Mr. P v. W. Hartford Bd. of Educ.

*740The plaintiffs-appellants, Mr. and Mrs. P. (the "parents"), commenced this action in the United States District Court for the District of Connecticut (Bryant, J. ) on behalf of themselves and their son, M.P., against the defendants-appellees, the West Hartford Board of Education (the "District" or the "Board") and two District officials in their official capacities,2 alleging claims under the Individuals with Disabilities Education Act (the "IDEA"), as amended, 20 U.S.C. § 1400 et seq. The parents appeal the district court's denial of their motion for summary judgment and the grant of the District's cross-motion for summary judgment.

In December of his sophomore year at Hall High School in West Hartford, Connecticut ("Hall" or the "school"), M.P. began having suicidal and homicidal ideations and was ultimately diagnosed with High Functioning Autistic Spectrum Disorder /Asperger's Syndrome ; a Processing Disorder-Predominantly Nonverbal LD and Executive Subtype; and Psychotic Disorder -Not Otherwise Specified. At the end of January 2012, the District approved accommodations for M.P. pursuant to Section 504 of the Rehabilitation Act of 1973, 29 U.S.C. § 794, including counseling, but did not make a determination that M.P. was eligible for special education and related services pursuant to the IDEA.3 In March 2012, the parents requested special education for M.P. In June 2012, after the District had received psychological and psychiatric reports for M.P., the District enrolled M.P. in a special education program for his junior and senior years. The special education program tracked Hall's graduation requirements, and M.P. graduated from that program on time.

Toward the end of M.P.'s senior year, the parents disputed the District's proposed post-secondary special education plan and requested two years of compensatory education for M.P. in a private program. The District rejected the parents' request. The parents then challenged the District's treatment of M.P. beginning with M.P.'s sophomore year, before M.P. was enrolled in special education, through the school's rejection of the parents' proposed post-secondary program upon M.P.'s graduation.

After a seven-day hearing, a Due Process Hearing Officer (a "Hearing Officer" or an "IHO") principally denied the parents' challenge, and the district court affirmed the IHO's decision. On appeal, the parents argue that the judgment of the district court should be reversed because the District violated the IDEA's procedural *741safeguards, denying the parents an opportunity to participate in formulating M.P.'s special education program and depriving M.P. of educational benefits, and because the District deprived M.P. of the free appropriate public education ("FAPE") required by the IDEA.

This case requires us in particular to determine the appropriate standards to be applied in determining whether a school district has acted with sufficient expedition in identifying a student entitled to special education and related services and in providing such education and services. It also requires us to apply the Supreme Court's recent decision in Endrew F. ex rel. Joseph F. v. Douglas Cty. Sch. Dist. RE-1, --- U.S. ----, 137 S.Ct. 988, 197 L.Ed.2d 335 (2017), to determine whether the special education and related services provided to M.P. were sufficient to provide him with a FAPE consistent with the IDEA.

For the reasons explained below, the judgment of the district court is AFFIRMED .

I.

The IDEA requires States receiving federal funds to provide "all children with disabilities" with a FAPE. 20 U.S.C. § 1412(a)(1)(A) ; see Gagliardo v. Arlington Cent. Sch. Dist., 489 F.3d 105, 107 (2d Cir. 2007) ; Walczak v. Fla. Union Free Sch. Dist., 142 F.3d 119, 122 (2d Cir. 1998). A FAPE must provide " 'special education and related services' tailored to meet the unique needs of a particular child, 20 U.S.C. § 1401 [9], and be 'reasonably calculated to enable the child to receive educational benefits,' [ Bd. of Educ. v. Rowley, 458 U.S. 176, 207, 102 S.Ct. 3034, 73 L.Ed.2d 690 (1982) ]." Walczak, 142 F.3d at 122. "[R]elated services" include "transportation, and such developmental, corrective, and other supportive services ... as may be required to assist a child with a disability to benefit from special education." 20 U.S.C. § 1401(26)(A) ; see Rowley, 458 U.S. at 188, 102 S.Ct. 3034.

