Opinion ID: 1868222
Heading Depth: 1
Heading Rank: 4

Heading: The Jury Charge Complaint

Text: In its second complaint, the Department contends that the court of appeals erred in holding that the jury charge was fatally defective. The trial court submitted a jury charge with the two statutory grounds alleged against the parents in the disjunctive, and with broad-form jury questions regarding whether the parent-child relationships should be terminated. See Tex.R. Civ. P. 277 (permitting the court to submit questions disjunctively and requiring broad-form questions whenever feasible). The court of appeals held that the charge violated the Dosseys' due process right to have at least ten jurors agree on either or both statutory grounds supporting termination. 56 S.W.3d at 217. The Department argues that the court of appeals' holding contradicts this Court's holding in Texas Department of Human Services v. E.B., 802 S.W.2d 647 (Tex. 1990) (op. on reh'g). In E.B., we approved submission of a single broad-form question incorporating two statutory grounds for termination of parental rights submitted disjunctively. 802 S.W.2d at 649. We rejected the court of appeals' conclusion that the form of the verdict deprived the parent of the necessary jury agreement on the specific grounds supporting termination, holding that the controlling question in this case was whether the parent-child relationship between the mother and each of her two children should be terminated, not what specific ground or grounds under [the statute] the jury relied on to answer affirmatively the questions posed. Id. While the court of appeals in this case states that E.B. does not control the resolution of this case, see 56 S.W.3d at 216 n. 15 (referring to the relevant discussion in E.B. as dictum), we observe that our courts of appeals are now divided on this issue. [8]
The Dosseys never objected to the form of the jury charge at trial. Under our procedural rules, the failure to raise a complaint at trial to a jury charge waives review of that complaint on appeal. See Tex.R.App. P. 33.1; Tex.R. Civ. P. 274. The court of appeals nevertheless reviewed the Dosseys' complaint about the jury charge, relying on its holding in In re J.F.C., which we reversed on other grounds. 56 S.W.3d at 215; see In re J.F.C., 57 S.W.3d 66, 72 (Tex.App.-Waco 2001), rev'd on other grounds, 96 S.W.3d 256 (Tex.2002). In J.F.C., the court of appeals held that Fourteenth Amendment procedural due process concerns require review of core issues in the jury charge in involuntary termination cases even when the parties failed to object to the charge at the trial court. 57 S.W.3d at 72. Without addressing whether appellate courts could review the unpreserved charge error, this Court reversed the court of appeals' judgment in J.F.C. because we concluded that the evidence conclusively established one of the grounds for termination, making the alleged charge error harmless. 96 S.W.3d at 277-79. Unlike the evidence in J.F.C., the evidence in this case does not conclusively establish the predicate grounds for termination. Consequently, this case squarely presents the issue of whether the court of appeals could review the unpreserved charge error. As a rule, we only decide constitutional questions when we cannot resolve issues on nonconstitutional grounds. [9] Accordingly, we first determine whether our law on preservationincluding our rules of procedure and our common-law doctrine of fundamental error permit review of this jury charge complaint.
