Document: 444 U.S. 646 100 S.Ct. 840 63 L.Ed.2d 94 COMMITTEE FOR PUBLIC EDUCATION AND RELIGIOUS LIBERTY et al., Appellants,v.Edward V. REGAN, etc., al. No. 78-1369. Argued Nov. 27, 1979. Decided Feb. 20, 1980. Syllabus After a New York statute that appropriated public funds to reimburse both church-sponsored and secular nonpublic schools for performing various services mandated by the State, including administration, grading, reporting of results tests, state-prepared teacher-prepared had been held be violative Establishment Clause First Amendment in Levitt v. Committee Public Education, 413 472, 93 2814, 37 736, Legislature enacted new directing payment costs incurred them complying with certain state-mandated requirements, requirements as testing (pupil evaluation, achievement, scholarship college qualification tests) recordkeeping. The statute, unlike earlier version, also provides means which state are audited, thus ensuring only actual providing covered reimbursed out funds. District Court ultimately upheld statute. Held : does not violate Fourteenth Amendments. Pp. 653-662. (a) A legislative enactment contravene if it has purpose, its principal or primary effect neither advances nor inhibits religion, foster an excessive government entanglement religion. 653. (b) purpose educational opportunity quality will prepare citizens challenges American life. statutory plan calls tests prepared State administered on premises personnel schools, which, however, have no control over contents tests. Although some graded school personnel, view nature deal academic matters, grading employees affords outcome any there is substantial risk examinations can used religious purposes. While recordkeeping reimburses pertain furnishing information regarding student body, faculty, support staff, physical facilities, curriculum, attendance, related program, nevertheless they part teaching process cannot ideological outlook. Thus, reimbursement so law primarily secular, rather than effect. Wolman Walter, 433 229, 97 2593, 53 714, controlling. 654-657. (c) invalid simply because direct cash administering state-prescribed them. Grading furnished function effect, this changed pays paying independent service perform task. same obtain functions 657-659. (d) ample safeguards against misdirected reimbursement. private discrete clearly identifiable, straightforward susceptible routinization characterizes most schemes. On face, therefore, suggests entanglement, bad faith upon future would predicated read into inevitability. 659-661. (e) decision Meek Pittenger, 421 349, 95 1753, 44 217, interpreted holding aid even sectarian forbidden, or, more broadly still, suspect since pervasively intermixed each activities. instant case properly put case, supra, together sustained reimbursements involved here shown sufficient clarity serve State's legitimate ends without appreciable being transmit teach views. 661-662. D.C., 461 F.Supp. 1123, affirmed. Leo Pfeffer, Brooklyn, N. Y., appellants. Shirley Adelson Siegel, Albany, appellees. Richard E. Nolan, City, intervenor schools. Mr. Justice WHITE delivered opinion Court. 1 issue constitutionality under Amendments United States Constitution authorizing use law. Education Levitt, 1123 (1978). We noted probable jurisdiction, 442 928, 99 2856, 61 295 (1979), now affirm Court's judgment. 2 * In 1970, State. expensive these was "administration, compiling examinations." 1970 N.Y.Laws, ch. 138, § 2. Covered included common traditional legislature stipulated "[n]othing contained act shall construed authorize making worship instruction," 8, did provide audit financial records ensure were 3 736 (1973) (Levitt I ), struck down Clause.1 majority focused concern statute's spent troubled that, "despite obviously integral role such total process, attempt made available, assure internally free instruction." Id., at 480, S.Ct., 2819. It assumed teachers evade constitutional requirements. Rather, observed "the potential conflict 'inheres situation,' constitutionally compelled state-supported activity indoctrination." Ibid., quoting Lemon Kurtzman, 403 602, 617, 91 2105, 2113, 29 745 (1971). Because failed required assurance, challenged deemed constitute impermissible 4 distinguished holdings Everson Board 330 1, 67 504, L.Ed. 711 (1947), Allen, 392 236, 88 1923, 20 1060 (1968), grounds those cases, form bus rides loaned textbooks schoolchildren, "of substantially different character" from presented I. I, U.S., 481, Teacher-prepared process. But crucial feature according Court, " '[i]n terms involving aspect morals subjects, textbook's content ascertainable, but teacher's handling subject not.' 2819, 2113. inherent teacher discretion devising, presenting, failure method auditing exclusively services, disabled withstanding scrutiny.2 5 Almost immediately attempted eliminate defects scheme. 