diff --git a/apps/p4runtime-test/src/test/java/org/onosproject/p4runtime/test/P4RuntimeTest.java b/apps/p4runtime-test/src/test/java/org/onosproject/p4runtime/test/P4RuntimeTest.java
index 6c320ad..47381bc 100644
--- a/apps/p4runtime-test/src/test/java/org/onosproject/p4runtime/test/P4RuntimeTest.java
+++ b/apps/p4runtime-test/src/test/java/org/onosproject/p4runtime/test/P4RuntimeTest.java
@@ -269,7 +269,8 @@
                 .withId(groupId)
                 .addMembers(members)
                 .build();
-        CompletableFuture<Boolean> success = client.writeActionGroupMembers(actionGroup,
+        CompletableFuture<Boolean> success = client.writeActionGroupMembers(actionGroup.actionProfileId(),
+                                                                            actionGroup.members(),
                                                                             P4RuntimeClient.WriteOperationType.INSERT,
                                                                             bmv2DefaultPipeconf);
         assert (success.get());
diff --git a/core/api/src/main/java/org/onosproject/net/pi/runtime/PiActionGroup.java b/core/api/src/main/java/org/onosproject/net/pi/runtime/PiActionGroup.java
index dd90f9b..a22e039 100644
--- a/core/api/src/main/java/org/onosproject/net/pi/runtime/PiActionGroup.java
+++ b/core/api/src/main/java/org/onosproject/net/pi/runtime/PiActionGroup.java
@@ -26,7 +26,6 @@
 import java.util.Collection;
 import java.util.Map;
 
-import static com.google.common.base.Preconditions.checkArgument;
 import static com.google.common.base.Preconditions.checkNotNull;
 
 /**
@@ -179,7 +178,6 @@
          */
         public PiActionGroup build() {
             checkNotNull(id);
-            checkArgument(!members.isEmpty(), "Members cannot be empty");
             checkNotNull(piActionProfileId);
             return new PiActionGroup(id, ImmutableSet.copyOf(members.values()),
                                      piActionProfileId);
diff --git a/drivers/p4runtime/src/main/java/org/onosproject/drivers/p4runtime/P4RuntimeGroupProgrammable.java b/drivers/p4runtime/src/main/java/org/onosproject/drivers/p4runtime/P4RuntimeGroupProgrammable.java
index 31ee45b..125cd8a 100644
--- a/drivers/p4runtime/src/main/java/org/onosproject/drivers/p4runtime/P4RuntimeGroupProgrammable.java
+++ b/drivers/p4runtime/src/main/java/org/onosproject/drivers/p4runtime/P4RuntimeGroupProgrammable.java
@@ -17,6 +17,7 @@
 package org.onosproject.drivers.p4runtime;
 
 import com.google.common.collect.Maps;
+import com.google.common.collect.Sets;
 import org.onosproject.drivers.p4runtime.mirror.P4RuntimeGroupMirror;
 import org.onosproject.drivers.p4runtime.mirror.TimedEntry;
 import org.onosproject.net.DeviceId;
@@ -30,6 +31,7 @@
 import org.onosproject.net.pi.model.PiActionProfileModel;
 import org.onosproject.net.pi.runtime.PiActionGroup;
 import org.onosproject.net.pi.runtime.PiActionGroupHandle;
+import org.onosproject.net.pi.runtime.PiActionGroupMember;
 import org.onosproject.net.pi.service.PiGroupTranslator;
 import org.onosproject.net.pi.service.PiTranslatedEntity;
 import org.onosproject.net.pi.service.PiTranslationException;
@@ -48,6 +50,7 @@
 
 import static org.onosproject.p4runtime.api.P4RuntimeClient.WriteOperationType.DELETE;
 import static org.onosproject.p4runtime.api.P4RuntimeClient.WriteOperationType.INSERT;
+import static org.onosproject.p4runtime.api.P4RuntimeClient.WriteOperationType.MODIFY;
 import static org.slf4j.LoggerFactory.getLogger;
 
 /**
@@ -57,14 +60,11 @@
         extends AbstractP4RuntimeHandlerBehaviour
         implements GroupProgrammable {
 
-    private enum Operation {
-        APPLY, REMOVE
-    }
-
     private static final String ACT_GRP_MEMS_STR = "action group members";
     private static final String DELETE_STR = "delete";
     private static final String ACT_GRP_STR = "action group";
     private static final String INSERT_STR = "insert";
+    private static final String MODIFY_STR = "modify";
 
     private static final Logger log = getLogger(P4RuntimeGroupProgrammable.class);
 
