Legal Document

458 U.S. 176 102 Supreme Court Reporter 3034 73 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 690 BOARD OF EDUCATION the HENDRICK HUDSON CENTRAL SCHOOL DISTRICT BD. ED., WESTCHESTER COUNTY, et al., Petitionersv.Amy ROWLEY, by her parents and natural guardians, Clifford Nancy Rowley etc. Number 80-1002. Argued March 23, 1982. Decided June 28, Syllabus The Education of Handicapped Act (Act) provides federal money to assist state local agencies in educating handicapped children. To qualify for assistance, a State must demonstrate, through detailed plan submitted approval, that it has effect policy assures all children right "free appropriate public education," which be tailored unique needs child means an "individualized educational program" (IEP). IEP prepared (and reviewed at least annually) school officials with participation child's or guardian. also requires participating provide specified administrative procedures guardian may challenge any change evaluation education child. Any party aggrieved decisions is authorized bring civil action either court district court. Respondents—a only minimal residual hearing who had been furnished authorities special aid use classroom was receive additional instruction from tutors, parents—filed suit Federal District review New York proceedings upheld administrators' denial parents' request provided qualified sign-language interpreter academic classes. Entering judgment respondents, found although performed better than average class advancing easily grade grade, she not performing as well academically would without handicap. Because this disparity between achievement potential, held receiving defined "an opportunity achieve [her] full potential commensurate other children." Appeals affirmed. Held: 1. Act's requirement education" satisfied when personalized sufficient support services permit benefit educationally instruction. Such expense, meet State's standards, approximate levels used regular education, comport IEP, formulated accordance requirements. If being educated classrooms, here, should reasonably calculated enable passing marks advance grade. Pp. 187-204. (a) This interpretation supported definitions contained Act, provisions imposing procedural requirements setting forth statutory findings priorities follow extending language contains no express substantive standard prescribing level accorded 187-190. (b) legislative history shows Congress sought make available children, but did intend impose upon greater necessary such access meaningful. intent more open door specialized guarantee particular once inside. 191-197. (c) While assistance carrying out their constitutional responsibilities equal protection laws, strict equality nonhandicapped rather primarily identify evaluate them free education. does require maximize each 198-200. 2. In suits brought under judicial-review provisions, first determine whether complied procedures, then individualized program developed benefits. these are met, obligations imposed courts can more. 204-208. Although do limit ensuring have requirements, emphasis on safeguards demonstrates conviction adequate compliance prescribed will most cases assure much, if all, what wished way content IEP. 204-207. careful avoid view preferable methods States. Once determines questions methodology resolution 207-208. 3. Entrusting leave protection. As demonstrated case, guardians lack ardor seeking ensure benefits they entitled Act. Pp.208-209 4. provision here. Neither below there failure comply neither conclusion failed 209-210. 632 Reporter, 2nd 945 (2d Cir.), reversed remanded. Raymond G. Kuntz, Bedford Village, N. Y., petitioners. Michael Atlantic Chatoff, Floral Park, respondent. Elliott Schulder, Washington, D. C., amicus curiae Court. Justice REHNQUIST delivered opinion 1 case presents question interpretation. Petitioners contend misconstrued funds We agree reverse Appeals. 