Majority
On February 4, 2014, the court found "overwhelming evidence to suggest that the minor ha[d] been exaggerating his responses" and concluded that Albert had attained competence. On February 20, 2014, Albert admitted to threatening a public officer (Pen. Code, § 71 ) and assault by means of force likely to produce great bodily injury ( id. , § 245, subd. (a)(4)) pursuant to an agreement with the prosecution to dismiss the remaining counts. At that time, Albert's habeas corpus petition, which he had filed in September 2013, was denied as moot. On March 15, 2014, the court declared Albert a ward under Welfare and Institutions Code section 602 and ordered him removed from juvenile hall and placed in a secure group home or a specific juvenile camp.
Albert filed a timely appeal challenging the length of his detention on due process grounds, among other claims. The Court of Appeal rejected each of Albert's claims and affirmed the judgment subject to one probation condition modification. In affirming the judgment, the court disagreed with Jesus G. , which held that a violation of the Protocol's 120-day limit on detention created a rebuttable presumption that the detention violated due process. ( Jesus G. , supra , 218 Cal.App.4th at p. 174, 159 Cal.Rptr.3d 594 .) We granted review.
There is no analogous comprehensive statutory scheme implementing Jackson and Davis for incompetent minors. Welfare and Institutions Code section 709, subdivision (c), provides that wardship proceedings shall be suspended for incompetent minors "for a period of time that is no longer than reasonably necessary to determine whether there is a substantial probability that the minor will attain competency in the foreseeable future, or the court no longer retains jurisdiction." During this period of time, "the court may make orders that it deems appropriate for services ... that may assist the minor in attaining competency." (Welf. & Inst. Code, § 709, subd. (c).) But there is no clear statutory authority governing placement of an incompetent minor in an appropriate treatment facility, review of a minor's progress toward attaining competency, or maximum periods of commitment for a minor. The author of the bill enacting section 709 acknowledged as much. (See Assem. Com. on Public Safety, Analysis of Assem. Bill No. 2212 (2009-2010 Reg. Sess.) as amended Apr. 8, 2010, p. 10 ["[T]his bill codifies
I
Defendant Albert C. contends that detention beyond the protocol's 120-day limit presumptively violates due process, as In re Jesus G. (2013) 218 Cal.App.4th 157 , 174, 159 Cal.Rptr.3d 594 ( Jesus G. ) held. In this case, the Court of Appeal disagreed with Jesus G. and held that "the 120-day limit on detention in the Protocol lacks the force of law and it therefore does not define due process." We hold that although trial courts are not barred from adopting such protocols as guidance or as local rules, the Court of Appeal below was correct that the protocol does not presumptively or otherwise define due process. Further, we decline to decide whether the length of detention in this case violated due process and instead hold that any violation was not prejudicial in light of the juvenile court's finding of malingering.
I
n June 2012, when Albert C. was 14 years old, the Los Angeles County District Attorney filed a petition to have him declared a ward of the juvenile court under Welfare and Institutions Code section 602. The petition
On February 13, 2013, after Albert turned 15, he turned himself in to the Los Angeles County Sheriff's Department. The next day, the district attorney filed a second wardship petition against him. The petition alleged that Albert had committed
In May 2013, the court ordered the probation department to consider the least restrictive placement options for Albert during the suspension of his delinquency proceedings. In June, the probation department indicated that Albert might be placed at a secure group home under the care of the department of children and family services, since he was also under dependency jurisdiction, and the court ordered the probation department and the department of children and family services to pursue that placement. Despite regular prodding by the court, the departments never found Albert a place at a secure group home during the 354-day suspension of proceedings. Albert remained detained in juvenile hall.
In October 2013, the court expressed concern that there was no way to ensure that Albert was not malingering, and it appointed an expert to reevaluate Albert's competency. In mid-November, the court discovered that Albert's attorney had instructed the appointed expert not to evaluate Albert due to a conflict, and it appointed another expert. Upon receiving the expert's report in January 2014, the court questioned its conclusion that Albert
II
In Jackson v. Indiana (1972) 406 U.S. 715 , 738, 92 S.Ct. 1845 , 32 L.Ed.2d 435 ( Jackson ), the high court found that indefinite detention of an incompetent individual violates due process. At the time of Jackson's commitment, "nothing in the record ... even point[ed] to any possibility" that he could regain competence. ( Id. at p. 726, 92 S.Ct. 1845 .) Yet "Jackson was not afforded any 'formal commitment proceedings addressed to [his] ability to function in society,' or to society's interest in his restraint, or to the State's ability to aid him in attaining competency through custodial care or compulsory treatment, the ostensible purpose of the commitment. At the least, due process requires that the nature and duration of commitment bear some reasonable relation to the purpose for which the individual is committed." ( Id . at p. 738, 92 S.Ct. 1845 , fn.omitted.)
