals, depending on administrative needs.
As per Section 11B of the Act, the TLSC is entrusted with several key responsibilities, including:
• Coordinating the activities of legal aid and services within the taluk.
• Organising Lok Adalats to facilitate accessible dispute resolution at the local level.
• Performing such additional functions as may be assigned by the District Legal Services Authority (DLSA).
Through these functions, the TLSC plays a crucial role in decentralising access to justice and ensuring that legal aid services are responsive to local needs, especially in rural and semi-urban areas.
Lok Adalats
Lok Adalats are a vital component of India’s legal aid framework, providing an alternative forum for the amicable resolution of disputes. Established under Chapter VI of the Act, and governed by Section 19, Lok Adalats are organised by Legal Services Institutions at all levels — including the Supreme Court Legal Services Committee, High Court Legal Services Committees, and the Legal Services Authorities at the state and district levels.
The primary objective of Lok Adalats is to ensure the speedy, cost-effective, and informal settlement of disputes. They are especially effective in resolving pending cases as well as pre-litigation matters through mutual consent. Importantly, awards passed by Lok Adalats carry the weight of a civil court decree and are binding on all parties. Additionally, no court fee is charged for matters referred to Lok Adalats, and any fee already paid is refunded upon settlement.
Recognising the need for institutionalised mechanisms in certain sectors, Chapter VIA, inserted through a 2002 amendment to the Act, provides for the establishment of Permanent Lok Adalats. These bodies are specifically constituted to resolve disputes relating to public utility services such as transport, postal services, and telecommunication, among others. Unlike regular Lok Adalats, Permanent Lok Adalats have limited adjudicatory powers in cases where parties fail to reach a settlement, making them a unique hybrid model within the broader framework of alternative dispute resolution.
1.6 Budgets and Finance
As the nodal agency, NALSA receives funding from the Ministry of Law and Justice and is mandated to develop central policies/guidelines and legal aid programs, and allocate budgets to SCLSC and SLSAs to implement these at the State-level. State governments may also contribute additional funds towards specific programs, and infrastructure. SLSAs in turn develop state-specific interventions and allocate budgets to HCLSC and DLSAs to implement the program at the ground-level. NALSA’s legal aid programs typically include running legal aid clinics, implementing legal aid schemes for special categories, awareness campaigns, and alternative dispute resolution mechanisms (people’s court).
Between 2021–22 and 2023–24, NALSA received grants-in-aid of ₹145 crore, ₹190 crore, and ₹400 crore, respectively, while the allocation for 2024–25 stands at ₹200 crore. During the same period, contributions from state governments towards legal aid services increased from ₹722 crore in 2020 to ₹866 crore in 2023. Recognising the importance of adequate financial support for effective legal aid delivery, these trends reflect a growing institutional commitment to strengthening access to justice across the country.
While the legal aid framework provides the institutional scaffolding for ensuring justice, its true strength lies in the people who animate it. Beyond policies and structures, it is individuals who make justice accessible and meaningful to those on the margins. The next chapter turns to these key actors—legal aid lawyers and para-legal volunteers—whose work embodies the human dimension of legal aid delivery and sustains the promise of access to justice.
