Court Opinion

ID: 9755055
Source: CourtListenerOpinion
Date Created: 2023-08-28 20:22:58.45796+00
Date Added: 2024-06-11T07:28:02.051495
License: Public Domain

DON BURGESS, Justice,
dissenting.
I respectfully dissent in several aspects, most vigorously to that portion which upholds the criminal penalties. I concur in all other aspects.
DUE PROCESS AND SEPARATION OF POWERS: CRIMINAL PENALTY
Appellants assert in issue IV.A. that section 841.085 of the Act1, when read in conjunction with section 841.082(a)2, vio*615lates the separation of powers doctrine and is unconstitutionally vague. As part of their argument, they assert the provision authorizing a third degree felony offense for a violation of a commitment requirement violates the separation of powers provisions of the Texas Constitution because, since a judge may impose any requirement deemed necessary, it confers upon the judge the power to create a third degree felony.
The majority acknowledges that Article II, Section 1 of the Texas Constitution provides for three distinct and separate branches of government and Art. Ill, §§ 30, 43 vest the power to pass laws and to revise the criminal law of the State in the legislature. The majority concludes the legislature has not delegated its power to the trial courts to create third degree felonies, but rather has authorized the trial courts to determine requirements that are necessary to ensure the compliance of the person committed with treatment and supervision and to protect the community. They further conclude it is the legislature, not the judge, that has determined that any of the statutory requirements, as well as those necessary requirements set by the judge, are third degree felonies. They miss the point.
To better illustrate the issue, this is the statute, as combined: A person commits a felony of the third degree if the person violates the legislative requirements imposed under Section 841.082(a)(l-8) or any other requirement determined necessary by the judge under Section 841.082(a)(9). That the legislature determined eight specific requirements should be imposed on persons committed under the Act is a clear indication of its legislative prerogative, duty and power to prescribe what requirements or violations thereof would be criminalized. However, the legislature crossed the constitutional fine when it criminalized “any other requirements determined necessary by the judge.” This is simply a delegation of its authority to expand the eight enumerated requirements. As a rose is still a rose by any other name, section 841.082(a)(9) is a delegation of authority by any analysis. Therefore, I am constrained to conclude that section 841.082(a)(9) of the Act is unconstitutional under the separation of powers provision of the Texas Constitution because it involves the unconstitutional delegation of legislative power to the judiciary.
Appellants also contend the combination of sections 841.085 and 841.082(a)(9) is unconstitutionally void for vagueness and overbroad. The majority, in its analysis, states: “[T]hat different judges might establish different specific requirements does not render those requirements necessarily vague after they are issued and subject to compliance.” Again, the majority misses the point. Appellants do not argue that a particular requirement imposed by a judge under 841.082(a)(9)3 is unconstitutionally vague; rather they argue the statute, as written, is unconstitutionally vague be*616cause it criminalizes unknown conduct on its face. A statute is unconstitutionally vague if it (1) does not give fair notice of what conduct may be punished, and (2) invites arbitrary and discriminatory enforcement by its lack of guidance for those charged with its enforcement. Rooms With a View, Inc. v. Private Nat. Mortg. Ass’n, Inc., 7 S.W.3d 840, 845 (Tex.App.Austin 1999, pet. denied) (citing Village of Hoffman Estates v. Flipside, Hoffman Estates, Inc., 455 U.S. 489, 498, 102 S.Ct. 1186, 71 L.Ed.2d 362 (1982)). Clearly, it would be unconstitutional for the Legislature to pass a statute stating: “A person commits a felony of the third degree if the person violates any requirement determined necessary by the legislature.” Just as clearly, the Legislature can not criminalize conduct that is defined only as “any other requirements determined necessary by the judge” because this does not give fair notice of what conduct may be punished. Accordingly, I would hold section 841.082(a)(9) is unconstitutional under the void for vagueness doctrine.
The majority does not address the over-breadth issue. Having decided the vagueness issue in favor of appellants, the over-breadth issue would grant no additional relief, so it is unnecessary for me to consider.4 I would sustain issue IV.A.
OPEN MEETINGS ACT
The appellants contend in issue II.F. that the multidisciplinary team’s meetings are in violation of the Texas Open Meetings Act. The majority correctly recites the five prerequisites of The Texas Open Meetings Act citing Gulf Reg’l Educ. Television Affiliates v. Univ. of Houston, 746 S.W.2d 803, 809-10 (Tex.App.-Houston [14th Dist.] 1988, writ denied).
Under the record, it is clear to me that the multidisciplinary team is an entity within the executive department of the State; it is under the control of one or more appointed members; its meetings involve formal action or deliberation between a quorum of members; its discussion or actions involve public business; and it has supervision or control over that public business. Consequently, the multidisciplinary team is subject to the Texas Open Meetings Act.
The majority concludes the multidisciplinary team “is subject to or controlled by a subsequent assessment made by the custodial agency, and this assessment is subject to or controlled by the discretion of the attorney for the State who decides whether to file suit to seek civil commitment.” It is true that the Texas Department of Criminal Justice or the Texas Department of Mental Health and Mental Retardation, after receiving from the multidisciplinary team its determination as to whether the person is likely to commit a sexually violent offense after release or discharge and its recommendation as to assessment of the person for a behavioral abnormality, makes an independent determination as to whether the person suffers from a behavioral abnormality that makes the person likely to engage in a predatory act of sexual violence before referring the person to the State’s attorney. Tex. Health & Safety Code Ann. § 841.023. It is also true that the State’s attorney is then free to make his or her own determination as to which of those referred persons will be taken to court for commitment proceedings. Id. § 841.041. However, it also appears that neither the Texas Department of Criminal Justice nor the Texas Department of Mental Health and Mental Retardation is free to make a determination as to whether the person suffers from a be*617havioral abnormality that makes the person likely to engage in a predatory act of sexual violence absent a recommendation from the multidisciplinary team that the person be assessed. Id. § 841.023. Consequently, while the two departments have the ultimate determination as to who, among those whom the multidisciplinary team recommends for assessment, are persons who suffer from a behavioral abnormality that makes the person likely to engage in a predatory act of sexual violence, and while the State’s attorney has discretion of which of those persons to seek to commit, the multidisciplinary team’s decisions not to recommend that a person be assessed for a behavioral abnormality is not subject to or controlled either by the two departments or by the State’s attorney. I know of no provision that permits either of the two departments to assess a person when such an assessment has not been recommended by the multidisciplinary team, nor do I know of any provision that would permit the attorney for the State to seek commitment under the Act when the multidisciplinary team has not recommended assessment.
The trial court, in its findings of fact, expressed privacy concerns as a reason why the multidisciplinary team should not be required to meet openly. I share those concerns. However, I cannot agree with the majority, that the multidisciplinary team does not fit within the definition of those governmental bodies that fall within the requirements of the Texas Open Meetings statute. I would sustain issue II.F.
DUE PROCESS AND EQUAL PROTECTION: RIGHT TO HEARING WITH BURDEN OF PROOF ON STATE
