"Legal aid, simply put, refers to the provision of free or affordable legal services to individuals who lack the economic or social capacity to access justice through conventional means. It rests on the idea that equality before the law must be real and not symbolic. Legal aid helps ensure that rights are not confined to those who can afford legal representation, but are available to all, including the poor and marginalized. In this sense, it plays a crucial role in making legal protections meaningful. In India, the concept of legal aid is closely tied to the vision expressed in the Preamble of the Constitution, which promises justice be it social, economic, and/or political, along with equality of status and opportunity, and affirms the secular character of the State. Social justice, in this context, requires the State to reduce structural inequalities and protect vulnerable groups from exclusion and exploitation. Legal aid contributes directly to this goal by enabling disadvantaged individuals to assert their rights and seek remedies against injustice. Political justice, on the other hand, is concerned with ensuring meaningful participation in democratic processes and equal access to institutions of governance. Without access to legal advice and representation, many citizens would find it difficult to exercise these rights effectively, whether in matters of voting, representation, or challenging arbitrary state action. The commitment to secularism further strengthens the case for legal aid, as it demands that the legal system remain neutral and accessible to all individuals irrespective of religion, ensuring that justice is administered without discrimination or bias. This commitment was given a clear constitutional expression through the insertion of Article 39A by the 42nd Constitutional Amendment Act, 1976. Article 39A directs the State to promote justice on the basis of equal opportunity and to provide free legal aid so that no individual is denied access to justice due to economic or other disadvantages. While the legacy of the 42nd Amendment remains contested because of its enactment during the Emergency period from 1975 to 1977, Article 39A is arguably one of its most constructive and enduring contributions. It firmly situates access to justice within the Directive Principles of State Policy. Over time, the Judiciary has further strengthened this framework by linking legal aid to Article 21 of the Constitution, which guarantees the right to life and personal liberty. Courts have interpreted this right to include fair legal procedures and access to legal representation, thereby reinforcing the centrality of legal aid in a just legal system. On the whole these developments show that legal aid in India is not merely a matter of policy, but a constitutional responsibility that advances the broader ideals of justice, equality, secularism, and fairness envisioned in the Preamble."
-Supreme Court's order dated April 16, 2026 in Shankar Mahto vs. The State of Bihar (2026)
"we consider it appropriate to have views of the National Legal Services Authority (NALSA) for laying down a step by step procedure for ensuring intimation of an adverse order/judgment to the accused; seeking whether he intends to file an appeal; informing the accused of his right to legal aid, and taking steps to ensure that an appeal is filed. It is also necessary to ensure a monitoring mechanism for following whether due intimation and certification is being done."
-Supreme Court's order dated October 24, 2017 in Shankar Mahto vs. The State of Bihar (2017)
"We find that there is an usual inordinate delay in this matter in which legal aid is involved. Such delay has been noticed in several cases where the legal aid authorities are involved. It is important to find out where such inordinate delays occur and to issue directions for preventing such delay."
-Supreme Court's order dated May 5, 2017 in Shankar Mahto vs. The State of Bihar (2017)
In Shankar Mahto vs. The State of Bihar Through Home Department (2026), Supreme Court's Division Bench Justices Sanjay Karol and N. K. Singh passed an order dated May 4, 2026, wherein, it wrote:"For ensuring compliance with the directions issued vide judgment dated 16th April, 2026, Ms. Vibha Dutta Makhija, learned senior counsel (Amicus Curiae) would prepare and circulate an implementation format for necessary compliance.
2. Let the needful be done within a period of one week from today. 3. List on 25.05.2026."
Earlier, the same bench had passed a 29-page long order dated April 16, 2026, wherein, it condoned the delay. The order wass authored by Justice Sanjay Karol. While dealing with an appeal by the appellant, who had challenged the judgment of conviction and sentence to death awarded to him and confirmed in terms of Criminal Appeal No. 425 of 2002 passed by Patna High Court, as per judgment dated February 20, 2014, the Supreme Court in terms of its order dated May 5, 2017 noticed that inordinate delay was affecting matters in which legal aid was involved. It made an effort to find out the cause for the same and issued necessary directions.
