A.S. v. State

472 N.W.2d 819, 163 Wis. 2d 687, 1991 Wisc. App. LEXIS 955
CourtCourt of Appeals of Wisconsin
DecidedJune 6, 1991
DocketNos. 90-0659, 90-1369
StatusPublished
Cited by1 cases

This text of 472 N.W.2d 819 (A.S. v. State) is published on Counsel Stack Legal Research, covering Court of Appeals of Wisconsin primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
A.S. v. State, 472 N.W.2d 819, 163 Wis. 2d 687, 1991 Wisc. App. LEXIS 955 (Wis. Ct. App. 1991).

Opinions

EICH, C.J.

A.S. and R.A. appeal from an order terminating their parental rights to their children. The issues are: (1) whether the due process provisions of the United States Constitution provide a right to effective assistance of counsel in termination of parental rights (TPR) cases;1 (2) whether the parents' substantive due process rights were violated when they did not receive warnings under the newly amended sec. 48.415(2), Stats., in the CHIPS2 proceedings leading up to termination;3 and (3) whether they were prejudiced by special [692]*692verdict questions inquiring into their failure to communicate with their children.4

We conclude that while there may be a federal due process right to counsel — and thus to the effective assistance of counsel — in TPR cases, depending on the facts and circumstances of the individual case, the parents in this action had no such right. We also conclude that the fact that the TPR "warnings" to the parents at the conclusion of the various CHIPS proceedings were based on correction of the conditions that led to the children's removal from the parental home, rather than the requirements for their return, as provided in the amended statute, did not deprive the parents of substan[693]*693tive due process. Finally, we hold that the trial court did not err in submitting a verdict question on the parents' failure to communicate with the children.

The facts are not in dispute. A.S. and R.A. are married. A.S. is the mother of three of the children, and R.A. the father of two of them. The children were removed from the parents' custody by juvenile court orders in CHIPS proceedings at various times since 1981. During the years the children were in foster care, the juvenile court entered numerous orders setting forth the conditions that led to removal, establishing various rules of supervision, and setting forth conditions for the return of each child to the parental home. At the entry of the initial orders, and at each extension or modification thereof, the parents were warned, as required by secs. 48.415(2) and 48.356, Stats.,5 that failure to remedy those conditions could lead to involuntary termination of their parental rights.

In November, 1988, proceedings were brought to terminate the parental rights of both parents. At that time, the children were between three and seven years of age and each had spent by far the greater part of his or her life in foster care pursuant to the earlier CHIPS orders. After a fact-finding hearing in which a jury found that the parents had "substantially neglected, willfully refused or been unable to meet the conditions established" for the children's return, and that there was a substantial likelihood that they would not be able to meet those conditions in the future, the court terminated their parental rights.6 Both filed motions for postconvic[694]*694tion relief, which were denied, and this appeal followed.

EFFECTIVE ASSISTANCE OF COUNSEL

The parents first argue that they have a right to effective assistance of counsel under the due process clause of the United States Constitution.

Wisconsin statutes provide that a parent is entitled to appear with counsel in involuntary TPR actions and that indigent parents are entitled to court-appointed counsel. Sec. 48.23(2), Stats. Parents must affirmatively waive counsel before proceedings may be conducted. Id. No right to effective assistance of counsel can be inferred from the statutory right to counsel, however. See In re P.L.S., 158 Wis. 2d 712, 463 N.W.2d 403 (Ct. App. 1990) (there is no constitutional right to effective assistance of counsel in paternity cases).

Where the source of the right to counsel is the United States Constitution, a different rule obtains. It is well established under federal constitutional law that the right to counsel means the right to effective assistance of counsel. McMann v. Richardson, 397 U.S. 759, 771 n.14 (1970). Since the parents' claim in this case is based on the due process provisions of the fifth and fourteenth amendments to the U.S. Constitution, if they are entitled to counsel under those provisions, then they also are entitled to the effective assistance of counsel. Id.

In Lassiter v. Dep't of Social Services, 452 U.S. 18 (1981), the United States Supreme Court considered whether there was a constitutional due process right to [695]*695counsel in involuntary termination of parental rights cases. The Court began by analyzing prior cases, drawing from them "the presumption that an indigent litigant has a right to appointed counsel only when, if he loses, he may be deprived of his physical liberty." Id. at 26. Then, looking to Mathews v. Eldridge, 424 U.S. 319, 335 (1976), for the "elements to be evaluated in deciding what due process requires," the Lassiter court stated that these elements — "the private interests at stake, the government's interest, and the risk that the procedures used will lead to erroneous decisions" — must be balanced against each other and "their net weight [set] in the scales against the presumption that there is a right to appointed counsel only where the indigentes] . . . personal freedom [is at stake]." Id., 452 U.S. at 27. The Court then discussed the application of such an analysis to TPR cases:

[T]he parent's interest is an extremely important one . . .; the State shares with the parent an interest in a correct decision, has a relatively weak pecuniary interest, and, in some but not all cases, has a possibly stronger interest in informal procedures; and the complexity of the proceeding and the incapacity of the uncounseled parent could be, but would not always be, great enough to make the risk of an erroneous deprivation of the parent's rights insupporta-bly high.
If, in a given case, the parent's interests were at their strongest, the State's interests were at their weakest, and the risks of error were at their peak, it could not be said that the Eldridge factors did not overcome the presumption against the right to appointed counsel, and that due process did not therefore require the appointment of counsel. But since the Eldridge factors will not always be so distributed . . . neither can we say that the Constitu[696]*696tion requires the appointment of counsel in every parental termination proceeding. We therefore . . . leave the decision whether due process calls for the appointment of counsel for indigent parents in termination proceedings to be answered in the first instance by the trial court, subject, of course, to appellate review. Id. at 31-32.

Thus, whether counsel is necessary to "meet the applicable due process requirements" is a shifting analysis in that it depends on the "facts and circumstances" of the particular case, analyzed in light of the factors enumerated in Lassiter and Eldridge. It is, according to the Lassiter court, a determination properly made in the first instance by the trial court. Id., 452 U.S. at 32. Having said that, however, the

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Related

In Interest of Md (S)
472 N.W.2d 819 (Court of Appeals of Wisconsin, 1991)

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Bluebook (online)
472 N.W.2d 819, 163 Wis. 2d 687, 1991 Wisc. App. LEXIS 955, Counsel Stack Legal Research, https://law.counselstack.com/opinion/as-v-state-wisctapp-1991.