Document: 503 U.S. 140 112 S.Ct. 1081 117 L.Ed.2d 291 John J. McCARTHY, Petitioner,v.Larry MADIGAN et al. No. 90-6861. Argued Dec. 9, 1991. Decided March 4, 1992. Syllabus While a federal prisoner, petitioner McCarthy filed damages action under Bivens v. Six Unknown Fed. Narcotics Agents, 403 388, 91 1999, 29 619, alleging that respondent prison officials had violated his Eighth Amendment rights by their deliberate indifference to needs and medical condition resulting from back operation history of psychiatric problems. The District Court dismissed complaint on the ground he failed exhaust Federal Bureau Prisons' administrative remedy procedure, which, inter alia, includes rapid filing response timetables promote efficient dispute resolution but does not provide for any kind hearing or granting particular type relief. court then denied McCarthy's motion reconsideration, rejecting argument exhaustion was required because sought only money damages, which could provide. Appeals affirmed. Held: Exhaustion procedure is before prisoner can initiate solely damages. Pp. 144-156. (a) serves twin purposes protecting agency authority promoting judicial efficiency. Where Congress specifically mandates, required. Otherwise, courts must exercise sound discretion, determining whether require balancing individual's interest in retaining prompt access forum against countervailing institutional interests favoring exhaustion. Individual have weighed heavily where resort would occasion undue prejudice subsequent assertion action, there some doubt as empowered grant effective relief, body shown be biased has otherwise predetermined issue it. 144-149. (b) prisoner's claim. And, given claim raises characteristics Bureau's general grievance individual outweigh procedure's short, successive deadlines absence monetary burden petitioning inmate's interests. In contrast, while substantial encouraging internal grievances preventing undermining its unnecessary prisoners courts, other concerns do weigh favor alleged failure render care implicates tangentially carry out control management prisons, bring bear special expertise presented here. Nor are economy advanced substantially create formal factual record relied conclusively disposition pleadings at summary judgment without aid affidavits. 149-156. 914 F.2d 1411 (CA10 1990), reversed. BLACKMUN, J., delivered opinion Court, WHITE, STEVENS, O'CONNOR, KENNEDY, SOUTER, JJ., joined. REHNQUIST, C.J., an concurring judgment, SCALIA THOMAS, Paul M. Smith, argued, petitioner. Maureen E. Mahoney, respondents. Justice BLACKMUN Court. 1 this case promulgated Prisons may suit, pursuant 619 (1971), Tenth Circuit ruled Maddigan, 1990). We granted certiorari resolve conflict among Courts Appeals.1 --- ----, 111 1618, 113 716 (1991). 2 * penitentiary Leavenworth, pro se United States Kansas four employees: hospital administrator, chief psychologist, another physician. respondents constitutional On first page complaint, wrote: "This Complaint seeks Money Damages Only." App. 7. 3 remedies. Id., 12. Under 28 CFR Part 542 (1991), setting forth "Administrative Remedy Procedure Inmates" correctional institutions, "seek review relates aspect imprisonment." § 542.10.2 When inmate files appeal, responsible directed acknowledge with "signed receipt" returned inmate, "[c]onduct investigation," "[r]espond sign all complaints appeals." §§ 542.11(a)(2) (4). regulations 4 To resolution, timetables. An informal consulting personnel. 542.13(a). If effort fails, "may file written appropriate form, within 15 calendar days date basis occurred." 542.13(b). Should warden fail respond satisfaction days, 20 appeal Regional Director, who 30 respond. still remains unsatisfied, make final General Counsel, 542.14 .15. demonstrate "valid reason delay," "shall allowed" extension these time periods filing. 5 Petitioner reconsideration Fed.Rule Civ.Proc. 60(b), arguing remedies, claimed, provide.3 Record (Exh. 7). motion. 14. 6 Appeals, affirming, observed actions creation judiciary, impose reasonable conditions upon F.2d, 1412. rule, reasoned, "is keyed relief sought, need preliminary fact-finding" determine "whether possible cause action." Ibid. Accordingly, " '[a]lthough apparatus award . ., consideration possibility corrective aided measuring liability extent damages.' Ibid., quoting Goar Civiletti, 688 27, (CA6 1982) (emphasis original). notwithstanding fact request II 7 doctrine remedies one related doctrines—including abstention, finality, ripeness—that govern timing decisionmaking. Of "paramount importance" inquiry congressional intent. Patsy Board Regents Florida, 457 496, 501, 102 2557, 2560, 73 172 (1982). Coit Independence Joint Venture FSLIC, 489 561, 579, 109 1361, 1371, 103 602 (1989); Patsy, U.S., 502, n. S.Ct., 4. But clearly exhaustion, discretion governs. McGee States, 402 479, 483, 6, 1565, 47 (1971). See also 518, 2568 (WHITE, part) ("[E]xhaustion 'a rule administration,' unless directs otherwise, rightfully subject crafting judges."). Nevertheless, even field deference Congress' power prescribe basic procedural scheme heard requires fashioning principles manner consistent intent applicable statutory scheme. 