Its order dated January 19, 2021 reads: “We have noticed that in the special leave petitions filed by Supreme Court Legal Services Committee (SCLSC) on behalf of the convicts, there is an inordinate delay which becomes difficult to condone. Needless to say, the situation brings about a lack of even handedness
in dealing with matters of condonation of delay. We see no reason why these delays should continue to occur particularly with the availability of tools provided by information and communication technology which are easily available. In this matter, Ms. Vibha Datta Makhija, learned Amicus Curiae, has submitted a report dated 15.01.2021 in consultation with the SCLSC on measures to curb the delay. Valuable as that report is, we consider it appropriate to constitute a Committee comprising of certain experts who would examine all the suggestions and responses which may be received by it from the High Courts as well as the other stakeholders. In view of the other suggestions (Annexure B) by NALSA and the response submitted by various High Courts, we find it appropriate to constitute a Committee comprising of Secretary (Ministry of Home Affairs), Government of India, Director General, National Informatics Centre, Member (Process), E-Committee, Supreme Court of India and Member Secretary, NALSA. The Committee shall examine the aforementioned suggestions/responses and submit a report with regard to digitization, translation and electronic transmission of records to facilitate access to justice and timely filing of appeals/SLPs by the convicts, by utilizing the Information and Communication Technology tools, within four weeks. We have also gone through the Module and the Note dated 16.10.2019 as per the report for timely filing of appeals/SLPs of convicts though the Legal Services Institutions. We therefore direct the High Courts to submit their responses to the Committee through their Registrars General within two weeks. The Committee shall submit its report within two weeks’ thereafter. The Secretary General of this Court shall coordinate meetings of the Committee....”
By order dated May 23, 2025, certain questions were put to the Secretary of the SCLSC, and he was required to file an affidavit in that regard. The questions are as follows :-“i. What is the current pendency upto 30.05.2025, i.e. out of the total requests received by the SCLSC so far. How many cases have been filed, and how many are under consideration? ii. What has been the year wise average days of delay in filing petitions of applicants under each category of applicants as provided under Section 12 of the Legal Services Authorities Act, 1987, after Operation Cleanup in the year 2018? iii. Is there adequate infrastructure and staff to deal with the load of SCLSC? iv. What are the reasons for delay, and how have those delays been addressed? v. What is the status of online connectivity between the SCLSC with other stakeholders like High Courts, Prisons, Panel Counsels etc?”
In response to these queries, the Supreme Court Legal Services Committee, submitted in affidavit dated July 14, 2025. In response to direction (i) i.e., “what is the current pendency, upto May 30, 2025, for the total requests received by the SCLSC, how many cases have been filed and how many cases are under consideration”, the data taken from the SCLSC website portal revealed that a total of 4062 legal aid applications/requests were received in 2024, out of which 1972 cases were assigned to Panel Advocates and in 906 cases legal aid was refused/closed. There was no legal aid application pending with SCLSC. During January 1, 2025-May 30, 2025, a total of 3305 legal aid applications/requests were received. Out of which 1819 cases were assigned to Panel Advocates and in 476 cases legal aid was refused/closed There were 688 cases in which legal aid application were pending with SCLSC. The data of total cases assigned to the Panel Advocates for the period between Jnauary 1, 2025 to May 30, 2025 is as per the information available on the SCLSC website portal and manual record as the data of newly increased panel advocates was yet to be updated. As per information available on the SCLSC website portal is 745 and manual record is 1074. The updated data of the actual cases filed/pending before the Supreme Court was not available on the SCLSC website portal as there was no official intimation or updating on the login IDs by the panel advocates post assignment.
In response to directions/query (ii), i.e. the average year wise delay in filing petitions of applicants under the categories enumerated under Section 12 of the Legal Services Authorities Act, 1987, after the Operation Cleanup in the year 2018, it was submitted that the feature providing for the information regarding the delay caused in the filing of petition is not available on the SCLSC website portal.
The procedure for grant of legal aid was brought to the knowledge of the Supreme Court which is as under:
(a) The SCLSC has made provisions for receiving the applications from the persons seeking legal aid services, both in physical form and through the SCLSC online portal (sclsc.gov.in).
