IN THE SUPREME COURT OF APPEALS OF WEST VIRGINIA
September 2009 Term
No. 34752
IN RE: EMILY G.
Appeal from the Circuit Court of Wood County
Honorable Jeffrey B. Reed, Judge
Juvenile Neglect and Abuse No. 08-JA-64
VACATED AND REMANDED WITH DIRECTIONS
Submitted: October 7, 2009
Filed: October 29, 2009
Michele Rusen
Michael D. Farnsworth, Jr.
Rusen & Auvil
Parkersburg, West Virginia
Parkersburg, West Virginia Guardian ad Litem for the
Attorney for the Petitioners, Minor Child, Emily G.
Donna and John M.
Carl Lee B.
Parkersburg, West Virginia
Respondent, Pro Se
The Opinion of the Court was delivered PER CURIAM.
SYLLABUS BY THE COURT
1. Although conclusions of law reached by a circuit court are subject
to de novo review, when an action, such as an abuse and neglect case, is tried upon the
facts without a jury, the circuit court shall make a determination based upon the evidence
and shall make findings of fact and conclusions of law as to whether such child is abused
or neglected. These findings shall not be set aside by a reviewing court unless clearly
erroneous. A finding is clearly erroneous when, although there is evidence to support the
finding, the reviewing court on the entire evidence is left with the definite and firm
conviction that a mistake has been committed. However, a reviewing court may not
overturn a finding simply because it would have decided the case differently, and it must
affirm a finding if the circuit court's account of the evidence is plausible in light of the
record viewed in its entirety. Syllabus point 1, In the Interest of Tiffany Marie S., 196
W. Va. 223, 470 S.E.2d 177 (1996).
2. In a child abuse and neglect [case], . . . a court . . . must hold a
hearing under W. Va. Code, 49-6-2, and determine 'whether such child is abused or
neglected.' Such a finding is a prerequisite to further continuation of the case. Syllabus
point 1, in part, State v. T.C., 172 W. Va. 47, 303 S.E.2d 685 (1983).
3. Where it appears from the record that the process established by the
Rules of Procedure for Child Abuse and Neglect Proceedings and related statutes for the
disposition of cases involving children [alleged] to be abused or neglected has been
substantially disregarded or frustrated, the resulting order . . . will be vacated and the case
remanded for compliance with that process and entry of an appropriate . . . order.
Syllabus point 5, in part, In re Edward B., 210 W. Va. 621, 558 S.E.2d 620 (2001).
4. [T]he Department of Health and Human Resources has a duty to . . .
join or participate in proceedings to terminate parental rights . . . . Syllabus point 2, in
part, In re George Glen B., Jr., 207 W. Va. 346, 532 S.E.2d 64 (2000).
5. Each child in an abuse and neglect case is entitled to effective
representation of counsel. Syllabus point 5, in part, In re Jeffrey R.L., 190 W. Va. 24, 435
S.E.2d 162 (1993).
6. Circuit courts should appoint counsel for parents and custodians
required to be named as respondents in abuse and neglect proceedings incident to the filing
of each abuse and neglect petition. Upon the appearance of such persons before the court,
evidence should be promptly taken, by affidavit and otherwise, to ascertain whether the
parties for whom counsel has been appointed are or are not able to pay for counsel. In
those cases in which the evidence rebuts the presumption of inability to pay as to one or
more of the parents or custodians, the appointment of counsel for any such party should
be promptly terminated upon the substitution of other counsel or the knowing, intelligent
waiver of the right to counsel. Counsel appointed in these circumstances are entitled to
compensation as permitted by law. Syllabus point 8, In the Matter of Lindsey C., 196
W. Va. 395, 473 S.E.2d 110 (1995) (emphasis in original).
Per Curiam:
The petitioners herein, Donna and John M.
(See footnote 1)
(hereinafter Donna and John),
appeal from an order entered September 23, 2008, by the Circuit Court of Wood County.
By that order, the circuit court denied the petition filed by Donna and John alleging that
their granddaughter, the minor child at issue herein, Emily G. (hereinafter Emily), is an
abused and/or neglected child.
