Title: Angstadt v. Red Clay Consolidated School District
Citation: N/A
Docket Number: 548, 2009
State: Delaware
Issuer: Delaware Supreme Court
Date: July 8, 2010

IN THE SUPREME COURT OF THE STATE OF DELAWARE 
 
FRANCES V. ANGSTADT, 
§ 
 
 
§ 
No. 548, 2009 
 
Plaintiff-Below, 
§ 
 
Appellant, 
§ 
Court Below:  Superior Court 
 
 
§ 
of the State of Delaware in and 
v. 
 
§ 
for New Castle County 
 
 
§ 
RED CLAY CONSOLIDATED 
§ 
C.A. No. 08C-03-051 
SCHOOL DISTRICT, 
§ 
 
 
 
§ 
 
Defendant-Below, 
§ 
 
Appellee. 
§ 
 
Submitted:  April 13, 2010 
   Decided:  July 8, 2010 
 
Before STEELE, Chief Justice, HOLLAND, and RIDGELY, Justices. 
 
 
Upon appeal from the Superior Court.  AFFIRMED. 
 
 
Timothy J. Wilson, Esquire, (argued) of The Wilson Firm, LLC of Newark, 
Delaware for appellant.   
 
 
Barry M. Willoughby, Esquire, (argued) and Michael P. Stafford, Esquire, of 
Young, Conaway, Stargatt & Taylor, LLP of Wilmington, Delaware  for appellee. 
 
 
 
 
 
 
 
 
RIDGELY, Justice: 
 
 
2
Dr. Frances Angstadt appeals from the Superior Court’s decision granting 
summary judgment in favor of Red Clay Consolidated School District on her 
complaint alleging wrongful termination of employment as a teacher.  Dr. Angstadt 
contends that the School District did not substantially comply with the procedural 
requirements of 14 Del. C. § 1410(b) in its decision not to renew her employment 
contract.  She argues the School District improperly considered four 
correspondences that were not properly placed in her personnel file prior to her 
notice of termination and that the Superior Court erred in construing the term 
“other documented materials” to include these four correspondences.  She also 
argues that the School District improperly considered unfavorable information 
within a Lesson Plan Analysis without placing her on an individual improvement 
plan.   
Because the four correspondences relied upon by the School District were 
not “properly placed” in Dr. Angstadt’s personnel file as required by §1410(b), 
they were improperly considered.  The unfavorable information within the Lesson 
Plan Analysis was properly considered because it constituted “other documented 
material” within Dr. Angstadt’s personnel file.  Although flawed, the School 
District’s decision not to rehire substantially complied with the procedural 
requirements of §1410(b).  Accordingly, we affirm. 
 
 
3
Facts and Procedural History 
Cab Calloway School of the Arts, a member of the School District, hired Dr. 
Angstadt as a drama and stage technical teacher for the 2006-2007 school year.  
During the course of the year, Dr. Angstadt received four correspondences 
addressing concerns about her interactions with students and her teaching abilities.  
None of them were placed in her personnel file.  These correspondences, along 
with a lesson plan analysis, served as the reasons for the School District’s decision 
not to renew Dr. Angstadt’s employment contract.   
Email concerning Dr. Angstadt’s verbal reprimand of a student 
The first correspondence was an e-mail.  On November 3, 2006, Dean Julie 
Rumschlag overheard Dr. Angstadt verbally reprimanding a student.  Later that 
day, Dean Rumschlag emailed Dr. Angstadt concerning the incident:  
I was shocked to see the way you spoke to [Student] earlier today 
when I passed by your classroom and he was standing in the hallway.  
What I saw was you yelling at him well beyond what is necessary as a 
teacher, particularly in this circumstance…I heard you yell at him, 
screaming that you had told him to stand out in the hall stand here! 
You were the one that was not in control of the situation.  You are the 
one who needs to be professional and remain calm in situations such 
as this one when students do not comply with your requests. 
In a responding email, Dr. Angstadt admitted that her interaction with the 
student was “severe” and would “not happen again.”  It is undisputed that this 
email was never placed in Dr. Angstadt’s personnel file. 
 
