Opinion ID: 1313286
Heading Depth: 1
Heading Rank: 5

Heading: Jurisdiction of Referee to Dismiss.

Text: Courts possess only those jurisdictional powers conferred by our constitution or legislature. State v. Ryan, 351 N.W.2d 186, 187 (Iowa 1984); 20 Am.Jur.2d Courts § 58, at 375 (1995). This means a court must not only be empowered by the constitution or legislation to adjudicate the type of case before it, but must also be authorized to make the particular decision it is asked to render. Any unauthorized action taken by a court is void. Wederath v. Brant, 287 N.W.2d 591, 595 (Iowa 1980). In interpreting the statutes governing the duties of the referee, we strive to give effect to legislative intent. Krull v. Thermogas Co., 522 N.W.2d 607, 612 (Iowa 1994). We do this by considering what the legislature said, not by what it should or might have said. Id. Statutory authority must be expressly provided or exist by plain implication. See Boomhower v. Cerro Gordo County Bd. of Adjustment, 163 N.W.2d 75, 76 (Iowa 1968) (no right to appeal unless provided by statute, expressly or by plain implication); 20 Am.Jur.2d Courts § 43, at 363. We recognize some inherent authority of a court within the scope of its jurisdiction apart from its statutory authority. 20 Am. Jur.2d Courts § 43, at 363 (1995). However, it is not enough that power sought to be implied from a statute be convenient or desirable. Mississippi Valley Sav. & Loan Ass'n v. L.A.D., Inc., 316 N.W.2d 673, 675 (Iowa 1982). It must be necessary and essential to carry out the purposes of the statute. Id.; 20 Am.Jur.2d Courts § 43, at 363 (implied authority necessary to administer justice efficiently, fairly, and economically).
Originally, jurisdiction over proceedings for involuntary hospitalization of persons with mental illness rested with a county commission of insanity. Iowa Code §§ 1458, 1459 (1860). Under this original legislative scheme, there were two ways a district court could acquire jurisdiction. The district court was authorized to hear appeals by patients from an adjudication of insanity by the commission. It was also authorized to hear habeas corpus petitions filed by confined patients. Under our present statutory scheme for hospitalization of persons with mental illness, original jurisdiction exists with the district court. Id. § 229.6 (1997). The duties and responsibilities of the district court following the filing of a petition for involuntary hospitalization are enumerated in chapter 229. The chief judge of each judicial district, however, is authorized to appoint judicial hospitalization referees to discharge all of the duties imposed upon the court by sections 229.7 to 229.22.... Id. § 229.21(2). A patient found to be seriously mentally impaired by a referee, as with the former commission process, has a right to appeal to a judge of the district court. Id. § 229.21(3). Similarly, our present scheme retained the habeas corpus proceeding. Id. § 229.37. This entitles a patient to a hearing before a district judge to challenge the question of serious mental impairment during the course of confinement. Id. Moreover, a finding of serious mental impairment at a habeas corpus hearing does not preclude a second hearing when the patient again alleges he or she is no longer seriously mentally impaired. Id. Our current system also provides for the appointment of a commission to inquire into complaints filed by parties who allege they are not seriously mentally impaired and are unjustly deprived of their liberty. See id. §§ 229.31-.36. The findings of the commission are then submitted to the district court to consider whether the patient should continue to be detained or be discharged. Id. § 229.33.
