People v. Bennett
People v. Bennett
Opinion of the Court
AFTER REMAND
The issue before us is whether, in a challenge not involving religious convictions, a teacher certification requirement for home schools violates a parent’s right to direct a child’s education under the Fourteenth Amendment. The Bennetts, in challenging the requirements, are claiming
For the reasons that follow, we hold that a parent’s Fourteenth Amendment right to direct a. child’s education is not one of those rights described by the United States Supreme Court as fundamental, and, thus, the strict scrutiny test is unwarranted. We further hold that the defendants were entitled under the statute, as administrators of a private home school, to the hearing provided by the private and parochial schools act before they could be prosecuted as parents who failed to send their children to school in violation of the compulsory education laws. As a result, we vacate the defendants’ convictions and order the state superintendent to conduct a hearing to determine if the defendants’ home school satisfies Michigan law.
i
John and Sandra Bennett and their four children, Scott, Erika, Jason, and Krista, live in Wayne County. In 1986, the defendants were charged with four counts of failing to send their
The crux of the defendants’ convictions concerns their decision to withdraw their four children from public school. Dissatisfaction with the public school system was their stated reason for their action, not any religious belief.
Defendants enrolled their children in the home based education program (hbep) sponsored by Clonlara, Inc., of Ann Arbor, Michigan. The hbep provides parents with a home instruction program, and allows parents to utilize the services of certified teachers and classrooms on the Ann Arbor campus. Defendants maintained that their children were often brought to the Ann Arbor campus and were instructed by certified teachers for a total of four to six hours per month.
Defendants stated that they held classes for their children approximately five hours per day, five days per week, for the entire school year and made monthly attendance reports to Clonlara. The children studied math, English, spelling, reading,
Despite their attempts to teach their children at home, defendants were convicted of failing to send their children to school in violation of Michigan’s compulsory education laws. The trial court found that the children were not being properly taught at home because the parents were not in compliance with Department of Education guidelines for educating children in the home.
The trial court paid particular attention to the defendants’ claim that their children received instruction from certified teachers. Defendants asserted that two women. Pearl Wander and Julie Kuhar, provided instruction to the children. The court found, however, that the instruction provided by these women did not satisfy the state’s requirements. Ms. Wander, for example, while certified to teach, was never shown to have actually visited the Bennett home. Instead, Ms. Wander had contact with the children through the occasional use of a speaker phone and the family’s occasional visits to the Clonlara campus for a total of four to six hours per month. This contact, the court found, was not sufficient to meet the state’s requirements. Rather, the court concluded, Ms. Wander’s role with respect to the children was that of a supervisor, not a teacher.
The fact that defendants were not substantially utilizing the services of a certified teacher and were not themselves certified to teach was sufficient for the trial court to find them guilty of failing to send their children to school. As a result, the trial court 1) required defendants to contact the local public school and arrange to have their children tested for the purposes of academic achievement and grade placement, 2) required defendants to immediately arrange for their children to be taught by certified teachers, and 3) fined each of the defendants $50.
On appeal in the Court of Appeals, defendants raised five issues for review, two of which are now before this Court.
The Court of Appeals then addressed the defendants’ contention that the compulsory attendance law violated their Fourteenth Amendment procedural due process rights. The right to notice and a hearing, defendants contended, was also required by the private and parochial school act, because their children could not be forced to attend a public or other approved private school until after a hearing established that defendants’ "home school” did not comply with the act.
The Court rejected the defendants’ argument,
Satisfied that the statutes at issue were consistent with the Fourteenth Amendment’s substantive and due process guarantees, the Court of Appeals affirmed the defendants’ convictions and denied their requested relief on all issues raised.
ii
Defendants argue that there is state and federal case law in support of their contention that, as parents, they have a fundamental right to direct their children’s education.
A
Defendants contend that the Fourteenth Amendment guarantees them the fundamental right to direct the education of their children, even when the desire to direct education does not stem from any religious belief. Defendants cite Pierce v Society of Sisters, 268 US 510; 45 S Ct 571; 69 L Ed 1070 (1925), for the proposition that it is beyond a state’s authority to interfere with parents’ choice of private education for their children. Similarly, defendants argue, the State of Michigan is telling parents that their children may be taught only by state-certified teachers, the same type of teachers who teach in public schools. Without explicitly so stating, defendants infer that because the state requires the same type of teachers for both private
Defendants also quote at length from Wisconsin v Yoder, 406 US 205; 92 S Ct 1526; 32 L Ed 2d 15 (1972), which held that parents have the right to take their children out of high school and give them informal vocational training in order to protect sincerely held religious beliefs. The defendants noted in Yoder that the Supreme Court emphasized the case involved the "fundamental interest of parents, as contrasted with that of the State, to guide the religious future and education of their children. The history and culture of Western civilization reflect a strong tradition of paren
The defendants’ reliance on most of the cases cited is misplaced because those cases deal with religious issues under the First Amendment. This case is specifically not about religion and must be so considered. For example, in a broad sense, Pierce stands for the proposition that parents have a right to choose either public or private education for their children.
The defendants’ misplaced reliance on Yoder is even more obvious. Hardly a page of that opinion can be read without seeing at least one reference to the parents’ religious beliefs. Indeed, the Court discussed the case in terms of having to balance the state’s interest in universal education with the First Amendment and "the traditional interest of parents with respect to the religious upbringing of their children . . . .” Yoder, 406 US 214 (citing Pierce, 268 US 535). In determining that the parents in Yoder could remove their children from school after the eighth grade in spite of the compulsory education laws, the Court specifically noted that it was dealing with a "centuries-old religious society,”
The defendants’ reliance on Meyer is misplaced partially for the same reason that reliance upon Pierce is misplaced.
