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Using Special Education Law In Family Court Cases Criminal Defense Institute June 2011 Joe Tulman Professor of Law JTulman@udc.edu
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2 Delinquency – Reversing the School-to-Prison Pipeline Special Education Advocacy to Defeat Delinquency Jurisdiction or Enhance Defense Keep a Child Out of, or Get a Child Out of, the Delinquency System If Not, Improve the Defense and the Outcome
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3 Child Welfare – Stabilizing or Reunifying Families Special Education Advocacy to De- Rail Child Welfare Intervention or Improve Outcomes Identifying and Obtaining Services Help a Parent Gain Control of the Situation Consider Innovative Defenses
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4 Case Aggregation and Attorney Mobilization for Systemic Change Defining “Case Aggregation” Advantages of Using Special Education as an Organizing Strategy –Caseloads and Attorneys’ Fees –Conflict and Cost Pushing for Reliance on Prevention and Integrated System of Care
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5 Special Education Advocacy To Defeat Delinquency Jurisdiction or Enhance Defense Disability Disparity Advantage of Using Disability Rights Special Education Law and Practice (Quick Overview) Strategies for Delinquency Defense
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6 The Current Situation From School System to Delinquency (Rise of Zero Tolerance Policies) Neglect (Child Welfare) to Delinquency Delinquency to Criminal
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7 Other Child-Caring Systems… Ineffective in… Stabilizing or Reunifying Families or Stabilizing Children in Placements Addressing Deviant Conduct by Children Reducing Drugs, Violence, Illiteracy, Poverty, Recidivism, etc. Making Children Productive
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8 Other Child-Caring Systems… Mental Health, Recreation, Drug Treatment, Vocational Rehab., Probation, and School Systems = Ineffective or Subordinated Because of Cynicism or “Efficiency”
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9 Effectiveness of Providing an Appropriate Education Developmental Imperatives for Adolescents… –Competency, Success, and Independence: In School or On the Street? - Job Mentoring: Legitimate or Illegal Economic Activity –We Know What Makes Children Successful –Importance of Mainstreaming –Brain Science and Outgrowing Delinquency
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10 Providing Appropriate Education Evidence-Based Practices –For Teaching Individuals –PBIS –For Diminishing Youth Violence (e.g., Surgeon General’s Report on Youth Violence; Blueprints; Etc.) CDC Findings on Kids in Criminal System & Adult Prisons Our Clients Have Unmet Needs and Unrecognized Rights
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11 Disparities, Discrimination, and Efficacy of Legal Challenges Disparity Disparity Based on Race –E.g., –E.g., McCleskey v. Kemp; but cf., cf., Deliberate Indifference Rather than Just Disparate Impact Disparity Disparity Based on Class –Not –Not Recognized Disparity Disparity Based on Disability –More –More Effective Legally, Politically, Rhetorically, Psychologically, and Practically (For Solving Problems)
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12 Children with Disabilities Disproportionately… Not successfully integrated in the mainstream at school Excluded from school due to discipline Subjects of child welfare petitions Facing delinquency charges Detained and incarcerated Not successfully reintegrated following incarceration
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13 Substantive and Procedural Rights Under the IDEA HANDOUT
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14 Individuals with Disabilities Education Act (I.D.E.A.) 20 U.S.C. §§ 1400 et seq. 34 C.F.R. Part 300. State and Local Statutes and Regulations
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15 IDEA Eligibility Disability Categories Substantial Impact on Education From 0 to 3 and from 3 through 21 Twenty-Second Birthday (Plus) –Effects of Diploma or G.E.D. “Compensatory Education” –Expanding Services –or Extending Eligibility
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16 Substantive and Procedural Rights Under the IDEA FAPE (Free Appropriate Public Education) LRE (Least Restrictive Environment) –Mainstreaming & Inclusion –Continuum of Services, Including 24-Hour IEP (Individualized Education Program) Related Services Transition Services Assistive Technology FBAs/BIPs (Functional Behavioral Assessments and Behavioral Intervention Plans) PBIS
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17 Substantive and Procedural Rights, Continued Evaluation “in any area of suspected disability” –Psycho-educational –Clinical psychological –Speech/Language –Vocational –Neurological –Etc. Independent Educational Evaluations Initial, Triennial -- and More Often –Control by Defense Attorney –Contrast with Criminal or Delinquency Evaluations Response to Intervention
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18 Substantive and Procedural Rights, Continued Child Find Right to a Due Process, Administrative Hearing
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19 Rights Under the IDEA School System – Block Disciplinary Exclusion and Zero Tolerance Neglect System – Must Educate Delinquency System – Must Educate Adult Criminal System – Must Educate –Exception: Over 18; Not ID’d; Sentenced Incarceration –Before, During, and After... Must Educate –Substitute Special Education for Institutionalization
