In re the Marriage of Schneider
¶1 The Uniform Interstate Family Support Act (UIFSA), chapter 26.21A RCW, governs modification of child support obligations in Washington when the initial child support order was entered in a different state but one of the parties lives in Washington. The UIFSA provides that the duration of child support is governed by the laws of the original forum state. Jeffrey Almgren and Carol Schneider divorced in Nebraska and Schneider moved to Washington with the couple’s two children. We hold that the superior court erred by extending the father’s child support obligation past the age of majority by granting postsecondary support for the daughter to attend college. Nebraska law would not have allowed postsecondary support in this case, and the UIFSA provides that the law of the original forum state governs the duration of child support. We reverse the Court of Appeals, which affirmed the trial court, and remand for further proceedings consistent with this opinion.
FACTS AND PROCEDURAL HISTORY
¶2 Carol Schneider (the mother) and Jeffrey Almgren (the father) were divorced in Nebraska in 1997. The couple had two children, Amanda, born December 24, 1990 and D.J.A., born October 31, 1993. The decree of dissolution set child support to continue during each child’s minority. In Nebraska, the age of majority is 19 years. See
¶3 The mother moved with the children to Washington, and the father moved to Minnesota. In December 2005, the mother registered and moved to modify the Nebraska decree in Asotin County under the Uniform Child Custody Jurisdiction and Enforcement Act, chapter 26.27 RCW. The mother also submitted the Nebraska decree and subsequent modifications under a cover sheet for UIFSA documents. The record does not reveal whether the mother also filed a petition to modify child support under the UIFSA. But her petition to modify the parenting plan/residential schedule was based, in part, on changed economic circumstances, including the fact that child support had not been reviewed since 1997. And under “Relief Requested,” the mother asked that the court (1) modify the custody decree/ parenting plan/residential schedule and (2) “[e]nter an order establishing child support in conjunction with the proposed parenting plan/residential schedule. . . .” Clerk’s Papers at 325.
¶4 In January 2007, the Asotin County Superior Court entered an order of child support stating that the obligation would terminate when the children reach 18 or graduate from high school, whichever occurs last, and reserving the right to request postsecondary support. The order was entered without objection by the father regarding the application of the UIFSA or challenge to the trial court’s jurisdiction to modify the Nebraska child support order.
¶5 In January 2009, the mother petitioned for postsecondary educational support for Amanda, who was still 18 and in high school and had been accepted for admission to Eastern Washington University. The father filed a cross motion to modify child support for the younger child downward due to the father’s recent loss of his job. The trial court granted the mother’s motion for postsecondary educational support for Amanda and denied the father’s motion for a downward modification.
¶6 The father moved for reconsideration, raising for the first time the issue of the trial court’s authority under the UIFSA to enter orders extending child support for Amanda beyond the age of majority in Nebraska. After hearing argument, the trial court denied reconsideration. Although recognizing the underlying policy of the UIFSA to prevent forum shopping for child support, the trial court declined to reconsider its jurisdiction, considering the time that had passed since it had entered a child support order in this case with no objection from either party. The trial court ruled that it had jurisdiction to modify its own 2007 child support order, overruled the father’s objections, and entered the findings/conclusions and child support order.
¶7 The father filed a second motion for reconsideration, which was denied. The Court of Appeals affirmed in an unpublished opinion. In re Marriage of Schneider, noted at
ANALYSIS
¶8 A superior court’s statutory authority is a question of law that we review de novo. Okeson v. City of Seattle,
I. A Brief History of the UIFSA
¶9 To understand the issues presented by this case, it is helpful to understand the origin of the UIFSA. The UIFSA was developed in response to federal legislation impacting state child support enforcement laws. Kurtis A. Kemper, Annotation,
¶10 The UIFSA was revised in 1996,2001, and 2008. Id.-, see 9 pt. IB U.L.A. prefatory note at 73 (Supp. 2011). Shortly after the 1996 revision, Congress required all states to adopt the UIFSA in order to remain eligible to receive federal funding for child support enforcement.
¶11 In this case, the ultimate issue presented by the parties is whether the trial court’s award of postsecondary educational support was correct.
II. Subject Matter Jurisdiction
¶12 We first address the threshold issue of the trial court’s authority to enter the 2007. order, which modified support and reserved the mother’s right to seek postsecondary support. Washington and some other states have sometimes treated the trial court’s authority to modify the duration of an out-of-state child support order as an issue of subject matter jurisdiction. See, e.g., In re Marriage of Erickson,
¶13 We reach this issue (even though neither party raised it) in order to decide whether we can properly reach the issues pertaining to the 2009 modification.
a. The trial court had subject matter jurisdiction to modify the Nebraska child support order in 2007
¶14 Washington superior courts have jurisdiction “in all cases ... in which jurisdiction shall not have been by law vested in some other court.” Const, art. IV, § 6. This broad constitutional grant of jurisdiction on the superior courts requires that exceptions to that jurisdiction be narrowly read. Orwick v. City of Seattle,
115 The legislature has limited the superior courts’ authority — not the superior courts ’jurisdiction — to modify another state’s child support order by adopting the UIFSA. See Kemper, supra, § 2. The mother did not meet the statutory conditions to allow the trial court to modify the Nebraska order.