Defendants contend that the Supreme Court’s most recent affirmation of this fundamental right is found in Employment Div, Dep’t of Human Resources v Smith, 494 US 872; 110 S Ct 1595; 108 L Ed 2d 876 (1990). Smith recognizes this parental right as fundamental, defendants contend, because it held that strict scrutiny must be applied when evaluating state actions that interfere with the rights of parents to direct their children’s education. In support of this contention, defendants quote Smith:
Yoder said that "the Court’s holding in Pierce stands as a charter of the rights of parents to direct the religious upbringing of their children. And, when the interests of parenthood are combined with a free exercise claim . . . more than merely a "reasonable relationship to some purpose within the competency of the State” is required to sustain the validity of the State’s requirement under the First Amendment. [Id. at 881, n 1 (quoting Yoder, 406 US 233).]
This, defendants conclude, "reaffirms the applicability of the compelling interest test to a claim of Fourteenth Amendment parental rights standing alone.”
Perhaps the defendants’ most creative interpretation is of the Smith decision. The quotation above explicitly states that it is only when the interests of parenthood are combined with the
These cases, defendants are convinced, exemplify the United States Supreme Court’s recognition of a Fourteenth Amendment fundamental right in parents to direct the education of their children. When considered with other cases that defendants argue apply the fundamental rights of parents found in Pierce to home-school situations,
Clearly the Supreme Court cases to which defendants refer do not support their contentions.
Also of interest is the fact that, while defendants cited no Michigan home-school cases, there are at least two that are directly relevant. One is of particular importance because defendants were parties. In Clonlara, Inc v Runkel, 722 F Supp 1442 (ED Mich, 1989), the United States District Court for the Eastern District of Michigan held that defendants (and one other home-school couple)
may have the right to choose home based education over public school education or other private school education. However, such home schooling, in the absence of a claim based on religious beliefs, may be subject to reasonable government regulation. Plaintiffs here have no fundamental right to educate their children at home free from reasoriable government regulation. [Id. at 1458.]
Finally, defendants argue that this Court has already decided that the state cannot require certified teachers. In support of this argument, defendants refer to Justice Riley’s conclusion in Sheridan Rd Baptist Church v Dep’t of Ed, 426 Mich 462, 565; 396 NW2d 373 (1986), cert den 481 US 1050 (1987), confirmed by a majority of the Court in Dep’t of Social Services v Emmanuel Baptist Preschool, 434 Mich 380; 455 NW2d 1 (1990), as standing for the proposition that teacher certification requirements are not compelling enough to interfere with parental rights guaranteed by the First and Fourteenth Amendments.
Defendants have completely misconstrued the context in which Justice Riley’s statement was
Despite defendants’ contention, neither this Court nor any other court has held that parents have a fundamental right to direct their children’s education under all circumstances. Rather, state interference with such rights deserves strict scrutiny only within the context of the First Amendment.
B
Having found strict scrutiny unnecessary because of the absence of a fundamental right, the state’s teacher certification requirement need only satisfy the minimal scrutiny test. Although not analyzed in the courts below
In general, it can be assumed the state has an interest in seeing that all children within its borders are properly educated.
Across the country, state and federal courts have upheld home-school regulations simply on the ground that they were reasonable state actions.
In the case at bench, it was incumbent upon defendants to show the unreasonableness of the certification requirement,
in
In arguing that they were entitled to a hearing,
While we disagreed with defendants regarding the first issue, we agree that they were entitled to a hearing before being prosecuted under the compulsory education laws. This conclusion is complicated, however, by the absence of any Michigan statute relating specifically to home schools.
This position is supported by §4 of the act, which imposes a duty upon the person responsible for enforcing the compulsory education laws,
The Court of Appeals rejected this argument because it decided defendants had no school to close. The Court based this decision on the findings that, inter alia, there were no certified teachers or comparable curricula; but this is precisely the criteria that the state superintendent reviews in determining whether a nonpublic school is complying with the private and parochial schools act.
The state’s argument makes the same mistake.
iv
We conclude that the Fourteenth Amendment does not provide parents a fundamental right to direct their children’s secular education, and, thus, the state regulation need only be judged by a rational relationship test. We further conclude that the defendants have not met the burden of establishing that teacher certification is not rea
For the foregoing reasons, the defendants’ convictions for failing to send their children to school in violation of the compulsory education laws are vacated.
Michigan’s compulsory school attendance law provides:
[E]very parent, guardian, or other person in this state having control and charge of a child from the age of 6 to the child’s sixteenth birthday, shall send that child to the public schools during the entire school year. The child’s attendance shall be continuous and consecutive for the school year fixed by the school district in which the child is enrolled. [MCL 380.1561(1); MSA 15.41561(1).]
The exemption under which the defendants argued that their children need not be compelled to attend public school states:
A child shall not be required to attend the public schools in the following cases:
(a) A child who is attending regularly and is being taught in a state approved nonpublic school, which teaches subjects comparable to those taught in the public schools to children of corresponding age and grade, as determined by the course of study for the public schools of the district within which the nonpublic school is located. [MCL 380.1561(3)(a); MSA 15.41561(3)(a).]
In the Court of Appeals, the case was consolidated with a case from Ottawa County, People v DeJonge, Docket No. 106149. However, this opinion addresses only the issues presented by defendants’ convictions.
Indeed, defendants admitted that they considered sending their children either to a Catholic or Lutheran school, but decided they could not afford to do so. Instead, they chose to educate their children in their own home.
Also during these visits, the Clonlara teachers reviewed the children’s work and helped the defendants develop lesson plans and teaching techniques.
There is, however, testimony in the record that disputes this.
