2016 IL App (1st) 151189

No. 1-15-1189 

Opinion filed January 26, 2016 

Second Division

IN THE

APPELLATE COURT OF ILLINOIS

FIRST DISTRICT

ELISA SANCHEZ,

Petitioner-Appellant, 

v. 

JUAN JOSE RAMIREZ TORRES, 

Respondent-Appellee. 

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Appeal from the Circuit Court

of Cook County. 

No. 14 D 80533 

 14 OP 76869 

The Honorable 

Lionel Jean-Baptiste, 

Judge, presiding. 

JUSTICE HYMAN delivered the judgment of the court, with opinion. 

Justices Neville and Simon concurred in the judgment and opinion. 

 OPINION

¶ 1 When the petitioner seeks a plenary order of protection and, after an evidentiary hearing, 

the trial court finds abuse, may the court decide instead to issue a civil restraining order, which is

a less severe remedy? No. A civil restraining order carries neither the same rights nor gravitas 

conferred by an order of protection. Under the Illinois Domestic Violence Act of 1986 (Act), 

once the trial court finds respondent has committed an abuse against petitioner, it “shall issue” an 

order of protection. 750 ILCS 60/103(12), 214(a) (West 2012). 
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¶ 2 In this case before us, having found abuse, the trial judge had no authority to unilaterally 

enter a civil restraining order in lieu of the plenary order of protection. Accordingly, we reverse 

the trial court's order and remand for entry of a plenary order of protection. 

¶ 3 BACKGROUND

¶ 4 In May 2014, after a 17-year relationship and four children, Elisa Sanchez told Juan Jose 

Rameriz Torres that she wanted to end their relationship. Soon after, Torres became abusive 

toward Sanchez, and, in November 2014, having been subjected to several incidents of various 

forms of abuse. Sanchez sought and obtained an emergency order of protection. The hearing on a 

permanent and plenary order of protection occupied two days, February 10 and March 26, 2015. 

¶ 5 Sanchez testified she told Torres in early May 2014 that she wanted to leave him. 

Beginning at the end of the month and until early November, Sanchez described four occasions 

on which she said Torres engaged in multiple forms of abuse which included physical, verbal, 

sexual, and emotional abuse. She called the police to her home three times. The trial court 

admitted a number of photographs of bruises and injuries she sustained from Torres. In addition, 

Sanchez testified that Torrez repeatedly ignored a provision in the emergency order of protection 

requiring him to “stay away” from Sanchez “including but not limited to refraining from 

telephone calls, mail, e-mail, faxes, written notes, and communication through third parties.” 

¶ 6 At the second day of the hearing, Sanchez called her sister, Olga Sanchez Onofre, and 

then rested. Torres moved for a directed finding, which was denied. In ruling the trial court said, 

“I think that there is a prima facie case that is made, that there was some reason to be concerned 

by some of the examples that [Sanchez] had pointed out.” 

¶ 7 On the stand, Torres denied almost all Sanchez’s and her sister’s testimony and accused 

Sanchez of hitting him. 
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¶ 8 At the close of the hearing, the trial court framed the issue as “whether or not the dad has 

established a pattern of abusing mom and has committed some abuse, has established a pattern of 

abuse, and whether such abuses, if the Court would define that, constitute cause for fear that 

merits a plenary order of protection, a two-year order of protection that restricts dad’s interaction 

with mom.” The trial court then denied the plenary order of protection, entering a civil 

restraining order in its place “to help manage the relationship between mom and dad.” 

¶ 9 The trial judge marked a pre-printed form designated "Restraining Order" on the upper 

left side of the page. In the first paragraph, on the open space following "Motion for" is written 

"plenary order of protection." The form contains a list of potential findings and another list of

potential orders. All the pre-printed findings were checked: (1) “Allegations of abuse have been 

made against the respondent"; (2) “The Court finds the allegations credible”; (3) “The entry of a 

Plenary Order of Protection may not be necessary at this time”; (4) “The Court deems it 

necessary to enter this order to prevent further abuse”; and (5) “This order is entered in lieu of an 

Illinois Domestic Violence Order of Protection.” 

¶ 10 In the order section of the form, the trial court checked only one the five boxes. The 

checked box states, “The respondent is prohibited from physical abuse, harassment, intimidation 

of a dependent, interference with personal liberty, or stalking (as defined by the Act) the 

petitioner.” Handwritten after "Other:" is a provision that requires Sanchez and Torres to 

communicate through the “Talking Parents” program and Torres to undergo alcohol and family 

counseling assessments. Next, in bold, is this statement: "Failure to comply with this order may 

result in a finding of contempt or the issuance of a Plenary Order of Protection." (The copy of the 

Restraining Order in the record lacks a Circuit Court form identification number.) 