The IEP is "the centerpiece of the [IDEA's] education delivery system for disabled children." Endrew F., 137 S.Ct. at 994 (quoting Honig v. Doe, 484 U.S. 305, 311, 108 S.Ct. 592, 98 L.Ed.2d 686 (1988) ). "The IEP, the result of collaborations between parents, educators, and representatives of the school district, 'sets out the child's present educational performance, establishes annual and short-term objectives for improvements in that performance, and describes the specially designed instruction and services that will enable the child to meet those objectives.' " Murphy v. Arlington Cent. Sch. Dist. Bd. of Educ., 297 F.3d 195, 197 (2d Cir. 2002) (Sotomayor, J. ) (quoting Honig, 484 U.S. at 311, 108 S.Ct. 592 ). "Any review of an IEP must appreciate that the question is whether the IEP is reasonable, not whether the court regards it as ideal." Endrew F., 137 S.Ct. at 999.

Thus, Connecticut must deliver each disabled child a FAPE pursuant to the child's IEP. See id. at 993-94. Connecticut accomplishes this through its State Department of Education and the Board of Education for each school district in the State, each of which is responsible for developing an IEP for disabled children in its district. See 20 U.S.C. §§ 1401(19)(A), (32) ; Conn. Agencies Regs. § 10-76d-11 ; Doe v. E. Lyme Bd. of Educ., 790 F.3d 440, 448 n.4 (2d Cir. 2015).

The IDEA also provides a variety of procedural safeguards for the parents of disabled children. See Lillbask ex rel. Mauclaire v. Conn. Dep't of Educ., 397 F.3d 77, 81-82 (2d Cir. 2005). Parents may challenge a proposed IEP by filing a complaint with the state education agency, which is resolved through an "impartial due process hearing." 20 U.S.C. §§ 1415(b)(6), (f) ; see *742Walczak, 142 F.3d at 122 ; see also Conn. Gen. Stat. § 10-76h. Generally, the party seeking relief bears the burden of persuading an IHO of the IEP's impropriety. Schaffer ex rel. Schaffer v. Weast, 546 U.S. 49, 62, 126 S.Ct. 528, 163 L.Ed.2d 387 (2005).4 A party aggrieved by the decision of an IHO may challenge that decision in a federal district court. 20 U.S.C. § 1415(i)(2).

II.

M.P., now 21 years old, attended public schools in West Hartford, Connecticut. M.P. has a Full Scale IQ of 108, which is in the upper limits of the "average" range. Special App. 3. Although M.P. had a history of awkward social interactions with peers, M.P.'s education progressed steadily, and M.P. earned average to above average grades until midway through his sophomore year at Hall.

In December 2011, Mrs. P. discovered that M.P. was receiving "D" grades in all of his classes. When Mrs. P. confronted M.P. about his grades, M.P. expressed suicidal ideations. Mr. and Mrs. P. called M.P.'s pediatrician, who recommended taking M.P. to the Connecticut Children's Medical Center (the "CCMC"). M.P. had a pocketknife with him when he arrived at the CCMC, which was confiscated by hospital staff. Upon learning that the pocketknife would not be returned to him, M.P.'s reaction resulted in a referral to the Institute of Living (the "IOL"), where he remained overnight for observation.

Mrs. P. notified Hall of M.P.'s hospitalization and suicidal ideation. On December 8, 2011, the school convened a Student Assistance Team/Child Study Team Meeting, which Mr. and Mrs. P. attended, along with four of M.P.'s teachers, a school counselor, a school administrator, and an assistant principal. Although M.P. was failing five of seven classes at that point, the meeting minutes observed that M.P. "is very humorous," "has a lot of friends and ... is on the swim team," and "has high ability but his effort is up and down." Appellants' App. ("A.A.") 575. The school agreed to make accommodations "due to the extenuating circumstances," such as excusing M.P.'s absences from class and allowing him to drop a course without penalty. Id. The parents were to provide the school with M.P.'s discharge report from the IOL and confer with M.P.'s pediatrician about having M.P. assessed for Attention Deficit Disorder ("ADD").

M.P. began seeing a private Licensed Clinical Social Worker in 2011. At some point, although it is not clear when these discussions took place, M.P. expressed to the social worker a desire to kill his former psychiatrist and discussed blowing up a hospital and attacking people at school.