The results showed that Scott, who had fallen below his grade level while attending public school, had made steady progress toward his proper grade level during his year at home. Jason’s test scores indicated that he was at the proper grade level, and Erika and Krista tested above their grade levels.
In its publication entitled "Education of the Child in the Parental Home,” the Department of Education interpreted several provisions of Michigan laws in order to establish guidelines for parents wishing to teach their children at home. The guidelines require that
(1) all instruction must be given by a teacher certified by the state to teach the subjects being taught, and the certificates evidencing this must be registered with the Intermediate Superintendent’s office (MCL 380.1532[1]; MSA 15.41532[1]); •
(2) the home curriculum must be comparable to that offered by the local public-school, and the parents must obtain a statement to this effect from the local superintendent who must also keep a copy on file in his office (MCL 380.1561[3][a]; MSA 15.41561[3][a]);
(3) children schooled at home must be provided with a minimum of 180 days and 900 hours of instruction, with adjustments allowed to provide adequate supervision of work; schools with six or more students must comply with school fire safety standards; attendance records must be kept to substantiate the day and hour instruction requirements for each child (MCL 388.551; MSA 15. 1921);
*323 (4) courses pertaining to the United States Constitution, the Michigan Constitution, the history and present form of government of the United States, Michigan, and the political subdivisions and municipalities of Michigan must be taught in the home school, and parents must provide the local superintendent with a statement that these subjects are being taught (MCL 380.1166[1]; MSA 15.41166[1]).
It should be noted here that the days and hours requirement is no longer a valid interpretation of existing state law. See Clonlara, Inc v State Bd of Ed, 442 Mich 230; 501 NW2d 88 (1993).
The testimony indicated that during those infrequent visits to the
Apparently defendants were satisfied by the court’s decision on this issue. On appeal, defendants make no reference to Ms. Kuhar. Rather, defendants argued that their children received instruction from Ms. Wander and Dr. Montgomery, Clonlara’s director. It is undisputed that both these women are certified teachers. Dr. Montgomery’s contact with the Bennett children was the same as Ms. Wander’s.
Defendants did not raise the remaining three issues in this Court; therefore, we need not address them. Those issues related to whether the school attendance law was impermissibly vague as applied to "home schools,” whether the use of the School Code to regulate "home schools” violated the Michigan Constitution’s title-object requirements, and whether there was sufficient evidence to support the defendants’ convictions.
Section 4 of the private and parochial schools act provides in full:
In event of any violation of this act the superintendent of public instruction shall serve the person, persons, corporation, association or other agencies who operate, maintain and conduct a private, denominational or parochial school within the meaning of this act with a notice, time and place of hearing, such hearing to take place within fifteen [15] days after the date of said notice and at a place located in or conveniently near the county where such violation took place, accompanied by a copy of the complaint stating the substance of said violation: Provided, That no person shall be called to attend any such hearing on any day observed by him as the Sabbath. If at such hearing the superintendent of public instruction shall find that the violation complained of has been established he shall then serve said person, persons, corporation, association or other agencies with an order to comply with the requirements of this act found to have been violated within a reasonable time not to exceed sixty [60] days from the date of such order: Provided, That in the event that such order refers to sanitary conditions that the said person, persons, corporation, association or other agencies shall have six [6] months in which to remedy the defect. If the order of the superintendent of public instruction as specified in said notice shall not have been obeyed within the time specified herein said superintendent of public instruction may close said school and prohibit the said person, persons, corporation, association or other agencies operating or maintaining such private, denominational or parochial school from maintaining said school or from exercis*326 ing any of the functions hereunder until said order of the superintendent of public instruction has been complied with. The children attending a private, denominational or parochial school refusing to comply with the requirements hereof after proceedings herein set forth shall be compelled to attend the public schools or approved private, denominational or parochial school under the provisions of the compulsory education act, the same being act number two hundred [200] of the public acts of nineteen hundred five [1905], as amended. And it shall be the duty of the person or persons having charge of the enforcement of the said compulsory education act, upon notice from the superintendent of public instruction that said private, denominational or parochial school has not complied with the provisions hereof, to compel the attendance of the children of said school or schools at the public schools or approved private, denominational or parochial school. [MCL 388.554; MSA 15.1924.]
A fundamental right has been defined as that which the United States Supreme Court "recognizes as having a value so essential to individual liberty in our society that [it justifies] the justices reviewing the acts of other branches of government . 2 Rotunda & Nowak, Constitutional Law (2d ed), § 15.7, p 427.
In fact, the United States Supreme Court, in, Runyon v McCrary, 427 US 160, 178; 96 S Ct 2586; 49 L Ed 2d 415 (1976), in which the Court noted that it has
repeatedly stressed that while parents have a constitutional right to send their children to private schools and a constitutional right to select private schools that offer specialized instruction, they have no constitutional right to provide their children with private school education unfettered by reasonable government regulation.
The defendants’ argument they are operating a "private” school in their home will be discussed below.
See, e.g., Griswold v Connecticut, 381 US 479; 85 S Ct 1678; 14 L Ed 2d 510 (1965) (noting that the First Amendment, as decided in Pierce, includes parents’ right to choose public, private, or parochial school for children); Ohio v Whisner, 47 Ohio St 2d 181; 351 NE2d 750 (1976) (the highest state court struck down education standards as being violative of Pierce because they effectively eradicated the distinction between public and nonpublic education within the state).
Note, however, the state’s argument that Pierce is limited as precedent because all discussion of parental rights was dicta. The state noted that Pierce struck down a law that eliminated alternatives to public education as an infringement upon private institutions’ property rights in conducting their businesses. It is conceded, however, that Pierce is better known for its discussion of parental rights than of property rights.
