Full opinion text
MEMORANDUM DECISION AND ORDER GRANTING IN PART AND DENYING IN PART DEFENDANTS’ MOTION FOR SUMMARY JUDGMENT, AND DENYING PLAINTIFFS’ MOTION FOR SUMMARY JUDGMENT McMAHON, District Judge. Plaintiffs are suing Westchester County, the Westchester County Department of Health (“WCDOH”) and certain of its ranking officials — Mark Rapoport, M.D. (“Rapoport”), Harold Adel, M.D. (“Adel”), Patsy Yang-Lewis (“Yang-Lewis”) and Susanne D. Kaplan (“Kaplan”) (collectively, the “County Defendants”) — under Section 1983 of the Civil Rights Act, 42 U.S.C. § 1983, for violations of due process rights guaranteed to Plaintiffs by virtue of the Individuals with Disabilities Education Act (“IDEA”), 20 U.S.C. § 1431 et seq., the Rehabilitation Act of 1973 (“Rehabilitation Act”), 29 U.S.C. § 794 et seq., and the New York Public Health Law, § 2540 et seq. (collectively, “the Acts”), and the Fifth and Fourteenth Amendments to the United States Constitution; and for violations of the Rehabilitation Act’s prohibition against discrimination in federally funded programs. Specifically, Plaintiffs allege that County Defendants unlawfully implemented policies to prevent, discourage and limit the use of 1:1 Applied Behavior Analysis Therapy (“ABA Therapy”) in the treatment of autistie/PDD children, and that through those policies, plaintiffs BB, DD, MM, EE, SS, and PP and their families were deprived of appropriate ABA therapy and suffered injury as a result. Plaintiffs seek a declaration that the acts of the County Defendants were unlawful and violated the Constitution, IDEA and the Rehabilitation Act. Plaintiffs also seek compensatory and punitive damages, costs and attorneys’ fees. On August 5, 2000, plaintiffs moved for summary judgement on the merits of the Section 1983 and Rehabilitation Act claims. On August 7, 2000, defendants cross-moved for summary judgment on a number of threshold issues, including statute of limitations, failure to exhaust administrative remedies, and mootness, and on the merits of the Section 1983 and Rehabilitation Act claims. For the reasons stated below, I:(l) deny the motion to dismiss plaintiffs’ § 1983 and Rehabilitation Act claims on statute of limitations grounds; (2) deny the motion to dismiss plaintiffs’ § 1983 and Rehabilitation Act claims on exhaustion grounds; (3) deny the motion to dismiss plaintiffs’ claims for declaratory relief under § 1983; (4) grant defendants’ motion to dismiss the § 1983 claims of MM, DD and their parents; (3) grant defendants’ motion to dismiss plaintiffs’ § 1983 damages claims as to Adel and Rapoport and deny the motion as to Kaplan and Yang-Lewis; (4) grant defendants’ motion to dismiss plaintiffs’ Rehabilitation Act claims against all individual defendants Kaplan, Yang-Lewis, Adel, and Rapoport; (5) deny the motions for summary judgment on plaintiffs’ remaining § 1983 and Rehabilitation Act claims. BACKGROUND Introduction Plaintiffs BD, DD, MM, EE, PP and SS are children diagnosed with autism or pervasive developmental disorder (“PDD”), and plaintiffs Jean Doe, Jane Doe, Gary S. Mayerson. (“Mayerson”), Kit Weintraub (“Weintraub”) and June Duessel (PP and SS) (“Duessel”) are their respective parents. During the period from 1993 through 1996, plaintiff children were enrolled in Westchester County’s Early Intervention Program (“EIP”), which offers services to infants (ages birth to approximately three years old) with disabilities. Under this program, each child received a different “package” of services, which I describe below. These services were provided to the children under the requirements of IDEA and the New York Public Health Law. Statutory and Regulatory Background The IDEA was enacted to ensure that all children with disabilities have available to them a “free appropriate public education” (FAPE). 20 USC § 1400(d)(1)(A). Under this Act, federal funds are provided to the states conditioned upon the provision of early intervention services to developmentally disabled infants and toddlers, i.e. children from birth up to three years of age. 20 U.S.C. § 1431 et seq. The IDEA defines “early intervention services” as developmental services which: (1) are provided at no cost (except where otherwise provided), (2) are designed to meet the developmental needs of an infant or toddler with a disability, (3) meet the standards of the; state, (4) are to be provided by qualified personnel, and (5) to the extent appropriate, are provided in natural environments (e.g., home, community settings). 20 U.S.C. § 1432(4)(B)-(G). As part of these early intervention services, the child must be provided with an individualized family service plan (“IFSP”) with the parents’ involvement. 20 U.S.C. § 1436(a)(3), (d)(8). Pursuant to this mandate, New York State enacted § 2540 et seq. of the Public Health Law, which establishes an EIP for infants and toddlers. Every child eligible for early intervention services in New York is required to be evaluated; this evaluation includes an assessment of the unique needs of the child and the identification of services appropriate to meet those needs. N.Y.Pub. Health Law § 2544. Early intervention services are provided by the County, through its Department of Health. Once a child is deemed eligible for early intervention services, New York Law requires that an Individualized Family Service Plan (IFSP) be created by the designated educational agency to offer services to each eligible child. The IFSP includes a statement of the specific early intervention services necessary to meet the unique needs of the child and the child’s family. § 2545. According to New York State Department of Health (N.Y.SDOH) regulations, providers of early intervention services must be certified by New York State. See Malkentzos v. DeBuono, 923 F.Supp. 505 (S.D.N.Y.), vacated on other grounds by 102 F.3d 50, (2d Cir.1996). In 1993, when Westchester County’s Early Intervention program began, New York State did not provide guidelines describing what early intervention services are appropriate for infants with autism. The state had begun considering such guidelines by 1996. See id. Autism and Applied Behavior Analysis According to the Autism Society of America: Autism is a complex developmental disability that typically appears during the first three years of life. The result of a neurological disorder that affects the functioning of the brain, autism and its associated behaviors have been estimated to occur in as many as 1 in 500 individuals. Autism impacts the normal development of the brain in the areas of social interaction and communication skills. Children and adults with autism typically have difficulties in verbal and non-verbal communication, social interactions, and leisure or play activities. The disorder makes it hard for them to communicate with others and relate to the outside world. In some cases, aggressive and/or self-injurious behavior may be present. Persons with autism may exhibit repeated body movements (hand flapping, rocking), unusual re-' sponses to people or attachments to objects and resistance to changes in routines. Individuals may also experience sensitivities in the five senses of sight, hearing, touch, smell, and taste. ’ Autism Society of America Homepage, <http://www.autism-society.org> (visited Dec. 8, 2000) (citation omitted). Autism is a disability within the meaning of the IDEA, thereby entitling children diagnosed with autism and PDD to the special services and education provided by this statute. 