Document: 426 U.S. 736 96 S.Ct. 2337 49 L.Ed.2d 179 John C. ROEMER, III, et al., Appellants,v.BOARD OF PUBLIC WORKS MARYLAND al. No. 74-730. Argued Feb. 23, 1976. Decided June 21, Syllabus In 1971, a Maryland statute was enacted that authorizes the payment of state funds to any private institution higher learning within State meets certain minimum criteria, and refrains from awarding "only seminarian or theological degrees." The aid is in form an annual fiscal year subsidy qualifying colleges universities, based upon number students, excluding those academic programs. grants are noncategorical but may not, under provision added 1972, "be utilized by institutions for sectarian purposes." assistance program primarily administered Council Higher Education, which, order insure compliance with statutory restrictions, (1) determines whether applicant eligible at all, one "awarding seminary degrees," (2) requires not use purposes. At end recipient must make report separately identify aided nonsectarian expenditures, subject Council's verification if necessary. This suit brought appellants, four individual citizens taxpayers, who challenged scheme as violative Establishment Clause First Amendment claimed appellees, affiliated Roman Catholic Church, were constitutionally ineligible aid. District Court, applying three-part requirement Lemon v. Kurtzman, 403 602, 91 2105, 29 745 (Viz., such this have secular purpose, primary effect other than advancement religion, no tendency entangle excessively church affairs), upheld denied appellants relief. court found that, despite their formal affiliation appellee "pervasively sectarian." also fact extended only "the side," having taken cognizance prohibition against use, administrative enforcement prohibition. "there necessity officials investigate conduct particular classes educational programs determine school attempting indoctrinate its students guise education," "excessive entanglement" does necessarily result on basis. Though occasional audits possible verify purposes Court they would be "ick non-judgmental." Held : judgment affirmed. Pp. 745-767; 767-770. 387 F.Supp. 1282, Mr. Justice BLACKMUN, joined THE CHIEF JUSTICE POWELL, concluded Act standards set supra, U.S., 612-613, S.Ct., 2111, violate Clause. 745-767. (a) first part Lemon's three-pronged test issue here, since do challenge Court's finding supporting education generally, economic alternative wholly public system. P. 754. (b) provided advancing religion refinement Hunt McNair, 413 734, 743, 93 2868, 2874, 37 923, has "when it flows which so pervasive substantial portion functions subsumed religious mission when specifically activity otherwise substantially setting." Here sectarian" supported subsidiary findings concerning role college campuses. Such clearly erroneous, general picture painted similar almost all respects church-affiliated considered Tilton Richardson, 672, 2091, 790, supra. 755-759. (c) correctly aspect "primary effect" satisfied, I. e., side." Hunt, used support "specifically activity," clear funding here requirement. forbids "sectarian purposes," appears least broad constitutional announced Hunt. 759-761. (d) When account relevant factors conclusion foster excessive entanglement upheld. colleges, found, perform "essentially functions." implicate entanglement," more closely resembling acceptable unacceptable Lemon, contacts between likely entangling inspections involved course normal accreditations. And unlike situation can subsidize separate without on-site inspections. Finally, respect political divisiveness, did create danger entanglement, properly stressed facts elementary secondary schools; two-thirds affiliation; autonomous. 761-767. WHITE, REHNQUIST, there violation where, case, legislative purpose legislation neither advance nor inhibit religion. There reason pursue inquiry further. See 661, 2135 (opinion White, J.); Committee Public Education Nyquist, 756, 813, 2955, 2982, 948 (White, J., dissenting). Lawrce S. Greenwald, Baltimore, Md., appellants. George A. Nilson, Paul R. Connolly, Washington, D. C., appellees. BLACKMUN delivered opinion POWELL joined. 1 We asked once again police boundary state. Maryland, time, alleged trespasser. It amended, provides among them religiously institutions, restrictions A three-judge divided vote, refused enjoin operation statute, 1282 (Md.1974), direct appeal been pursuant 28 U.S.C. § 1253. 