Legal Document

417 U.S. 402 94 Supreme Court Reporter 2274 41 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 159 Hubert WHEELER et al., Petitioners,v.Anna BARRERA al. Number 73—62. Argued Jan. 16, 1974. Decided June 10, Judgment Modified 1975. See 95 2625. Syllabus Title & N Dec. Immigration and Nationality Decisions of the Elementary Secondary Education Act 1965 (the Act) provides for federal funding special programs educationally deprived children in both public private schools. Respondents, parents attending nonpublic schools Kansas City, Mo., brought this class action, alleging that petitioner state school officials arbitrarily illegally were approving eligible services comparable to those offered children, seeking injunctive other relief. Petitioners answered aid sought by respondents exceeded I's requirements contravened State's Constitution law policy. First Amendment issues also raised. The District denied Appeals reversed remanded, holding that: petitioners violating requirement implementing regulations be afforded a program provided schools; if on-the-premises teaching are furnished then must children; constitutional provision barring use 'public' funds did not apply funds; question whether within meaning State was governed law; and, since no plan instruction had yet been implemented, court would refuse pass on petitioners' claims Establishment Clause violated does require or permit such instruction. Held: 1. At stage proceedings cannot reach decide requires assignment publicly employed teachers provide remedial during regular hours premises attended students. Pp. 415—426. (a) While correctly ruled erred denying relief where it clearly appeared failed comply with Act's comparability requirement, Appeals' opinion is read effect submit approve plans employ hours. Pacific KF135 P2 415. (b) That permissible under Missouri law, evinces clear intention spending proscriptions preempted as condition accepting funds. key issue money 'donated any fund purposes' purely characterizing problem one involving 'federal' 'state' funds, concluding governs, nullified policy accommodating law. 415—419. (c) It unnecessary view fact obligate but only 'comparable' (not identical) services, illegality defense respondents' charge noncompliance I. 419—420. (d) On remand, local agency have option they do choose method turns out prevents its use, following options remain: (1) may utilize still complies requirement; (2) eliminates resort, instead, means, neutral sites summer programs; (3) participate at all program. 426—427. 2. properly declined issue, since, order requiring having entered, matter ripe review. 3. entitled therefore relief, particular form service, role agencies, courts, least stage, formulate suitable plan. 427—428. 475 Federal Reporter, 2nd 1338, affirmed. Leo Pfeffer, New York petitioners. Thomas M. Sullivan, respondents. 1 Daniel Friedman, Washington, D.C., States, amicus curiae, leave Court. 2 [Amicus Curiae Information from page 404 intentionally omitted] Mr. Justic 3 e BLACKMUN delivered 4 1965, amended, 20 Code KF62 § 241a seq., 5 This suit instituted behalf parochial students who benefits claimed authorities their area, violation Act, adequate compared children. defendants extensive plaintiffs rights raised parties. Court, fulfilled obligations, Eighth Circuit, divided vote, reversed. 1338 (1973). We granted certiorari examine serious questions present scope constitutionality 414 908, 228, 38 145 6 * first federal-aid-to-education authorizing assistance well Congress, statutory declaration policy1 otherwise, recognized areas necessarily attend schools, that, legislative aim needed rather than specific necessary include among beneficiaries Act.2 7 Since designed administered education officials,3 number problems naturally arise delivery pupils. Under administrative structure envisioned primary responsibility designing effectuating rests what describe 'local educational agency.'4 submits 'State agency'5 proposed meet needs attendance high concentrations low-income families. turn, forward approved proposal Commissioner Education, has ultimate administering dispensing appropriated allocated In receive approval, plan, requirements, 'comparable quality, scope, opportunity participation equally priority.' Office (USOE) Program Guide 44, 4.5 (1968),6 reproduced ESEA, Participation Private School Children—A Handbook Local Officials, Dept. Health, Welfare, Publication (OE) 72—62, Page (1971) (hereinafter referred Handbook). 8 case concern duty insure submitted II 9 Plaintiff-respondents minor elementary secondary inner city area Missouri. They action Western themselves others similarly situated, defendant-petitioners, members Board complaint an injunction restraining continued violations accounting restoration some $13,000,000 allegedly misapplied 1966 1969. 10 initially dismissed alternative grounds failure exhaust remedies abstention. dismissal remanded trial. 441 795 (CA8 1971). observed: '(W)e indicate merits alleged officials.' Id., 801. 