Document: 430 U.S. 817 97 S.Ct. 1491 52 L.Ed.2d 72 Vernon Lee BOUNDS, etc., et al., Petitioners,v.Robert (Bobby) SMITH al. No. 75-915. Argued Nov. 1, 1976. Decided April 27, 1977. Syllabus The fundamental constitutional right of access to the courts held require prison authorities assist inmates in preparation and filing meaningful legal papers by providing prisoners with adequate law libraries or assistance from persons trained law. Younger v. Gilmore, 404 15, 92 250, 30 142. Pp. 821-833. 538 F.2d 541, affirmed. Jacob L. Safron, Raleigh, N.C., for petitioners. Barry Nakell, Chapel Hill, respondents. Mr. Justice MARSHALL delivered opinion Court. 1 issue this case is whether States must protect them alternative sources knowledge. In 142 (1971), we per curiam that such services are constitutionally mandated. Petitioners, officials State North Carolina, ask us overrule recent case, but reasons explained below, decline invitation reaffirm our previous decision. 2 * Respondents incarcerated correctional facilities Division Prisons Carolina Department Correction. They filed three separate actions under 42 U.S.C. § 1983, all eventually consolidated District Court Eastern Carolina. alleged, pertinent part, they were denied violation their Fourteenth Amendment rights State's failure provide research facilities.1 3 granted respondents' motion summary judgment on claim,2 finding sole library was "severely inadequate" there no other available inmates. It basis Gilmore equal protection laws had been violated because "no indication any at initial stage writs petitions." court recognized, however, determining "appropriate relief be ordered . presents a difficult problem," view Carolina's decentralized system.3 Rather than attempting "to dictate precisely what course should follow," "charge(d) Correction task devising Constitutionally sound program" assure courts. left choice would "most easily economically" fulfill duty, suggesting program make lawyers, students, public defenders might serve purpose least as well provision libraries. Supp.App. 12-13. 4 responded proposing establishment seven institutions located across chosen so best units. addition, planned set up smaller Central Prison segregation unit Women's Prison. Under plan, desiring use request appointments. given transportation housing, if necessary, full day's work. addition its collection lawbooks,4 each stock forms writing paper have typewriters copying machines. proposed train assistants typists aid fellow prisoners. estimated ultimately some 350 week could although not facing deadlines wait four weeks turn library. protested plan totally inadequate sought every prison.5 5 rejected objections, "both economically feasible practicable," one that, fairly efficiently run, "insure inmate time prepare his petitions."6 Id., 19. Further briefing required independent advisors facilities. 6 final decision, petitioners found sufficient give reasonable decision Ross Moffitt, 417 600, 94 2437, 41 341 (1974), while directly point, supported claim it need furnish attorneys bring habeas corpus civil 7 After approved submitted an application Federal Law Enforcement Assistance Administration (LEAA) grant cover 90% cost setting training librarian clerks. represented LEAA project benefit giving "meaningful effective court(s). (T)he ultimate result diminution number groundless petitions complaints himself will able determine greater extent violated" judicial evaluation facilitated. Brief 3a. 8 Both sides appealed those portions orders adverse them. Appeals Fourth Circuit affirmed respects save one. women same men Since justification discrimination, eliminated. petitioned review certiorari. 425 910, 96 1505, 47 760 (1976).7 We affirm. II 9 A. now established beyond doubt This recognized more 35 years ago when struck down regulation prohibiting state unless " 'properly drawn' 'legal investigator' parole board. Ex parte Hull, 312 546, 61 640, 85 L.Ed. 1034 (1941). principle "the officers may abridge impair petitioner's apply federal writ corpus." 549, 641. See also Cochran Kansas, 316 255, 62 1068, 86 1453 (1942). 