1974,3 directed York's Commissioner apportion pay result compliance 6 state's pupil evaluation basic data system, regents examinations, statewide plan, uniform procedure attendance reporting, other similar procedures." 1974 507, 3. 7 Of signal interest importance light scheme preparation, Further, version payments 7. 8 tailored comport reasoning invalidated respect procedure. 414 1174 (1976) II ). understood 217 (1975), require result. Meek, decided after unconstitutional two Pennsylvania statutes insofar provided auxiliary instructional material equipment apart sectarian. ruled "religion-pervasive" institutions, education "inextricably intertwined" "[s]ubstantial . necessarily enterprise whole" hence amounts forbidden establishment 366, 1763-1764. 9 appealed vacated judgment remanded our 714 (1977). remand "state may extended [a sectarian] school's activities high degree certainty value present transmission views." F.Supp., 1127. Applying "more flexible concept," ibid., concluded Clause. 10 Our jurisdiction review lies 28 U.S.C. 1253. 11 Under precedents See Roemer Maryland Works Bd., 426 748, 96 2337, 2348, 49 179 (1976); Nyquist, 756, 772-773, 2955, 2965, 948 (1973); 612-613, 2111. 12 reviewed relevant Ohio authorized, inter alia, expenditure 13 "[t]o supply pupils attending within district standardized scoring state." Rev.Code Ann. 3317.06(J) (Supp.1976). 14 provision, aimed young adequate education, reflected purpose. As BLACKMUN stated, "[t]he utilized fulfill compulsory-education requirement meet standards instruction, examine fulfilled." 240, 2601. 479-480, n. 7, 7; 614, 2112. further explained provision test This "serves prevent teaching, avoids kind religion found [I]." aiding Ibid. inability eliminates need supervision gives rise entanglement." 240-241, 2601-2602. concerned passed III 15 agree Walter controls case. before us identical, differences dimension. Addressing first provisions, we note here, Wolman, behind enactment: "[T]o [New York] life last decades twentieth century." 1. Also like personnel. whatsoever State; three types involved, one service, well cost all afforded 16 types: program (PEP) comprehensive ("end-of-the-course") achievement Regents Scholarship College Qualifications Tests (RSCQT). 1125. Each addresses subject; none deals matter.4 RSCQT Department correctly [RSCQT examinations] purposes through non-existent." 1128. PEP universally grades optionally grade 9, employees, "consist entirely objective, multiple-choice questions, machine and, hand, afford State." based courses study 12, largely objective questions answers." Even though include essay question two, chance answers state-drafted subjects could gauge student's grasp ideas "minimal," especially "complete" procedures designed guard serious inconsistencies misuse questions. 1128-1129. These submission completed off premises. 17 see reason differ factual legal characterization arrived 2601, result"; factor teaching," avoiding prior cases. correct concluding 18 school. law, "[e]ach year, must submit Basic Educational Data System (BEDS) report. report contains curriculum Schools annually showing record minor who school." 1126. characterized "ministerial [and] lacking use." 1130. tasks "be outlook." Reimbursement religious, effect.5 IV 19 invalidate If thereby relieving expense preparing their own left mission school, problems posed might directly education. already concluded, conclusion function. observed, "[p]utting aside whether affairs institution, appear why cover specified advancing performed State-furnished materials effect." 1129. contrary insist drawing distinction between do task, regardless performs either event, relieved state-required, state-furnished examinations. decline embrace formalistic dichotomy bears little relationship sense realities finance. None cases requires involve cash. "has accepted recurrent argument institution frees spend resources ends." Hunt McNair, 734, 743, 2868, 2874, 923 (1973).6 reach services. 21 course, likely effective insuring , 2819; 774, 2966; 619-622, 2114-2116. see, V 22 recognized "[w]here determining what aid, any, monitor day-to-day engage onerous, oversight, make on-site judgments time character, too great permit governmental involvement." examining operation, subsidized Statute pose (footnote omitted). 