20 U.S.C. §§ 1401(1)(1)(A), (B); 1472(1). ABA therapy instructs autistic/PDD children how to play, interact and perform basic skills by teaching small, measurable units of behavior systematically one-on-one with the child and a therapist/instructor. (8/5/00 DiPersio Decl. at Exh. 1 at 4;- Exh. 2 at 3-4.) Plaintiffs’ expert Dr. Richard M. Foxx, Ph.D, in describing the goals of the therapy, has written that it “seeks to construct socially and educationally useful repertoires and decrease or reduce problem behaviors through the use of specific, carefully programmed environmental interventions.” (Id.) The child is taught tasks in small steps through various methods, including reinforcement, shaping, fading, prompting, and maintenance strategies. Each child’s program is unique, and the repertoires are repeated many times. Under this program the child should ultimately move from one-to-one instruction to small and then larger groups of children. (Id.) Plaintiffs claim that, as early as 1985, there was scientific evidence that ABA was successful in treating young children with autism. In that year, a study published by the Princeton Child Development Institute ' (“PCDI”) showed that approximately 67% of children under the age of five who received approximately 27.5 hours per week of 1:1 ABA therapy for approximately two years were able to “function independently” in á regular classroom. (Id. at Exh. 2 at 5.) Plaintiffs argue that these results were confirmed in a study conducted by Dr. 0. Ivar Lovaas in 1987, which demonstrated that approximately 47% of an experimental group of children under four years of age receiving 40 hours per week of 1:1 ABA therapy were able to mainstream into classes for typically developed children and to be considered indistinguishable from their peers. (Id. at Exh. 1 at 4;- Exh. 2 at 5.) Specifically, the Lovaas study demonstrated that 9 of 19 children with autism who, before the age of four, began receiving an average of 2.5 years of intensive home-based behavioral intervention (40 hours per week, year-round, delivered by trained therapists and parents in a 1-to-l format initially), achieved an average IQ gain of 37 points and completely normal functioning in all domains by the time they were 6-7 years old. Comparison groups of similar children with autism who received ten hours a week of behavioral intervention or standard non-behavioral interventions made few significant improvements. (Id. at Exh. 4.) Plaintiffs claim that the Lovaas study and subsequent studies building on Lo-vaas’ findings confirm that the beneficial effects of a large number of hours of ABA therapy per week were accepted, well-known, and accessible by 1993 and through 1996 [the period when plaintiff children were enrolled in the EIP.) (Id. at Exh. 1 at 6-7.) Plaintiffs’ experts insist that ABA therapy is the only therapy autistic/PDD children should receive. One of these experts, Dr. Gina Green, Ph.D., stated that providing any other therapy to EIP participants would be “unethical” and “a waste of taxpayers’ money.” (Granahan Aff. at Exh. 21 at 54, 55, 57 (“Green Dep.”).) Defendants disagree with Plaintiffs’ characterizations. First, they argue that Lovaas’ finding have been criticized. Defendants’ experts testified that Lovaas did not randomly assign his subject in his studies, nor did he compare different treatments, two important NIH guidelines for conducting behavioral studies (Granahan Aff. at Exh. 14 at 118-121) (“Hertzig Dep.”); Exh. 35 at 87-89 (“Gresham Dep.”), that the 1987 Lovaas subjects averaged 34-35 months in age, and were neither academically nor socially measured, and that Lovaas consistently tracked only I.Q. scores in the 1987 study and a 1993 follow-up, not cognitive or social skills. (Gresham Dep at 74-75.) Among the available literature, defendants point to (1) a 1996 article in the Journal of Autism and Developmental Disorders urging caution about the “enthusiastic” claims made for the gains associated with Lovaas therapy, (2) criticisms of Lovaas therapy from the editor of that Journal; (3) a 1995 special bulletin on discreet trail training (a phrase sometimes used to describe a type of applied behavior analysis that can include Lovaas therapy), warning of negative effects from the treatment. (Granahan Aff. at Exh. 47, 51, 42.) Second, defendants deny that ABA is the only appropriate therapy, or that it is the “treatment of choice” for autism. Rather, they assert that ABA is a potentially beneficial therapy out of many beneficial therapies, and that during the relevant period WCDOH staff were aware of a number of possible treatment methods. (See Green Dep. at 34-36; Granahan Aff. at Exh. 1 at 60 (“Kaplan Dep. II”); Exh. 27 at 11 (“Galante Dep. Ill”); Exh. 2 at 33-34, 57-59 (“Graubard Dep. II”); Exh. 20 at 24-25, 43-44 (“Coiro Dep. II”).) At the very least, defendants argue that the beneficial effects of the therapy were by no means clearly established at the time of plaintiffs’ participation in EIP. A number of WCDOH employees testified in depositions that at the time they were uncertain about how much of the therapy to provide, and that the Lovaas study was controversial. (See Kaplan Dep. II at 94; Graubard Dep. II at 33.) Those employees’ research files contained articles on ABA, some that criticized application of the approach to very young children, and some that claimed the Lovaas studies’ sample groups may have been biased toward higher functioning children. (See, e.g., id. at Exh. 30). Defendants also note that in 1993, even plaintiffs’ expert Dr. Foxx said in an article in the American Journal of Mental Retardation that he would “withhold judgement until independent verification has been provided.” (Id. at Exh. 50.) Early Intervention Services Provided to Plaintiffs During the relevant time period, the County did approve and provide some ABA therapy to autistic children enrolled in the EIP. The nature and extent of each Plaintiff child’s program is described below. 1. BD BD, the son of Jean Doe, was born May 9, 1992. In January 1995, when BD was approximately 2 % years old, he had been displaying self-stimulatory and aggressive behavior and had stopped verbalizing for several months. Doe contacted WCDOH to have BD evaluated. BD was diagnosed with autism in late March or April 1995 (Murphy Aff. at Exh. 6 at 14 (“Jean Doe Dep. III”).) Pursuant to his April 10, 1995 IFSP, BD was enrolled in the Putnam Associated Resource Center (“PARC”) Preschool in Mahopac Falls, New York, on or about April 26, 1995, for three days per week. Jean Doe’s understanding at BD’s IFSP meeting was that PARC was the only place that had a place for BD. (Id. at 66.) The parties dispute whether BD’s initial IFSP provided for any center-based or home-based ABA therapy. The IFSP “summary sheet,” under the heading “service type,” lists “special instruction” for three 2.5 hour sessions at PARC, and two forty-five minute sessions at home. (8/5/00 DiPersio Deck at Exh. 5 (“BD IFSP”).) The term “special instruction” is a paperwork designation referring to ABA (See 8/5/00 DiPersio Deck at Exh. 18 at 120 (“Galante Dep.”).) Defendants argue that this notation means that BD’s IFSP authorized three one hundred fifty minute sessions of center-based special instruction (ABA therapy) and two forty-five minute sessions of home-based ABA therapy. Plaintiffs dispute that the IFSP specifically provided for ABA therapy. BD’s home sessions began in April, shortly after the