Our procedural rules state that any complaint to a jury charge is waived unless specifically included in an objection. Tex.R. Civ. P. 274; Tex.R.App. P. 33.1(a)(1). A party must make the trial court aware of the complaint, timely and plainly, and obtain a ruling. State Dep't of Highways & Pub. Transp. v. Payne, 838 S.W.2d 235, 241 (Tex.1992). The complaint in this case is that the disjunctive instruction and broad-form submission of the jury questions violated the Dosseys' alleged constitutional rights to have ten jurors agree on the specific statutory findings underlying the verdict. This Court has recently emphasized that complaints of error in broad-form submission must be preserved by objection at trial. See Harris County v. Smith, 96 S.W.3d 230, 236 (Tex.2002) (A timely objection, plainly informing the court that a specific element of damages should not be included in a broad-form question because there is no evidence to support its submission, therefore preserves the error for appellate review.); Crown Life Ins. Co. v. Casteel, 22 S.W.3d 378, 389 (Tex.2000) (holding it is harmful error when a broad-form question erroneously commingles valid and invalid theories and an objection is timely and specific). In addition, we recently refused to review a complaint based on constitutional error that was not preserved in the trial court. See Texas Dep't of Protective & Regulatory Servs. v. Sherry, 46 S.W.3d 857, 861 (Tex.2001) (constitutional claim on appeal in paternity suit waived by failure to raise complaint at trial) (citing Dreyer v. Greene, 871 S.W.2d 697, 698 (Tex.1993)). Important prudential considerations underscore our rules on preservation. Requiring parties to raise complaints at trial conserves judicial resources by giving trial courts an opportunity to correct an error before an appeal proceeds. In re C.O.S., 988 S.W.2d 760, 765 (Tex.1999). In addition, our preservation rules promote fairness among litigants. A party should not be permitted to waive, consent to, or neglect to complain about an error at trial and then surprise his opponent on appeal by stating his complaint for the first time. Pirtle v. Gregory, 629 S.W.2d 919, 920 (Tex.1982) (per curiam). Moreover, we further the goal of accuracy in judicial decision-making when lower courts have the opportunity to first consider and rule on error. Not only do the parties have the opportunity to develop and refine their arguments, but we have the benefit of other judicial review to focus and further analyze the questions at issue. Accordingly, we follow our procedural rules, which bar review of this complaint, unless a recognized exception exists.
A limited exception to our procedural preservation rules is the fundamental-error doctrine. See Ramsey v. Dunlop, 146 Tex. 196, 205 S.W.2d 979, 982-83 (1947). Historically, we have used the term fundamental error to describe situations in which an appellate court may review error that was neither raised in the trial court nor assigned on appeal. See, e.g., McCauley v. Consolidated Underwriters, 157 Tex. 475, 304 S.W.2d 265, 266 (1957) (per curiam). In light of our strong policy considerations favoring preservation, we have called fundamental error a discredited doctrine. Cox v. Johnson, 638 S.W.2d 867, 868 (Tex.1982) (per curiam). Nevertheless, we have employed fundamental error in rare instances to review certain types of unpreserved or unassigned error. First, we have reviewed unassigned error or error not raised by the parties when the record shows on its face that the court lacked jurisdiction. See McCauley, 304 S.W.2d at 266 (error is fundamental when the record shows a jurisdictional defect). In addition, we have applied the fundamental-error doctrine to review certain types of error in juvenile delinquency cases. See In re C.O.S., 988 S.W.2d at 767 (reviewing a trial court's failure to give mandatory statutory admonishments in a juvenile delinquency proceeding); State v. Santana, 444 S.W.2d 614, 615 (Tex.1969), vacated on other grounds, 397 U.S. 596, 90 S.Ct. 1350, 25 L.Ed.2d 594, on remand, 457 S.W.2d 275 (Tex.1970) (reviewing the constitutionality of the burden of proof instruction in a juvenile delinquency proceeding). Our application of fundamental error in these last two cases rested on the quasi-criminal nature of juvenile delinquency cases. See C.O.S., 988 S.W.2d at 765 (characterizing a juvenile delinquency proceeding as quasi-criminal and analyzing the criminal rules on applying fundamental error); Santana, 444 S.W.2d at 615 (observing that juvenile delinquency proceedings are not ordinary civil adversarial proceedings). Specifically, in C.O.S., we explained that it is unwise and problematic to apply one preservation rule in adult, criminal proceedings and another, stricter rule in juvenile cases. 