On January 31, 2012, the school convened a meeting pursuant to Section 504 of the Rehabilitation Act of 1973 (a "504 Review Meeting"). See 29 U.S.C. § 794 ; 34 C.F.R. §§ 104.31 - 104.39. The meeting minutes reflect that M.P. had been diagnosed with Attention Deficit with Hyperactivity Disorder ("ADHD") by his parents' private doctor, Dr. Scherzer, on January 13, 2012. At the 504 Review Meeting, it was determined that M.P. qualified for Section 504 *743accommodations but did not qualify for special education under the IDEA. The meeting resulted in a Student Accommodation Plan, which identified the relevant concern for M.P. as "difficulties with concentration and organization." A.A. 343. As part of M.P.'s Accommodation Plan, Hall teachers were allowed to give M.P. a "P" if M.P. was attaining less than a "C" in a class and were permitted to excuse any late work. M.P. was also provided with access to a "[r]esource study hall" and assigned a counseling intern. A.A. 343; Special App. 5.

Hall officials and M.P.'s parents met three more times after the January 31, 2012, 504 Review Meeting as part of a planning and placement team (a "PPT") process before M.P. was found eligible for special education on June 11, 2012. During this time, M.P. was also evaluated by a psychologist and had a consultation with a psychiatrist to determine whether and to what degree M.P. required further accommodations or special education.

In March 2012, the parents referred M.P. for special education after M.P. had stopped attending school altogether in February 2012. When M.P. stopped attending school, M.P.'s psychiatrist spoke to the school, and the school arranged homebound tutoring. Also in March 2012, M.P. took the Connecticut Academic Performance Test (the "CAPT"), a state-wide requirement for high school graduation. M.P. did not complete the test, and his score was reported as blank.

The PPT met on March 12, 2012 to review the parents' referral and observed that M.P. had been struggling with "severe anxiety and school refusal," but that his parents "reported that medications are beginning to be helpful to [M.P.]." A.A. 345. The PPT concluded that because M.P. had not been experiencing his difficulties "over a long period of time," M.P. did not qualify for special education. Id. However, the team kept M.P.'s Section 504 accommodations in place.

On April 23, 2012, the PPT met again to review the parents' referral for special education. At the time, M.P. was hospitalized at St. Francis Hospital "due to emotional concerns." Id. at 348. The parents reported that M.P. had been having "aggressive thoughts," which had caused his psychologist to call the West Hartford police. Id. The PPT increased M.P.'s homebound tutoring to eight hours per week. The school asked that the parents and M.P.'s teachers complete behavioral checklists and recommended a consultation by the District's psychiatrist, Dr. Black. The PPT also noted that M.P.'s private psychiatrist had so far refused to release his evaluation to the school and that the parents were withholding signing a release, presumably for those records, "until they have a better understanding of what is going on with [M.P.]" Id. The school requested that the parents and M.P.'s clinicians share any education-related information with the school. The PPT planned to meet again when the new evaluations were complete.

On May 9, 2012, the District's psychologist evaluated M.P. and administered the Behavior Assessment System for Children 2nd Edition ("BASC-II"), an "integrated system designed to assess a variety of emotional and behavior issues." Id. at 351. Based on M.P.'s self-reporting, the psychologist placed M.P. in the "At-risk" range for Hyperactivity and in the "Clinically Significant" range for Personal Adjustment relating to a poor relationship with his parents. Id. M.P. reported "having no more unusual thoughts or perceptions, no more anxiety based feelings and no more depressed feelings than others his age." Id. Based on M.P.'s psychiatric diagnoses and refusal to attend school, the District's psychologist recommended that "the PPT explore the possibility of a special *744education mandation under the category of Emotional Disturbance." Id. at 352.

The next day, May 10, 2012, Dr. Black, the District's psychiatrist, conducted a psychiatric consultation with M.P. Dr. Black described M.P. as a "[v]ery capable ... tall, friendly, husky, articulate young man with good eye contact," but reported that last semester M.P. "shut down." Id. at 353-54. During the interview, M.P. told Dr. Black that "he never wanted to kill anyone or himself." Id. at 354. Dr. Black noted that "[w]hile it is not the function of this consultation to make a psychiatric diagnosis, it is probable that [M.P.] would meet the DSM IV Axis I criteria for a Reactive Attachment Disorder and an Asperger's Disorder." Id. at 355. Dr. Black recommended that M.P. return to school, noting that "[i]f necessary, he can return, at least initially, to the STRIVE program, and as time progresses, a determination can be made as to whether he should remain in STRIVE or become part of the mainstream." Id. Dr. Black recommended that M.P. continue his current psychotropic medication.