 
4
Meeting and follow-up email regarding a parent’s concerns 
The second correspondence was also an e-mail.  On November 29, 2006, 
Dean Rumschlag met with Dr. Angstadt to discuss concerns about Dr. Angstadt 
reported to the school by a parent.  After the meeting, Dean Rumschlag emailed 
Dr. Angstadt: 
Thanks for meeting this afternoon about the concerns brought 
up by the parent.  After you left, I did go back over the notes again 
and wanted to clarify a few items. 
We already talked about two concerns addressed: 
1. Seat time vs. Acting time and finding that balance between 
them. 
2. Interactive with kids appropriately, i.e., not losing control as 
an adult or yelling at them. 
3. Making sure expectations are clear, i.e., why certain scenes 
are inappropriate, and making sure they know those 
guidelines in advance. 
The other things that I noticed in the notes were: 
1. A concern of a great deal of work being mostly verbal, 
boring, tedious, i.e., students taking notes on what you are 
talking about without getting visual cues.  One reference 
was a “lecture” on thespians and someone asking what you 
meant – the inference was that they got the impression they 
should know that already, and you got mad for asking.  
(Maybe this refers back to mixing it up a bit, and always 
making sure you consider students’ perceptions of what they 
are assigned to do. 
2. The other concern was that students are not clear about 
timelines, deadlines, etc.  She mentioned that due dates were 
not clear, nor were times that they were going to need to be 
prepared to be on stage clear.  (This may refer back to #3 
above – making sure students know the expectations across 
the board.) 
 
5
These may not really be concerns, but they were the impression of this 
particular child/parent, so it’s good for you to be aware of this 
feedback. 
 
Dr. Angstadt responded to Dean Rumschlag’s email saying “[t]hanks for 
your time.  The feedback is always helpful in reassessing how I am received by 
parents and students.  It helps me restructure where necessary.”  It is undisputed 
that this email was never placed in Dr. Angstadt’s personnel file. 
The “ice cream incident” and subsequent letter 
The third correspondence was a letter.  On March 14, 2007, Dr. Angstadt 
received a letter from Assistant Principal Dr. Joe Hocking regarding an incident 
involving three female students that took place on February 28, 2007. The letter 
stated:  
You mentioned in our conversation that you grabbed the ice cream out 
of the student’s hands to throw it away.  In the future, I would 
recommend not grabbing anything from a student unless they are in 
danger of hurting themselves or someone else.  Better to ask them to 
throw the item away and if they refuse, send them to Time-Out and 
write them up for defiance. 
You also mentioned that the incident had made you angry because the 
students “do it all the time.”  The teachers who you identified as 
witnessing the event confirmed that you seemed very angry.  Please 
remember not to take these incidents personally.  It is important that 
you always remain professional and avoid raising your voice at the 
students or allowing your anger to dictate your response to them.  
Dr. Angstadt signed an acknowledgement of receiving Dr. Hocking’s letter.  
It is undisputed that the letter was never placed in Dr. Angstadt’s personnel file. 
 
 
6
Letter concerning incident with student on March 21, 2007 
The fourth correspondence was also a letter.  Dr. Angstadt received a letter 
from Dean Rumschlag concerning an incident that occurred on March 21, 2007, 
when Dean Rumschlag overheard Dr. Angstadt verbally reprimanding students in 
her classroom.  The letter stated:  
This morning I happened to be walking by your classroom when I 
heard you yelling at maximum volume at several students in your 
class.  You were yelling, “Knock it off!  I said knock it off!”  I 
stepped into the room when I heard this interaction. 
 
 
 
* 
 
* 
 
* 
It is important that I reiterate to you that it is not appropriate to yell at 
students.  It puts you in a situation where you are not in control.  It can 
be frightening and intimidating to students. 
 
