Woodford v. Ngo

548 U.S. 81, 126 S. Ct. 2378, 165 L. Ed. 2d 368, 2006 U.S. LEXIS 4891
Supreme Court of the United States·Decided June 22, 2006·No. 05-416·Published·Cited by 7,886 cases

Opinions

Justice Alito

delivered the opinion of the Court.

This case presents the question whether a prisoner can satisfy the Prison Litigation Reform Act’s exhaustion requirement, 42 U. S. C. § 1997e(a), by filing an untimely or otherwise procedurally defective administrative grievance or [84]*84appeal. We hold that proper exhaustion of administrative remedies is necessary.

I

A

Congress enacted the Prison Litigation Reform Act of 1995 (PLRA), 110 Stat. 1321-71, as amended, 42 U. S. C. § 1997e et seq., in 1996 in the wake of a sharp rise in prisoner litigation in the federal courts, see, e. g., Alexander v. Hawk, 159 F. 3d 1321, 1324-1325 (CA11 1998) (citing statistics). The PLRA contains a variety of provisions designed to bring this litigation under control. See, e. g., § 1997e(c) (requiring district courts to weed out prisoner claims that clearly lack merit); §1997e(e) (prohibiting claims for emotional injury without prior showing of physical injury); §1997e(d) (restricting attorney’s fees).

A centerpiece of the PLRA’s effort “to reduce the quantity ... of prisoner suits” is an “invigorated” exhaustion provision, § 1997e(a). Porter v. Nussle, 534 U. S. 516, 524 (2002). Before 1980, prisoners asserting constitutional claims had no obligation to exhaust administrative remedies. See Wilwording v. Swenson, 404 U. S. 249, 251 (1971) (per curiam). In the Civil Rights of Institutionalized Persons Act, § 7, 94 Stat. 352-353, Congress enacted a weak exhaustion provision, which authorized district courts to stay actions under Rev. Stat. § 1979, 42 U. S. C. § 1983, for a limited time while a prisoner exhausted “such plain, speedy, and effective administrative remedies as are available.” §1997e(a)(1) (1994 ed.). “Exhaustion under the 1980 prescription was in large part discretionary; it could be ordered only if the State’s prison grievance system met specified federal standards, and even then, only if, in the particular case, the court believed the requirement ‘appropriate and in the interests of justice.’” Nussle, supra, at 523 (quoting § 1997e). In addition, this provision did not require exhaustion if the prisoner sought only money damages and such [85]*85relief was not available under the relevant administrative scheme. See McCarthy v. Madigan, 503 U. S. 140, 150-151 (1992).

The PLRA strengthened this exhaustion provision in several ways. Exhaustion is no longer left to the discretion of the district court, but is mandatory. See Booth v. Churner, 532 U. S. 731, 739 (2001). Prisoners must now exhaust all “available” remedies, not just those that meet federal standards. Indeed, as we held in Booth, a prisoner must now exhaust administrative remedies even where the relief sought—monetary damages—cannot be granted by the administrative process. Id., at 734. Finally, exhaustion of available administrative remedies is required for any suit challenging prison conditions, not just for suits under § 1983. Nussle, supra, at 524.

B

California has a grievance system for prisoners who seek to challenge their conditions of confinement. To initiate the process, an inmate must fill out a simple form, Dept, of Corrections, Inmate/Parolee Appeal Form, CDC 602 (12/87) (hereinafter Form 602), that is made “readily available to all inmates.” Cal. Code Regs., tit. 15, § 3084.1(c) (2004). The inmate must fill out two parts of the form: part A, which is labeled “Describe Problem,” and part B, which is labeled “Action Requested.” Then, as explained on Form 602 itself, the prisoner “must first informally seek relief through discussion with the appropriate staff member.” App. 40-41. The staff member fills in part C of Form 602 under the heading “Staff Response” and then returns the form to the inmate.

If the prisoner is dissatisfied with the result of the informal review, or if informal review is waived by the State, the inmate may pursue a three-step review process. See §§3084.5(b)-(d). Although California labels this “formal” review (apparently to distinguish this process from the prior step), the three-step process is relatively simple. At the first level, the prisoner must fill in part D of Form 602, which [86]*86states: “If you are dissatisfied, explain below.” Id., at 40. The inmate then must submit the form, together with a few other documents, to the appeals coordinator within 15 working days—three weeks—of the action taken. § 3084.6(c). This level may be bypassed by the appeals coordinator in certain circumstances. § 3084.5(b). Within 15 working days after an inmate submits an appeal, the reviewer must inform the inmate of the outcome by completing part E of Form 602 and returning the form to the inmate.

If the prisoner receives an adverse determination at this first level, or if this level is bypassed, the inmate may proceed to the second level of review conducted by the warden. §§ 3084.5(c), (e)(1). The inmate does this by filling in part F of Form 602 and submitting the form within 15 working days of the prior decision. Within 10 working days thereafter, the reviewer provides a decision on a letter that is attached to the form. If the prisoner’s claim is again denied or the prisoner otherwise is dissatisfied with the result, the prisoner must explain the basis for his or her dissatisfaction on part H of the form and mail the form to the Director of the California Department of Corrections and Rehabilitation within 15 working days. § 3084.5(e)(2). An inmate’s appeal may be rejected where “[t]ime limits for submitting the appeal are exceeded and the appellant had the opportunity to file within the prescribed time constraints.” § 3084.3(c)(6).

C

, Respondent is a prisoner who was convicted for murder and is serving a life sentence in the California prison system. In October 2000, respondent was placed in administrative segregation for allegedly engaging in “inappropriate activity” in the prison chapel. Two months later, respondent was returned to the general population, but respondent claims that he was prohibited from participating in “special programs,” including a variety of religious activities. [87]*87Approximately six months after that restriction was imposed, respondent filed a grievance with prison officials challenging that action. That grievance was rejected as untimely because it was not filed within 15 working days of the action being challenged. See §§ 3084.3(c)(6), 3084.6(c).

Respondent appealed that decision internally without success, and subsequently sued petitioners—California correctional officials—under 42 U. S. C. § 1983 in Federal District Court. The District Court granted petitioners’ motion to dismiss because respondent had not fully exhausted his administrative remedies as required by § 1997e(a). See App. to Pet. for Cert. 24-25.

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Woodford v. Ngo, 548 U.S. 81, 126 S. Ct. 2378, 165 L. Ed. 2d 368, 2006 U.S. LEXIS 4891 (2006).

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