Arizona Dept. of Economic Sec. v. Reinstein

• Citation: 150 P.3d 782,214 Ariz. 209
• Decision Date: 18 January 2007
• Docket Number: No. 1 CA-SA 06-0274.,1 CA-SA 06-0274.
• Parties: ARIZONA DEPARTMENT OF ECONOMIC SECURITY, Petitioner, v. The Honorable Ronald S. REINSTEIN, Judge of the Superior Court of the State of Arizona in and for the County of Maricopa, Respondent Judge, Vanna C., Gabriel T., Elizabeth T. aka Elizabeth C., Maria T., Magdalena T., and Mariaset T., aka Monaset T., Real Parties in Interest.
• Court: Court of Appeals of Arizona

150 P.3d 782

214 Ariz. 209

ARIZONA DEPARTMENT OF ECONOMIC SECURITY, Petitioner, v. The Honorable Ronald S. REINSTEIN, Judge of the Superior Court of the State of Arizona in and for the County of Maricopa, Respondent Judge Vanna C., Gabriel T., Elizabeth T. aka Elizabeth C., Maria T., Magdalena T., and Mariaset T., aka Monaset T., Real Parties in Interest.

No. 1 CA-SA 06-0274.

Court of Appeals of Arizona, Division 1, Department D.

January 18, 2007.

Terry Goddard, Arizona Attorney General By Dawn R. Williams and Gaylene Morgan, Assistant Attorneys General, Tucson, Attorneys for Petitioner.

Office of the Legal Defender By Robert B. Bushor, Phoenix, Attorneys for Real Parties in Interest.

OPINION

EHRLICH, Judge.

¶ 1 The Arizona Department of Economic Security ("ADES" or "Agency") has petitioned for relief from a trial court order requiring a jury trial in a case in which it seeks the termination of the rights of Vanna C. and Gabriel T. ("the Parents") to their children. At issue is a statute that, before January 1, 2007, gave a parent the choice of a trial to a court or a trial to a jury in a severance action. On January 1, 2007, the delayed repeal clause of the statute became effective, and a parent thereafter was allowed only a trial to a court. The court ordered that the Parents are entitled to a jury trial because the proceedings against them had begun, and their request for a jury had been filed, before December 31, 2006, although the trial would not begin until after January 1, 2007.

FACTUAL AND PROCEDURAL HISTORY

¶ 2 ADES filed a motion to terminate the Parents' rights to their children on September 26, 2006. On October 17, 2006, the trial court noted in a minute entry that the Parents had requested a jury trial. Although the Parents requested that their trial proceed before December 31, 2006, because of the Agency's and the court's other commitments, the trial was scheduled to begin on January 12, 2007. ADES then argued that the Parents would no longer be entitled to a jury trial because the statutory provisions that had permitted a jury trial had been repealed effective December 31, 2006, in favor of a court trial.

¶ 3 The trial court conducted a consolidated hearing on this and other pending parental-termination cases regarding the applicability of the statutory provision for jury trials after January 1, 2007.¹ It concluded that, if ADES had filed a motion to terminate a parent's rights and if the parent had requested a jury trial before December 31, 2006, he or she would be entitled to such a proceeding, even if it would not begin until after January 1, 2007. We agree.

DISCUSSION

1. Jurisdiction and Standard of Review

¶ 4 The petitioner and the real parties in interest ask that we accept jurisdiction of this special action, and we agree that it is appropriate to do so for two reasons. The first reason is that a special action is the proper procedure to challenge the denial of a jury trial. See John C. v. Sargeant, 208 Ariz. 44, 46 ¶ 8, 90 P.3d 781, 783 (App.2004) ("A petition for special action is the appropriate method to challenge the denial of a jury trial."); see also State ex rel. Wangberg v. Smith, 211 Ariz. 101, 103 ¶ 5, 118 P.3d 49, 51 (App.2005) (same). The second reason is that this case presents a purely legal question of first impression and statewide importance. Martin v. Reinstein, 195 Ariz. 293, 300 ¶ 9, 987 P.2d 779, 786 (App.1999); see also ChartOne, Inc. v. Bernini, 207 Ariz. 162, 165-66 ¶¶ 8-9, 83 P.3d 1103, 1106-07 (App. 2004) (Questions of law are "particularly appropriate for special action review," as are questions "of statewide importance and of first impression." (Citations omitted.)).

¶ 5 ADES challenges the trial court's interpretation of a statutory design. This calls into question legal issues, which we review de novo. Douglas v. Governing Bd. of Window Rock Consol. Sch. Dist. No. 8, 206 Ariz. 344, 346 ¶ 4, 78 P.3d 1065, 1067 (App.2003).