@@ -143,21 +143,8 @@
         final Lock lock = GROUP_LOCKS.computeIfAbsent(handle, k -> new ReentrantLock());
         lock.lock();
         try {
-            final Operation operation;
-            switch (groupOp.opType()) {
-                case ADD:
-                case MODIFY:
-                    operation = Operation.APPLY;
-                    break;
-                case DELETE:
-                    operation = Operation.REMOVE;
-                    break;
-                default:
-                    log.warn("Group operation {} not supported", groupOp.opType());
-                    return;
-            }
             processPiGroup(handle, piGroup,
-                           groupOnDevice, pdGroup, operation);
+                           groupOnDevice, pdGroup, groupOp.opType());
         } finally {
             lock.unlock();
         }
@@ -166,37 +153,103 @@
     private void processPiGroup(PiActionGroupHandle handle,
                                 PiActionGroup groupToApply,
                                 PiActionGroup groupOnDevice,
-                                Group pdGroup, Operation operation) {
-        if (operation == Operation.APPLY) {
+                                Group pdGroup, GroupOperation.Type operationType) {
+        if (operationType == GroupOperation.Type.ADD) {
             if (groupOnDevice != null) {
-                if (checkMirrorBeforeUpdate
-                        && groupOnDevice.equals(groupToApply)) {
-                    // Group on device has the same members, ignore operation.
-                    return;
-                }
-                // Remove before adding it.
-                processPiGroup(handle, groupToApply, groupOnDevice,
-                               pdGroup, Operation.REMOVE);
+                log.warn("Unable to add group {} since group already on device {}",
+                         groupToApply.id(), deviceId);
+                log.debug("To apply: {}", groupToApply);
+                log.debug("On device: {}", groupOnDevice);
+                return;
             }
+
             if (writeGroupToDevice(groupToApply)) {
                 groupMirror.put(handle, groupToApply);
                 translator.learn(handle, new PiTranslatedEntity<>(
                         pdGroup, groupToApply, handle));
             }
+        } else if (operationType == GroupOperation.Type.MODIFY) {
+            if (groupOnDevice == null) {
+                log.warn("Group {} does not exists on device {}, can not modify it",
+                         groupToApply.id(), deviceId);
+                return;
+            }
+            if (checkMirrorBeforeUpdate
+                    && groupOnDevice.equals(groupToApply)) {
+                // Group on device has the same members, ignore operation.
+                return;
+            }
+            if (modifyGroupFromDevice(groupToApply, groupOnDevice)) {
+                groupMirror.put(handle, groupToApply);
+                translator.learn(handle,
+                                 new PiTranslatedEntity<>(pdGroup, groupToApply, handle));
+            }
         } else {
-            if (deleteGroupFromDevice(groupToApply)) {
+            if (groupOnDevice == null) {
+                log.warn("Unable to remove group {} from device {} since it does" +
+                                 "not exists on device.", groupToApply.id(), deviceId);
+                return;
+            }
+            if (deleteGroupFromDevice(groupOnDevice)) {
                 groupMirror.remove(handle);
                 translator.forget(handle);
             }
         }
     }
 