10 More decisions restrictions remedial measures insure adequate, effective, meaningful. Thus, order prevent "effectively foreclosed access," indigent allowed file appeals without payment docket fees. Burns Ohio, 360 252, 257, 79 1164, 1168, 1029 (1959); Smith Bennett, 365 708, 81 895, 39 (1961). Because "adequate appellate review" impossible trial transcript substitute, records unable buy Griffin Illinois, 351 12, 20, 76 585, 591, 100 891 (1956).8 Similarly, counsel appointed "a appeal" convictions. Douglas California, 372 353, 358, 83 814, 817, 811 (1963). 11 Essentially standards applied Johnson Avery, 393 483, 89 747, 21 718 (1969), which assisting applications matters. form them, reasoned ban jailhouse lawyers effectively prevented who "unable themselves, adequacy, petitions," challenging legality confinements. 489, 750. unanimously extended Wolff McDonnell, 418 539, 577-580, 2963, 2985-2988, 935 (1974). And even defendants discretionary appeals, reaffirmed "assure defendant opportunity present claims fairly." U.S., 616, 2447. "(M) eaningful access" touchstone. id., 611, 612, 615, S.Ct., 2444-2446.9 12 Petitioners contend, duty merely obliges allow "writ writers" function. argue supra, long communications problems restricted, further obligation expend funds implement affirmatively access. argument misreads cases. 13 ignorant illiterate justification. these own courts, "constitutional help," 502, 757 (White, J., dissenting), allowing literate fellows. But holding, did attempt forth breadth example, already prison.10 thus decided against backdrop availability information capable using it. Johnson, petitioner originally requested lawbooks, see 484, 748, reach question, invalidated effect Neither considered question face today neither inconsistent requiring additional cases.11 14 Moreover, consistently shoulder affirmative obligations indisputable provided expense pen draft documents notarial authenticate stamps mail forgo fees otherwise payable treasury transcripts. expenditures necessary pay trial, Gideon Wainwright, 335, 792, 799 (1963); Argersinger Hamlin, 407 25, 2006, 32 530 (1972), right, supra.12 say economic factors considered, choosing methods used protecting cannot justify total denial. nor necessity action dispositive claims. inquiry rather needed reasonably claimed violations 15 B. Although essentially true, argue,13 petition complaint only facts rise cause action, see, Fed.Rules Civ.Proc. 8(a)(1), (3), hardly follows essential frame documents. verge incompetence lawyer pleading researching issues jurisdiction, venue, standing, exhaustion remedies, proper parties plaintiff defendant, types available. Most importantly, course, know colorable exists, so, action. 16 If perform preliminary research, less vital pro se prisoner.14 Indeed, despite "less stringent standards" judged, Haines Kerner, 519, 520, 594, 595, 652 often important prisoner nonfrivolous meeting procedural prerequisites, since pass complaint's sufficiency before forma pauperis dismiss deemed frivolous. 28 1915.15 files response pleading, undoubtedly contain seemingly authoritative citations. Without library, rebut argument. enough answer evaluate pleaded light relevant Even most dedicated judges bound overlook meritorious cases adversary presentation. Cf. Gardner 367, 369-370, 580, 582, 601 (1969). fact, here initially dismissed judge later ruled respondents, possibly cited. 17 reject "ill-equipped use" tools trade profession," making useless assuring 17. first place, representations application, 821, adequately protected help problems. Court's experience indicates lawbooks raising serious legitimate unsuccessful. Finally, note doubts about efficacy libraries, free choose another means 18 argued unnecessary Moffitt. That "an (their) fairly," 2446, appointment Moffitt's rationale, supports here. Moffitt noted addressing primarily concerned correctness below. Rather, generally raises significant interest jurisprudential importance conflicts controlling precedent. 615-617, 2446-2447. applicants can decide criteria met right. likely briefs previously written behalf, transcripts, intermediate opinions preparing review. 2446. 