Indeed, consider this view of Pierce in Justice White’s concurring opinion in Yoder, supra at 239:
Pierce v Society of Sisters [citation omitted], lends no support to the contention that parents may replace state educational requirements with their own idiosyncratic views of what knowledge a child needs to be a productive and happy member of society; in Pierce, both the parochial and military schools were in compliance with all the educational standards that the State had set, and the Court held simply that while a State may posit such standards, it may not pre-empt the educational process by requiring children to attend public schools.
Yoder, 406 US 235, n 22.
Id. at 235.
Yoder, in fact, rejected the idea a similar holding was likely where something other than a religion-based argument was made. The Court emphasized the religion argument was central to its decision:
The very concept of ordered liberty precludes allowing every person to make his own standards on matters of conduct in which society as a whole has important interests. Thus, if the Amish asserted their claims because of their subjective evaluation and rejection of the contemporary secular values accepted by the majority, much as Thoreau rejected the social values of his time and isolated himself at Walden Pond, their claims would not rest on a religious basis. Thoreau’s choice was philosophical and personal rather than religious, and such belief does not rise to the demands of the Religion clauses. [406 US 215-216.]
Defendants also cite Bartels v Iowa, 262 US 404; 43 S Ct 628; 67 L Ed 1047 (1923), for the same proposition.
The defendant in Meyer was a teacher, not a parent, and thus any discussion of parental rights was dicta at best.
For the same reasons, the defendants’ reliance on Bartels, n 22 supra, is misplaced. Indeed, the entire substantive text of Bartels consists of the following sentence: "[t]he several judgments entered in these causes by the Supreme Courts of Iowa, Ohio and Nebraska, respectively, must be reversed upon authority of Meyer v Nebraska, decided today . . . .” 262 US 409. Having added no substantive argument, further analysis of Bartels is unnecessary.
In support of this contention, defendants cite the following cases without explanation: Mazanec v North Judson-San Pierre School Corp, 614 F Supp 1152 (ND Ind, 1985), aff’d 798 F2d 230 (CA 7, 1986); Ellis v O’Hara, 612 F Supp 379 (ED Mo, 1985), rev’d on other grounds 802 F2d 462 (CA 8, 1986); Care and Protection of Charles, 399 Mass 324; 504 NE2d 592 (1987).
Additionally, even those cases defendants cited in support of applying strict scrutiny in reality applied only minimal scrutiny. See e.g., Farrington v Tokushige, 273 US 284, 298; 47 S Ct 406; 71 L Ed 646 (1927) (the Court held prohibition of foreign language schools to be unreasonable interference with parents’ interests in having children taught in their native language); Pierce, supra (the Court struck down an Oregon law prohibiting private schools, in part because they unreasonably interfered with the parents’ liberty interest in directing their child’s education); Meyer, supra (the Court struck down a ban on teaching foreign languages because it unreasonably interfered with the teachers’ liberty interests).
While strict scrutiny was used in Prince v Massachusetts, 321 US
The portion of Justice Riley’s dissenting opinion to which defendants refer states "enforcement of the teacher certification requirement, as applied, is not essential to achieve that objective. Unless and until the state can show otherwise, the enforcement of the statutory teacher certification requirement, as applied, would be violative of the
In its only reference to this test, the Court of Appeals said: "The correct test is whether the state’s regulation bears a rational relationship to some legitimate state purpose. The state certification requirement meets this standard of review.” 179 Mich App 238 (citation omitted).
The United States Supreme Court, in Mathews v Lucas, 427 US 495, 511; 96 S Ct 2755; 49 L Ed 2d 651 (1976), noted that, within the minimal scrutiny test, the party challenging the regulation bears the burden of establishing the unreasonableness of the state action. See also Clonlara, 722 F Supp 1458, in which a federal district court implied that a successful challenge to Michigan’s teacher certification requirement demands a showing that the requirement is not reasonably related to the state’s legitimate interest.
The United States Supreme Court, in Prince v Massachusetts, 321 US 168, recognized that a state’s authority over children’s activities is broader than its authority over similar actions of adults. Indeed, the Court noted "[a] democratic society rests, for its continuance, upon the healthy, well-rounded growth of young people into full maturity as citizens, with all that implies.” Id.
The state, in Hanson, argued that if there were no teacher certification requirements, considerable expense would be required for the state to examine and supervise a wide variety of facilities and individuals, widely scattered throughout the state, who might wish to instruct children at home. 490 F Supp 115. The state asserted that a uniform teacher certification requirement was a less expensive and more efficient way to maintain competency among those teaching children within the state. Id.
See, e.g., In re Sawyer, 234 Kan 436; 672 P2d 1093 (1983) (laws regulating public school alternatives, minimum hours of instruction, and teacher competency have a rational relationship to the legitimate state purpose of educating children); In re Kilroy, 121 Misc 2d 98; 467 NYS2d 318 (1983) (infrequent, unobtrusive home visits by a nonpublic school evaluation committee were deemed a reasonable means for advancing the legitimate state interest, despite parental rights); People v Turner, 121 Cal App 2d 861; 263 P2d 685 (1953), app dis 347 US 972 (1954) (rules regulating nonpublic schools were reasonable and not violative of the parental right to determine how and where children were to be educated).
The state advanced three primary reasons for the comprehensive regulation of home schools. First, the state argued non-home schools encouraged more formality and structure than did home schools. This argument led the state to believe more serious instruction would occur in other than the relaxed atmosphere of the home. 852 F2d 1044. Second, the state argued that the likelihood more than one family sends their children to non-home schools provides an additional objective indication of the school’s quality that is absent in the home-school situation. Id. Finally, the state argued, unlike home-school parents, parents sending their children to public or private
If it were the state’s burden, we believe the state would be able to show the ultimate inadequacy of instruction. On the basis of the trial transcript, there is a strong indication the defendants would have difficulty instructing the children as they encountered the demands of the high school curriculum.