988 S.W.2d at 767. Texas criminal jurisprudence recognizes that certain types of error can be reviewed for the first time on appeal. [10] Tex.R. Evid. 103(d) (In a criminal case, nothing in these rules precludes taking notice of fundamental errors affecting substantive rights although they were not brought to the attention of the court.); see C.O.S., 988 S.W.2d at 765-67 (describing certain substantive rights that criminal defendants cannot forfeit by the failure to preserve error in the trial court) (citing Marin v. State, 851 S.W.2d 275, 278-79 (Tex.Crim.App.1993) (en banc)). However, this rationale does not support applying the criminal fundamental-error doctrine to parental rights termination cases. We consider juvenile delinquency cases to be quasi-criminal because under the Family Code, the Texas Rules of Evidence applicable to criminal cases and Chapter 38 of the Code of Criminal Procedure govern juvenile delinquency proceedings. Tex. Fam. Code § 51.17(c); In re M.A.F., 966 S.W.2d 448, 450 (Tex.1998). In contrast, our Rules of Evidence applicable to civil cases and our Rules of Civil Procedure govern termination proceedings. Tex. Fam.Code § 104.001 (civil rules of evidence apply to suits affecting the parent-child relationship except as otherwise provided); In re J.F.C., 96 S.W.3d at 262-63 (determining that Texas Rule of Civil Procedure 279 applies to judgment terminating parental rights); E.B., 802 S.W.2d at 648 (analyzing the application of Texas Rule of Civil Procedure 277 to a jury charge complaint in a termination case). Accordingly, because termination cases do not apply criminal procedural or evidentiary rules (that are only applicable to criminal cases), they do not necessarily incorporate the concomitant criminal fundamental-error doctrine. In sum, we have not previously extended the fundamental-error doctrine to this area of the law, and we are not persuaded to do so here. We are aware of no precedent in either our criminal or civil jurisprudence that informs the court of appeals' conclusion that core jury charge issues in termination cases should be reviewed even when not preserved. Further, we cannot see any reasonable, practical, and consistent way of reviewing unpreserved complaints of charge error in termination cases that satisfies our narrow fundamental-error doctrine. We conclude that the fundamental-error doctrine does not permit appellate review of the complaint of unpreserved charge error in this case.
Finally, we review the court of appeals' holding that due process requires appellate review of certain unpreserved complaints in parental rights termination cases. Observing that termination cases implicate fundamental liberties, we begin with the premise that our proceedings to terminate parental rights must comply with the requirements of procedural due process. Santosky v. Kramer, 455 U.S. 745, 753, 102 S.Ct. 1388, 71 L.Ed.2d 599 (1982); In re J.F.C., 96 S.W.3d at 273. In Lassiter v. Department of Social Services, 452 U.S. 18, 101 S.Ct. 2153, 68 L.Ed.2d 640 (1981), the United States Supreme Court established the analytical framework for determining whether the procedures for termination proceedings satisfy due process. The phrase due process, although incapable of precise definition, expresses the requirement of fundamental fairness. Id. at 24, 101 S.Ct. 2153. What fundamental fairness requires in a particular situation is determined by considering any relevant precedents and then ... assessing the several interests that are at stake. Id. at 25, 101 S.Ct. 2153. As discussed above, this Court's precedents establish that our procedural rules bar review of unpreserved error except in very narrow circumstances. We have followed this rule when other constitutional rights are at stake. See, e.g., Callahan & Assocs. v. Orangefield Indep. Sch. Dist., 92 S.W.3d 841, 845 (Tex.2002) (per curiam) (concluding that court of appeals correctly held that litigant waived constitutional claim by not raising it at arbitration); Southwestern Elec. Power Co. v. Grant, 73 S.W.3d 211, 222 (Tex.2002) (refusing to consider constitutional open-courts claim that was not preserved in trial court). Moreover, we have declined to review unpreserved complaints even when a parent's constitutional interests are implicated. See Sherry, 46 S.W.3d at 861. Therefore, we presume that our rules governing preservation of error in civil cases comport with due process. Lassiter, 452 U.S. at 27, 101 S.Ct. 2153; see also Whitworth v. Bynum, 699 S.W.2d 194, 197 (Tex. 1985) (A court begins by presuming a statute's constitutionality, whether the basis of the constitutional