STRIVE, which stands for Success Through Responsibility Initiative Vision Education, is an alternative high school program that includes the necessary academic courses to meet the District's graduation requirements, with certain modifications. STRIVE employs a data-driven behavior management system whereby students earn privileges by demonstrating appropriate behavior. All students enrolled at STRIVE have some form of disability.

One week after Dr. Black's evaluation, on May 17, 2012, the PPT met to review his recommendations and determine M.P.'s program for the remainder of the school year. Because the school year was almost over, the PPT recommended that M.P. continue homebound tutoring through the end of his sophomore year. The PPT noted that, while M.P. was "doing well with tutoring," the tutoring had been "inconsistent on the part of the tutor," and that the District would provide compensatory tutoring to make up for time missed. Id. at 357. The PPT also noted that the school had not yet received any private evaluations of M.P., and that the PPT would meet again on June 11, 2012, "to address [M.P.'s] progress and determine [eligibility]." Id.

At the June 11 meeting, the PPT determined that M.P. was eligible for special education under the primary disability of "Emotional Disturbance." Id. at 358. The team decided to continue M.P.'s homebound tutoring at eight hours per week until M.P. completed the tenth grade curriculum, and the team scheduled a meeting the following week to determine M.P.'s special education program for the next school year.

The PPT met again on June 19, 2012 and determined that M.P. should attend STRIVE for the 2012-2013 school year. STRIVE's principal attended the meeting "to gain a better understanding of [M.P.'s] challenges," and to explain the STRIVE program to the parents. Id. at 375.

On July 13, 2012, Dr. Isenberg, a private pediatric neuropsychologist, conducted a neuropsychological evaluation of M.P. Dr. Isenberg diagnosed M.P. with High Functioning Autistic Spectrum Disorder /Asperger's Syndrome, Processing Disorder-Predominately Nonverbal LD and Executive Subtype, and Psychotic Disorder -Not Otherwise Specified. In Dr. Isenberg's view, M.P. was "not emotionally stable enough to return to a mainstream learning environment" and required "a more self-contained therapeutic learning environment." Id. at 402. While Dr. Isenberg noted that there were "many elements of the STRIVE program that would be beneficial, including access to a more contained environment, access to increased structure/supervision, *745behavior support, and counseling service," he also expressed "some concern that [M.P.] will require a more specialized therapeutic program," such as one offered at the IOL, where M.P. had been hospitalized. Id.

On September 20, 2012, the PPT met to "review [M.P.'s] progress at STRIVE and review a [neuropsychological] evaluation administered by Dr. Isenberg." Id. at 408. The PPT noted that M.P. had "made a positive transition" to STRIVE. Id. As of that meeting, M.P. was receiving thirty-one hours of special education and roughly five hours of counseling per week. The PPT decided to keep M.P. enrolled at STRIVE.

In March 2013, M.P. again took the state-wide CAPT. This time, M.P. completed the test, scoring Proficient in math and reading and Goal in science and writing.

The PPT met again on May 22, 2013 to conduct an annual review of M.P.'s junior year at STRIVE. Although M.P.'s special education teacher and social worker at STRIVE and his guidance counselor from Hall attended the meeting, no regular education teacher from Hall was present. The IEP prepared at the May 22 meeting observed that M.P. "is very respectful and polite. He has a great sense of humor. He has demonstrated the ability to turn things around, especially in regard to attendance, but more importantly has been open to seeing things with a different perspective. [M.P.] is ready to attend Hall part time next year." Id. at 432. However, the IEP also noted that M.P. "can be inappropriate with his comments at times. He is very concrete in his thinking and does not always pick up on social cues. He has connected with peers here, but sometimes makes inappropriate comments to be humorous and try to fit in." Id.

