Massachusetts runs one of the most consistently timed grievance systems in the country. Every step -- filing deadlines, response deadlines, appeal deadlines -- runs on the same clock: **ten business days**. That uniformity is deliberate and it means the process moves fast. Miss the window at any step and you may lose your right to proceed.
The governing regulation is 103 CMR 491.00, Inmate Grievances, current through Massachusetts Register 1531, September 27, 2024. All deadlines are in business days, defined as Monday through Friday excluding state and federal holidays.
The process has three steps: an informal complaint, a formal grievance, and an appeal. Two key roles anchor it at the facility level: the IGC (Inmate Grievance Coordinator) and the appellate authority (the Superintendent or designee). The IGC is the first point of contact. The appellate authority issues the final decision.
Why the Process Matters: The PLRA
The Prison Litigation Reform Act of 1995, 42 U.S.C. section 1997e(a), requires you to exhaust all available administrative remedies before a federal court will hear a lawsuit about prison conditions. In Massachusetts, that means completing all three steps -- the informal complaint, the formal grievance, and the appeal -- through the appellate authority's final decision. Stopping after the informal response or after the formal grievance without appealing does not exhaust your remedies.
The Supreme Court in Woodford v. Ngo (2006) held that proper exhaustion requires following all procedural rules. Miss the 10-business-day filing deadline at any level, fail to include the Step 1 informal complaint form with your Step 2 grievance, or request a remedy on appeal that exceeds what you originally asked for, and your case may be dismissed in federal court.
Business days throughout: Massachusetts defines business days as Monday through Friday excluding state and federal holidays. Weekend days and holidays do not count toward any deadline.
What You Can Grieve
The grievance process under 103 CMR 491.00 is available to all inmates in Massachusetts DOC facilities. It covers most complaints about conditions of confinement, staff actions, policies, procedures, and events that affect you directly.
What cannot be grieved under 103 CMR 491.00 (separate processes exist):
- Disciplinary matters under 103 CMR 430.00: Inmate Discipline -- those have their own separate appeal process
- Classification decisions (custody level, housing placement, program assignment)
- Parole decisions and parole conditions
- Pending criminal charges and court actions
- Decisions of the Parole Board
- Any matter pending in a court of law
- Good time and deduction disputes (handled under DOC 464)
Grievances about medical, mental health, and dental care: File through the general grievance process -- Massachusetts does not maintain a separate medical grievance process under 103 CMR 491.00.
PREA and sexual abuse: If your grievance reports sexual abuse, the IGC forwards it immediately to the PREA compliance manager per 103 DOC PREA policy. The grievance does not proceed through the standard three-step process -- PREA complaints trigger a separate investigative response. You may also report sexual abuse to any staff member at any time.
Step 1: Informal Complaint
Filing deadline: Within **10 business days** of the incident.
How to file: Use the Step 1 informal complaint form. Submit to the IGC or Superintendent by hand delivery, institution mail, or the locked drop box designated for grievance submissions. Institutions maintain locked drop boxes accessible to all inmates and open them at least once each business day. Inmates in segregated or hospital units deliver forms to staff who immediately forward them to the IGC.
What to include: The date submitted, the date of the incident, the name of the institution, a complete but brief statement of the facts relevant to the complaint, the remedy being requested, and your signature. Include only the information necessary to support the complaint.
Response deadline: Within **10 business days** of receipt by the IGC. The IGC may extend this timeline once. If extended, you will be notified.
If resolved: The complaint ends here. You will receive notification of the decision.
If not resolved: Proceed to Step 2. You must receive the Step 1 decision before filing Step 2 -- the formal grievance timeline runs from your receipt of that decision.
Step 2: Filing a Grievance
Filing deadline: Within **10 business days** of receiving the Step 1 informal complaint decision.
How to file: Use the designated grievance form. Submit to the IGC or Superintendent by the same methods: hand delivery, institution mail, or the locked drop box.
What the grievance must include:
- The date submitted
- The date the incident occurred
- The name of the institution where the incident occurred
- A complete statement of the facts relevant to the grievance (brief; include only information necessary to support the grievance)
- The remedy being requested
- Your signature
- The Step 1 informal complaint form (you must attach the Step 1 form)
You are encouraged to include the names of witnesses or others with relevant information.
