AMY BERMAN JACKSON, District Judge.
On August 18, 2011, Tracy Davenport, acting on behalf of her minor child, A.M., (together "plaintiffs"), brought this action against the District of Columbia challenging a hearing officer's determination that A.M. was not denied a free and appropriate education ("FAPE") pursuant to the Individuals with Disabilities Education Act ("IDEA"), 20 U.S.C. § 1400 et seq. This Court referred the case to Magistrate Judge Alan Kay on September 28, 2011. Subsequently, both parties filed cross-motions for summary judgment. The Magistrate Judge issued a Report and Recommendation on December 17, 2012, recommending that this Court deny plaintiffs' motion for summary judgment and grant defendant's cross-motion. Plaintiffs filed timely objections to the Report. The Court has reviewed the entire record de novo, including the administrative record, the transcript of the proceedings before the hearing officer, and the Hearing Officer Determination, and based on that review, it will accept the findings and recommendations of the Magistrate Judge, deny plaintiffs' motion, and grant the District's cross-motion.
A.M. is currently a ten year-old student who resides with his mother, Tracy Davenport, in the District of Columbia. Administrative Record [Dkt. # 15] ("AR") 8, 45. He attended D.C. Preparatory Academy Edgewood Campus ("D.C. Prep"), a public charter school, for kindergarten and first grade. AR 8; see also Tr. of A.M. Administrative Hearing [Dkt. # 15] ("Tr.") at 193:1-194:11. While in kindergarten, A.M. was diagnosed with Mixed Receptive-Expressive Language Disorder, and he became eligible for special education and related services. AR 7, 66-68. In September 2009, shortly after starting his first-grade year, D.C. Prep drafted an individualized education program ("IEP") providing A.M. with ten hours of special education services per week. AR 110. By the end of his first-grade year, A.M. had "improved in classroom participation and engagement in learning. He ha[d] also shown growth in number sense and computation. The Special Education teachers [at D.C. Prep] both reported significant progress. However, his learning appeared inconsistent...." AR 110. In the meantime,
During an IEP meeting on the last day of school, the D.C. Prep staff gave Ms. Davenport an overview of A.M.'s progress that year and recommended revising his IEP to include fifteen hours of instruction outside the general education setting and five hours within it. AR 79-85. The team also recommended continuing speech language services for two hours a week and occupational therapy for one and a half hours a week. AR 85. In response, Ms. Davenport informed the team that she had already decided to withdraw A.M. from D.C. Prep and had enrolled him at Kingsbury for the upcoming school year. AR 85, Tr. 196:14-:19. In August 2010, Ms. Davenport enrolled A.M. in Brookland Educational Campus at Bunker Hill — the neighborhood school — as a non-attending student so that she could ask the D.C. public school system ("DCPS") to develop a special education program and placement for him. AR 86, 102, Tr. 243:15-:21.
Between August 2010 and January 2011, representatives for A.M. attended and participated in four meetings with Brookland's multidisciplinary team ("MDT") to develop an IEP for A.M. The parties also continued their discussions and work between the meetings.
In February 2011, Ms. Davenport and her educational consultant visited Brookland "to see what they had to offer." Tr. 209:19-214:2, 108:21-:22; see also Tr. 95:1-97:20. While there, she asked the Brookland special education instructor to set out/detail what A.M.'s schedule would actually look like if he enrolled. The Brookland special education instructor stated that generally it was difficult to create a schedule for a student with more than 15 hours of specialized instruction because the school had to consider other variables like recess and special subjects. Tr. 258:10-:17; see AR 179 (proposing that A.M. have 20 hours of specialized instruction plus additional related services). She also stated that she could not provide a schedule for A.M. at that precise moment. Tr. 258:10-:17. A.M. had not yet enrolled at Brookland. Tr. 259:7-:8.
On March 17, 2011, Davenport filed a due process complaint asserting that DCPS had denied A.M. a free and appropriate public education. AR 218. After a due process hearing on May 11, 2011, the hearing officer issued his determination on May 22, 2011, finding that the District did not deny A.M. a FAPE because: (1) the January 2011 IEP contained a sufficient number of hours of specialized instruction and included appropriate goals; (2) DCPS proposed to place A.M. in a school that could implement the IEP; and (3) A.M. and his representatives had actively participated in the IEP process. AR 23-38. The hearing officer also concluded that DCPS did not predetermine the components of the IEP, and noted that in fact, it had adopted a number of A.M.'s team's suggestions. AR 34-36. The hearing officer also found DCPS's witnesses to be more credible and persuasive because Ms. Davenport's witnesses relied on the wrong legal standards. AR 23-25. He also concluded that Ms. Davenport's own credibility was impaired because she had never intended to enroll A.M. in a D.C. public school in the first place; DCPS "could not deny FAPE to the student if the student was never going to attend one of [its] public schools." AR 25-26. Based on these findings, the hearing officer denied Ms. Davenport's request for payment for private schooling at Kingsbury. AR 38; see also AR 218 (detailing the relief requested by Ms. Davenport).
