Lead Opinion
OPINION
This is a direct appeal from a common pleas court order invalidating a statutory provision giving grandparents standing to seek custody of their minor grandchildren. The question presented is whether the parents’ fundamental rights are violated by the conferral of standing based solely on a parental separation lasting at least six months.
The material facts are uncontested. Ap-pellees G.J.P. and A.P. (“Parents”) married in 2006 and had three children, all of whom are still minors. Parents separated in October 2012, albeit they did not initiate divorce proceedings. Because they were in agreement as to custody matters while living separately, Parents never sought court involvement and no custody order was issued prior to this litigation. In December 2012, Parents mutually agreed that all contact between the children and their paternal grandparents, appellants D.P. and B.P. (“Grandparents”), should be discontinued.
In October 2014, Grandparents commenced this action by filing a complaint in the county court naming Parents as defendants and seeking partial physical custody of the minor children. See 23 Pa.C.S.
In addition to situations set forth in section 5324 (relating to standing for any form of physical custody or legal custody), grandparents and great-grandparents may file an action under this chapter for partial physical custody or supervised physical custody in the following situations:
(1) where the parent of the child is deceased, a parent or grandparent of the deceased parent may file an action under this section;
(2) where the parents of the child have been separated for a period of at least six months or have commenced and continued a proceeding to dissolve their marriage; or
(3) when the child has, for a period of at least 12 consecutive months, resided with the grandрarent or great-grandparent, excluding brief temporary absences of the child from the home, and is removed from the home by the parents, an action must be filed within six months after the removal of the child from the home.
23 Pa.C.S. § 5325 (emphasis added).
In November 2014, the court issued an interim custody order granting shared legal custody to Parents and directing that Grandparents continue to have no contact with the children. Thereafter, Parents filed a motion to dismiss, alleging that the portion of paragraph (2) of Section 5325 emphasized above violates their Fourteenth Amendment rights to due process and equal protection. Grandparents submitted a responsive pleading observing it was undisputed that Parents had been separated for at least six months.
After briefing and oral argument, the court issued an order granting Parents’ motion and dismissing the complaint. In an accompanying opinion, the court agreed with Parents that Section 5325(2) violates their constitutional rights. The court recognized, initially, that Parents have a fundamental liberty interest in, raising their children as thеy see fit. See D.P. v. G.J.P., No. 1750 of 2014-D, slip op. at 2 (C.P. Westmoreland Sept. 8, 2015) (quoting Troxel v. Granville,
Applying strict scrutiny, the court specified that the state has a compelling interest, exercised through its parens patriae powers, in protecting the welfare of chil
In terms of precedent, the common pleas court recited that, in Hiller v. Fausey,
As to this latter point, the court referred to Herron v. Seizak,
On direct appeal to this Court,
Grandparents observe that Hiller pointed to this aspect of the former Section 2311 as being salient in light of the 1985 enactment’s underlying legislative policy to promote “continuing contact with ... grandparents when a parent is deceased, divorced or separated.” See Brief for Appellants at 11 (citing Hiller,
As for equal protection, Grandparents rely largely on Schmehl, which rejected an equal protection challenge to grandparent standing under Section 5312.
Parents’ argument largely tracks the common pleas court’s analysis with regard to both the due process and equal protection inquiries. Briefly, they note it is established law that, because their parental
Addressing the topic of potential harm to the children, Parents offer that, in pre-Hiller cases where the state exercised its parens patriae authority, the fitness of the parent was in question due to abuse, neglect, delinquency, or a failure to perform рarental duties. See id. at 29 (citing Ellerbe v. Hooks,
Insofar as equal protection is concerned, Parents recognize that Schmehl is the decision most closely related to the present scenario and that the Court upheld the classification drawn by former Section 5312.. Parents do not argue that Schmehl was wrongly decided or that it should be overruled, They do contend, however, that the ease is distinguishable because: it did not involve a joint decision by both parents,- but rather, a situation in which a divorced father supported his parents’ request for visitation; and the parents were already subject to a custody order. By contrast, Parents indicate they were never subject to a custody order before Grandparents filed their complaint, nor do they disagree on matters of custody or visitation. Further, they assert that no reason has been alleged why they are less capable than non-separated parents of making appropriate decisions about their children’s welfare.