initial IFSP. Doe testified that she noticed an improvement in BD during his two 45 minutes special education sessions while the special education teacher was with him, but that BD’s behavior was continuing to deteriorate at other times. According to Doe, she learned that BD’s special education teacher was familiar with behavior modification therapy and was using those techniques in her sessions with BD. (9/21/00 DiPersio Decl. at Exh. 24 at 81-84 (“Jean Doe Dep. II”).) She stated that the teacher spoke of a “behavioral approach,” not ABA in particular, and that at no time in her discussions with therapists or county officials were the terms “ABA” or “Lovaas therapy” used. (Id. at 84, 88.) Defendants claim that Doe asked that BD be removed from PARC Preschool at the end of the year. Plaintiffs dispute this. Doe testifies that BD significantly improved while working with the special education teacher, and as a result she asked her service coordinator for more special education services during the summer of 1995 that would include behavioral therapy. When her service coordinator asked her how much she wanted, Doe testified that she asked for six hours. She stated that was afraid to ask for too much for fear that they would deny her the services, and that she trusted her service coordinator to help her understand what to do to help her son. (Jean Doe Dep. U. at 102-03.) In the summer of 1995, BD received three two-hour at-home sessions with the special education teacher. (Jean Doe Dep. Ill at 92-93; BD IFSP.) Doe did not privately fund any additional services for BD from April 1995 through August 31, 1995. (Jean Doe Dep. Ill at 113.) BD transitioned out of the EIP .on August 31, 1995, and entered a preschool program in fall 1995. (Id. at 94.) In January 1996, after BD had aged out of the EIP, Doe attended a parent support group, where she learned about ABA therapy. (Id. at 113-117.) 2. DD DD was born on February 27, 1994. DD’s mother, Jane Doe, noticed that DD was losing some of his abilities as he approached his second birthday. He was diagnosed with autism/PDD in. April 1996. (Granahan Aff. at Exh. 6, at 15-16 (“Jane Doe Dep. III”).) Following the recommendation of a neurologist, who told Doe that it was important to get DD to talk, Doe contacted Elyse Kaufman, WCDOH Service Coordinator, and requested speech therapy for DD. (9/21/00 DiPersio Decl. at Exh. 5 at 44 (“Jane Doe Dep.”).) DD’s May 2, 1996 IFSP provided for 45 minutes of speech therapy, occupational therapy and special education two times a week. DD’s parents signed the IFSP. (Id. at 44-45.) A County special education teacher began home-based services May 20, 1996. (Jane Doe Dep. Ill at 29.) Doe testified that at that time she was not aware of ABA therapy, and she did not ask the County to provide the therapy as part of DD’s IFSP. She stated that DD’s special education teacher told Doe about a parent who was doing ABA therapy with her autistic child. Doe contacted this parent, who helped Doe begin ten hours of home-based ABA therapy per week at the end of May 1996. Doe paid for the therapy herself. (Jane Doe Dep. at 45.) The complaint alleges that when Doe told Kaufman of her plans to increase DD’s therapy to 40 hours per week, and requested that the County reimburse her for the cost, Kaufman replied that ten hours of therapy was the maximum allowed and that there was “no way” WCDOH would provide 40 hours for DD. It also alleges that after Doe insisted on payment for the “maximum” ten hours of therapy and threatened legal action, Kaufman thereafter informed Doe that she had been “bumped up” to ten hours. (Compl. at 27). There is no evidence in the record that these conversations took place. However, DD’s IFSP does indicate a change in service allocating ten hours of ABA therapy beginning July 1, 1996. (9/21/00 DiPer-sio Decl. at Exh. 6 at WC 07138.) In July 1996, Janice Graubard, Ms. Kaufman’s supervisor, visited Doe at Doe’ home to ask Doe why she was unhappy with WCDOH. Doe taped the conversation, in which Graubard stated to Doe that “what we have [DD] at right now is, as you know, is what our maximum allowable is.” (8/6/00 DiPersio Decl. at Exh. 6 at 3.) She also stated that “the decision for you to receive ABA was yours.” (Id. at 6.) Grau-bard explained that part of the reason for starting at two or three hours of ABA a week was to make sure the child could tolerate the therapy, because for some children “it could take months before they can tolerate more than the initial amounts.” (Id. at 4.) To this Doe responded, “in this household that is just out and about wrong.” (Id.) She explicitly stated that DD was not stressed, that he was a child with plenty of energy, and pointed out that “regular kids can get absorbed in something for hours.” (Id. at 7-8.) Doe explained that the therapy was working for her son, and that she wanted the County to pay for more hours. (Id. at 8-9.) Doe continued to fund DD’s ABA therapy herself. In August 1996 Doe requested mediation in an attempt to receive reimbursement for the hours of privately provided ABA therapy and to receive additional hours from the County. (Jane Doe Dep. at 76.) DD’s mediation was held on September 6, 1996. Despite defendants’ contention that Doe was offered twenty hours of ABA in this mediation, which she refused, the facts clearly show that she was offered ten hours of ABA and ten hours of “family training.” Doe explained she rejected this offer because she had already been trained by her private therapist and felt this was time that should be spend on DD’s therapy. (Id. at 76, 11, 110-112.) Defendants also contend that after a doctor told Jane Doe that DD had “recovered” from autism in October 1996, Doe discontinued ABA therapy. Doe testified, however, that while she decreased the amount of therapy to between 24-30 hours per week because of DD’s progress, at the time she did not agree with Dr. Cohen’s statement that DD had recovered from autism/PDD. The understanding was that if it DD’s progress slowed or began to reverse the hours would be re-instated immediately. (Id. at 132-134.) Doe made a handwritten notation on DD’s IFSP: This IFSP was granted after my initial request on 10/16/96 was denied. Since my rights were violated I want to state for the record that prior to Dr. Cohen’s evaluation of my son I sought 2-45 min. sessions [occupational therapy]/week / 2-45 min sessions of speech/ week and JO hrs of Applied behavior Analysis (34 hrs of ABA has been privately funded by me). Since Dr. Cohen’s evaluation and advice, I am now seeking a minimum of 3 hrs of speech/ week, 2 hrs of [occupational therapy]/week and 30 hrs of ABA/week (30 hrs also presently funded by me). I am also requesting the E.I. fund my son’s socialization skills through incidental learning. I signed all previous IFSP’s because I did not want my son to be denied any services, albeit inappropriate. (8/5/00 DiPersio Decl. at Exh. 8.) DD transitioned out of the early intervention program in January 1997. In February 1998, the County entered a stipulation with Doe whereby the County agreed to reimburse Doe for the costs of the privately funded ABA therapy she had provided to DD. (Murphy Aff. at Exh. 9 at 129,144-46 (“Jane Doe Dep. II”).) 3. MM The following facts are related in an April 3, 1997 decision on In the Matter of Gary S. Mayerson & Lilli Z. Mayerson, Petitioners, on behalf of MM, Child, following a hearing in front of New York Department of Health Administrative Law Judge G. Liepshutz (attached to 9/21/00 DiPersio Decl. as Exh. 9.) (“Mayerson Decision.”)