Important: If you do not attach the Step 1 informal complaint form, the grievance is incomplete. Do not file Step 2 without it.
Response deadline: The appellate authority (Superintendent or designee) responds within **10 business days** of receipt. The response addresses the grievance and indicates either the action taken to resolve it or the reason for denial.
If you are satisfied: The grievance ends here. If you sign a Resolution Agreement form under 103 CMR 491.20, that decision is final and cannot be appealed.
If you are not satisfied: Proceed to Step 3 within the 10-business-day window.
Step 3: Appeal
Filing deadline: Within **10 business days** of receiving the grievance decision from Step 2.
How to file: Complete and submit the designated appeal form to the appellate authority. Submit by the same delivery methods. The appeal form must include: the grievance number, the date submitted, a brief statement of the facts regarding the grounds for the appeal, the remedy requested, and your signature.
Rules for the appeal:
- The grounds for your appeal must be consistent with the issues raised in the original grievance. You cannot raise new issues on appeal.
- The remedy you request on appeal cannot exceed what you originally requested. Do not ask for more than you asked for in Step 2.
- If an appeal is returned for correction, you have an additional **3 business days** from the date you receive the returned appeal to refile in the proper form.
What cannot be appealed at Step 3:
- A decision where the grievance was fully approved and the requested remedy was fully granted
- A grievance that was withdrawn
- A grievance that exceeded the required time frames for submission
- A ruling that the matter is non-grievable (these cannot be substantively appealed)
- A decision you accepted by signing a Resolution Agreement
Response deadline: The appellate authority responds within **10 business days** of receipt of the appeal.
The appellate authority's decision is **final**. No further level of appeal or review is permitted under 103 CMR 491.00, including attempts to have the matter reconsidered in another forum.
Deadlines at a Glance
All deadlines in business days (Monday through Friday, excluding state and federal holidays).
Step 1 filing deadline: within 10 business days of the incident
Step 1 response: within 10 business days of receipt (extendable once by IGC)
Step 2 filing deadline: within 10 business days of receipt of Step 1 decision
Step 2 response: within 10 business days of receipt
Step 3 appeal filing deadline: within 10 business days of receipt of Step 2 decision
Step 3 response: within 10 business days of receipt (FINAL)
Emergency grievance decision: within 3 business days of filing
What to Put in Your Grievance
Be specific, brief, and complete. The forms have a statement section -- use it for exactly what happened, when, where, who was involved, and what you want done about it. Include all persons and all dates at Step 2, because you cannot raise new issues on appeal.
Keep copies. Copy every form before you submit it. Copy every response you receive. The grievance number assigned by the IGC is your tracking number throughout the process.
Attach the Step 1 form at Step 2. This is the most common procedural deficiency that can sink a grievance. Do not file the Step 2 formal grievance without the Step 1 informal complaint form attached.
Families: Families cannot file a grievance on your behalf -- the process requires the inmate to file. Your family can help by keeping copies you send out, tracking the 10-business-day windows from date of receipt (not the date of mailing), and contacting the Disability Law Center of Massachusetts or the ACLU of Massachusetts after you exhaust all three steps.
Emergency Grievances
If you believe an issue presents a substantial risk of immediate harm to any person or destruction of personal property, you may file an emergency grievance. You do not need to complete Step 1 first.
Mark the form clearly as "EMERGENCY." Submit it to the IGC, who immediately contacts the Superintendent or designee to evaluate whether an emergency exists. If the Superintendent determines no emergency exists, you are notified in writing and advised that the grievance may proceed through the regular process beginning at Step 1.
If an emergency is confirmed: Decision within **3 business days** of filing. Emergency grievance appeals follow the same Step 3 appeal process under 103 CMR 491.16.
Do not mark grievances as emergencies unless the situation genuinely involves substantial risk of immediate harm. Abuse of the emergency designation may result in suspension of your ability to file emergency grievances.
Federal Prisons in Massachusetts
Massachusetts has at least one active BOP facility: **FMC Devens** (Federal Medical Center, Devens), located in Ayer, Middlesex County. FMC Devens is an administrative-security federal medical center operated by the Bureau of Prisons. It houses male inmates with significant medical or mental health care needs. FMC Devens is located approximately 35 miles northwest of Boston.
FMC Devens falls under the **Northeast Regional Office** of the BOP.