Alabama parents teaching their children at home for other than religious reasons must be state certified to teach. See Ala Code 16-28-1 et seq.
Home-school parents in Nebraska are exempted from the state’s teacher certification requirement only when existing state regulation is in conflict with religious beliefs. See Neb Rev Stat 79-1701(2).
See In re Sawyer, n 32 supra.
See Mathews v Lucas, n 29 supra, p 511.
Because home schooling attracts some of the most resourceful and dedicated of parents who are often in least need of regulation or supervision in carrying out one of the most fundamental responsibilities of family and state, we would hope that the regulators could find a regulatory scheme that would allow the flexibility needed by the home-school proponents without leading to abuses that could occur if some of the least responsible among us were to take advantage of the opportunity to avoid compulsory attendance at non-home schools. That delicate task, however, is not ours, and, unlike a strict scrutiny test, the reasonable regulation standard does not require the least intrusive or the most creative regulatory scheme.
Defendants spend considerable time, in the context of this issue, arguing the facts of their case — that they were in fact in compliance with the teacher certification and minimum days and hours requirements. However, because of our decision to remand the case for a hearing, it is not necessary to determine whether defendants were in compliance with the rules relating to home schools.
See n 1 for the text of the relevant provisions of the compulsory education law.
For the text of the relevant provision of the private and parochial schools act, see n 12.
The School Code defines a "state approved nonpublic school” as a "nonpublic school which complies with Act No. 302 of the Public Acts of 1921, as amended, being sections 388.551 to 388.558 of the Michigan Compiled Laws [§§ 15.1921 to 15.1928 of the Michigan Statutes Annotated].” MCL 380.6(8); MSA 15.4006(8). The act to which this definition refers is the private and parochial schools act.
Compliance with this section is important for defendants because the compulsory attendance laws provide an exemption from mandatory public school attendance for
[a] child who is attending regularly and is being taught in a state approved nonpublic school, which teaches subjects comparable to those taught in the public schools to children of corresponding age and grade, as determined by the course of study for the public schools of the district within which the nonpublic school is located. [MCL 380.1561(3)(a); MSA 15.41561(3)(a).]
In support of this assertion, defendants refer to a stipulation entered into by the superintendent of education, Phillip E. Runkel, in a similar case. In DeJonge v Superintendent of Public Instruction, unpublished stipulation and order of the Ingham Circuit Court, entered July 22, 1986 (Docket No. 85-56712-AW), the state superintendent agreed that
[t]here is no approval or licensing procedure pursuant to any state statute or administrative rule which requires a private home school, or a private, nonpublic school of any kind, to be approved or licensed by the Department of Education of the State of Michigan prior to that school’s opening for operation or during the school’s ongoing operation.
Furthermore, the state superintendent agreed that the Department of Education’s authority was limited to disapproving those private, nonpublic schools, pursuant to the administrative procedures promulgated under the private and parochial schools act, where there has been a finding of noncompliance.
Indeed, there is no consensus among those involved in this case with regard to what law should be applied. Both Sandra Bennett and Dr. Montgomery testified that the defendants’ home program was not a private school (implying the inapplicability of the private and parochial schools act). Dr. Montgomery asserted, however, that such programs are treated as private schools because of the absence of any other specifically applicable legislation.
Shirley Waters, the attendance officer for the Plymouth-Canton School District, testified explicitly that the private and parochial schools act did not apply to home-school programs. However, in determining that defendants violated the compulsory education laws, Ms. Waters considered those factors listed in that act.
See, generally, Clonlara, Inc v Runkel, supra (accepting without argument the legality of home schools in general). But see State v Lowry, 191 Kan 701; 383 P2d 962 (1963) (inferring home schools are no longer a valid alternative to public school attendance).
For the text of the compulsory education laws, see n 1.
See n 43 for the complete definition of "state approved nonpublic school.”
The person responsible for enforcing the compulsory education laws is the relevant public school district’s attendance officer.
For the text of § 4, see n 12.
In essence, the Court of Appeals ignored the hearing requirement and made the finding of noncompliance that should have been made at the hearing.
Like defendants, see n 40, the state discusses factually whether defendants complied with the private and parochial schools act. However, for the reasons stated previously, we need not address this argument.
In its amicus curiae brief, the Board of Education notes that confusion arises in the construction of the two statutes because in home-school situations the same parties are both the parents prosecuted for failing to send their children to school and the private school administrators not complying with the private and parochial schools act. This "coincidence,” the board argues, does not merge the two statutes. Rather, the board urges this Court to consider the two statutes completely independently of each other.
Concurring in Part
(concurring in part and dissenting in part). I concur in Justice Brickley’s reasoning and result in parts i and ii of his opinion. I respectfully disagree with part in. The statutes in question, MCL 388.554; MSA 15.1924 (the private school act) and MCL 380.1599; MSA 15.41599 (the School Code) have different purposes and distinct remedies. The administrative hearing required by the private school act applies to the operator of a school and is administered by the Department of Education. The department has no statutory role in the enforcement of the compulsory education law, which is administered by the local school districts and the prosecuting attorney, and is di
Concurring in Part
(concurring in part and dissenting in part). I agree with the majority regarding the issue resolved in part hi and join that holding. Yet, I would hold that MCL 388.553; MSA 15.1923 unconstitutionally abridges defendants’ right to direct the education of their children because it is an unreasonable regulation unrelated to the educational achievement of their children schooled at home. Therefore, I respectfully dissent from the Court’s holding in part ii.
i
As noted by the majority, defendants John and Sandra Bennett taught their children, Scott, Erika, Krista, and Jason, at home in cooperation with Clonlara, Inc.’s home based education program. Ante at 321. The Bennetts’ performance as teachers is not criticized by the state, only their failure to utilize certified instructors. Indeed, any state contention that the Bennetts inadequately instructed their children would be unwarranted because the Bennetts appear to be at least as effectual educators as the local public school district. In fact, the majority recognizes that Jason’s educational achievement was at least satisfactory, while Erika’s and Krista’s were superior for their grade levels. Ante at 322, n 6. The excellence of the Bennetts’ teaching, however, was most cogently demonstrated by the educational improvement of Scott: he had fallen below grade level in public school, but under his parent’s instruction he steadily progressed and met the goals of his grade level. Id. Nevertheless, the state prosecuted and convicted the Bennetts for failing to utilize certified teachers.