At the time, M.P. had close to a 3.0 GPA, consisting of mostly "As" and "Bs." The PPT noted that M.P. had "mastered most of [his] academic and social and behavioral goals/objectives," and that his "attendance has improved significantly since entering [STRIVE]." Id. at 428. The PPT planned a split schedule for M.P. during his senior year, where he would begin each day with classes at Hall and then return to STRIVE in the afternoon for lunch, more classes, and group counseling. The District was to provide transportation. The PPT decided that M.P. did not require programming during the summer between his junior and senior years. While the parents attended the May 22 meeting, the IEP developed at the meeting was not sent to them until November 2013.

M.P. had difficulty transitioning back to Hall for his senior year. M.P. had several unexcused or unverified absences in September and October 2013. On October 22, 2013, M.P. got upset when a guidance counselor questioned him about skipping class, and he threatened to leave the school and not return. M.P. ultimately agreed to walk to STRIVE and meet with Mr. Davis, the principal, and Mr. Volpe, his teacher, who were able to "de-escalate [M.P.'s] behavior." Id. at 443.

In light of these issues, the PPT met on October 28, 2013 to reassess M.P.'s IEP. M.P. expressed a desire to return to STRIVE full time, which the PPT recommended, and the IEP was amended to implement this recommendation. The October 28 IEP also noted M.P.'s interest in starting his own landscaping business and attending community college. The IEP included goals and objectives keyed toward finding and maintaining employment that would match M.P.'s vocational strengths and weaknesses.

On November 26, 2013, after M.P. had returned to STRIVE full time, the parents e-mailed several STRIVE staff members and said that they realized "that Strive is not the ideal environment for [M.P.,] but[ ]

*746it has assisted him in many ways and for that we are grateful." Supp. App. of Def.-Appellee ("Supp. App.") 20. The parents told the staff members that "[i]t has been a huge relief to [M.P.] to be back [in] an environment where he feels more comfortable." Id.

On December 13, 2013, M.P. was suspended from STRIVE for three days and arrested for punching a fellow male student in defense of a female student. M.P. returned to STRIVE six days later. M.P. apologized, and the STRIVE staff "didn't deem [him] to be any kind of threat to the kid." Supp. App. 404. Mr. Davis testified that this was the only time M.P. had ever acted out physically at STRIVE. Id. at 405.

The PPT met on February 4, 2014 to discuss changes to M.P.'s IEP and M.P.'s transition for the 2014-2015 school year. The parents' attorney attended the meeting, and the parents excused the presence of a regular education teacher from Hall. M.P. appeared to rebound from the December 13 episode, and at the meeting he had a 98% on STRIVE's behavioral intervention system. The PPT also noted that M.P. was an "excellent participant in group problem-solving." A.A. 451. In response to an inquiry by the parents' attorney about vocational training, the Transition Coordinator reported that M.P. had accessed "CAVE"5 to practice job applications, resume and cover letter writing, and career research, and had taken multiple trips to community colleges.

At the meeting, the District made a detailed recommendation for M.P.'s IEP for the remainder of his senior year, which included academic classes, counseling, public transportation training, one-on-one training with a job coach, vocational training and a list of potential job sites, daily monitoring by a job coach, after-school tutoring with a special education teacher, and continued participation in athletics and extracurricular activities at Hall, where M.P. had participated in the wrestling team since his junior year. For the summer after M.P.'s senior year and the following school year, the District's recommendations included counseling, continued public transportation training, part- or full-time employment at a job site with the support of a job coach, bi-weekly meetings with the Transition Coordinator, self- and third-party assessments, and afternoon tutoring with a special education teacher.

The parents rejected the District's recommendations and instead requested an out-of-district placement at Options, a comprehensive vocational training program, for the remainder of the school year, as well as two years of compensatory education at Options.6 The District declined the parents' request because it believed it could provide M.P. with a FAPE through its recommended program.

On March 24, 2014, the parents requested a Special Education Due Process Hearing. See 20 U.S.C. § 1415(f).

On May 22, 2014, M.P. was hospitalized for about one week after he walked out of his house with a kitchen knife and made homicidal statements toward his former psychiatrist. The psychiatric intake evaluation *747noted that M.P. denied suicidal ideation and had not displayed any aggressive behavior since arriving at the hospital, other than his statements about hurting his former psychiatrist.