Parents suggest, as well, that many couples-who live together lead dysfunctional homes and make poor parenting decisions,
As reflected in our cases and in Troxel, Grandparent visitation and custody statutes authorize state action and, as such, they are subject to constitutional limitations. Accord, e.g., In re Herbst,
The basic features of strict scrutiny, relating to whether the governmental action is narrowly tailored to a compelling state interest, see Hiller,
Although this Court’s most relevant precedent consists of Hiller and Schmehl, neither decision is directly on point. Hiller arose in a situation where the mother had died and the maternal grandmother sought to continue an existing relationship with the minor child. This Court upheld the common pleas court’s application of the statute, 23 Pa.C.S. § 5311 (repealed), observing that the provision was materially limited in scope to the deceased-parent scenario and only provided for custody in favor of a grandparent ,on the deceased parent’s side, see Hiller,
Schmehl is closer to the present matter in that it concerned Section 5312, whose reach was defined by language similar to that which appears in paragraph (2) of Section 5325. Compare 23 Pa.C.S. § 5312 (repealed) (allowing for grandparent partial custody or visitation during “proceedings for dissolution ... or when parents have been separated for six months or more”), 'with 23 Pa.C.S. § 5325(2) (giving grandparents standing “where the parents of the child have been separated for a period of at least six months or. have commenced and continued a proceeding to dissolve their marriage”). Still, Schmehl involved divorced parents, see generally Schmehl,
In spite of these differences, Hiller and Schmehl do inform our inquiry. Hiller noted that common pleas courts are required to apply a рresumption'that parents act in their children’s best interests, and that such presumption applies regardless of whether the statute facially necessitates it. See Hiller,
By referring'to the established presumption in favor of fit parents and Section 5311’s requirements, Hiller rested its holding, in significant part, on considerations relating to the preliminary question of standing.
Schmehl’s understanding of the aspect of Section 5312 at issue in that matter was similarly couched. See id. at 584-85,
The focus on standing is sharpened even further in the present controversy: the common pleas court, unlike in Hiller and Schmehl, never reached the complaint’s merits because it determined that the statutory basis for standing was unconstitutional. In this respect, it is notable that the redrafted Chapter 53, more expressly than its predecessor, segregates grandparent standing requirements (Section 5325) from merits considerations (Section 5328).
The potential for such bifurcation serves an important screening function in terms of protecting parental rights. As suggested, it facilitates early dismissal of complaints, thereby relieving families of the burden of litigating their merits where a sufficient basis for standing is absent. Accord Rideout v. Riendeau,
Again, absent factors such as abuse, neglect, or abandonment, the law presumes parents are fit and, as such, that their parenting decisions are made in their children’s best interests. See Parham v. J.R.,
Consequently, the question becomes whether the state may exercise its interest in fostering grandparent-grandchild relationships over the objection of presumptively fit parents solely on the basis that they have been separated for at least six months.
The stated goal is not insignificant. In the event of a major disruption to the family environment, such as where there is parental abuse, neglect, substance abuse, mental illness, or abandonment, the interest may be especially pronounced. See Bennett v. Jeffreys,
Additionally, and crucially for present purposes, we cannot assume that the rationale supporting the holdings in those cases applies equally to situations involving parental separation. As this case shows, when parents separate they do not always initiate divorce proceedings or otherwise request court involvement in their family affairs. See generally Brief for Appellees at 35-36 (“Parents are merely separated and not subject to a custody order.... Parents have the ability to reconcile.”). Although separation may involve a disruption of the nuclear family unit, the children are often shielded from having to participate in court proceedings and are, likewise, free from having to assimilate the knowledge that the government is now involved in their family life. Cf. Frame v. Nehls,
As well, unlike in Hiller, separation necessarily implies that both parents are still alive, which in turn has several consequences. First, there is no void stemming from the death of a parent. Second, parental death cannot be the cause of the severance or non-existence of a grandparent-grandchild relationship. Finally, when both parents are living there is a possibility — as illustrated by this case — that the parents will be in agreement that their children should not maintain contact with particular third parties.
In light of the foregoing, we conclude that the fact of a parental separation for six months or more does not render the state’s parens patriae interest sufficiently pressing to justify potentially disturbing the decision of presumptively fit parents concerning the individuals with whom their minor children should associate. It follows that the infringement upon parental rights worked by Section 5325 is not narrowly tailored to a compelling governmental interest, as the provision could have been drafted to exclude separation as an independent basis for grandparent standing. See Danson v. Casey,
Although we have concluded that Section 5325 is not narrowly tailored, it is evident from our discussion that this determination rests solely on the conferral of standing under paragraph (2),' the only aspect of Section 5325 that has been brought into question in this action. Moreover, paragraph (2) is itself divided into two parts and phrased in the disjunctive, as it provides for grandparent standing “where the parents of the child have been separated for a period of at least six months or have commenced and cоntinued a proceeding to dissolve their marriage[.]” 23 Pa.C.S. § 5325(2) (emphasis added). It is noteworthy that these are separate and independent preconditions for grandparent standing, since it is possible for parents who have not been separated for at least six months to commence and continue a dissolution proceeding Thus, the difficulties apparent in the first half of paragraph (2) do not imply that the second half — or, for that matter, paragraph (1) or paragraph (3) — is also problematic.
