Opinion ID: 2640889
Heading Depth: 2
Heading Rank: 3

Heading: Use of Contempt Power to Enforce Reunification Orders

Text: A notable feature of SARMS is its reliance on judicial officers to enforce requirements by imposing increasingly severe sanctions for every `noncompliant event.' (Rule 6.1.19.) The San Diego County Superior Court's form order directing participation in SARMS identifies the following behavior as sanctionable: failure to timely enroll in the SARMS Program; a positive result from an alcohol/drug test (`dirty test'); failure to appear for a court hearing; failure to appear for an alcohol/drug test (`no show'); diluting or tampering with a urine sample provided to SARMS for an alcohol/drug test; failure to participate in all required SARMS and treatment program activities; failure to attend required counseling sessions; failure to comply with the rules of the SARMS Recovery Services Plan and treatment program; and/or a dishonest statement to the Court. (Form SDSC JUV-131.) The court's local rules explicitly provide for standardized sanctions: For the first violation, the parent will receive a judicial reprimand. For each subsequent violation, the parent will be cited for contempt of court for disobeying a court order . . . . (Rule 6.1.19.) Although the rules do not dictate a specific punishment for such contempt findings, a report on the SARMS program prepared by the San Diego County Juvenile Court indicates incarceration is frequently imposed.
(4) It is well settled that the court has inherent power to enforce compliance with its lawful orders through contempt. ( Shillitani v. United States (1966) 384 U.S. 364, 370 [16 L.Ed.2d 622, 86 S.Ct. 1531]; In re Michael G. (1988) 44 Cal.3d 283, 288-289 [243 Cal.Rptr. 224, 747 P.2d 1152].) The Legislature has recognized this power of the juvenile court in section 213, which states: Any willful disobedience or interference with any lawful order of the juvenile court or of a judge or referee thereof constitutes a contempt of court. (See In re Michael G., at p. 289; In re Ricardo A. (1995) 32 Cal.App.4th 1190, 1196 [38 Cal.Rptr.2d 586] [concluding, based on Michael G., that juvenile court's inherent contempt power is statutorily implemented by § 213].) However, not every violation of a court order is subject to punishment as a contempt of court. The court's traditional contempt power rests on `the premise that the right of courts to conduct their business in an untrammeled way lies at the foundation of our system of government and that courts necessarily must possess the means of punishing for contempt when conduct tends directly to prevent the discharge of their functions.' ( Wood v. Georgia (1962) 370 U.S. 375, 383 [8 L.Ed.2d 569, 82 S.Ct. 1364].) ( In re Michael G., supra, 44 Cal.3d at p. 288.) Based on this premise, we long ago explained that contempt is an act, committed in or out of the court's presence, which tends to impede, embarrass or obstruct the court in the discharge of its duties. ( In re Shortridge (1893) 99 Cal. 526, 532 [34 P. 227].) The contempt power represents the inherent power of a trial court to exercise a reasonable control over all proceedings connected with the litigation before it, a power which . . . `should be exercised by the courts in order to insure the orderly administration of justice.' [Citations.] ( Cooper v. Superior Court (1961) 55 Cal.2d 291, 301 [10 Cal.Rptr. 842, 359 P.2d 274].) Contempt is generally a summary procedure designed to protect the dignity of the court in the exercise of its jurisdiction. ( In re Buckley (1973) 10 Cal.3d 237, 247-248 [110 Cal.Rptr. 121, 514 P.2d 1201].) The court's power to compel compliance with its orders to ensure the orderly administration of justice does not extend to punishing violations of substantive law when such violations do not impair the dignity or functioning of the court. When the Legislature has established a specific penalty for a transgression, courts may not impose a contempt punishment that is inconsistent with the legislative scheme. (Cf. In re Lynch (1972) 8 Cal.3d 410, 414 [105 Cal.Rptr. 217, 503 P.2d 921] [in our tripartite system of government it is the function of the legislative branch to define crimes and prescribe punishments, and . . . such questions are in the first instance for the judgment of the Legislature alone].) Violations of substantive law, whether criminal or otherwise, must be adjudicated and punished in accordance with the Legislature's directives. As explained below ( post, at pp. 1233-1236), the legislative scheme involved here contemplates that the ultimate penalty for a parent's failure to satisfy reunification plan requirements is the loss of parental rights.
