Indiana State Bd. of Educ. v. Brownsburg
| Decision Date | 30 April 2007 |
| Docket Number | No. 32A01-0611-CV-494.,32A01-0611-CV-494. |
| Citation | 865 N.E.2d 660 |
| Parties | INDIANA STATE BOARD OF EDUCATION, Appellant-Respondent, v. BROWNSBURG COMMUNITY SCHOOL CORPORATION, Board of School Trustees, Appellee-Petitioner. |
| Court | Indiana Appellate Court |
Steve Carter, Attorney General of Indiana, David L. Steiner, Deputy Attorney General, Indianapolis, IN, Attorneys for Appellant.
George T. Patton, Jr., Steven D. Groth, Robert A. Parrish, Bose McKinney & Evans LLP, Indianapolis, IN, Attorneys for Appellee.
Appellant-respondent Indiana State Board of Education (the ISBE) appeals the trial court's ruling in favor of appellee-petitioner Brownsburg Community School Corporation, Board of School Trustees (Brownsburg), which set aside the ISBE's administrative order directing Brownsburg to enroll two students in the school system on a part-time basis. Specifically, the ISBE maintains that the trial court improperly determined that Brownsburg had the discretion to deny the students from enrolling in less than a fulltime schedule. The ISBE further claims that the trial court erred in granting affirmative relief rather than remanding the cause to the administrative agency for further proceedings. Finding no error, we affirm the judgment of the trial court.
The facts, as reported in Indiana State Board of Education v. Brownsburg Community School Corporation, 842 N.E.2d 885 (Ind.Ct.App.2006), are as follows:
On August 4, 2004, Catherine Johnson ("Johnson") met with Kathy Corbin ("Corbin"), superintendent of Brownsburg Community School Corporation ("Brownsburg"), and asked that her sons, Ta. and Tr. ("the students"), be allowed to enroll at Brownsburg on a part-time basis for the 2004-2005 school year — Ta. in band and Tr. in AP calculus and Madrigals. Johnson planned to enroll the students mainly in home study correspondence courses, including classes through Brigham Young University. At the time of Johnson's request, Brownsburg had the following policy in place:
The Superintendent or the Board will not grant approval per I.C. 20-8.1-3-17.3(b) for students from non-public, non-accredited, or non-approved schools including home educated students to enroll in less than six (6) credit generating courses unless an [Individualized Education Program] is in effect.
Appellant's Br. p. 22; Appellant's App. p. 43. Because Johnson's proposed course of home study is not approved by the ISBE and because there was no individualized education program (I.E.P.) in effect for the students, Corbin denied the requested part-time enrollment.
The students appealed Corbin's denial of their request for part-time enrollment to the ISBE. On February 3, 2005, the ISBE, relying on the recommendation of the administrative law judge ("ALJ") it had assigned to the case, voted to reverse Corbin's decision and ordered Brownsburg to enroll the students on a part-time basis in the classes in which they sought enrollment.
On February 4, Brownsburg filed its Verified Petition for Judicial Review of an Agency Action and Stay of Order Pending Final Determination ("Petition") with the trial court. Attached as exhibits to the Petition were copies of the ISBE ALJ's recommended orders, Brownsburg's objections to those orders, and Brownsburg's published policy on student enrollment. In the Petition, Brownsburg requested a stay of the agency action and an expedited hearing on judicial review of the matter. That same day, the trial court, having determined that a reasonable probability existed that the ISBE's action was invalid or illegal, granted the stay and set the matter for a "preliminary hearing" on February 15. Appellant's App. p. 90.
The preliminary hearing was held as scheduled on February 15. At the beginning of the hearing, when the court asked deputy attorney general Chad Duran (Duran), the ISBE's attorney, what the status of the case was, he responded, "The Indiana State Board of Education opposes the stay, uh Your Honor." Tr. p. 7. Later, Duran stated, Id. at 11. The court then asked Buren Jones (Jones), Brownsburg's attorney, what "supports you obtaining uh an injunction," and Jones responded, "the court only need find by the petition and the arguments here today that there's a reasonable uh probability that the [ISBE's] order [is] invalid or illegal[.]" Id. at 13.