On August 18, 2011, Ms. Davenport filed this action on behalf of A.M. appealing the hearing officer's determination.
On December 17, 2012, the Magistrate Judge issued a Report and Recommendation in which he recommended that this Court deny plaintiffs' motion and grant defendant's cross-motion. Report and Recommendations [Dkt. # 24] ("R & R") at 2. Plaintiffs filed their timely objections to the Report on December 27, 2012. Pls.' Objections to Report and Recommendations [Dkt. # 25] ("Pls.' Obj.").
When a party objects to a Magistrate Judge's recommended disposition, the Court reviews de novo the portion of the recommendation that has been objected to. Fed.R.Civ.P. 72(b)(3); see, e.g., Smith v. District of Columbia, 846 F.Supp.2d 197, 198-200 (D.D.C.2012); D.D. ex rel. Davis v. District of Columbia, 470 F.Supp.2d 1, 1-3 (D.D.C.2007). The Court may "accept, reject, or modify" the magistrate judge's recommendation. Fed. R.Civ.P. 72(b)(3).
Plaintiffs raise four objections to the Magistrate Judge's Report and Recommendations. They contend that:
Pls.' Obj. 2-13. None of these grounds compels the rejection of the Magistrate Judge's Report or the reversal of the hearing officer's determination.
In their objections to the Magistrate Judge's report, plaintiffs set out the authorities that require "meaningful" participation by the parent in the decision making process. See, e.g. Hendrick Hudson Dist. Bd. of Educ. v. Rowley, 458 U.S. 176, 208, 102 S.Ct. 3034, 73 L.Ed.2d 690 (1982) ("Congress sought to protect individual children by providing for parental involvement ... in the formulation of the child's individual educational program.") (citation omitted); Deal v. Hamilton Cnty. Bd. of Educ., 392 F.3d 840, 858 (6th Cir. 2004), (citation omitted) ("Participation [of parents] must be more than a mere form; it must be meaningful.") (emphasis in original). The District does not quarrel with this fundamental proposition, and the Report and Recommendation reflects that the Magistrate Judge assessed the record with this important legal principle in mind. See R & R at 11-12. And, as the Magistrate Judge determined, the record demonstrates a pattern of consistent and meaningful participation by Tracy Davenport, the parent of the child involved. Not
Given this evidence of active participation by a parent supported by a team of experts and advocates, and a constructive dialogue between DCPS and A.M.'s team, the record amply supports the Magistrate Judge's finding that Ms. Davenport's participation in the development of the IEP was meaningful.
Plaintiffs also advance a more specific objection, though, and they assert:
Pls.' Obj. at 1-2.
Plaintiffs submit that the Magistrate Judge ignored "overwhelming" and "undisputed and clear" evidence of "blatant predetermination" of both the amount of specialized instruction A.M. would receive and the particular school at which he would be placed. Id. at 1, 2, and 6. The District correctly observes that the particulars of plaintiffs' concerns about predetermination have been something of a moving target, and that plaintiffs tend to blur the distinctions between the development of an IEP, the determination of an educational "placement" under the IDEA, and the selection of a particular school location for the implementation of that program. Def.'s Response to Pls.' Objections to Magistrate Judge's Proposed Findings and Recommendations [Dkt. # 26] at 3-4; see Lunceford v. District of Columbia Bd. of Educ., 745 F.2d 1577, 1582 (D.C.Cir.1984) (stating that educational "placement" under the IDEA refers to the general educational program in which a child is enrolled, not to a specific location); see also A.W. ex rel. Wilson v. Fairfax Cnty. Sch. Bd., 372 F.3d 674, 682 (4th Cir.2004) (finding that under the IDEA, "`educational placement' is not the location to which the student is assigned but rather the environment in which educational services are provided"); T.Y. v. N.Y. City Dep't of Educ., 584 F.3d 412, 419 (2nd Cir.2009), cert. denied, ___ U.S. ___, 130 S.Ct. 3277, 176 L.Ed.2d 1183 (2010) ("`Educational placement' refers to the general educational program — such as the classes, individualized attention and additional services a child will receive — rather than the `bricks and mortar' of the specific school.").