The above informs our decision concerning the appropriate remedy, and in particular, the question of severance. In Ayotte v. Planned Parenthood of Northern New England,
This comports with our own practice. Although there is no express severability provision contained in Act 112 of 2010 or any aspect of the Domestic Relations Code applicable to Chapter 53, the Statutory Construction Act directs, as general policy, that all statutory provisions are presumed to be severable, and that if any provisión is held to be invalid the remainder of the statute which contains it
shall not be affected thereby, unless the court finds that the valid provisions of the statute are so essentially and inseparably connected with, and so depend upon, the void provision or application, that it cannot be presumed the General Assembly would have enacted the remaining valid provisions without the void one; or unless the court finds that the remaining valid provisions, standing alone, are incomplete and are incapable of being executed in accordance with the legislative intent.
1 Pa.C.S. § 1925. Thus, severance is appropriate where the remaining provisions are capable of execution in accordance with legislative intent. See, e.g., Common
As noted, paragraphs (1) and (3) of Section 5325, as well as the second half of paragraph (2), set out separate and distinct bases for grandparent standing that do not depend on 'the first half of paragraph (2), that is, on the parents having been separated for at least six months. Since these are not “essentially and inseparably connected with” the separation provision, they are capable of execution and may continue in force absent the first half of paragraph (2). Such provisions, moreover, are neither implicated by the underlying, facts nor challenged by the parties.
As concerns the second half of paragraph (2) in particular, invalidating it per the suggestion forwarded by Justices Baer and Wecht would require reaching beyond the bounds of this dispute and declаring Section 5325 unconstitutional more broadly than is necessary to resolve the appeal. It would be premature — and thus improper— to make a wide-reaching constitutional declaration along these lines in the present context in which no challenge to the standing requirements relative to divorced parents has been raised or briefed. We thus differ with any suggestion that we are somehow “avoiding” this issue. Concurring and Dissenting Opinion, at 219-20 n.2 (Baer, J.).
More generally, it should be recalled that our “adjudicatory process is structured to cast a narrow focus on matters framed by litigants before the Court in a highly directed fashion,” Sernovitz v. Dershaw, — Pa. -, - n. 13,
(quoting Upjohn Co. v. United States,
Accordingly, we . now sever the first half of paragraph (2) from the remainder of paragraph (2) and the remainder of Section 5325 generally.
The order of the Court of Common Pleas dismissing Grandparents’ complaint is affirmed.
Justices Todd, Donohue and Dougherty join the opinion.
Justice Baer files a concurring and dissenting opinion.
Justice Wecht files a concurring and dissenting opinion.
Notes
. The Domestic Relations Code comprises Title 23 of the Pennsylvania Consolidated Statutes. Section 5325 is located in Chapter 53, which governs child custody disputes. See 23 Pa.C.S. § 5321. The most recent version of the chapter was enacted in 2010. See Act of Nov. 23, 2010, P.L. 1106, No. 112, Section 2 (as amended 23 Pa.C.S. §§ 5321-5340). That legislation repealed and replaced the prior version, enacted in 1985, which had been codified at Sections 5301 through 5315.
. Section 5324, referred to in the initial portion of Section 5325 above, gives grandparents standing to seek сustody in various situations not implicated here, such as where a child has been adjudicated dependent or is at substantial risk of harm from the parents. See 23 Pa.C.S. § 5324(3).
. Grandparents initially appealed to the Superior Court, where the matter was docketed at No. 1577 WDA 2015. The intermediate court transferred the appeal to this Court, which has exclusive appellate jurisdiction of common pleas court decisions holding that a statute is unconstitutional. See 42 Pa.C.S. § 722(7); see also Pa.R.A.P. 751 (relating to the transfer of erroneously-filed cases): While the matter was pending in the Superior Court, Parents notified the Attorney General that a statute’s constitutionality had been drawn into question. See Pa.R.A.P. 521(a) (requiring such notice). However, the Attorney General has elected not to participate.