Jackson adopted two standards to guide courts in such circumstances. First, "a person charged by a State with a criminal offense who is committed solely on
We have not had occasion to consider whether the rule of reasonableness articulated in Jackson and Davis applies to the detention of juveniles. But the Courts of Appeal have held or assumed that Jackson and Davis apply in such situations. (See Jesus G. , supra , 218 Cal.App.4th at p. 171, 159 Cal.Rptr.3d 594 ["We conclude that the guidelines of the Protocol are in line with constitutional requirements of due process as set forth in Jackson and Davis inasmuch as they address the problem of an indefinite commitment and the necessity of making a prognosis as to the likelihood of attaining competence."]; In re Mary T. (1985) 176 Cal.App.3d 38 , 42-44, 221 Cal.Rptr. 364 [citing Jackson and Davis , and noting that "juveniles have all of the due process protections afforded to any person referred for possible involuntary civil commitment"].) The Court of Appeal below likewise assumed the applicability of
Jackson and Davis set constitutional limits defining when a detention becomes so lengthy or unjustified as to violate due process. But neither Jackson nor Davis requires any court to make the reasonableness determination strictly on a case-by-case basis, with no presumption, time limit, or general guidance. A protocol, local rule, or state statute may adopt a detention policy that is more protective of a juvenile's rights than Jackson and Davis ; neither case requires any jurisdiction to detain an incompetent minor at all.
Indeed, neither Jackson nor Davis rejected statutory time limits, presumptions, or flexible guidance concerning detention as unconstitutional. Jackson did not adopt any constitutional time limits "[i]n light of differing state facilities and procedures and a lack
IV
Separate and apart from the significance of the Protocol, Albert and the Attorney General disagree on whether the record shows sufficient evidence of progress toward attaining competency and, in view of that evidence, whether the length of Albert's detention violated due process under Jackson and Davis . But we need not decide whether the length of Albert's detention violated due process because any violation would not warrant reversal of his wardship adjudication in light of the juvenile court's finding of malingering. This finding is not within the scope of our review, and we may assume the Court of Appeal correctly determined the juvenile court did not err in finding that Albert was
For the reasons above, we affirm the judgment of the Court of Appeal.
We Concur:
Cantil-Sakauye, C.J.
Werdegar, J.
Chin, J.
Corrigan, J.
Cuéllar, J.
Kruger, J.
On February 15, 2013, before Albert's arraignment on the second petition, his defense counsel declared a doubt as to his competency. The court, relying on "behavior in court based on the defense report, and ... other issues that the court has seen Albert exhibit," declared a doubt as to Albert's competency, ordered the delinquency proceedings suspended, appointed an expert to evaluate Albert, and set a competency hearing. In the meantime, Albert was detained.
The expert, Dr. Praveen Kambam, submitted a written report to Albert's attorney dated March 17, 2013. In the report, he found "with reasonable medical certainty" that Albert was unable to consult with counsel, assist in preparing his defense, or demonstrate a rational and factual understanding of his delinquency proceedings. Dr. Kambam also found that Albert could attain competency within 12 months "with the proper mental health services and education." Two days later, based on the contents of this report, the court found that Albert was not presently competent and continued the suspension of proceedings.
Between March 2013 and February 2014, while proceedings were suspended and as Albert received weekly competency attainment training, the court ordered Albert detained in juvenile hall on public safety grounds over his attorney's objections. The court acknowledged that the Presiding Judge of the Los Angeles County Superior Court, Juvenile Division, had issued a memorandum in January 2012 that said incompetent minors in Los Angeles County "may not be held in a juvenile hall to participate in attainment services for more than one hundred and twenty days." (Nash, P.J., Amended
In In re Davis (1973) 8 Cal.3d 798 , 106 Cal.Rptr. 178 , 505 P.2d 1018 ( Davis ), we "adopt[ed] the rule of the Jackson case that no person charged with a criminal offense and committed to a state hospital solely on
Relying on Jesus G. , Albert argues that the Protocol's 120-day limit on provision of competency attainment services for detained minors establishes a rebuttable presumption that an incompetent minor's detention violates due process under Jackson and Davis whenever it exceeds 120 days. (See Jesus G. , supra , 218 Cal.App.4th at pp. 170-171, 174, 159 Cal.Rptr.3d 594 .) Although the parties dispute whether there was evidence of progress toward attaining competency during the first 120 days of Albert's detention, the Protocol simply limits detention to 120 days, and Albert contends that any detention beyond that limit presumptively violates due process.