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20 Remedies Under the IDEA Burlington and Carter & 34 C.F.R. § 300.148(c) Compensatory Education –Educational Enhancement –Extended Eligibility Attorneys’ Fees at Market Rate for Prevailing Parents –Defining “Prevailing” Post Buckhannon –Settlement vs. Consent Order –Expert Costs (Murphy)
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21 Special Education Advocacy: Stages of the Process Identification & Evaluation Eligibility IEP Placement Providing Services Annual Assessment & IEP Triennial Evaluation
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22 DISABILITY AND DELINQUENCY DEFENSE: Basic Strategies
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REVERSING THE SCHOOL-TO-PRISON PIPELINE (Individual Case Advocacy) -or- How to Put a Monkey Wrench into the Conveyor Belt of Injustice In Order to Take a Child Off
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24 Transforming Defendants into Plaintiffs Turning Cases into Kids – Continue the Representation Transforming Defendants into Plaintiffs Turning Cases into Kids – Continue the Representation
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25 Basic Spec Ed Application to Delinquency Case 1. List All the Services (Etc.) That a Child Needs 2. Categorize Under Evaluations, Specialized Instruction, “Related Services”, “Transition Services”, A.T., and “FBA-BIP” 3. Justify as “Appropriate” Under the Rowley Standard 4. Compare with What is Available Within the Delinquency, Criminal, or Neglect System 5. Consider Advantages of Each System 6. Devise Negotiation/Litigation Strategy (with Focus on Comp. Ed.)
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26 Services Available Delinquency and status offense system(s) Special education system (related services & transition services) –Parent training –FBA/BIP –Social work services –Counseling –Therapeutic recreation –Continuum of placements –Private services (Burlington) –Vocational training –Compensatory Education
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27 Charting Excavating and Charting School Records –Child Find Violations –Denials of FAPE (including failure to do triennials, illegal exclusions) –School Failures; Truancy Charting (Lack of) Academic Progress
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28 Strategic Timing & Juxtaposing Systems The importance of winning special education hearings –Discretion of the court vs. impact of a hearing officer’s determination Timing of the delinquency and special education matters –Negotiating a continuance –Spec ed advocacy for the long haul
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29 Representation Issues Delinquency: Child = Client –Strategy Discussion –Add Parent as Client, too Retainer Agreement –Conflict Potential –Transfer of Rights to the Child
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30 Fairness of the Process Compare Families with Resources and Those Without –What Happens to Non-Minority, Non- Poor Kids? –Special Education Services as Equivalent of Private Services –Accommodations During Intake?
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Using Special Education Advocacy to Enhance Delinquency Defense
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32 Incidents at School Disciplinary Hearings Goss v. Lopez Discovery Opportunity (e.g., School Fight Case) IDEA Disciplinary Protections IEP & BIP Agreement Not to Go to Delinquency Court T.L.O. + Exclusionary Rule at School Individualized Decision-Making (Not Zero Tolerance)
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33 Incidents at School Mediation – Who is the Aggressor Manifestation Determination + Mens Rea; Culpability Discriminatory Decision-Making Regarding Whom to Refer to Court The Win-Win of PBIS + BIPs & FBAs
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34 Incidents at School Derrick and Todd’s Cases Steven’s Case
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35 Challenging the Intake Process Decisions not to prosecute “deserving” children –How? Why? By whom? –Investigation requirement –Diversion or no case? Statutory basis –Interest of justice –Social reasons –Purposes provision –Definition of “delinquent child” –School service requirements (e.g., prior to truancy case)
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36 Falling Between the Cracks Delinquency judges generally do not have jurisdiction over special education issues –Challenges to denial of special education rights in administrative due process hearing –Administrative exhaustion requirement Special education hearing officers generally do not have jurisdiction over delinquency issues –Exception (change of placement): Morgan v. Chris L., 927 F. Supp. 267 (E.D. Tenn. 1994), aff'd, 106 F.3d 401 (6th Cir. 1997)
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37 Congressional Purpose in the I.D.E.A. “Congress very much meant to strip schools of the unilateral authority they had traditionally employed to exclude disabled students, particularly emotionally disturbed students, from school.” “Congress very much meant to strip schools of the unilateral authority they had traditionally employed to exclude disabled students, particularly emotionally disturbed students, from school.” -- Honig v. Doe, 484 U.S. 305, 323 (1988).