501-502, A. 8 This long acknowledged parties prescribed seeking courts. See, e.g., Myers Bethlehem Shipbuilding Corp., 303 41, 50-51, 58 459, 463-464, 9 (1938) (discussing cases far 1898). it As purposes, recognizes notion, grounded delegation coordinate branches government, agencies, ought primary responsibility programs charged them administer. apply force when involves agency's discretionary proceedings question allow expertise. McKart 395 185, 194, 89 1657, 1662, 23 194 (1969). Bowen City New York, 476 467, 484, 106 2022, 2032, 90 462 (1986). acknowledges commonsense notion opportunity correct own mistakes respect administers haled into court. Correlatively, "frequent flouting processes" weaken effectiveness disregard procedures. 195, 1663. 10 second promotes efficiency least two ways. errors, controversy well mooted, piecemeal appeals avoided. Parisi Davidson, 405 34, 37, 92 815, 817, 31 17 (1972); And survives review, produce useful consideration, especially complex technical context. Weinberger Salfi, 422 749, 765, 95 2457, 2466, 45 522 (1975) (exhaustion "to compile adequate review"). B 11 Notwithstanding interests, vested "virtually unflagging obligation" jurisdiction them. Colorado River Water Conservation Dist. 424 800, 817-818, 96 1236, 1246-1247, 483 (1976). "We no more right decline given, than usurp given." Cohens Virginia, Wheat. 264, 404, L.Ed. 257 (1821). declined circumstances counsel otherwise. required, balance "[A]dministrative pursued if litigant's immediate government's autonomy designed further." West Bergland, 611 710, 715 (CA8 1979), cert. denied, 449 821, 101 79, 66 (1980). Application principle "intensely practical," citing Mathews Eldridge, 319, 331, 11, 893, 901, 18 (1976), attention both nature provided. C 12 Court's precedents recognized three broad sets requiring First, action. Such result, example, unreasonable indefinite timeframe Gibson Berryhill, 411 564, 575, 14, 93 1689, 1696, 36 488 (1973) (administrative deemed inadequate "[m]ost often delay agency"). 587, 1376 ("Because Bank Board's place limit FSLIC's claims, cannot those procedures"); Walker Southern R. Co., 385 196, 198, 87 365, 366, 294 (1966) (possible years makes unnecessary); Smith Illinois Bell Telephone 270 591-592, 46 408, 410, 70 747 (1926) (claimant indefinitely await decision rate-making tribunal applying equitable relief"). Even decisionmaking schedule definite, plaintiff suffer irreparable harm unable secure 2031 (disability-benefit claimants "would irreparably injured were requirement now enforced them"); Aircraft & Diesel Equipment Corp. Hirsch, 331 752, 773, 67 1493, 1503, 1796 (1947) ("impending injury flowing incident following procedure" contribute finding required). By same token, less preclude defense criminal liability. Moore East Cleveland, 431 494, 497, 5, 97 1932, 1934, 52 531 (1977) (plurality opinion); 197, 1664. 13 Second, "because relief." For agency, matter, consider lacks competence presented, such constitutionality statute. 5; Diaz, 426 67, 76, 1883, 1889, 48 478 similar vein, been challenge adequacy itself, 'the [is] practical identical merits [the plaintiff's] lawsuit.' Barry Barchi, 443 55, 63, 10, 99 2642, 2648, 61 365 (1979) (quoting 1696). Alternatively, competent adjudicate lack requested. McNeese Education, 373 668, 675, 83 1433, 1437, 622 (1963) (students integrate public school superintendent "Superintendent himself apparently order action" except Attorney suit); Montana Yellowstone County, 276 499, 505, 333, 72 673 (1928) (taxpayer refund "any application [would been] utterly futile since county board equalization powerless relief" face prior controlling decision). 14 Third, 14; Houghton Shafer, 392 639, 640, 88 2119, 2120, 1319 (1968) (in view General's submission challenged rules "validly correctly applied petitioner," through process culminating demand act"); Association National Advertisers, Inc. FTC, 201 U.S.App.D.C. 165, 170-171, 627 1151, 1156-1157 (bias Trade Commission chairman), 447 921, 100 3011, 65 1113 Florida International University, 634 900, 912-913 (CA5 1981) (en banc) procedures "not used harass discourage legitimate claims"), rev'd grounds, III light principles, we conclude exhausted find meaningfully addressed appropriateness Although respondents' significant, left firm conviction that, 16 Turning intent, note neither enacted nor mandated Congress. Respondents, however, urge Congress, effect, acted delegating manage system. U.S.C. 4001(b) 4042. Brief Respondents 3, 16; Tr. Oral Arg. 41-42. think confuse what claimed implication affirmatively requested authority, most terms, administer system, said spoken custody should direct next argue enactment Civil Rights Institutionalized Persons Act, Pub.L. 96-247, 94 Stat. 352, 42 1997e, articulated policy officials. Section 1997e imposes limited brought state 1983, provided underlying meets specified standards. 507-512, 2563-65. case, here significant enacting stopped short imposing parallel inapplicable terms—cuts exhausted. unlike proposed here, authorize dismissal exhaust. Instead, provides stayed maximum days. 1997e(a)(1). 