Case Name: STATE of Missouri, Respondent, v. David SALAZAR, Appellant
Court: Supreme Court of Missouri
Jurisdiction: Missouri
Decision Date: 2007-10-30
Citations: 236 S.W.3d 644
Docket Number: No. SC 88438
Parties: STATE of Missouri, Respondent, v. David SALAZAR, Appellant.
Judges: LAURA DENVIR STITH, C.J., RUSSELL and WOLFF, JJ., concur;
Reporter: South Western Reporter Third Series
Volume: 236
Pages: 644–650

Head Matter:
STATE of Missouri, Respondent, v. David SALAZAR, Appellant.
No. SC 88438.
Supreme Court of Missouri, En Banc.
Oct. 30, 2007.
Merle K. Turner, Office of Public Defender, St. Joseph, MO, for Appellant.
Laura B. Donaldson, Office of Prosecuting Atty., St. Joseph, MO, for Respondent.

Opinion:
RICHARD B. TEITELMAN, Judge.
David Salazar appeals his conviction for criminal nonsupport under section 568.040. The conviction was premised upon a finding that Salazar failed to provide adequate support "for his child." Section 568.040.1 The term "child" includes "any child legitimated by legal process." Section 568.04,0.2(1). The circuit court held that a default administrative order issued by the division of child support enforcement (DCSE) and docketed with the circuit court constituted legitimization by legal process. The default administrative order does not constitute legitimatization by legal process. The judgment is reversed, and the case is remanded.
FACTS
Salazar married Shannon McClure on June 17, 2000. The couple separated in September 2000. On November 29, 2001, McClure gave birth to A.S. McClure requested that the birth certificate not list a father. Despite McClure's request, the hospital listed Salazar as the father.
The DSCE served Salazar with a "Notice and Finding of Financial Responsibility" alleging that Salazar had a duty to support A.S. Salazar and McClure contacted the DSCE and denied that Salazar was the father. Salazar did not appear at the hearing to determine his financial responsibility for A.S. The DSCE entered a default order declaring Salazar to be A.S.'s father and requiring him to pay child support to McClure. The default order was docketed with the circuit court and became effective but no hearing was held or notice given to Salazar by the circuit court.
Salazar was charged with nonsupport after McClure filed for public assistance. Salazar and McClure were the only witnesses to testify at the criminal trial. Both testified that although they were married when A.S. was born, they had no sexual relations in the preceding fourteen months. McClure maintained that Salazar could not be the father.
The circuit court found Salazar guilty of criminal nonsupport under section 568.040. The court did not find that Salazar was the biological parent of A.S. Instead, the court held that A.S. was Salazar's "child" because the DSCE order constituted legitimization by legal process. The court sentenced Salazar to twenty-eight days in jail. Salazar appeals.
ANALYSIS
The dispositive issue in this case is whether the default administrative order issued by the DCSE constitutes a "legal process" sufficient to support a conviction for criminal nonsupport under section 568.040. The phrase "legal process" is not defined in chapter 568. The primary rule of statutory interpretation is to give effect to legislative intent as reflected in the plain language of the statute. State v. Grubb, 120 S.W.3d 737, 739 (Mo. banc 2003). However, when interpreting a criminal statute such as section 568.040, the rule of lenity requires the statute is to be strictly construed against the state. State v. Hobokin, 768 S.W.2d 76, 77 (Mo. banc 1989). Because a defendant's liberty is at stake, criminal statutes may not be extended by judicial interpretation so as to embrace persons and acts not specifically and unambiguously brought within their terms. State v. Lloyd, 320 Mo. 236, 7 S.W.2d 344, 346 (Mo.1928).
The DSCE order finding that Salazar was financially responsible for A.S. is based on section 210.822.1, which provides that a man is presumed to be the father of a child if the child is born during the man's marriage to the child's mother. Section 454.485.1 authorized the DSCE to issue the order because Salazar was "presumed to be the child's father pursuant to section 210.822.... " The DSCE then docketed the default order with the circuit court pursuant to section 454.490, which provides that:
Upon docketing, the order shall have all the force, effect and attributes of a docketed order or decree of the circuit court, including, but not limited to lien effect and enforceability by supplementary proceedings, contempt of court, execution and garnishment.