2 * grant instituted Laws c. 626 now embodied Md.Ann.Code, Art. 77A, §§ 65-69 (1975). "any Maryland," accredited Department established prior July 1, 1970, maintains "associate arts baccalaureate degree" programs, 65-66.1 universities. formula each institution's entitlement computed changed several times independently here. receive, full-time student (excluding enrolled programs), amount equal 15% Of State's per-full-time-pupil appropriation 67. As enacted, completely unrestricted. They remain nature, put whatever prefers, exception. following decisions (1971) (Lemon I, 790 (1971), 68A 534. provides: 3 "None moneys payable subtitle shall 4 administration entrusted Board Works "assisted Education." These bodies adopt "criteria procedures . implementation program." authorized procedures" governing method application disbursement, degrees conferred, "submission reports data utilization these (the aided) institutions." 68.2 Primary responsibility rests appointed commission antedates program, numerous responsibilities field, derived "considerable expertise character various universities State." F.Supp., 1285. 5 performs what described "two-step screening process" grants. First, degrees."3 Several applicants disqualified stage process. Id., 1289, 1296. Second, use. An accompanied affidavit chief executive officer stating will purposes, description specific uses planned.4 after written notice Council. By file "Utilization Funds Report" describing itemizing funds. certify his own "Post-expenditure Affidavit," uses. further required segregate "special revenue account" expenditures budget. retain "sufficient documentation expended permit spent Any question arise resolved Council, possible, basis information submitted actual examination books. Failing "verification audit" undertaken. audit "quick non-judgmental," taking day less. 1296.5 6 $1.7 million disbursed 17 Maryland. disbursements originally therefore 68A's five related, received $520,000 million. total of.$1.8 awarded 18 second program; amount, $603,000 go church-related institutions. Before however, suit, challenging Amendment, filed.6 placed escrow held until entry October 1974.7 subsequent awards, therefore, insuring therewith. 7 Plaintiffs taxpayers.8 Their complaint sought declaration statute's invalidity, enjoining payments entitled recover amounts already disbursed. App. 10. addition responsible officials,9 plaintiff-appellants defendants aid: Western College, College Notre Dame, Mount Saint Mary's Joseph Loyola College. these, last Church; Methodist affiliate. ruled five. dismissed defendant-appellee. concerned, affiliates.10 8 After carefully assessing Church plays lives matter we return greater detail below, affairs, amended enjoined. original, unamended unconstitutional refund theretofore paid out, reasoning barred decision 411 192, 1463, 36 151 (1973) II).11 followed. noted probable jurisdiction. 420 922, 95 1115, 43 391 II 9 system government makes itself felt pervasively ours could hardly expected never cross paths church. fact, our Federal Governments impose burdens upon, impart benefits to, virtually activities, enforced scrupulous neutrality State, religions, activities,12 hermetic separation two impossibility required. long established, example, send cleric, indeed even clerical order, task. Bradfield Roberts, 175 291, 20 121, 44 L.Ed. 168 (1899), extension corporation although composed entirely members sisterhood acting "under auspices said church," 297, 123, limited corporate charter operating charitable hospital. 10 need quarantined neutrally available all. permitted supply transportation children well schools. Everson 330 67 504, 711 (1947). done same textbooks loaned terms attending both Allen, 392 236, 88 1923, 1060 (1968). Since had shown Allen Everson, merely "extending laws citizens." 