(b) The legal aid application can also be submitted through:
(i) the High Court Legal Aid Services Committee (HCLSC) or;
(ii) the district legal aid authorities or;
(iii) jail authorities or;
(iv) NALSA Portal or;
(v) Directly from the litigant.
There is a mandatory check list of documents which are necessary for the purpose of consideration of grant of legal aid before approaching the Supreme Court. The persons seeking legal aid can seek assistance of the HCLSC for completion of documents. On completion of documents, the cases are then referred to the screening committees, consisting of Senior Advocates, to render an opinion on the merits of
the applications. The cases of applicants under judicial custody are directly assigned to the panel advocates.
On November 29, 2014, under the Chairmanship of Justice T. S. Thakur, Judge, Supreme Court of India & Executive Chairman, NALSA a resolution was passed which reads: “3. All matters that are required to be filed before the Supreme Court be processed and prepared by the High Court Legal Services Committee, including translations of documents and that SLSAs transfer adequate funds to High Court Legal Services Committees for preparation and translation of documents before dispatch to the Supreme Court Legal Services Committee for filing.”
In terms of the circular dated April 13, 2015 issued by the SCLSC adopting the circular issued by NALSA dated February 19, 2015), all legal aid cases which are to be filed before the Supreme Court, are to be prepared and processed by the HCLSC, before they are dispatched to SCLSC for filing.
On completion of documents the matters which are civil in nature or criminal in nature confined to the cases pertaining to the complainant, quashing, transfer, etc. are referred to the Screening Committee consisting of Senior Advocates to render opinion on the merits of legal aid applications. The cases recommended by the Screening Committee are processed further. The cases of persons under judicial custody/prison are directly assigned to the panel advocate for filing the matter before the Supreme Court. The assignment letter assigning the case to the panel advocates specifically stipulates to file the case within 15 days. There is a Login ID of each Panel Advocate and the legal aid applications along with documents which are scanned and indexed are also available in the respective Login IDs immediately on assignment. The panel advocates and the legal aid applicant can communicate directly on the address and
contact number of both given in the assignment letter. However, there is no timely official communication by the panel advocate regarding the filing of the case before the Supreme Court or the orders passed by the Supreme Court till the submission of bill and return of documents by Panel Advocate to SCLSC after disposal of the matter.
In response to directions (iii), i.e., availability of adequate infrastructure and staff to deal with the load of SCLSC, it was submitted that SCLSC is well equipped with infrastructure and staff.
In response to directions (iv), i.e., the reasons for delay, and how have those been addressed, it is submitted that the reasons for delay are broadly identified as under:
(a) Submission of legal aid application after delay by the legal aid applicant;
(b) submission of incomplete documents by the legal aid applicant;
(c) delay caused by the panel lawyers in filing the petitioner after assignments of the matter.
(d) Translations of vernacular documents, custody certificate to be obtained from jailors, retrieving records from the high court in case of appeals, collating information from the litigant/ or next friend in case of death of parties are some of the causes for delay.
There are various methods adopted by SCLSC to curb the delays which are as under:-
There was a massive campaign initiated in January 2025 (Mission Mode). vide letter dated January 10, 2025, the Director General of Prisons and Member Secretaries of High Court Legal Services Committees and the State Legal Services Authorities were communicated with the decisions of the Chairman, SCLSC requesting to collect the data with respect to:
▪ Matters in which High Court has upheld the conviction but inmate has not yet filed appeal.
▪ Matters is which the prisoners have remain in jail for half/more than half of sentence period and bail prayer rejected by the High Court but inmate has not yet moved to Supreme Court.
▪ Prisoners whose remission/pre-mature release has been rejected by the state sentence review board and writ against that order has also been rejected by the High Court but inmate has not yet moved Supreme Court.
It was requested to send the details of prison inmates covered under aforesaid three categories and willing to avail legal services of Supreme Court Legal Services Committee. Thereafter, reminders were sent on February 6, 2025 and February 19, 2025 to the authorities for furnishing the requisite data in pursuance of the MISSION MODE. Further, a letter dated March 5, 2025 was sent to the Authorities to provide complete documents with respect to the inmates whose names were mentioned in the data collected and who were willing to avail legal aid services.