The State asserts that the foregoing statutes establish a "legal process" sufficient to sustain Salazar's conviction under section 568.040.
There is no dispute that the DSCE default order is enforceable by the circuit court in supplementary civil proceedings once it was docketed pursuant to section 454.490. However, the statute does not expressly provide that the docketed order can serve as a predicate for a criminal offense. That the order is subject to enforcement by the court does not definitively establish that the docketed default order constitutes "legal process" for purposes of sustaining a criminal conviction under section 568.040.
In State ex rel. Sanders v. Sauer, 183 S.W.3d 238 (Mo. banc 2006), this court addressed the meaning of the phrase "legitimated by legal process." The issue in Sauer was whether a defendant charged with criminal nonsupport was entitled to DNA testing to disprove biological paternity. The defendant was subject to a default judgment of paternity in a case filed in the circuit court by the division of family services seeking a declaration of paternity pursuant to the uniform parentage act, sections 210.817, et seq. Id. at 239. The father signed an entry of appearance, waived service, and filed a stipulation to take blood tests to determine paternity, but then failed to show up for four scheduled blood tests over an eight month period. As a result, a default judgment was entered against him. He chose not to appeal. Id.
Section 210.841 of the UPA provides that a judgment of paternity under the UPA is conclusive as to the existence of the parent-child relationship for all purposes. Relying on this statutory provision, and the fact that the father was awai'e of the court proceedings but affirmatively chose not to take advantage of the opportunities to prove paternity therein provided, the Sauer court held that the child in that case had been "legitimated by legal process" within the meaning of Section 568.040.1(2). Id. at 240. "As such, the state need only prove beyond a reasonable doubt that a judgment was entered establishing that the child was 'legitimated by legal process;' whether the defendant truly is the biological father of the child is irrelevant." Id.
The Sauer case establishes that the State's burden of proof in a criminal nonsupport case is to prove "beyond a reasonable doubt that a judgment was entered establishing that the child was 'legitimated by legal process.' " Salazar's conviction is not based upon a judgment of paternity entered by the circuit court, but is instead based upon docketed, default administrative order. Although section 454.490 gives a docketed administrative order the "force, effect and attributes" of a circuit court order, the statute does not provide that, upon docketing, the order becomes a judgment of the circuit court. State ex rel. Hilburn v. Staeden, 91 S.W.3d 607, 611 (Mo. banc 2002). The docketed order can be enforced by the circuit court, but it cannot become an actual judgment of the circuit court absent judicial review. Id. There was no judicial review of the order finding Salazar financially responsible for A.S. Consequently, the docketed order is not a final judgment of the circuit court. Holding otherwise would impermissibly substitute an executive branch agency determination for the independent power of the circuit court to render final judgments. Id.
The State bore the burden of establishing that Salazar owes a duty of support to his "child," as that term is used in section 568.040. In contrast to Sauer, there is no final judgment and, thus, no "legal process" that judicially determined Salazar's parentage. In the absence of a circuit court judgment, Salazar is not prevented from collaterally attacking the administrative order used to establish his obligation of support that, in turn, serves as the basis for this criminal prosecution. Because the State failed to prove beyond a reasonable doubt that A.S. been legitimated by "legal process," the judgment is reversed, and the case is remanded.
LAURA DENVIR STITH, C.J., RUSSELL and WOLFF, JJ., concur;
MOONEY, Sp.J., concurs in result in separate opinion filed;
LIMBAUGH, J., dissents in separate opinion filed;
PRICE. J., concurs in opinion of LIMBAUGH, J.
BRECKENRIDGE, J., not participating.
. All statutory offenses are to RSMo 2000.
. The offense is a class A misdemeanor.