The PPT met again on June 2, 2014, for an annual review. The PPT determined that M.P. had met the course requirements for graduation. At the meeting, the District modified its previous recommendation and proposed that M.P. join a post-secondary program called ACHIEVE. The school-based aspect of ACHIEVE is located in the same building as STRIVE. Progress at ACHIEVE is tracked through individualized Community Based Situational Assessments and Skills Assessments. At ACHIEVE, M.P. would work three-to-four days per week at a work site in the community, have the opportunity to attend community college in the second semester, receive individual and group counseling, and have a one-on-one job coach. The District also recommended that M.P. join a program during the summer of 2014 that included half-day work experiences with a one-on-one job coach four-to-five days per week. The Hearing Officer found that, while transportation was to be provided for these programs, "the specific nature of the transportation was not identified, nor was it clear whether transportation [was] to be provided only to and from the program or also within the program day." Special App. 10.

The parents rejected the District's recommendation and renewed their request for two years of compensatory education at Options. The District again declined the parents' request.

In June 2014, M.P. graduated from STRIVE. That same day, Mrs. P. and M.P. spoke briefly with a paraprofessional at ACHIEVE and looked into an ACHIEVE classroom. However, M.P. did not participate in ACHIEVE's orientation program.

The Special Education Due Process Hearing requested by the parents on March 24, 2014 convened over seven non-consecutive days between June 9, 2014 and August 26, 2014. On October 2, 2014, the Hearing Officer issued a Final Decision and Order. The Hearing Officer found that the District had provided M.P. with a FAPE at all times between March 24, 2012 and June 2014, when M.P. graduated from STRIVE.7 However, the Hearing Officer concluded that the District's proposed program for the summer of 2014 and the 2014-2015 school year at ACHIEVE was inappropriate and required modifications "only with regards to the ACHIEVE program's emphasis on public transportation training." Id. at 17. The Hearing Officer directed the District to provide M.P. with transportation to and from ACHIEVE, as well as between ACHIEVE and job sites, "until such time as the PPT meets and determines that [M.P.] is fully acclimated to the ACHIEVE program, is ready emotionally to begin bus-training and no longer needs private transportation." Id. The Hearing Officer rejected the parents' procedural arguments, concluding that while the District had committed certain procedural violations, none denied M.P. educational benefits or denied the parents a meaningful opportunity to participate in the decision-making regarding M.P.'s education.

On November 14, 2014, the parents filed a complaint in the District Court for the *748District of Connecticut appealing the Hearing Officer's Final Decision and Order in its entirety. In a September 29, 2016 Memorandum Opinion, the district court denied the parents' motion for summary judgment and granted the District's cross-motion for summary judgment in full. Mr. & Mrs. P., 14-cv-1697, 2016 WL 5660389, at *15 (D. Conn. Sept. 29, 2016).

This appeal followed.

III.

We engage in a "circumscribed de novo review of a district court's grant of summary judgment in the IDEA context because the responsibility for determining whether a challenged IEP will provide a child with a FAPE rests in the first instance with administrative hearing and review officers." M.W. ex rel. S.W. v. N.Y.C. Dep't of Educ., 725 F.3d 131, 138 (2d Cir. 2013) (internal quotation marks and brackets omitted). "Accordingly, our de novo review only seeks to independently verify that the administrative record supports the district court's determination that a student's IEP was adequate." Id.

"[F]ederal courts reviewing administrative decisions must give 'due weight' to these proceedings, mindful that the judiciary generally 'lack[s] the specialized knowledge and experience necessary to resolve persistent and difficult questions of educational policy.' " Gagliardo, 489 F.3d at 113 (quoting Rowley, 458 U.S. at 206, 208, 102 S.Ct. 3034 (alteration in original) ). Deference to the administrative decision is particularly appropriate when the administrative officer's review has been thorough and careful, and when the court's decision is based solely on the administrative record. See M.H. v. New York City Dep't of Educ., 685 F.3d 217, 241 (2d Cir. 2012). While this Court "do[es] not simply rubber stamp administrative decisions," Walczak, 142 F.3d at 129, review of the administrative decision "is by no means an invitation to the courts to substitute their own notions of sound educational policy for those of the school authorities which they review," Rowley,