Before this Court is an administrative appeal from a residency determination made by the Commissioner of Education for the State of Rhode Island (Commissioner). The Commissioner determined that the Petitioners, Parents of CD, a minor child (Petitioners), are residents of Massachusetts for educational purposes and, thus, do not meet the residency requirement for enrollment in a Rhode Island school system. The Town of Barrington (Barrington) has filed a counterclaim, asking this Court to declare that Petitioners are residents of Massachusetts, enjoin the Petitioners from using their Massachusetts address, and seeking $30,000 in reimbursement for educational services rendered between September 2000 to January 2004. Jurisdiction in this Court is pursuant to G.L. 1956 9-30-1, 16-64-6, and 42-35-15. C.A.
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STATE OF RHODE ISLAND AND PROVIDENCE PLANTATIONS
PROVIDENCE, SC.
Filed August 15, 2005
THE PARENTS OF CD
V.
PETER McWALTERS, in his capacity
as Commissioner of Education of the State
of Rhode Island, and TOWN OF
BARRINGTON, RHODE ISLAND
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SUPERIOR COURT
C.A. No. 04-0098
DECISION
DIMITRI J. Before this Court is an administrative appeal from a residency determination made
by the Commissioner of Education for the State of Rhode Island (Commissioner).
The
Commissioner determined that the Petitioners, Parents of CD, a minor child (Petitioners), are
residents of Massachusetts for educational purposes and, thus, do not meet the residency
requirement for enrollment in a Rhode Island school system.
The Town of Barrington
(Barrington) has filed a counterclaim, asking this Court to declare that Petitioners are residents of
Massachusetts, enjoin the Petitioners from using their Massachusetts address, and seeking
$30,000 in reimbursement for educational services rendered between September 2000 to January
2004. Jurisdiction in this Court is pursuant to G.L. 1956 §§ 9-30-1, 16-64-6, and 42-35-15.
FACTS AND TRAVEL
The Petitioners are the parents of CD, a minor child who was determined by the
Commissioner to be ineligible for education in Barrington because the Petitioners were residents
of Swansea, Massachusetts for school purposes. The Petitioners moved to their current home in
1997.
Their property lies in both Swansea, Massachusetts, and in Barrington, with a
overwhelmingly high percentage of the property in Swansea. The Petitioners intentionally built
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their house so that approximately five square feet of it lies in Barrington. The subject parcel
receives mail at both addresses of 1 Deep Meadow Road, Swansea, Massachusetts and 1 Deep
Meadow Road, Barrington, Rhode Island. Using the Barrington address, the Petitioners enrolled
their child in the Barrington public school system.
In the Fall of 2003, the Commissioner informed the Petitioners that their child was not
eligible for enrollment in the school and would not be allowed to enroll for the fall because the
child was attending school in the wrong district. The Petitioners sought a hearing on the issue
before the Commissioner, arguing that § 16-64-1 permitted them to choose the school system
they desired because their property was in two municipalities or, in the alternative, they were
residents of Barrington for school purposes by virtue of the many contacts they had with
Barrington and with Rhode Island.
In a written decision dated December 9, 2003, the
Commissioner denied the Petitioner’s claims, holding that the Petitioner’s child is not a resident
of Barrington for school purposes. On January 7, 2004, the Petitioners filed a timely appeal in
Superior Court.
STANDARD OF REVIEW
The Superior Court has appellate jurisdiction to review a decision of the Commissioner
and other state administrative agencies pursuant to § 42-35-15. Section 42-35-15 provides:
“(g)
The court shall not substitute its judgment for that of the
agency as to the weight of the evidence on questions of
fact. The court may affirm the decision of the agency or
remand the case for further proceedings, or it may reverse
or modify the decision if substantial rights of the appellant
have been prejudiced because the administrative findings,
inferences, conclusions, or decisions are:
(1)
In violation of constitutional or statutory
provisions;
(2)
In excess of the statutory authority of the
agency;
(3)
Made upon unlawful procedure;
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(4)
(5)
(6)
Affected by other error or [sic] law;
Clearly erroneous in view of the reliable,
probative, and substantial evidence on the
whole record; or
Arbitrary or capricious or characterized by
abuse of discretion or clearly unwarranted
exercise of discretion.”