(5) We previously addressed the juvenile court's contempt power in the context of delinquency proceedings. In In re Michael G., supra, 44 Cal.3d at pages 287 to 288, a minor who had been made a ward of the court under section 601, subdivision (b), was ordered to attend school regularly as a condition of his probation. After learning that the minor had several unexcused absences, the juvenile court held a hearing, found the minor in contempt for willful disobedience of the order to attend school, and ordered the minor confined for 48 hours in the custody of the probation department. ( In re Michael G., at p. 288.) Although we upheld this exercise of contempt power ( id. at pp. 294-295), the juvenile court's authority over a delinquent ward is quite different from its authority over the parent of a dependent child. When a juvenile delinquency petition is sustained, the court assumes jurisdiction over the minor and has the power to issue orders controlling the minor's conduct. (§§ 601, 602, subd. (a).) Likewise, in dependency proceedings, the juvenile court's jurisdiction is over the minor: It is the abused or neglected minor who becomes a ward of the court, not the deficient parent. (§§ 300, 302.) The juvenile court's authority to control the behavior of a parent in dependency proceedings is not direct, but rather ancillary to its jurisdiction over the child. When the court orders a parent to participate in certain services, compliance with the order is a condition the court has placed on the parent's reunification with the child. Accordingly, our decision in Michael G. is not directly applicable here. [5] No published decision from a California appellate court has explored the extent of the juvenile court's power to impose contempt sanctions as punishment for a parent's failure to comply with reunification orders. In the cases cited by the Agency, most of the statements about the juvenile court's ability to exercise contempt power are dicta, and none addresses the use of contempt to enforce reunification orders. (See In re Ashley M. (2003) 114 Cal.App.4th 1, 10, fn. 5 [7 Cal.Rptr.3d 237] [suggesting contempt could be used to force an unwilling child welfare agency to provide services]; In re Stacy T. (1997) 52 Cal.App.4th 1415, 1422, fn. 4 [61 Cal.Rptr.2d 319] [suggesting parent's failure to appear in court constitutes a contempt, not a default]; In re Nemis M. (1996) 50 Cal.App.4th 1344, 1352 [58 Cal.Rptr.2d 324] [same]; In re Tiffany G. (1994) 29 Cal.App.4th 443, 452 [35 Cal.Rptr.2d 8] [suggesting parent's violation of a confidentiality order could be punished as a contempt].) [6] Nationwide, the Agency has directed us to only one case suggesting the juvenile court may use contempt power to enforce reunification orders, and that decision rests on Louisiana statutes that have no apparent California counterpart. (See State in Interest of Anderson (La.Ct.App. 1989) 550 So.2d 192, 194-197 [holding juvenile court may use contempt to enforce orders directing a parent into drug counseling and psychological testing but only after it has adjudicated her a parent `in need of supervision' pursuant to a specific statutory procedure].) (6) The lack of pertinent authority matters because reunification orders are unlike orders in other types of civil cases. When a juvenile court orders a parent to comply with a reunification case plan, it directs the parent to do and refrain from doing many things, often of a highly personal nature. These reunification orders are not limited to controlling the conduct of litigation or the parties' behavior in court. Reunification orders also differ from court orders in criminal cases. Reunification orders may resemble criminal probation orders in the scope of conduct they regulate, but, unlike probationers, parents of dependent children are not subject to the court's jurisdiction because they have been convicted of a crime. Instead, they agree to a reunification plan to avoid losing custody of their children. Further, if a criminal defendant fails to comply with a probation condition, any penalty is imposed following a hearing on the alleged violation, not by a summary contempt proceeding. In the dependency context, the juvenile court intervenes to protect a child, not to punish the parent. ( In re Malinda S. (1990) 51 Cal.3d 368, 384 [272 Cal.Rptr. 787, 795 P.2d 1244].) The statutory scheme is designed to permit the parent to remedy a deleterious situation and resume parental rights and responsibilities.