+    private boolean modifyGroupFromDevice(PiActionGroup groupToApply, PiActionGroup groupOnDevice) {
+        PiActionProfileId groupProfileId = groupToApply.actionProfileId();
+        Collection<PiActionGroupMember> membersToRemove = Sets.newHashSet(groupOnDevice.members());
+        membersToRemove.removeAll(groupToApply.members());
+        Collection<PiActionGroupMember> membersToAdd = Sets.newHashSet(groupToApply.members());
+        membersToAdd.removeAll(groupOnDevice.members());
+
+        if (!membersToAdd.isEmpty() &&
+                !completeFuture(client.writeActionGroupMembers(groupProfileId, membersToAdd, INSERT, pipeconf),
+                                ACT_GRP_MEMS_STR, INSERT_STR)) {
+            // remove what we added
+            completeFuture(client.writeActionGroupMembers(groupProfileId, membersToAdd, DELETE, pipeconf),
+                           ACT_GRP_MEMS_STR, INSERT_STR);
+            return false;
+        }
+
+        if (!completeFuture(client.writeActionGroup(groupToApply, MODIFY, pipeconf),
+                            ACT_GRP_STR, MODIFY_STR)) {
+            // recover group information
+            completeFuture(client.writeActionGroup(groupOnDevice, MODIFY, pipeconf),
+                           ACT_GRP_STR, MODIFY_STR);
+            // remove what we added
+            completeFuture(client.writeActionGroupMembers(groupProfileId, membersToAdd, DELETE, pipeconf),
+                           ACT_GRP_MEMS_STR, INSERT_STR);
+            return false;
+        }
+
+        if (!membersToRemove.isEmpty() &&
+                !completeFuture(client.writeActionGroupMembers(groupProfileId, membersToRemove, DELETE, pipeconf),
+                               ACT_GRP_MEMS_STR, DELETE_STR)) {
+            // add what we removed
+            completeFuture(client.writeActionGroupMembers(groupProfileId, membersToRemove, INSERT, pipeconf),
+                           ACT_GRP_MEMS_STR, DELETE_STR);
+            // recover group information
+            completeFuture(client.writeActionGroup(groupOnDevice, MODIFY, pipeconf),
+                           ACT_GRP_STR, MODIFY_STR);
+            // remove what we added
+            completeFuture(client.writeActionGroupMembers(groupProfileId, membersToAdd, DELETE, pipeconf),
+                           ACT_GRP_MEMS_STR, INSERT_STR);
+            return false;
+        }
+
+        return true;
+    }
+
     private boolean writeGroupToDevice(PiActionGroup groupToApply) {
         // First insert members, then group.
         // The operation is deemed successful if both operations are successful.
         // FIXME: add transactional semantics, i.e. remove members if group fails.
         final boolean membersSuccess = completeFuture(
-                client.writeActionGroupMembers(groupToApply, INSERT, pipeconf),
+                client.writeActionGroupMembers(groupToApply.actionProfileId(),
+                                               groupToApply.members(),
+                                               INSERT, pipeconf),
                 ACT_GRP_MEMS_STR, INSERT_STR);
         return membersSuccess && completeFuture(
                 client.writeActionGroup(groupToApply, INSERT, pipeconf),
@@ -210,7 +263,9 @@
                 client.writeActionGroup(piActionGroup, DELETE, pipeconf),
                 ACT_GRP_STR, DELETE_STR);
         return groupSuccess && completeFuture(
-                client.writeActionGroupMembers(piActionGroup, DELETE, pipeconf),
+                client.writeActionGroupMembers(piActionGroup.actionProfileId(),
+                                               piActionGroup.members(),
+                                               DELETE, pipeconf),
                 ACT_GRP_MEMS_STR, DELETE_STR);
     }
 
diff --git a/protocols/p4runtime/api/src/main/java/org/onosproject/p4runtime/api/P4RuntimeClient.java b/protocols/p4runtime/api/src/main/java/org/onosproject/p4runtime/api/P4RuntimeClient.java
index 67f9fcf..0bf61f2 100644
--- a/protocols/p4runtime/api/src/main/java/org/onosproject/p4runtime/api/P4RuntimeClient.java
+++ b/protocols/p4runtime/api/src/main/java/org/onosproject/p4runtime/api/P4RuntimeClient.java
@@ -23,6 +23,7 @@
 import org.onosproject.net.pi.model.PiPipeconf;
 import org.onosproject.net.pi.model.PiTableId;
 import org.onosproject.net.pi.runtime.PiActionGroup;
+import org.onosproject.net.pi.runtime.PiActionGroupMember;
 import org.onosproject.net.pi.runtime.PiCounterCellData;
 import org.onosproject.net.pi.runtime.PiCounterCellId;
 import org.onosproject.net.pi.runtime.PiMeterCellConfig;
@@ -123,12 +124,14 @@
     /**
      * Performs the given write operation for the given action group members and pipeconf.
      *
-     * @param group    action group
+     * @param profileId  action group profile ID
+     * @param members    action group members
      * @param opType   write operation type
      * @param pipeconf the pipeconf currently deployed on the device
      * @return true if the operation was successful, false otherwise
      */
-    CompletableFuture<Boolean> writeActionGroupMembers(PiActionGroup group,
+    CompletableFuture<Boolean> writeActionGroupMembers(PiActionProfileId profileId,
+                                                       Collection<PiActionGroupMember> members,
                                                        WriteOperationType opType,
                                                        PiPipeconf pipeconf);
 
diff --git a/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/ActionProfileMemberEncoder.java b/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/ActionProfileMemberEncoder.java
index 2f08a59..7170eba 100644
--- a/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/ActionProfileMemberEncoder.java
+++ b/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/ActionProfileMemberEncoder.java
@@ -16,8 +16,8 @@
 
 package org.onosproject.p4runtime.ctl;
 
+import org.onosproject.net.pi.model.PiActionProfileId;
 import org.onosproject.net.pi.model.PiPipeconf;
-import org.onosproject.net.pi.runtime.PiActionGroup;
 import org.onosproject.net.pi.runtime.PiActionGroupMember;
 import org.onosproject.net.pi.runtime.PiActionGroupMemberId;
 import p4.P4RuntimeOuterClass;
@@ -47,14 +47,14 @@
     /**
      * Encode a PiActionGroupMember to a ActionProfileMember.
      *
-     * @param group the PI action group of members
+     * @param profileId the PI action group profile ID of members
      * @param member the member to encode
      * @param pipeconf the pipeconf, as encode spec
      * @return encoded member
      * @throws P4InfoBrowser.NotFoundException can't find action profile from P4Info browser
      * @throws EncodeException can't find P4Info from pipeconf
      */
-    static ActionProfileMember encode(PiActionGroup group,
+    static ActionProfileMember encode(PiActionProfileId profileId,
                                       PiActionGroupMember member,
                                       PiPipeconf pipeconf)
             throws P4InfoBrowser.NotFoundException, EncodeException {
@@ -73,7 +73,7 @@
 
