Document: 411 U.S. 192 93 S.Ct. 1463 36 L.Ed.2d 151 Alton J. LEMON et al., Appellants,v.David H. KURTZMAN, etc., al. No. 71—1470. Argued Nov. 8, 1972. Decided April 2, 1973. Syllabus Following this Court's invalidation in Lemon v. Kurtzman, 403 602, 91 2105, 29 745 (Lemon I) of Pennsylvania's statutory program to reimburse nonpublic sectarian schools (hereafter schools) for secular educational services, the District Court on remand enjoined any payments under services rendered after I, but permitted Pennsylvania performed prior that decision. Appellants challenge scope decree. Held: The judgment is affirmed. Pp. 193—209. 348 F.Supp. 300, THE CHIEF JUSTICE, an opinion joined by Mr. Justice BLACKMUN, POWELL, and REHNQUIST concluded did not abuse its discretion permitting costs incurred reliance scheme I. 197—209. (a) An unconstitutional statute absolutely void, a practical reality upon which people rely. Courts recognize reality. 197—199. (b) A trial court has wide latitude shaping equitable decree reaching accommodation between public private needs. 200—201. (c) contested reimbursement will contravene constitutional principle I avoiding ongoing entanglement church state, since only final, ministerial post-audit involved no further detailed state surveillance required. At same time, however, supervision already conducted officials insures proposed be used purposes. payment reflects schools' expenses expectation reimbursement. 201—202. (d) relied good faith statute, invited contracts authorized past services: appellants, self-styled 'sensible recognition realities situation,' may well have encouraged such moving before contract had been performed. 203 205. (e) could enticipated holding resolution issue first impression 'was clearly foreshadowed.' 206—207. (f) State those with whom it deals are subjected harsh, retrospective relief merely because they act basis presumptively valid legislation, absence contrary judicial direction. 207—209. WHITE concurred judgment. David P. Bruton, Philadelphia, Pa., appellants. William B. Ball, Harrisburg, appellees. Chief BURGER announced join. 1 On June 28, 1971, we held certain violated Establishment Clause First Amendment. case was remanded three-judge proceedings consistent our opinion. (1971) I). remand, entered summary favor appellants payment, Act 109, funds 1971. order provided decision made claim appellees refund all sums paid statute1 struck down 2 Appellants, successful plaintiffs now limited injunction. Specifically, assert erred refusing enjoin some $24 million set aside compensate them during 1970—1971 school year. We noted probable jurisdiction, 406 943, 92 2046, 32 330 (1972), affirm Court. 3 (1) 4 specifics need recalled briefly. Under participating were reimbursed pursuant purchase-of-service State. According terms contracts, provide teachers, textbooks, instructional materials mathematics, modern foreign language, physical science, education courses—'secular' courses instruction. provided, also undertake continuing programs insure purchased connection 'any subject matter expressing religious teaching, or morals forms worship sect.' See supra, U.S., at 609—610, S.Ct., 2110. 5 § 5607 Act, seeking 'maintain accounting procedures, including maintenance separate accounts pertaining cost service, as establish actually expended support service amount money equal sought reimbursement.' To end, audit Auditor General. Actual Superintendent Public Instruction 'in four installments payable day September, December, March term following rendered.' (Emphasis supplied.) 6 In that, although 109 legislative purpose, fostered 'excessive entanglement' through requirement scrutiny schools, potential involvement political process. found unnecessary decide whether constitutionally infirm additional ground 'primary effect' church-related would promote cause religion contravention 7 (2) 8 Against backdrop, turn events relevant appeal. 19, 1968, became law. Approximately one month later, publicly declared their intention challenging constitutionality new legislation. During six months, took steps implement promulgating regulations and, January 1969, entering time into 1968—1969 year (then progress) approximately 1,181 throughout Pennsylvania. submitted schedules conclusion year, specifying precise items expense seek reimbursement, 1969—1970 3, filed complaint, asking enforcement enjoined. 