2024 Justice Gap Study Shows Growing Unmet Legal Needs Amid Shifting Attorney Workforce Wednesday, May 28, 2025 Categories: News Releases The State Bar of California today released findings from its 2024 Justice Gap Study, revealing that the civil legal needs of Californians remain widespread and unmet at alarming rates—conditions that have worsened since the first California Justice Gap Study, completed in 2019. The 2024 study finds that legal needs affect Californians at every income level while the supply of attorneys available is insufficient to meet the growing demand for legal help. A Persistent Justice Gap for Californians Across All Income Levels A centerpiece of the 2024 study is a statewide survey of over 6,000 Californians conducted in partnership with NORC at the University of Chicago. The survey shows a persistent and deepening divide between Californians’ civil legal needs and the services available to meet them. While lowest-income Californians continue to be the most impacted, the justice gap cuts across the economic spectrum. More California households are experiencing civil legal problems compared with five years ago. In 2019, 55 percent of California households experienced at least one civil legal problem in the previous 12 months. The 2024 survey suggests that this figure has increased, with nearly three-quarters of California households reporting at least one problem. Civil legal problems are widespread across all income groups in California, with little variation in prevalence—between 72 and 75 percent of households in every income group experienced at least one civil legal issue in the past year. In 2019, Californians sought legal help for 32 percent of their civil legal problems. Results from the 2024 survey suggest that this share has declined, with Californians currently seeking legal help for just 18 percent of their problems overall and 29 percent of problems that substantially impact their lives. The pattern holds across all income groups—most Californians do not seek legal help for the majority of their civil legal problems, even those that substantially impact them. Californians do not receive any or enough legal help for 85 percent of their civil legal problems, the same as reported in 2019. This trend persists at all income levels. Californians Are Turned Away Despite Valid Legal Claims Even when Californians consult with lawyers about their civil legal problems, many are turned away—not due to a lack of merit, but because their cases are deemed financially unviable. According to the 2024 survey: When Californians speak to lawyers, they are told they have a valid case and should pursue legal action for one in three of their problems; for one in five, they are told their case is valid but not financially worthwhile for the lawyer to pursue. Barriers to Seeking Legal Help Are Rooted in Knowledge, Trust, and Affordability Most Californians are unaware that lawyers or other legal professionals can help resolve many of the everyday civil legal problems they face. Lower-income Californians are more likely to have uncertain or negative perceptions of the civil legal system than middle- and high-income Californians. Just six in 10 Californians are confident they could find an affordable lawyer or legal professional, with lowest-income Californians the least confident. Cost concerns remain a key barrier, with 27 percent of Californians reporting they were too worried about the cost to seek legal help. Nearly half said they would only consult a lawyer if they didn’t have to pay anything upfront, and the average amount survey respondents said they would be willing to pay an attorney for an hour consultation was $153. “The justice gap is not just persistent—it is growing,” said Leah Wilson, Executive Director of the State Bar of California. “Millions of Californians, including many who don’t qualify for free legal services, face serious civil legal problems with no meaningful access to help. We must rethink the current paradigm for how to close the justice gap—with a willingness to explore new service delivery models and responsible licensure reform—to build a more inclusive and responsive civil legal system.” The Need for Immigration Services The 2024 study reveals a troubling mismatch between the rising demand for immigration legal services and the limited number of attorneys available to meet that demand. Over a quarter of California’s population—approximately 11 million people—are foreign born, with nearly 5 million lacking U.S. citizenship. According to the 2024 NORC survey, 9 percent of California households experienced an immigration-related legal problem, yet they received help for just 40 percent of these problems. Despite this need, just 2 percent of active attorneys in California report practicing immigration law, creating a significant access gap. Small Businesses Face Legal Barriers That Threaten Growth The 2024 California Justice Gap Study reveals that many of the state’s 4.1 million small business owners face substantial challenges in securing affordable legal help—challenges that directly impact their ability to operate and grow, particularly for entrepreneurs in underserved regions. Four in 10 small business owners reported encountering at least one legal issue in the past year. Half needed legal assistance with drafting, reviewing, or negotiating contracts, 40 percent required legal guidance on tax law or financial matters, while 38 percent faced issues related to compliance, governance, or permits. Despite these needs, small business owners often go without professional legal help: When confronted with legal issues, they were more likely to seek answers online than consult a lawyer. Among those who did not speak with an attorney, 67 percent cited cost as a primary concern. Of business owners whose recent legal needs went unmet, 85 percent reported significant financial consequences, including lost revenue and missed opportunities for business growth. A Shifting Attorney Workforce Available to Meet Demand California is experiencing significant shifts in its attorney workforce: Most counties have seen a decline in the number of active attorneys. As a result, the number of counties classified as “attorney deserts”—areas with insufficient access to licensed active attorneys—has grown from 11 to 16 over the last decade. Most counties in California are attorney deserts or at risk of becoming one. Only 24 percent of California’s $57.8 billion legal market now serves individuals, with the rest focused on corporate and institutional clients. Since 2016, the number of in-house counsel in California has increased by 45 percent. Pro Bono Participation Remains Limited While many attorneys provide pro bono service, most do not meet recommended service levels. In 2022, only 45 percent of California attorneys provided any pro bono services, consistent with 2016 levels and below the 57 percent of attorneys nationwide who provided pro bono services. Nearly one in four California attorneys met the State Bar’s Pro Bono Resolution’s goal of providing 50 hours or more of pro bono services in 2022, up from 20 percent in 2016. Among California attorneys who did provide pro bono service, the average number of annual hours provided increased by 47 percent, from 79 hours in 2016 to 116 hours in 2022, indicating deeper engagement from a smaller subset of attorneys. Justice Gap Study Recommendations To address the persistent and growing justice gap, the 2024 Justice Gap Study includes the following recommendations: Continue to address the legal aid recruitment and retention crisis by expanding paid law student internships and post graduate fellowship opportunities: By investing in the next generation of public interest lawyers, the State Bar aims to build a more sustainable pipeline of legal professionals dedicated to serving communities in need. Develop a statewide pro bono outreach and engagement plan, with targeted outreach to law students, law schools, and attorneys. Explore opportunities and partnerships among legal aid, pro bono stakeholders, and Lawyer Referral Services (LRS); public defenders and LRS; and small businesses and LRS. Collaboration on Solutions Needed The 2024 Justice Gap Study paints a stark picture: Californians have growing civil legal needs with the vast majority going without help. Structural barriers—cost, knowledge, geographic isolation, and insufficient attorney supply—have deepened, despite significant investments, initiatives, and progress since 2019. The State Bar calls on policymakers, the legal profession, and community stakeholders to take bold steps to increase access to civil legal services for all Californians. Read the 2024 Justice Gap Study. ### Follow the State Bar online LinkedIn, X, Facebook, Instagram, and YouTube The State Bar of California's mission is to protect the public and includes the primary functions of licensing, regulation and discipline of attorneys; the advancement of the ethical and competent practice of law; and support of efforts for greater access to, and inclusion in, the legal system. Previous Article Next Article