242, 1926. Just dispels notion person pay purpose,13 Allen14 rest argument act way incidental facilitating activity. blind aiding task, frees resources ends. If impermissible, protected fire departments, sidewalk kept repair. activities discriminated way. 11 Neutrality confine objectives, impede course, principle easily stated applied. view facial enough, lending actually education, though purports paying one, alike. efforts time avoid performance lead into intimate relationship authority either sponsoring interfering authority.15 I above, distilled concerns three-prong test, resting case law, constitutionality statutes affording schools: 12 "First, purpose; second, principal advances inhibits .; finally, 'an religion.' " 2111. 13 state-aid plans, Rhode Island Supplement salaries private, teachers teaching courses, Pennsylvania reimburse schools entire cost courses offered Both failed third entanglement." turn consideration three factors: benefited nature provided, (3) resulting authority. 615, 2112. reviewing schools, secondary, where characterized "substantial purpose." 616, 2113. located near parish churches. Religious instruction "part process." symbols abounded. Two-thirds nuns, regarded 'integral Church.' schooling came impressionable age. cut Unlike bus services state-supported counted purely secular. bound mix teachings ones, conscious design, perhaps, because mixture inevitable (themselves usually Catholics) "employed organization, direction discipline authorities, work(ed) dedicated rearing faith." 618, 2114. supervise control supposedly inevitably affairs. similarly foundered. 14 pointed another kind church-state threatened namely, "divisive potential." 622, 2115. represented "successive very permanent appropriations benefit relatively few groups." 623, 2116. Political factions, opposing divide along lines. "one evils intended protect." divisiveness "aggravated continuing appropriations." 2116.16 15 lton companion reached contrary result. federal construction facilities some restriction purpose.17 Applying I's Its prohibited. Enforcement made permeate defendant inseparable. On contrary, evidence took place funded facilities. Courses "taught according requirements intrinsic matter," "an atmosphere freedom rather indoctrination" maintained. 680-682, 2097 (plurality opinion). 16 Turning problem differences precollege education: less susceptible indoctrination; tend entail internal inherently limits opportunities influence; high degree tends prevail level. varied pattern. controlled largely populated Catholics, restricted adherents faith. No attended. Theology mandatory, taught fashion, treatment beliefs Catholicism. attempts proselytize principles prevailed. With character, little risk seep subjects, surveillance necessary two, diminished. next looked type neutral nonideological nature. Like teachers' physical capable being Moreover, one-shot affair, involving appropriations. "continuing aggravation" over shown, reasoned might lack continuity relationship, diversity served dispersed constituency local one. "(C)umulatively," considerations persuaded excessive. 684-689, 2098-2101. 923 (1973), facilities, plan finance bonds issued through medium effect, serviced repaid bonds, lower tax-free status interest payments. analogous Tilton. effect," added: 19 "Aid normally thought 2874. Although concerned Baptist Tilton, went only, thus activity." 743-745, 2874-2875. 21 followed wake much 's. Nyquist generally conformed "profile" school.18 forms: subsidies maintenance repair buildings; reimbursement parents percentage tuition paid; tax parents. All forms impermissible effect. subsidies, unrestricted, upkeep chapel classrooms instruction. reimbursements likewise activities. 22 Levitt 472, 2814, invalidated grants, New York, schools' testing recordkeeping expenses. met profile cases. risk" state-funded tests "drafted eye, unconsciously otherwise, inculpate precepts church." 480, 2819. 23 Last Term, Meek Pittenger, 421 349, 1753, 217 (1975), yet students. invalidation loan instructional materials equipment. textbooks, directly ones process is, large extent, devoted inculcation values belief." 366, 1763. Aid flowing "religion-pervasive institutions," Ibid., "auxiliary" servicess remedial instruction, counseling testing, speech hearing therapy. nonideological, teachers. Still, teachers, setting, allow To attempt prevent happening referred heightened, reconsideration appropriation. 372, 1767. 24 So slate write anything clean. Instead, room Our unsettle principles, recently reaffirmed, see expand substantially, faithfully applied case. III 25 issue; Maryland's system.19 focus debate parts, entanglement. consider order. 