9 Simultaneously 1969 motion preliminary injunction restrain responsible from 'paying processing paying (Act 109).' However, abandoned request letter August counsel Judge Troutman. describing position situation, . withdraw attempt prevent initial scheduled September (1969).' letter, appellants' mentioned December fact ever reimbursements. 10 November 29, divided granted appellees' dismiss complaint failure granted. notice appeal 17, 1969; jurisdiction 20, 1970, move interlocutory pending appeal, even though 15, Consequently, occasion consider exercise injunctive power pendente lite. 11 began performing compensable 109; Not until judgment, indicate 12 (3) 13 Claims particular should applied retroactively pressed us frequently recent years. Most often, called defining rights defendant criminal convictions others predated development. E.g., Robinson Neil, 409 505, 876, 35 (1973); Adams Illinois, 405 278, 916, 31 202 (1972); Desist United States, 394 244, 89 1030, 22 248 (1969); Stovall Denno, 388 293, 87 1967, 18 1199 (1967); Johnson New Jersey, 384 719, 86 1772, 16 882 (1966); Tehan Shott, 382 406, 459, 15 453 Linkletter Walker, 381 618, 85 1731, 14 601 (1965). But last few decades, recognized doctrine nonretroactivity outside area many times, both nonconstitutional cases.' Chevron Oil Co. Huson, 404 97, 106, 349, 355, 30 296 (1971); Hanover Shoe Machinery Corp., 392 481, 88 2224, 20 1231 (1968); Simpson Union Co., 377 13, 84 1051, 98 (1964); England Louisiana Board Medical Examiners, 375 411, 461, 440 (1964). approved nonretroactive civil litigation, relating, example, validity municipal financing founded electoral procedures later unconstitutional, Cipriano City Houma, 395 701, 1897, 23 647 (1969), Phoenix, Arizona Kolodziejski, 399 204, 90 1990, 26 523 (1970); elections local possibly discriminatory voting laws, Allen States Elections, 393 544, 817, (1969). each these cases, common reach back disturb attach legal consequence patterns conduct premised either unlawful statutes different understanding controlling judge-made law rule ultimately prevailed. urge, Court, strange amalgam flexibility absolutism. assure do require disgorge received breath, insist presently disputed 'confers rights; imposes duties; affords protection; creates office; is, contemplation, inoperative never passed.' Norton Shelby County, 118 425, 442, 1121, 1125, L.Ed. 178 (1886). Conceding receded host decisions other relating bonds, nevertheless view precedents departures established norm Norton. disagree. process reconciling interests reflected old 'among most difficult engaged attention courts, federal ..' Chicot County Drainage Dist. Baxter Bank, 308 371, 374, 60 317, 319, 329 (1940). holdings years emphasized effect given ruling 'is 'principle absolute retroactive invalidity' depends consideration 'particular relations claimed become vested, status, determinations deemed finality'; 'of policy light nature previous application." Linkletter, 627, 1736, quoting Dist., 319. However appealing logic abstract, abandonment rules hard facts must rely making conduct. This life underpins recognizing nonretroactivity. offer persuasive reason confining approach cases involving procedure ourselves perceive none. suggested test, often repeated since, embodying balancing approach; looked 'the history question, purpose effect, operation retard operation.' Id., 629, 1738. Those guidelines helpful. infra, 209—203 problem progeny precisely us. Here, considering apply reviewing judgments conviction obtained standard; instant essentially appropriate remedies, arising period unconstitutional. True, temporal brought parties dispute calls play values unlike underlying progeny. however issue, remains asked reexamine evaluation proper means implementing Cf. Estate Donnelly, 397 286, 295 id., 296—297, 1033, 1038, 1039—1040, 25 312 (Harlan, J., concurring). 17 equity decrees, vested broad discretionary power; appellate review correspondingly narrow. Swann Charlotte-Mecklenburg Education, 402 1, 27 n. 10, 1267, 1275, 1281, 28 554 (1971). Moreover, adjudication elsewhere, remedies special blend what necessary,2 fair, workable. 'Traditionally, characterized facility adjusting needs.' Brown 349 294, 75 753, 756, 99 1083 (1955). Douglas, speaking said, 'The essence Chancellor mould necessities case. Flexibility rather than rigidity distinguished it. qualities mercy practicality instrument nice adjustment reconciliation interest needs competing claims.' Hecht Bowles, 321 321, 329—330, 64 587, 592, 754 (1944). 