The Superior Court reviews an administrative agency decision in the manner of an
appellate court with a limited scope of review, as prescribed by § 42-35-15. Mine Safety
Appliances v. Berry, 620 A.2d 1255, 1259 (R.I. 1993).
This review is confined “to an
examination of the certified record to determine if there is any legally competent evidence
therein to support the agency’s decision.” Johnston Ambulatory Surgical Assocs., Ltd. v. Nolan,
755 A.2d 799, 805 (R.I. 2000) (quoting Barrington Sch. Comm. v. R.I. State Labor Relations
Bd., 608 A.2d 1126, 1138 (R.I. 1992)). This Court must uphold the Commissioner’s decision if
the basis therefor was sufficient and competent evidence in the record, Johnston Ambulatory,
755 A.2d at 805 (citing Barrington Sch. Comm., 608 A.2d at 1138), and the trial judge “may not
substitute his or her judgment for that of the administrative agency,” Bunch v. Bd. of Review,
690 A.2d 335, 337 (R.I. 1997). This is required even when this Court, after reviewing the
certified record and evidence, is inclined to view the evidence differently than the
Commissioner. Berberian v. Dep’t of Employment Sec., 414 A.2d 480, 482 (R.I. 1980).
When a trial judge reviews a decision of an agency, the judge can affirm the decision,
reverse the decision, or remand the case for further review. Birchwood Realty, Inc. v. Grant, 627
A.2d 827, 834 (R.I. 1993) (citing § 42-35-15(g)).
The trial judge may reverse the
Commissioner’s decision only when his conclusions and the findings of fact are not supported by
the evidence in the record or from the reasonable inferences drawn from such evidence. See
Bunch, 690 A.2d at 337. If more than one inference may be drawn from the evidence in the
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record, this Court is precluded from substituting its judgment for that of the Commissioner and
must affirm the Commissioner’s decision unless his findings in support of his decision are not
supported by evidence of the entire record. Rocha v. State Public Utilities Comm’n, 694 A.2d
722, 726 (R.I. 1997). “Questions of law, however, are not binding upon the court and may be
reviewed to determine what the law is and its applicability to the facts.” Narragansett Wire Co.
v. Norberg, 118 R.I. 596, 607, 376 A.2d 1, 6 (R.I. 1977).
DETERMINING RESIDENCY OF A CHILD – STATUTORY CONSTRUCTION
The Rhode Island Supreme Court has stated that residence does not possess a fixed legal
definition, but “must be interpreted according to the context and the purpose of the statute in
which it is found.” Flather v. Norberg, 119 R.I. 276, 281, 377 A.2d 244, 228 (1977). It is well
settled that this court accords deference to an administrative agency when it interprets a statute
whose administration and enforcement has been entrusted to the agency. Pawtucket Power
Assoc. Ltd. Partner. v. City of Pawtucket, 622 A.2d 452, 456 (R.I. 1993). This Court will give
“the agency’s interpretation of the statute as applied to a particular factual situation . . . ‘weight
and deference as long as that construction is not clearly erroneous or unauthorized.’” Labor
Ready Northeast, Inc. v. McConaghy, 849 A.2d 340, 344-45 (R.I. 2002) (citing In re Lallo, 768
A.2d 921, 926 (R.I. 2001) (quoting Gallison v. Bristol Sch. Comm, 493 A.2d 164, 166 (R.I.
1985))). When the language of a statute is clear and unambiguous, this Court must interpret the
statute literally, giving the words their plain and ordinary meaning. Id. (citing Stebbins v. Wells,
818 A.2d 711, 715 (R.I. 2003) (per curium)). An agency does not have the ability to “‘modify
the statutory provisions under which it acquired power, unless such an intent is clearly expressed
in the statute.’” Id. (citing Little v. Conflict of Interest Comm’n, 121 R.I. 232, 236, 397 A.2d
884, 886 (1979)). “But when ‘the provisions of a statute are unclear or subject to more than one
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reasonable interpretation, the construction given by the agency charged with its enforcement is
entitled to weight and deference as long as that construction is not clearly erroneous or
unauthorized.’” Id. (quoting In re Lallo, 768 A.2d at 926). Weight and deference are given even
when the agency’s interpretation of the statute is not the only permissible interpretation that
could be applied. Id.; Pawtucket Power Assoc., 622 A.2d at 456-57.
