Document: 468 U.S. 992 104 S.Ct. 3457 82 L.Ed.2d 746 Thomas F. SMITH, Jr., et al., Petitionersv.William P. ROBINSON, Rhode Island Associate Commissioner of Education, al. No. 82-2120. Supreme Court the United States Argued March 28, 1984. Decided July 5, Syllabus Held: 1. Petitioners were not entitled to attorney's fees under § 1988. Pp. 1006-1016. (a) The fact that petitioners prevailed on their initial claim School Committee violated due process by refusing grant a full hearing before terminating funding petitioner child's special education program does itself entitle for subsequent administrative and judicial proceedings. That was entirely separate from claims made in proceedings, sufficiently related petitioners' ultimate success support an award entire proceeding. 1008-1009. (b) As child being discriminated against basis his handicapped condition, violation Equal Protection Clause Fourteenth Amendment, it is apparent Congress intended EHA be exclusive avenue through which such can pursued. comprehensive scheme aid complying with constitutional obligations provide public handicapped. Allowing plaintiff circumvent EHA's remedies relying 1983 as remedy substantial equal protection would inconsistent scheme. 1009-1013. (c) Even if challenge partiality state officer who reviewed Committee's decision might maintained independent challenge, are claim. had no bearing substantive claim, prevailed, Committee, matter federal law, required pay education. Where presented different relief, based facts legal theories, only non-fee they fee simply because other could asserted 1983. 1013-1016. 2. Nor 505 Rehabilitation Act. struck careful balance between clarifying making enforceable rights children free appropriate endeavoring relieve financial burden imposed agencies responsible guarantee those rights. It have upset 504 otherwise unavailable damages or fees. Where, here, whatever provided 504—which prevents discrimination handicap any receiving assistance—is more clarity precision EHA, may enlarge available resort 504. 1016-1021. 703 F.2d 4 (CA1 1983), affirmed. E. Richard Larson, New York City, petitioners. Forrest L. Avila, Providence, R.I., respondents. Justice BLACKMUN delivered opinion Court. 1 This case presents questions regarding proceeding secure "free education" child. At various stages proceeding, relief Education Handicapped Act (EHA), 84 Stat. 175, amended, 20 U.S.C. 1400 seq., 1973, 87 394, 29 794, Due Process Clauses Amendment Constitution. Appeals First Circuit concluded essence, one enforce provisions statute payment fees, Smith v. Cumberland (1983). insist this Court's Maher Gagne, 448 122, 100 2570, 65 653 (1980), compels conclusion. 2 * procedural history complicated, but significant resolution issues. Petitioner III (Tommy), suffers cerebral palsy variety physical emotional handicaps. When began November 1976, Tommy eight years old. In preceding December, agreed place day at Emma Pendleton Bradley Hospital East attending program. however, Superintendent Schools informed Tommy's parents, longer fund placement because, construed responsibility educating emotionally disturbed lay State's Division Mental Health, Retardation Hospitals (MHRH). App. 25-26. 3 took appeal Committee. addition, filed complaint 42 District members asserting comply "Article IX—Procedural Safeguards" Regulations adopted State Board Regents Children (Regulations)1 continued pending Superintendent's decision. orders issued December 1976 January 1977, entered temporary restraining order then preliminary injunction. court continue failure follow Regulations, concluded, constitute deprivation process. 5 On May 10, 1978, first amended complaint. 49. By time, completed They appealed delegated conducting Education. moved recuse himself review decision, since he employee agency therefore impartial officer. denied motion recuse. 6 All officers that, R.I.Gen.Laws, Tit. 40, ch. 7 (1977), MHRH.2 acknowledged argument 40.1-7-8 require them portion cost services Tommy,3 conflicted problem within jurisdiction resolve. complaint, added defendants Director MHRH. also specifically relied time noting all times mentioned submitted plan state-administered programs received funds pursuant EHA.4 8 count challenged both conducted examiners employees local agency. sought declaratory judgment safeguards contained Article IX did requirements 1415, its accompanying regulations. injunction prohibiting hearings decisions (LEA's) unless until regulations conformed 1415 Finally, reasonable costs. 