diff --git a/grpc/src/client/load_balancing/test_utils.rs b/grpc/src/client/load_balancing/test_utils.rs
index e9ab5c9b3..9b4a45ad1 100644
--- a/grpc/src/client/load_balancing/test_utils.rs
+++ b/grpc/src/client/load_balancing/test_utils.rs
@@ -1,21 +1,30 @@
 use crate::client::{
     load_balancing::{
-        ChannelController, ExternalSubchannel, ForwardingSubchannel, LbState, Subchannel,
-        WorkScheduler,
+        ChannelController, ExternalSubchannel, ForwardingSubchannel, LbPolicy, LbPolicyBuilder,
+        LbPolicyOptions, LbState, ParsedJsonLbConfig, Pick, PickResult, Picker, Subchannel,
+        SubchannelState, WorkScheduler,
     },
     name_resolution::Address,
+    service_config::LbConfig,
+    ConnectivityState,
 };
 use crate::service::{Message, Request, Response, Service};
+use futures_util::future::ok;
+use serde::{Deserialize, Serialize};
 use std::{
+    collections::HashMap,
+    error::Error,
     fmt::Display,
     hash::{Hash, Hasher},
     ops::Add,
+    ptr,
     sync::Arc,
 };
 use tokio::{
     sync::{mpsc, Notify},
     task::AbortHandle,
 };
+use tonic::metadata::MetadataMap;
 
 pub(crate) struct EmptyMessage {}
 impl Message for EmptyMessage {}
@@ -127,3 +136,282 @@ impl WorkScheduler for TestWorkScheduler {
         self.tx_events.send(TestEvent::ScheduleWork).unwrap();
     }
 }
+
+pub struct MockBalancerOne {
+    connectivity_state: ConnectivityState,
+    subchannel_list: Option<SubchannelList>,
+}
+
+pub struct MockBalancerTwo {
+    connectivity_state: ConnectivityState,
+    subchannel_list: Option<SubchannelList>,
+}
+
+impl LbPolicy for MockBalancerOne {
+    fn resolver_update(
+        &mut self,
+        update: crate::client::name_resolution::ResolverUpdate,
+        config: Option<&crate::client::service_config::LbConfig>,
+        channel_controller: &mut dyn ChannelController,
+    ) -> Result<(), Box<dyn std::error::Error + Send + Sync>> {
+        if let Ok(ref endpoints) = update.endpoints {
+            let addresses: Vec<_> = endpoints
+                .iter()
+                .flat_map(|ep| ep.addresses.clone())
+                .collect();
+            let scl = SubchannelList::new(&addresses, channel_controller);
+            self.subchannel_list = Some(scl);
+        }
+        channel_controller.update_picker(LbState {
+            connectivity_state: self.connectivity_state,
+            picker: Arc::new(MockPickerOne),
+        });
+        Ok(())
+    }
+
+    fn subchannel_update(
+        &mut self,
+        subchannel: Arc<dyn Subchannel>,
+        state: &super::SubchannelState,
+        channel_controller: &mut dyn ChannelController,
+    ) {
+        if let Some(ref mut scl) = self.subchannel_list {
+            scl.update_subchannel_data(&subchannel, state);
+            channel_controller.update_picker(LbState {
+                connectivity_state: state.connectivity_state,
+                picker: Arc::new(MockPickerOne),
+            });
+        }
+    }
+
+    fn work(&mut self, channel_controller: &mut dyn ChannelController) {
+        todo!()
+    }
+
+    fn exit_idle(&mut self, channel_controller: &mut dyn ChannelController) {
+        todo!()
+    }
+}
+
+
+impl LbPolicy for MockBalancerTwo {
+    fn resolver_update(
+        &mut self,
+        update: crate::client::name_resolution::ResolverUpdate,
+        config: Option<&crate::client::service_config::LbConfig>,
+        channel_controller: &mut dyn ChannelController,
+    ) -> Result<(), Box<dyn std::error::Error + Send + Sync>> {
+        if let Ok(ref endpoints) = update.endpoints {
+            let addresses: Vec<_> = endpoints
+                .iter()
+                .flat_map(|ep| ep.addresses.clone())
+                .collect();
+            let scl = SubchannelList::new(&addresses, channel_controller);
+            self.subchannel_list = Some(scl);
+        }
+        channel_controller.update_picker(LbState {
+            connectivity_state: self.connectivity_state,
+            picker: Arc::new(MockPickerTwo),
+        });
+        Ok(())
+    }
+
+    fn subchannel_update(
+        &mut self,
+        subchannel: Arc<dyn Subchannel>,
+        state: &super::SubchannelState,
+        channel_controller: &mut dyn ChannelController,
+    ) {
+        if let Some(ref mut scl) = self.subchannel_list {
+            channel_controller.update_picker(LbState {
+                connectivity_state: state.connectivity_state,
+                picker: Arc::new(MockPickerTwo),
+            });
+        }
+    }
+
+    fn work(&mut self, channel_controller: &mut dyn ChannelController) {
+        todo!()
+    }
+
+    fn exit_idle(&mut self, channel_controller: &mut dyn ChannelController) {
+        todo!()
+    }
+}
+pub static POLICY_NAME: &str = "mock_policy_one";
+pub static MOCK_POLICY_TWO: &str = "mock_policy_two";
+
+struct MockPolicyOneBuilder {}
+struct MockPolicyTwoBuilder {}
+
+impl LbPolicyBuilder for MockPolicyOneBuilder {
+    fn build(&self, options: LbPolicyOptions) -> Box<dyn LbPolicy> {