Section 16-64-1 proscribes the manner in which a child’s residency is determined for
school purposes. Under this section, a child attends the school system located in the city or town
in which he or she resides, and he or she is a resident of the city or town in which his or her
parents reside. Section 16-64-1. The Petitioners argue that the Commissioner failed to follow
the last sentence of § 16-64-1 and allow them to choose the school district that their child should
attend. That sentence states “[w]here a child is a resident in a dwelling which lies in more than
one municipality, the parent(s) or guardian shall choose which school district the child shall
attend without payment of costs as tuition.” Section 16-64-1. The Commissioner asserts that
this sentence only applies when the municipalities in question are both in the State of Rhode
Island, and not when the house lies in Rhode Island and Massachusetts. The Commissioner
stated that he was “convinced” that the Legislature intended such a limitation because
“[t]o construe the statute otherwise would be to impute to the
Rhode Island legislature an intent to provide a free public
education to students who are in fact living in Massachusetts, and
who are eligible to attend the public schools of Massachusetts. We
are convinced that our legislature had no such intent when it
passed the legislation now at issue.” (Comm’r Decision at 2.)
When statute provisions are open to interpretation, this Court “must defer to a reasonable
construction by the agency charged with its implementation.” Labor Ready Northeast, 849 A.2d
at 346 (quoting Barnhart v. Thomas, 540 U.S. 20, 26 (2003) (quoting Chevron U.S.A. Inc. v.
Natural Resources Defense Counsel, Inc., 467 U.S. 837, 843 (1984)); In re Lallo, 768 A.2d at
5
926).
“The Commissioner of Education has a duty to interpret laws affecting this state’s
schools.” Martone v. Johnston Sch. Comm., 824 A.2d 426, 431 (R.I. 2003). The Commissioner
conducted a residency hearing after appropriate petitions were filed.
After reviewing the
presented evidence and interpreting the residency statute, the Commissioner found that the
Petitioners were residents of Massachusetts for school purposes. Rhode Island General Laws do
not define the term “municipality” for purposes of § 16-64-1. The Commissioner could have
interpreted the statute in the manner that the Petitioners suggest, but he chose to “afford another
reasonable interpretation of this undefined term.” Labor Ready Northeast, 840 A.2d at 346. A
determination that the legislature intended that § 16-64-1 only applies when the two or more
municipalities are within the State of Rhode Island is not “clearly erroneous or unauthorized”;
therefore, “it [is] entitled to weight and deference by a reviewing court.” Id. at 345. The
Commissioner prescribed a practical, rational, and reasonable objective behind the enactment of
§ 16-64-1, concluding that the legislature could not have intended to provide free public
education to residents of another state when it promulgated § 16-64-1. The Commissioner
appropriately interpreted the laws affecting Rhode Island schools, and this Court must defer to a
reasonable interpretation of such rules.
DETERMINING RESIDENCY OF A CHILD – CONSTELLATION OF INTERESTS
The Petitioners also argue that they have established residency in Barrington by a
“constellation of interests” that provide sufficient contacts with Barrington to warrant their
child’s attending school in Barrington. In support of this contention, the Petitioners rely on and
cite to In re Residency of J.R., a Commissioner of Education decision of August 23, 2000. In
that decision, the Commissioner stated that “the determination of residency where a dwelling
overlaps district boundaries is ‘based on the whole constellation of interests including both
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geography and the community orientation of the student and the family.’” In re Residency of
J.R., Commissioner of Education, August 23, 2000 (emphasis added) (quoting Rapp, Education
Law § 5.03(4)(g)). Additionally, the Commissioner stated that “[i]n boundary line cases in
which the residence lies not only in different municipalities, but also in different states,
consideration of facts in addition to geography is particularly appropriate because it recognizes
the affinity of a family to one state or the other, but not both.” Id.