9 second substance Commissioner's view, "under law LEA free, educational without regard whether said school system." 61. MHRH, providing education, requiring asked 10 22, acknowledging confusion over whether, MHRH necessary Tommy. Id., 108. noted correct governed 40.1-7, appear conflict 40.1-7 parental contribution cause Department incur deficit. request defendants, certified state-law resident student inadequate, 11 29, 1979, granted partial summary requirement submit dispute refusal himself. "employees" agency, elected officials, determined provision directing shall unit involved care apply 12 June 3, 1980, answering questions. 415 A.2d 168. Noting primary obligation financing Whatever imposes limited complements, rather than supplants, Committees 16-24-1. 13 thereafter supplemental 152. Count II 794. requested 1988 what 31 1244(e) (1976 ed.).5 14 12, 1981, declaring rights, entering permanent approving defendants. 172. ordered attendance Harmony Hill School, then-current placement. agreement prejudice awarded amount $8,000, ed.). 15 4, two orders, addressed order, 177, defendants' dismiss. id., 189, declared paid unnecessary improper go further reach statutory claims. given days move 16 affirmed unpublished per curiam 11, 1982. immune injunctive respondents moot. 17 costs 195. April 30, 1982, ruled orally $32,109 hours spent after named parties litigation. Pet. Cert. A31-A58. Relying Gaslight Club, Inc. Carey, 447 54, 2024, 64 723 own Turillo Tyson, 535 F.Supp. 577 (1982), reasoned exhaust bringing claims, procedures. compensation challenging use officers. No obtaining already been compensated work rejected should allowed action court's insufficient weight alleged well found included colorable nonfrivolous. thus prevailing 18 reversed. 1983). labeled "American Rule," general when authority so provides. Alyeska Pipeline Co. Wilderness Society, 421 240, 95 1612, 44 141 (1975). Here fell establishes federal-state children, fees.6 For look 19 rule upon actually prevails accompanied "substantial," though undecided, arising same nucleus facts, appropriate. U.S., 130-131, 2575, 653. Here, arguably least enough jurisdiction. Ibid. substantial, comprehensiveness omission rectified recourse drew conclusion Middlesex County Sewerage Authority National Sea Clammers Assn., 453 1, 101 2615, 69 435 (1981). There held where enforcement mechanisms right include private action, litigant obtain recognized logically preclude expressly recognizes proposition creates remedial scheme, intentional "omissions" supplanted apparatus view Appeals, here violations immaterial. alleged—a denial handicap—are factually identical If incantation 1983, become almost every case.7 21 disposed similar fashion. intend pre-empt entails rejection fee-shifting properly limits 22 Because Courts proper interplay among bases cases nature, effect fees,8 we certiorari, 464 932, 334, 78 304 23 ignored guidance supra, party asserts unaddressed urge reliance misplaced. do effort "and laws" 1983.9 case, cognizable Since arose out " ' "common operative fact," 133, n. 15, S.Ct., 2576, quoting H.R.Rep. 94-1558, p. (1976), turn Mine Workers Gibbs, 383 715, 725, 86 1130, 218 (1966), assumed authorizes manner incorporates legislative 1988, see 124 Cong.Rec. 30346 (1978) (remarks Sen. Cranston), reasoning applies therefore, claimed, unaddressed, 24 Respondents counter attempting lack resorting pleading trick adding surplus Congress' intent authorizing 505, allow plaintiffs receive situation has clear available. 25 Resolution requires us explore congressional intent, setting elaborate indication requirements. We 26 illustrates recognized, broad courts seeking vindicate Maine Thiboutot, 9, 2502, 2506 (1980); supra; Hutto Finney, 437 678, 694, 98 2565, 57 522 (1978); S.Rep. 94-1011, (1976) (a 'should ordinarily recover circumstances render unjust,' Newman Piggie Park Enterprises, Inc., 390 400, 402, 88 964, 966, 1263 (1968)). extinguished settled resolved nonconstitutional ground. 132, 2576. qualification. must paid, "prevailed," relationship expended obtained. Hensley Eckerhart, 461 424, 103 1933, 76 40 (1983); Blum Stenson, 465 886, 1541, 79 891 (1984). Thus, example, done prevail distinctly theories awarded. 434-435, 440, 1939-1940, 1943. Although, most cases, there line contributed plaintiff's not, district remain charged responsibility, Congress, evaluating light particular success. 436-437, 1941. 27 A analysis like this, rely automatic purpose avoid penalizing reluctant resolve dispositive. 