attack is due process or equal protection.). Against this presumption, we assess the interests that are affected by our procedures for preservation of error. See Lassiter, 452 U.S. at 27, 101 S.Ct. 2153. In Mathews v. Eldridge, 424 U.S. 319, 335, 96 S.Ct. 893, 47 L.Ed.2d 18 (1976), the United States Supreme Court stated that determining what process is due in a particular proceeding requires consideration of three factors: (1) the private interest affected by the proceeding or official action; (2) the countervailing governmental interest supporting use of the challenged proceeding; and (3) the risk of an erroneous deprivation of that interest due to the procedures used. Once the Eldridge factors are identified and balanced, the court must weigh those factors against the presumption that our preservation law does not permit review of error in civil cases. See Lassiter, 452 U.S. at 27, 101 S.Ct. 2153. The private interest affected by a termination case is a parent's fundamental liberty interest in the care, custody, and control of his or her children. Troxel v. Granville, 530 U.S. 57, 65-66, 120 S.Ct. 2054, 147 L.Ed.2d 49 (2000); see In re J.F.C., 96 S.W.3d at 273. If the Department succeeds in terminating a parent's rights, the State will have `worked a unique kind of deprivation.... A parent's interest in the accuracy and justice of the decision to terminate his or her parental status is ... a commanding one.' Lassiter, 452 U.S. at 27, 101 S.Ct. 2153. Thus, the parent's interests generally will favor reviewing unpreserved error that might result in reversal of a judgment to terminate. The State's foremost interest in suits affecting the parent-child relationship is the best interest of the child. See Tex. Fam.Code § 153.001(a). [U]ntil the State proves parental unfitness, the child and his parents share a vital interest in preventing erroneous termination of their natural relationship. Santosky, 455 U.S. at 760, 102 S.Ct. 1388. Accordingly, the State, because of its parens patriae interest in promoting the welfare of the child also shares the parent's interest in an accurate and just decision. See id. at 766, 102 S.Ct. 1388 (quoting Lassiter, 452 U.S. at 27, 101 S.Ct. 2153). In that regard, the State's interest favors reviewing unpreserved error that bears on the accuracy of the verdict. However, the State also has a strong interest in ensuring that our trial courts have an opportunity to correct errors as a matter of judicial economy. See C.O.S., 988 S.W.2d at 765. In termination cases, judicial economy is not just a policyit is a statutory mandate. To ensure that children's lives are not kept in limbo while judicial processes crawl forward, the Legislature requires that termination proceedings conclude at the trial level within a year and a half from the date of a child's removal from the parent. See Tex. Fam. Code § 263.401 (providing that a trial court must dismiss a case within one year, but permitting one 180-day extension). If a final order is not rendered by that time, the suit must be dismissed. See id. In addition, the Legislature limits the time to collaterally or directly attack the validity of an order terminating parental rights until the sixth month after the date the order is signed. Id. § 161.211. The Legislature further requires appellate courts to accelerate review of these cases and prioritize them over all other civil cases. Id. § 109.002(a). Appellate review of potentially reversible error never presented to a trial court would undermine the Legislature's dual intent to ensure finality in these cases and expedite their resolution. See In re J.F.C., 96 S.W.3d at 304 (Schneider, J., dissenting) (Texas's preservation of error rules promote the child's interest in a final decision and thus placement in a safe and stable home, because they preclude appellate courts from unduly prolonging a decision by appellate review of issues not properly raised in the trial court.). Therefore, the State's interests weigh heavily toward applying our procedural rules to bar review of unpreserved error. Cf. Santosky, 455 U.S. at 767-78, 102 S.Ct. 1388 (determining that an elevated standard of proof in termination proceedings does not create any burdens to the State's fiscal and administrative interests). Finally, we assess the risk that the application of our preservation rules to bar review of unpreserved complaints will cause the parents to be erroneously deprived of their children. In accordance with Lassiter , we review the other state procedures that minimize the risk of erroneous deprivation. The Legislature has enacted a comprehensive statutory scheme to ensure that termination trials result in a correct decision. First, a petition