(7) To the extent reunification orders intrude upon a parent's liberty, the Legislature has determined these intrusions are justified by the need to protect children and enable their safe return to competent parental care whenever possible. However, it is not the court's role to force a parent to participate in services. It is . . . well established that `[r]eunification services are voluntary, and cannot be forced on an unwilling or indifferent parent. [Citation.]' ( In re Jonathan R. (1989) 211 Cal.App.3d 1214, 1220 [259 Cal.Rptr. 863].) ( In re Christina L. (1992) 3 Cal.App.4th 404, 414 [4 Cal.Rptr.2d 680]; see also In re Michael S. (1987) 188 Cal.App.3d 1448, 1463, fn. 5 [234 Cal.Rptr. 84] [there is no requirement that a social worker take the parent by the hand and escort him or her to and through classes or counseling sessions].) Section 361.5, subdivision (b)(14) explicitly states that reunification services need not be provided to a parent who wishes to forgo them. [7] This rule makes sense. While reunification is the preferred outcome when it serves the interests of both parent and child, no interest is well served by compelling inadequate parents to shoulder responsibilities they are unwilling to accept or unable to discharge. Nevertheless, the Agency contends a parent's participation in reunification services becomes mandatory if services are ordered at the dispositional hearing. In other words, according to the Agency, once services are ordered a parent cannot change her mind. She must participate, or risk a contempt order and possible incarceration. The Agency cites no support for this argument beyond the statement in section 361.5, subdivision (a) that, [w]hen counseling or other treatment services are ordered, the parent . . . shall be ordered to participate in those services . . . . (Italics added.) The Agency contends this requirement that parental participation be ordered, combined with the court's power to enforce its orders with contempt proceedings (§ 213), indicates the Legislature intended to enable the juvenile court to use contempt sanctions to secure compliance with its reunification orders. We decline to adopt this novel reading of the statutes. By providing that a parent shall be ordered to participate in services, section 361.5, subdivision (a) imposes a duty on the juvenile court to order participation as part of the parent's reunification plan unless the court finds such participation would be inappropriate or potentially harmful to the minor. This language in itself does not impose a mandatory duty on the parent to participate in services.
(8) In considering the nature of a parent's obligation to comply with reunification orders, it is important to examine what sanctions or punishment the Legislature has specified for noncompliance. Section 361.5 itself provides that, with respect to a dependent child under age three at the time of detention, the court must inform the parent that failure . . . to participate regularly in any court-ordered treatment programs or to cooperate or avail himself or herself of services provided as part of the child welfare services case plan may result in a termination of efforts to reunify the family after six months. (§ 361.5, subd. (a).) At the same time, the court must inform parents about section 366.26 and the specific possibility that parental rights may be terminated. (§ 361.5, subd. (a).) These prescribed warnings do not include the possibility of being held in contempt of court, and punished by fine or incarceration, for failure to participate in services. Indeed, this possibility is not mentioned in any of the numerous statutorily required advisements. (9) Given the complexity of the statutory scheme governing dependency, a single provision cannot properly be understood except in the context of the entire dependency process of which it is part. ( Cynthia D. v. Superior Court (1993) 5 Cal.4th 242, 253 [19 Cal.Rptr.2d 698, 851 P.2d 1307].) Other dependency statutes indicate the Legislature envisions the punishment for noncompliance with reunification services to be loss of those services and, ultimately, loss of parental rights. For example, at the six-month review hearing, the juvenile court must decide whether return of a dependent child to the parent would be detrimental to the child. Section 366.21, subdivision (e) requires the court, in making this decision, to consider the efforts or progress, or both, demonstrated by the parent . . . and the extent to which