The appellants urge in issue IY.C. that § 841.102 of the Act violates due process and equal protection because it does not provide for periodic redetermination that the person continues to meet the standard for commitment, in a judicial hearing with the burden of proof upon the State. The majority correctly sets out the procedures after commitment.
In Texas, those who are subject to ordinary civil commitments are entitled to a hearing prior to an order for an extension of their commitment. Tex. Health & Safety Code Ann. § 574.066(e) (Vernon 1992). An application for which a hearing is requested or set is considered an original application for court-ordered extended mental health services. Id.
At a hearing on an original application for court-ordered extended outpatient mental health services, the proposed patient has the right to a jury and the State must establish commitment criteria by clear' and convincing evidence. Tex. Health & Safety Code Ann. § 574.035(b)(2) (Vernon Supp.2003). Renewal is for no more than twelve months. Tex. Health & Safety Code Ann. § 574.066(f) (Vernon 1992). As previously noted, under the Act commitment is for an indefinite period. Tex. Health & Safety Code Ann. § 841.081 (Vernon Supp.2003). A person committed under the Act does not receive a post-commitment hearing to determine if he or she still meets commitment criteria unless: (1) the trial court, in a biennial review, finds that there is probable cause to believe that the person’s behavioral abnormality has changed to the extent that the person is no longer likely to engage in a predatory act of sexual violence: (2) the ease manager determines that the person’s behavioral abnormality has changed in the same way and the person petitions for release; (3) the proposed patient files an unauthorized petition for release that the judge does not find to be frivolous; or (4) the proposed patient files a subsequent unauthorized petition for release and the *618judge chooses to set a hearing, where there is probable cause to believe that the petitioner is no longer likely to engage in a predatory act of sexual violence. Id. §§ 841.102(c)(2), 841.121(a)-(c), 841.123(c)-(d).
In summary, those who are under ordinary civil commitment are committed for a specific period of time, and renewals are treated the same as new commitments. The patient subject to possible renewal is entitled to a hearing, before a jury if desired, where the State has the burden to establish commitment criteria by clear and convincing evidence. On the other hand, the person committed under the Act is committed, not for a set period, but until the person no longer meets the commitment criteria. The person is not automatically entitled to a hearing absent a finding by the judge that probable cause exists that the person no longer meets the commitment criteria, or a finding by the case manager that the person no longer meets the commitment criteria, or, in a first unauthorized petition for release, the trial court does not find that his or her petition is frivolous. I also note that a trial court, in any subsequent unauthorized petition for release, may deny the petition if a previous petition was frivolous or if, after hearing, it was determined that the petitioner’s behavioral abnormality had not changed to the extent that the petitioner no longer met the commitment criteria. Id. § 841.123(c).
The distinction made between the methods for determination of continuation or renewal of commitment as between those committed in ordinary civil commitment proceedings and those committed under the Act does not relate to the type of custodial or medical care to be given to the two classes, but to the opportunity afforded to the person committed to show whether the person is mentally ill at all. I conclude that the distinctions between the two classes of persons committed have no relevance in this context. Therefore, I conclude, contrary to the majority, that the Act violates appellants’ rights under the Equal Protection Clause of the United States Constitution.
Appellee Molett suggests that the legislature has determined that those committed under the Act are less amenable to traditional mental illness treatment modalities and that, applying the equal protection rational basis test, the differences between the two procedures are rationally related to the governmental interest to be furthered. The apparent governmental purpose in the distinction between the two classes is to avoid the cost and expense of full-scale hearings in those cases where there is no reasonable indication that their propensity for committing violent sexual offenses has changed. Even if one is to assume, as suggested by the legislature and the appellees, that those committed under the Act are less amenable to traditional mental illness treatment modalities, neither suggests that those committed under the Act are receiving traditional mental illness treatment modalities. In fact, the treatment plan may include monitoring the person committed under the Act with a polygraph or plethysmograph. Tex. Health & Safety Code Ann. § 841.083(a) (Vernon Supp.2003). These do not appear to be traditional mental illness treatment modalities. Consequently, I see no rational basis for the distinction between those subject to ordinary civil commitment and those subject to review under the Act with respect to the procedure for determining whether they still meet the criteria for commitment so as to justify their continued commitment. I would sustain issue IV.C.
REMEDY
If issues IVA., II.F. and IV.C. were sustained what is the appropriate remedy? *619Having determined 841.082(a)(9) is unconstitutional under both the separation of powers and the void for vagueness doctrines, the obvious remedy is to enjoin its use as a penal statute.
While the appellants framed their issue with reference to the unconstitutionality of section 841.102 of the Act, their argument of necessity has required a consideration of the effects of sections 841.101, 841.121, 841.122, and 841.123(c) and (d), all of which deal with subsequent determinations as to whether the person committed still meets commitment criteria. I would declare that section 841.123(c) and (d) are unconstitutional because they provide that in certain circumstances those committed under the Act would not have an annual hearing in which the State would have the burden of proof, whereas those committed in an ordinary civil commitment would have such a hearing.
Having determined those provisions of the Act to be unconstitutional, I must next determine whether the remainder of the Act must fail as well. The Act contains no savings or severability clause. While the absence of such a clause in a legislative act is an important factor in determining the ultimate effect on the whole act of striking a part, that factor alone is not necessarily controlling. Harris County Water Control & Improvement Dist. No. 39 v. Albright, 153 Tex. 94, 98, 263 S.W.2d 944, 947 (1954). The remainder of the Act fails only if it appears that this offending provision is not separable from the remainder. Id. I would hold it severable unless it appears that the legislature would not have enacted the section without the offending provision, or that the remainder does not present an independent, complete and workable whole without it. Id. There is nothing in the record that would indicate that the legislature would not have enacted the section without the offending provision. Rather, the Act, without the offending provision, addresses the concerns of the legislature found in section 841.001. Also, I find that the remainder of the Act, without the offending provision, presents a complete and workable whole.
Accordingly, I would reverse the judgment below and declare (1) that section 841.082(a)(9) is unconstitutional under both the separation of powers and the void for vagueness doctrines and prohibit its use as a penal statute, (2) that section 841.123(c)-(d) of the Texas Health & Safety Code is unconstitutional because it violates the appellants’ rights under the Equal Protection Clause of the United States Constitution, and, as a result, a person committed under the Act who presents an unauthorized petition for release as provided in section 841.122 of the Act is entitled to the hearing provided in section 841.124 of the Act. I would further declare that section 841.123(c)-(d) is severable from the remainder of the Act, which remains in full force and effect. I would also declare that the meetings of the multidisciplinary team are subject to the Texas Open Meetings Act. Since the issues relating to the need of or form of injunctive relief would best be determined by the trial court, I would reverse the judgment and remand this cause for further proceedings consistent with this opinion.

