Legal News & Empanelment update by Akinchan Aggarwal, Advocate — B.A. (Hons.), LL.B. (Gold Medalist), LL.M. (Disputes Resolution), UGC-NET, Ph.D. (Pursuing)
The Department of Legal Affairs, Ministry of Law and Justice has issued a fresh Office Memorandum dated 20 August 2026 laying down consolidated guidelines for the empanelment of advocates as Panel Counsel representing the Union of India before the Supreme Court, all High Courts, District and Subordinate Courts, and Tribunals and Forums across the country.
For any advocate who has ever wondered what it actually takes to appear for the Union — and how many years at the Bar the government expects before it hands you a brief — this document is the answer, in writing, for the first time in a consolidated form. It sets out essential qualifications, a court-wise minimum experience chart running to 38 entries, the prescribed application format, grounds of disqualification, tenure, and the circumstances in which an advocate can be de-empanelled.
At a glance: LL.B. from a BCI-recognised institution + State Bar Council enrolment + AIBE qualification and Certificate of Practice are essential. Experience required ranges from 2 years (Junior Counsel, Bombay HC) to 15 years (Standing Counsel, NGT and TRAI). Tenure is three years, with annual performance review. Applications go by email to panelcounsel-dla@gov.in.
Table of Contents
- What the Office Memorandum Does
- Essential Qualifications
- Eligibility and Experience
- Annexure-I: Court-Wise Minimum Experience Chart
- How to Apply — Process and Documents
- Annexure-II: What the Application Form Asks
- Disqualification
- Tenure, Fees and Performance Review
- De-Empanelment and Resignation
- Other Terms and Conditions
- Points Worth Noting
- Frequently Asked Questions
1. What the Office Memorandum Does
| Particulars | Details |
|---|---|
| Issued by | Government of India, Ministry of Law and Justice, Department of Legal Affairs (Judicial Section), Kartavya Bhawan 2, New Delhi |
| File Number | No. J-11022/2/2015-Judicial/E.130475 |
| Date | 20 August 2026 |
| Subject | Guidelines for empanelment of advocates as Panel Counsel representing the Union of India before the Hon'ble Supreme Court and various High Courts / District & Subordinate Courts and Tribunals / Forums |
| Period of Empanelment | Generally three years |
| Mode of Application | Email to panelcounsel-dla@gov.in, addressed to the Deputy Secretary, Department of Legal Affairs |
| Effective From | Date of issuance |
| Effect on Existing Panels | All previous empanelments notified by the Department remain valid and in operation until completion of their respective tenure |
The Department of Legal Affairs holds the mandate for conducting litigation on behalf of the Union of India before various Courts, Tribunals and Forums. Empanelment of advocates as Panel Counsel is how it discharges that mandate on the ground.
2. Essential Qualifications
Three requirements are stated as essential. All three must be satisfied:
- 1.1 — A Bachelor's degree in law from a university or college recognised by the Bar Council of India.
- 1.2 — Enrolment with the respective State Bar Council in accordance with the Advocates Act, 1961.
- 1.3 — Having qualified the All-India Bar Examination (AIBE) and obtained the Certificate of Practice (CoP).
Note the third requirement carefully. AIBE qualification and a Certificate of Practice are listed as essential qualifications, not preferences. Advocates who have not appeared for or cleared the AIBE should treat this as a threshold to be crossed before applying.
3. Eligibility and Experience
- 2.1 — Advocates may be considered for empanelment subject to fulfilment of the experience of legal practice prescribed in Annexure-I (reproduced in full below). Beyond the bare number of years, consideration will be given to the nature, complexity and category of cases handled, the level of responsibility carried, and the advocate's ability to conduct high-stakes matters.
- 2.2 — Advocates with experience in Special Laws — Income Tax, Customs, GST, PMLA and the like — may be considered for specialised panels representing the Union before Courts, Tribunals and quasi-judicial fora.
- 2.3 — Advocates having previous experience of legal work of 10 years during Government Service may be considered for empanelment based on their area of expertise.
- 2.4 — The overall performance track record, conduct and integrity of an advocate will also be considered during the empanelment process.