 
 
* 
 
* 
 
* 
When you lose control, it is you who loses credibility with your 
students.  It is you who demonstrates a lack of professionalism.  The 
only time it would be appropriate to raise your voice as I heard today 
would be in a situation where there is imminent danger of a child that 
needs immediate and quick attention to ensure the safety of the child.   
That was clearly not the case at all today when I arrived to your 
classroom.   
It is my expectation that such an incident does not happen again.  
Dr. Angstadt signed an acknowledgement of receiving Dr. Hocking’s letter 
on March 30, 2007.  It is undisputed that the letter was never placed in Dr. 
Angstadt’s personnel file. 
Under the collective bargaining agreement between the teachers and the 
School District, teachers could file a grievance of any reprimand, essentially 
challenging its validity. Dr. Angstadt filed a grievance of this letter, and Dean 
 
7
Rumschlag upheld its issuance.  Dr. Angstadt then filed a “Level II” grievance of 
the letter at the School District level.  Upon receipt at the School District office, a 
hearing was scheduled.  Before the hearing was held, however, the School District 
decided not to proceed with the hearing. 
Dr. Hocking’s unannounced Lesson Plan Analysis for March 29, 2007 
On March 29, 2007, Dr. Hocking observed Dr. Angstadt’s class in an 
unannounced visit.  Dr. Hocking then composed a Lesson Plan Analysis detailing 
the concerns revealed in the observation.   
After composing the Lesson Plan 
Analysis, Dr. Hocking held a meeting with Dr. Angstadt to review the concerns.  
In the Lesson Plan Analysis, Dr. Hocking noted that  
[m]uch of the interaction taking place involved Ms. Angstadt 
asking the class to be quiet.  While Ms. Angstadt tried various ways to 
get the student’s attention they were often ineffective and required 
multiple requests on Ms. Angstadt’s part.  Eventually the class came 
to order but much time was spent getting students to pay attention. 
It is undisputed that the Lesson Plan Analysis was placed in Dr. Angstadt’s 
personnel file. 
School District’s decision not to rehire 
On April 19, 2007, the School District sent Dr. Angstadt a letter notifying 
her of the Board’s decision not to rehire her at the conclusion of the 2006-2007 
school year.  In response to this letter, Dr. Angstadt requested the reasons for the 
Board’s decision.  The Deputy Superintendent responded with a letter dated May 
 
8
15, 2007, that identified three reasons for termination: (1) inappropriate teacher/ 
student interactions; (2) inconsistent and inappropriate student discipline; and (3) 
poor classroom management and organization.  
On June 7, 2007, Dean Rumschlag completed Dr. Angstadt’s annual 
Performance Appraisal.  The Performance Appraisal indicated that Dr. Angstadt 
received a “Needs Improvement” in the areas of “Organization and Management of 
the Classroom” and “Teacher/Student Interaction.” 
After receiving the reasons for termination, Dr. Angstadt requested a post-
termination meeting with the Superintendent.  The Superintendent met with her 
and upheld the termination stating:  
After your hearing on June 7, 2007, the documents which you 
submitted, as well as, information from the school were reviewed.  
Although Principal and Assistant Principal confirmed that many of 
your classes were well done, the concern with teacher-student 
interactions and classroom management were ongoing.  Screaming at 
students and losing control of the class is very ineffective and, as a 15-
year teaching veteran is a serious concern.  Additionally, you 
indicated that March 29, 2007, was your first indication that there was 
any problem.  As early as November 3, 2006, the Principal indicates 
you were made aware of concerns about student-teacher interaction.  
In addition, mediation sessions began in October in order to try to 
help resolve issues between teacher and students.  Based on this 
information, your request to rescind your non-renewal is being denied.  
Dr. Angstadt then filed a complaint in the Superior Court against the School 
District alleging wrongful termination.  The School District filed a motion for 
summary judgment, which the Superior Court granted.  The Superior Court held 
 
9
that the School District “substantially complied” with the requirements of § 
1410(b), stating that “[u]nder these circumstances the [c]ourt is unwilling to 
expose a school district to liability for back pay and benefits simply because an 
administrator or an assistant failed to put copies of these documents in the correct 
red well.”  The Superior Court did not address the School District’s alternative 
argument that the unfavorable information in the Lesson Plan Analysis was “other 
documented material” upon which the School District could rely.  This appeal 
followed.  
Discussion 
On appeal of an administrative agency’s adjudication, this Court’s sole 
function is to determine whether the Board’s decision is supported by substantial 
evidence and is free from legal error.1  We review questions of statutory 
interpretation de novo because they are questions of law.2   
Delaware’s Teacher Termination Statute 
At issue in this appeal is whether the School District complied with the 
procedural requirements of 14 Del. C. §1410(b)3 which provides, in relevant part: 
                                          