+        Box::new(MockBalancerOne {
+            subchannel_list: None,
+            connectivity_state: ConnectivityState::Connecting,
+        })
+    }
+
+    fn name(&self) -> &'static str {
+        POLICY_NAME
+    }
+
+    fn parse_config(
+        &self,
+        config: &ParsedJsonLbConfig,
+    ) -> Result<Option<LbConfig>, Box<dyn Error + Send + Sync>> {
+        let cfg: MockConfig = match config.convert_to() {
+            Ok(c) => c,
+            Err(e) => {
+                return Err(format!("failed to parse JSON config: {}", e).into());
+            }
+        };
+        Ok(Some(LbConfig::new(cfg)))
+    }
+}
+
+#[derive(Serialize, Deserialize, Debug)]
+#[serde(rename_all = "camelCase")]
+pub(super) struct MockConfig {
+    shuffle_address_list: Option<bool>,
+}
+
+impl LbPolicyBuilder for MockPolicyTwoBuilder {
+    fn build(&self, options: LbPolicyOptions) -> Box<dyn LbPolicy> {
+        Box::new(MockBalancerTwo {
+            subchannel_list: None,
+            connectivity_state: ConnectivityState::Connecting,
+        })
+    }
+
+    fn name(&self) -> &'static str {
+        MOCK_POLICY_TWO
+    }
+
+    fn parse_config(
+        &self,
+        config: &ParsedJsonLbConfig,
+    ) -> Result<Option<LbConfig>, Box<dyn Error + Send + Sync>> {
+        let cfg: MockConfig = match config.convert_to() {
+            Ok(c) => c,
+            Err(e) => {
+                return Err(format!("failed to parse JSON config: {}", e).into());
+            }
+        };
+        Ok(Some(LbConfig::new(cfg)))
+    }
+}
+
+#[derive(Clone)]
+struct SubchannelData {
+    state: Option<SubchannelState>,
+    seen_transient_failure: bool,
+}
+
+impl SubchannelData {
+    fn new() -> SubchannelData {
+        SubchannelData {
+            state: None,
+            seen_transient_failure: false,
+        }
+    }
+}
+
+struct SubchannelList {
+    subchannels: HashMap<Arc<dyn Subchannel>, SubchannelData>,
+    ordered_subchannels: Vec<Arc<dyn Subchannel>>,
+    current_idx: usize,
+    num_initial_notifications_seen: usize,
+}
+
+impl SubchannelList {
+    fn new(addresses: &Vec<Address>, channel_controller: &mut dyn ChannelController) -> Self {
+        let mut scl = SubchannelList {
+            subchannels: HashMap::new(),
+            ordered_subchannels: Vec::new(),
+            current_idx: 0,
+            num_initial_notifications_seen: 0,
+        };
+        for address in addresses {
+            let sc = channel_controller.new_subchannel(address);
+            scl.ordered_subchannels.push(sc.clone());
+            scl.subchannels.insert(sc, SubchannelData::new());
+        }
+        scl
+    }
+
+    fn subchannel_data(&self, sc: &Arc<dyn Subchannel>) -> Option<SubchannelData> {
+        self.subchannels.get(sc).cloned()
+    }
+
+    fn contains(&self, sc: &Arc<dyn Subchannel>) -> bool {
+        self.subchannels.contains_key(sc)
+    }
+
+    // Updates internal state of the subchannel with the new state. Callers must
+    // ensure that this method is called only for subchannels in the list.
+    //
+    // Returns old state corresponding to the subchannel, if one exists.
+    fn update_subchannel_data(
+        &mut self,
+        sc: &Arc<dyn Subchannel>,
+        state: &SubchannelState,
+    ) -> Option<SubchannelState> {
+        let sc_data = self.subchannels.get_mut(sc).unwrap();
+
+        // Increment the counter when seeing the first update.
+        if sc_data.state.is_none() {
+            self.num_initial_notifications_seen += 1;
+        }
+
+        let old_state = sc_data.state.clone();
+        sc_data.state = Some(state.clone());
+        match state.connectivity_state {
+            ConnectivityState::Ready => sc_data.seen_transient_failure = false,
+            ConnectivityState::TransientFailure => sc_data.seen_transient_failure = true,
+            _ => {}
+        }
+
+        old_state
+    }
+}
+
+pub struct MockPickerOne;
+pub struct MockPickerTwo;
+
+impl Picker for MockPickerOne {
+    fn pick(&self, _req: &Request) -> PickResult {
+        PickResult::Pick(Pick {
+            subchannel: Arc::new(TestSubchannel::new(
+                Address {
+                    address: "one".to_string(),
+                    ..Default::default()
+                },
+                mpsc::unbounded_channel().0,
+            )),
+            on_complete: None,
+            metadata: MetadataMap::new(),
+        })
+    }
+}
+
+impl Picker for MockPickerTwo {
+    fn pick(&self, _req: &Request) -> PickResult {
+        PickResult::Pick(Pick {
+            subchannel: Arc::new(TestSubchannel::new(
+                Address {
+                    address: "two".to_string(),
+                    ..Default::default()
+                },
+                mpsc::unbounded_channel().0,
+            )),
+            on_complete: None,
+            metadata: MetadataMap::new(),
+        })
+    }
+}
+
+pub fn reg() {
+    super::GLOBAL_LB_REGISTRY.add_builder(MockPolicyOneBuilder {});
+    super::GLOBAL_LB_REGISTRY.add_builder(MockPolicyTwoBuilder {});
+}