- Mayerson requested this hearing with the Department of Health on September 5,1996, seeking reimbursement for the costs of services and counsel fees. MM, son of Gary Mayerson, was born on March 22, 1994. After MM’s parents noticed behavior changes, they contacted Sue Ann Galante of WCDOH. The Children’s School for Early Development evaluated MM. He was diagnosed with mild to moderate autism on or about June 5, 1996. Sue Ann Galante became MM’s initial service coordinator. (Id. at 2-3.) MM’s proposed initial IFSP included eight hours per week of one-to-one ABA therapy provided at home (four times per week for two hours), family training for two hours per month, one 1.5 hour session of speech and language therapy, and one forty-five minute session of occupational therapy per week. (Id. at 3.) Judge Liepshuz found that ABA therapy was appropriate intervention for MM, and that the first proposed IFSP was inappropriate, because it did not provide an adequate number of hours of ABA or speech therapy. (Id. at 34.) MM’s parents rejected this proposed IFSP, and began to set up a home-based ABA therapy program for MM. (Id. at 4.) At the end of June 1996, MM’s mother contacted Judith Palazzo to coordinate this program, and on July 5, 1996, a group of ABA instructors began to set up his program. Judge Liepshutz found that this team “was an excellent group of people who are very, very well trained,” and pointed out that home-based ABA instructors do not have to be certified special education teachers for the program to be successful. (Id. at 4-5.) The Judge found that the County “generally did not try to find service providers for a child such as MM before his parents agreed to an IFSP.” He did note, however, that starting on June 24, 2996, Galante started to try to locate ABA therapists for MM’s in-home program, and was unable to locate anyone who was immediately available. (Id. at 5.) Beginning in July, MM received more • than ten hours of ABA therapy per week. By the end of October 1996, he was receiving 25 to 30 hours a week, and by the middle of December, MM was receiving 32 hours per week. His sessions were two hours in length. The ALJ found that 32 to 40 hours per week of ABA was appropriate for MM. (Id. at 5-6.) MM’s second IFSP meeting was held on July 23, 1996. The County offered ten hours of at home ABA instruction per week (five sessions for two hours each), two hours a week of family training, two sessions of 45 minutes of speech therapy per week, two sessions of 45 minutes of occupational therapy, and one session per month of “collaboration” with ABA staff and/or occupational therapist. (Id. at 6-7.) The ALJ found that the home ABA component of the second proposed IFSP was not appropriate, because it did not indicate enough hours, and that the therapy MM continued to receive from his team was appropriate (Id. at 7.) The Mayersons consented to the speech therapy and occupational therapy provisions of the home-based option of the second IFSP, but only to those options, by letter dated August 12, 1996. On September 5, 1996, the County offered a third IFSP to the Mayersons, consisting of ten hours per week of ABA and ten hours per week of family tx-aining, speech and occupational therapy and family counseling. (Id. at 7-8.) The ALJ found these numbers inadequate, and stated that “[i]t was not realistic or appropriate for his family to act as his therapists.” (Id. at 8.) After five months of ABA therapy, the court found that MM had made “considerable and excellent progress,” and “was able to speak and express himself much more effectively.” (Id. at 8.) The court determined that from July 5, 1996 through December 30, 1996, the Mayersons paid a total of $20,287.50 to the ABA providers, and spent approximately $2,000 on other early intervention services and materials. (Id. at 9-10.) At the time, the County paid its certified personnel $90 for each extended home-based visit (any visit of at least 60 minutes). (Id. at 9.) The Mayersons were reimbursed $22,184.59, and the County was ordered to reimburse the Mayersons to the extent that they incurred future expenses while MM was still receiving early intervention services through August 31, 1997. (Id. at 16.) 4. PP June Duessel is the mother of two developmentally disabled children, PP and SS. PP was born on February 2, 1991 and diagnosed with PDD on August 31, 1993. PP was evaluated by a speech/language therapist, developmental pediatrician, psychiatrist and psychologist. The psychologist, WCDOH representative Hannah Carroll, and PP’s mother attended PP’s IFSP meeting. (9/21/00 DiPersio Decl. at Exh. 10 at 41, 52-53, 65-66 (“Duessel Dep.”).) PP’s October 25,1993 IFSP provided for services at the Children’s School for Early Development. His five-day-a-week program provided for five and one-half hours of combined special education, physical therapy and speech therapy. (Granahan Aff. at Exh. 8 at 38, 41, 56, 57, 72 (“Dues-sel Dep. III”).) Duessel signed the IFSP. She acknowledged that she had no problems with the IFSP at the time and that it accurately reflected her priorities for PP. PP started at the Children’s School for Early Development in approximately early November 1993. On March 2, 1994, PP “aged out” of the Westchester County EIP. PP received no ABA therapy in the EIP. (8/5/00 DiPersio Decl. at Exh. 21 at 63-65 (“Coiro Dep.”); Duessel Dep. Ill 56, 87-92.) Duessel stated that she did not learn about ABA therapy until “late 1994 and/or early 1995,” from reading a newspaper article, and that “at around this same time, she also attended a local parents’ support group where she learned that other families were engaged in disputes with the WCDOH regarding the failure of WCDOH to provide appropriate ABA therapy to their children.” She testified that parents at this meeting complained of not being given appropriate, “hours” of ABA therapy. (Murphy Rep.Aff. in Supp. of Defs. Mot. for Summ.J. at Exh. 1 at 415-18.) Duessel also testified that she became aware of the BD/MM action as a result of a hearing held by Magistrate Judge Fox (after class certification in BD was denied) to address non-party confidentiality issues. Duessel had no intention of suing until after that conference. (See id. at 385-87, 39Q-99.) 5. SS SS was born on January 7, 1993. In 1994, he was examined by a developmental pediatrician, who diagnosed SS as having a language disorder rather than PDD. His evaluators recommended SS to EIP as a candidate for speech therapy. (Duessel Dep III at 264; Coiro Dep. II at 17.) The initial February 28, 1995 IFSP recommended thirty to forty-five minutes of speech therapy three times a week depending on how well SS tolerated it. Services began March 6, 1995. SS also enrolled in the PARC Preschool Program. His IFSP provided for five one hundred fifty-minute sessions of center-based ABA therapy per week. A July 17,1995 change shows a decision to provide three 30-45 minute sessions of home-based ABA per week. (Granahan Aff. at Exh. 9 (“SS IFSP”).) SS was eligible to transition to the Lakeland School District in early 1996 but his mother chose to keep him in the West-chester County Early Intervention Unit until fall of that year. (Duessel Dep. Ill at 296-97.) SS’s January 23, 1996 IFSP provided for five 2.5 hour sessions of center-based special instruction, to begin February 6,1996. (SS IFSP.) SS eventually developed more PDD-like