2 * (Act), 84 Statutes-at-Large 175, amended, 20 Code KF62 § 1401 seq. (1976 ed. Supp.IV), conditions funding extensive goals procedures. represents ambitious effort promote passed response Congress' perception majority "were totally excluded schools [were] sitting idly classrooms awaiting time were old enough 'drop out.' " H.R.Rep.No. 94-332, Page (1975) (H.R.Rep.). evolution major shed light heart case. 3 addressed problem 1966 amended Elementary Secondary 1965 establish grant "for purpose assisting initiation, expansion, improvement programs projects . Public Law 89-750, 161, 80 1204. That repealed 1970 91-230, Part B established similar legislation. nor legislation specific guidelines money; both aimed stimulating develop resources train personnel handicapped.1 4 Dissatisfied progress made earlier enactments, spurred two holding given education,2 1974 greatly increased required recipient adopt "a goal providing opportunities 93-380, 88 579, 583 (1974 statute). statute recognized interim measure only, adopted "in order give year study [was] H.R.Rep., ensuing produced All Children 1975. 5 financial demonstrate "has education." 1412(1). reflected approved Secretary Education,3 1413, describes detail goals, programs, timetables intends educate within its borders. §§ 1412, 1413. priority, "to second severe handicaps inadequate 1412(3), maximum extent appropriate" "with handicapped." 1412(5).4 broadly defines "handicapped children" include "mentally retarded, hard hearing, deaf, speech impaired, visually handicapped, seriously emotionally disturbed, orthopedically [and] health impaired learning disabilities." 1401(1).5 6 1401(18). meeting representative agency, teacher, guardian, and, where appropriate, child, consists written document containing 7 "(A) statement present performance (B) annual including short-term instructional objectives, (C) able participate (D) projected date initiation anticipated duration services, (E) objective criteria schedules determining, basis, objectives achieved." 1401(19). 8 Local regional review, revise, annually. 1414(a)(5). See 1413(a)(11). 9 addition already described, imposes provisions. Parents notified proposed "the identification, evaluation, placement child," permitted complaint about "any matter relating to" 1415(b)(1)(D) (E).6 Complaints resolved impartial due process hearing," appeal agency initial level. 1415(b)(2) (c).7 Thereafter, "[a]ny decision" respect competent jurisdiction regard amount controversy." 1415(e)(2). 10 Thus, leaves primary responsibility developing executing significant followed discharge responsibility. Compliance assured permitting withholding determination satisfy 1414(b)(2)(A), 1416, judicial review. At present, except Mexico portions issue today. Brief Amicus Curiae 2, n. II 11 arose connection Amy Rowley, deaf student Furnace Woods School Hendrick Hudson Central District, Peekskill, N.Y. excellent lipreader. During before began attending Woods, administrators resulted decision place kindergarten supplemental Several members administration Amy's arrival course interpretation, teletype machine installed principal's office facilitate communication deaf. end trial period determined remain class, FM amplify words spoken into wireless receiver teacher fellow students during certain activities. successfully completed year. 12 fall first-grade continue aid, tutor one hour day therapist three hours week. Rowleys agreed parts insisted classes lieu placed 2-week experimental period, reported need his time. likewise concluded classroom. They reached after consulting district's Committee Handicapped, received expert evidence importance interpreter, testimony persons familiar social progress, visited 13 When denied, demanded independent examiner. After sides, examiner because "Amy achieving educationally, academically, socially" assistance. App. Pet. Certiorari F-22. examiner's affirmed Commissioner basis substantial record. Id., E-4. Pursuant Southern York, claiming constituted guaranteed 14 "is remarkably well-adjusted child" interacts communicates classmates "developed extraordinary rapport" teachers. 483 F.Supp. 528, 531 (1980). It "she performs grade," id., 534, "that understands considerably less goes could deaf" thus handicap," 532. led decide 534. According Court, "requires measured compared performance, resulting differential 'shortfall' shortfall experienced Ibid. Court's definition assumption "giv[ing] 'appropriate education' "been left entirely [federal] officers." 533.8 15 A divided panel Second Circuit "agree[d] [D]istrict [C]ourt's conclusions law," "findings fact clearly erroneous." 