The Petitioners argue that a “plethora of documents” demonstrated their residency in
Barrington, that all proffered documents except for tax returns “demonstrated a clear and
undivided allegiance to Rhode Island.” (Pet. Mem. at 7.) Additionally, the Petitioners contend
that “[l]ogic would tell us different” that the “tax filing error, corroborated by the accountant,
and the subsequent amendment does not trump thirty-plus other documents indicating a
consistent pattern of living for the last thirty-odd years.” (Pet. Mem. at 8.) The Commissioner,
however, found that the “Petitioners have done no more then [sic] assemble a self-serving cache
of documents on which they have claimed a Barrington address.
These documents are
completely auto-generated and self-serving. They prove nothing.” (Comm’r Decision at 3
(internal footnotes omitted).) Furthermore, the Commissioner held that
“[w]hat we have here is an everyday family living in the state of
Massachusetts. There are no factual vectors that compel us to see
this student as being a resident of Barrington for school purposes.
Nothing more then [sic] a plethora of paper supports her case and
this plethora of paper does not suffice to overcome the
gravitational pull of Massachusetts.” (Comm’r Decision at 3
(internal footnotes omitted).)
“When the agency is the trier of fact, ‘[a] court must not substitute its judgment for that
of the agency in regard to the credibility of the witnesses or the weight of the evidence
concerning questions of fact.’” Environmental Scientific Corp. v. Durfee, 621 A.2d 200, 206
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(R.I. 1993) (quoting Costa v. Registrar of Motor Vehicles, 543 A.2d 1307, 1309 (R.I. 1988)).
Thus, this Court must uphold a decision of the Commissioner if it is supported by legally
competent evidence on the record, and shall not substitute its judgment for that of the
Commissioner “as to the weight of the evidence on questions of fact.” Interstate Navigation Co.
v. Div. of Pub. Utils. & Carriers of R.I., 824 A.2d 1282, 1285 (R.I. 2003); § 42-35-15(g). In the
instant matter, the Commissioner found that the “galaxy of documents” presented by the
Petitioners noting their residence as being in Barrington did not “represent independent
assessment of where the [P]etitioners are in fact living.”
(Comm’r Decision at 2.)
The
Commissioner further stated that
“These documents are simply the result of the petitioner’s [sic]
own efforts to obtain a multiplicity of documents with Barrington
listed as their residence. That is to say, these documents do not
prove that the petitioners have ties to Barrington. They only prove
that petitioners have taken the time to go to various offices to
change their address on various public documents. This is weak
evidence indeed. For the past 6 years, however, the petitioners
have filed their federal taxes from Massachusetts and they have
filed non-resident income tax returns with the state of Rhode
Island. These two items, which have fiscal consequences, are
much better indicators of the petitioners’ true residence.”
(Comm’r Decision at 2 (emphasis added).)
The Commissioner reviewed all the documents that indicated the Petitioners claimed Rhode
Island residence, yet determined that for school purposes, the Petitioner’s child is not a resident
of Rhode Island. In his decision, the Commissioner placed a high degree of weight on the
Petitioner’s tax returns. Despite the Petitioners’ contention that they filed their tax returns as
residents of Massachusetts based upon the advice of their tax preparer, and have since filed their
taxes as residents of Rhode Island as a direct consequence of the Commissioner’s decision, the
Commissioner’s decision must stand because this Court cannot substitute its judgment for that of
the Commissioner with regard to weight of the evidence. The fact remains that the Petitioners
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signed and filed taxes as Massachusetts residents for six years. This Court further finds that the
Commissioner’s factual findings were based on the reliable, probative, and substantial competent
evidence presented during the hearings. After a review of the record, this Court finds that the
Commissioner’s reliance on the Petitioners’ tax returns substantially supports the
Commissioner’s conclusion that the Petitioners reside in Massachusetts for school purposes.1
Secondly, the Petitioners allege that the Commissioner “erred in application of the
evidence in that the burden of proof was with the Appellee.” This Court may review questions
of law “to determine what the law is and its applicability to the facts.” Narragansett Wire Co.,
118 R.I. at 607, 376 A.2d at 6. The Petitioners argue that the legal burden of proof in residency
challenges lies with Barrington, the party challenging the residency. Therefore, they contend,
“the Commissioner erred in application of the evidence in that the burden of proof was with
[Barrington].” Neither the Rhode Island General Laws nor case law, however, would assign
such a burden to Barrington. Section 16-64-3, “Burden of Proof,” states:
“In any proceeding where it is alleged that a child’s residence has
been changed due to illness of a parent, the break-up of the child’s
family, abandonment of the child by his or her parents, death of the
child’s parents, or emancipation of the child, the party alleging the
existence of these circumstances shall have the burden of proof and
shall make proof by a preponderance of the evidence.” Section 1664-3.