A video conference chaired by Justice Suryakant, the then Chairman of SCLSC was held on April 1, 2025 with the Chairpersons of all the State Legal Services Authorities and High Court Legal Services Committees regarding MISSION MODE. The letter dated April 5, 2025 was sent to all the Concerned Authorities requesting to expedite furnishing of the documents. Then another letter dated April 5, 2025 was sent to all the Concerned Authorities in pursuance of the Video Conferencing dated April 1, 2025 to constitute a team of 5 Panel Advocates for visiting the jails to create awareness among the inmates and submit a stage wise report to SCLSC. The letter dated May 3, 2025 was sent to the Registrar Generals of all the High Court communicating the virtual interaction scheduled on May 5, 2025 at 5.30 P.M. of the then Chairman, SCLSC with the Chief Justices of High Courts, Executive Chairperson of SLSAs and HCLSCs.
It was submitted that, after the successful implementation of Mission Mode, SCLSC is now receiving legal aid applications along with documents from the various Legal Services Authorities to provide legal aid to the jail inmates. The panel of Advocates in the category of AOR, Non-AOR and Arguing Counsel was reconstituted by expanding the panel and additional advocates have been taken on the panel and the number is increased. An additional category of Assisting Counsels was introduced who will provide assistance to the AORs, Non AORs and Arguing Counsels to ensure timely filing and assistance in preparation of the cases. The number of the Screening Committee increased for expeditious grant of legal aid. In response to directions (v), i.e. the status of online connectivity between SCLSC is as under:
• The facility of online connectivity through video conferencing and intercommunication with the High Court Legal Services Committee, Prisons, Panel Counsel, etc. is available on the SCLSC web portal i.e.,
sclsc.gov.in.
• Separate Login IDs are allotted to the HCLSCs, SLSAs, DLSAs, TLSAs, Prisons, Panel Counsels and any communication is immediately is shown in the respective Login IDs.
• The stakeholders including the legal aid applicants can apply for counseling/meeting through video conferencing and on receipt of such application a date and time is given on which the said counseling/meeting can be facilitated.
The status of the legal aid applications submitted by the legal aid applicant can be checked on the SCLSC web portal.”
The order reads: The Supreme Court Legal Service Committee, sought directions from this Court in the following terms as recorded in order dated September 1, 2025. There appears to be some laxity on part of the authorities to furnish affidavits in terms of our order which anguish us (order dt 16.09.2025 to be picked) and as such we had requested the Learned Amicus Curiae to interact with the Chairpersons of the Legal Service Authorities and furnish the requisite information in tabular form."
The order dated September 1, 2025 reads:
“I. For High Court Legal Services Committee (HCLSC) a. In cases where the applicant has directly approached the Supreme Court Legal Services Committee (SCLSC), the HCLSC must transmit the complete Paperbook filed before the High Court and the Courts below within seven days of the requisition from SCLSC.
b. In cases where application for legal aid is forwarded from the HCLSC to SCLSC when the applicant has approached the HCLSC, the HCLSC should ensure that the complete Paperbook of the High Court and Courts below is accompanied along with the forwarding letter.
c. In cases where the matter referred to is not a criminal matter and/or the applicant is not in judicial custody, the HCLSC must forward the duly signed/identified vakalatnama and attested affidavit within seven days of receipt of the same from the SCLSC.
d. The HCLSC shall also send the soft scanned copies of all the documents to SCLSC.
In cases where the legal aid applicant is in judicial custody and approaches SCLSC through HCLSC, the Vakalatnama and custody certificate (with complete particulars) duly attested and signed by the Jail Authority/Jail Superintendent must be sent (digital and hard copy) to HCLSC within three days from the receipt of request received from the Prison in mate. The HCLSC shall send the Paperbook, true copy of order passed by the High Court and the lower courts records, alongwith documents received from the Jail (Vakalatnama, Custody Certificate and duly attested affidavit hard as well as scanned copy) to SCLSC within seven days from the date of receipt of request from SCLSC.
As and when the Advocate or the SCLSC sends a request for any additional document, the same must be sent to the SCLSC within seven days from the request received in this regard.