The Court finds that the record citations submitted in support of plaintiffs' objection on these grounds, and the review of the record as a whole, do not supply grounds for rejecting the Magistrate Judge's report.
Plaintiffs base their argument largely on one portion of the testimony of Linda Miller, the D.C. Special Education Coordinator. They insist that her acknowledgment that she discussed A.M.'s particular school assignment with a placement specialist on her own between the December and January
Plaintiffs point to Miller's testimony on page 337 of the hearing transcript about her conversation with the DCPS placement specialist. At that point, the witness was being questioned by plaintiffs' counsel, who had also been present at the IEP meetings:
Tr. 337:11-338:3. But this discussion does not establish that DCPS made its "placement decision" outside of the IEP meeting and without Ms. Davenport's input. Even looking at this portion of the testimony alone, it is clear that the witness is explaining that in the wake of questions asked by the parent's attorney at the December meeting, she consulted with her own specialists so that she could be more specific at the next meeting about the particular school being proposed and whether A.M.'s neighborhood school, Brookland, could ultimately be the assigned location.
But if that is not clear from the cited excerpt, it becomes quite clear from a review of Miller's testimony in its entirety. On page 334, Miller discussed the December IEP meeting in response to questions from plaintiffs' counsel. She was asked if she had informed Ms. Davenport that Brookland would not be the right fit for A.M.
Tr. 334:15-:20. Plaintiffs' counsel then posed questions asking if Miller and the placement specialist consulted about where A.M. "should be placed." Tr. 335:14-:16. The District objected to the form of the question, and the hearing officer stepped in to clarify the terminology that was being used and to verify that the witness understood it:
Tr. 336:7-:12. With that in mind, Miller testified that she knew at the time that there were already students with life disabilities who required 20 hours of service whose needs were being met at Brookland, but she went on to confirm the suitability of that particular school with the placement specialist. Tr. 336:14-337:19. The colloquy that plaintiffs highlight followed.
The record then reflects that counsel for the District clarified the matter further on redirect:
Tr. 340:17-342:9.
So the record does not support plaintiffs' contention that the DCPS Special Education Coordinator came up with A.M.'s plan in a secret meeting without input from Ms. Davenport or her team. It simply reveals that after an IEP had been presented to Ms. Davenport at the December meeting, and the goals were discussed and revised with Ms. Davenport's participation, Miller then touched base with her own placement specialist to confirm that Brookland would be able to implement the IEP and all of the hours of service it contained. Prior to the December meeting, DCPS went to observe A.M. at Kingsbury. It heard from Ms. Davenport and the educational advocate, and it reviewed written IEP goals proposed by Kingsbury before finalizing its own. The hearing officer and Magistrate Judge therefore correctly concluded that there was no evidence of predetermination or exclusion of Ms. Davenport from the development of A.M.'s "placement" as that term is meant in the context of the IDEA.
The Court came away from its review of the record with the same impression voiced by the hearing officer: that it was the plaintiffs, and not DCPS, who participated in the process with a preconceived notion of what the outcome should be. See e.g., Tr. 315:8-316:18 (testimony of Linda Miller that when the IEP was presented in January, Ms. Davenport did not respond with any specific objections to the proposal; instead, counsel for the plaintiffs immediately responded that they would be seeking funding from DCPS for Kingsbury on the grounds that a FAPE had been denied. "Q: Did the parents or parent's representative say why this student needed to be removed from all interaction with non-disabled peers? A: The only thing that was discussed was that how he was doing at Kingsbury. That was it, you know, they presented the goals and those things from the school ... and we pretty much were not in agreement at the table at that time."); and Tr. 319:19-320:7 (Miller never got any indication that Davenport wanted A.M. to attend any D.C. public school).
Moreover, as the Hearing Officer observed, Ms. Davenport became dissatisfied with her son's experience at the charter school he attended during the school year of 2009 to 2010. In March of 2010, she put down a deposit at Kingsbury and signed a contract obligating her to pay that portion of the tuition not covered by financial assistance in full. Tr. 218:17-220:18. Davenport informed the charter school where A.M. was enrolled that he would be going to Kingsbury at the IEP meeting on the last day of school. Tr. 196:11-:22. The school had proposed a revised IEP including 20 hours of service, but Davenport testified, "I just said okay to get out of there." Tr. 196:18-:19. A.M. began attending Kingsbury in September of 2010, and according to Davenport, she saw a difference within two weeks of his enrollment. Tr. 213:16-:18. Kingsbury tuition was fully paid by January of 2011. Tr. 222:6-:11.