The duties delegated to a referee begin once a petition for involuntary hospitalization is filed. The referee is first empowered to review the petition and set it for hearing. Iowa Code § 229.7; Iowa Sup.Ct. R. for Involuntary Hospitalization 3. Once a hearing is set in response to a petition for involuntary hospitalization, the patient is required to be examined by a physician and a written medical report is required to be filed with the court. Iowa Code §§ 229.8(3)(b), 229.10. The opinions expressed in the medical report permit the court to either proceed with the hearing or dismiss the proceeding without a hearing. Id. § 229.10(3), (4). A patient found seriously mentally impaired at the conclusion of the hospitalization hearing is required to be committed to the care of a hospital or other facility. Id. § 229.13. The commitment is indeterminate. Id. Periodic review of the commitment, however, is mandated and must be initiated by the submission of additional medical reports within specific periods of time. Id. §§ 229.14, .15. Within fifteen days after the initial admission, the chief medical officer of the hospital or facility where the patient is committed is required to submit the first post-hearing written report to the court containing a recommendation for disposition. Id. § 229.13 The report must include one of four alternative findings. Id. § 229.14; see Iowa Sup.Ct. R. for Involuntary Hospitalization 25. These findings range from no further treatment to continued hospitalization. Iowa Code § 229.14. In each instance, the court is required to enter an order which may terminate the proceeding or approve the necessary treatment. Id. At various periods of time following the entry of an order for continued hospitalization or treatment, additional medical reports are required to be submitted and reviewed by the court. Id. § 229.15. These reports generally explain the status of the condition and treatment, and the court is required to order the appropriate action to be taken in response to the report. Id. Furthermore, if the chief medical officer believes during the period of hospitalization or treatment that a patient no longer requires care or treatment for a serious mental impairment, the patient may be tentatively discharged. Id. § 229.16. The chief medical officer then reports the discharge to the court, who is required to issue an order confirming the discharge and dismissing the proceeding. Id. Our legislature has designated several events which may trigger a hearing following the initial hospitalization order. Generally, this occurs when a patient is transferred to a more restricted setting. See id. §§ 229.14(3), 229.15(2); see also Iowa Sup.Ct. R. for Involuntary Hospitalization 32. Furthermore, a patient may request a hearing in response to a medical decision to transfer the patient to a different hospital. Iowa Code § 229.15(4). However, other than the habeas corpus process under section 229.37 and the commission of inquiry provisions under sections 229.31.36, there is no specific procedure which enables a patient to initiate a review of the commitment or request to be released. Instead, the physician charged with the care and treatment of the patient triggers the review procedure by submitting the required periodic medical report. See id. § 229.15. This medical initiated review process is consistent with the legislative intent of chapter 229. Our legislature recognizes mental illness as a continuing condition which is subject to wide and unpredictable changes in condition and fluctuations in reoccurrence and remission.... Id. § 229.1A. To accommodate the complex nature of this medical condition, the hospitalization procedures established in chapter 229 recognize that the judgment of medical experts is important to help guide the process. See Humphrey v. Cady, 405 U.S. 504, 508, 92 S.Ct. 1048, 1052, 31 L.Ed.2d 394, 403 (1972) (statutory commitment procedures bring both expert medical opinion and judicial judgment to bear, and involve a mixture of medical and social or legal judgments). While expert opinions are not dispositive, they are normally necessary to properly assess the criteria to determine serious mental impairment as well as to determine whether to retain or discharge a patient. 53 Am.Jur.2d Mentally Impaired Persons § 54, at 509 (1996). Consequently, at nearly every step of the hospitalization proceedings under chapter 229, our legislature provides for the submission of medical reports to the court to help guide the court's action. Habeas corpus proceedings and the commission of inquiry procedure are the only exceptions to the physician initiated review. These procedures entitle a patient to challenge the commitment process at any stage, with some limitations on the commission proceedings, and are independent of the medical reporting process. They are not, however, within the enumerated powers of the referee. Furthermore, the statute does not provide for a patient to file a petition for release or dismissal. Thus, the application filed by Melodie in this case was actually a petition for habeas corpus. [2] See Halverson v. Iowa Dist. Ct., 532 N.W.2d 794, 799 (Iowa 1995) (a label attached to a motion does not determine its legal significance). The legislature has not authorized a referee to hear habeas corpus requests, or to release and discharge a patient without the submission of a medical report. Our decision today only addresses the applicant's challenge to the jurisdiction of a referee to dismiss a proceeding in response to a request by a patient. We are not faced with any challenge to the statute's failure to permit a patient to petition a referee for dismissal of the proceedings.