Clause 2.3 is worth pausing on. It opens a route for law officers, government counsel and departmental legal advisers who have spent a decade doing legal work within government service — a category that would otherwise struggle to demonstrate years of independent practice.
4. Annexure-I: Court-Wise Minimum Experience Chart
This is the operative part of the notification for most applicants. It prescribes, court by court and category by category, the minimum years of legal practice required.
| S. No. | Court / Tribunal | Empanelment Category | Minimum Experience |
|---|---|---|---|
| 1 | Supreme Court of India | Group 'A' Panel Counsel Group 'B' Panel Counsel Group 'C' Panel Counsel | 5 years 4 years 3 years |
| 2 | Allahabad High Court (PB) at Allahabad (Prayagraj) and its bench at Lucknow | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 3 | Andhra Pradesh High Court at Amaravati | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 4 | Bombay High Court (PB) at Mumbai | Special Counsel Senior Counsel Group – I Senior Counsel Group – II Junior Counsel | 5 years 4 years 3 years 2 years |
| 5 | All benches of Bombay High Court at Nagpur, Aurangabad, Panaji & Kolhapur | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 6 | Calcutta High Court (PB) at Kolkata | Deputy Solicitor General Special Counsel Senior Counsel Group – I Senior Counsel Group – II Junior Counsel | 10 years 5 years 4 years 3 years 2 years |
| 7 | All benches of Calcutta High Court at Jalpaiguri & Port Blair | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 8 | Chhattisgarh High Court at Bilaspur | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 9 | Delhi High Court at New Delhi | Central Govt. Standing Counsel Senior Panel Counsel Government Pleader | 5 years 5 years 2 years |
| 10 | Gauhati High Court (PB) at Guwahati and its benches at Itanagar, Aizawl & Kohima | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 11 | Gujarat High Court at Ahmedabad | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 12 | Himachal Pradesh High Court at Shimla | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 13 | Jammu & Kashmir and Ladakh High Court at Jammu & Srinagar | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 14 | Jharkhand High Court at Ranchi | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 15 | Karnataka High Court (PB) at Bengaluru and its benches at Dharwad, Kalaburagi (Gulbarga) | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 16 | Kerala High Court at Kochi, Ernakulam | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 17 | Madhya Pradesh High Court (PB) at Jabalpur and its benches at Gwalior & Indore | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 18 | Madras High Court (PB) at Chennai and its bench at Madurai | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 19 | Manipur High Court at Imphal | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 20 | Meghalaya High Court at Shillong | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 21 | Orissa High Court at Cuttack | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 22 | Patna High Court at Patna | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 23 | Punjab & Haryana High Court at Chandigarh | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 24 | Rajasthan High Court (PB) at Jodhpur and its bench at Jaipur | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 25 | Sikkim High Court at Gangtok | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 26 | Telangana High Court at Hyderabad | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 27 | Tripura High Court at Agartala | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 28 | Uttarakhand High Court at Nainital | Deputy Solicitor General Senior Panel Counsel Central Government Counsel | 10 years 5 years 4 years |
| 29 | Principal Bench of CAT, New Delhi and all CAT Benches throughout the country (except CAT Benches at Mumbai and Kolkata) | Senior Central Government Standing Counsel Senior Panel Counsel Additional Central Government Standing Counsel | 5 years 5 years 3 years |
| 30 | Central Administrative Tribunal (CAT), Mumbai | Special Counsel Senior Counsel Group – I Senior Counsel Group – II Junior Counsel | 5 years 4 years 3 years 2 years |
| 31 | Central Administrative Tribunal (CAT), Kolkata Bench | Special Counsel Senior Counsel Group – I Senior Counsel Group – II Junior Counsel | 5 years 4 years 3 years 2 years |
| 32 | All Armed Forces Tribunal (AFT) Benches throughout the country | Senior Central Government Standing Counsel Senior Panel Counsel Central Government Counsel | 5 years 5 years 4 years |
| 33 | District Courts in Delhi | Senior Panel Counsel Additional Central Government Counsel | 5 years 3 years |
| 34 | All District & Subordinate Courts throughout the country (except in Delhi) | Standing Government Counsel Additional Standing Government Counsel | 5 years 3 years |
| 35 | Arbitration Matters (Delhi and NCR) | Senior Counsel Junior Counsel | 5 years 2 years |
| 36 | High Court & Special Court | Special Public Prosecutor / Additional Public Prosecutor | 10 years |
| 37 | National Green Tribunal | Standing Counsel | 15 years |
| 38 | Telecom Regulatory Authority of India | Standing Counsel | 15 years |
Footnotes to Annexure-I:
* The Senior Central Government Standing Counsel was renamed as Assistant Solicitor General. Further, the name of Assistant Solicitor General was renamed as Deputy Solicitor General vide the Department's OM dated 13 September 2022.