At the hearing, Ms. Davenport was asked why she enrolled A.M. as a non-attending student at the public school in August.
Tr. 221:22-22:5.
Later in her testimony, Ms. Davenport expressed a blanket lack of confidence in the public school's ability to meet her son's needs:
Tr. 234:2-235:1.
At the conclusion of Ms. Davenport's testimony, the hearing officer asked her again why she enrolled A.M. in DCPS as a non-attending student. She explained, "[b]ecause I was already in a contract with Kingsbury so I couldn't pull him from Kingsbury to put him in Brooklyn [sic] ... but I had to enroll him in that in order to proceed in looking at the program. Or see what they could provide." Tr. 243:15-:21. She added that it was her lawyer who explained that was the way to go about it. Tr. 244:1-:6.
This Court did not have the benefit of observing Ms. Davenport's demeanor while she testified. But it was not unreasonable for the hearing officer to conclude on this record that she had no intention of moving A.M. when she sat in the meetings with the school officials in the fall of 2010 and in January of 2011.
But ultimately, the question at issue in this action — whether DCPS provided A.M. with a FAPE — turns upon what the school system offered and not on the presence or absence of bias on the part of the mother. So even if the hearing officer went too far in concluding that Ms. Davenport went into the process with her mind made up, and there was some possibility that she might enroll A.M. in public school for 2011-2012, the credibility finding was not crucial to the outcome, and it does not provide a basis for overturning the hearing officer's decision on the merits. As support for his determination that the District's plan was adequate, the Hearing Officer pointed to a number of factors, including: the fact that plaintiffs' witnesses were applying the wrong standard, AR 24-25; the fact that the plaintiffs had not presented evidence to establish a need to remove A.M. completely from all non-disabled peers, AR 27; and the evidence in the record that A.M. had actually made progress at his earlier public school placement, with fewer hours of service, AR 27-28. Even if Ms. Davenport had legitimate grounds for predicting that remaining at Kingsbury might be the best fit for A.M., that circumstance would not undermine the hearing officer's determination that District did not deny A.M. a FAPE. Plaintiffs considered Kingsbury to be the optimal placement, and it may well have been. But that does not obligate the District to pay for it if the placement it offered was sufficient to meet the educational needs of the student. See Jenkins v. Squillacote, 935 F.2d 303, 305 (D.C.Cir.1991) ("[I]f there is an `appropriate' public school program available, i.e., one `reasonably calculated to enable the child to receive educational benefits,' the District need not consider private placement, even though a private school might be more appropriate or better able to serve the child.... In short, `the inquiry as to the appropriateness of the State's program is not comparative.'") (citations omitted) (emphasis in original).
"Implicit in the congressional purpose of providing access to a `free appropriate public education' is the requirement that the education to which access is provided be sufficient to confer some educational
Id. at 206-07, 102 S.Ct. 3034 (footnotes omitted). The law provides a "basic floor of opportunity" for students, id. at 201, 102 S.Ct. 3034, but it does not require states to provide "a potential-maximizing education," id. at 197 n. 21, 102 S.Ct. 3034; see also Jenkins, 935 F.2d at 305.
The January 2011 IEP met this standard. In December 2010, the Kingsbury staff suggested goals in math, reading comprehension, written expression, classroom adaptation, communication, expressive speech-language, and social emotional skills for A.M.'s IEP. AR 134-43. The January 2011 IEP included goals in all of these subject areas except classroom adaptation.
To support this assertion, plaintiffs rely on the testimony of plaintiffs' educational consultant, Ms. Mounce, and Ms. Gustafson. For example, when asked why she felt that A.M. needed specialized instructions throughout the day, Ms. Mounce responded: "Due to his deficits he is performing significantly below grade level, and due to the level of accommodations and modifications he needs in a classroom in order for a teacher to teach that information and then for him to learn it he needs that special ed setting." Tr. 84:11-:17. She also stated that
Tr. at 100:2-:9. Finally, she also took issue with the fact that although the special education staff at Brookland stated that they would develop a schedule for A.M., Tr. 110:3-:8, the parent's team would not have an opportunity to preview A.M.'s actual schedule before A.M. enrolled in the school. Tr. 87:12-:21. Ms. Gustafson also testified that A.M. would not benefit from instruction in the general education setting. Tr. 147:20-:22. The record reflects,
It is telling that several of the components that plaintiffs insist were fundamental to an appropriate plan were not part of the offerings at Kingsbury, where he was, by all accounts, receiving a satisfactory education under an appropriate educational plan. Ms. Gustafson testified that the IEP Kingsbury submitted to DCPS included bells and whistles that A.M. was successfully doing without, but that the school would provide — if the District picked up the tab.