19 By contrast large part original seeking new trials, release confinement, vindication rights. presenting passed two frequently raise heretofore unlitigated issues. As has "constantly emphasized," "fundamental scheme" valued 485, 748; 579, 2986. While apprise case's possible relevance development law, line defense violations. advice presentation far review.16 20 hold, therefore, requires law.17 C. Our holding is, reaffirmation reached Gilmore. element preceding analysis, precedential weight strongly reinforces substantive presented was: "Does extensive or, alternatively, professional quasi-professional assistance?" Jurisdictional Statement 5, Appellants 4, 70-9, O.T.1971. explicitly reliance Avery. Rule subd. 1(c). after oral relied upon subsequent decisions. Cruz Hauck, 59, 313, 217 (1971) (vacating remanding reconsideration materials furnished county jail inmates); Beto, 405 319, 321, 1079, 1081, 31 263 (1972) (Gilmore cited approvingly support inmates' courts); Chaffin Stynchcombe, 412 17, 34 n. 22, 93 1977, 1986, 36 714, 728 (1973) "removing roadblocks disincentives appeal"). recently, differences over actions." 578-579, 22 Experience suggests reason depart Government made impressive efforts Gilmore's mandate establishing legal-assistance programs, combinations both. Respondents, Ex. Correctional administrators programs acknowledged value.18 Resources including substantial funding come many national organizations.19 23 acceptable method here, does foreclose achieve goal. Nearly half Columbia degree Such take imaginative advantages alone. Among alternatives paralegal work lawyers' supervision, paraprofessionals either volunteers formal clinical organization volunteer through bar associations groups, hiring part-time consultant basis, full-time staff attorneys, working organizations defender offices.20 Legal plans efficient skillful handling cases, avoid disciplinary associated writers, 488, 750; Procunier Martinez, 416 396, 421-422, 1800, 1815, 40 224 Independent mediate resolve administratively burden convince grievances system ill-founded, thereby facilitating rehabilitation he treated unfairly.21 few 500 needs entire population.22 Nevertheless, include particular discussed, encourage local experimentation. Any evaluated whole ascertain compliance standards.23 III 24 urge reverse below "sit co-administrators prisons," 13, "exceeded powers puts (sic ) itself place (prison) administrators," 14. restraint appropriate prisoners' repeatedly policy "cannot encompass cognizance valid claims." 405, 1807. 25 Petitioners' hyperbolic particularly inappropriate scrupulously respected limits role. guarantee," ibid., thereupon thrust into administration. themselves devise remedy violation, prefer advisors. chose establish minimal changes strong objections exercised wide discretion within bounds requirements case. 26 Affirmed. 27 POWELL, concurring. recognizes assert him purport kinds Constitution hear. 2985, where arising Civil Rights Act 1871, suggest heard court. (1956), indigents appeal, plurality concurring Similarly implies nothing scope 29 With understanding, I join Chief BURGER, dissenting. am general agreement STEWART REHNQUIST, opinions. write emphasize theoretical practical difficulties raised holding. leaves unenlightened source "right courts" perceives requirement "foot bill" want act researchers brief writers. my view, far-reaching implications fully analyzed consequences assessed. noted, first, respondents direct criminal Abundant purposes guaranteed prior decisions, e. g., (1963), independently. underlying mount collateral attacks ordering resources federally created 33 understandable nature. For Eighth food, shelter, medical care, Estelle Gamble, 429 97, 103-104, 285, 290-291, 50 51 (1976); similarly, defendant's Sixth places trials deprivation liberty, (1972); finally, principles due process convicted appeal. supra; supra. However, statutory nature, negative; manner interfere individual exercise E. (1941) (State prisoner's screening directed court); (1969) prohibit courts). Prohibiting interfering materially different exercise. novel doubtful proposition, can, statute, individuals certain then State, matter, fund National League Cities Usery, 426 833, 2465, 49 245 (1976). collaterally attack convictions entered competent clear broad attack, Stone Powell, 428 465, 3037, 1067 whatever exists solely creation Swain Pressley, 372, 384, 1224, 1231, 411 (1977) (opinion J.); Schneckloth Bustamonte, 218, 252-256, 2041, 2059, 2060-2062, 854 (Powell, concurring). absent discern find costly inmates.