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38 The Worst of Both Worlds Minority youth (particularly boys) with education-related disabilities most likely to be kicked out and pushed out… No representation in discipline; no representation in special education No one in delinquency raises illegality –Failing to identify –Failing to provide spec ed and related services –DUMPING & CRIMINALIZING THE KID Exhaustion barrier
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39 Compelling Equities & Formulating Legal Theories Analogy to Kent v. United States, 383 U.S. 541 (1966) Flooding the school-to-prison pipeline; no shut-off valve Arguing school administrators did an “end run” – circumventing spec ed obligations Arguing dismissal in the interest of justice
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40 Best Kind of Case Minor delinquency Truancy or other status offense School personnel ignoring legal obligations Zero tolerance run amuck Diversion kids facing new school discipline charges
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41 The Best Argument: Violation of Intake Process “Powers of the probation officer” include “mak[ing] investigations, reports, and recommendations to the juvenile court; receiv[ing] and examin[ing] complaints and charges of delinquency, unruly conduct or deprivation of a child for the purpose of considering the commencement of proceedings.... [and] mak[ing] appropriate referrals to other private or public agencies of the community if their assistance appears to be needed or desirable…” –Model Juv. Ct. Act § 6 (1968)
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42 20 U.S.C. § 1415(k)(6) Rule of construction: IDEA doesn’t constrain school officials from reporting alleged criminal behavior Requirement to provide school records to the court (intake) assuming FERPA permission
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43 Case Support Whether school administrators are attempting an end run of special education responsibilities should be considered at the “investigative and referral levels” of the juvenile court process at which decisions are made regarding “whether the case belongs in the juvenile system in the first instance...” In re Trent M., 569 N.W.2d 719, 724 (Wis. Ct. App. 1997). In re Trent M., 569 N.W.2d 719, 724 (Wis. Ct. App. 1997).
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44 Motion to Dismiss Based Upon Violation of Intake Process Experiences with these motions The Role of the Probation Officer in Intake: Stories from Before During and After the Delinquency Initial Hearing 3 D.C. L. Rev. 235, 235-50 (1995)
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45 Selective Prosecution (and “End Running”) = Discrimination “Of course, it would be a violation of Section 504 of the Rehabilitation Act of 1973 if a school were discriminating against children with disabilities in how they were acting under this authority (e.g., if they were only reporting crimes committed by children with disabilities and not [those] committed by nondisabled students).” –64 Fed. Reg. 12631 (March 12, 1999).
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46 De-Contaminating Detention One-Way Valve –Use RAI & Limit RAI Overrides –Use Continuum of Placements as Alternative to Secure Detention –Use Interlocutory Appeal –End Detention for Social Reasons (incl. “danger to self”) –End Reconsideration of Release and Contempt of Court The Timing: Having IDEA Services Ready for Possibility of Re-Arrest
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47 De-Contaminating Detention Releasing the Detainable –School (IDEA) Services as Alternative to Detention –Inappropriateness of Proposed Detention Site (Can’t Implement IEP; No Spec Ed Services) School Attendance as a Condition of Release –Exhaustion –Accommodations –Third-Party Contempt
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48 Evaluation Strategies Evaluations –by court –ex parte (Ake v. Oklahoma) –by school system –independent ed eval –through medical insurance –through Medicaid
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49 Evaluation Strategies Use evaluations and evaluators to support –Miranda challenge –competency –mens rea –lack of understanding of circumstances of alleged events (e.g., import of what named co- respondent said) –limitations as a witness; need for accommodations during trial, on probation, etc. –need for services (e.g., family counseling; parent training; FBA-BIP) that are not available in juvenile jail or prison setting
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50 Fact Investigation & Trial Prep Example: Child with Receptive/Expressive Language Disorder Challenging Inferences –What Child Purportedly Says to Alleged Victim –What Child Allegedly Hears and Presumably Comprehends Demonstrate that changed statement during interrogation not significant (e.g., cop getting child to drop claim of innocence)
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51 Fact Investigation & Trial Prep Child’s (and Other Witnesses’) Ability to Remember Facts and Statements Relevant to Suppression and Defense –counter to cross attacking credibility based on inconsistency
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52 Discovery Brady v. Maryland Exculpatory or Mitigating Information (e.g., Amenability to Treatment) Brady v. Maryland Exculpatory or Mitigating Information (e.g., Amenability to Treatment) * * * Prosecutor Responsible for Providing Information from Other Public Agencies? Prosecutor Responsible for Providing Information from Other Public Agencies?
