Opinion ID: 222596
Heading Depth: 2
Heading Rank: 3

Heading: Structure, Duties, and Practice of the Board

Text: In support of their contention that the Board functions as a legislative body, the defendants direct our attention to the Board's composition, responsibilities, and power, which are set forth in Delaware law. The Indian River School District serves the Delaware towns of Selbyville, Frankford, Dagsboro, Gumboro, Fenwick Island, Bethany Beach, Ocean View, Millsboro, and Georgetown. See 14 Del. C. § 1068. It is divided into five electoral districts. Id. The District is made up of fourteen schools, employs 646 full-time teachers, and serves approximately 8,388 students. Of these fourteen schools, there are several elementary schools, two middle schools, two high schools, and an arts magnet school. See Indian River, 685 F.Supp.2d at 527. Under Delaware law, a school district is a clearly defined geographic subdivision of the State organized for the purpose of administering public education in that area. 14 Del. C. § 1002(5). The Indian River School Board has the authority to administer and to supervise the free public schools of the [Indian River School District] and has the authority to determine policy and adopt rules and regulations for the general administration and supervision of [said schools]. Id. § 1043. The Board is composed of ten members, who serve three-year terms. [4] See id. § 1068(f). Two members are elected by the qualified electors of each district. Id. § 1068(b), (g). Board members are unpaid. Id. § 1046. Delaware law requires the Board to hold regular meetings ... each month during the year. Id. § 1048(a). Special meetings may also be held whenever the duties and business of the school board may require. Id. § 1048(b). The Indian River School Board holds its regularly-scheduled meetings on school property. The policy making responsibilities of the Board are extensive and touch nearly all aspects of a student's life. The Board must: (1) [d]etermine the hours of daily school sessions; the holidays when district schools shall be closed; the days on which teachers attend educational improvement activities; (2) set the educational policies for the school district; (3) prescribe rules and regulations for the conduct and management of the schools; (4) enforce school attendance requirements; (5) [g]rade and standardize all the public schools under its jurisdiction and ... establish kindergartens and playgrounds and such other types of schools; (6) [a]dopt courses of study; (7) [s]elect, purchase, and distribute textbooks and other school supplies, furniture, and equipment; (8) [p]rovide forms for employees to make reports to the school board; (9) submit required reports to the Secretary of Education; (10) appoint personnel, id. § 1049; (11) provide for the care and repair of school property, id. § 1055; and (12) adopt rules governing use of school property and oversee requests for use of school property, id. § 1056. The District also has the power to spend money for the support, maintenance and operation of the free public schools. Id. § 1702. Although the District receives funding from the state general assembly, id. § 1701, it is also empowered, through the Board, to levy and collect additional taxes for school purposes. Id. §§ 1902, 1914. The Board's minutes confirm that at its meetings it hears commentary, discusses, and votes on a wide variety of issues affecting local schools. For example, at any given meeting, the Board may discuss curriculum development, changing the length of the school day, capital improvements, increases or reductions in staffing, and financial matters. The minutes also disclose that students regularly attend the Board meetings. While the number of students attending the Board meetings fluctuates during the year, at least some students attend nearly all of the meetings held during the school year. Board President Charles M. Bireley  who, with the exception of a two-year period, has sat on the board continuously since 1974  estimated that at certain meetings there may be 50 students in attendance while at others there are very few. JA 389. In his calculation, on average a couple of dozen students attend each meeting. Id. Generally speaking, there are six reasons why a District student might attend a Board meeting. First, students facing disciplinary action for serious offenses are permitted to speak with the Board directly in connection with their situation. The Board deals with student disciplinary actions at the closed-door portion of its public meetings. Second, students belonging to one of the two Junior Reserve Officers' Training Corps (JROTC) programs at the local high schools attend every meeting to perform the presentation of the colors. This tradition started sometime in 2000, when the JROTC programs at Sussex Central and Indian River High Schools were created. Typically, the principal of the school where the meeting is being held will inform the ROTC students of the location and date of the next meeting. Third, students attend the School Board meetings in their formal role as student government representatives. Sometime between 1993 and 1995, then-Board Member Richard Cohee submitted a motion to make presentations from student government representatives an official part of the meetings. The motion passed; the Board now regularly devotes a section of its agenda to presentations from student government leaders and their comments are reflected in the minutes. The usual practice is for a representative from each of the two high schools in the district to attend the meetings. The Board President will invite the student government representatives to come forward to speak. JA 395. During the school year, student government representatives address the Board at most meetings. JA 395. However, there ha[ve] been meetings when [the Board] did not hear from the [student government] representative. JA 500. Fourth, students also attend the meeting to perform a piece of music or theatre for the Board's benefit. These performances are a regular feature of the meetings. Fifth, the Board meetings are routinely used to recognize individual or team achievement. It is for this purpose that the greatest numbers of students attend the meetings. At the meeting, the student's name will be called out and he or she will be presented with a letter signed by the Superintendent and the Board President commemorating his or her accomplishment. Photographs are also taken, which may be published in the local newspaper. The Board then records each student by name in the minutes, which are posted on the school district website. Prior to 1994, these types of awards were given out at student assemblies. The record contains countless examples of these types of awards. The Board has recognized a broad array of student activities, including Odyssey of the Mind tournament winners, art contest winners, scholarship recipients, all-state sports teams, JA 271, other athletic achievements, and musical achievements. These awards are such an important part of student life that Board President Bireley was not aware of any instance where a student declined to attend the meeting to receive an award, other than for a scheduling conflict. In fact, the awards portion of the Board meeting has become so lengthy that the Board has received complaints from its members about the excessive time spent on this portion of the meeting. There has been informal discussion about limiting the number of awards given out or eliminating this portion altogether in order to decrease the meeting time. Finally, every Board meeting concludes with a public comments section that students may also attend. This portion of the meeting provides members of the community with an opportunity to come and talk to [the Board] about things that [are] on their minds, concerns, or anything like that or have input. JA 394.