Order dated September 16, 2025 reads: “We express our anguish in the manner in which the statutory authorities have not chosen to respond to the orders passed by this Court. 2. Under these circumstances, we request Ms. Vibha Dutta Makhija, learned amicus curiae, to personally get in touch with the Chairman
of all the State Legal Services Authorities with a further request to them, ensuring necessary compliance of the order before the next date of hearing.”
Supreme Court's order underlined that the development of the concept of legal aid through judicial pronouncements is important to note for the purposes of the directions issued in this Judgment. At the outset, it be noted that in Sunil Batra vs. Delhi Administration 2 (1978) 4 SCC 494 held that prisoners do not surrender their fundamental rights at the prison gate. In that context, let us proceed further. The most recognizable name in the line of cases of this Court, furthering the Directive Principles of State Policy as mentioned in Article 39A of the Constitution of India, is Hussainara Khatoon vs. State of Bihar (1980) 1 SCC 81, in which the Court held that the speedy trial to be a facet of Article 21 and free legal aid is an essential component of fair, just and reasonable procedure in law. It was emphasized that the State had an obligation to ensure access to justice and that the Court was required to take steps to provide legal representation and expedite criminal trials. Even before this, in the year 1978, this Court in Madhav Hayawadanrao Hoskot vs. State of Maharashtra (1978) 3 SCC 544 held that the right to counsel was a fundamental right traceable to Article 21. We take note of another case from the same year i.e., Khatri (II) vs. State of Bihar (1981) 1 SCC 627 in which it was held that free legal aid is a fundamental right and that it attaches from the moment the accused is first produced before a Magistrate and not only at the commencement of the trial. Further, it was held that the right to legal aid does not depend on a request to that effect from the accused, thereby placing a positive obligation on the State to provide the same. Most recently, this Court in Suhas Chakma vs. Union of India 2024 INSC 813 speaking through K.V. Viswanathan, J. extensively dealt with this issue of systemic deficiency in access to free legal aid for prisoners, particularly the under trials.
Supreme Court concluded: "10. We have given careful consideration to the SOP and the proposed directions. We are of the considered view that this SOP is a result of in depth deliberations conducted by the “stakeholders” or “major players in the game”, that being the case the same deserves consideration by all the High Courts on the administrative side, so that, necessary changes to the procedure in place, can be
adopted in furtherance of the aims of the SOP. As such, it is directed that a copy of this order be placed before the learned Chief Justice of the High Court, for necessary consideration and appropriate action at their end.
11. While implementation of the entire breadth of the SOP is left to the wisdom of the High Courts, we do hereby direct that the timelines mentioned under Heading 5 of the SOP shall be treated as binding. This is for the purposes of streamlining the filing of appeals in cases where the respective Legal Services Committees are required to take lead. This, it is our hope, will go a long way in addressing the structural gaps that had prompted this Court to take forward the present proceedings apart from dealing with the death reference from which they emanated.
12. Regarding the issue of translators, while we do not issue any directions, we may only observe that the poor quality of translation has engaged the attention of this Court, recently, on quite of few occasions, indicating that some sort of structural change is necessitated in this regard. The respective High Court may
seriously examine and take decision on paragraph 6 of the SOP within a time bound period, i.e., not more than four weeks.
13. The aspect of monitoring and accountability as delineated in paragraph 8 of the SOP ensures that there is effective monitoring and ‘keeping tabs’ on the functioning and processes to be undertaken by the Legal Services Committees of the respective High Courts. Let the necessary constitution of the committee be carried out at the earliest. The Standing Committee/Administrative Committee, may appoint the members either by itself or after consulting the Full Court, as may be warranted. The Member Secretary of HCLSC shall be an ex-officio member. In so far as the constitution of the committee for this Court is concerned, the Member Secretary, SCLSC is directed to bring this order to the notice of the learned Executive Chairman, SCLSC and solicit orders thereon as may be deemed suitable by such authority.