11 found while most used 'to instruct subjects,' refused applications allocating hours.' Pet. Certiorari A40. find instances mobile equipment, visual aids, radio television Teachers after-school classes, weekend open pupils, approved.' A40—A41. 12 perhaps described something less full cooperation sides, possibility providing apparently frustrated many accept federally funded teach same time, forbidden furthermore, it. larger portion (over 65%) personnel instruction, stalemate substantially per pupil expended sense can considered 'comparable.'7 13 Faced situation, '(t)his head-on conflict . resulted undoubtedly inequitable expenditure between districts state.' A41. 14 Nonetheless, reasoned obligation could violate Act. further 'except requesting salaried schools,' id., A43, commitment. directly consider without complied despite gross disparity delivered. 15 traced history I, examined language statute regulations, noted 'that opportunity, which equal dollar expenditures schools.' F.2d, 1344. observed mandate take confines left agencies task best suited particularized area. After reviewing unique situation existing Missouri, grossly malapportioned due refusal either dual enrollment premises,8 concluded requirement: contemplated premises. words, we think demands programs, needed, disadvantaged child.' 1353. 16 response argument forbids sending into held application although generally accommodated 'public,' Constitution,9 decided 1351—1353. Finally, claim fact, service reason stated court's 'must refrain passing upon important abstract hypothetical basis.' 1354. 17 dissent argued permits assignment, embracing mandate, substantial avoided. 1358—1359.10 III 18 parties odds over two issues: First, record students, second, exists, contravenes Amendment. conclude proceedings. 19 Atlantic requirements. As presented commitment services11 represented plainly inferior, qualitatively quantitatively, correct ruling refusing But history, reveal intent Congress place plenary formulation There pronounced aversion 'federalization' decisions. 21 'It legislation prescribe types projects will required districts. Rather, matters discretion judgment strengthening opportunities pupils vary district district.' H.R.Rep. 143, 89th Cong., 1st Sess., (1965); S.Rep. 146, (1965), U.S.Code Cong. Admin.News 1446. 22 And 1232a provides, inter alia: 23 'No shall construed authorize department, agency, officer, employee exercise direction, supervision, control curriculum, administration, institution, school, system ..' 24 Although directed primarily HEW's assuming national board, playing overly active supervising manner expenditures. 25 outset, believe one-the-premises Whatever might there expression congressional intent,12 pre-empted funds.13 namely, purposes,' Constitution, Article 9, 5, By Appeals, feel, rule 'federal law' should disturbed. If determined, ultimately, position exposition requires, preempted, but, rather, proscribed prohibits unresolved. n. supra. 26 Furthermore, posture case, even state-law way because prohibited Constitution. But, discussed more fully below, obligated services. Assuming arguendo, prohibit being provided. choice proviso made available rendered unavailable proscriptions, solution acceptable form. short, issue. deciding barred issued advisory opinion. Even apart traditional policies abstention comity, current case. 27 recognized, noted, broad programs.14 'Comparable,' however, mean 'identical,' contrary assertions or, matter, itself, ever identical schools.15 different similar certain legally impossible restrictions, notably church-state supra.16 intended override these individualized restrictions. levels so accommodate 28 Inasmuch comparable, identical, required, mere create make children.17 expressly appropriate A identity run counter recognition. anticipated, sure, instruction,18 remand agency. If, pursue method, three 29 nonetheless, measure up comparability. Respondents appear arguing here reached method. support position, argue: 'The effective type teacher specialist nothing except personnel.' Brief 49. essence, asking hold, mode delivering superior others. To court, relative various possible seriously misreads decisions kind agencies. unthinkable, terms basic judiciary, courts given function measuring comparative desirability pedagogical methods 30 light uncontested proscription against enrollment, significant challenge devise forgo say, impossibility; relying 'the initiative administrators develop (comparability) requirements,' 20, 31 Of course, obviously expected design school. clear, places overall defeated simply refuses unless requests. approval. result school's direct lose. give veto power selected agency.19 32 sum, difficult, implement legal facts certainly, continue fail genuine effort lack equipment cannot, face, comparable. equalize level quality offered, substituted alternatives numerous.20 Providing fill gap, alternatives. 