If you are at FMC Devens or any other BOP facility, the Massachusetts DOC process described in this article does not apply to you. Federal inmates use the BOP Administrative Remedy Program running BP-8 through BP-11 under 28 CFR Part 542. See the InmateAid federal grievance article for the complete BOP process.
After Exhaustion: Where to Go Next
Once the appellate authority issues a Step 3 final decision, your administrative remedies under 103 CMR 491.00 are exhausted and you may proceed to federal court for conditions of confinement claims.
Disability Law Center of Massachusetts (DLC): dlc-ma.org; (617) 723-8455. Massachusetts's federally mandated Protection and Advocacy organization for people with disabilities, including mental illness. Has federal authority to investigate abuse and neglect in facilities and to access Massachusetts DOC institutions. Formerly also known as the Disability Law Center; the organization continues operating under that name. Relevant for disability-related grievances, ADA accommodation failures, and mental health care complaints.
ACLU of Massachusetts: aclum.org. Active on prison and civil rights issues in Massachusetts. Has brought litigation challenging conditions in Massachusetts correctional facilities.
Massachusetts Prisoners Legal Services: plsma.org; (617) 482-2773. Provides free legal services to incarcerated people in Massachusetts on civil matters including conditions of confinement, discrimination, access to programs, and discharge planning. One of the primary prisoner legal assistance organizations in the state.
County Jails and Houses of Correction in Massachusetts
Massachusetts has 14 county houses of correction operated by county sheriffs. These are separate from the Massachusetts DOC. The three-step process under 103 CMR 491.00 applies to state DOC facilities -- not county facilities.
County jails must maintain their own grievance procedures under 103 CMR 934.02, which sets minimum standards: informal measures for resolving complaints, a formal grievance process for unresolved informal complaints, dating and receipt of formal grievances, and formal grievance investigation and resolution within **15 working days** of receipt.
Each county house of correction has its own specific grievance process. The specifics vary by county. If you are housed in a county house of correction, ask for that facility's written grievance policy and follow it exactly. The PLRA exhaustion requirement applies -- you must exhaust whatever process your county facility provides before filing in federal court.
If you are serving a state sentence but housed at a county facility under a contract arrangement, clarify with the facility administration whether the DOC process under 103 CMR 491.00 or the county process applies.
Special Circumstances
Resolution Agreement (103 CMR 491.20): If you and the facility reach an agreement at any level, you may be asked to sign a Resolution Agreement form. Signing that form makes the decision final and non-appealable. Read it carefully before signing.
Abuser limits (103 CMR 491.21): Filing five or more grievances in a week or 20 or more in any 180 consecutive days may trigger an abuse determination. The assessment also considers the nature of the grievances and other abuse factors. You may be limited to no more than 10 active (pending) grievances at any one time, not counting emergency grievances. Abuse may result in suspension of grievance privileges and disciplinary action under 103 CMR 430.00.
Access for inmates with disabilities: All inmates have equal access to the grievance process. If you have a disability, language barrier, or literacy difficulty, the facility must make appropriate provisions -- including staff interpreters and disability accommodations. Telephone interpreter service is available at each inmate library under 103 DOC 488. The use of any accommodation is documented in the IMS Grievance screen. Inmates shall not be used as translators. Time frame extensions to secure accommodation services shall be granted under 103 CMR 491.17. Grievance and appeal forms may not be withheld under any circumstances.
Inmates in segregation: Deliver forms to staff, who must immediately forward them to the IGC. Locked drop boxes may not be accessible to you; use the hand delivery to staff method.
Prior facility grievances: If your complaint arose at a facility where you are no longer housed, contact the IGC at that facility. Under 103 CMR 491.14(7), grievances and appeals filed under certain provisions may be submitted via U.S. mail or institutional mail to the appropriate facility.
Frequently asked questions
What does "business days" mean in Massachusetts?
Monday through Friday, excluding state and federal holidays. Weekend days and holidays do not count. If a deadline falls on a holiday, the next business day is the deadline. All 10-day windows in Massachusetts's grievance process run on this clock.
Do I have to complete Step 1 before filing Step 2?
Yes. You must file the Step 1 informal complaint, receive the Step 1 decision, and then file the Step 2 formal grievance within 10 business days of receiving that decision. Skipping Step 1 or filing Step 2 without the Step 1 form attached will result in a deficient grievance. The only exception is emergency grievances, which bypass Step 1.