** The vacant post of DSG in various High Courts will be filled as per the minimum prior legal practice experience shown in the above table with regard to the post of DSG.
5. How to Apply — Process and Documents
The Process
- Complete the application in the prescribed format at Annexure-II to the OM.
- Address it to the Deputy Secretary, Department of Legal Affairs, Ministry of Law and Justice.
- Send it by email to panelcounsel-dla@gov.in.
- Applications are scrutinised by officers of the Department to verify compliance with the eligibility criteria, completeness of the application, authenticity of documents, and the applicant's suitability for empanelment.
Summary rejection warning (Clause 3.2): On scrutiny, any application not in the desired format, illegible, incomplete, not containing clear information, or failing to fulfil the eligibility criteria shall be summarily rejected. There is no cure-defect stage. Get the format right the first time.
Documents to Be Submitted (Clause 4)
- 4.1 — Name of the Court / Tribunal for which empanelment is sought.
- 4.2 — Duly signed application in the prescribed format (Annexure-II), including bio-data with contact details, educational qualifications, professional experience and Bar Council Enrolment Number.
- 4.3 — Self-attested copies of certificates and testimonials supporting educational qualifications and other relevant credentials.
- 4.4 — Copies of empanelment orders issued by any other Government Department, Public Sector Undertaking, statutory body or other organisation, if applicable.
- 4.5 — A signed undertaking expressing willingness to abide by all terms and conditions, including the fee structure and other instructions as may be sought by the Department from time to time.
- 4.6 — A declaration that the applicant has not been convicted of any criminal offence, including an offence involving moral turpitude, and is not disqualified, debarred or otherwise prohibited from practice by any Court, Bar Council or other competent authority.
6. Annexure-II: What the Application Form Asks
The prescribed form runs across eight parts. Fields marked with an asterisk in the original are mandatory.
| Part | Information Required |
|---|---|
| 1. Basic Information | Full name, father's name, date of birth, gender, category (General / SC / ST / OBC / PwD), residential address with PIN, office address with PIN, mobile number*, alternate contact number, email ID* |
| 2. Professional Enrolment | Name of State Bar Council*, Bar Council Enrolment Number*, Date of Enrolment*, AIBE Qualification Status (Yes/No), Certificate of Practice No. (if applicable) |
| 3. Educational Qualifications | 10th (Matric), 10+2, BA.LL.B and other degrees — with university, year of passing and division/class |
| 4. Practice and Experience | Total years of legal practice; primary area(s) of practice; experience in Constitutional / Service / Tax / Criminal / Civil / Arbitration / Special Laws (with supporting documents); experience in representing Government / PSUs / Statutory Authorities; details of reported or significant cases argued (separate sheet may be attached) |
| 5. Empanelment Sought | Court / Tribunal for which empanelment is sought; category of Panel Counsel applied for; whether the applicant has earlier applied for or previously served as Panel Counsel; if yes, details of previous empanelment (court, category, period) |
| 6. Professional Conduct and Declarations | Whether ever convicted of any offence (with details); whether ever disqualified or debarred by any Court or Bar Council; whether any disciplinary proceedings are pending |
| 7. Undertakings | Declaration that the information is true and correct; undertaking to abide by all terms and conditions including the fee structure; and acknowledgment that empanelment is a temporary engagement and may be terminated at any time before the period of three years by the Central Government |
| 8. Enclosures | Signed bio-data; copies of educational certificates; Bar Council Enrolment Certificate; Certificate of Practice (if applicable); experience certificates / supporting documents; self-declarations as required |
7. Disqualification
Under Clause 5, an advocate shall be disqualified for empanelment if he or she:
- Suffers from any disqualification prescribed under Section 24A of the Advocates Act, 1961; and/or
- Has been subject to any professional disqualification by the Bar Council; and/or
- Has previously abused their position as an advocate in a manner detrimental to the interests of the Union of India.