he or she availed himself or herself [of] services provided, and it specifies that failure of the parent or legal guardian to participate regularly and make substantive progress in court-ordered treatment programs shall be prima facie evidence that return would be detrimental. Likewise, a parent's failure to progress in treatment constitutes evidence of detriment at the 12-month (§ 366.21, subd. (f)) and 18-month (§ 366.22, subd. (a)) review hearings. Additionally, if the child was under age three when removed from custody (or part of a sibling group with a child under age three), a finding at the six-month review hearing that the parent failed to participate regularly and make substantive progress in a court-ordered treatment plan can result in the termination of services at that point and scheduling of a section 366.26 permanency planning hearing. (§ 366.21, subd. (e).) These findings are critical. Once services have been terminated, the juvenile court's focus shifts from family reunification to the child's permanent placement and well-being, and the burden accordingly shifts to the parent to show that a termination of parental rights is not in the child's best interests. ( In re Marilyn H. (1993) 5 Cal.4th 295, 306-307, 309 [19 Cal.Rptr.2d 544, 851 P.2d 826]; In re Zachary G. (1999) 77 Cal.App.4th 799, 808 [92 Cal.Rptr.2d 20].) A parent may regain custody after reunification services have been terminated only by showing that changed circumstances demonstrate a return to parental custody is in the child's best interests. (§ 388; In re Marilyn H., at p. 309; In re Kimberly F. (1997) 56 Cal.App.4th 519, 528-529 [65 Cal.Rptr.2d 495].) This burden may be especially difficult to sustain for a parent who failed to continue with substance abuse treatment during the reunification period. (See In re Kimberly F., at p. 531, fn. 9.) Thus, the dependency statutes repeatedly make clear that the consequence of failure to participate in court-ordered reunification services is the loss of parental rights. The Agency has not called our attention to a single California statute or judicial decision approving the notion that juvenile courts may force compliance with reunification orders by punishing parental lapses with contempt proceedings and incarceration. Although the Agency suggests the threat of incarceration offers a useful strategy for preventing substance abuse relapses, [8] its reasoning could just as logically be applied to other aspects of a parent's case plan. For example, parents are often ordered to adhere to a certain visitation schedule. Under the Agency's analysis, a parent who misses a visit could be held in contempt of court and fined, or incarcerated. Setting aside the question of whether such a sanction would be excessive, it seems clearly inconsistent with the statutory scheme governing reunification. [9]
Downplaying the punitive nature of incarceration, the Agency seeks to characterize the sanctions imposed for noncompliance with SARMS as civil contempt. Its argument overlooks the distinctions long recognized between civil and criminal contempt. Where the primary object of contempt proceedings is to protect the rights of litigants, the proceedings are regarded as civil in character. On the other hand, where the object of the proceedings is to vindicate the dignity or authority of the court, they are regarded as criminal in character even though they arise from, or are ancillary to, a civil action. [Citation.] ( Morelli v. Superior Court (1969) 1 Cal.3d 328, 333 [82 Cal.Rptr. 375, 461 P.2d 655].) Civil contempt is a forward-looking remedy imposed to coerce compliance with a lawful order of the court. ( Shillitani v. United States, supra, 384 U.S. at p. 368.) Civil contemners hold the key to the jail cell in their own pocket, and can secure their release at any time by following the court's order. ( In re Lifschutz (1970) 2 Cal.3d 415, 439, fn. 27 [85 Cal.Rptr. 829, 467 P.2d 557]; Morelli, at p. 332 [basis for civil contempt is the omission to perform an act which is still within the person's power to perform]; see Code Civ. Proc., § 1219, subd. (a).) Because the confinement imposed for civil contempt is conditional in nature, based on continuing conduct, the length of incarceration is indefinite, depending entirely upon the contemnor's continued defiance. ( Shillitani, at p. 371.) On the other hand, so long as specific procedures are observed to safeguard due process, criminal contempt may be used to punish past conduct in