33 Second, unwilling unable using resorts likely rise 34 Third, attractive nonparticipation Indeed, Commissioner, subject judicial review, 241k, bona fide 241j. 35 baron second major paid courses. noting entered agree. pointed above, utilizing Moreover, if, favor range possibilities implications according precise contours formulated. For example, whereby former time quite teacher, solely control, sent courses few week. intimate 36 when implicated context proved delicate Usually careful evaluation See, e.g., Lemon versus Kurtzman, 403 602, 91 2105, 745 (1971), Tilton Richardson, 672, 2091, 790 (1971). wholly inappropriate us attempt render before us. sit decision facts, concluding. 37 disposed follows: directions enjoin ordered retain continuing jurisdiction litigation purpose requiring, reasonable limits, imposition guidelines comport regulations. Such lawful means machinery effectively assuring non-public meaningful size, incorporated decree court.' 1355 1356 (footnotes omitted). 39 affirm disposition understanding insuring Commission. understood Court's best, assure fulfill part contract Cf. Lau Nichols, 563, 786, (1974). one, overriding localized every defer are, therefore, repeatedly herein, 40 basis, ordered. 42 Affirmed. 43 Justice MARSHALL concurs result. 44 POWELL, concurring. 45 holds ignore prohibitions ante, 416—417, 419, respects Ante, 420—421. thus sectarian contravene 2282. join misgivings about utilization Committee Public Nyquist, 413 756, 93 2955, 948 46 WHITE, concurring judgment. 47 majority opinion, understands enough pay salaries giving premises, furnish satisfied requirement. now used. 48 intimates constitutional. suggests, ways satisfying consider; asked chase rainbows, implied thought arrangement impermissible recent cases construing Clause. Not joined opinions, am pleasantly surprised appears suggestion finance nonsectarian suggest say expressly. Failing concur 49 DOUGLAS, dissenting. 50 comes posture, aimed help 'educationally deprived' fear judiciary seduced. remember propriety legislature's purposes immunize scrutiny advances religion, fosters excessive entanglements Church State.' 774, 2966, 948. 51 All essence bright retarded. Schools exist—whether parochial—to keep employed. skein threads—from classical Greek Latin, grammar, philosophy, science, athletics, religion. political motivation deficits budget strengthen financing sector activity. 52 constitutionally wise so; permissible. says: 'Congress respecting establishment religion.' common surer 'establishing' institution true adoption Madison, foremost authors, fought battle Virginia capita minimal levy each person pence. Yet church pence capita, principle 'establishment' limit amount Government add coffers. his Remonstrance.1 Black it, '(n)o tax amount, large small, levied religious activities institutions, whatever called, adopt practice Everson 330 1, 67 504, 511, L.Ed. 711.2 53 Parochial adjuncts established gvernments highly discriminatory sects introducing training tale told often;3 need repeat here. tied proclamation inculcation faith—sometimes Catholic, sometimes Presbyterian, Anglican, Lutheran, on. 54 emanations suggested war our prior aspect activities, allowed, subtle evasion prohibitions. unit; pouring seems phase 'establishes' effect, purpose, becomes stronger financially better able proselytize faith objective. Allowing secular 'makes grave turn merely cost bookkeeping entries.' 641, 2125, (Douglas, J., concurring). 55 Nor immunized portraying going supra, U.S., 781 S.Ct., 2969. deserves weight received Equal Protection Fourteenth Amendment, respect summarily affirmed striking down schemes circumvent racial integration granting tuition segregated Poindexter Louisiana Financial Assistance Comm'n, 275 F.Supp. 833, aff'd, 389 571, 88 693, 780, 296 686, 393 17, 89 48, 16. see Griffin County Board, 377 218, 84 1226, 256. 56 moot; controversy exists; barriers maintained, serving Act—whether used, hours, plain truth day, unconstitutional extent supports through 57 now, save endless efforts hopeful people expend constitutionalize amendment. 'In recognition families impact ability hereby declares financial (as set forth parts subchapter) expand improve (including preschool programs) contribute particularly meeting children.' 241a. Regulations 116.1, definitions, with, addition to, definitions contained 244. draw distinction Specifically: "Educationally children' attainment age. term includes handicapped whose poverty, neglect, delinquency, cultural linguistic isolation community large.' 116.1(i). grant 'satisfactory assurance subchapter, title property therefrom, uses administer property.' 241e(a)(3). '(T)he agency' board authority constituted direction of, perform for, city, county, township, district, subdivision State, combination counties 244(6)(B). 116.1(r). officer responsible supervision 244(7). 116.1(aa). state: 'Each residing enrolled therein consistent nature deprivation.' 116.19(a). them, after consultation persons knowledgeable basis 116.19(b). noted: whole years materials supplies exclude sharing whatsoever Most involve reading, speech therapy mathematics largest proportion involves aids. instructional 65 cent 70 total grant. remaining materials, health counseling transportation, plant maintenance. One difficulty expenses soon reaches saturation point; appropriation spent materials. child ranging approximately $10 $85 $210 $275 1345. An informal survey conducted revealed 93—95. 