 
1 Oceanport Ind. V. Wilmington Stevedores, Inc., 636 A.2d 892 (Del. 1994). 
2 Delaware Bay Surgical Serv. v. Swier, 900 A.2d 646, 652 (Del. 2006).  
3 14 Del. C. §1410(b) provides: “A teacher who has not completed 3 years of service in the State 
and/or has not completed 2 years in the employ of the terminating board may, within 7 days of 
receiving notice of intention to terminate services, request in writing, the reason or reasons for 
such notice. The board will provide such reason or reasons in writing and a copy of this chapter 
no later than 5 days after receipt of such a request, provided that the stated reason or reasons 
must have either been contained in the teacher's performance appraisal, and the teacher was 
 
10
“the stated reason or reasons must have either been contained in the teacher's 
performance appraisal, and the teacher was provided time to correct any deficiency 
through an individualized improvement plan or other documented materials 
properly placed in the teacher's personnel file prior to said notice.”   
The General Assembly has qualified the reasons for a decision not to rehire 
in two ways.  The School District can base its decision on reasons contained within 
the teacher’s performance appraisal provided the teacher has had an opportunity to 
correct any deficiency through an individualized improvement plan.  In the 
alternative, the stated reason or reasons must have been contained in other 
documented materials properly placed in the teacher’s personnel file prior to the 
notice.    
The emails and correspondences were not “properly placed” in Dr. Angstadt’s 
personnel file 
It is undisputed that the four correspondences were never placed in Dr. 
Angstadt’s personnel file.  Under §1410, the School District may rely upon “other 
documents” contained in the personnel file at the time notice is given.  Because 
                                                                                                                                        
provided time to correct any deficiency through an individualized improvement plan or other 
documented materials properly placed in the teacher's personnel file prior to said notice. In 
providing the reason or reasons, the board is not limited to the reasons set forth in § 1411 of this 
title. Within 7 days of receiving the reason or reasons for the notice of intention to terminate 
services, a teacher may request in writing a conference with the board's superintendent for the 
purpose of discussing the reason or reasons and attempting to resolve any disputed matter. 
Within 10 days of receiving such a request for a conference, the superintendent shall personally 
provide the teacher a conference to review the matter. The conference with the superintendent is 
final and conclusive.” 
 
11
these correspondences were not in the file, the School District’s reliance on them 
in its decision not to rehire failed to comply with the plain language of §1410.   
In Board of Public Education in Wilmington v. Delancey, we held that a 
school district had substantially complied with §1410’s predecessor when a 
superintendent (rather than the Board as the statute required) gave notice to a 
teacher of the school’s intent to terminate services.  The teacher requested, and the 
Board held, a public hearing in which the teacher was represented by counsel.  
After the Board affirmed its earlier judgment, the teacher appealed to the Superior 
Court.  The Superior Court found merit to his argument that the notice to terminate 
services was ineffective because the statute required notice be given by the Board.  
On appeal to this Court, we reversed and held that the Board substantially 
complied with the statute: 
We are mindful of the fact that teacher-tenure acts are intended 
to furnish protection to the public school teacher and that their 
provisions in respect of dismissal must be substantially complied with.  
But substantial compliance is enough.  What is the underlying purpose 
of our statute?  Plainly to accord to the teacher the right to a notice if 
his services are intended to be terminated, and the right to a hearing if 
he is unwilling to accept the intention to terminate as final.  Of neither 
of these rights has the defendant been deprived.  The policy and 
purpose of the statute have been complied with.  In justice to the 
efficient administration of the school system we cannot agree to the 
setting aside of the proceedings in this case because of a belated 
technical objection which in no way prejudiced the teacher.4   
                                          