7. alter reasonably assume fee-generating success.10 28 success, during course Closer examination nature required. Besides points proceedings procedures employed officials claimed handicapping Amendment. A. 30 briefly. funding. efforts prevent deprivation. proper. maintaining throughout necessitated failings. complied guaranteed still avail themselves wanted—an interpretation placed Petitioners' turn, 32 emphasize, EHA,11 deprivations. Clause, virtually claims.12 question asked, assert B 33 little difficulty concluding publicly financed set up children. Both indicate pursue carefully tailored mechanism statute. 34 statement findings begins, million country, needs whom fully met. §§ 1400(b)(1), (2) (3). series "landmark cases," opportunity established. 94-168, (1975), U.S.Code Cong. & Admin.News 1975, 1425. See ("It establish protect assistance carrying responsibilities Constitution laws"), 1437. attempt fiscal localities 1400(b)(8) (9). remains States. 22. And Hendrick Hudson Central Dist. Rowley, 458 176, 102 3034, 73 690 (1982). 121 37417 (1975) (statement Schweiker: "It policy Government merely unenforceable goal school. [The bill] takes positive steps insure families protected").13 ensure fair adequate. each individual worked begins level includes ongoing involvement, detailed safeguards, review. 1412(4), 1414(a)(5), 1415. 11-12 (emphasizing role involvement assuring child); 22; 208-209, 3052. 35 guarantees express developing accommodate child, find difficult believe meant leave undisturbed ability directly education.14 Not result superfluous protections outlined statute, but, important, run best accommodated having parents together formulate individualized duplicate 36 lightly conclude 1871, passed stood safeguard deprivations Patsy Florida Regents, 457 496, 2557, 172 (1982); Mitchum Foster, 407 225, 242, 92 2151, 2162, 705 (1972); Monroe Pape, 365 167, 183, 81 473, 482, 492 (1961). Nevertheless, retains repeal replace alternative remedy.15 crucial consideration intended. Brown GSA, 425 820, 825-829, 96 S.Ct.1961, 1964-1966, 48 402 (1976); Johnson Railway Express Agency, 454, 459, 1716, 1719, 295 (1975); Adickes S.H. Kress Co., 398 144, 151, 90 1598, 1605 142 (1970). 37 think clear. gives result.16 Rather, indicates perceived effective vehicle protecting conclude, either guardian C 38 will aspects manifest and, question, satisfied even maintained, claim.17 39 plea ended. seek new hearing, Regulations. 59-60. ultimately warranted relief. According others coming subsequently Whether accorded question. where, nonfee note contrary mean seeks adverse determination successful including unfair. considered fees.18 unlikely result. IV. 41 finally, Act, Much our applicable here. designed way above enacting aware of, accommodate, ensured access circumvented 504, slightly 43 Section statutes. While handicap. But while protects persons ages activities assistance. statutes built around fundamental notions facilities, requirements, applied interpreted strikingly similar. promulgated Secretary Education19 recipient operates elementary secondary qualified person recipient's CFR 104.33(a) (1983).20 extends residential 104.33(c)(3). implement notice, examine relevant records, participation representation counsel, procedure. 104.36. declined exact procedures, inappropriate some recipients subject CFR, Subtitle B, A, 371 (1983), indicated compliance satisfy 45 hand, although begin premise affirmative same. difference two, EHA. 46 provides, pertinent part: 47 "No States, . shall, solely reason handicap, excluded in, benefits subjected activity Federal ." Southeastern Community College Davis, 442 397, 99 2361, 60 980 (1979), emphasized behalf persons, absence persons. 411-412, 2369-2370. construing expressed about extent make accessible children.21 49 specified empty guarantee, offers benefit "such supportive assist education," 200, 3047, including, facilities inadequate "instruction hospitals institutions." 1401(16) (17). 50 need decide impose uncertainty emphasize assuming coextensive doubt remedies, ones able supplement antidiscrimination 51 suggestion adds anything education.22 elements possibility circumventing going straight claim,23 EHA,24 discussed above, determining To procedure, conflicts 52 explain Several references history, omissions response awareness stated purposes burden. Discussions proponents reflect "make resource, much possible, direct handicapped." 19501 Dole). 37025 (procedural ensuring overburdening districts agencies) Rep. Perkins); (minority views cognizant burdens localities). appears represent clarify nothing cannot 53 narrowness holding. address greater hold 54 sought, urge, "determination awarding counsel fees." V 55 56 ordered. BRENNAN, MARSHALL STEVENS join, dissenting. 