(See footnote 2)
On appeal to this Court, Donna and John contend that
the circuit court erred by refusing to adjudicate Emily as an abused and/or neglected child
and that such ruling precludes the establishment of Emily's permanent placement. Upon
a review of the parties' arguments, the record submitted for appellate consideration, and
the pertinent authorities, we vacate the decision of the Wood County Circuit Court
dismissing the abuse and/or neglect petition filed by Donna and John and reinstate said
petition. Furthermore, we remand this case to permit the circuit court to hold a hearing
on Donna and John's petition alleging that their granddaughter, Emily, is an abused and/or
neglected child. Finally, we direct the circuit court to grant intervenor status to the Wood
County Department of Health and Human Resources (hereinafter DHHR) so that it may
participate in the abuse and neglect proceedings on remand and to appoint counsel to
represent Emily and her biological parents, Sylvia and Carl, during the remand
proceedings.
I.
FACTUAL AND PROCEDURAL HISTORY
The facts underlying the instant proceeding are largely undisputed by the
parties. Emily, the subject child of the case sub judice, was born on August 14, 2006.
Sylvia, who is the daughter of Donna and the stepdaughter of John, is Emily's mother, and
Carl is Emily's father.
(See footnote 3)
At the time of Emily's birth, Sylvia was seventeen years old;
Sylvia was residing with Donna and John; and she and Carl were not married to each
other. When Emily was approximately two months old, Sylvia assigned temporary
guardianship of Emily to Donna and John on October 25, 2006. Thereafter, Sylvia and
Carl, by petition dated November 14, 2006, jointly attempted to regain Emily's custody.
During the next year and one-half, Sylvia and Carl continued their
tumultuous relationship.
(See footnote 4)
Sylvia and Carl were briefly married to each other,
(See footnote 5)
and
numerous domestic violence petitions were filed by each of them against the other before,
during, and after their marriage.
(See footnote 6)
The allegations of domestic violence range from
physical attacks involving hitting, kicking, cutting, and choking, to non-physical attacks
involving death threats, telephone harassment, and being held against the petitioner's will.
These petitions alternately culminated in six-month protective orders or were dismissed
at the petitioner's request.
Throughout this time, Emily's guardianship proceedings continued through
the Wood County Family Court. On January 29, 2007, the family court upheld the
temporary guardianship agreement by which Sylvia had assigned temporary custody of
Emily to Donna and John and awarded Emily's temporary custody to Donna and John in
accordance therewith. Carl continued to pursue custodial rights to Emily, and filed
petitions for modification of Emily's custody on February 2, 2007, which petition the
family court denied. Thereafter, on March 5, 2007, Carl filed another petition for
modification of Emily's custody; additional proceedings were had on this petition in the
family court. Following a hearing held on October 2, 2007, the family court granted Carl
(See footnote 7)
supervised visitation with Emily for one hour every other week, which visitations were
later increased to one hour every week following the family court's February 4, 2008,
hearing.
Subsequently, on July 8, 2008, the family court entered a final order
awarding Emily's sole care, custody and control to Donna and John, as the child's
primary residential custodians . . . until further Order of the Court. The court
additionally awarded supervised visitation to Sylvia and Carl for one hour every week, and
permitted Carl's parents, Emily's paternal grandparents, to participate in these visits one
time per month. Finally, the court adopted the recommendations of Emily's Guardian ad
Litem (hereinafter Guardian), who suggested the family court impose various
requirements on Sylvia and Carl with a view towards remedying their tendencies to
commit domestic violence and providing a safe, nurturing, and violence-free environment
for Emily.
(See footnote 8)
Following the entry of the family court's order, Donna and John filed the
instant abuse and/or neglect petition
(See footnote 9)
in the Circuit Court of Wood County on September
8, 2008,
(See footnote 10)
ostensibly in accordance with the Guardian ad Litem's recommendation that
such a petition be filed if Sylvia and Carl cannot maintain an amicable, violence-free
relationship with one another.
(See footnote 11)
In their petition, Donna and John alleged Emily to be an
abused and/or neglected child as a result of the ongoing domestic violence between her
mother, Sylvia, and her father, Carl; sought to terminate the parental rights of Emily's
parents, Sylvia and Carl; and indicated their willingness to provide permanence and
stability to Emily by adopting her. By order entered September 23, 2008, the circuit court
denied Donna and John's petition finding that it does not allege sufficient facts to come
within the statutory definition of abuse and neglect. The circuit court explained further
that there are no allegations that any of the acts of domestic violence occurred in the
presence of the child. From this adverse ruling, Donna and John appeal to this Court.
II.