As in all constitutional jurisprudence, an examination of the history and rationale underlying the right to educate one’s children is necessary to obtain the proper insight vital to the proper resolution of the instant case. Committee for Constitutional Reform v Secretary of State, 425 Mich 336, 340-342; 389 NW2d 430 (1986); Lockwood v Comm’r of Revenue, 357 Mich 517, 556-558; 98 NW2d 753 (1959).
A
American jurisprudence has historically recognized "Western civilization concepts of the family as a unit with broad parental authority over minor children.” Parham v J R, 442 US 584, 602; 99 S Ct 2493; 61 L Ed 2d 101 (1979).
An essential corollary of the right to establish a
B
The right, of course, is not. absolute. Pierce, supra at 534.
The teacher certification requirement, as applied to the Bennetts’ home school, violates their constitutionally protected liberty to direct the education of their children because it is not reasonably related to education.
A
The state correctly maintains that it possesses a legitimate interest in ensuring the adequate education of all children. Brown v Bd of Ed, 347 US 483, 493; 74 S Ct 686; 98 L Ed 873 (1954). Indeed, the importance of compulsory education parallels that of family autonomy — both "prepare citizens to participate effectively and intelligently in our open political system,” which is an indispensable prerequisite to the preservation of our democratic republic. Yoder, supra at 221. Similarly, both ready our youth "to be self-reliant and self-sufficient participants in society.” Id. at 221. Again, like the family, our commitment to education is deeply rooted in our history: "The American people have always regarded education and acquisition of knowledge as matters of supreme importance which should be diligently promoted.” Meyer, supra at 400.
Nevertheless, a careful examination of the state interest in the instant case reveals that it is not compulsory education per se, but the manner of education:
[T]he state’s interest is simply the certification requirement of the private school act, not the general objectives of compulsory education. The interest the state pursues is the manner of education, not its goals. [People v DeJonge (After Remand), 442 Mich 266, 290; 501 NW2d 127 (1993)].
See also Care and Protection of Charles, 399 Mass 324, 336; 504 NE2d 592 (1987); Ohio v Whisner, 47
B
The crux of the instant case is not "the legitimacy of the state ends,” but "rather, to determine whether the means used to achieve these ends are constitutionally defensible.” Stanley v Illinois, 405 US 645, 652; 92 S Ct 1208; 31 L Ed 2d 551 (1972). Although deferential, the reasonableness standard "is not a toothless one . . . .” Mathews v Lucas, 427 US 495, 510; 96 S Ct 2755; 49 L Ed 2d 651 (1976).
engaged in a kind of undertaking not inherently harmful, but long regarded as useful and meritorious. Certainly there is nothing in the present records to indicate that they have failed to discharge their obligations to patrons, students or the State. And there are no peculiar circumstances or present emergencies which demand extraordinary measures relative to primary education. [Id. at 534.]
Hence, the Court held the statute unconstitutional because it
unreasonably interferes with the liberty of parents and guardians to direct the upbringing and education of children under their control. . . . The fun*356 damental theory of liberty upon which all governments in this Union repose excludes any general power of the State to standardize its children by forcing them to accept instruction from public teachers only. [Id. at 534-535.]
Utilizing parallel reasoning, courts have also struck down prohibitions of foreign language instruction, Farrington v Tokushige, 273 US 284, 298; 47 S Ct 406; 71 L Ed 646 (1927); Bartels v Iowa, 262 US 404, 411; 43 S Ct 628; 67 L Ed 1047 (1923); Meyer, supra at 403; as well as comprehensive standards so regulating private instruction that meaningful distinctions between public and private schools had been eliminated, Whisner, supra at 216-223.
Similarly, Michigan’s teacher certification requirement is not reasonably related to educational achievement, but is merely an attempt to standardize its children by forcing students to accept instruction only from state-approved teachers. Although the Court of Appeals found that "[t]he teacher certification requirement is a backbone in the protection of”
The teacher certification requirement, therefore, is unconstitutional in the instant case because it "has but a tenuous relation to alleviation” of the state’s purported interest. Moore, supra at 500 (Powell, J.).
I would hold that MCL 388.553; MSA 15.1923 unconstitutionally abridges defendants’ right to direct the education of their children because it is an unreasonable regulation unrelated to the educational achievement of their children schooled at home. Therefore, I respectfully dissent from the Court’s holding in part ii.
The history and culture of Western civilization reflect a strong tradition of parental concern for the nurture and upbringing of their children. [Wisconsin v Yoder, 406 US 205, 232; 92 S Ct 1526; 32 L Ed 2d 15 (1972).]
Professor Hafen elaborates:
[T]he cultural patterns of American family life have contributed enormously to the ultimate purposes of a democratic society by providing the stability and the structure that are essential to sustaining individual liberty over the long term. . . . Only in the master-apprentice relationship of parent and child, committed to one another by the bonds of kinship, can the skills, normative standards, and virtues that maintain our cultural bedrock be transmitted. [Hafen, The constitutional status of marriage, kinship, and sexual privacy — Balancing the individual and social interests, 81 Mich L R 463, 473, 478 (1983).]