symptoms, and was re-evaluated 'by the County. Duessel testified that after April 1996, she asked the County for referrals to agencies that provided ABA. Because she wasn’t happy with the services SS was receiving at PARC, she stated that she asked one oT PP’s therapists to begin working with SS around May or June of 1996. (Duessel Dep. III at 325.) A June 4 change to the IFSP cancelled the PARC instruction and instituted home-based speech and ABA therapy. A July 10 change shows the addition of ABA therapy for three 90-minute sessions per week, effectively from July 8 through August 2, 1996. An August 2 change provided for an increase in ABA therapy to five 90-minute sessions per week. (SS IFSP.) Duessel had SS evaluated by Dr. Miriam Donn, who recommended 50 hours of ABA therapy. (Duessel Dep. Ill at 338.) Duessel admitted that she asked Donn to make this recommendation to increase the chances that SS would receive ABA services when he transitioned out of the EIP program to Lakeland School District. (Id. at 341.) She stated that she gave a copy of this report to SS’s coordinator, Elaine Coiro. According to Duessel, her reason for doing this was because she “tried everything available” to convey to Coiro that “Scott just needed more, more ABA hours.” (Id.) Como’s response to Duessel’s request for more hours was that she had to discuss the matter with her supervisors. Duessel stated that “it was conveyed to me that was the amount that was allowed at the time.” (Id. at 333.) She also stated: Throughout the entire process I felt it was like negotiation and I had to keep pleading to them to keep increasing the hours to maximize, you know, the chances for [SS], so I was willing to accept whatever they were giving me. (Id.) SS transitioned out of the EIP in September 1996. (Id. at 296-97, 333-35.) Defendants point out that, although Duessel claims she was not happy with the amount of ABA services, she never pursued mediation or a hearing. (Id. at 323, 325, 338-41.) 6. EE EE was born on March 9, 1994 and diagnosed with autism on or about March 13, 1996. (Granahan Aff. at Exh. 10 at 10-11, 15-16 (“Weintraub Dep. II”).) Between the time of EE’s diagnosis and Weintraub’s initial conversation with WCDOH service coordinator Sue Ann Ga-lante, Weintraub testified that she had learned about behavioral therapy. When she asked Galante about it, she said Ga-lante responded that “she thought it was a good idea but she didn’t know if she had anyone who could do that.” (Id.34.) Weintraub continued: She also said to me at that time I can tell you right now that we don’t do 40 hours, don’t expect any 40 hours.... She brought it up. I didn’t mention it.... I knew that we needed a lot of hours but when — I know that 40 hours had been mentioned and when she came right out and said we don’t do 40 hours, you are not going to get that, don’t even try, that was odd to me. I remember that pretty vividly. (Id. at 34-35.) During one of several conversations, Galante allegedly told Wein-traub that the behavioral therapy probably wouldn’t be for more than three times a week at forty-five minutes, but that she would try because Weintraub had requested it and Galante was a big believer in home based therapy. (8/5/00 DiPersio Deck at Exh. 26 at 54-55 (“Weintraub Dep.”).) Weintraub also testified that she explained to Galante that she wanted a speech therapist who was also familiar with behavioral therapy. Galante responded that she didn’t know of many but she would try. (Id. at 55.) Weintraub learned that EE would be receiving three 45-minute sessions of ABA therapy. She disapproved of the amount of behavioral therapy, and Galante said that amount was typical. When Wein-traub asked why, Galante told her that was [the WCDOH] policy and that was what they typically did for an autism diagnosis. (Id. at 57.) In response to Galante’s comment that she would not give EE 40 hours, Wein-traub said she was going to have to try to supplement the hours on her own. Ga-lante allegedly encouraged her to do so. (Id. at 56.) EE’s April 4, 1996 IFSP provided for two 30-minute sessions of occupational therapy and three 90-minute sessions of ABA therapy, both per week. She also received two 45-minute sessions of speech and language therapy per month. At the IFSP, Weintraub again expressed “concern and dissatisfaction” with the number of hours that Galante was offering. Wein-traub said Galante then “mentioned to me, I believe, that she would be doubling the amount of time she originally quoted to me” to “1.5 hours three times a week.” (Id. at 76.) Weintraub also objected to the amount of speech therapy, “because that wasn’t much considering the severe problem my child had.” She said Galante told her that was typical and that it was about what everybody got. Galante told her “if I wanted a speech therapist three times a week I could forget about the behavioral therapy three times a week.” (Id. at 77.) Weintraub wanted the speech therapist to have ABA experience, and Galante told her that she would at least try to provide somebody who was open to it, because the speech therapists had their own developmental approaches, an offer Weintraub “was not interested in.” (Id.79.) Weintraub also testified that special education teacher Laura Giacovas later told her that the County had a ten-hour policy, although County staff would not tell her so. (Murphy Reply Aff. at Exh. 2 at 133-36.) Weintraub paid for a private therapist to perform services. She never sought reimbursement or pursued mediation or a hearing with the County. She testified that she thought it would be pointless to pursue a hearing because her service coordinator was so firm that nobody got forty hours and she was afraid that EE might have services taken away. (Weintraub Dep. at 34-35, 118-19, 121-22, 123-24, 288-89). She stated: [Galante] led me to believe that if I didn’t sign the IFSP, that services could be delayed and that I would not get anywhere anyway if I tried to disagree with this. This is not what the County does. She was very clear on that to me. Made clear you could protest a minor point but that something as major as ... forty hours a week — no possibility it would be considered.... Several times she said we don’t do forty hours. Don’t ever request it because nobody gets that. The gist was that they were responsible, she said, for providing [EE] with services but it didn’t have to be the best services that were available. (Weintraub Dep. II at 118.) Weintraub stated that Galante never mentioned mediation to her even though it was clear throughout the process that she disagreed with the County about EE’s IFSP. (Id. at 288.) She testified that she felt “intimidated” and “in over [her] head,” that she didn’t want to “make matters worse” because she was “afraid to lose [the] therapist,” that she was a “desperate parent with a newly diagnosed child with autism,” and that Galante “acted like she was doing me a favor.” (Id. at 123.) Weintraub complained to Patti Barnes about the services multiple times. (Wein-traub Dep. at 82.) She remembers at some point the County -increased services to four and then five days a week for two hours a day. (Id. at 102.) However, she claims that many of the promised hours “never materialized” because Giacovas was sick and took vacation during July or August. (Weintraub Dep. at 106-07.) EE left the EIP in August 1996 when her family moved out of the area. Wein-traub learned about the BD/MM litigation is May 1999 after hearing