STANDARD OF REVIEW
On appeal to this Court, Donna and John seek review of the circuit court's
order dismissing their abuse and/or neglect petition. In Syllabus point 1 of In the Interest
of Tiffany Marie S., 196 W. Va. 223, 470 S.E.2d 177 (1996), we explained the method by
which we review circuit court rulings in abuse and neglect proceedings:
Although conclusions of law reached by a circuit court
are subject to de novo review, when an action, such as an
abuse and neglect case, is tried upon the facts without a jury,
the circuit court shall make a determination based upon the
evidence and shall make findings of fact and conclusions of
law as to whether such child is abused or neglected. These
findings shall not be set aside by a reviewing court unless
clearly erroneous. A finding is clearly erroneous when,
although there is evidence to support the finding, the
reviewing court on the entire evidence is left with the definite
and firm conviction that a mistake has been committed.
However, a reviewing court may not overturn a finding simply
because it would have decided the case differently, and it must
affirm a finding if the circuit court's account of the evidence
is plausible in light of the record viewed in its entirety. Accord In re Elizabeth Jo H., 192 W. Va. 656, 659, 453 S.E.2d 639, 642 (1994) (per
curiam) (commenting, in abuse and neglect case, that [a]ppellate oversight is . . .
deferential and applying clearly erroneous standard of review). We will consider the
parties' arguments in light of this standard.
III.
DISCUSSION
During the proceedings underlying the instant appeal, the circuit court
dismissed the petition filed by Donna and John alleging that their granddaughter, Emily,
was an abused and/or neglected child. The circuit court rendered this ruling, without
holding a hearing on said petition, based upon its belief that the Petition does not allege
sufficient facts to come within the statutory definition of abuse and neglect. For example,
there are no allegations that any of the acts of domestic violence occurred in the presence
of the child.
On appeal to this Court, Donna and John complain that the circuit court erred
by dismissing their petition and refusing to consider the evidence they presented in support
of their allegations that Emily is an abused and/or neglected child. In this regard, Donna
and John argue that the ongoing history of domestic violence between Sylvia and Carl
supports a finding that Emily is an abused and/or neglected child. They contend that since
the family court's final order, Sylvia and Carl have continued their tumultuous and violent
relationship and that, other than attending supervised visitation with Emily, they have not
satisfied any of the other conditions recommended by the Guardian ad Litem and adopted
by the family court. In support of their allegations of abuse and/or neglect, Donna and
John rely upon similar cases decided by this Court in which a finding of abuse and/or
neglect was premised not upon direct violence towards the subject child but instead upon
domestic violence in the home in which the child lived. See In re Frances J.A.S., 213
W. Va. 636, 584 S.E.2d 492 (2003) (per curiam); In re Brandon Lee B., 211 W. Va. 587,
567 S.E.2d 597 (2001) (per curiam). Donna and John further express concern that Emily's
best interests require that she have stability and permanency in her life and that until the
parental rights of Sylvia and Carl have been terminated, no such permanency can be
achieved.
The Guardian ad Litem responds that although he was Emily's Guardian in
the underlying custody proceedings, he was not a party to Donna and John's petition
alleging Emily to be an abused and/or neglect child
(See footnote 12)
and does not have any information
from which to conclude that Emily has been abused and/or neglected by Sylvia and Carl's
failure to comply with his recommendations set forth in the family court's final order.
While the Guardian has reservations about the ability of Emily's parents to care for her
given their mental capacity, young age, and history of violence towards each other, he
nevertheless requests that Emily be permitted to maintain the marginal relationship she
currently has with her parents until such time as visitation with them becomes harmful to
her. Moreover, the Guardian remains hopeful that Sylvia and Carl will be able to establish
a more meaningful relationship with Emily in the future and that, for this reason, their
legal rights to Emily should remain in place.
Finally, Carl responds to Donna and John's arguments by stating that he has
complied with the Guardian's recommendations by attending supervised visitation with
Emily and completing a parent education class. As he did repeatedly during the previous
guardianship proceedings, Carl reiterates in the case sub judice his desire to be awarded
custody of Emily and represents that he is currently in a stable relationship and lives in a
peaceful household free from domestic violence.
Having reviewed the parties' arguments and the governing law, we agree
with Donna and John's assertions that the circuit court committed error in this case.
However, we reach this conclusion not upon the credibility or substantiality of the
allegations of abuse and/or neglect proffered by Donna and John, but rather based upon
the statutory law that governs abuse and neglect petitions. Pursuant to this authority, the
circuit court erred by dismissing Donna and John's abuse and/or neglect petition without
holding a hearing thereon.