* Proper federal-state relations preclude intervention "complex intractable" 37 draw conclusions holding: read implying constitutional, statutory, nature; compelled subsidize propositions sustainable stated adhere therefore dissent. 38 STEWART, whom CHIEF JUSTICE joins, scheme, 'it obstructed.' 578, 935, quoting 718. From basic five quantum jump conclusion custody. Today seeks bridge gap analysis authority questionable. Despite valiant efforts, reasoning unpersuasive. If, says, effectuated adhering unexplained Member Judge convinced me seldom realistically advanced device untutored use. vast majority will, convinced, simply pleadings heavily larded irrelevant legalisms possessing veneer lacking substance competence. hand, REHNQUIST correct belief convict pursuant jurisdiction sentence, "meaningful." deny obstruct have, arguably, 43 respectfully 44 45 serves unusual supplying good two-paragraph almost six pretense containing all. appears corpus, expanded concept describes access." So, told, extends piecing together questions "slippery slope," believe early relies rationale underlies 46 There United serving term imprisonment penal institution sentence. relies, (1941), invalid Michigan '(a)ll documents, briefs, petitions, motions, proceedings appeals' wish investigator were, official, drawn,' designated. Hull advised addressed "intercepted" referred "deemed inadequate." invalid, said very clearly why: "Whether properly drawn allegations alone determine." 642. 48 A succeeding bare-bones physical Congress authorized grant. These mentioned opinion, begin culminate MacCollom, 317, 2086, 666 (1976), last Term. Some, Griffin, appear depend convicts pursue state-created though pursuit counsel. Others, having virtually eliminated contact people outside walls, limit contacts permitted conditions terms confinement. Clearly pursued avenues appeal judgments conviction, imposes invidious regulations visits except knowledgeable All done penitentiaries. arguments grounded Equal Protection Clause, rich employ consult whereas not, superficial Douglas, nonetheless fail earlier remedies indigents, "indigents system." 2444. event, proceed guarantee laws, merit being Constitution. proceeds instead enunciate courts," ante, 828, nowhere conviction therein grant, accorded articulated way. invidiously knowledge Procunier, Wolf, none announces out cloth little reference supposed derived. occasion lawful results "retraction (of rights) justified considerations Price Johnston, 334 266, 68 1049, 1060, 1356 (1948); Pell 822, 2800, 2804, 495 exhausted longer presumption innocence, former liberties substantially restricted exigencies incarceration placed. Meachum Fano, 427 215, 2532, 451 Where point congressional provisions furnishing makes showing probable cause, realistic chance asserting review, upheld second resort, resort seem, fortiori, follow represent ever suggested Yet logical destination today. convincing why State. Just bare factual injustice, sophistication. do anything result, matter think wise program. conclude indicating respect Court, relegating section apart body reasoning. notable unbridged distance between premise conclusion. reaches, persuaded reasons. fact slightest reluctance alleged us. actions. On remanded suggestion still pending 13,000 housed 77 units 67 counties. Sixty-five hold fewer 200 3. inclusion following books: General Statutes Reports (1960-present) Strong's Index Rules Code Annotated: Title §§ 2241-2254 Appellate Procedure 1891-2010 Supreme Reporter 2d Supplement Black's Dictionary Sokol: Habeas Corpus LaFave Scott: Criminal Hornbook (2 copies) Cohen: Research Palmer: Constitutional Prisoners proposal adheres list minimum American