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Claremont II As an Opinion The University of New Hampshire Law Review Volume 14 Number 1 University of New Hampshire Law Article 3 Review February 2016 Claremont I and II - Were They Rightly Decided, and Where Have They Left Us? John M. Lewis Associate Justice of the New Hampshire Superior Court from 2001-2013; Chair of New Hampshire's State Board of Education from 1997 to 2001 Stephen E. Borofsky Managing Director of the law firm of Borofsky, Amodeo-Vickery & Bandazian P.A. Follow this and additional works at: https://scholars.unh.edu/unh_lr Part of the Education Economics Commons, Education Law Commons, and the Taxation-State and Local Commons Repository Citation John M. Lewis & Stephen E. Borofsky, Claremont I and II - Were They Rightly Decided, and Where Have They Left Us?, 14 U.N.H. L. REV. 1 (2016), available at http://scholars.unh.edu/unh_lr/vol14/iss1/3 This Article is brought to you for free and open access by the University of New Hampshire – Franklin Pierce School of Law at University of New Hampshire Scholars' Repository. It has been accepted for inclusion in The University of New Hampshire Law Review by an authorized editor of University of New Hampshire Scholars' Repository. For more information, please contact [email protected]. Claremont I and II-Were They Rightly Decided, and Where Have They Left Us? JOHN M. LEWIS AND STEPHEN E. BOROFSKY* CONTENTS INTRODUCTION ............................................. 2 2...... I. CLAREMONT I AND CLAREMONTI ............. ..................... 7 1. Background ........................................ 7 a. In New Hampshire: The History Leading Up to the Filing of the Litigation ....................... ............. 77..... b. Elsewhere ...................................... 13 2. The Early Proceedings ....................... ......... 16 a. The Issues and Relief Sought ................. ........ 16 b. Motion to Dismiss and Superior Court Order ...... ........ 17 c. The ClaremontI Decision. ................. .......... 20 3. The Superior Court Trial and Decision ........... ......... 24 a. The Claims .......................................... 24 b. The Trial ............................................ 26 c. The Superior Court Decision ........ ................. 32 i. The Education Equity/Adequacy Count........................ 32 ii. The Equity/Adequacy Funding Count ............ ..... 37 iii. The Equal Protection Count....................... 39 iv. The Tax Count ..................................... 41 v. The Superior Court Concluding Remarks ...... ......... 43 4. ClaremontII...................................... 43 a. The Arguments ................................... 43 b. The Majority Decision .............................. 44 c. The Dissent. ............................ ......... 50 II. DEFENSIBILITY ......................................... ....... 52 1. ClaremontI ............................. .......... 53 a. The Meaning of Article 83 .................. ......... 53 b. Separation of Powers Concerns. .......... ............. 62 2. ClaremontII...................................... 75 a. The Defensibility of the Tax Ruling ........... ......... 75 b. The Defensibility of its Major Education Pronouncements.......... 79 c. Its Other Difficulties.......................... 81 III. WHERE WE ARE WITH THE CLAREMONT MANDATES . ............... 84 1. Definition ........................................ 84 2. Accountability/Assessment ............................ 85 a. Accountability Mechanisms .................. ........ 85 b. Assessment Results............................. 91 2 UNIVERSITY OFNEW HAMPSHIRE LAWREVIEW Vol. 14, No. 1 3. Funding ......................................... 94 CONCLUSION ............................................. ....... 101 INTRODUCTION Our children embody the enduring wonder of life. They hold our hopes for the future. We want them to be happy, to succeed in whatever they do both in work and in play. We want them to contribute to our country and the world in constructive ways. But for these hopes to be realized our children must be educated-they must possess the requisite skills and knowledge to function well in this ever- changing world. Yet, are we, as a society, meeting our responsibility to educate our children? What do we expect of our public schools? How important are these schools to us? Is a public education fit for the times guaranteed as a constitutional matter? These questions loomed large in the New Hampshire Supreme Court's decisions in Claremont I and Claremont II, issued respectively in 1993 and 1997.1 Constituting New Hampshire's core education rulings, they are among the Court's most controversial exercises of constitutional jurisprudence.2 *John M. Lewis served as an Associate Justice of the New Hampshire Superior Court from 2001 to 