Mayerson speak at a conference. She decided to sue as a result of an internet query made by May-erson several months later. (Murphy Rep. Aff at Exh. 2 at 353-55.) The County’s alleged “policy” regarding ABA theraphy Plaintiffs argue that in addition to the their own personal situations, there is additional evidence-that County had a policy of strictly limiting the number of hours of ABA allowed any one child. Defendants maintain that this same evidence shows the so-called “policy” was only a guideline that could be increased or decreased depending on the circumstances of the child. EIP administrators and service providers were aware of ABA at the time the EIP began. They had copies of Lovaas study in their files, as well as other information about ABA therapy. (8/5/00 DiPersio Decl. at Exh. 15 at 94-96 (“Kaplan Dep.”); Exh. 16 at 28-30 (“Kaufman Dep.”); Exh. 17 at 33-35 (“Graubard Dep.”).) The County was providing ABA therapy to children in the EIP as early as 1993. (Kaplan Dep. at 62, 92; Graubard Dep. at 65; Galante Dep. at 66.) In March 1994, Kaplan sent a memo to New York State’s Early Intervention Program that read in pertinent part: An increasing number of parents in Westchester and other southern New York counties are following the behavioral model of Dr. O. Ivar Lovaas-(we are continuing to investigate the validity of the claim that 40 hours per week of therapy are required to achieve success).... While we are not advocating Dr. Lovaas’s program we do feel there is merit in the model using intensive behavior modification on a 1:1 basis in the home for autistic type children. We have begun in Westchester providing the intensive 1:1 model using a teaching assistant for approximately $15 per hour for two hours a day. We are therefore requesting the service taxonomy and pricing be expanded to include the above ... model[ ]. You may wish to limit the number of units per day. (9/21/00 DiPersio Decl. at Exh, 21.) Kap-lan testified at her deposition that the decision to provide two hours per day (or ten hours per week) of ABA therapy was made on the basis of the way services were provided under the Family Court procedure, the predecessor to the Early Intervention Program, in part because it was a “new therapy... people didn’t know how to commence services, on what basis,” and WCDOH was familiar with Family Court. (Kaplan Dep. at 93, 103.) Defendants claim that in addition to the Family Court procedures (the EIP predecessor), they relied on articles culled by the WCDOH staff, including research that indicated that children could “shut down” if over-stimulated, and that they sought guidance from several sources, include the NYSDOH and various providers of services for children suffering from autism or PDD. Kaplan and another WCDOH staff member, Merlyn Bovard, allegedly met with Dr. C.C. McMarin at Albert Einstein College of Medicine, who told them that, in New York City, 10 hours of ABA was used as a “benchmark” in treating autistie/PDD children. (Granahan Aff. at Exh. 37 at 35, 36, 41 (“Yang-Lewis Dep. Ill”); Id. at Exh. 29 at 85, 86. (“Strawder Dep.”); Kaplan Dep. at 93-94, 104.) On June 26, 1996, in connection with a request for ABA therapy made by plaintiff Mayerson on behalf of MM, Kaplan authored a memorandum to Westchester County Senior Deputy County Attorney Lee Elliot, in which Kaplan stated: Received phone call from Gary Mayer-son. He was upset with plan. Has read research which supports 40 hours of ABA, and this was not acceptable. He is 4 litigator and will take this as far as he needs to fight for more hours, at least 20 hours. He is aware of other court cases where all the parents have won.” Under “ISSUES/CONCERNS:” (Kap-lan listed “2”) Currently we have been following a policy which limits E.I. ABA services to ten hours a week.” (8/5/00 DiPersio Decl. at Exh. 5.) The memo was copied to Patsy Yang Lewis, Deputy Commissioner., and Veronica Strawder, Program Coordinator. When asked about this memo in her deposition, Kaplan said the county had no such policy, that it was a guideline, and that “policy” was a poorly chosen word. (Kaplan Dep. at 69.) She stated she was not aware some parents had been told that ten hours was a maximum, and that if they were, it was a miscommunication. (Id. at 86.) When asked about the reasons for the guideline, Kaplan claimed that because it was a new therapy, the County did not have any basis from which to begin providing services, so they sought assistance from other quarters. (Id. at 94.) Kaplan also testified that none of her superiors at the DOH directed her to limit ABA therapy. (Id. at 111.) WCDOH staff offer conflicting testimony about whether or not they believed the 10-hour number to be a limitation, and about the circumstances under which the information was communicated to them. Patsy Yang-Lewis, who was at the time Second Deputy Director of Health and who was copied on the Kaplan memo, does not recall seeing the memo at the time it was written. (Murphy Aff. at Exh. 4 at 30 (“Yang-Lewis Dep. II.”).) She testified that sometime prior to June of 1996, perhaps early 1996, Susanne [Kaplan] advised me that she was aware of a new approach, ABA, and that there were no guidelines or any other guidelines from the state as to what levels of service, frequency, intensity were recommended. And what she was proposing, based on Family Court center-based, was where a child came in without services, ... you know, was coming in sort of de novo and that as a starting point that ten hours would be a reasonable starting point as an average. (9/21/00 DiPersio Decl. at Exh. 15 at 35 (“Yang-Lewis Dep.”).) Yang-Lewis testified that the terms “limits” and “policy” in the memo were not an accurate depiction of the WCDOH’s approach to ABA therapy, but rather a poor choice of words. Yang-Lewis Dep. Ill at 53.) She stated that the “policy” memo from Kaplan did not accurately reflect the substance of her conversations with Kaplan on the subject. (Yang-Lewis Dep. at 34.) Shortly before her meeting with Jane Doe, Graubard remembers a meeting where Bovard communicated the ten-hour guideline to the staff. .(Graubard Dep. at 73-78.) When asked whether there was a policy limiting ABA to ten hours, she stated: I apparently in the tape said that it was ten hours based on the law. I knew the law then and I know the law now, and that is a misstatement on my part. If I said that it was a ten-hour policy, yes, there was one. (Id. at 73.) However, Graubard said she understood that the term “policy” was to be used in a much looser way than in the law: We had been trying so hard to try to give guidelines to service coordinators to know what kinds of services were appropriate. Again we were intimidated by the fact that these children were so young, but the service coordinators didn’t need to walk into these meetings cold. They needed some kind of guidance. So we said let’s look at ten hours with the intent of providing what that child could tolerate. (Id. at 73-75.) She believed the tape of her conversation showed she would be willing to increase DD’s hours if needed. (Id. at 73-74.) Galante was aware of discussions surrounding ten hours of service via ABA “at some point in time.” (Galante Dep. at 70.) As to whether she was aware of a policy limiting the number of hours, she stated that, “I wouldn’t use the word policy at this point. I would use the word — well, I don’t know what word I would use, but I would say ten hours was, in my mind, considered to