The third ground is the notable addition. It is not tied to a conviction or a Bar Council finding — it is a standalone assessment by the Department of past conduct while acting for, or against, the Union.
8. Tenure, Fees and Performance Review
- Tenure (Clause 6): Empanelment shall be for a period of three years or until further orders, whichever is earlier.
- Performance review: The performance of empanelled advocates shall be reviewed on an annual basis.
- Professional fees (Clause 7): Professional fees will be admissible to the Panel Counsel for the conduct of litigation assigned to them. The fees payable are governed by the fee schedule approved by the Department of Legal Affairs, as amended or revised from time to time (Clause 9.4).
9. De-Empanelment and Resignation
Grounds for De-Empanelment (Clause 8.1)
Advocates may be de-empanelled at any time by the Central Government for:
- Acting against instructions
- Failing to return briefs
- Misappropriation of money (court fees, costs, etc.)
- Contempt of court
- Professional misconduct
- Conviction by a court of law
Resignation and Handover (Clauses 8.2 and 8.3)
- An empanelled advocate may resign by giving at least one month's prior notice in writing to the Central Government.
- During the notice period — and equally upon expiry, termination or non-renewal of empanelment — the advocate must return all original case files, records, briefs and any other property belonging to the Ministry / Department / Organisation to the competent authority or a duly authorised officer.
- Orderly handover of all pending matters must be completed within 15 days from the date of commencement of the notice period, or from the date of expiry, termination or non-renewal, as the case may be.
- The one-month prior notice may be relaxed with the approval of the Competent Authority.
10. Other Terms and Conditions (Clause 9)
- 9.1 No delegation. The empanelled advocate shall not assign, transfer or delegate any case, brief or matter entrusted to them to any other advocate without the prior written approval of the competent authority.
- 9.2 Confidentiality. Strict confidentiality must be maintained with respect to all information, records, documents and matters relating to the Ministry / Department / Organisation.
- 9.3 No guaranteed work. Allocation of cases, briefs or legal matters is entirely at the discretion of the Department of Legal Affairs. Empanelment shall not confer any right or guarantee to receive a minimum number of assignments.
- 9.4 Fees. Governed by the fee schedule approved by the Department, as amended or revised from time to time.
- 9.5 Compliance. The advocate shall comply with all instructions, guidelines and directions issued by the Department from time to time.
- 9.6 Deemed acceptance. By accepting empanelment, the advocate agrees to abide by all terms and conditions, including any amendments or additional conditions that may be prescribed by the Central Government from time to time.
11. Points Worth Noting
(a) The AIBE requirement deserves attention
Clause 1.3 lists AIBE qualification and a Certificate of Practice among the essential qualifications. The All-India Bar Examination applies to advocates enrolled from 2010 onwards, and a substantial number of senior practitioners at the Bar were enrolled well before that. Read strictly, the clause could raise a question for that cohort. It is also worth noting that Annexure-II itself asks for the Certificate of Practice number "if applicable" — a softer formulation than Clause 1.3. Applicants who fall in this category would do well to seek clarification from the Department before assuming either position.
(b) Delhi and Bombay follow their own nomenclature
Most High Courts follow a uniform three-tier structure — DSG (10 years), Senior Panel Counsel (5 years), Central Government Counsel (4 years). Delhi, Bombay (Principal Bench) and Calcutta (Principal Bench) do not. Bombay and Calcutta use a Special Counsel / Senior Counsel Group-I / Group-II / Junior Counsel ladder starting at just 2 years, and Delhi has a Government Pleader category at 2 years. If you are early in practice, these are the entry points that actually exist.