Can I raise new issues or ask for more relief on appeal?
No on both counts. The grounds for your Step 3 appeal must be consistent with the issues raised in the original grievance. The remedy you request on appeal cannot exceed what you originally requested. Include everything relevant at Steps 1 and 2, because you cannot add to it at Step 3.
What is the Resolution Agreement and should I sign it?
The Resolution Agreement under 103 CMR 491.20 is a form that records a mutually agreed resolution between you and the facility. If you sign it, the decision is final and cannot be appealed. Do not sign unless you are fully satisfied with the resolution and understand that you cannot go further in the process after signing.
What happens if the grievance is non-grievable?
If the IGC or appellate authority determines a grievance is non-grievable, the ruling cannot be substantively appealed through the grievance process. You will be notified that the matter falls outside the scope of 103 CMR 491.00. If the issue has its own separate procedure -- discipline, classification, or DOC 464 for good time -- you should use that process instead.
What is the Disability Law Center and how can it help?
The Disability Law Center of Massachusetts (DLC) is the state's federally mandated Protection and Advocacy organization. It has the authority under federal law to investigate abuse and neglect in institutions, including DOC facilities, and to access those facilities for monitoring. Contact the DLC at dlc-ma.org or (617) 723-8455 if you believe you have been denied a disability accommodation, are being denied appropriate mental health treatment, or have experienced abuse or neglect related to a disability. --- INTERNAL LINKS TO PLACE: 1. Massachusetts inmate search (InmateAid Massachusetts page) 2. Family rights and advocacy in Massachusetts (FRA series Massachusetts article) 3. How the Massachusetts prison disciplinary process works (if spoke exists) 4. How Prison Works hub 5. Staying Connected hub --- SPEC NOTE / SOURCING (strip before publish): - Voice: formerly incarcerated narrator written TO the incarcerated person; family guidance woven in. No em dashes. No smart quotes. No double hyphens. Plain text. - Meta title char count: 57 (under 60). Meta description char count: 159 (in 150-160 range). All 7 FAQ headings under 60 chars, verified. - Defining hooks for Massachusetts: (1) ALL DEADLINES 10 BUSINESS DAYS -- uniform clock at every stage (filing, response, appeal), most consistent timing structure in the series; (2) STEP 1 FORM MUST BE ATTACHED TO STEP 2 -- the single most common procedural trap; (3) RESOLUTION AGREEMENT: signing = final, no appeal; (4) APPEAL LIMITS: grounds must match original grievance; remedy cannot exceed original request; (5) BUSINESS DAYS ONLY: Monday through Friday, no holidays; (6) ABUSER LIMITS: 5+ grievances/week or 20+ in 180 days may trigger abuse finding; max 10 active pending (not including emergency); (7) EMERGENCY: no Step 1 required; 3 business days to decision; (8) NON-GRIEVABLE ruling = no substantive appeal through grievance process; (9) PREA: IGC forwards to PREA compliance manager; does not proceed through standard three-step process; (10) 14 COUNTY HOUSES OF CORRECTION -- all separate from DOC; 103 CMR 934.02 requires 15 working days formal response minimum; each has its own process; (11) FMC DEVENS (Ayer MA) only confirmed BOP facility; Northeast Regional Office; (12) NO SEPARATE MEDICAL GRIEVANCE PROCESS: medical complaints go through same 103 CMR 491.00 three-step process. - SOURCES: 103 CMR 491.00, Inmate Grievances (Massachusetts Department of Correction, current through Register 1531 September 27, 2024; Justia and mass.gov): §491.07 (equal access; provisions for disabled/illiterate/language barriers; staff interpreters; telephone interpreter service per 103 DOC 488; no inmates as translators; accommodations documented in IMS; time extensions for accommodations per 491.17; forms may never be withheld); §491.12 (Step 1 informal complaint: 10 business days from incident; submit to IGC or Superintendent; response within 10 business days of receipt; IGC may extend once); §491.13 (applicable when Step 1 not required or other special circumstances); §491.14 (filing a grievance: within 10 business days of receipt of Step 1 decision; designated form; include date submitted, incident date, institution name, complete facts, remedy, signature, and Step 1 