 
4 Board of Public Education in Wilmington v. Delaney, 155 A.2d 51, 54-55 (Del. 1959). 
 
12
 
Although “substantial compliance” with §1410 is sufficient in certain 
circumstances, the School District failed to meet that threshold with regard to the 
e-mails and letters never placed in the teacher’s personnel file.  The School District 
contends that requiring physical placement of these correspondences in Dr. 
Angstadt’s personnel file is an overly-technical reading of the statute.  We cannot 
ignore the intent of the General Assembly as expressed in the plain language of 
§1410.5  The statute unambiguously requires the documented materials be 
“properly placed” in the teacher’s personnel file in order to be considered.  Here, 
they were not.   
The School District argues that we should adopt a functional definition of 
the term “personnel file.”  It contends that the Delaware Right to Inspect Personnel 
Files Act6 supports this approach, as it defines personnel file by identifying the 
types of documentation that are included rather than by the physical location of the 
file.  The Act does indentify types of documentation that can be included, “if 
maintained by the employer.”7  This Act provides employees the right to access the 
                                          
 
5 Where the “language of a statute is plain and unambiguous on its face courts may not alter the 
plain meaning by construction.” Monacelli v. Grimes, 99 A.2d 255, 268 (Del. 1953). 
6 19 Del. C. §730, et seq. 
7 19 Del. C. §731 provides that “‘Personnel file’ means, if maintained by the employer, any 
application for employment, wage or salary information, notices of commendations, warning or 
discipline, authorization for a deduction or withholding of pay, fringe benefit information, leave 
records, employment history with the employer, including salary information, job title, dates of 
changes, retirement record, attendance records, performance evaluations and medical reports.  
The term ‘personnel file’ shall not include records of an employee relating to the investigation of 
a possible criminal offense, letters of reference, documents which are being developed or 
 
13
files that employers have maintained and rely upon in making decisions impacting 
the individual’s employment.  But the Act does not address how an employer must 
maintain the files in order to rely upon them in making a decision not to renew an 
individual’s employment contract.  As to teachers, section 1410 does.  
Accordingly, 19 Del. C. § 731 does not modify the plain meaning of “properly 
place in the personnel file” as it is used in §1410. 
The proper placement of documents in a teacher’s personnel file was 
intended by the General Assembly to furnish protection to the public school 
teacher by providing both a file record in either paper or electronic format, that can 
be reviewed along with notice of the potential gounds for not renewing a teacher’s 
employment contract.  If the School District intends to rely upon “other 
documented materials,” they must be in a teacher’s personnel file before the notice 
of an intention to terminate services is given.  Because the correspondences were 
not “properly placed” in the personnel file of Dr. Angstadt before the notice, the 
School District’s reliance upon them was contrary to §1410. 
Dr. Hocking’s Lesson Plan Analysis 
Alternatively, the School District contends that Dr. Hocking’s Lesson Plan 
Analysis was “properly placed” in Dr. Angstadt’s personnel file and justified its 
                                                                                                                                        
prepared for use in civil, criminal or grievance procedures or materials which are used by the 
employer to plan for future operations or information available to the employee under the Fiar 
Credit Reporting Act.” (emphasis added). 
 
14
decision not to rehire.  Dr. Angstadt contends that she was wrongfully terminated 
because she was not placed on an IIP and given an opportunity to improve.  
Section 1410(b) provides that the School District may rely on a “teacher 
performance appraisal” after the teacher is placed on an IIP and provided an 
opportunity to improve with an IIP.  The School District does not argue that it 
relied on Dr. Hocking’s Lesson Plan Analysis as a Performance Appraisal.   
Rather, the School District contends that it may rely on Dr. Hocking’s 
Lesson Plan Analysis because it constitutes “other documented material” that was 
properly placed in Dr. Angstadt’s personnel file.  It is undisputed that Dr. 
Hocking’s Lesson Plan Analysis was “properly placed” in Dr. Angstadt’s 
personnel file prior to the notice of intention to terminate.  Dean Rumschlag’s 
annual Performance Appraisal was also placed in the personnel file.  As 
acknowledged by Dr. Angstadt, the Lesson Plan Analysis is a preliminary 
document and not the year-end summative Performance Appraisal.  If the Lesson 
Plan Analysis constitutes “other documented materials,” §1410(b) permits the 
School District’s reliance upon it in its decision not to renew Dr. Angstadt’s 
employment contract.  
“Other documented materials” 
 
“[O]ther documented materials” is not defined in section 1410, although the 
context suggests they are documents other than the “teacher’s performance 
 