No such burden of proof, however, is assigned to Barrington in residency contests that arise as a
result of both parents moving to another home. Consequently, the Petitioners’ argument that the
Commissioner applied the incorrect burden of proof fails.
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In their appeal, the Petitioners also attempt to argue that the “constellation of interest” test is met by the fact that
they are registered to vote in Barrington, have paid automobile tax bills to Barrington, and that Barrington sends
mail to the Petitioner’s address in Barrington. All of these facts, however, were before the Commissioner, and the
Commissioner determined that, for school purposes, the Petitioners’ child is not a resident of Barrington. Whether
other agencies in Barrington have determined the Petitioners’ residency, and the relevancy of such evidence, is not
before this Court on appeal. The Commissioner’s decision must stand because this Court will not substitute its
judgment for that of the Commissioner, even if this Court is inclined to view the evidence differently than the
Commissioner. See Bunch, 690 A.2d at 337; Berberian, 414 A.2d at 482.
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BARRINGTON’S COUNTERCLAIMS
In its Answer to the Petitioners’ complaint, Barrington asserts two counterclaims against
the Petitioners. Count I is labeled Declaratory Judgment; Count II is labeled Unjust Enrichment.
As relief, Barrington requests that this Court (1) declare that the Petitioners are residents of
Swansea, Massachusetts; (2) permanently enjoin the Petitioners from using the address of “1
Deep Meadow Road, Barrington, Rhode Island”; (3) permanently enjoin the Petitioners from
“exercising the rights of Rhode Island residents unless they establish residence within the State
under Rhode Island law”; and (4) order the Petitioners to reimburse Barrington for school tuition
in the amount of $30,000. The Petitioners have not responded to Barrington’s argument for
recovery of school tuition, contending that it was not previously addressed and, thus, is not
properly before this Court as a matter for appeal. Barrington, in response, suggests that this
Court should use the Commissioner’s finding that the Petitioners “made a purposeful effort to
construct a pseudo-Rhode Island residency while at the same time filing documents with fiscal
consequences (income tax returns) with the Massachusetts address,” and that “[s]uch a finding
implies a significant level of deception that this Court should use to assess school
reimbursements costs, even if sua sponte.” (Barrington Reply Mem. at 4.) For the reasons stated
below, this Court finds that this issue is not properly before this Court at this time.
Barrington’s request for declaratory judgment is controlled by the Uniform Declaratory
Judgments Act, G.L. §§ 9-30-1 to 9-30-16, which grants the Superior Court “power to declare
rights, status, and other legal relations whether or not relief is or could be claimed.” Section 930-1. The purpose of the Act “is to facilitate the termination of controversies.” Capital Props.,
Inc. v. State, 749 A.2d 1069, 1080 (R.I. 1999). The decision to issue a declaratory judgment lies
within the trial justice’s discretion. Sullivan v. Chafee, 703 A.2d 748, 751 (R.I. 1997) (citing
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Woonsocket Teachers’ Guild Local Union 951, AFT v. Woonsocket Sch. Comm., 694 A.2d 727,
729 (R.I. 1997)); Lombardi v. Goodyear Loan Co., 549 A.2d 1025, 1027 (R.I. 1988) (citing
Employers’ Fire Ins. Co. v. Beals, 103 R.I. 623, 628, 240 A.2d 397, 401 (1968)). Section 9-3012 provides that the Uniform Declaratory Judgments Act should be “liberally construed and
administered.”