(c) The steepest bars are at the specialised tribunals
Standing Counsel at the National Green Tribunal and before the Telecom Regulatory Authority of India both require 15 years — higher than the 10 years required for a Deputy Solicitor General in a High Court. Special Public Prosecutor / Additional Public Prosecutor before a High Court or Special Court is set at 10 years.
(d) Empanelment is a temporary engagement, not a post
Clause 9.3 and the undertaking in Annexure-II both make this explicit: there is no guaranteed minimum work, and the engagement may be terminated at any time before the three-year period. Empanelment should be understood as eligibility to receive briefs, not as an appointment carrying security of tenure.
(e) Existing panels are protected
Clause 10 preserves all previous empanelments notified by the Department until the completion of their respective tenures. Advocates already on a panel do not need to reapply mid-tenure.
12. Frequently Asked Questions
What is the minimum experience required to become a Central Government panel counsel?
It depends on the forum and category. The lowest entry points are 2 years — Junior Counsel at the Bombay and Calcutta High Courts (Principal Benches) and CAT Mumbai/Kolkata, Government Pleader at the Delhi High Court, and Junior Counsel for arbitration matters in Delhi and NCR. The highest is 15 years for Standing Counsel before the NGT and TRAI.
What is the minimum experience for the Supreme Court panel?
Three years for Group 'C' Panel Counsel, four years for Group 'B', and five years for Group 'A'.
Where do I send the application?
By email to panelcounsel-dla@gov.in, addressed to the Deputy Secretary, Department of Legal Affairs, Ministry of Law and Justice, in the prescribed Annexure-II format.
Is AIBE mandatory for empanelment as panel counsel?
Clause 1.3 of the guidelines lists AIBE qualification and the Certificate of Practice among the essential qualifications. Applicants who did not require the AIBE by virtue of their year of enrolment should clarify their position with the Department before applying.
How long does the empanelment last?
Three years, or until further orders, whichever is earlier — subject to annual performance review and to termination at any time in accordance with the guidelines.
Does empanelment guarantee work?
No. Clause 9.3 states in terms that allocation of cases is entirely at the discretion of the Department and that empanelment confers no right or guarantee to a minimum number of assignments.
Can I apply if I have practised in government service rather than independently?
Yes. Clause 2.3 provides that advocates with previous experience of legal work of 10 years during Government Service may be considered for empanelment based on their area of expertise.
Can a panel counsel send a junior to appear on their behalf?
Not without permission. Clause 9.1 prohibits assigning, transferring or delegating any entrusted case, brief or matter to another advocate without the prior written approval of the competent authority.
Do existing panel counsel need to reapply?
No. Clause 10 provides that all previous empanelments notified by the Department continue to remain valid and in operation until the completion of their respective tenure.
Conclusion
Panel counsel work for the Union has long been one of the more opaque routes in Indian legal practice — widely sought, sparsely documented, and generally learned about through word of mouth. This Office Memorandum changes that, at least on the eligibility side. The experience thresholds are now on paper, forum by forum, and the application format is prescribed rather than improvised.
Two things follow for practitioners. First, the entry points are lower than most assume — 2 to 4 years of practice opens several genuine categories, particularly at the Bombay, Calcutta and Delhi High Courts and in the district judiciary. Second, the rejection standard is unforgiving: an incomplete or wrongly formatted application is summarily rejected, with no opportunity to cure. Download the Annexure-II format, fill it exactly, assemble the six enclosures, and send it once, correctly.
Disclaimer: This post summarises the Office Memorandum bearing No. J-11022/2/2015-Judicial/E.130475 dated 20 August 2026, issued by the Department of Legal Affairs, Ministry of Law and Justice, Government of India, and is published for information and academic discussion only. It does not constitute legal advice. While every effort has been made to reproduce the guidelines and Annexure-I experience chart accurately, readers must rely on the official Office Memorandum alone, which may be amended, clarified or superseded by the Department at any time. Observations offered in Part 11 are the author's own reading and are not an authoritative interpretation of the guidelines. Advocates are advised to verify all particulars — including eligibility, category, experience requirement and the current application procedure — with the Department of Legal Affairs before applying. Lawizard is not affiliated with the Ministry of Law and Justice and plays no role in the empanelment process.