58 called analyze interaction five provisions: Civil Rights 1983; Attorney's Fees Awards 1988; 794; 505(b) 794a(b); 615(e)(2) (EHA Act), added, 89 789, 1415(e)(2). provides: 59 "Every who, color ordinance, regulation, custom, usage, Territory Columbia, subjects, causes subjected, citizen thereof privileges, immunities secured laws, liable injured suit equity, redress." (Emphasis added.) provides prosecuted Similarly, respectively, "solely handicap," "excluded [or] assistance." States' Unlike counterpart parties. 61 Island's discriminatory afford certain recognizes, ante, 1006, 1007, 1008-1009, states meritorious fall squarely terms Consequently, minimum, meritoriousness Brief 61-62, (legislative standards governing 1988).1 62 determine available, read EHA.2 demonstrates, surely individuals covered channels established redress court. 1009-1013, 1016-1019. sense system yet bypass system, option, suits extent, another. Accordingly, guide familiar principle construction conflicting give later enacted, specific amend earlier, repugnancy Watt Alaska, 451 259, 267, 1673, 1678, 68 80 (1981); Radzanower Touche Ross 426 148, 153, 1989, 1992, 540 Morton Mancari, 417 535, 551, 94 2474, 2483, 290 (1974). must, construe issue promote underlying enacted problems facing school-children. preserve irreconcilable 63 natural other, Under resolution, integrity preserved entirely, undermine Although function types these operate, identify authorized Significantly, goals operation basis, purpose. Court, responded restricting applicability far inconsistency. Indeed, holds wholly despite unquestionably extend many result, finds now unavailable. Yet absolutely language Act's repeal, let alone bar recovery type action. rationale effectively repealing 505(b), cover detail addresses schooling implies overlap EHA.3 Repeals implication, strongly disfavored. St. Martin Evangelical Lutheran Church South Dakota, 772, 788, 2142, 612 550, 2482; Posadas City Bank, 296 497, 503, 349, 352, L.Ed. 351 (1936). And, tolerated 154, 1993; 352. perform identifying repugnant erred 66 particularly important exercise restraint implicitly repeals another, misconstruction effecting putative Congresses laws dependent whose implicit failing hence repealed, part, misconstrued frustrated 1988—each premised significantly expansive offered today. silent respect availability brought passed, believed eliminated remedies. Congressional understanding certainly sheds earlier perhaps importantly, demonstrates finding undermined behind enactment 67 Welfare (HEW) passed. Those lengthy subpart stating: "A jurisdiction, regardless severity person's handicap." Fed.Reg. 22676, 22682 (1977). enforcing understand latter former education.4 course, great deference. Griggs Duke Power 401 434, 91 849, 855, 158 (1971). Furthermore, very HEW's Acts. During oversight representatives HEW testified recently children.5 Hearings Implementation Subcommittee Select House Labor, 95th Cong., 1st Sess., 296-297 (1977) David Tatel, Director, Office Rights, Welfare);6 Programs, Senate Labor Public Welfare, 94th 2d 1498, 1499, 1508, 1539-1546 H. Gerry, Welfare). member raised 504's coverage passage Report bill explicitly referred to, approved, went referring extended generally intimating exception 95-890, pp. 19-20 (1978). stated: "The proposed amendment unique. present laws. fact, disabled few minority groups country proposes thereby securing title Act." 95-1149, (1978), 7312, 7332. 70 Neither nor logic admits exclude 71 refer clearly authorize involving civil Adopted Service close "anomalous gaps whereby awards unavailable." 5911. 72 "In sue money hire lawyer. citizens violate Nation's proceed impunity, 74 'Not tantamount frustrating basic Without gesture. .' Hall Cole, 412 [93 1943, 702] (1973), 462 777, 780-81 (2d Cir.1972). 75 attorneys' always area, closely interwoven." 2-3, 5910. anomalous, say least, equally explanation, "gap" education.7 4-5 (1976). 77 sum, repealed runs well-established principles interpretation. undermines Had arisen prior taken account Presumably, clarified today's spoken take revisit matter. does, difficulties compounded ironic managed interpreting Island, promulgating concerning old regulations, approved 1963, "Regulations—Education Children." Most became October 1977. One, 14, 1976. Art. XII. R.I.Gen.Laws 16-24-2 immediately section, 16-24-1, sets duty committee "who mentally retarded physically normal growth development prevented," "that recommended board regents accordance regulations." 