Professor Hafen explains that not only is family autonomy essential to the transmission of republican values, but that it is a strong hedge against tyranny:
Monolithic control of the value transmission system is "a hallmark of totalitarianism,” thus, "for obvious reasons, the state nursery is the paradigm for a totalitarian society.” An essential element in maintaining a system of limited government is to deny state control over childrearing, simply because childrearing has such power. Even if the system remains democratic, massive state involvement with childrearing would invest the government "with the capacity to influence powerfully, through socialization, the future outcomes of democratic political processes.” [Hafen, n 2 supra at 480-481. Citations omitted.]
A similar provision in the Michigan Constitution also protects due process of law:
No person shall be . . . deprived of life, liberty or property, without due process of law. [Const 1963, art 1, § 17.]
Moreover, authorities have found that the First Amendment, Griswold v Connecticut, 381 US 479, 488; 85 S Ct 1678; 14 L Ed 2d 510 (1965), and the Ninth Amendment, id. at 488-490 (Goldberg, J.), also protect the right to direct the education of one’s children. Michigan has corresponding constitutional guarantees. Const 1963, art 1, §§ 4-5 (protecting the freedoms of speech, press, as well as religious liberty); Const 1963, art 1, § 23 (protecting unenumerated rights).
Whether the Michigan Constitution affords greater protection of parental interests than the United States Constitution was not at issue in the instant case.
The Court has frequently emphasized the importance of the family. The rights to conceive and raise one’s children have been deemed "essential,” Meyer [supra at] 399 . . ., "basic civil rights of man,” Skinner v Oklahoma, 316 US 535, 541 [62 S Ct 1110; 86 L Ed 1655] (1942), and "[r]ights far more precious . . . than property rights,” May v Anderson, 345 US 528, 533 [73 S Ct 840; 97 L Ed 1221] (1953). [Stanley v Illinois, 405 US 645, 651; 92 S Ct 1208; 31 L Ed 2d 551 (1972). See also Cleveland Bd of Ed v LaFleur, 414 US 632, 639-640; 94 S Ct 791; 39 L Ed 2d 52 (1974); Prince v Massachusetts, 321 US 158, 166; 64 S Ct 438; 88 L Ed 645 (1944); Moore, supra at 499.]
Because of this historical recognition of the family as "perhaps the most fundamental social institution of our society,” Trimble v Gordon, 430 US 762, 769; 97 S Ct 1459; 52 L Ed 2d 31 (1977), "[w]hen the Court in 1923 first recognized that the right of parents to direct the upbringing of their children was part of the substantive liberty protected by the due process clause, it did not create a new legal right out of whole constitutional cloth. It merely acknowledged in constitutional language the traditions of Status and the civil legislation that predated the Constitution. In that sense, Meyer v Nebraska is a clear example of substantive due process as a search only for 'fundamental principles as they have been understood by the traditions of our people and our law.’ ” Hafen, n 2 supra at 572, quoting Lochner v New York, 198 US 45, 76; 25 S Ct 539; 49 L Ed 937 (1905) (Holmes, J., dissenting).
See also Employment Div, Dep’t of Human Resources v Smith, 494 US 872, 881; 110 S Ct 1595; 108 L Ed 2d 876 (1990); Yoder, supra; Griswold, n 4 supra at 482-483; Farrington v Tokushige, 273 US 284, 298; 47 S Ct 406; 71 L Ed 646 (1927); Meyer, supra at 399-400.
See also, e.g., Gordon v Los Angeles Bd of Ed, 78 Cal App 2d 464, 480; 178 P2d 488 (1947); School Bd Dist No 18 v Thompson, 24 Okla 1, 4; 103 P 578 (1909); Rulison v Post, 79 Ill 567, 573 (1875).
While the parents contend, and we agree, that they possess a basic right in directing the education of their children, such a right is not absolute but must be reconciled with the substantial State interest in the education of its citizenry. [Care and Protection of Charles, 399 Mass 324, 336; 504 NE2d 592 (1987).]
See also Lehr v Robertson, 463 US 248, 257; 103 S Ct 2985; 77 L Ed 2d 614 (1983) (parental interest in the upbringing of their children is "a counterpart of the responsibilities they have assumed”).
Whether this liberty is fundamental, and therefore deserving of the most heightened constitutional protection, or is of lesser importance, thereby deserving a more deferential standard of protection, was energetically disputed by the parties.
The majority has found that parents do not possess a fundamental right to direct the education of their children deserving of strict scrutiny, but merely possess a right protected by a reasonable basis standard. Some recent United States Supreme Court dicta support this proposition. See, e.g., Runyon v McCrary, 427 US 160, 178-179; 96 S Ct 2586; 49 L Ed 2d 415 (1975) ("[t]he Court has repeatedly stressed that . . . [parents] have no constitutional right to provide their children with private school education unfettered by reasonable government regulation”). Hence, some courts relying on that and earlier Supreme Court language have applied a reasonableness test. See, e.g., Hanson v Cushman, 490 F Supp 109, 114-115 (WD Mich, 1980) (applying a reasonableness standard in upholding Michigan’s teacher certification requirement as applied to home schools).
