Opinion ID: 2134925
Heading Depth: 1
Heading Rank: 2

Heading: Department failed to give the proper deference to Board's decision and applied an incorrect standard of review.

Text: This court has previously recognized that school boards are part of the legislative branch of government: School Boards are creatures of the legislature and are part of the legislative branch of government. Therefore, the judiciary may not invade the province of the school board's decision making unless such decision making is done contrary to law. Moran, 281 N.W.2d at 598 (emphasis added); Strain v. Rapid City School Board, 447 N.W.2d 332, 338 (S.D.1989). Moreover, we have previously stated: `The constitutional separation of powers cannot be done away with by legislative action. (citations omitted) Consequently, [SDCL 13-46-6], providing for de novo trials when county school board matters are appealed to the circuit court may not be given a literal construction. To do so would be to presume that the legislature intended to confer upon the courts powers inconsistent with the discharge of their inherent judicial functions. This we may not do.' Mortweet v. Ethan Bd. of Ed., Davison Cnty, 90 S.D. 368, 372, 241 N.W.2d 580, 582 (1976) (quoting Dunker v. Brown Co. Bd. of Ed., 80 S.D. 193, 203-204, 121 N.W.2d 10, 17 (1963)); Tschetter v. Doland Bd. of Ed., 302 N.W.2d 43, 48 (S.D.1981). The majority opinion recognizes this separation of power by citing to Dale v. Board of Ed., 316 N.W.2d 108 (S.D. 1982). The constitutional separation of powers cannot be done away with by legislative action. Id. at 111. However, the majority then mistakenly applies the clearly erroneous standard of SDCL 1-26-36 for review of factual findings by an agency rather than properly considering the legality of Board's decision. Kellogg v. Hoven Sch. Dist., 479 N.W.2d 147, 153-55 (S.D. 1991) (Miller, C.J., Henderson, J., dissenting); Rininger v. Bennett Co. Sch. Dist., 468 N.W.2d 423, 429 (S.D.1991) (Henderson, J., dissenting); Dale, 316 N.W.2d at 115-16 (Henderson, J., dissenting in part); Busker v. Board of Ed. of Elk Point, 295 N.W.2d 1, 2-3 (S.D.1980); Moran, 281 N.W.2d at 599. Moreover, the majority opinion fails to recognize that as the judicial branch of government may not invade the province of the legislative branch by substituting its judgment for that of a school board, neither may the executive branch, in the form of the Department of Labor, invade the province of the legislative branch by substituting its judgment for that of a school board. Such is the result of the majority opinion, which fashions a type of de novo review under SDCL 3-18-15.2 by asserting Department's order is based upon its own investigation and hearing. While Department may conduct its own investigation and hearing, its review is limited to determining the legality of Board's decisions. [] Additionally, the decisions cited by the majority to support de novo review of grievances filed against school boards, McCauley v. South Dakota Sch. of Mines & Tech., 488 N.W.2d 53 (S.D.1992) and Kleinsasser v. Rapid City, 440 N.W.2d 734 (S.D.1989), involve employment decisions by the South Dakota Board of Regents and the Rapid City Water Department, not local school boards. These decisions are clearly inapplicable to this case. Furthermore, by applying different standards of review depending on whether a teacher appeals a school board decision directly to the circuit court under SDCL 13-46-1 or to Department under SDCL 3-18-15.2, the majority is encouraging both anomalous results and forum shopping by teachers. Accord, Selle v. Pierce, 494 N.W.2d 634, 637 (S.D.1993) (stating South Dakota has an interest in discouraging forum shopping). When reviewing a school board decision under SDCL 3-18-15.2, Department and the circuit court must give deference to Board's decision. They may reverse only if there is a lack of substantial evidence to support a board's decision, thereby showing a board acted arbitrarily, capriciously or abused its discretion. Moran, 281 N.W.2d at 599. The same applies to this court.