to terminate parental rights must provide full notice to all parties involved and allege the statutory grounds for termination and that termination is in the child's best interest. Tex. Fam.Code §§ 102.008; 161.101. A trial court must appoint counsel for indigent parents opposing termination. Id. § 107.013(a)(1). A court may order involuntary termination only if the court finds that: (1) a parent has committed a predicate act or omission harmful to the child, and (2) termination is in the best interest of the child. Id. § 161.001. The court must ensure that these findings are made by clear and convincing evidencea standard of proof specifically intended, in view of the constitutional interests at stake, to reduce the risk of erroneous terminations. Id. ; see Santosky, 455 U.S. at 764-65, 102 S.Ct. 1388; In re G.M., 596 S.W.2d 846, 847 (Tex.1980). In addition, this Court has determined that any complaint that the evidence is legally or factually insufficient to support the findings necessary for termination is analyzed by a heightened standard of appellate review. See In re J.F.C., 96 S.W.3d at 265-66 (defining the standard of review for legal sufficiency); In re C.H., 89 S.W.3d 17, 25 (Tex.2002) (defining the standard of review for factual sufficiency). In balancing these factors, we conclude that while the parents' and State's interests in obtaining review of unpreserved error may be high, the State's additional competing interest in protecting the best interests of the children through judicial economy, certainty, and finality is at least equally compelling. Because the Legislature and this Court have provided heightened procedural protections in termination cases, we believe there is a low risk that consistently applying our preservation rules will result in erroneous deprivation. We therefore conclude that the Eldridge factors do not rebut the presumption that our preservation rules comport with due process. As a general rule, due process does not mandate that appellate courts review unpreserved complaints of charge error in parental rights termination cases. Our conclusion that due process does not require review of unpreserved complaints does not necessarily end our constitutional inquiry. In Lassiter , the U.S. Supreme Court held that the Constitution does not require the appointment of counsel in every termination proceeding. Lassiter, 452 U.S. at 31, 101 S.Ct. 2153. However, the Supreme Court acknowledged that in a given case, the Eldridge factors could be distributed differently such that due process may require the appointment of counsel. See id. (noting that `due process is not so rigid as to require that the significant factors in informality, flexibility and economy must always be sacrificed') (quoting Gagnon v. Scarpelli, 411 U.S. 778, 788, 93 S.Ct. 1756, 36 L.Ed.2d 656 (1973)); cf. Santosky, 455 U.S. at 757, 102 S.Ct. 1388 (Retrospective case-by-case review cannot preserve fundamental fairness when a class of proceedings is governed by a constitutionally defective evidentiary standard.). Thus, in Lassiter , the Supreme Court conducted a specific factual inquiry into the circumstances of the parent's case to determine whether she was constitutionally entitled to counsel. See 452 U.S. at 33, 101 S.Ct. 2153. Assuming that this fact-specific due process analysis under Lassiter controls the evaluation of our preservation rules, we acknowledge that in a given parental rights termination case, a different calibration of the Eldridge factors could require a court of appeals to review an unpreserved complaint of error to ensure that our procedures comport with due process. In fact, today in In re M.S., we hold that if appointed counsel unjustifiably fails to preserve a sufficiency challenge for appellate review, under some circumstances that failure could amount to a due process violation. In re M.S., 115 S.W.3d 534, 548 (Tex.2003). However, we do not have such concerns in this case. The Dosseys do not claim that Villarrial's failure to preserve charge error constituted ineffective assistance. Indeed, the record demonstrates that Villarrial zealously acted to protect the Dosseys' interests and that he preserved various evidentiary and sufficiency points for appellate review. Furthermore, the charge in this case follows our precedent in E.B., tracks the statutory language of the Family Code, and comports with Texas Rules of Civil Procedure 277 and 292. Under these circumstances, we hold that a court of appeals must not retreat from our error-preservation standards to review unpreserved charge error in parental rights termination cases. The court of appeals therefore erred in reviewing the unpreserved complaint on the jury charge.