Tr. 167:1-:20. A couple of pages later, she clarified her position:
Tr. 170:3-:21; see also Tr. 230:5-232:3 (testimony by Ms. Davenport that A.M. was receiving an appropriate education at Kingsbury although he was not receiving speech services, occupational therapy, or psychological services, and was not receiving any instruction from a special education teacher). So according to Ms. Gustafson, A.M. was getting an appropriate education at Kingsbury even though he was not getting all the services he "needed."
This testimony supports the hearing officer's conclusion that plaintiffs' witnesses were improperly using a potential-maximizing standard when they rejected the DCPS IEP. But as the Magistrate Judge
Moreover, both the IDEA and the District's regulations express a preference — indeed a requirement — that the student be educated in the least restrictive environment. 20 U.S.C. § 1412(a)(5); D.C. Mun. Regs. Subt. 5-E § 3011.1 (2006); Roark ex rel. Roark v. District of Columbia, 460 F.Supp.2d 32, 43 (D.D.C.2006). During the hearing, Ms. Mounce acknowledged the importance of educating students in the least restrictive environment and testified that there was nothing in the record that demonstrated that A.M. could not be around non-disabled peers or that he required specialized instruction for subjects like art and music or while at recess and lunch. Tr. 117:9-118:9. Further, since all the students at Kingsbury have disabilities, Tr. 116:18-:20, at Kingsbury, A.M. would not have an opportunity to interact with students without disabilities even during the periods when he did not need specialized instruction. Therefore, the January 2011 IEP was also appropriate because it allowed A.M. to be educated in the least restrictive environment.
A hearing officer "`enjoys a presumption of honesty and integrity, which is only rebutted by a showing of some substantial countervailing reason to conclude that a decisionmaker is actually biased with respect to factual issues being adjudicated.'" Thomas v. District of Columbia, 407 F.Supp.2d 102, 109 (D.D.C.2005), quoting Harline v. DEA, 148 F.3d 1199, 1204 (10th Cir.1998). Plaintiffs argue that the hearing officer was biased and/or incompetent because (1) he "rushed through the hearing and refused to allow the parent to put on her full and complete case," and (2) he fell asleep during the testimony of Ms. Gustafson. Pls.' Obj. at 12-13.
With respect to plaintiffs' first contention, plaintiffs state that the hearing officer interrupted Ms. Mounce multiple times during her testimony and refused to allow her to testify on key issues like the inappropriateness of the goals in the IEP. Id., citing Tr. 74-75. During the pre-hearing conference, counsel identified four questions that were at issue in this case, specifically whether DCPS denied A.M. a FAPE by: (1) offering an IEP that did not include a sufficient number of hours of specialized instruction; (2) offering an IEP that did not include necessary goals; (3) providing a location/school that could not implement the IEP; and (4) denying the parent a meaning opportunity to participate in the IEP process by predetermining the number of hours of specialized instruction in the student's IEP. AR 5-6. The
Secondly, plaintiffs allege that the hearing officer "fell asleep during the testimony of Ms. Gustafson." Pls.' Obj. at 13. But as the Magistrate Judge explained, the hearing transcript demonstrates that the hearing officer was actively engaged during the direct and cross-examination of Ms. Gustafson; he asked questions, made statements, provided feedback, responded to objections, and interacted with the parties. See, e.g., Tr. 131:5-:14, 132:2-133:19, 138:9-139:6, 140:4-:6, 141:7-:8, 148:19-149:6, 151:5-:17, 156:21-157:3, 172:19-175:8, 186:11-:19. Plaintiffs point to no part of the transcript or the record to support their assertion that the hearing officer fell asleep during Ms. Gustafson's testimony.
For the reasons stated above, Court will accept the Magistrate Judge's December 17, 2012 Report and Recommendations, deny plaintiffs' motion, and grant the District's cross-motion. A separate order will issue.