945, 947 16 granted certiorari lower courts' 454 961, 500, 70 376 (1981). us consider questions: What meant education"? And role exercising 1415? separately.9 III 17 called interpret noted previously, "[t]he itself define education,' F.Supp., 533, officers" education.' F.2d, 947. phrase overlooks actually Respondents "functional" "offers judges guidance consideration controversies involving 'the 28. States, appearing behalf states "[a]lthough includes 'free related terms, adequately explain 'appropriate.' 13. 18 loath conclude offer defining meaning principal beyond dispute that, contrary below, expressly education": "The term (A) supervision direction, charge, standards preschool, elementary, secondary involved, conformity section 1414(a)(5) title." 1401(18) (emphasis added). 19 "Special referred definition, "specially designed instruction, cost physical home hospitals institutions." 1401(16). "Related services" "transportation, developmental, corrective, supportive 1401(17).10 Like many definitions, tends toward cryptic comprehensive, scarcely reason abandoning quest intent. Whether one, respondents not, tool parsing critical think seems willing admit. 21 specially benefit" Almost checklist adequacy expense supervision, items definitional satisfied, 22 Other congressional roughly eight million enactment, "excluded system" half inappropriate 89 774, note following 1401. addition, mentioned I, extend those "inadequate 1412(3). read together face evinces previously systems result 23 Noticeably absent Certainly like courts—that "commensurate expounded reference even we find helpful our remains indicates some standard. For answer, turn history.11 24 (i) 25 suggested fairly recent development. Before passage laws improve afforded children,12 completely form fend themselves peers. noted, House Report begins emphasizing exclusion misplacement, noting millions S.Rep., 8. One sponsors Senate urged terms: 26 "While much last few years, take solace until are, fact, statistics Bureau estimate 1.75 2.5 121 Cong.Rec. 19486 (remarks Sen. Williams). 27 concern, stressed repeatedly throughout history,13 confirms impression conveyed statute: By But Indeed, "recognize[d] instances produce outcome." 11, U.S.Code Cong. & Admin.News 1975, 1435. terms 28 Both attribute impetus predecessors federal-court judgments rendered 1971 1972. states, "followed series landmark establishing law 6, 1430.14 Pennsylvania Assn. Retarded versus Commonwealth, 334 1257 (Ed Pa.1971) 343 279 (1972) (PARC ), retarded challenging constitutionality acted exclude training. ended consent decree enjoined "deny[ing] mentally training." 1258 29 PARC Mills Board Columbia, 348 866 (D.C.1972), plaintiff Columbia schools. court's judgment, quoted 30 "no [handicapped] eligible publicly shall assignment Rule, policy, practice agents unless alternative suited needs, tuition grants, constitutionally prior periodic status, alternative." 878 31 adequate, purports education.15 Rather, set formulating 878-883; 1258-1267.16 discussed length Reports17 suggests principles which, extent, guided drafters immediately discussing having "incorporated cases." 8, 1432. Those became effectuate purposes statute. 5.18 32 clear obligation perhaps best Congress, explaining equated "appropriate receipt services. states: "[T]he handicapping requiring 3.9 1432.19 statement, reveals "receiving table showing "served" 1975 slightly larger number "unserved." appear Report. 11-12. 33 evident characterization "unserved" example, letter sent Labor, signed key House, asked "children served" State. "being various types "special program[s]" services." Hearings S. Subcommittee Labor Welfare, 94th Cong., 1st Sess., 205-207 (1975). Similarly, Senator Randolph, Senate, one-half "are 1.20 characterizing unmistakably disclose type Act: provided.21 (ii) 34 opportunity." 35. think, however, generates so correctly Constitution laws." 13, 1437.22 statements imply 35 undoubtedly differ student, depending myriad factors might affect student's ability assimilate information presented "equal" seem unworkable impossible measurements comparisons. furnishing probability short education"; require, hand, every service is, further intended go. Thus speak instance gives another theme too complex captured word speaking 36 conception informed above. simply Mills, said: 37 "If finance needed desirable system expended equitably manner consistent therefrom." 876. 