15
appraisal.”  Dr. Angstadt argues the General Assembly intended the definition of 
“other documented materials” to be to be limited to reprimands.  In support of her 
argument, she refers to McCoy v. Sussex County Vocational-Technical School 
District.8  There, the Court of Chancery held that an invalidly issued reprimand 
cannot be considered to be “properly placed” in the teacher’s personnel file.  In its 
decision, the Court of Chancery stated that “other documented materials” “refers to 
what are commonly known to teachers as reprimands.”9  But McCoy did not turn 
on the classification of a document as “other documented materials.”  We review 
issues of statutory interpretation de novo.10 
 
In interpreting undefined statutory terms, we must give them a “reasonable 
and sensible meaning in light of their intent and purpose.”11  Because dictionaries 
are routine reference sources that reasonable persons use to determine the ordinary 
meaning of words,12 we often rely on them for assistance in determining the plain 
meaning of undefined terms.13  “Documented” means “to support (e.g., statements 
in a book) with written references or citations.”14  Materials are defined as “tools or 
                                          
 
8 1998 WL 671280 (Del. Ch. Aug. 27, 1998). 
9 Id., at *5. 
10 Dambro v. Meyer, 974 A.2d 121, 129 (Del. 2009); Delaware Bay Surgical Serv. v. Swier, 900 
A.2d at 652. 
11 E.I. DuPont De Nemours & Co. v. Clark, 88 A.2d 436, 438 (Del. 1952). 
12 Lorillard Tobacco Co. v Am. Legacy, 903 A.2d 728 (Del. 2006). 
13 See, e.g., Lorillard Tobacco Co., 903 A.2d 728; Northwestern Nat’l Ins. Co. v. Esmark, Inc., 
672 A.2d 41, 44 (Del. 1996); Hibbert v. Hollywood Park, Inc., 457 A.2d 339, 343 n.3 (Del. 
1983). 
14 WEBSTER’S II NEW COLLEGE DICTIONARY (2001). 
 
16
apparatus for performing a given task.”15  Accordingly, “other documented 
materials” means other written references – apart from “the teacher’s performance 
appraisal” - that are supportive tools for performing the task of deciding whether or 
not to renew Dr. Angstadt’s employment contract. 
“Other documented materials” is broad language.  Although a written 
reprimand is “other documented material,” the phrase is not limited to written 
reprimands.  This interpretation complies with the intent and purpose of §1410(b).  
The statute provides procedural requirements for a School District’s decision not to 
renew a teacher’s employment contract.  It does not address substantive grounds 
for termination, but addresses the procedure for termination.  Narrowly construing 
“other documented materials” to encompass only formal reprimands places greater 
restrictions on the permissible reasons for a School District’s decision than the 
General Assembly intended.   
Although Dean Rumschlag performed Dr. Angstadt’s annual Performance 
Appraisal, the School District did not rely upon that document.  Nor could they 
have, as the decision to terminate was made before the document existed.  Instead, 
the School District relied upon the observations of Dr. Hocking as reported in the 
Lesson Plan Analysis.  Dr. Hocking’s Lesson Plan Analysis is a written reference 
that was a supportive tool for any lawful task.  It was not privileged as a matter of 
                                          
 
15 Id. 
 
17
law,16 and could be used in the process of deciding whether to renew Dr. 
Angstadt’s employment contract.  Dr. Hocking’s Lesson Plan Analysis which 
concluded that Dr. Angstadt was “ineffective” in getting her students’ attention, 
constitutes “other documented material” that was “properly placed” in Dr. 
Angstadt’s personnel file and the School District could rely upon it in deciding 
whether to renew Dr. Angstadt’s employment contract.  Although different from 
the rationale used by the Superior Court, we affirm on this basis.17  
Conclusion 
The judgment of the Superior Court is AFFIRMED. 
                                          
 
16 Compare 24 Del. C. §1768(b).  See also Office of the Chief Medical Examiner v. Dover 
Behavior Health System, 976 A.2d 160 (Del. 2009) (protecting documents that are used 
exclusively by peer review committees from discovery by the Office of the Chief Medical 
Examiner because of the statutorily created peer review privilege). 
17 See Unitrin, Inc. v. Am. Gen. Corp., 651 A.2d 1361, 1390 (Del. 1995) (“We recognize that this 
Court may affirm on the basis of a different rationale than that which was articulated by the trial 
court.”).