¶ 11 ANALYSIS
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¶ 12 As a preliminary matter, Torres has not filed a response brief. Nevertheless, we will 

decide the merits of the appeal because the factual background is simple and the issues may be 

resolved without the aid of appellee's brief. See First Capitol Mortgage Corp. v. Talandis 

Construction Corp., 63 Ill. 2d 128, 133 (1976). Also, we gratefully acknowledge the amicus 

curiae brief submitted by seven non-profit organizations with particular interest in domestic 

violence issues and law. 

¶ 13 Illinois Domestic Violence Act

¶ 14 Domestic violence happens every day in every community in our state. The victims are

individuals from all backgrounds, ages, and cultures, irrespective of marital status, religion, race, 

ethnicity, education, gender, or sexual identity. The devastating and horrific effects of domestic 

violence on women, children, and families lead to the Act, a law that seeks to provide victims of 

domestic violence with the highest level of protection possible. 

¶ 15 The Act begins with a directive that adopts a liberal construction of the Act "to promote 

its underlying purposes.” 750 ILCS 60/102 (West 2012). These purposes include (i) accepting 

domestic violence as a serious public crime and not a private family matter; (ii) recognizing the 

extent to which domestic violence impairs families, creates intra-family conflict and violence, 

and harms the well-being and safety of children; (iii) acknowledging the legal system’s failures 

to deal with family violence and to permit the perpetrators escape effective prosecution or 

financial liability; (iv) unmasking the criminal nature of domestic violence and the widespread 

failure to appropriately protect and assist victims; (v) preventing further abuse of domestic 

violence victims by promptly entering and diligently enforcing court orders; (vi) reducing the 

perpetrator’s access to the victim; (vii) addressing child custody and economic support issues to 

protect victims and their children from adverse consequences that often befall them; (viii)
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clarifying the role of law enforcement officers to quickly and effectively assist and protect 

victims often at their personal peril; and (ix) enlarging the civil and criminal remedies available

for victims of domestic violence. Id.; see Moore v. Green, 219 Ill. 2d 470, 480-81 (2006). 

¶ 16 Article II of the Act focuses on assisting victims of domestic violence obtain orders of 

protection and streamlining the procedures they must follow. Moore, 219 Ill. 2d at 481. Article

III, “LAW ENFORCEMENT RESPONSIBILITIES,” involves enforcement of orders of 

protection, including the arrest without warrants of persons who violate an order of protection. 

750 ILCS 60/301 (West 2012). The Act provides that law enforcement officers “shall 

immediately use all reasonable means to prevent further abuse” when they believe a person is a 

victim of domestic abuse. This can involve (i) arresting the alleged perpetrator; (ii) seizing 

weapons used by the alleged perpetrator; (iii) accompanying the victim to his or her residence to 

remove personal effects; (iv) offering the victim information summarizing the relief available 

under the Act; (v) providing the victim with a referral to a social service agency; (vi) advising 

the victim on seeking medical attention and preserving evidence against the alleged perpetrator; 

and (vii) transporting the victim to a medical facility or shelter, or to the trial court to obtain an 

emergency order of protection. 750 ILCS 60/304(a) (West 2012); see Moore v. Green, 219 Ill. 2d 

470, 481-82 (2006). The Act also lists duties for officers who investigate domestic violence calls

but do not arrest or initiate criminal proceedings against the alleged perpetrator. Moore, 219 Ill. 

2d at 482; 750 ILCS 60/304(b) (West 2012). 

¶ 17 The three types of orders of protection are emergency, interim, or plenary. 750 ILCS 

60/103(12), 217, 218, 219 (West 2012). Section 220 of the Act sets the duration of emergency 

orders at not less than 14 nor more than 21 days; interim orders for up to 30 days; and plenary 

orders for a fixed period of time, but not to exceed 2 years. 750 ILCS 60/220(a), (b) (West 2012). 
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¶ 18 Trial Court’s Findings of Abuse

¶ 19 In any proceeding to obtain an order of protection, the inquiry centers on whether the 

petitioner has been abused. Best v. Best, 223 Ill. 2d 342, 348 (2006). “Abuse” under section 

103(1) has been broadly defined as involving physical abuse, harassment, interference with 

personal liberty, or willful deprivation. 750 ILCS 60/103(1) (West 2012). Physical abuse

“includes sexual abuse and means any of the following: (i) knowing or reckless use of physical 

force, confinement or restraint; (ii) knowing, repeated and unnecessary sleep deprivation; or (iii) 

knowing or reckless conduct which creates an immediate risk of physical harm." 750 ILCS 

60/103(14) (West 2012). 

¶ 20 The standard of proof for a finding of abuse under the Act is proof by a preponderance of 

the evidence. Best, 223 Ill. 2d at 348. This court may reverse the trial court's factual finding of 

abuse only where that finding was against the manifest weight of the evidence presented. Id. at 

348-49. The Illinois Supreme Court in Calloway v. Kinkelaar, 168 Ill. 2d 312, 323 (1995), 

recognized abuse victims as “a specially protected class of individuals to whom statutorily 

mandated duties are owed.” The Act “expressly contemplates the expansion of civil and criminal 

remedies” for those protected persons. Id. at 324. And it seeks “to encourage active intervention 

on the part of law enforcement officials in cases of intrafamily abuse.” Id.