23 described reimbursement: 24 "Schools seek 'maintain separate account system accounts expenses rendering' reimbursable N.Y. application additional reports documents prescribed Commissioner. Reimbursable proportionate share teachers' salaries fringe benefits attributable administration State-required performance, plus supplies contractual expenditures processing Applications approved until audits vouchers submitted substantiate claims. Audit Control inspect recipient order verify rendering reveals received amount excess costs, returned immediately. ." 1126, 507. 25 identifiable." 1131.7 furthermore, inevitability predicated.8 VI 26 urged unsupportable said every Brief Appellants 9-11. difficulty position author functions, otherwise themselves intimately connected processes. Yet point suggested inconsistent Meek. Unless silently disavowing whole part, stand broad proposition appellants espoused II. 27 That narrowly POWELL his "I am persuaded," he said, "nor hold, loans equipment" inescapably advancement 263, 2613-2614. And premise aims With indicators it, say past furnish litmus-paper distinguish permissible religiously oriented easy; stir deep feelings; divided among ourselves, perhaps reflecting views people country. What decisions tended avoid categorical imperatives absolutist approaches end range possible outcomes. course sacrifices predictability flexibility, promises continuing interaction courts States—the former charged interpreting upholding latter seeking youth—produces single, encompassing construction Affirmed. 30 BLACKMUN, whom BRENNAN MARSHALL join, dissenting. 31 fear, takes long step backwards inevitable controversy emerges when continues parochial 32 thought (1977) (which concedes, ante, 654, controlling authority here), fixed line appropriate not. straight one. be, 5-4 vote, barrier parental fares transportation children 6-3 lending students secondary Amendments, yet, (1971), down, Religion Clauses, respectively, supplemented authorized "purchase" "secular services" previous (1973), where nullified programs "maintenance repair" facilities equipment, tuition tax relief parents qualify reimbursement, Sloan Lemon, 825, 2982, 939 portion expenses. (1976). 33 But, repeat, line, wavering indeed drawn albeit combinations Justices, perceive rule favor almost saw fit provide, kind, turn joining Justices center issues consensus decisions. Now, joined invalidating depart validate. able attribute defection about emotional persuasion good-faith worth nod approval. 34 analyze amended produced response defeat imperative, seems me, operational details precision fewer generalities today. One should give passing glance selected provisions ignore considerations prompted three-judge initially unanimously hold revised unconstitutional, (SDNY 1976) ) Judge Ward, persuasive dissent III, 1131 1978), remand, vigorously colleagues meanwhile minds, mistakenly my view. 35 653, judges 1131, correct, recognizing "mode analysis defined three-part emerged decisions." 235-236, 2599 (plurality opinion). To pass muster test, challenged, Chapter amended, "must religion." 2599. 36 trouble agreeing 507 manifests clear 479, therefore evaluate remaining inquiries test. deciding fosters affairs, keep focus assistance $8-10 million expended going associated reporting. court 1% 5.4% budget individual receiving Moreover, opposed third parties rendered money paid designated availability 38 differs significantly inWolman Walter. For example, Ohio's neutral organizations. type 238-239, 2601 39 Similarly, forms assistance. therapeutic, remedial, guidance property. health pupils, premises, basis recognition number e. g., 364, 368, 17, 1764, schoolchildren advance 241-248, 2601-2605. "unique presumption," id., 252, 18, 2607, created reaffirmed time. 359-362, 1760-1761 opinion); 388, 1774 (opinion concurring dissenting part). 40 clear, At very least, then, today goes approving gone beyond merely failing approve finding Pittenger whole. practice loaning "even loan ostensibly limited [because] enterprise." 250, 2606. vein, disapproved field-trip furthered goals surveillance 252-255, 2608-2609. 41 re-enforces purposes, runs furthering pervades functioning specifically 42 "[F]aced [the issue], reality predominantly many church-related elementary then characterize statute] channeling earmarked 'when flows pervasive subsumed mission,' 923." 365-366, 1763. 