be a starting point.” (Ga-lante Dep. II at 38.) After Bovard made the statement at the staff meeting, Galante recalls that she probably would not have offered more than 10 hours without checking with someone else first. (Galante Dep. at 84-85.) Galante was involved in preparing the Kaplan memo. (Id. at 87-88.) Bovard testified that it was Kaplan who responded to an inquiry at a staff meeting about the number of hours the service providers should offer, by saying “something to the effect that based on what New York City is doing we would like to use ten hours as a beginning point.” (8/5/00 DiPersio Decl. at Exh. 23 at 31-32.) Bovard claims she did not believe the number was a policy, only a guideline. She considered ten hours a “reasonable place to start” given that the program was at its earliest stages. (Granahan Aff. at Exh. 3 at 25-26.) Coiro testified that the 10 hours was a starting point. (Coiro Dep. at 31-32.) When asked if it was a limitation, she stated: I wouldn’t say limitation, but I would say that it was used as a place to start. I keep saying that as a starting place. Was it a limitation? I don’t ever remember it feeling like a limitation, but I definitely remember the sense that it was a good place to start.... (Id. at 39.) Veronica Strawder stated that her understanding “was that it was more or less a guideline and that depending upon the parents’ needs, whatever, that it could possibly be changed. I didn’t see it as the quote/unquote limit.... [W]e have always had a kind of, particularly with the IFSP, fluid kind of process where changes can be made.” (Strawder Dep. at 58.) She believed that to the extent a parent requested more than ten hours, that the county would provide it. (Id. at 76.) She stated: From my perspective, it was a way to get a child into the system... [T]he providers... can assess how the child is doing, whether the child needs more service, whether the child can tolerate more service, and we have a whole system of making changes to increase, decrease or change service based upon how the child is doing.... They can say a kid isn’t tolerating. They can say the kid needs more service. That is how I have always looked at it. (Id. at 75-76.) Defendants also argue that at the time some children in the EIP were receiving at least 20-25 hours of home-based ABA services. However, they fail to provide a scintilla of evidence to support this assertion. First, defendants point to an April 28, 1994 letter from WCDOH staff member Veronica Strawder to Mary Ellen Her-zog, a coordinator at EIP provider Stepping Stones at Union Child Day Care. In the letter, Strawder sets out compensation rates for the provision of behaviorally trained teaching assistants for “children in the CPSE process and those early intervention children whose services were arranged prior to April 18, 1994.” (Grana-han Aff. at Exh. 32.) However, there is no clear indication that the letter refers to home-based, Lovaas style ABA therapy. More importantly, this letter does not identify particular children who were actually receiving more than ten hours of ABA therapy, much less more than twenty. It merely states that, if Stepping Stones is providing services at those levels, the program will be reimbursed. Defendants also cite deposition testimony from WCDOH staff that other children were receiving more than ten hours. (See Kaplan Dep. at 72 (“I would think some less and some more.”); (Galante Dep. Ill at 45, 46; 8/5/00 DiPersio Decl. at Ex 18 at 82-83.) (“One case of 20 to 25 hours ... that particular child had a diagnosis of ‘fragile X.’ ”); Bovard Dep. at 86 (stating that prior to June 1996 there were approximately ten children receiving more than ten hours, but also stating she was unable to recall the range of hours those children received of home-based ABA therapy); 9/21/00 DiPersio Decl. at Exh. 18 at 21-22 (“E. Kaufman Dep.”); Granahan Aff. at Exh. 36 at 52, 53 (“Chun Dep.”).) A plain reading of this testimony reveals, however, that these witnesses merely assume that some children must have received more than ten hours. Even if they claim direct knowledge that children received more hours, they cannot identify any. Defendants offer no additional evidence outside of this testimony that any children received more than ten hours. Finally, defendants point out that WCDOH used other intervention therapies for autistic children that were available during the time period at issue in this suit. (Kaplan Dep. at 62; Galante Dep. Ill at 11; Coiro Dep. at 21) WCDOH staff testified that they were aware of many treatments that were available for autism/PDD other than ABA therapy, some of which claimed success. (Graubard Dep. at 33, 34, 57-59; Galante Dep. Ill at 73-74; Coiro Dep. at 24, 25, 43, 44; Bovard Dep. at 68). The Individual Defendants Kaplan directed the Westchester County EIP. The nature of her involvement is alleged in the facts recited above. Defendants dispute that she sanctioned or advocated any policy limiting the number of hours of'ABA. Kaplan testified that no official from WCDOH ever told her to institute such a policy. (Kaplan Dep. II at 111.) Patsy-Yang Lewis was Second Deputy Director of Health for the relevant period. (Yang-Lewis Dep. II at 16). As the Early Intervention Official, she had overall responsibility for ensuring that the Early Intervention program in Westchester was administered in a way that complied with federal and state laws and regulations. (Id. at 19.) Yang-Lewis testified that, as Deputy Commissioner, she did not participate in the IFSP development; she reviewed the County’s procedures for IFSP’s before they became final. (Id. at 24.) Yang-Lewis was copied on the Kaplan memorandum describing the ten-hour policy. (DiPersio Deck at Exh. 5.) Although she testified in her deposition that she does not recall receiving it at the time it was prepared, Yang-Lewis stated she was aware of the ten hour policy at or around the time it was developed as a result of discussions she had with Kaplan in early 1996. (Yang-Lewis Dep. at 35-36, 42-43.) She claims that her response to Kaplan’s mention of the ten-hour policy was that: [A]s long as it was a guideline and still was individualized to that family, which meant that a child could start with more hours or less hours, but was it a reasonable hovering point, I guess a mode, it was as good a number as any, given the absence of any other recommendation that was available. (Id. at 36). Her understanding, from her discussions with Kaplan, was that to the extent a child’s situation demanded more than ten hours of home-based ABA therapy that the county would provide it. (Id. at 38). She claims to have interpreted the ten hour guideline as “neither a minimum, not a maximum, nor a set average,” but as “a good place to start.” Yang Lewis’ gave her approval to Kaplan’s proposal, and understood that Kaplan would communicate it to the Early Intervention staff. (Id. at 44). Yang-Lewis also testified that Kaplan had heard of a staff member telling a parent that ten hours was the maximum, she would have “expected her to clarify and correct the staffs understanding, not necessarily to tell me.” (Id. at 65.) She agreed that an arbitrary limit would not be in conformance with IDEA. After Yang-Lewis became aware of the MM hearing and spoke with Kaplan about it, she and Kaplan discussed the provision of ABA therapy in the course of their monthly supervisory meetings. These discussions focused generally on whether there was