Like this case, Jesus G. involved a wardship petition filed in Los Angeles County Superior Court. The juvenile court found Jesus incompetent, and over the course of the proceedings, he was detained for more than a year. ( Jesus G. , supra , 218 Cal.App.4th at pp. 164, 166-167, 159 Cal.Rptr.3d 594 .) The Court of Appeal found that the juvenile court violated several provisions of the same Protocol relevant to Albert's case. ( Id. at pp. 171-174, 159 Cal.Rptr.3d 594 .) Jesus G. held that the Protocol implemented Welfare and Institutions Code section 709 as well as the requirements of Jackson and Davis , and found that "a violation of the Protocol is presumptively a violation of constitutional rights" that is "rebuttable based on the facts of a given case." ( Jesus G. , at p. 174, 159 Cal.Rptr.3d 594 .) Because the case had been mooted by Jesus's release from detention, the court did not decide whether the presumption had been rebutted under the circumstances. ( Id. at p. 175, 159 Cal.Rptr.3d 594 .)
The Protocol may serve as useful guidance concerning the placement, detention, and treatment of minors found incompetent in delinquency proceedings. But it does not independently give rise to any claim for relief because it does not by itself have any binding force of law. The Protocol was not adopted as a local rule. (See Code Civ. Proc., §§ 575.1, 575.2 ; Gov. Code, § 68070 ; In re Gray (2009) 179 Cal.App.4th 1189 , 1201, 102 Cal.Rptr.3d 551 ["In the absence of a valid local rule of court, we find no authority for a superior court to adopt ... a [filing] requirement
At the same time, we hold that the Court of Appeal erred in concluding that the Protocol's limit on detention "conflicts with" with the holding in Jackson and the language of Welfare and Institutions Code section 709, subdivision (c), which says that "all proceedings shall remain suspended for a period of
Nor does Welfare and Institutions Code section 709 foreclose the adoption of such a protocol or local rule. The statute may be amended in the future; the Judicial Council's Family and Juvenile Law Advisory Committee has recommended changes to the law (Assem. Com. on Appropriations, Analysis of Assem. Bill No. 2695 (2015-2016 Reg. Sess.) as amended Apr. 19, 2016, p. 2), and the parties have informed us of two bills introduced in the current legislative session that would amend it (Assem. Bill No. 689 (2017-2018 Reg. Sess.); Assem. Bill No. 935 (2017-2018 Reg. Sess.)). But, as currently written, section 709 requires suspension of proceedings "[i]f the court finds substantial evidence raises a doubt as to the minor's competency" (Welf. & Inst. Code, § 709, subd. (a) ) and authorizes the court to order appropriate services for the minor during the suspension of proceedings
Cases cited
- Hall v. Superior Court 133 Cal.App.4th 908 p. 247
- Jackson v. Indiana 92 S.Ct. 1845 p. 249, p. 489, p. 902, p. 906
- In re Jesus G. 218 Cal.App.4th 157 p. 486, p. 905
- People v. R.V. 61 Cal.4th 181 p. 489
- Dusky v. United States 362 U.S. 402 p. 489, p. 907
- Timothy J. v. Superior Court 150 Cal.App.4th 847 p. 489
- People v. Mary T. 176 Cal.App.3d 38 p. 490
- In re Mille 182 Cal.App.4th 635 p. 491
- In re George 65 Cal.App.3d 57 p. 491
- Elkins v. Superior Court 41 Cal.4th 1337 p. 493
- James H. v. Superior Court 77 Cal.App.3d 169 p. 493
- In re Davis 8 Cal.3d 798 p. 902
- In re Gault 387 U.S. 1 p. 903
- In re Gray 179 Cal.App.4th 1189 p. 904
- People v. Martinez 22 Cal.4th 750 p. 905
- People v. Godlewski 22 Cal.2d 677 p. 905
- Crockett v. Superior Court 14 Cal.3d 433 p. 905
- Alfredo A. v. Superior Court 6 Cal.4th 1212 p. 905
- In re Johnson 35 Cal.App.4th 160 p. 905
- Chapman v. California 386 U.S. 18 p. 907