. Tex. Health & Safety Code Ann. § 841.085. Criminal Penalty
A person commits an offense if the person violates a requirement imposed under Section 841.082. An offense under this section is a felony of the third degree

. Tex. Health & Safety Code Ann. § 841.082. Commitment Requirements
(a) Before entering an order directing a person’s outpatient civil commitment, the judge shall impose on the person requirements necessary to ensure the person's compliance with treatment and supervision and to protect the community. The requirements shall include:
(1) requiring the person to reside in a particular location;
(2) prohibiting the person’s contact with a victim or potential victim of the person;
(3) prohibiting the person's use of alcohol or a controlled substance;
(4) requiring the person’s participation in a specific course of treatment;
(5) requiring the person to submit to tracking under a particular type of tracking service and to any other appropriate supervision;
(6) prohibiting the person from changing the person's residence without prior authorization from the judge and from leaving the state without that authorization;
*615(7) if determined appropriate by the judge, establishing a child safety zone in the same manner as a child safety zone is established by a judge under Section 13B, Article 42.12, Code of Criminal Procedure, and requiring the person to comply with requirements related to the safety zone;
(8) requiring the person to notify the case manager within 48 hours of any change in the person’s status that affects proper treatment and supervision, including a change in the person’s physical health or job status and including any incarceration of the person; and
(9)any other requirements determined necessary by the judge.

. Appellants do not argue that any of the eight statutory imposed requirements are unconstitutionally vague; therefore I do not include those in my analysis.

. Certainly, a persuasive argument can be made under this constitutional concept also.