Association (ACA), Bar (ABA), Libraries, questionable omission several treatises, Shepard's Citations, rules ACA, Guidelines Reference Service Institutions: Tool Administrators 5-9 (2d ed. 1975) (hereafter ACA Guidelines); ABA Commission Facilities Services, Support Improve Services (BASICS), Offender 29-30, 70-78 (rev. 1976). contended materials, urged central circulating plan: extra copies U.S.C.A. volumes provided, reporter advance sheets discarded, slowly build duplicate sets. too small books surpass usefulness. cross-appeal challenge sex discrimination ruling. Eskridge Washington Bd., 357 214, 78 1061, 1269 (1958) (provision conditioned approval judge); Draper Washington, 487, 774, 899 (1963) (same); Lane Brown, 477, 768, 892 (public defender's obtain coram nobis transcript); Rinaldi Yeager, 384 305, 1497, 577 (1966) (unconstitutional reimbursement unsuccessful imprisoned defendants); Long Iowa, 385 192, 87 362, 290 post-conviction proceeding); Roberts LaVallee, 389 40, 88 194, (1967) hearing Williams Oklahoma City, 395 458, 1818, 440 petty-offense trial); Mayer Chicago, 189, 410, nonfelony trial). defendants' transcripts used, Britt 226, 431, 400 plainly frivolous waived, plaintiffs stipulated adequacy McDonnell Wolff, D.C., 342 F.Supp. 618, 629-630 (Neb.1972), contested limitations Those resolved lower 619-622; 483 1059, 1066 (CA8 1973); 543 2, 2968. related right-of-access context. California barring students employed representing seeing clients. 419-422, 1814-1815. permits assistance, Lynch, 319 105, 107 (N.D.Cal.1970), aff'd sub nom. (1971). significantly, actually lawyers. challenged regulation, receiving aided "impermissibly burdened 421, 1815. 251 treat needs, obviously outlays personnel 16-17; Tr. Oral Arg. 3-9, 11-12. current learn all, retroactively invalidate propriety practices Courts impose burdens appointing suits. 487-488, 749-750, Nor proceeding 2255, applicant unconstitutionally deprived denial 753(f), failed secure transcript, newly asserted error frivolous, demonstrated transcript. 329, 2039. (Blackmun, judgment), lost. main concern "protecting ability complaint," 576, 2984, authorizes expenditure whose survive N.C.Gen.Stat. 7A-451 (Supp.1975); 8, 9, accompanying text; cf. 614, 2445, statute actions, encompassed advisory Inmate Grievance Commission, 148-101 seq. 14, certainly noteworthy innovation, 95% corrections commissioners, wardens, treatment directors responding survey expansion services. Cardarelli & Finkelstein, Assess Adequacy Impact Programs States, 65 J.Crim.L., P.S. 91, 99 Almost 85% believed adversely affect discipline security increase hostility toward institution. 80% felt safety valve grievances, reduce power structures tensions unresolved problems, contribute positive system. 95-98. Guidelines, 4; Sheriffs' Assn., Inmates' Rights, Standard pp. 33-34 (1974); Bluth, Inmates: Coopting Jailhouse Lawyer, Capital U.L.Rev. 61, Sigler, New Partnership Corrections, Neb.L.Rev. 35, (1972). See, U.S.Dept. Justice, LEAA, Compendium Selected Projects, III-201, IV-361-366 (1975); Grant 75 DF-99-0013, Consortium Furnish Counsel Prisoners, Final Report, Program Narrative (1975). BASICS program, grants publishes complete technical manual, Resource Center Providing Ga.L.Rev. 363 Institutions 1975). Libraries O. Werner, Manual members offer personnel. Joint Committee Status Standards Relating 2.1, 2.2, 2.3 Commentary, Am.Crim.L.Rev. 377, 420-443 (tent. 1977); Conference Commissioners Uniform Laws, Corrections Code, 2-601 (tent.draft 1976); Advisory Goals, 26-30, (1973). assisted back-up center 19, nn. Prisoners' York offices comprehensive iv. Other described 399-416. 18, 96-99; Reports, 19; Champagne Haas, Avery Administration, Tenn.L.Rev. 275, 295-299 2996(4) (1970 ed., Supp. V), Congress, Corp., declared "for citizens, faith government laws." Committee, 428-429. Stevenson Reed, 1207 (CA5 1976), aff'g 391 1375 (ND Miss.1975); Bryan 516 233 (CA3 1975); Gaglie Ulibarri, 507 721 (CA9 1974); Estelle, 409 1090 (SD Tex.1975). record reflects way interfered attacks. permit entitled store numbers cell.

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