38 language, saying "[i]t commonwealth's free, training capacity. ." 1260. enunciated significantly different notion absolute regardless looked history, enactment twice Equal Protection Clause Fourteenth Amendment expend San Antonio Independent Dist. Rodriguez, 411 1, 93 1278, (1973); McInnis Shapiro, 293 327 (ND Ill.1968), aff'd sub nom. Ogilvie, 394 322, 1197, 308 (1969). 39 legislation, precise i.e. basic floor districts 14. Assuming fill identified Report—that "basic opportunity" protection—neither persuasively thought anything access. Therefore, desire furtherance "equality," cannot 40 erred Desirable though be, 41 (iii) 42 Implicit confer little good spend dollars instruction," "such 1401(17) therefore individually child.23 43 difficult problem. wide spectrum marginally hearing-impaired profoundly palsied. obtainable dramatically end, infinite variations between. difficulty competing while encounter great acquiring self-maintenance skills. attempt today test determining conferred covered above system, confine analysis situation. 44 whenever possible.24 "mainstreaming" preference met monitors Regular examinations administered, grades awarded, yearly advancement higher attain knowledge material. grading constitutes important factor benefit. graduate considered society "educated" completed, "education" precisely Act.25 Contract 45 together, become tolerably clear. Insofar hold satisfies grade.26 IV 46 permits hearings action" complaint, action, concern child." 1415(b)(1)(E). reviewing "shall record [state] proceedings, hear party, basing preponderance evidence, relief appropriate." 47 parties disagree sharply over petitioners contending limited authority power substance program, exercise de novo policies. petitioners' contention unpersuasive, rejected severely restricted courts. substituting current conclusive Conference explained "independent decision[s] based evidence." S.Conf.Rep.No.94-455, 50 (1975), 1503. 37416 48 broader claimed petitioners, 1415, "Procedural safeguards," significance. elaborate highly embodied 1415 contrasted general somewhat imprecise admonitions attached gainsaid. exaggeration say bit giving large stage process, see, e.g., 1415(a)-(d), measurement against concerned development plans 49 base "preponderance evidence" invitation substitute own notions sound very preparation frustrated nought. 1415(e) "receive records proceedings" carries implied weight proceedings. nothing suggest merely sketchy opposed hand derived itself. short, authorization obligations, largely nature, Congress. inquiry 1415(e)(2) twofold. First, Act?27 second, benefits?28 51 assuring States.29 choosing method suitable cooperation charges "acquiring disseminating teachers research, demonstration, projects, [of] adopting, promising practices materials." 1413(a)(3). directive, unlikely overturn choice theories proceeding conducted pursuant 1415(e)(2).30 52 cautioned "specialized experience" resolve "persistent policy." U.S., 42, S.Ct., 1301. shared demonstrated, intention displace primacy field handicapped. V 53 protect individual parental involvement policies, supra, 182-183, formulation program. 54 recognizes outcome. changing [of programs] emphasize parent reasonable expectations, clarify planning conferences 11-12, 55 S.Conf.Rep.No.94-445, (1975); Regulations 300.345 demonstrates, Act.31 VI 56 Applying facts affirming On contrary, "evidence firmly establishes 'adequate' since grade." finding, interpreter. Accordingly, reversed, remanded opinion.32 57 So ordered. 58 BLACKMUN, concurring judgment. 59 N Dec. Immigration Nationality Decisions reach same today, differently. unambiguously stated "take active S.Rep.No.94-168, 1433 1412(2)(A)(i) (requiring "goal children"). 60 observed before, plain me enacting [this statute], politically self-serving essentially meaningless deserve hands authorities." Pennhurst Halderman, 451 32, 101 1531, 1547, 67 694 (1981) (opinion part judgment). clarity convinces relevant here says, Rowley's "reasonably benefits," ante, 207, "achieve[s] advance[s] 204. viewed whole, offered understand substantially classmates. predicated 61 answering question, believe deference District's officer Education, whom sustained refusal add Cf. granting relief). focused narrowly presence absence service—a interpreter—rather total package Board. 