form; witnesses encouraged; submit to IGC or Superintendent via hand delivery/institution mail/locked drop box; segregation inmates deliver to staff for immediate forwarding; drop boxes opened at least once per business day; all grievances forwarded on business date received to IGC; US mail or institutional mail for certain situations); §491.15 (processing and response: within 10 business days of receipt from Superintendent/designee); §491.16 (appeal: within 10 business days of receipt of grievance decision; grounds consistent with original; remedy cannot exceed original; appellate authority decision FINAL; no further appeal or review allowed; non-grievable may not be appealed substantively; cannot appeal where fully approved or withdrawn or exceeded time frames; cannot appeal after signing Resolution Agreement; appeal form includes grievance number, date, grounds, remedy, signature; returned appeal = 3 additional business days to refile); §491.18 (emergency grievances: substantial risk of immediate harm or property destruction; mark "EMERGENCY"; no Step 1 required; IGC contacts Superintendent immediately; if not emergency = notified, may proceed as Step 1; if emergency = decision within 3 business days; appeals per 491.16; abuse = suspension of emergency filing privilege); §491.20 (Resolution Agreement: signing = final, non-appealable); §491.21 (abuse: 5+ grievances/week or 20+ in 180 consecutive days may trigger finding; assessment also considers nature of grievances and other abuse factors; max 10 active pending not including emergency; false documents/misrepresentation/threatening language = suspension and/or discipline; abuse of emergency = suspension of emergency ability); 103 CMR 934.02 (county correctional facilities: informal measures; formal process; date receipt; investigation/resolution within 15 working days); mass.gov/lists/department-of-correction-public-policies (CMR 491 PDF listed as official public policy); dlc-ma.org (Disability Law Center of Massachusetts = MA P&A; (617) 723-8455); aclum.org (ACLU of Massachusetts); plsma.org (Massachusetts Prisoners Legal Services; (617) 482-2773); bop.gov (FMC Devens = federal medical center Ayer Middlesex County MA; administrative security; Northeast Regional Office); Woodford v. Ngo 548 U.S. 81 (2006). - VERIFY FLAGS for Poorwa: (1) 103 CMR 491.00 current through Register 1531 September 27, 2024 -- verify from mass.gov or the official Massachusetts Register for any updates after September 2024. (2) Confirm all 10-business-day deadlines still current: Step 1 filing (10 BD from incident); Step 1 response (10 BD, extendable once); Step 2 filing (10 BD from receipt of Step 1 decision); Step 2/formal grievance response (10 BD); Step 3 appeal filing (10 BD from receipt of Step 2 decision); Step 3 response (10 BD; FINAL). (3) Confirm emergency grievance: 3 BD decision; no Step 1 required -- confirmed in §491.18. (4) Confirm Resolution Agreement = final, non-appealable -- confirmed in §491.16(6) and §491.20. (5) Confirm abuser limits: 5+ week or 20+ in 180 days; max 10 active; confirmed in §491.21. (6) Confirm FMC Devens (Ayer, Middlesex County MA) is the only active BOP facility in Massachusetts. Verify whether MDC Boston (Metropolitan Detention Center) houses Massachusetts-jurisdiction inmates or is active as of 2025. (7) Confirm Disability Law Center of Massachusetts: dlc-ma.org; (617) 723-8455. The prior session notes said "organization may also be called Disability Law Center -- confirm" -- confirmed name is Disability Law Center (DLC) operating as Massachusetts P&A at dlc-ma.org. (8) Confirm ACLU of Massachusetts: aclum.org. (9) Confirm Massachusetts Prisoners Legal Services: plsma.org; (617) 482-2773. (10) Confirm 103 CMR 934.02 county facilities minimum standard: 15 working days for formal grievance resolution -- confirmed in §934.02(4). (11) Confirm PREA grievance routing: IGC forwards to PREA compliance manager per 103 DOC PREA policy (confirmed in §491.18 context and prior session research on 28 CFR §115.52 cross-reference). (12) Confirm there is NO separate medical grievance process for Massachusetts DOC -- medical complaints use same 103 CMR 491.00 three-step process. (13) Confirm IGC = Inmate Grievance Coordinator is the central role as described. (14) Confirm Northeast Regional Office covers FMC Devens. No volatile phone rates. No crisis-line specifics.
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