any more research, or whether the state had come out with any guidelines. (Id. at 67-68.) In October 1996, after Mayerson filed his systems complaint against the county, Yang-Lewis did not conduct any independent investigation or inquiry. She testified that “the state was coming in to review our system.... we would not have come to a separate conclusion. Our role at that point was to open our files.” (Id. at 82). She specifically inquired of Kaplan as to whether there was any policy, official or unofficial, and Kaplan assured her that there was not. (Yang-Lewis Dep. at 83-84.) Mark Rapoport was Westchester Commissioner of Health from 1990 to fall of 1996. (Murphy Aff. at Exh. 3 at 7 (“Rapo-port, Dep.”).) As Commissioner he had general oversight responsibilities for the Early Intervention Program. “If there was a difficult problem, they would just let me know about it, so if it became a public issue or there were particularly difficult aspects to it, I would be apprised of it.” (Id. at 16.) Rapoport identified Yang-Lewis and Kaplan as the individuals responsible for implementing the Westchester EIP. He stated that “Kaplan was the most closely linked to the program. She worked full time on it.” (Id. at 18.) While official policies were predetermined at the state level, Kaplan and Yang-Lewis were responsible for implementing those policies. (Id. at 55.) Rapoport remembers one conversation with Kaplan in the hallway in which the two discussed the Lovaas therapy, although he does not recall the date of the conversation. (Id. at 18-19.) He recalls “[t]hat it was an issue that she was struggling with and didn’t know how it was going to actually work out.” (Id. at 19.) Rapoport testified that “there was a request for a very large number of hours of therapy that was pretty new and only shown to be effective in just one , study,” although he does not know the source of the request or whether it was a particular parent who made it. (Id. at 19.) In response to a question as to whether he was aware, during his time as Commissioner, that parents in the County were dissatisfied with the number of hours of therapy that they were provided, Rapoport replied, “I know that there were some objections.... It is hard to remember just what I was aware of, but that the number of hours requested was very high and the number that we wanted to approve or did approve was less than that.” (Id. at 44.) He does not recall when he learned of these objections, or the circumstances under which he learned about them. (Id. at 47.) According to Rapoport, her does not recall ever seeing or hearing of a policy limiting the hours of ABA therapy, nor did he ever become aware that any service coordinator or EIOD in the EIP believed there was a ten hour limit on Lovaas therapy. (Id. at 54.) Harold Adel became acting Westchester County Commissioner of Health in October 1996, (Murphy Aff. at Exh. 2 at 6), and became Commissioner on January 31, 1997. Prior to his appointment as acting Commissioner, he was Deputy Commissioner for Community Health Services, a role in which he held no responsibility for provision of services to children suffering from autism/PDD. (Id. at 7.) Adel testified that, prior to Mayerson’s administrative hearing and system complaint, he was not aware of any parents in the County who were dissatisfied with the number of hours of home-based ABA therapy the County was offering. (Id. at 11-12.) Nor was he aware of any policy of limiting those hours. (Id. at 12.) As Acting Commissioner and as Commissioner, Adel was responsible for ensuring that the Early Intervention Program was operating properly and rendered appropriate service. (Id. at 14.) After he learned of Mayerson’s actions, he satisfied himself that this was the case by speaking with Patsy Yang-Lewis on a number of occasions, during which Yang-Lewis assured him that the County did not have a policy of limiting the number of hours of ABA therapy. (Id. at 18-19.) He became aware of the Kaplan memo in connection with Mayerson’s actions. He sought assurances from Yang-Lewis that the 10-hour number was a guideline and not an official policy. (Id. at 25-26, 33.) Adel stated that he told Yang-Lewis he would disapprove of such a policy. (Id. at 33.) He explained his reason for this: [B]y the time I became Commissioner [in 1997] the role of ABA appeared to be much more solid and substantial, and more was known about it. And, that it was at the time that the memo — that I was told about it was written, there was a substantial question about the validity of the service. And it wasn’t clear to anyone how positive or beneficial or valid it was, or if it was likely to be of benefit. So when I became the Commissioner I assured myself that there had been no absolute limit, and I indicated that services were to be provided as they appeared to be necessary. I reiterated that there was no policy limitation. (Id. at 33-34.) CONCLUSIONS OF LAW 1. Summary Judgment standard Summary judgment is appropriate where there are no genuine issues of material fact and the movant is entitled to judgment as a matter of law. See Fed. R.Civ.P. 56(c); Anderson v. Liberty Lobby, Inc. 477 U.S. 242, 247-50, 106 S.Ct. 2505, 91 L.Ed.2d 202 (1986). A'genuine issue for trial exists if, based on the record as a whole, a reasonable jury could find in favor of the non-movant. See Liberty Lobby, 477 U.S. at 248, 106 S.Ct. 2505, 91 L.Ed.2d 202. In making its determination, the court must resolve all ambiguities and draw all reasonable inferences in favor of the non-movant. See id. at 255, 106 S.Ct. 2505. To defeat summary judgment, the non-moving party must go beyond the pleadings and “must do more than simply show that there is some metaphysical doubt as to the material facts.” Matsushita Elec. Indus. Co. v. Zenith Radio Corp., 475 U.S. 574, 586, 106 S.Ct. 1348, 89 L.Ed.2d 538 (1986). When opposing a motion for summary judgement, it is not sufficient for the non-moving party to present evidence that is conclusory or speculative, with no basis in fact. See Liberty Lobby, 477 U.S. at 249-50, 106 S.Ct. 2505. 2. Statute of limitations The applicable statute of limitations for Section 1983 claims arising in New York is the state’s three year limitation period for personal injury actions. Hili v. Sciarotta, 955 F.Supp. 177, 181 (E.D.N.Y.1997), aff'd, 140 F.3d 210 (2d Cir.1998). Claims arising under Section 504 of the Rehabilitation Act are subject to the same three-year limitations period. Bates v. Long Island Railroad Co., 997 F.2d 1028, 1037 (2d Cir.1993). When either of these claims accrues is determined by federal law, and in the Second Circuit, a cause of action accrues “when the plaintiff knows or has reason to know of the injury that is the basis of the action.” Hili, 955 F.Supp. at 181, quoting Woods v. Candela, 825 F.Supp. 43, 45 (S.D.N.Y.1993). All of plaintiffs’ claims, including those claims for relief that would normally be available under IDEA, are governed by this statute of limitations period. Defendants argue that a four-month statute of limitations, which the Second Circuit has applied to actions for reimbursement under IDEA, should govern. See Adler v. Educ. Dept. of the State of New York, 760 F.2d 454, 456 (2d Cir.1985). However, Adler does not apply where plaintiffs are not appealing the findings of an administrative hearing or subsequent reviews of that hearing. See Heldman v. Sobol, 962 F.2d 148, 158 n. 10 (2d Cir.1992) (noting that the four-month statute of li