¶ 21 Before the trial judge was a motion for a plenary order of protection. Sanchez had 

testified consistently about the events that preceded her petition, events which demonstrated 

escalating destructive behavior by Torres toward her. And though the trial court found all of the 

prerequisites for a plenary order had been established, a markedly different type of relief—a civil 

restraining order—was entered. 
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¶ 22 Under section 214(a) of the Act, once the trial court finds that the petitioner has been 

abused, “an order of protection *** shall issue.” 750 ILCS 60/214(a) (West 2012). “[S]hall 

issue” is a mandatory term requiring the trial court to enter an order of protection, which carries 

with it rights for the protected party. Section 214(b) provides for no less than 19 possible 

remedies available to the trial court “in addition to other civil or criminal remedies available to 

petitioner.” 750 ILCS 60/214(b) (West 2012). These remedies include: prohibiting abuse, neglect 

or exploitation; granting exclusive possession of a residence and/or personal property; forbidding 

damaging property ordering the respondent to stay away from the petitioner; requiring 

counseling, payment of support, or payment for shelter services; prohibiting owning a firearm; 

and granting injunctive relief to protect family members. Thus, the trial court has the ability to 

tailor an order of protection to address individual circumstances and needs, improve victim 

safety and hold the perpetrator accountable for his or her actions. 

¶ 23 A violation of an order of protection order can incur criminal penalties, including 

immediate arrest without a warrant (720 ILCS 5/12-3.4 (West 2012); 725 ILCS 5/112A-26 (West 

2012); 750 ILCS 60/301(a) (West 2012)). First time violations of orders of protection are class A 

misdemeanors; and, under certain circumstances, violations of orders of protection are class 4 

felonies. See 720 ILCS 5/12-3.4(d) (West 2012). The Act also authorizes criminal, as well as 

civil, contempt proceedings. 725 ILCS 5/112A-23 (West 2012). Additionally, an order of 

protection carries automatic registration with the Law Enforcement Agencies Data System 

(LEADS), enabling law enforcement officers to verify the existence of an order of protection and 

make an arrest if probable cause exists to believe the order has been violated. And, as the amicus

brief points out, an order of protection affords an accessible pro se process that victims can 
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navigate more easily and affordably. Also, as already discussed, law enforcement officers have 

expanded authority to prevent further abuse. 

¶ 24 In contrast, a civil restraining order involves fewer and less effective remedies. Typically, 

a civil restraining order forbids the perpetrator from engaging in ordinary communication and 

association with specific persons. Section 501(a)(2) of the Illinois Marriage and Dissolution of 

Marriage Act requires a party seeking a temporary restraining order to present an affidavit 

showing a factual basis for relief. 750 ILCS 5/501(a)(2) (West 2012). The party must 

demonstrate that he or she: (1) possesses a certain and clearly ascertainable right that needs 

protection; (2) will suffer irreparable harm without the protection of the injunction; (3) has no 

adequate remedy at law; and (4) is likely to succeed on the merits of the case. In re Marriage of 

Centioli, 335 Ill. App. 3d 650, 654 (2002). And unlike an order of protection, a civil restraining 

order does not create a criminal record for the perpetrator or prohibit the perpetrator from 

lawfully possessing a firearm for purpose of employment. 

¶ 25 A civil restraining order is simply no substitute for an order of protection. We hold that 

the Act mandates the issuance of an order of protection once the victim makes a showing of 

abuse. The trial court’s finding of abuse was not against the manifest weight of the evidence; 

thus, under the Act it should have issued an order of protection. Accordingly, we reverse the trial 

court’s denial of the order of protection and remand for entry of a plenary order of protection. 

¶ 26 Finally, we consider it necessary to comment on a statement the trial court made directly 

to Sanchez at the end of the hearing. The trial court said she had to “respect that [Torres] loves 

you and he still likes you.” For victims of domestic violence this statement may appear callous 

and insensitive to their pain and plight, though we quickly add that we do not believe the trial 

judge meant it to be so. Nevertheless, one questions why Sanchez should “respect that [Torres] 
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loves” her, particularly after he not only abused her, but also refused to accept any responsibility 

and blamed Sanchez for his own devastating actions. 

¶ 27 Domestic violence is always alien to love; it humiliates, isolates, emotionally scars, 

demeans, and dehumanizes the victim, and frequently, children of the victim as well. Sanchez 

suffered abuse over a period of about six months before, at the prodding of the police, she finally 

sought court intervention to protect herself and her dignity. Sanchez asked for an order of 

protection; she proved her entitlement to an order of protection; and the trial court should have 

entered an order of protection. The Illinois Domestic Violence Act deals explicitly and boldly 

with an issue that, sadly, will never be cured, but can be addressed through advocacy, awareness, 

and activism.

¶ 28 We reverse and remand for entry of a two-year plenary order of protection.