43 249-250, 2606; 781-783, 39, 2969-2971, 39. principles announced conclude vast aided typify religious-pervasive integrated accredited combined sectarian-secular school-age pupils. continue incur outlined else lose accreditation York. See, N.Y.Educ.Law §§ 3210, 3211 (McKinney 1970). met available such, informational, compensated essential overall way instruction essential. Therefore, just subsidy Clause, performance interdicted. stated 45 "The [religious] education; is, large extent, devoted inculcation values belief. 616-617, [2105], Substantial accordingly, '[T]he hand schools' existence. Within inextricably intertwined.' 657, 2133 BRENNAN, J.)." 1763, quoted 46 true keeping fulfilling properly, necessary determine classes Accordingly, whole; subsidizes makes attempt, possible, attendance-taking desire laws complied with. permit. 774-780, 2966-2969; 47 constitutes operating aids whole, violation Amendment. 48 Beyond this, extent. Unlike exercise subjective exercised inculcate "comprehensive, discriminating, inevitably required." 619, 2114. regard vary year offered future. continually connection offend This, too, involvement lead adjudication disputes others opportunities permitted. Cf. Cathedral Academy, 434 125, 98 340, 54 346 50 Finally, fostered sure employees' difficult how adequately discover ongoing issue. extensive forbids. 617-621, 2113-2115. fail uncomfortable with, so-called "ample safeguards," 659, majority, rest assured. 51 consequently, least extent 52 reverse STEVENS, BLACKMUN's demonstration today's precedent, vote rests fundamental disagreement approval staff taking another ad hoc groping rationale decision, taken equally conducting fire drills constructing maintaining fireproof conduct classes. Though subsidies represent expedient fiscal policy, firmly believe 55 adoption confirms view, expressed 264, 2614, (STEVENS, J., part), 775, 2358, dissenting), entire trying justify abandoned. Rather sisyphean task patch "blurred, indistinct, variable barrier" 2112, 745, resurrect "high impregnable" wall church constructed Framers 512, 711. "Congress respecting repeatedly applicable 351, 1756, (1975); Cantwell Connecticut, 310 296, 303, 60 900, 903, 84 1213 (1940). concluded: "We lump-sum 138 Since single per-pupil allotment variety potentially reduce corresponding legislative, judicial, function." 482, 2820. 508, following 3601 Supp. 1971-1979), part: "Section Legislative findings. hereby finds declares that: responsibility century. "To responsibility, duty evaluate, procedures, effectiveness educated capabilities. "In objectives accomplished local districts. "More seven hundred thousand comply compulsory matter render evaluating. "§ Apportionment. commissioner qualifying years beginning July first, nineteen seventy-four, equal during preceding procedures. Audit. No except vouchers, insure lawful proper. department apportionment pursuant referred section act. determined enumerated act, amount. 9. enacting chapter intention rules regulations promulgated thereunder inapplicable person situation, parts thereof remain fully promulgated, persons similarly situated situations affected thereby." "standardized reading mathematics developed published study." App. 28a. Comprehensive correspond areas: biology; bookkeeping accounting II; business law; mathematics; chemistry; earth science; English; French; German; Hebrew; Italian; Latin; 9th-year 10th-year 11th-year physics; shorthand transcription; social studies; Spanish. 1125, parts. Part "test general scholastic aptitude, containing intended measure ability think accurately." 38a. "a studied Clearly, character. function, parties' stipulation facts, involves "collection requested homeroom teachers, secretaries administrators; compilation correlation data; filling mailing report." 31a. ministerial terms. 37a. lion's attendance-reporting. According applications intervenor-defendant 1973-1974 85% 95% accounted attendance-taking, negligible represents compensation service." wrote 747, 2345, omitted): blind fact institution's ends. impermissible, protected police departments, sidewalk kept repair. never discriminated way." 134, 346, ("[T]his freeing uses invalidates institutions ."). wrote: identifiable. record-keeping hardly confused her possibility fraud mistake activities, careful anticipated safeguard inflated addition, highly routinized, given size class enabling check claims filed maintained hundreds supervision." find merit whatever appellants' argument, below, raise danger political divisiveness along lines. 16-18. reference discord. "actual costs." Thus provoke battles appropriations, eventuality conceivably occur appropriations. 794-798, 2976-2978, (1973).

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