14. On the aspect of coordination with jail authorities and inter-agency communication, the suggestions made in the SOP (para 9) shall be implemented forthwith as far as practicable. The last aspect delineated upon therein i.e., delay explanation (para 13-SOP), in our view, is a necessary change that will enable the tabling of the actual time taken in the process of filing the appeal. It is as such directed that the said format shall be incorporated forthwith into the necessary documentation. We hereby grant two weeks from the date of this order for it to be incorporated after which any appeal filed by HCLSC shall necessarily contain the same.
15. Suggestions ‘b’ and ‘d’ of the learned amicus curiae reproduced in paragraph 9 of this order shall be read as directions issued by this Court.
16. The Registrar (Judicial) is directed to circulate a copy of this order to the Registrars General of all the High Courts, who shall ensure a copy of the same is placed before the Learned Chief Justices and the Executive Chairpersons of the State Legal Service Committees, for necessary follow up action and requisite changes as may be required.
In its order Court had directed that the status report/compliance report be filed by all concerned institutions including the National Informatics Centre, by April 30, 2026. The matter was fixed for further consideration on May 4, 2026.
Earlier, in Shankar Mahto vs. The State of Bihar (2014), Justice Akhilesh Chandra of Patna High Court had delivered a 4-page long judgement dated February 20, 2014, wherein, he concluded:"6. In such type of incident with a female, the statement of the victim itself is sufficient to establish the guilt even without any corroboration unless and until anything strongly otherwise is shown, but as stated, in the case in hand, there appears nothing to disbelieve her. Consequently, finding no reason to interfere with the judgment of conviction and order of sentence, as recorded by the trial court, the appeal is hereby dismissed. 7. The solitary appellant is required to serve the remaining period of sentence and the appellant is on bail, hence, his bail bond is cancelled. 8. The learned trial court will take due steps for taking the appellant into custody."
The solitary appellant had preferred the appeal against his conviction for the offence punishable under Section 376 of the Indian Penal Code and sentence to undergo rigorous imprisonment for seven years and also to pay a fine of Rs. 2,000/, as awarded by Sessions Judge, Begusarai vide judgment of conviction and order of sentence respectively dated 20th & 23rd Day of July, 2002 in Sessions Case No. 169 of 1991 arising out of Sahebpur Kamal P.S.
The prosecution case was based on the Fardbeyan of P.W.1 recorded on 22nd September, 1990 at 10.30 hours is that in the previous evening at about 6.00 p.m. while she was visiting her field found the appellant getting crops grazing by his animals, which was object, but bluntly refused by the appellant to get the animals out from there. However, while the prosecutrix was returning she was got hold from behind by him (appellant), who not only slapped her but also subjected to rape. She could be released only when on alarm raised other co-villager were found coming. She on return intimated the incident to her husband (P.W.6) and, thereafter, on the following day got the case was instituted.
The judgement recorded that the appellant had tried his best to obstruct smooth proceeding of the trial on 3 - 4 occasions and he misused the privilege of bail for substantial period. However, the prosecution could be able to examine altogether eight witnesses and produced documentary evidence like Injury Report, F.I.R. and Case diary of S. Kamal 103/90. Out of the total eight prosecution witnesses examined, three prosecution witness, P.W.2, Umesh Sao, P.W.3, Sone Lal Sah and P.W.4, Prabhu Sah, were declared hostile, out of whom, P.W.3 and P.W.4 could be examined three years after examination of P.W.1 & P.W.2. P.W.5, Sita Ram Yadav, at whose field the offence was committed, had come to state about the condition of crops subsequent to incident. He had heard about the incident and is not an eye-witness, but whatever he said about the physical features that remain intact.
P.W.6, namely, Rajendra Sao, was the husband of the prosecutrix, not an eye-witness, got such information through his wife (P.W.1) and denied the suggestion of false implication at the instance of one Sitaram Yadav with whom the appellant was at inimical terms. P.W.7, Dr. Baidehi Kumari, examined the prosecutrix but found no injury, proved her report, Exhibit.1. P.W.8, Bhuneshwar Yadav, was a formal witness, proved Exhibits 2 and 3.
The solitary witness, the Prosecutrix, P.W.1, namely, Soni Devi, who stated the prosecution version and from her entire statement nothing appeared to disbelieve her. Her statement, stating the miseries faced by her at the hands of appellant remained intact.