19 Holmberg Armbrecht, 327 392, 396, 66 582, 584, 743 (1946). equity, nowhere else, courts eschew rigid absolutes look inescapably interests, notwithstanding roots. 21 (4) fulcrum excessive 109. 'legislative precautions (of 109) restrict principal primary point where offend Religion Clauses.' 613—614, 2111, 745. For, said similar Rhode Island provision, '(a) comprehensive, discriminating, inevitably required ensure restrictions obeyed .. These prophylactic contacts involve enduring church.' 619, 2114. reciprocal threat Amendment enmeshing divisive direct aid religions traditional processes. 622—624, 2115—2117. sensitive Clauses readily lend themselves quantification but, despite inescapable imprecision, think clear distribution substantially undermine stake kept free influences. Superintendent's supervisory task completed long ago, itself; nothing record suggests faithfully execute his duties according Hence, present compel oversight processes schools. By tokens, settled, there conflict among citizens legislators over desirability degree 24 Two problems having overtones remain, requires compromise basic principles There first, impact single final post-audit. indicates 'cleanup' function, expenditures receipts closing accounting—undertaken once, setting minimal contact affairs Second, question impinging provides assistance schools—the Yet assuming cognizable barring payments, implicated once circumstances recur. risk significant intrusive administrative entanglement, thing past. very oversight—now accomplished fact—assures purposes.3 Finally, appear, passing more promised Offsetting remote possibility harm allowing keep bargain inviting authorizing schools.4 It weigh heavily remedy. That well-supported finding. 'that deny impose substantial burden meet.'5 304—305. significance appellee reinforced tactical choice press interim suspension pendency litigation incur detriments initiated culminated Though initially moved block reasons own withdrew request. Funds 1970. schools; disbursing funds, meanwhile, 1970 began. months perfected performed—that asserted due, beginning fall Thus, nearly two years, proceeded assumption continue adhere situation.' demonstration detriment complexity determination contracted apparent.6 dwell uncertainty. reasonably find part conclude needed demonstrate retrospectively reliance. argued, though, foolhardy whatever, cloud outset. conclude, 'decid(ed) whose 355. district court, dissent, upheld Soon after, another considered together Nor alone disagreement Lemon-style plans financial itself when resolved full briefing argument. And acknowledged can dimly lines demarcation extraordinarily law.' 612, 2111.7 attack plain acted bad plainly statute. case, clarity hindsight predicted assurance sufficient (5) then, comes this: whatever unjustified 'untested' authoritatively determined. short answer argument governments if fulfill high responsibilities. As scholar observed, diverse preserved Framers 'as sources authority organs administration—a hardly choice.' Wechsler, Principles, Politics, Fundamental Law 50 (1961). ask, hold charged executing directives peril arrangements unraveled authoritative governing legislation constitutional. stay hands newly enacted 'ratified' draconian, decrees fall. view, seriously initiative executive alike. Until judges say otherwise, officers—the officers Pennsylvania—have carry forward legislature. may, circumstances, elect defer acting pronouncement secured; particularly fixed precedents, conceived incident review. engage lightly post hoc 'one adjudication—the presumption duly San Antonio Independent School Rodriguez, 60, 1278, 1311, (1973) (Stewart, 33 Federalism intervention appropriately confined. Younger Harris, 401 37, 746, 669 (1971), companion cases. Likewise, federalism injunctions unrelated shaped concern care responsibilities branches governments.8 propriety afforded applying familiar principles, measured against totality general absent direction, deal entitled unlawful. 34 Affirmed. concurs MARSHALL 37 DOUGLAS, BRENNAN STEWART concur, dissenting. 38 much violation involves current next Madison Remonstrance stated: '(T)he force citizen contribute three pence property establishment, him conform establishment ..'1 39 Whether grant teaching taxpayers forced tax dollars. 