2. The Statutory Scheme

¶ 6 Whether there shall be a trial by jury in a state civil action is determined by the individual state. See Hawkins v. Bleakly, 243 U.S. 210, 216, 37 S.Ct. 255, 61 L.Ed. 678 (1917) ("The state of Iowa, therefore, is as much at liberty as any other state to abolish or limit the right of trial by jury."); Walker v. Sauvinet, 92 U.S. 90, 92, 23 L.Ed. 678 (1875) ("The States, so far as [the Seventh] Amendment is concerned, are left to regulate trials in their own courts in their own way."); Olesen v. Trust Co. of Chicago, 245 F.2d 522, 524 (7th Cir.) ("Trial by jury in civil actions in state courts may be modified by a state or abolished altogether." (Citations omitted.)), cert. denied, 355 U.S. 896, 78 S.Ct. 270, 2 L.Ed.2d 193 (1957); see generally Colgrove v. Battin, 413 U.S. 149, 152-56, 93 S.Ct. 2448, 37 L.Ed.2d 522 (1973). The Arizona Constitution does not mandate that there be a jury trial for parental-termination proceedings, but the Legislature passed such a provision. Monica C. v. Ariz. Dep't of Econ. Sec., 211 Ariz. 89, 93 ¶ 17, 118 P.3d 37, 41 (App.2005) ("Neither the Arizona Constitution nor the federal constitution requires a jury trial for severance proceedings, although some states (including Arizona) have made that provision on a statutory basis." (citation omitted)); see also John C., 208 Ariz. at 46-47 ¶ 11, 90 P.3d at 783-84. "Indeed, until [Arizona Revised Statutes] A.R.S. § 8-223 was amended in 2003, there was no ability or authority for a court to convene a jury for a severance proceeding, let alone a constitutional mandate that required a jury." Monica C., 211 Ariz. at 93 ¶ 17, 118 P.3d at 41 (emphasis and footnote omitted). Nonetheless, "[w]hile the right to a jury in a severance trial is statutory rather than constitutional, it is an important right. Rothweiler v. Superior Court, 100 Ariz. 37, 47, 410 P.2d 479, 486 (1966) (`The right to a jury trial should be jealously guarded and preserved by the courts, whether granted by the constitution or statutes.')." John C., 208 Ariz. at 46-47 ¶ 11, 90 P.3d at 783-84.

¶ 7 In amending A.R.S. § 8-223, the Arizona Legislature provided that, effective December 18, 2003, "[a] hearing to terminate parental rights that is held pursuant to [A.R.S. § ] 8-537 or [A.R.S. § ] 8-863 shall be tried to a jury if a jury is requested by a parent, guardian or custodian whose rights are sought to be terminated." 2003 Ariz. Sess. Laws, ch. 6, § 3. It included in the statute, however, a "delayed repeal clause" that the statute would remain in effect only until January 1, 2007. 2003 Ariz. Sess. Laws, ch. 6, § 45.

¶ 8 At the same time, the Legislature passed first and second versions of A.R.S. § 8-537 (Supp.2003) and A.R.S. § 8-863 (Supp.2003). The first versions were to remain in effect through December 31, 2006. The second versions became effective on January 1, 2007. The first version of A.R.S. § 8-863(B) provided that "[t]he court or jury may terminate the parental rights of a parent if the court or jury finds by clear and convincing evidence one or more of the grounds prescribed in § 8-533." The second version of A.R.S. § 8-863(B) provides that only the court may act. Similarly, the first version of A.R.S. § 8-537(B) provided that, if the petition to terminate parental rights is contested, a hearing shall be held, and "[t]he court's or jury's findings with respect to grounds for termination shall be based upon clear and convincing evidence," but the second version addresses only the court's findings.

3. Legislative Intent

¶ 9 This court's "primary goal in interpreting statutes is to discern and give effect to legislative intent." John C., 208 Ariz. at 46 ¶ 10, 90 P.3d at 783 (quoting Hobson v. Mid-Century Ins. Co., 199 Ariz. 525, 529 ¶ 8, 19 P.3d 1241, 1245 (App.2001)). We look first to the plain language of the statute as the best evidence of that intent. Zamora v. Reinstein, 185 Ariz. 272, 275, 915 P.2d 1227, 1230 (1996); see also Brunet v. Murphy, 212 Ariz. 534, 539 ¶ 20, 135 P.3d 714, 719 (App.2006) ("We interpret statutes according to their plain meaning." (Citation omitted.)).

¶ 10 ADES argues that the "plain language" of the statute supports its position that the right of a parent to have a jury decide whether to terminate a parent-child relationship exists only until December 31, 2006. Conversely, the Parents argue that the "obvious conclusion" to be gleaned from the statutory design is that, while the right to have a jury trial does end on December 31, 2006, if a jury proceeding is sought before that date, it is of no consequence when the trial in fact proceeds. To us, however, the language of the statute does not make clear the legislative intent on this particular issue.²

4. A.R.S. § 1-244

¶ 11 The Legislature has declared that "[n]o statute is retroactive unless expressly declared" in the statute itself. A.R.S. § 1-244. There is no such provision in the statutes that we are addressing. "The exception to this rule, however, is that statutory changes in procedures or remedies may be applied to proceedings already pending except where the statute affects or impairs vested rights." Wilco Aviation v. Garfield, 123 Ariz. 360, 362, 599 P.2d 813, 815 (App. 1979).

¶ 12 ADES maintains that the version of the statutes in effect until January 1, 2007, pertains to a procedure "affect[ing] merely who decides a case," and, therefore, the version effective as of January 1, 2007, may be applied even to those cases in which a motion to terminate parental rights and the parent's election of a jury trial were filed before that date. It relies in part on Goldman v. Kautz, 111 Ariz. 431, 531 P.2d 1138 (1975).

¶ 13 The court in Goldman addressed A.R.S. § 22-320, which, as quoted by the court, provided:

A trial by jury shall be had if demanded by either the state or defendant. Unless the demand is made before commencement of the trial, a trial by jury shall be deemed waived.

Id. The court wrote:

We do not think the quoted section grants a substantive...