26 While essentially procedural problem, primary-effect substantive procedure, cannot separated Can alone funded. 27 1293. campuses: Despite "characterized institutional autonomy." 1287 n. 7. None receives from, Church. boards, but, Mary's, "no instance shown." 1295. employ chaplains hold exercises campus. Attendance required; encouragement spiritual development objective" college; "at none beyond providing occasions experience." Ibid. "religious indoctrination defendants." 30 Mandatory theology clerics, supplement curriculum covering spectrum liberal Nontheology "atmosphere intellectual freedom" pressures."20 Each subscribes abides by, 1940 Statement Principles Academic Freedom American Association University Professors. 1288, 1293, 3, 31 Some begun prayer. varies college, "minuscule" majority Joseph. "actual policy" encouraging practice. "It treated facet instructor's freedom." Classroom prayers "peripheral permeation," instructors wear garb symbols. concluded: 32 impairs convincing e 'according teacher's concept professional standards.' (citing 681, 2097)." 1293-1294. 33 relied department group monitored teacher classroom prayer most prevalent, seen entering elements 34 (e) apart 20, Supra, faculty hiring Dame applicant's preference Loyola's form, full appreciation background. staffed merged Loyola. Budgetary favor orders, often receive salary. "academic quality" criterion, "hiring bias," "effort stack group," noticed members, heard complain. 1294. 35 (f) great Catholic, "thorough analysis admission recruiting criteria" "are chosen regard religion." say foregoing aspects erroneous. Appellants ask us aside respects. Not surprisingly, gleaned record thousands pages, compiled during weeks trial, ascribes colleges. place, reappraise evidence, unless plainly fails trier facts. That certainly difference second-guess particulars. answer kind, paint institution, many elements. Hunt.21 find significant distinction them, "pervasive sectarianism" test. Having "so permeated side sectarian," proceeded posed Hunt: satisfied Education. agree. fund exist meet supra; occasion elaborate out statute. college's choice, satisfy enjoined fairly answers itself. Hunt's assume exercise delegated statutory, constitutional, mandate. give wide berth minimize questions.22 Should questions arise, courts them. practice, considering challenges strike down anticipation applications See, E. g., 744, 2875; 682, 2098 B 38 seems easy, serves difficult. denies seeks avert interchange proposal approval, expenditure review answering "excessively entangling" identified decisions: 39 fully above. functions," distinct separable finding, prerequisite important means part, face value. danger, reduced ostensibly study biology, foreign language, athletic event infused content significance. close purportedly correspondingly reduced. Thus education." 1289. erred gave undue precisely 687, 2100 746, 2876. 40 aid, before Process disbursed, chosen, us. address "resulting relationship" 41 noted, year, annually varying propose and, expenditure, put. 42 light absence "to classes," fatal. annual, ongoing existed Government retained right inspect subsidized buildings involvement lessor retaining extensive powers regulate 1290. agree true favored "one-time, single-purpose" entailed financial relationships dependencies, audits, expenditures." 688, present claim aspects. But like surely fundamental distinguishable discount entirely, decisive. ongoing, supervision explicitly foreseen 675, 2094; 669, 2139 J.), 739-740, 745-749, 2872-2873, 2875-2877. totally indistinguishable, supervision, build maintain contemplates purpose," separated. Occasional accept incident colleges' accreditations State. 45 form-of-aid distinctions questionable importance, character-of-institution impressive. reiterate points: age; supervision" diocese; assumed "ultimate responsibility" it; principals authorities; "pervade(d) system"; instructed "Handbook School Regulations" '" '(r) eligious formation confined courses; single area.' 617-618, things impossible crucial nonentangling program: ability carried school, on-the-site diversion importance consideration, erred. 