Barrington first seeks this declaration from this Court that the Petitioners are residents of
Swansea, Massachusetts. The existence of an actual or justiciable controversy, however, is a
“necessary predicate” to a Court’s exercising jurisdiction under the Uniform Declaratory
Judgments Act. Meyer v. City of Newport, 844 A.2d 148, 151 (R.I. 2004). On appeal, the issue
before this Court is whether the Petitioners are residents of Barrington, Rhode Island, for school
purposes.
This Court declines to determine, upon the facts presented before it in this
administrative appeal, whether the Petitioners are residents of Barrington, Rhode Island, or
Swansea, Massachusetts, for all purposes.
It appears from the manner in which its counterclaim is presented that Barrington also
seeks an injunction under the Uniform Declaratory Judgments Act.
Although a claim for
injunctive relief may be joined to a claim for declaratory relief, Gomes v. Wall, 831 A.2d 817,
821 (R.I. 2003) (citing Parente v. Southworth, 448 A.2d 769, 772 (R.I. 1982)), injunctive relief
cannot be granted under the Declaratory Judgments Act, Shipyard Drive-In-Theatre, Inc. v.
Scuncio, 107 R.I. 554, 560, 268 A.2d 820, 825 (1970). Consequently, Barrington’s sought-after
injunctive remedies are not properly before this Court and are thereby dismissed.
Barrington next seeks reimbursement from the Petitioners for the education of their child
in the amount of $30,000, under the theory of unjust enrichment. To recover under a theory of
unjust enrichment, Barrington must demonstrate that (1) it conferred a benefit upon the
11
Petitioners; (2) that the Petitioners accepted the benefit; and (3) that the Petitioners “accepted the
benefit under circumstances such ‘that it would be inequitable for [the recipient] to retain the
benefit without paying the value thereof.’” Id. (quoting Bouchard v. Price, 694 A.2d 670, 673
(R.I. 1997)). Unjust enrichment is a remedy in contract and tort, and it “can stand alone as a
cause of action in its own right.” Dellagrotta v. Dellagrotta, 873 A.2d 101, 113 (R.I. 2005).
However, it is important to note that “[a]n administrative appeal and a civil trial differ greatly
with respect to governing procedural rules, burdens of proof, and standards of review.”
Nickerson v. Reitsma, 853 A.2d 1202, 1205 (R.I. 2004).
In Nickerson, the Rhode Island
Supreme Court held that the trial justice erred in consolidating an administrative appeal with a
separate civil action. Id. In reviewing an administrative action, “a court exercises only appellate
jurisdiction and has no original authority to declare the rights of the parties or the applicability of
any statute or rule.” 2 Am. Jur. 2d § 525 Administrative Law (2004). Furthermore, “[t]he focal
point for judicial review of an administrative action should be the administrative record already
in existence, not some new record made initially in the reviewing court.” 2 Am. Jur. 2d § 485
Administrative Law (2004) (citing Florida Power & Light Co. v. Lorion, 470 U.S. 729 (1985)).
In order for this Court to properly determine the claim for unjust enrichment, this Court
requires additional evidence from that which is available in the administrative record. Even if
this Court were to agree that Barrington conferred a benefit on the Petitioners, that the Petitioners
accepted the benefit, and that it would be unjust for the Petitioners to retain the benefit without
compensating Barrington, issues of fact remain regarding the cost of education and what the
Petitioners should be required to pay to Barrington for educational services rendered. At this
time, only the administrative record is before this court on appeal. Consequently, Barrington’s
claim for unjust enrichment is also dismissed.
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CONCLUSION
After review of the entire record, this Court finds the decision of the Commissioner was
supported by the reliable, probative, and substantial evidence on the whole record.
The
Commissioner’s interpretation of § 16-64-1 is not clearly erroneous or unauthorized.
Accordingly, this Court upholds the decision of the Commissioner determining that the
Petitioners are not residents of Barrington for school purposes. Consequently, their child may
not attend the schools of Barrington.
This Court also dismisses Barrington’s counterclaims for declaratory judgment and for
unjust enrichment because they are not properly before this Court as counterclaims to an
administrative appeal of the Commissioner’s decision that the Petitioners are not residents of
Barrington for school purposes. Counsel shall submit the appropriate judgment for entry.
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