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53 Pre-Trial (Status Hearings) Agreement Between Defense and Prosecution to Continue Trial or Order Probation Before Judgment to Allow Special Education Services to Take Effect Agreement Between Defense and Prosecution to Continue Trial or Order Probation Before Judgment to Allow Special Education Services to Take Effect
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54 Transfer Motion Standard –Amenability to Treatment –Different Standard? Unclean Hands (child had a right to services that government failed to provide) Availability of Services in Juvenile System/Placement but Not in Criminal
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55 Suppressing Statements Miranda and Other Waivers –Expert witnesses on Reading and Auditory Comprehension –Colorado v. Connelly and Moran v. Burbine Unreliability of Admission/Confession (Rules of Evidence and Due Process) –Child with MR or expressive/receptive language disorder –Other disabilities (e.g., depression/SED, PTSD)? Privilege Against Self-Incrimination –Coercion and Totality of Circumstances –ADA and Ethics: Affirmative Duty by Police and Prosecutors and Judges?
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56 Excluding Statements Motions Based on Due Process or Rules of Evidence –Reliability –Probativity vs. Prejudicial Impact –Expert Testimony Regarding Significance of Accused’s Words or Understandings Statements Made During Interrogation –Impeachment Value –Substantive Value (as to Guilt or Innocence)
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57 Taking a Plea Bargain Oh, Pleas! Oh, Pleas! The Child’s Understanding of the Plea Bargain and the Need to Accommodate in the Rule 11 Colloquy The Child’s Understanding of the Plea Bargain and the Need to Accommodate in the Rule 11 Colloquy & Challenges to Pleas Challenges to Pleas
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58 Defenses “No Show” Violation (Bail Reform Act) or Failure to Inform (Accommodate)? Truancy or “Constructive Eviction” (Failure to Provide Spec Ed)? Behavior = Manifestation of Disability: Not Culpable or Mitigation? Aider & Abettor or Bystander/Witness? Drug Use (Possession) as Manifestation of Disability Provocation
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59 Disposition: Special Education Services As Alternative to Incarceration –Use the Continuum of Care in Special Education –Creative Use of Related Services, Transition Services, and “Burlington” Remedy –LRE and Treatment as Precepts in Delinquency and Disability Law –Best Interest of Child as Precept in Delinquency Law –Child Welfare System Placement as Alternative
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60 IDEA Eligibility for Young People in Adult (Criminal) System Evaluation Before Sentencing & Establish Eligibility Compensatory Education to Extend Eligibility Hybrid Sentencing Opportunities –Youth Act –Probation in Criminal Case with Treatment in Juvenile + Spec Ed (Continuum)
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61 Post-Disposition: Examples of Arguments Can’t Execute BIP in Violent Environment of Juvenile Prison Train and Enlist Juvenile Prison Personnel to Help with IEP’s (Re-Integration Strategy) Residential Treatment Center vs. Incarceration Not Fulfilling Treatment Order; Modify; Civil Contempt Third-Party Contempt (To Block Revocation) –School System’s Unlawful Exclusion of Child or Failure to Provide FAPE Precludes Child’s Compliance with School Attendance or Related Condition of Probation or Parole
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62 Direct IDEA-Based Challenges Failure to Provide Special Education Services –In Juvenile Incarceration Facility –State Prison or Jail –Federal Bureau of Prisons –Immigration Detention Centers Chicken Bone or Case Aggregation (or Class Action)
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63 Probation or Parole Revocation Protect and Defend Against Revocation –Written Request for Accommodation (or in Disposition Order) –Failure to Accommodate (e.g., PO Trained to Communicate)
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64 Case Aggregation & Attorney Mobilization How Case Aggregation Has Worked in D.C. –Training Attorneys (Attorneys’ Fees & Self-Interest) –Lots of Spec Ed Hearings –Lots of Private Placements –PDS Spec Ed Unit –Attorneys’ Fees: Backlash
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65 Case Aggregation & Attorney Mobilization Training of Probation and Aftercare Workers Training of Mental Health, Teachers, and “Counselors” at Juvenile Incarceration Facility Training of Judges –Judges Appointing Spec Ed Attorneys Panel & Standards –Judges Paying Spec Ed Attorneys
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66 Case Aggregation & Attorney Mobilization –Expanded Budget, Poorly Allocated; Studies; Emerging Consensus? –Training to Change the Attitudes –Class Actions –Re-Claiming Neighborhood Schools (SAM, FSS, etc.)
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