46 (4) recognized subsidy, promise increasing demand dependency grew, aggravated "(p)olitical fragmentation lines." Nonetheless, "does 1291. reasons given. "substantially less" "whose diverse widely dispersed." 688-689, 2101. Furthermore, diminished sharp contrast 95% parochial autonomy mitigate controversies surrounding involve itself, "fiscal requirements." 1290-1291. 47 sound. Once again, urge previous cases ), (Tilton, ). disagree. indisputably relevant, 623-624, 2116-2117, dispositive. hand, Struck "permanent," nonannual exemption, pressure frequent enlargement relief predictable," always is. 797, 2977. Upheld would, "annual," insofar new for. 2100. J.). holdings better reconciled dissimilar Levitt, other. 48 exact science gauging wording speaks "Excessive clear. "cumulatively" judging different ways, reaching did, dominant separating functions. For emphasis misplaced erroneous.23 ordered. 50 whom REHNQUIST joins, concurring judgment. 51 join am unable concur plurality forth my opinions (1973). decided. 820, 2996 threefold imposes unnecessary, believe today's demonstrates, superfluous establishing passes peril point" 822, 2997. 52 enough me (State is) financing function overriding sustain challenged." 664, 2136 particularly "sparse language Clause," take 2993 However, element inquiry: Walz Tax Comm'n, 397 674, 90 1409, 1414, 697 (1970). understood foundation element; insolubly paradoxical, 668, S.Ct.,t 2138, conceded outset "blurred, indistinct, variable barrier." 614, "weight contours criterion," 2997, settled surfaced. Today's leaves impression criterion really "separate" affirming state, emphasizes approval Ante, 766. Yet focuses concluding satisfies test: "appellee 'pervasively sectarian,' 755, of, 'the side' operations. 759. unclear how parts test* different. "curious mystifying" announced. 666, 2137. 53 indulge redundant evaluating label. disagree challenge, more. 54 BRENNAN, MARSHALL dissenting. 55 Judge Bryan, dissenting review, "In instances truth offend Constitution provisions funds, exposes money vigilance it." 1298 (1974) (emphasis original). body. campuses, summarized opinion, 755-758, conclusively establish fact. circumstance, Bryan "(o)f telling decisiveness unmarked purpose. Presently simply blunderbuss discharge college." 1298-1299. words, heretofore expressed "(g)eneral constitute 690, 1422, (1970) (concurring "tend promote interdependence designed prevent." Abington Dist. Schempp, 374 203, 83 1560, 1578, 844 (1963) (Brennan, concurring). "What Framers meant foreclose, forbidden, involvements serve 294-295, 1609. 56 history bitter began soon Nation formed recited 642, 2126, My impermissibly agreement injunction should prayed complaint, stopping future (appellee) colleges." 1300. 659-660, 2134: 57 "I provide propagation institution. 58 reach (these) deep policing monies proselytizing 59 ". (direct) permissible. 'permeates' provided. Rather, environment religion; goals, befit." (Emphasis original.) 60 discrete interests mutually best avoids too proximity nonbeliever fears injection doctrines civil polity, devout believer secularization creed becomes deeply dependent government." 259, 1591 "too proximity" creates real dangers "secularization creed." Ibid.; 649, 2129 Brennan, 61 1300, reverse denial appellants' motion adhere views Douglas' dissent, joined, 209, 1473, ): 62 "There involves current year. 63 "Whether taxpayers forced contribute dollars." 64 remand directions enter permanently implementing Act, quiring Act. 65 STEWART, 66 view, decisive lie compulsory governmental emphasized subjects. "Although require parties stipulated standards. covered range human experiences about introduced proselytize. Indeed, Albertus Magnus Sacred Heart rabbis." 686-687, 68 Here, contrast, discipline. 69 "(T)he patterns departments special unique problem. staff chiefly clerics defendants, Mt. St. clerics. presented make-up obvious. Recognition overtones indoctrination. 70 "The viewed shared objective (of students). offer majors theology, vigorous department. concern admittedly obvious thrust Christianity. clergy 71 (A) mainly geared toward array affords congenial furthering fostering 1294-1296 72 findings, plurality's assertion distinction" building-construction inculcate "devoted deepening faith discipline." 1288. salient characteristic member 73 stated, BRENNAN STEVENS, dissent opinion. 