2013, and also served as Chair of New Hampshire's State Board of Education from 1997 to 2001. Stephen E. Borofsky is the managing director of the law firm of Borofsky, Amodeo-Vickery & Bandazian P.A. He grew up and went to school in Claremont, New Hampshire. Both authors attended Dartmouth College and Columbia Law School, and they worked together as partners in the law from 1982 to 2001. Today, they continue to work together. The authors wish to particularly thank Sandra Cabrera, Esq. for her research and editing assistance. Special thanks goes also to Mary S. Searles, Law Librarian of the John W. King New Hampshire Law Library, the Clerk's Office of the New Hampshire Supreme Court, and Alma Alvarado, Esq. 1 Claremont Sch. Dist. v. Governor (Claremont 1), 635 A.2d 1375 (N.H. 1993); Claremont Sch. Dist. v. Governor (ClaremontIl), 703 A.2d 1353 (N.H. 1997). 2 Claremont I and Claremont II were followed by a number of other decisions going into 2008, though many of these were not directly related to the actual Claremont litigation. See, e.g., Claremont Sch. Dist. v. Governor (ClaremontIll), 712 A.2d 612 (N.H. 1998) (dismissing challenge to Justice Batchelder's participation in Claremont II); Opinion of the Justices (School Financing) (Claremont I), 712 A.2d 1080 (N.H. 1998) (declaring that the proffered "ABC" funding plan did not pass constitutional muster); Claremont Sch. Dist. v. Governor (Claremont V), 725 A.2d 648 (N.H. 1998) (denying the State's request for an extension of time to enact a constitutional funding scheme); Opinion of the Justices (Tax Plan Referendum) (Claremont VI), 725 A.2d 1082 (N.H. 1999) (declaring a proposed tax plan referendum to be inappropriate); Claremont Sch. Dist. v. Governor (Claremont VII), 744 A.2d 1107 (N.H. 1999) (declining to sustain a "phase-in" for a state property tax scheme); Claremont Sch. Dist. v. Governor, (Claremont VIll), 761 A.2d 389 (N.H. 1999) (granting attorney's fees to 2015 CLAREMONT IAND II Instituted in 1991 in the Merrimack County New Hampshire Superior Court by five "property poor" school districts, five students, and eight taxpayers and parents, the Claremont litigation broadly challenged, on several state constitutional grounds, New Hampshire's funding of public education.3 The Superior Court (Manias, J.) initially dismissed the litigation, holding that it failed to present claims for which relief could be granted under State constitutional law. In Claremont I, however, the New Hampshire Supreme Court unanimously reversed this dismissal.5 It construed Part II, Article 83 (Article 83) of the State Constitution as reposing duties upon the State, enforceable in court, to provide "a constitutionally adequate education to every educable child in the public schools in New Hampshire and to guarantee adequate funding." 6 Article 83, the education provision of the State Constitution, provides in pertinent part: Knowledge and learning, generally diffused through a community, being essential to the preservation of a free government; and spreading the opportunities and advantages of education through the various parts of the country, being highly conducive to promote this end; it shall be the duty of the legislators and magistrates, in all future periods of this government, to cherish the interest of literature and the sciences, and all seminaries and public schools.7 The Supreme Court declined in Claremont I to define the specifics of a constitutionally adequate education or the means to provide for it, deferring petitioners); Opinion of the Justices (Reformed Public School Financing System) (Claremont IX), 765 A.2d 673 (N.H. 2000) (declaring that a proposed targeted aid plan did not pass constitutional muster); Sirrell v. State (Claremont X), 780 A.2d 494 (N.H. 2001) (rejecting challenge to 1999 state property tax); Claremont Sch. Dist. v. Governor (ClaremontXI), 794 A.2d 744 (N.H. 2002) (declaring accountability to be a component of the State's duty to provide a constitutionally adequate education); Londonderry Sch. Dist. SAU No. 12 v. State (Claremont XII), 907 A.2d 988 (N.H. 2006) (declaring that the State still had not developed "distinct substantive content" to what constitutes "adequacy" so cost thereof may be isolated; retaining jurisdiction; and threatening to impose remedies if "the political branches" fail, per a deadline, to "define with specificity the components of a constitutionally adequate education"); Londonderry Sch. Dist. SAU No. 12 v. State (ClaremontXIll), 958 A2d 930 (N.H. 2008) (dismissing case as moot). 3 Claremontl, 635 A.2d at 1377. 4 Id. at 1376-77. 5 Id. at 1382. 6 Id. at 1376. 7 N.H. CONST. pt. 2, art. LXXXIII. 4 UNIVERSITY OFNEW HAMPSHIRE LAW REVIEW Vol. 14, No. 1 "in the first instance" to the Legislature and Governor, though it declared that a free
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