Yet, reliance on this dicta may be unwarranted because they appear to stem from the confusion arising from applying Supreme Court pronouncements of the 1920s and 1930s in modern cases. Earlier this century, the Supreme Court had yet to develop the varying degrees of scrutiny ubiquitously applied in the modern era. The recognition of a constitutional right did not necessarily result in a clear specification of the particular degree of scrutiny to be applied. In fact, the Court not only explicitly recognized "fundamental rights of the individual which [Meyer, supra; Bartels v Iowa, 262 US 404; 43 S Ct 628; 67 L Ed 1047 (1923); Pierce, supra] declared,” Farrington, n 6 supra at 299 (emphasis added), but at the same time articulated a reasonableness standard. Id. at 298. See also Pierce, supra at 534 and Meyer, supra at 399-401 (recognizing fundamental parental rights, while utilizing a reasonableness standard). Adding to the confusion was the Court’s practice to articulate a reasonableness standard, while the application of that standard often left no doubt that much stronger scrutiny was to be applied. See, e.g., Lochner, n 5 supra at 58 (striking down a maximum hour law for bakeries because there was "no reasonable foundation for holding [it] to be necessary or appropriate as a health law”). Later, the Supreme Court differentiated between constitutional rights, applying a low standard of review (now articulated as a reasonableness or rational basis test) to disfavored
As noted, the modern Supreme Court has cited the earlier Court opinions without much elaboration. Hence, modern Supreme Court dicta also support the proposition that the right to educate one’s children is deserving of strict scrutiny. See, e.g., Smith, n 6 supra at 881 (equating the "right of parents ... to direct the education of their children” with "freedom of speech and of the press”); Kelley v Johnson, 425 US 238, 244; 96 S Ct 1440; 47 L Ed 2d 708 (1976) (equating the liberty protected in Meyer, supra, with the liberties protected in Roe v Wade, 410 US 113; 93 S Ct 705; 35 L Ed 2d 147 [1973] [right of abortion], Eisenstadt v Baird, 405 US 438; 92 S Ct 1029; 31 L Ed 2d 349 [1972] [right to obtain contraceptives], Stanley, n 5 supra [right of an unwed father to retain custody of children], and Griswold, n 4 supra [right of married couples to use contraceptives]); id. at 482 (referring to the right to direct the education of one’s children as if it were fundamental); id. at 498 (Goldberg, J.) (noting that the rights recognized in Pierce and Meyer are fundamental). Not surprisingly, some modern authorities have concluded that the right of parents to direct the education of their children is fundamental. See, e.g., Dep’t of Social Services v Emmanual Baptist Preschool, 434 Mich 380, 416; 455 NW2d 1 (1990) (Cavanagh, J.) and Sheridan Rd Baptist Church v Dep’t of Ed, 426 Mich 462, 536-540; 396 NW2d 373 (1986) (Riley, J.), cert den 481 US 1050 (1987) (finding the right to direct the education of one’s children to be a fundamental right); Ohio v Whisner, 47 Ohio St 2d 181, 214; 351 NE2d 750 (1976) ("it has long been recognized that the right of a parent to guide the education, including the religious education, of his or her children is indeed a 'fundamental right’ guaranteed by the due process clause of the Fourteenth Amendment”); Hafen, n 2 supra at 548 (concluding that the right to direct the education of one’s children is "almost beyond the reach of legislative regulation” and that "most of the Court’s opinions recognizing constitutional rights in the adjudication of family interests have subjected the legislation involved to more than minimal scrutiny”).
In any event, the divergent holdings arise because "[t]he Supreme Court has never addressed directly the full range of parental autonomy questions presented by the home education movement,” Lupu, Home education, religious liberty, and the separation of powers, 67 BULR 971, 975 (1987), but in fact "has continued to do its best to avoid the development of a consistent and understandable test for its family-related cases,” Hafen, n 2 supra at 468, n 15.
Because of the historical recognition of the vital importance of the autonomy, of the family, I am inclined to apply strict scrutiny in the private and home school context (as a government-provided benefit and subsidization of a right, public schools need not be subjected to such scrutiny, Rust v Sullivan, 500 US 173; 111 S Ct 1759; 114 L Ed 2d 233 [1991]). Nevertheless, I do not rest this opinion upon such an analysis, but apply the reasonableness standard because I find that the requirement is not reasonably related to education, thereby negating the necessity of determining whether the higher standard of review is applicable.
Although Mathews, applies the standard with regard to the rational basis test of equal protection, there is no difference in its application with regard to due process.
People v DeJonge (On Rehearing), 179 Mich App 225, 236; 449 NW2d 899 (1989).
Besides Michigan, only two states, California and Alabama, appear to require teacher certification in home' schools. Cal Ed Code 48224; Ala Code 16-28-1. Moreover, "many of our sister states have much less stringent supervisory' control over home schooling than does Michigan.” DeJonge at 293, n 50. For a thorough discussion of
DeJonge at 296.
See DeJonge at 294-298.
Murphy v Arkansas, 852 F2d 1039, 1042-1043 (CA 8, 1988) (finding that a state requirement that home schooling be accompanied by standardized achievement testing to be the least restrictive means, thereby implicitly recognizing that teacher certification is not the least restrictive means). Cf. Whisner, supra at 216-218 (striking down comprehensive school regulations as violating the right to direct the education of one’s children, as well as the free exercise of religion).
The majority’s analysis is unconvincing and contrary to long-established Supreme Court authority. Although the majority purports to find that the teacher certification requirement is valid because it satisfies the "minimal scrutiny test,” ante at 336, in fact it applies no scrutiny at all. The majority, for instance, discards defendants’ argu
Pierce, Farrington, and their progeny are indistinguishable from the instant case. In each case the state asserted an interest that may have facially appeared reasonable, but that was disputed by the available evidence. Defendants have met their burden by showing that they adequately educate their children and that the state’s certification requirement is unrelated to educational achievement in home schools.
Concurring Opinion
(concurring). I join in the vacation of the convictions because I agree with the majority that the Bennetts were entitled, under the statute, to a hearing before they would be subject to prosecution for failure to send their children to school.
Reference
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