by Gary Stedronsky | Mar 12, 2020 | COVID-19 (Coronavirus), General
How long can the school district cancel school?
Provisions of Ohio law govern how long a school year must be. A school year begins on July 1st of each year and ends on June 30th of the next year. R.C. 3313.48 provides that schools must be open for instruction for a minimum of 455 hours for students in half-day kindergarten; 910 hours for students in full-day kindergarten through 6th grade; and 1,001 hours for students in grades 7-12. Schools will be in compliance provided they satisfy these requirements by June 30, 2020.
Of course, if
the outbreak gets out of hand, the Ohio legislature is likely to step in and
provide a waiver of these requirements or revise the law to deal with the
unique circumstances we are in. Further, a school district may not continue to
operate if a state or local government entity mandates closer.
Will online
education count?
It’s not
entirely clear. R.C. 3313.48 provides that schools must be “open for
instruction with pupils in attendance.” Furthermore, R.C. 3313.482
addresses make up days via web access (also known as “blizzard bags”). However,
it provides that only three school days can be made up via this method provided
that a district adopted its plan to require students to access and complete
classroom lessons online by August 1, 2019.
The Ohio
Department of Education may issue further guidance on this. Additionally, the
Ohio legislature could act to permit online education in these circumstances.
There are also special education concerns
with respect to mandating online education. Districts must ensure that students
with disabilities are able to access the education program, with or without
accommodations and modifications. Your teams should carefully consider the
needs of your students when making this decision. Please refer to our prior
blog post on this topic.
Should the school district cancel
district travel to out of town or out of state events?
That is a local decision for each school district to make at this time, subject to local, state and federal emergency orders. School districts certainly have the ability to cancel district travel to events. Although money is secondary to student safety, you may wish to review the cancellation provisions in your contracts with travel vendors. Even if a contract prohibits cancellation or requires payment if travel is canceled, some vendors might be willing to waive those provisions or provide a credit for future travel.
Should the school district cancel
athletic and other events?
This is also a local decision for each school district to make at this time, again subject to orders from branches of the government. OHSAA has limited spectators to OHSAA tournaments. School districts certainly have the authority to cancel other events such as school musicals or plays that may draw large crowds or to limit attendance to certain individuals as long as it does so in a nondiscriminatory way.
Can the school district be liable if we
permit travel to events or permit athletic and other events at our district to
proceed?
We do not think that liability is a priority concern at this time. School districts generally enjoy sovereign immunity to causes of action that might be brought in the event a student, employee, or parent contracts COVID-19. Insurance coverage should also provide school districts with defense coverage. With that said, school districts may want to think twice about sending students to places where the outbreak is worse or where local governments have imposed gathering, travel or movement restrictions. As state and federal governments have stated numerous times, safety should be your priority when making decisions.
If a parent or relative of a student is
quarantined or self-quarantined, can a school district prevent students from
attending school?
A school district can certainty request that students remain home in these situations and provide for excused absences. In the event a parent or student refuses to stay home, a superintendent has the authority to assign students to home instruction, mandate that education be provided in a school location away from the general school population, or assign students to other available educational options such as online education. Of course, special consideration should be given to special education students before any of these decisions are made.
If school closes for an extended period of
time, do we have to pay staff?
The answer to this question is governed in part by individual collective bargaining agreements that can supersede Ohio law. For teachers, R.C. 3319.08(B) states that teachers must be paid for all time lost when schools are closed due to an epidemic or other public calamity, and for time lost due to illness or otherwise for not less than five days annually. As for classified staff, R.C. 3319.081(G) states that all nonteaching employees shall be paid for all time lost when the schools in which they are employed are closed owing to an epidemic or other calamity. These rules will apply unless a collective bargaining agreement provides otherwise. You should meet with your union to discuss your plans and how your operations will be modified as you respond to the situation.
Where can I find other information?
We will continue to update clients as more information becomes available.
ODE guidance and information can be found
here:
http://education.ohio.gov/Topics/Student-Supports/Coronavirus
OSBA resources can be found here:
https://www.ohioschoolboards.org/coronavirus-covid-19-resources
NSBA resources can be found here:
https://www.nsba.org/Resources/coronavirus
U.S. Department of Education resources can be found here:
www.ed.gov/coronavirus
by Jeremy Neff | Mar 12, 2020 | COVID-19 (Coronavirus), General, Special Education, Student Education and Discipline
UPDATE (3/12/20 at 6:20 PM): At 6 PM on March 12 the US Department of Education released new guidance on special education and COVID-19 that is available here.
In the past 48 hours it seems as if the already rapidly developing story of COVID-19, or novel coronavirus, has accelerated even more. With major spectator events being postponed, universities and colleges moving to online instruction, escalating infection rates around the globe, and the declaration of a pandemic by the WHO it seems inevitable that at least some Ohio public school districts will experience extended closures. These closures will raise important questions both in terms of employment and education. Given the unique and unprecedented challenges involved, we encourage you to work with legal counsel in real time to ensure effective and compliant responses.