74 75 BRENNAN. add pernicious tempt compromise abandoning it. disease infect law discouraging wholesome given 1974 amendment 1974, 585, "shall submit major alterations recommendation regarding initiation." 66(e) Section full: assisted criteria procedures, inconsistent subtitle, including submission conferred subtitle." requirement, award "primarily" apparently expansion, powers, 2, "only" degrees. point evolved administering expanded rules regulations adopted January 7, "Criteria Procedures Nonpublic Institutions Education," appear Register 1484-1486 (Oct. 29, 1975). procedure text, quoted phrasings, drawn regulations. judicial Regulation 01.03.05 part: "Any conducted greatest speed disruption strictly usage violated." command "Congress respecting establishment religion," applicable States Due Fourteenth Amendment. 8, 508, (1947); Cantwell Connecticut, 310 296, 303, 900, 903, 84 1213 (1940). pending appeal, denied, then Court. 419 1030, 511, 305 (1974). Two organizations, Civil Liberties Union Protestants Other Americans United Separation plaintiffs outset. dismissed, standing. 1284 Governor, Comptroller, Treasurer named Works. One become defunct filing suit. remains party seek compel repay 1971. appropriate ordered Future enjoined, refunding out. challengers, expenses incurred reliance affirmed injunction, undermine interests, reasonable receipt especially filed incurred, dropped outcome litigation. Epperson Arkansas, 393 97, 104, 89 266, 270, 228 (1968); McCollum 333 209-212, 461, 464-466, 92 649 (1948); 15-16, 511-512. scarcely individuals abandon accepted practice allowing orders Congress offices. ("the recurrent forbidden spend ends"). 775, 2966, (1973); 679, 2096, opinion); 2136, 244, 1927, 17, 512. avoiding persistent potentially frictional contact authorities justify Extension, withholding, organizations. exemption organizations property taxation partly ground. Commission, 674-675, 1414-1415, Members 695, 1424 Harlan, 249, 1929 (Harlan, concurring); 307, 1616, (Goldberg, restriction, imposed, years construction. approve facilities' 20-year period, excised limitation 682-684, 2097-2099 appointments; obedience dogma; attendance doctrine; part' church; 'substantial purpose'; imposed teach. 767-768, 2962-2963. grew tenuous condition constituting one-third benefited. original action, 1972. "unable characterize offerings subjects." "possibility" "these possibility sufficient steps 1287-1288, 1295-1296. complied. 22, Infra. cross-appeal judgment, ruling us, express manner: "All governed faculties predominantly Catholic. Nevertheless, shows non-Catholics admitted appointments. attend services. rabbis. subscribe well-established freedom, nothing short, whose predominant 2099. sure, find, mandatory taint Supra. inconsistent, sectarianism. latter if, fear appears, anything, stronger Charleston, South Carolina Convention extent elected Trustees, power transactions, College's charter. least, far every sign doing so. litigation assertedly employed statute: scholarships studies, Brief 50-55. (The ways related 1971 funds.) prohibiting ways: "A. 68A, Annotated Code prohibits using 'sectarian purposes.' proscribes worship, Listed below potential list all-inclusive doubt sec- tarian prohibition, consult advice advance. "(1) Student Aid: qualifications eligibility religious, program. "(2) Salaries: whole salary engaged chaplain director campus ministry, administers supervises "(3) Maintenance Repair: building facility worship "(4) Utilities: activity, utilities bills metered. preceding sentence metered, heat, electricity, water "(5) Capital Construction Improvements: construct renovate existing future." 01.03.06A. 4, discussed text dispose claim, rejected II. 11, position ruling. assert timely motions application." 76 added). "motions applications," made. speak repayments remedy "as (1972-73, 1973-74, 1974-75)." 79-80. From statements, premise repayment "vigorous preserve quo litigation," 80, commencement event, keeping retroactive remedy: reasonableness payments, refunds protect rights involved. Reliance was, II, occurred. also, question, expectation receiving protection rights, putting creditor Cf. 1414. demonstrate depends accepts courts' Cf., 665-667, 2137-2138 392, 1776, (1975) Rehnquist,

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