. Section 5301 was repealed by the 2010 enactment, see supra note 1, and there is no expression of legislative policy in the present version of Chapter 53.
. Section 5312 stated:
In all proceedings for dissolution, subsequent to the commencement of the proceeding and continuing thereafter or when parents have been separated for six months or more, the court may, upon application of the parent or grandparent of a party, grant reasonable partial custody or visitation rights, or both, to the unmarried child if it finds that visitation rights or partial custody, or both, would be in the best interest of the child and would not interfere with the parent-child relationship. The court shall consider the amount of personal contact between the parents or grandparents of the party and the child prior to the application.
23 Pa.C.S. § 5312 (repealed).
. Parents indicate there is a good reason to consider such rights fundamental, not only because of the traditional right of parents to "establish a home and bring up children,” Brief for Appellees at 15 (quoting Meyer v. Nebraska, 262 U.S. 390, 399,
. Visitation and custody are distinct concepts. See Hiller,
. Strict scrutiny is separately triggered under the Equal Protection Clause if the legislation employs a suspect classification. See Johnson v. California,
. “Parens patriae, literally 'parent of the country,' refers ... to the role of the state as sovereign and guаrdian of persons under a legal disability to act for themselves such as juveniles, the insane, or the unknown.” West Virginia v. Chas. Pfizer & Co.,
. Aside from issues relating to family relationships, the government's interest in protecting children and promoting their welfare may also be served via its police power as reflected in enactments regulating child labor, requiring school attendance, vaccines, and motor-vehicle child safety seats, and imposing criminal liability for corrupting or otherwise harming minors. Accord Prince v. Massachusetts,
.The statute also encompasses great-grandparents. For convenience we refer only to grandparents. See Hiller,
. Section 5311 was similar to Section 5312, see supra note 5, although it referred to a situation where the parent was deceased. See id. at 344 n. 1,
. Grandparent standing to seek an order directing custody or visitation is a creature of statute, as grandparents generally lacked substantive rights at common law in relation to their grandchildren. Accord Hiller,
. Thе 1985 version of Chapter 23 also had sections nominally devoted to standing and merits, see 23 Pa.C.S. §§ 5313 (repealed), 5303 (repealed), but the merits section was very brief and such considerations were intermixed in Sections 5311 and 5312.
. Hiller also took notice of the costs associated with custodial litigation, indicating that grandchildren are not benefitted when "grandparents force their way into [their] lives through the courts, contrary to the decision of a fit parent,” and adding that such consideration was "especially resonant given the strain that custody litigation places on the children as well as parents and grandparents[.]” Hiller,
. The record before us lacks any suggestion tending to rebut the presumption.
. We recognize that parental agreement of this nature is possible with divorced parents and parents who have commenced marriage dissolution proceedings. Whether the standing provisions of Chapter 53 as revised are constitutional in such situations should be developed going forward as cases involving those circumstances arise.
. In view of our disposition, we need not reach the Equal Protection claim.
. To be precise, the text, “have been separated for a period of at least six months , or” is inoperative and paragraph (2), 23 Pa.C.S. § 5325(2), as a consequence of severance, now only provides for standing “where the parents of the child have commenced and continued a proceeding to dissolve their marriage[.]”
Concurrence in Part
concurring and dissenting.
I concur in the result in part, I would hold that the statutory provision at issue,
The majority correctly states that: 1) allowing grandparents standing to intervene in custody cases implicates the fundamental right of parents to exercisе care, custody, and control over their children and therefore we review this challenge under a strict scrutiny standard; 2) the state has a compelling interest in protecting children; and 3) because we are dealing with a parent’s fundamental right to limit access to her child, the state-granted standing to Grandparents, when parents are separated or divorced, must be narrowly tailored to advance the state’s compelling interest in safeguarding youth to be constitutional. While I join the majority’s proper pronouncement of the applicable law, I respectfully do not agree with the majority’s application of the law to Subsection 5325(2).
1. Fundamental Right
To assess Parents’ challenge to Subsection 5325(2) as unconstitutionally infringing on their due process rights, we must first determine what parental prerogative is being infringed by allowing grandparents standing to seek court-ordered custody. I agree with the majority that Subsection 5325(2) implicates parents’ fundamental right to be free from litigation regarding their children, especially in light of the nаture of child custody litigation and the negative effects it can have on children. See Maj. Op. at 213 (explaining that the strain caused by child custody litigation itself can be an infringement of a parent’s rights). Therefore, allowing grandparents to come into court infringes on parents’ fundamental rights to raise their children, and specifically, their right to keep then children out of court, including during the time prior to the court reaching the merits of the case. It is worthy of emphasis that throughout child custody proceedings, children may be required to participate in physical and mental examinations, be present for home evaluations, provide in-court testimony, etc.