What flexibility can we expect in meeting federal
requirements for education?
We can look to official guidance issued during the 2009 H1N1 pandemic to get a sense of what we might expect with COVID-19. On December 1, 2009, the US Department of Education (ED) issued a memo titled “Guidance on Flexibility and Waivers for SEAs, LEAs, Postsecondary Institutions, on other Grantee and Program Participants in Responding to Pandemic Influenza H1N1 Virus” (“SEA” refers to State Education Agencies like ODE, and “LEA” refers to Local Education Agencies like individual school districts). The guidance document discussed in generalities the willingness of the US Department of Education to offer flexibility regarding the requirements of the Elementary and Secondary Education Act (now referred to as ESSA). It is reasonable to assume that flexibility will likewise be offered as COVID-19 has begun to force school closures. We will continue to update clients as specific guidance is issued.
Specifically regarding students on IEPs and 504 plans,
what services must we provide during a closure?
We are receiving many calls related to the delivery of
instruction during possible closures, and specifically regarding the delivery
of instruction to students with IEPs and 504 Plans. Here is what ED said on
this topic in 2009 regarding H1N1:
Must an LEA continue to provide FAPE to students with
disabilities during a school closure caused by an H1N1
outbreak?
The IDEA, Section 504, and the ADA do not specifically
address a situation in which elementary and secondary schools would be closed
for an extended period of time because of exceptional circumstances; however,
LEAs must be sure not to discriminate on the basis of disability when providing
educational services.
If an LEA closes its schools because of an outbreak of H1N1 that disrupts the functioning or delivery of educational
services, and does not provide any educational services to the general student
population, then an LEA would not be required to provide services to students
with disabilities during that same period of time. Once school resumes,
however, a subsequent individualized determination is required to decide
whether a student with a disability requires compensatory education to make up
for any skills that may have been lost because of the school closure or because
the student did not receive an educational benefit.
If an LEA continues to provide educational opportunities
to the general student population, then it must ensure that students with
disabilities also have equal access to the same opportunities and to the
provision of FAPE, where appropriate. SEAs and LEAs must ensure that, to the
greatest extent possible, each student with a disability receives the special
education and related services identified in the student’s individualized
education program (IEP) developed under IDEA, or a plan developed under Section
504.
There is no guarantee that ED would issue the same guidance
today for COVID-19, but given the parallels between the concerns in 2009 and
those today, this 2009 guidance is a reasonable starting point for planning a
compliant response to a potential school closure for COVID-19.
What are the special education implications of providing
online instruction during a closure?
It is notable that the approach that creates the most risk
for a school district, per the 2009 ED guidance, is to offer online instruction
during a closure. The reason this can become a problem is that students with
disabilities will need to be offered accessible instruction that meets their
unique needs. It is difficult to imagine how a district might provide “regular
prompting,” a common accommodation, to a child who is sitting alone at a
computer. And what of the child who does not have a computer or internet
access? Per the 2009 ED guidance it would be more legally compliant to not
offer any instruction at all than to offer online instruction without an
adequate plan for students with special needs.
This does not mean that online instruction should be ruled out. It just means that if online instruction is used there will need to be a plan for how this will serve students with disabilities. You should also consider the possibility of not immediately implementing online instruction. Given the mild winter and the fact that most schools significantly exceed minimum hours of instruction on their regular calendars, it is likely that a few days of closure (without online instruction) will not violate state minimum hours law. Even if a closure is longer lasting, pausing before implementing online instruction could provide important breathing room for student services to plan for serving students with disabilities.
Will we be required to provide compensatory education to
students on IEPs and 504 plans following a closure?
The 2009 ED guidance points to the fact that a discussion of
whether compensatory education may be required should follow any period of
closure regardless of what services are provided. Unless a child is already
assigned to home instruction at the time of the closure, any set of services
during a closure will in some ways not be in compliance with the child’s IEP.
While proactive amendments to account for anticipated closures could minimize
the risks, it would be ambitious for most districts to secure consent for
amendments for all IEPs. A more realistic approach could involve identifying
students who are most at risk of significant regression during a closure, and
working with parents to develop a plan to minimize that regression. Not only is
this educationally sound, it would be an important part of any legal defense
related to IDEA or Section 504 complaints. Once school resumes after a closure
you can revisit whether other compensatory services are appropriate.
Please continue to follow the Ennis Britton blog for updates
on COVID-19, and do not hesitate to call any of our attorneys with questions or
concerns.
by Pamela Leist | Mar 11, 2020 | COVID-19 (Coronavirus), General
UPDATED APRIL 1, 2020
On March 11, 2020, the World Health Organization officially declared that COVID-19, a novel coronavirus, has become a pandemic. We anticipate that this virus will pose many challenges to school districts and communities in the coming weeks and months. It is important for public school district boards of education to understand state laws regarding board meetings so that you have a plan in place to effectively maintain operations during this and future pandemics.