62 184-185, petitioner loud voice." post, 215 (dissenting opinion). concentrating "learning 532 (S.D.N.Y.1980), paid attention whether, entire record, respondent's reversed. 63 WHITE, BRENNAN MARSHALL join, dissenting. 64 contradicts itself, statute, history. majority's disregard 65 turns provides: 66 reads bringing "previously [requiring] Ante, 189. constrict "appropriate" thrust "Noticeably 'commensurate children.' 189-190, quoting 534 (SDNY 1980). 68 contain "appropriate." However, limits announces "full 1412(2)(A) repeated frequent 'passing references isolated phrases.' "1 204, 26, Department Washington Post Co., 456 596, 600, 1957, 1960, 72 358 (1982). These elucidate Report, "guarantee promise appears 19482-19483 Randolph); 19504 (Sen. Humphrey); 19505 (Sen Beall); 23704 (Rep. Brademas); 25538 Cornell); 25540 Grassley); 37025 Perkins); 37030 Mink); 37412 Taft); 37413 Williams); 37418-37419 Cranston); 37419-37420 Beall). times described tailoring potential." H.R.Rep.No.94-332, Pages see 23709 Stafford, declared: "We [given child] equivalent, least, receive." 19483. directly supports 69 standard, "Congress meaningful." 192. "meaningful" enlightening "appropriate," obtained meaningful education.2 falls far intended. details specifically possible kind receive. apparently "access 201, voice, service. mean "specifically 1401(16) added).3 Providing voice instead, recognized, eliminate effects handicap, learn possible. comprehends said classroom—less normal comprehend. hardly learn, makes grades. 71 Despite reliance speculates describe settings prescribe 197, 21. Of course, applied ways; recommend mainstreaming children; points, refer incorporates modify "education." answer satisfactory one. discussion flawed ask "complied Act" benefits." 206, 207. conduct searching inquiry. assigns significance provision's safeguards." else belong? acknowledge specifying appropriate," 1415(e)(2), substituted sharply. decided reduce decisions. 74 matters first, final, directs decision." deliberate unusually indication undertake instead relying agency. 75 Williams, chief sponsor bill, Chairman, manager responsible emphasized breadth levels: 76 "Any concerning regarding regard, Mr. President, stress referring involve respecting charge scope alleging refused erroneously classified when, 37415 77 There doubt consider, novo, issues. Williams explicitly encompasses original complaint. 37416. 78 limitations envision Instead, aspect IEP; challenges possible, 79 failing supply did. Government observes, "courts [§] inevitably presented, 'appropriate' involved." that. Under bound construction Rowley. reflect factual erroneous, respectfully dissent. S.Rep.No. 94-168, (S.Rep.); 2-3, 1425. Two cases, (ED (1972), later prominent contributing statutes preceded it. 3-4. opinion. functions formerly Health, transferred 1979 Organization 3401 ed., Supp.IV). 3441(a)(1) children—educating children—Congress acknowledges nature severity handicap [may be] supplementary aids achieved satisfactorily." 1412(5). separate institutional settings. ibid.; 1413(a)(4). covering variety conditions, "regardless handicap." 1412(2)(C), 1414(a)(1)(A). file complaints formulated, represent examples examine obtain 1415(b)(1)(A). 1412(4), 1414(a)(4). policies "consultation individuals involved 1412(7). 1412(2)(E). agencies, applying submit applications consultation guardian[s] 1414(a)(1)(C)(iii), application along "all pertinent documents application," "available parents, public." party" "be (1) accompanied advised counsel problems (2) confront, cross examine, compel attendance witnesses, (3) electronic verbatim (4) decisions." 1415(d). reasons revealed 533. 1401(18), referring. overlooking regulations interpreting promulgated 504 Rehabilitation citing 84.33(b). challenged created 1978-1979 subsequent years. disagree. Judicial invariably takes nine months complete, mention consumed preceding hearings. ruled retained alleged deficiencies capable repetition yet evading 536, 538 Murphy Hunt, 455 478, 482, 1181, 1183, 353 (1982); Weinstein Bradford, 423 147, 149, 96 347, 348, 350 Examples "related "speech pathology audiology, psychological occupational therapy, recreation, medical counseling diagnostic only." 1401(17). dissent, finding purpose" 218, concludes one." Post, 216. Presumably, dissent agrees "it officers carte blanche whatever burden indicate imposed. characterizes open-ended, "if history." 