Bearden v. Arkansas Department of Human Services

35 S.W.3d 360, 72 Ark. App. 184, 2000 Ark. App. LEXIS 831
CourtCourt of Appeals of Arkansas
DecidedDecember 20, 2000
DocketCA 00-206
StatusPublished
Cited by4 cases

This text of 35 S.W.3d 360 (Bearden v. Arkansas Department of Human Services) is published on Counsel Stack Legal Research, covering Court of Appeals of Arkansas primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Bearden v. Arkansas Department of Human Services, 35 S.W.3d 360, 72 Ark. App. 184, 2000 Ark. App. LEXIS 831 (Ark. Ct. App. 2000).

Opinions

Josephine Linker Hart, Judge.

The Arkansas Juvenile Code of 1989 provides that an indigent parent must be afforded the right to the assistance of counsel in proceedings to terminate parental rights.1 See Ark. Code Ann. § 9-27-316(h) (Supp. 1999). Before us is the question , of whether an indigent parent who has been appointed counsel in a proceeding to terminate his parental rights pursuant to Ark. Code Ann. § 9-27-341 (Supp. 1999), has a right to proceed without counsel. Stated differently, at issue is whether the law forces an indigent parent in a proceeding to terminate parental rights to keep a court-appointed attorney when he insists that he wants to conduct his own defense. We conclude that the law does not do so and, therefore, reverse and remand.

The Arkansas Department of Human Services (DHS), on November 26, 1997, petitioned the juvenile court for emergency custody of Judy Ann Bearden’s younger child, then several days later petitioned the court seeking custody of her elder child. The underlying claim made by DHS was that Bearden had a history of cocaine use and had no financial resources, and that her young daughter, who was born prematurely on November 12, had special needs that Bearden was unable to satisfy. At the probable cause hearing, the chancellor appointed an attorney to represent Bearden, but at the trial on the termination petition, she stated that she desired to represent herself. The chancellor briefly inquired as to the reason for her request, but ultimately required that she be represented by her court-appointed attorney.2

At the conclusion of the trial, the chancellor granted DHS’s petition to terminate Bearden’s parental rights. On appeal, Bearden argues that the chancellor erred by denying her the right to represent herself and by finding that by clear and convincing evidence her parental rights should be terminated. We do not address appellant’s second point on appeal inasmuch as we reverse and remand on the first issue.

On review of this chancery matter, “the whole case is open for review; therefore, all issues raised in the court below are before us for decision, and trial de novo on appeal . . . involves determination of both fact questions and legal issues.” Bradford v. Bradford, 34 Ark. App. 247, 248, 808 S.W.2d 794, 795 (1991). See also Ferguson v. Green, 266 Ark. 556, 564, 587 S.W.2d 18, 23 (1979); Lewis v. Lewis, 255 Ark. 583, 502 S.W.2d 505 (1974); Nolen v. Harden, 43 Ark. 307 (1884). On de novo review, however, we will reverse only on grounds properly argued by an appellant. See, e.g., Country Gentlemen, Inc. v. Harkey, 263 Ark. 580, 569 S.W.2d 649 (1978).

I. Right to waive assistance of counsel

The pertinent part of Act 1227 of 1997, as codified at Ark. Code Ann. § 9-27-316(h)(2) (Supp. 1999), states:

Upon request by a parent or guardian and a determination by the court of indigence, the court shall appoint counsel for the parent or guardian in all proceedings to remove custody or terminate parental rights of a juvenile.

A similar right to the assistance of counsel is afforded juveniles pursuant to Ark. Code Ann. § 9-27-316 (a)-(b), although the right can be waived by a detailed process as provided in Ark. Code Ann. § 9-27-317 (Supp. 1999). There is, however, no similar statutory process for an indigent parent to waive his right to counsel expressed in Ark. Code Ann. § 9-27-316(h). Consequendy, we are faced with what Cardozo might refer to as a “gap” in the statute. We, therefore, “as the interpreter for the community of its sense of the law and order must supply omissions, correct uncertainties, and harmonize results with justice through a method of free decision....” Benjamin N. Cardozo, The Nature of the Judicial Process 16 (1921). Accordingly, we conclude that an indigent parent who has been appointed an attorney has the right to waive the assistance of legal counsel in termination cases such as this, and therefore, we reverse.

We first look to the words used by the Arkansas General Assembly. A plain reading of Ark. Code Ann. § 9-27-316, requires that a two-fold process occur prior to the appointment of a legal counsel — a request by the parent and a finding of indigence. It is the first requirement that is of greater interest to us. This requirement demonstrates that the General Assembly intended that the indigent parent have some role or power with regard to the decision of whether legal counsel would be appointed for him. Moreover, there is no indication that the General Assembly intended that this power would be limited in some manner or would expire at some point in time. In our view, within the scope of this power must exist the ability to reject the assistance of counsel.

A second consideration is that the right to waive counsel is consistent with common sense and avoids an absurd result. See Green v. Mills, 339 Ark. 200, 205, 4 S.W.3d 493, 496 (1999) (“[T]his court does not engage in interpretations that defy common sense and produce absurd results.”). The General Assembly intended to place a burden on the State by forcing it to bear the cost of the indigent parent’s legal representation in parental termination cases such as this. To force an indigent parent to accept legal representation in termination proceedings when there is an expressed desire to decline such an offer, would transform their right into a burden. There is a conspicuous lack of authority to justify a determination that the General Assembly intended to hinder a parent that way.

Finally, this view harmonizes the right to waive counsel with similar rights in analogous cases. In Johnson v. Zerbst, 304 U.S. 458, 463 (1938), the United States Supreme Court recognized that the Sixth Amendment right to the assistance of counsel included the corresponding right to waive the assistance of counsel.3 Furthermore, a number of jurisdictions have accepted, in cases similar to the case at bar, a right to waive counsel in one form or another. See In re G.L.H., 614 N.W.2d 718 (Minn. 2000) (affirming trial court’s determination that parent had waived statutory right to counsel in action brought by county to terminate parental rights); In re Heller, 669 A.2d 25 (Del. 1995) (holding that there was no procedural due process violation to allow mother to waive right to counsel and proceed pro se in a termination of parental rights case brought by Delaware); In re K.D.H., 871 S.W.2d 651 (Mo. Ct. App. 1994) (affirming trial court’s determination that by her actions a mother had waived her right to counsel in parental termination case because she failed to cooperate with her court-appointed attorney); Keen v. Marion County Dep’t of Public Welfare,

Related

Battishill v. Arkansas Department of Human Services
82 S.W.3d 178 (Court of Appeals of Arkansas, 2002)
Opinion No.
Arkansas Attorney General Reports, 2001
Bearden v. Arkansas Department of Human Services
42 S.W.3d 397 (Supreme Court of Arkansas, 2001)

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Bluebook (online)
35 S.W.3d 360, 72 Ark. App. 184, 2000 Ark. App. LEXIS 831, Counsel Stack Legal Research, https://law.counselstack.com/opinion/bearden-v-arkansas-department-of-human-services-arkctapp-2000.