W. Va. Code § 49-6-1 (2005) (Supp. 2009) permits a petition to be filed
when a child is believed to be abused and/or neglected, dictates the procedure for filing
an abuse and neglect petition, and details the court's duties once such a petition has been
filed:
(a) If the department or a reputable person believes that
a child is neglected or abused, the department or the person
may present a petition setting forth the facts to the circuit court
in the county in which the child resides, or if the petition is
being brought by the Department, in the county in which the
custodial respondent or other named party abuser resides, or
in which the abuse or neglect occurred, or to the judge of the
court in vacation. Under no circumstance may a party file a
petition in more than one county based on the same set of
facts. The petition shall be verified by the oath of some
credible person having knowledge of the facts. The petition
shall allege specific conduct including time and place, how
such conduct comes within the statutory definition of neglect
or abuse with references thereto, any supportive services
provided by the department to remedy the alleged
circumstances and the relief sought. Upon filing of the petition,
the court shall set a time and place for a hearing and shall
appoint counsel for the child. When there is an order for
temporary custody pursuant to section three [§ 49-6-3] of this
article, the hearing shall be held within thirty days of the
order, unless a continuance for a reasonable time is granted to
a date certain, for good cause shown.
(b) The petition and notice of the hearing shall be
served upon both parents and any other custodian, giving to
the parents or custodian at least ten days' notice. Notice shall
also be given to the department, any foster or preadoptive
parent, and any relative providing care for the child. . . .
(c) At the time of the institution of any proceeding under
this article, the department shall provide supportive services in
an effort to remedy circumstances detrimental to a child.
(Emphasis added). Pursuant to this statutory language, once a petition has been filed
alleging a child to be abused and/or neglected, the court in which such petition is filed is
required to set a time and place for a hearing.
(See footnote 13)
W. Va. Code § 49-6-1(a). This
language is mandatory and absolutely requires a hearing to be held on said petition: In
a child abuse and neglect [case], . . . a court . . . must hold a hearing under W. Va. Code,
49-6-2, and determine 'whether such child is abused or neglected.' Such a finding is a
prerequisite to further continuation of the case. Syl. pt. 1, in part, State v. T.C., 172
W. Va. 47, 303 S.E.2d 685 (1983). Here, the circuit court did not hold a hearing on the
petition alleging Emily to be an abused and/or neglected child, but rather dismissed the
petition without a hearing. Dismissal of the petition without a hearing is a direct violation
of the statutory mandate to hold a hearing on abuse and/or neglect petitions. See W. Va.
Code § 49-6-1(a).
When the requisite procedure is not followed in an abuse and neglect case,
this Court has held that the order resulting from such deviation will be vacated and the
case will be remanded for entry of an order that satisfies the procedural requirements:
Where it appears from the record that the process
established by the Rules of Procedure for Child Abuse and
Neglect Proceedings and related statutes for the disposition of
cases involving children [alleged] to be abused or neglected
has been substantially disregarded or frustrated, the resulting
order . . . will be vacated and the case remanded for
compliance with that process and entry of an appropriate . . .
order.
Syl. pt. 5, in part, In re Edward B., 210 W. Va. 621, 558 S.E.2d 620 (2001). Because
W. Va. Code § 49-6-1(a) requires a circuit court presented with an abuse and neglect
petition to hold a hearing thereon, and because the circuit court did not hold a hearing on
the petition filed by Donna and John alleging Emily to be an abused and/or neglected
child, we vacate the order entered September 23, 2008, by the Wood County Circuit Court
dismissing the petition and reinstate said petition. Furthermore, we remand this case to
the circuit court so that a hearing may be had on Donna and John's petition.
On remand, the circuit court additionally should ensure that the other
requirements of W. Va. Code § 49-6-1 have been complied with, particularly the statutory
directives requiring participation by the Department of Health and Human Resources, see
W. Va. Code § 49-6-1(b), and the appointment of counsel for the subject child, see W. Va.
Code § 49-6-1(a). Moreover, on remand, the circuit court also is directed to comply with
the requirements of W. Va. Code § 49-6-2(a) (2006) (Supp. 2009), which provides, in
pertinent part, that counsel should be appointed to represent the minor child's biological
parents during the abuse and neglect proceedings. From the record before this Court, it
does not appear that Donna and John served their abuse and neglect petition on the Wood
County Department of Health and Human Resources or that the Department otherwise
received notice of their petition.