40 ban practice new. announce change again use taxpayers' parochial violates Amendment, applicable virtue Fourteenth. 41 unequivocal words Everson 16, 67 504, 511, 711: 'No amount, large small, levied activities institutions, called, form adopt teach religion.' reiterated idea Zorach Clauson, 343 306, 314, 72 679, 684, 96 954, McGowan Maryland, 366 420, 443, 81 1101, 1114, 393, Torcaso Watkins, 367 488, 493, 1680, 1682, 982. McCollum, People ex rel. 333 203, 210, 68 465, 649, added State's tax-supported 'for dissemination doctrines' nor 'pupils classes state's compulsory machinery.' 212, 466. 42 Brennan put succinctly he 43 '(F)or century, consensus, enforced legislatures consistency, subsidy constitutes impermissible institutions.' 642, 648—649, 2129. 44 So warning who subsidies treading ground. They tender considerations allow profit venture. 45 issues presented type caught up strategies, designed minorities majorities. Lawyers planning strategies tactics. lose equities make From days Madison, all. 46 retroactivity therefore inapplicable. goes fairness rule. 726—729, 1777—1779, 882. Here supplanting dominant Madison. normal situation governs decisions. Normally determine obligations respect transpired. definition, disputes arisen. losing litigant 'relied' advice turned out unreliable wrong.2 overruling times due retroactively. Brinkerhoff-Faris Turst & Savings Hill, 281 673, 451, 74 1107. Only compelling circumstance limit prospective applications. disruptive example. 1199. legality bonds application issued assumption. 213—215, 1996—1997, 523. 47 Retroactivity core integrity Constitutional ride effervescent arguments advanced obtain subsidies. happenstance criterion dispensing No apologia, today monies exceeds far 'three pence' condemned Remonstrance. 48 reverse below Nonpublic Elementary Secondary Education Pa.Stat.Ann., Tit. 24, §§ 5601—5609 (Supp.1971). 1737, (1965), Cardozo's statement Federal Constitution voice subject,' citing Great Northern R. Sunburst Refining 287 358, 364, 53 145, 148, 77 360 (1932). Sunburst, refused accept petitioner's contention '(a)dherence precedent establishing meaning denial coupled declaration refuse adjudicating controversies growing transactions future.' 363—364, 148. Instead, 'A limits adherence relation backward.' does not, course, suggest ignore deciding (1971): 'If government closed eyes manner grants education. If close undertook needed, would, fear, intermeddle way breed rancor dissension.' 640, 2124 (Douglas, thus insoluble paradox cannot finance instruction permits taught classroom; exacts promise so enforces it, then entangled 'no aspect jurisprudence.' 668, 2138 (opinion White, J.). 'insoluble paradox' avoided entangling prerequisite enter payment. agree constitute 'makes difference decision.' characterize 'lessen subsequent hardship made.' 304 6. comment, turn, colloquy hearing Court: 'MR. SAWYER: am perfectly willing concede—and here; taken evidence—that like about matter, continued doing before. 'JUDGE HASTIE: Reliance sense, assume, determining anticipation reimbursed? know escrowed rare. live think, unless want prepared go ahead ask take testimony try prove wasn't so. .' school, actual subtle, largely credibility record. Nonreliance assumed simply expenditure levels remained constant might reduced compensation Similarly, inquiry specified Act. Increased gamut school's covered 'tender equity' 'clear warning' 'treading ground.' apparent premise assertion forbids moneys 'support' 'subsidize' decisions, shied away sweeping Clause, favoring instead particularized analysis based Tilton Richardson, 672, 2091, 790 Walz Tax Comm'n, 664, 669, 1409, 1411, 697 Central Allen, 236, 242—243, 1923, 1925—1926, 1060 14, 711 (1947). dissent's suggestion 'unequivocal' proscribing say, flexible range powers curtailed permit proceed business regardless serious questions concerning Indeed, tools preserve minimize protracted litigation. Memorial Religious Assessments, Writings James 183, 186 (G. Hunt ed. 1901). reprinted 63, 534, (Rutledge, dissenting), 1437, dissenting). Bruton 391 123, 1620, 476, rejected Delli Paoli 352 232, effect. element persuasive, inception it.' Roberts Russell, 295, 1921, 1922, 1100.

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