During his closing, Duran made the following comments:
Ultimately, we have a situation here where we are attempting to harmonize the Indiana State Constitution with the relevant law that Mr. Jones cited. . . . That's the ultimate issue to be decided once this matter is fully briefed it goes through the process.... The school corporation is certainly ready willing and able to absorb two additional students into its system on a part time bases [sic] so let's keep the order of the Indiana State Board of Education in place while we determine these important Constitutional issues.
Id. at 20-21 (interjections omitted). In his closing, Jones stated, in pertinent part:
[T]he choice to home school is theirs but with as with [sic] every choice comes consequences and uh because they voluntarily withdrew by granting the stay you're not going to be taking anything away from them that they already have. . . . Alright, if you don't grant the stay, if the court doesn't grant the stay we'll not only have these two [students] but we'll have others that will place a burden on the school. . . . We may have to hire additional staff to teach these children. If we hire additional staff and then we ultimately prevail which we expect that we will, we can't just automatic [sic] fire that additional staff[.]
Id. at 22-23. At the end of the hearing, the trial court invited the parties to submit briefs of 250 words or less, but both declined.
Two days after the hearing, on February 17, the trial court entered its Order After Preliminary Hearing, which provided, in pertinent part:
[I]t is hereby ordered that the Findings of Fact, Conclusions of Law, and Recommended Order entered by Valerie Hall, Hearing Examiner of the Indiana State Board of Education, on 16 December, 2004, under cases number 0408012B and A are vacated because they are contrary to the clear law set out by our legislature, over-broad, arbitrary and capricious, and an abuse of discretion [.]
On February 28, Brownsburg filed with the trial court a Notice of Filing of the Agency Record. Attached to this filing was that portion of the agency record that had been provided to Brownsburg by the ISBE as of that date. The filing did not include portions of the record that had been preserved without transcript and delivered to Brownsburg via audio cassette tape and video cassette tape. That same day, the ISBE filed a Motion to Correct Errors and Vacate. The motion stated: "It was counsel's impression that the hearing set for February 15, 2005 was set by the Court to address [Brownsburg's] request to stay the agency order pending final determination[.]" Appellant's App. p. 86-87. The ISBE requested that the trial court correct errors, vacate its Order entered herein on February 17, 2005, permit the [ISBE] to file an answer and affirmative defenses or other responsive pleading, provide [Brownsburg] with an opportunity to file the original or certified copy of the record of the administrative hearing below, the subject of the instant judicial review, and set a briefing schedule in which all parties are provided with the opportunity to submit dispositive motions and set forth their legal arguments in supporting briefs in which all parties can cite to the administrative record below in support of their position.
The ISBE filed its answer to Brownsburg's Petition on March 10. Then, because the trial court had failed to take any action on the ISBE's Motion to Correct Errors and Vacate within forty-five days, the motion was deemed denied, pursuant to Indiana Rule of Trial Procedure 53.3. On April 18, having received the remaining portions of the record from the ISBE, Brownsburg filed another Notice of Filing of the Agency Record. Thereafter, the ISBE filed its notice of appeal from both the trial court's Order After Preliminary Hearing and its denial of ISBE's motion to correct error, and the trial court entered an order indicating that it would take no further action in the case pending this appeal.
Id. at 886-89 (footnotes omitted).
On appeal, we reversed and remanded the case "with instructions to the trial court to conduct a judicial review proceeding in which the parties are given an opportunity to submit relevant documents and make substantive arguments on the merits of Brownsburg's Petition." Id. at 892. Neither party requested the opportunity to present additional evidence. Thus, a special judge considered briefs that the parties had submitted and heard argument. On March 27, 2006, the ISBE moved to dismiss the case on the grounds of mootness. The trial court denied the motion and entered judgment for Brownsburg on October 5, 2006. The trial court ordered the ISBE's ruling vacated as "contrary to law, arbitrary and capricious, and an abuse of discretion." Appellant's App. p. 20. More particularly, the trial court's findings of fact and conclusions of law provided as follows:
12. The decision of the Indiana State Board of Education, . . . which decision interprets I.C. 20-8-3-17.3 to require the school corporation or superintendent to approve part time enrollment of home schooled students is contrary to the legislative intent expressed in said statute. Accordingly, the agency's interpretation is incorrect, and must be reversed as arbitrary and capricious.
13. The Brownsburg Community School Corporation policy at issue in this case...
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