         // action profile id
         P4InfoOuterClass.ActionProfile actionProfile =
-                browser.actionProfiles().getByName(group.actionProfileId().id());
+                browser.actionProfiles().getByName(profileId.id());
 
         int actionProfileId = actionProfile.getPreamble().getId();
         actionProfileMemberBuilder.setActionProfileId(actionProfileId);
diff --git a/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/P4RuntimeClientImpl.java b/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/P4RuntimeClientImpl.java
index cd988fd..5fc153a 100644
--- a/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/P4RuntimeClientImpl.java
+++ b/protocols/p4runtime/ctl/src/main/java/org/onosproject/p4runtime/ctl/P4RuntimeClientImpl.java
@@ -219,13 +219,15 @@
     }
 
     @Override
-    public CompletableFuture<Boolean> writeActionGroupMembers(PiActionGroup group,
+    public CompletableFuture<Boolean> writeActionGroupMembers(PiActionProfileId profileId,
+                                                              Collection<PiActionGroupMember> members,
                                                               WriteOperationType opType,
                                                               PiPipeconf pipeconf) {
-        return supplyInContext(() -> doWriteActionGroupMembers(group, opType, pipeconf),
+        return supplyInContext(() -> doWriteActionGroupMembers(profileId, members, opType, pipeconf),
                                "writeActionGroupMembers-" + opType.name());
     }
 
+
     @Override
     public CompletableFuture<Boolean> writeActionGroup(PiActionGroup group,
                                                        WriteOperationType opType,
@@ -548,12 +550,13 @@
         return CounterEntryCodec.decodeCounterEntities(entities, pipeconf);
     }
 
-    private boolean doWriteActionGroupMembers(PiActionGroup group, WriteOperationType opType, PiPipeconf pipeconf) {
+    private boolean doWriteActionGroupMembers(PiActionProfileId profileId, Collection<PiActionGroupMember> members,
+                                              WriteOperationType opType, PiPipeconf pipeconf) {
         final Collection<ActionProfileMember> actionProfileMembers = Lists.newArrayList();
 
-        for (PiActionGroupMember member : group.members()) {
+        for (PiActionGroupMember member : members) {
             try {
-                actionProfileMembers.add(ActionProfileMemberEncoder.encode(group, member, pipeconf));
+                actionProfileMembers.add(ActionProfileMemberEncoder.encode(profileId, member, pipeconf));
             } catch (EncodeException | P4InfoBrowser.NotFoundException e) {
                 log.warn("Unable to encode group member, aborting {} operation: {} [{}]",
                          opType.name(), e.getMessage(), member.toString());
@@ -585,7 +588,7 @@
             blockingStub.write(writeRequestMsg);
             return true;
         } catch (StatusRuntimeException e) {
-            logWriteErrors(group.members(), e, opType, "group member");
+            logWriteErrors(members, e, opType, "group member");
             return false;
         }
     }
diff --git a/protocols/p4runtime/ctl/src/test/java/org/onosproject/p4runtime/ctl/P4RuntimeGroupTest.java b/protocols/p4runtime/ctl/src/test/java/org/onosproject/p4runtime/ctl/P4RuntimeGroupTest.java
index 6379f8b..25d0e00 100644
--- a/protocols/p4runtime/ctl/src/test/java/org/onosproject/p4runtime/ctl/P4RuntimeGroupTest.java
+++ b/protocols/p4runtime/ctl/src/test/java/org/onosproject/p4runtime/ctl/P4RuntimeGroupTest.java
@@ -191,7 +191,7 @@
     @Test
     public void testInsertPiActionMembers() throws Exception {
         CompletableFuture<Void> complete = p4RuntimeServerImpl.expectRequests(1);
-        client.writeActionGroupMembers(GROUP, INSERT, PIPECONF);
+        client.writeActionGroupMembers(ACT_PROF_ID, GROUP_MEMBERS, INSERT, PIPECONF);
         complete.get(DEFAULT_TIMEOUT_TIME, TimeUnit.SECONDS);
         WriteRequest result = p4RuntimeServerImpl.getWriteReqs().get(0);
         assertEquals(1, result.getDeviceId());