violation of a court order. (See Code Civ. Proc., §§ 1209, 1218; see also Cal. Judges Benchguide: Courtroom Control (CJER 2008) Contempt and Sanctions, §§ 3.33-3.49 [describing required procedures for exercise of contempt power].) The object of such proceedings is to vindicate the dignity or authority of the court. ( Morelli, at p. 333.) All parties appear to agree that the contempt order in this case was purely punitive. The juvenile court sentenced Mother to 300 days in custody because she broke her promise to enter treatment. Reunification services had already been terminated and Mother had been ejected from the SARMS program. The contempt order here cannot be construed as civil in nature. The Agency would have us look beyond the facts of this case, however, arguing that the contempt orders typically made to enforce SARMS compliance are civil in nature. The assertion fails. The fact remains that contempt orders in this context are punitive in purpose and effect. After a reprimand for the first violation, the San Diego County court's local rules mandate that the court issue contempt citations for every incidence of a parent's noncompliance with SARMS. (Rule 6.1.19.) Although the court retains discretion to set the particular fine or sentence for each contempt citation ( ibid. ), in all such cases the punishment will be based on the parent's past conduct and imposed for a set period of time. There is nothing a parent who has been incarcerated for a `noncompliant event' ( ibid. ) can do or say to purge the contempt. The mere fact that a contempt order has been made in the course of civil proceedings does not render it a civil contempt. (See Shillitani v. United States, supra, 384 U.S. at p. 369 [character and purpose of the contempt order are what determine whether it is civil or criminal].) When a SARMS contempt order is based on completed conduct, and cannot be purged or cured by the parent, the sanctions imposed are criminal in nature. Although SARMS contempt orders might be characterized as efforts to secure future parental compliance with reunification orders, the sanctions have this effect only in the general sense that all punishment can have a deterrent effect. Certainly, if a court finds a tardy litigant in contempt and orders him jailed for a day, the order will encourage the litigant to appear on time for his next hearing. But this deterrence of future tardiness does not render the original contempt order civil in nature. Because it punishes past, rather than ongoing, conduct, the order constitutes a criminal contempt. The same is true here. (10) The routine imposition of criminal contempt sanctions for noncompliance with SARMS underscores the troubling aspect of injecting punitive measures into reunification. Dependency proceedings are not designed to prosecute parents. ( In re Malinda S., supra, 51 Cal.3d at p. 384; In re Walter E. (1992) 13 Cal.App.4th 125, 137-138 [17 Cal.Rptr.2d 386].) In a dependency proceeding, the state is empowered to intervene because a parent's inadequacy puts a child at risk. Parents who fail or refuse to meet their parental obligations face the profound loss of a relationship with their child. Parents who break the law are subject to criminal prosecution, but they are also entitled to the panoply of rights and protections provided by the Constitution and statute to those who stand accused of a crime.
Rule 6.1.19 of the San Diego County Superior Court Local Rules is disapproved to the extent that it calls for imposition of a fine or jail sentence under the mechanism of contempt solely for the purpose of punishing a parent's failure to comply with a condition of a reunification case plan. We emphasize that our decision here is not intended to strip the juvenile court of its well-established contempt authority to control the proceedings before it and protect the dignity of its exercise of jurisdiction. ( In re Buckley, supra, 10 Cal.3d at pp. 247-248.) Extreme parental misconduct that jeopardizes the child's safety, such as taking the child without permission or engaging in dangerous acts during visitation, could well justify punishment by contempt because such conduct interferes with the court's exercise of its own authority over the dependent child. Our holding in this case is limited to the use of contempt power to punish a parent's failure to satisfy a condition imposed simply to facilitate reunification. We express no opinion on the propriety of contempt sanctions in other circumstances.