2. Compelling state interest
Because of the fundamental rights at issue, the next step in the analysis is to define the compelling state interest. It is beyond cavil that the state has a “longstanding interest in protecting the health and emotional welfare of children.” Hiller v. Fausey,
3. Narrowly tailored
While Subsection 5325(2) may embody a fair policy decision, we nevertheless must determine whether the state’s infringement on parents’ rights is narrowly tailored to protect children from harm. As discussed above, the infringement at issue here is forcing parents to litigate and justify their custody decisions. The harm sought to be cured is any harm caused by parents limiting contact between grandchildren and children. Thus, for the statute to be narrowly tailored, it must ensure that grandpаrents may hail parents into court only when the grandparents allege they have been precluded from seeing the children and that lack of relationship has caused or will cause the children harm.
I acknowledge that the legislature attempted to tailor the standing statute to situations where children might be particularly benefitted by grandparent relationships by limiting its application to children of separated or divorced parents. However, Subsection 5325(2) is not narrowly tailored to situations where the state’s infringement on parents’ rights is necessary because nowhere in the standing statute does it require grandparents to plead that they have been precluded from seeing their grandchildren and that such preclusion will harm the children. Instead, once grandparents have standing under Subsection 5325(2), the court must take into consideration three factors: 1) the amount of personal contact between the child and the grandparents prior to the filing of the action; 2) whether the award interferes with any pаrent-child relationship; and 3) whether the award is in the best interest of the child. 23 Pa.C.S. § 5328(c)(1). Directing a trial court merely to consider whether the custody award will interfere with a parent-child relationship is not the same thing as precluding such award unless it is necessary to protect the .child. These factors do not require a showing of harm to the child before a court may order custodial time for grandparents.
In summary, I would conclude that Subsection 5325(2) is unconstitutional on its face because it is not narrowly tailored in that it allows for grandparents to force parents into court to litigate their custody decisions without pleading (and proving) the harm to the child necessary to justify infringement on a parent’s fundamental right. Accordingly, I would strike 23 Pa. C.S. § 5325(2) in its entirety.
. I acknowledge that requiring harm is a departure from our holding in Hiller: “[W]e conclude that requiring grandparents to demonstrate that the denial of visitation would result in harm in every [case where a grandparent seeks custody based on the fact that
. I recognize that my ultimate conclusion is at odds with our decision in Schmehl v. Wegelin,
Concurrence in Part
concurring and dissenting.
The majority’s decisiоn relies, in part, upon the fact that the “Parents have never sought court involvement in their family issues and are able to co-parent.” Maj. Op. at 212. Our courts and our law should foster and encourage efforts such as those undertaken here by the parents to co-parent and to resolve differences amicably regarding their children. Whether or not divorce is sought or contemplated, when consensus on child custody can be reached, judicial intrusion upon the fundamental right of fit parents to l'aise their children must be curtailed, lest that intrusion run afoul of our Constitution.
I join the learned majority’s ruling invalidating the portion of 23 Pa.C.S. § 5325(2) that purports to authorize third party intrusion into decision-making by fit parents merely because those parents are separated. I dissent respectfully from the majority’s decision to leave untroubled the remainder of that provision, which approves identical third party intrusion merely because otherwise fit parents happen to be divorced or divorcing.
The majority’s distinction between separated and divorced parents permits it to distinguish Schmehl v. Wegelin,
Try as I might, I cannot conclude that the statute’s problem can be as neatly delimited as the Majority provides.
Marital status — whether married, separated, or divorced — is not simply a crude or rough proxy for parental fitness. It is no proxy at all. At this late date, I would think that our courts, if not our legislature, had moved beyond assumptions and biases against divorced parents, most of whom strive in the face of adversity to be the best parents they can be. To maintain any portion of Section 5325(2) is to deny societal reality, to consign roughly half the population to second-class status, and to stigmatize these citizens and their children. No portion of Section 5325(2) comports with the U.S. Constitution’s due process and equal protection clauses, nor with Troxel v. Granville,
. The Majority cites the sound principle that, "when confronting a constitutional flaw in a statute, we try to limit the solution to the problem." Maj. Op. at 216 (quoting Ayotte v. Planned Parenthood of Northern New England, 546 U.S, 320, 328,
