## Facts

- Adele Lindsay owned and directed two day care centers in Fall River, Massachusetts, and transported children to a center in her station wagon.
- During drop-offs, Lindsay typically remained in the vehicle with children while a teacher’s aide escorted other children into the building and assumed supervision.
- A three- to four-year-old child, Adrianna Dockery, attended Lindsay’s day care center.
- In the incident underlying the supported report, Dockery was left alone and unsupervised in the vehicle after other children were taken inside.
- The administrative hearing officer found that Lindsay left Dockery alone in the vehicle on two separate occasions.
- Dockery was later discovered and returned safely; there was no finding of actual physical or emotional injury.
- DSS issued a report supporting allegations that Lindsay committed neglect; after an administrative appeal and evidentiary hearing, the support determination was upheld as to one neglect incident.
- The Superior Court affirmed the agency decision, and the Supreme Judicial Court granted direct review.

## Issues

1. Whether a neglect allegation may be supported absent proof that the child suffered actual physical or emotional injury.
2. Whether substantial evidence supported DSS’s determination that leaving a three- to four-year-old child alone in a vehicle constituted neglect under DSS regulations.
3. Whether due process requires DSS to apply a preponderance-of-the-evidence standard, rather than “reasonable cause to believe,” when supporting a neglect report.

## Decision

- The Supreme Judicial Court affirmed the Superior Court’s judgment upholding DSS’s supported neglect determination.
- The court held that the regulatory concept of neglect does not require proof of actual injury; inadequate care and risk to the child may suffice.
- The court concluded substantial evidence supported the agency’s determination that leaving the child alone and unsupervised in the vehicle fell below minimally adequate supervision.
- The court rejected the due process challenge and held that the statutory and regulatory “reasonable cause to believe” standard for supporting a report is constitutionally permissible.

## Legal Principles

- Under Massachusetts child-protection regulations, “neglect” includes a caretaker’s failure to provide minimally adequate essential care and may be found based on inadequate supervision creating a substantial risk of harm, even without proven injury.
- DSS may support an abuse or neglect report based on “reasonable cause to believe” abuse or neglect occurred under G.L. c. 119, § 51B and implementing regulations.
- On judicial review, a supported determination is upheld if supported by substantial evidence in the administrative record; proof of actual injury is not a prerequisite to a neglect finding.

## Conclusion

The Supreme Judicial Court sustained DSS’s supported neglect report against a day care provider who left a young child alone in a vehicle, ruling that neglect does not depend on actual injury, that substantial evidence supported the finding under the agency’s minimally adequate supervision standard, and that the “reasonable cause to believe” threshold for supporting a report satisfies due process.


Lindsay v. Dep’t of Soc. Servs., 439 Mass. 789, 791 N.E.2d 866 (2003)