How frequently is a board of education required to meet?
Board of education must meet at least once every two months. Regular meetings are scheduled at the organizational meeting in January. A board of education may convene a special meeting by providing proper notice to the board members and the public. Board members must be notified of the special meeting at least two days prior to the event. Additionally, the board must announce special meetings at least 24 hours ahead of time to the public. With this said, the board of education may cancel meetings in its discretion. Notice of meeting cancellation should be provided as soon as possible.
May the Board of Education conduct a remote meeting online or by telephone?
Ohio’s Open Meetings Act, R.C. §121.22, requires a board of education to conduct meetings that are open to the public. Prior to the COVID-19 pandemic, a member of a public body was required to attend meetings in person even during a health emergency. The Ohio attorney general declared as much in an opinion published in 2009, and concluded that a township could not meet remotely during a pandemic or other public health emergency, even to provide needed response services because this would interfere with the public’s ability to attend. Click here to access 2009 OAG 034. Rather, the Attorney General recognized that a public entity was not permitted to conduct a public meeting remotely unless the General Assembly had authorized it to do so through legislative action.
However, as a sign of the truly unique and unprecedented times we are living in, on March 25th, 2020 the Ohio General Assembly passed an emergency measure through House Bill 197 which temporarily authorizes boards of education and other local government agencies to hold public meetings by teleconference or video conference while the health threat continues.
This law permits members of a school board to participate from a remote location while the emergency is ongoing. Members will be considered present regardless of whether they attend in person or remotely, and their votes will be counted for the purpose of determining quorum. The law declares that any resolution, rule, or formal action taken shall have the same effect as if it had occurred during a typical in-person meeting.
The law also permits a board to fulfill the public access requirement for open meetings by providing members of the public with remote access to the meeting. Examples of acceptable remote access technologies include live-streaming by means of the internet, local radio, television, cable, or public access channels, call in information for a teleconference, or by means of similar electronic technology. The public must be able to observe and hear all discussions and deliberations regardless of whether the board member participates.
If the meetings are streamed over some type of technology, boards must publish information about how the public can access the meetings at least twenty-four hours in advance, unless the board convenes an emergency meeting. Notice should be sent to all members of the media and public who have requested to be notified, and by other means that will reasonably provide notice to the public.
School boards must comply with all other Open Meetings requirements such as quorum and executive sessions. The provisions of HB 197 will remain in effect until December 1, 2020 or until the COVID-19 emergency ceases, whichever comes first.
Prior to HB 197’s passage, the Ohio Attorney General issued a letter on March 13, 2020 shortly following official orders issued by both the Ohio Governor Mike DeWine and the Ohio Department of Health Director Dr. Amy Acton which prohibited mass gatherings and also urged individuals to maintain adequate personal space. The Attorney General emphasized that public business must be allowed to continue in times such as these, but also clearly stated that this opportunity would apply in very narrow circumstances and only while the orders remained in effect. The AG cautions public bodies that they may want to refrain from making decisions that are unrelated to the current health emergency, including examples such as passing a new tax or enacting a new regulatory scheme.
Districts should pay careful attention to the provisions of HB 197 as well as comments included in the Attorney General’s letter, and should contact legal counsel for advice before conducting remote meetings. Click here to access the letter, and click here to review HB 197.
What happens if a majority of board members are unable or unwilling to attend meetings due to personal choice, a quarantine or government order?
A board of education must have a quorum in order to properly conduct school business. A majority of all members of the board constitutes a quorum, and a majority of the quorum is typically sufficient to approve a motion or resolution. Some actions require a special voting majority (a majority of the full board or more) under state law. These include adoption of a resolution to purchase or sell real or personal property, employ a staff member, appoint a public official, pay a debt or claim, and adopt a textbook.
Without having the required voting majorities, the actions may not legally be accomplished. As a result, a board of education may need to consider postponing certain actions and should attempt to reschedule meetings if an insufficient number of members are able to attend. In accordance with HB 197, boards may be able to host remote meetings under certain narrow circumstances during a health emergency. Boards of education may be able to delegate certain decisions to a superintendent, and also may be able to take certain actions retroactively in an emergency.
Will the General Assembly make further changes in the law to respond to the COVID-19 pandemic?
It is likely that local, state and federal governments will work diligently with school districts and communities to address the many challenges that COVID-19 has caused and is likely to cause in the future. Therefore, it is possible that legislative measures will be taken that will allow public bodies to operate differently than before in response to the public health needs of the community. It is not yet certain how serious the pandemic will become, how long it will last, and what short and long-term impacts it will have on school operations. In the meantime, boards should regularly consult trusted sources and with legal counsel to explore options and weigh risks during this novel pandemic situation.
Ennis Britton will update this information if it changes over time.