1997(e) mechanically every acceptable place. Rather, abstain "if believes [waiting] justice." words, fails meet scheme, ample nonetheless forgone. contrast provision statute existence "effective remedies."4 It difficult see why stricter itself context 19 gives way necessary accommodate either functioning government policy. 15. lie situations: (1) equally alternative declared substitute recovery Constitution, (2) where, affirmative factors hesitation. Carlson Green, 446 18-19, 1468, 1471-72, 64 exception, did remedial noted above, considered appear presence counseling Carlson, held "special factors" free liability, enjoy independent status our they likely unduly inhibited performance duties 19, 1472. Interpreting exception Schweiker Chilicky, 487 412, 108 2460, 370 (1988), Bush Lucas, 367, 2404, 76 648 (1983), found displaced legislated elaborate comprehensive Schweiker, 425, 2469; Bush, 2416. "When design Government program suggests considers mechanisms violations occur course administration, created additional remedies." 423, 2468. Here nothing. 21 Because claim, turn evaluation stake case. burdens high risk forfeiture comply. "remedy" damages—the combination features means everything lose nothing gain being procedure. 22 precipitating incident, attempt informally warden. 542.13. Then, successively hurdle 20-day 30-day advance end process. 542.15. Other quite proper having early notice apprised urgency exigency justifying timetable. Cf. Yakus 321 414, 435, 660, 672, 834 (1944) ("The sixty days' period allowed protest Administrator's unreasonably exigencies wartime price regulation"). deadlines, course, pose little difficulty knowledgeable accustomed actions. trap inexperienced unwary ordinarily indigent unrepresented counsel, jurisdictional extended "valid" reason. 542.13(b) Yet is. Moreover, appears officials—perhaps very suit—are 24 All all, good deal peril forfeiting "first" "the necessarily frame analysis prisoners' claims" "federal take cognizance valid claims inmates." Turner Safley, 482 78, 84, 107 2254, 2259, (1987). divested privilege vote, might remaining "fundamental political right, preservative rights." Yick Wo Hopkins, 118 356, 370, 1064, 1071, 220 (1886). strongly prerequisite action.5 25 noted, include mention "in things wants." 30. true instances. presume, litigant deliberately forgone injunctive singled discrete past wrongs, requesting compensation only, interested "other things." Bureau, always offer return withdrawal lawsuit. weighs requirement. 26 alternative, despite available asserting claims. Tort Claims Act (FTCA),6 contend asking "converted" FTCA authorized, 543.30 "conversion" sufficient how treated. event, pointed anything showing practice converting agree implausible do. availability is, best, uncertain, uncertainty counsels Hillsborough Cromwell, 326 620, 626, 445, 449, 358 (1946); Union Pacific Co. Comm'rs Weld 247 282, 287, 38 510, 512, 62 1110 (1918). 27 sure, relevant hardly all. prisons. Furthermore, stand No factfindings made. paperwork generated assist somewhat ascertaining facts quickly review. conclusion, struck supporting material regulations, record, briefs crafted thought toward professed concern translated encourage opposed further foreclose adopt so ordered. 32 THE CHIEF JUSTICE, whom THOMAS join, judgment. 33 I holding Prisons. My view, based entirely seek furnishes therefore improper Education Community Unit School 187, (1963); (1928). 34 base ground, join extensive discussion modification particular, disagree reliance excusing majority observes, ante, 146-147 previously refused subjects plaintiffs decision. 1376, (1973); (1966); (1926). rests belief wait seemingly forever decision, "inadequate" supra, 1376. 35 strange use imposed Ante, 152-153. Whereas "reasonable limit[s]" too long, today concludes strict inadequacy move quickly. surely proposition follow first. fact, will almost quick result advocated repeatedly cited above. So escape clause, zone reasonableness, believe length factor deciding remedy. Compare Hessbrook Lennon, 777 999 1985) required), Brice Day, 604 664 1979) (same), 444 1086, 1045, 772 (1980), Muhammad 739 122 (CA3 1984) (same). Certain categories filings, "will accepted" These include, others, "tort claims." 542.12 interpreted 1. governed separate 543.32 actually initiated and, concedes private cell issues heart complaint. After initial dismissed, issues. accepted, though late, merits. 38. regional office rejected late. Conference Committee report states: "It [of exhaustion] situations cannot, probability, resolved ." H.R.Conf.Rep. 96-897, p. General, certifying schemes, regulation: "The [state] shall afford successful grievant meaningful remedy." 40.6 (1991) added). At promulgating Department record: "Presumably, sole obtained appropriate." Fed.Reg. 3845 (1981). contained prayer differently. 20, 20. Were probably capable producing desired. Additionally, continuing conduct limitations triggered anew ongoing conduct. categorizable concession corrections guards "law enforcement officers" meaning intentional-tort FTCA. 41. concede settlement. 40. settlement exercised dispose 50.15(c)(2) Nothing indicates ever recompense highly unlikely made proceeding, regulation "[a]bsent exceptional circumstances" paid "before entry adverse verdict, award." 50.15(c)(3).

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