(See footnote 14)
Insofar as [n]otice shall . . . be given to the
department, W. Va. Code § 49-6-1(b), the Department should have been made a party to
the circuit court proceedings below. Furthermore, we specifically have recognized that
the Department of Health and Human Resources has a duty to . . . join or participate in
proceedings to terminate parental rights . . . . Syl. pt. 2, in part, In re George Glen B., Jr.,
207 W. Va. 346, 532 S.E.2d 64 (2000). Accordingly, on remand, we direct the circuit
court to grant intervenor status to the Wood County Department of Health and Human
Resources to permit it to participate in the abuse and neglect proceedings concerning
Emily. Inclusion of the Department also will enable it to fulfill its statutory duty to
provide supportive services in an effort to remedy circumstances detrimental to [the]
child. W. Va. Code § 49-6-1(c).
Moreover, it has come to this Court's attention that no counsel has been
appointed for Emily in the underlying abuse and neglect case. The Guardian ad Litem
appointed for Emily in the preceding guardianship proceeding has appeared on her behalf
in the case sub judice, but he has not been formally appointed to represent her in the
instant proceeding. Pursuant to W. Va. Code § 49-6-1(a), [u]pon filing of the petition
[alleging a child to be abused and/or neglected], the court . . . shall appoint counsel for the
child. Likewise, we have held that [e]ach child in an abuse and neglect case is entitled
to effective representation of counsel. Syl. pt. 5, in part, In re Jeffrey R.L., 190 W. Va.
24, 435 S.E.2d 162 (1993). Despite this requirement that counsel be appointed for the
child subject to an abuse and neglect petition, though, no counsel has yet been appointed
for Emily in this case.
(See footnote 15)
Therefore, on remand, the circuit court is directed to appoint
counsel to represent Emily in her abuse and neglect proceedings.
Finally, no counsel has been appointed to represent Emily's biological
parents, Sylvia and Carl, in the underlying abuse and neglect proceedings. W. Va. Code
§ 49-6-2(a) specifically requires, in pertinent part, that,
[i]n any proceeding under the provisions of this article,
the child, his or her parents and his or her legally established
custodian or other persons standing in loco parentis to him or
her shall have the right to be represented by counsel at every
stage of the proceedings and shall be informed by the court of
their right to be so represented and that if they cannot pay for
the services of counsel, that counsel will be appointed. . . .
Provided, That such representation shall only continue after
the first appearance if the parent or other persons standing in
loco parentis cannot pay for the services of counsel. . . .
In recognition of this statutory requirement, we similarly have held that
[c]ircuit courts should appoint counsel for parents and
custodians required to be named as respondents in abuse and
neglect proceedings incident to the filing of each abuse and
neglect petition. Upon the appearance of such persons before
the court, evidence should be promptly taken, by affidavit and
otherwise, to ascertain whether the parties for whom counsel
has been appointed are or are not able to pay for counsel. In
those cases in which the evidence rebuts the presumption of
inability to pay as to one or more of the parents or custodians,
the appointment of counsel for any such party should be
promptly terminated upon the substitution of other counsel or
the knowing, intelligent waiver of the right to counsel.
Counsel appointed in these circumstances are entitled to
compensation as permitted by law.
Syl. pt. 8, In the Matter of Lindsey C., 196 W. Va. 395, 473 S.E.2d 110 (1995) (emphasis
in original). See also Syl. pt. 1, State ex rel. LeMaster v. Oakley, 157 W. Va. 590, 203
S.E.2d 140 (1974) (In child neglect proceedings which may result in the termination of
parental rights to the custody of natural children, indigent parents are entitled to the
assistance of counsel because of the requirements of the Due Process clauses of the West
Virginia and United States Constitutions.). Even though Sylvia and Carl are entitled to
be represented by counsel during Emily's abuse and neglect proceedings, no counsel has
been appointed for them. Thus, during the remand proceedings, the circuit court is
directed to appoint counsel to represent Sylvia and Carl in accordance with W. Va. Code
§ 49-6-2(a).
IV.
CONCLUSION
For the foregoing reasons, the September 23, 2008, order of the Circuit Court
of Wood County dismissing the abuse and/or neglect petition filed by Donna and John is
hereby vacated and the subject petition is reinstated. Furthermore, this case is remanded
to the Wood County Circuit Court so that a hearing may be held on the aforementioned
abuse and/or neglect petition. Finally, the Circuit Court of Wood County is directed to
grant intervenor status to the Wood County Department of Health and Human Resources
so that it may participate in the abuse and neglect proceedings on remand and to appoint
counsel to represent Emily and her biological parents, Sylvia and Carl, during the remand
proceedings.