213. Not unable suggestion limitless, dissent's approach fundamental proposition spending power, unambiguously. infra, 26. No easier seen fit comprehensive so, "our construe written. expresses words. ascertain—neither subtract, delete distort." Cases Jam 340 593, 515, 518, 95 L.Ed. 566 (1951). faithful concluding unspecified proportions weight, case-by-case adjudication 10; Note, U.Mich.J.L.Ref. 110, 119 (1976). See, 19494 Javits) ("all often, citizens denied education"); 19502 Cranston) (millions children"); 23708 Rep. Mink) ("handicapped trained personnel"). "[i]ncreased awareness [that] pointed necessity expanded fiscal role." 5, 1429. 2-3. comports implicit capacities," added), served," 1266. (Emphasis added.) speaks "adequate" 878, sets realistic met. therefrom. inadequacies System occasioned insufficient inefficiency, certainly bear heavily 'exceptional' "identify, locate, evaluate" 1267, create 1265, "on assignment," inspect object officer, represented confront cross-examine adverse 879-881. overall 6-7; cases," "add[ing] new to: insuring insure handicapped; testing materials utilized classification selected administered racially culturally discriminatory." explains incorporated "primarily amend permanent mechanism enacted 93rd [the statute] families." 5. statute's demonstrating virtual consensus among legislators Schweicker); 23702 Madden); ibid. 23709) Minish); 37024 37027 Gude); 37417 Javits); 37420 Hathaway). Randolph stated: "[O]nly percent school-aged pre-school-aged figures calculations "served." ("only Nation's proper services"); Humphrey) ("[a]lmost school, none experience"); 23706 Quie) children] Biaggi) ("[o]ver country par all"). Statements text, equate services," 19492 19496 Stone); 19504-19505 23703 H.R. 7217 Select 91, 150, 153 4199 93d 130, 139 (1973). 300.343 permit, focuses arguing [it means]." Whatever potential-maximizing originated decision, "education [their] capacities." 1258. again point program," 879, "suitable publicly-supported 878. 1266; definitive, 1412(5) 1401(19) "whenever attend drafted. school" 1401(18)(C). recognition environments uses refute art concisely Humphrey). intention, frequently expressed enabled degree self-sufficiency. long range implications taxpayers billions lifetimes maintain dependents minimally acceptable lifestyle. With productive citizens, forced burdens. Others, increase independence, reducing dependence society." 9, 1433. 11. "providing now society, depend subsistence payments funds." 25541 Harkin); 37024-37025 37410 attainable personal independence obviously time, self-sufficiency deal modest mention, conclude, Appeals, mildly unreachable goal, "self-sufficiency" overly demanding requirement. beneficial, Title "procedures private institutions care facilities, classes, schooling, removal environment occurs automatically professional administrators, dispositive. defending rely found. statements, thin reed disregards balance "Passing phrases controlling analyzing 595, Moreover, evince "[L]egislation contract: return funds, federally conditions. legitimacy legislate rests voluntarily knowingly accepts 'contract.' condition moneys, unambiguously." 17, 1539-40, (footnote omitted). fortiori done unambiguously, valid power. plan, assurances conforms III, supra. debated scholars. Large, Special Problems Deaf Wash.U.L.Q. 213, 229 accepted respondents' experts trend studies success up households using Rowleys]." 535. aware States' traditional execution policy. "Historically, elementary level." 19498 Dole). Epperson Arkansas, 393 97, 104, 266, 270, 228 (1968) ("By large, Nation committed control authorities"). ensures advice advisory panel, appointed Governor official appointments, composed individuals, teachers, officials, advises unmet comments rules issuance 1413(a)(12). declined relies 189,195, 196-197, 20. often linked urging opportunity. Brademas). wanted schoolhouse, entered. conclusion, Pa.1971), (D.C.1972). served quotes 193,199, non-handicapped (1973), "In Hobson Hansen, [269 401 (D.C.1967) ] Judge Wright denying poor affluent violative Due Process Fifth Amendment. fortiori, defendants' plaintiffs just Clause." 875. Rodriguez validity reasoning, exposes mischaracterization assumptions legislature

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