Opinion ID: 2132735
Heading Depth: 2
Heading Rank: 2

Heading: Did the school district abuse its discretion?

Text: Before turning to the facts upon which the school district based its decision, we examine the nature of the AEA's and Department's actions. That is, we must determine whether the Department exceeded its scope of authority in ordering the school district to provide transportation. In overruling the school district's decision to not provide transportation, the AEA stated, the pathway between Regency Mobile Home Park and McKinley Elementary School is not reasonably safe for the elementary school students who must travel this route every school day. The AEA Board is concerned that children as young as kindergarten age face an unreasonably dangerous walk given the volume of traffic on Gordon Drive, the number and complexity of the crossings along Gordon Drive, and the fact that locating the sidewalks in the median [between Gordon Drive and the frontage road] makes it so the children are surrounded by traffic on Gordon Drive and the frontage road. When the Department affirmed the AEA's decision it reviewed the entire record. In so doing, the Department concluded, The record shows that the [AEA] thoroughly evaluated the situation on Gordon Drive in addressing the transportation concerns of these parents and of the [school district]. The [AEA] was justified in making its own analysis of the facts in deciding to reverse the [school district's] decision to discontinue the transportation being provided to the students residing at Regency. Although reasonable minds could differ over the judgment call that the [AEA] was called upon to make, the parents convinced the [AEA] that the [school district] exercised its discretion in an unreasonable way adverse to the health and safety of the students, as required by Iowa Code section 285.10(2) (2001). The [school district] has failed to show that the [AEA's] decision was unreasonable. (Emphasis added.) For the most part, the facts are undisputed but the parties have each emphasized different portions of the record. The issue is whether the Department properly reviewed the school district's decision for an abuse of discretion. The Department stated, Although reasonable minds could differ over the judgment call that the [AEA] was called upon to make, it went on to say the parents convinced the AEA that the school district's decision was adverse to the health and safety of the students. By stating reasonable minds could differ over this discretionary decision, the Department conceded there was evidence supporting the school district's decision. That is, the Department did not review the school district's action for abuse of discretion but instead made its own judgment based upon the entire record. This conclusion is even more evident by the Department's statement that the parents convinced the AEA the district's decision was not correct. Such a statement shows the Department, like the AEA before it, considered the entire record and concluded the school district's decision was wrong. The Department did not determine whether a reasonable person could have come to the same conclusion as the school district. The Department's action exceeded its authority. Under the appropriate standard, a reasonable person could have found substantial credible evidence supporting the school district's decision. The sidewalk in question was constructed by the City of Sioux City in compliance with all of the applicable laws and ordinances. The school district created the District Traffic Safety Committee to study the area and make recommendations as to the safety of the route for school children. The safety committee was comprised of two members of the Public Works/Traffic Division, officers from the Sioux City Police Department, a member of the Woodbury County Sheriff's Department, two principals of the school district, the assistant superintendent, the district supervisor for transportation, the district director of operation and maintenance and the district safety manager. The safety committee members met several times to discuss the area around Gordon Avenue. The committee made visual inspections of the route and examined the traffic volume and patterns. Before making any conclusions, the committee consulted the Department of Motor Vehicle Safety, Department of Transportation, and the City of Sioux City. It discussed the safety of the route with various experts who all determined the area was safe for students to use. The committee made special note of the concerns of the AEA. It discussed numerous possibilities, aside from providing transportation to the students, that might increase the relative safety of the area. The safety committee compared the nature of this particular sidewalk to others in the area that students must walk to get to school. It determined the traffic flow along Gordon Drive was regular, but not excessive, and the speed of the traffic was not extreme. In particular, it noted the presence of very little traffic during the morning and afternoon hours when children would be using the sidewalk along Gordon Drive. In general, the committee saw little traffic along the frontage road. The committee determined the distance between the sidewalk and Gordon Drive varies from five to twenty feet along the route. It concluded the distance between the sidewalk and the frontage road did not present any safety concerns. Because some parents complained snow removal was not regular on the sidewalk, the committee examined the maintenance of the area. Although there was one report of snow on the sidewalk preventing the students from using it, the safety committee determined the snow removal overall was reliable and the conditions were not dangerous for the students. Based upon these findings, the committee concluded, as a general matter, this particular sidewalk presents no more danger to the students than any other sidewalk in Sioux City. As a result of its observations, the safety committee discussed installing crosswalk signage and other signage to signify the students' presence. The committee recommended moving the location of a stop sign so a crosswalk could be striped across the road. It explored the possibility of adding a barricade along the route or creating a new sidewalk for students to use. The city agreed to construct a sidewalk that would redirect the student traffic, making their travel safer. Finally, to assist the children in safely arriving at school, the committee recommended new signage at one of the three points along Gordon Drive where the sidewalk is interrupted by entrances to businesses. Because the traffic engineers concluded additional signage would be a deterrent to safety, not a promotion of it, the committee did not recommend the installation any other traffic control devices. The superintendent considered and accepted the committee's findings and recommendations. In determining the school district would no longer provide transportation to these students, the superintendent considered the following: safety of the students, cost and reimbursement schedules of the State of Iowa, equitable treatment for all students in the Sioux City Community School District, statutory obligations, and the actual conditions of the route along Gordon Drive. The school board voted unanimously supporting the superintendent's conclusion the route was safe. Given the facts above, it can hardly be argued the school district did not carefully balance competing considerations in exercising its discretion determining whether it should bus these students to and from school. It did not make a denial of the parents' request without first exploring the situation. In keeping with the findings of the safety committee, the school district made an informed decision and concluded it was not appropriate under the circumstances to provide transportation for these students. Taking into consideration the recommendations for safety improvement made by the commission, the school district determined this route was safe for the students to use. Legitimate concerns were raised about five-year-old students walking to school along this route, part of which comes within five feet of the highway and the penchant of such immature students to wander. [2] These concerns were certainly considered by the school district; however, they did not render the route unsafe. Because a reasonable person could have found substantial evidence supporting the school district's decision, we conclude the school district did not abuse its discretion.