16-24-1 origin 1952 R.I.Pub.Laws, 2905, 40.1-7-3, 1971 89, art. "with specialized treatment cooperate end reputable character serving program, depending resources, obligated participate director." 1975 rely, Prior date, which, plans 1974, 579. expend From August 1974 September minimal change 582. 20, progressed 2, effect. Unless indicated, future "EHA" amendments filing 16, Rehabilitation, Comprehensive Services, Developmental Disabilities Amendments 120, 2982, 794a. Instead ed.) (now replaced 6721(c)(2)), government Local Fiscal Assistance 1972, 919, 2341. "prevailing party." purported law. Pennhurst Halderman, 900, (1984), improper. propriety treating essentially Supremacy right, court, scope Claims actions. noted, instance, outside appeal, occasion issue. See, e.g., Quackenbush District, 716 (CA2 1983) (§ remedy, damages, procedures); Hawaii Katherine D., 727 809 (CA9 precludes 504); Robert M. Benton, 671 1104 (CA8 1982) (fees challenges officer); Hymes Harnett 664 410 (CA4 1981) (claims EHA); Anderson Thompson, 658 1205 (CA7 assertable available). Title deprivation, "of (emphasis added). 555 created violations. Thiboutot foreclosed 19, 2625. makes long 5908, citing Davis Los Angeles, EPD ¶ 9444 (CD Cal.1974). 435, 1940, alternative, related, agree 1983); 1981). timing reveals denying is, wrong amending 1970, 579 (current version seq.). grants facilitate 611(a). meet 613(a), guardians minimum notice heard 614(d). supra. reasoning—that process—and 577, 583 (RI 1982), cited oral A40. exhaustion required, performed Carey VII 1964, contrast, suit. petitioners, it. granting violations, power presumed Bell Hood, 327 684, 773, 939 (1946); Bivens Six Unknown Fed. Narcotics Agents, 403 388, 396, 1999, 2004, 619 (1971); 400-406, 2006-2009 (Harlan, J., concurring judgment). wisdom review, limit true, controlling remained them. sentence expression be. Senate's 27-28 requirement, Conference bill, S.Conf.Rep. 94-455, 39-40 1425, entity authorized, inter alia, complaints "not existence grievances avenues, law." 26, 1450. context made, retain cases. choose deficiencies, see, 1981), courts' 1415(e)(2) "appropriate relief" unsuccessful allegedly unfair pursuing futile inadequate. 622 370 1980); Monahan Nebraska, 491 1074 (Neb.1980), aff'd part vacated 645 592 1981); Howard S. Friendswood Independent 454 634 (SD Tex.1978); Armstrong Kline, 476 583, 601-602 (ED Pa.1979), remanded grounds sub nom. Battle Pennsylvania, 629 269 (CA3 1980), cert. denied, 452 968, 3123, 981 North Columbia 471 136 (DC 1979). 37416 Williams) ("exhaustion complainant practical matter"). unlike maintenance showing irreparable harm F.2d, 598-599. apparently burdened litigants succeed, schooling, exempt force constitutionally due. arguable appellate ruling determined, considering (HEW). 22676 functions transferred 1979 Organization 301(a), 93 677, 3441(a). formulated time. Fed.Reg., 22676. 42474. coordination Department's consistent 56967 22677. upheld extensive modification existing non-handicapped needs. Phipps Hanover 551 732 (EDNC 1982). Colin K. John Schmidt, 715 (in 504). Of beyond discriminatorily level, presumption doing futile. Lower agree, futile, exhausted brought. Riley Ambach, 668 635 Harris Campbell, 472 Va.1979); H.R. Hornbeck, 524 215 (Md.1981). Circuits expressing matter, exceptional circumstances. Miener Missouri, 673 969, 978 (CA8), 459 909, 215, 171 F.Supp., 1094; Hurry Jones, 560 500 Gregg B. Lawrence 1333, 1339-1340 (EDNY lawsuit. wrong, I believe, unlitigated "substantial." meritoriousness, just substantiality, affirmance Appeals' improper, merit my dissent holding depend substantiality standard consider respondents, 1013-1016, entitlement recover, deprive award. Some grounded pursued Others Still concerned point seems withholding actions Ante, 1020-1021. neither enacted. context, silence unpersuasive notes, 1017, coordinated 22677 testimony funded 263-265 Daniel Yohalem, Children's Defense Fund); 278-285 Edward Corbett, Maryland Deaf). Mr. Tatel's following: "With preschool, elementary, institutions, require: "—annual identification location unserved children; "—free (including nonmedical care, room required); "—education students maximum possible; "—comparability therein) identifiable persons; "—evaluation classification safeguards; "—equal nonacademic extracurricular activities." 296. Moreover, area duplicative "gaps" bring employment 1964 another 1981 provision.

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