'Thus, authorizes V. A.M.S., provides: proceeds certificates indebtedness fund, moneys, bonds, lands, belonging donated purposes, net sales lands effects accrue escheat, treasury, securely invested education, sacredly preserved annual income faithfully establishing maintaining free whatsoever.' (Emphasis supplied.) 8, 'Neither general assembly, nor town, municipal corporation, whatever, anything creed, sustain academy, seminary, college, university, learning controlled denomination whatever; donation personal real estate state, church, whatever.' Constitution's Bill Rights, 7, 'That taken indirectly, sect priest, preacher, minister thereof, such; preference discrimination creed worship.' Special Wheeler, 408 South 60, 63 (1966), moneys send therapy' 'for 'unlawful invalid.' grants exist District. promulgated regulation governing "Special arrangements, including broadened offerings facilities. prevent inclusion project arrangements schools." 1350. formal Attorney General opposing view, stating: 'We (Title I) converts aid, thereby making provisions.' concludes: office circumstances necessary, personnel, pursuant program, school.' Op.Atty.Gen. (1970). fundamental intrastate rift General's nonappearance litigation. point. ex rel. Hartington Nebraska 188 Neb. 195 North 161, cert. denied, 409 921, 220, 182 (1972). May 1973, 'Injunction Issued Compliance Mandate' A45—A47. appealed judgment, appeal moot certiorari. Our review reported 1338. presently itself mention 'comparability.' determine 'that, (such television, equipment) participate.' 241e(a)(2). §§ 116.19(a) (b), source 6, cited proposition federal, govern, 93.970 Acres Land, 360 328, 79 1193, 1275 (1959). There, said: often essential interests concerned, rules chooses laws applicable. apparent 332—333, 1196 choice, 13, infra, controlling. During debates House, limitations accommodated. point Congressman Goodell preclude forms Perkins, Chairman Subcommittee, was: gentleman lawyer he knows you bill law.' 111 Cong.Rec. 5744 (1965). Responding later observation Carey responded: prohibition applies single why multiplicity this, helping 5758. Thompson subsequently 'Therefore, States.' Ibid. 5957 (remarks 5979 Goodell); 5747 Perkins). recognizes accommodated: 'Many departments severe restrictions respective constitutions statutes allowed them especially owned operated groups. list illustrates encountered applied exhaustive. '* Dual allowed. Equipment loaned Books Transportation 'Sometimes singly State. Often, combination. 'When ESEA passed department attorney declared authority, duties functions constitutions, laws, interpretations relieve 'A realized applying operative States. impasse sucessfully (sic) resolved general's applicable 100 percent financed programs. 'Other allow SEA Still relied requirements.' 19—20. refers activities. Those priority. 'Comparability' attained numbers related needs, produce equitable resources groups USOE (1968), 41—42. 116.18(a). 116.19(c) student body specified grade.' 10—11. referring 'comparability' definition 14, states: 'Basically, saying this: When group groups.' FC 'Title sufficiently flexible observe, possible, (e.g., enrollment). Accordingly, outside classroom, classroom addition, content differ 'special needs' met (s) 241e(a)(1) (A) differ.' Amicus (footnote inferior year passed, House Labor Supplemental Report 'While committee Council emphasized importance adherence safeguards, expect considerations device token communication extended, worse yet, schoolchildren inconvenient, awkwardly arranged, poorly conceived. contrary, earnest ascertain accurate appraisal underachievement Projects eliminate factors gaining benefit academic she enrolled.' H.R.Rep.No.1814, pt. 2, 1966, 3844. Senate outlined appropriate: facilities specialized therapeutic, welfare services) normally S.Rep.No.146, 116.19(e); (1965) Congs. Perkins Carey). 'There easy solutions logistrical problems. However, allows several good exists representatives, logistical solved reasonably reduced.' 23. listing 10—11 Among examples listed aides secretaries; institutes skills; supplementary materials; curriculum center reading mathematics; enrichment Saturday morning summer; media centers modern early identification prevention dropouts; home visitors social workers; supplemental food services; classrooms equipped instruction; centers; camps; day shop library hours; work experience classes; oriented bookmobiles; afterschool study exchange Madison's Remonstrance reprinted appendices 63, 534, 711 (Rutledge, dissenting), Walz Tax 397 664, 719, 90 1409, 1437, 697 dissenting). 5—4 sustaining reimbursement bus transportation traveling went 'verge' territory Religion Clauses 511. expressed my doubts correctness decision, Engel Vitale, 370 421, 443, 82 1261, 1273, 601; 703, 1429. Krutzman, 628—629, 2118—2119,

Classification Label: 2