(1) . . . [U]pon petition a tribunal of this state may modify a child support order issued in another state which is registered in this state if, after notice and hearing the tribunal finds that:
(a) The following requirements are met:
(i) The child, the obligee who is an individual, and the obligor do not reside in the issuing state;
(ii) A petitioner who is a nonresident of this state seeks modification; and
(iii) The respondent is subject to the personal jurisdiction of the tribunal of this state; or
(b) This state is either the. state of residence of the child or of a party who is an individual subject to the personal jurisdiction of the tribunal of this state, and all of the parties who are individuals have filed consents in a record in the issuing tribunal for a tribunal of this state to modify the support order and assume continuing, exclusive jurisdiction.
¶16 Here, the conditions of subsection (l)(a)(ii) are not met because the mother as the petitioner is not a “nonresident of this state.” Nor is subsection (l)(b) satisfied because the record does not contain the mother’s or the father’s consents filed in the Nebraska tribunal that issued the original child support order. Therefore, neither of the conditions that would have allowed the trial court to modify the Nebraska child support order appears to have been met.
¶17 The Court of Appeals considered a similar case in Erickson, in which, as here, the obligee mother and children lived in Washington, but the obligor father lived in another state.
b. The father waived personal jurisdiction objections in the 2007 proceeding
¶18 There remains the issue of personal jurisdiction over the father. The father appears to have made a general appearance because his attorney approved entry of the 2007 Washington order. UIFSA expressly provides that simply appearing in a modification action does not confer /jurisdiction over the person.
¶19 In contrast to 2007, the father did more than enter a general appearance in the 2009 modification proceeding; he sought affirmative relief by moving to reduce support for the younger child. By making this motion, the father submitted to the personal jurisdiction of the Washington trial court. Thus, with the father as the moving party, the conditions allowing the trial court to further
III. Authority To Modify Duration of Child Support
¶20 Once the conditions allowing a Washington Court to modify another state’s child support order have been met, the UIFSA imposes restrictions on which elements may be modified:
(3) Except as otherwise provided inRCW 26.21A.570 , a tribunal of this state may not modify any aspect of a child support order that may not be modified under the law of the issuing state. . . .
(4) In a proceeding to modify a child support order, the law of the state that is determined to have issued the initial controlling order governs the duration of the obligation of support. The obligor’s fulfillment of the duty of support established by that order precludes imposition of a further obligation of support by a tribunal of this state.
¶21 Our fundamental purpose in construing statutes is to ascertain and carry out the intent of the legislature. Lake v. Woodcreek Homeowners Ass’n,
¶22 Here, the statute plainly says that (1) if an aspect of a child support order may not be modified under the law of the issuing state, a Washington court may not modify that aspect of the order and (2) when modifying the duration of an out-of-state child support order, the court must apply the law of the state that issued the initial controlling order. The initial controlling order in this case was the Nebraska child support order because the Nebraska order was entered before either of the Washington orders.
¶23 In this case, the successive Washington child support orders modified the duration of child support in two ways. First, the 2007 order changed the termination of support from the Nebraska age of majority (age 19) (
¶24 Second, the 2009 Washington order awarded Amanda postsecondary educational support that would continue until she reached 23 years of age, the upper limit of postsecondary educational support in Washington.
¶25 The trial court held that it had jurisdiction to modify its own 2007 child support order. The Court of Appeals affirmed, holding that because the trial court was modifying its own order and not the Nebraska child support order, the UIFSA did not apply. Schneider,
¶26 Furthermore, the interpretation adopted by the appellate court defeats one of the primary purposes of enacting the UIFSA,
Prior to 1993 American case law was thoroughly in chaos over modification of the duration of a child-support obligation when an obligor or obligee moved from one state to another state and the states had different ages for the duration of child support. The existing duration usually was ignored by the issuance of a new order applying local law, which elicited a variety of appellate court opinions. UIFSA (1992) determined that a uniform rule should be proposed, to wit, duration of the child-support obligation would be fixed by the initial controlling order.
9 pt. IB U.L.A. cmt. at 140 (Supp. 2011).
¶27 Although all states have adopted the UIFSA, some states attempted to subvert the policies underlying the duration provisions:
by holding that completion of the obligation to support a child through age 18 established by the now-completed controlling order does not preclude the imposition of a new obligation thereafter to support the child through age 21 or even to age 23 if the child is enrolled in higher education.
Unif. Interstate Family Support Act (2001) § 611, 9 pt. IB U.L.A. cmt. at 258. The 2001 amendments were intended to make the decision that the original state’s law should control duration “absolutely clear.” Id. Section 611(d), represented by
¶28 The appellate court’s interpretation also subverts the purpose of the UIFSA to preclude forum shopping by either the obligee or the obligor: One would need only to move to a state with laws offering a more appealing duration of child support, have the order modified in some other way, then petition to modify the duration according to the laws of the new forum state.
¶29 Having rejected the holdings of the trial and appellate courts that the 2009 order did not modify the initial Nebraska order, we analyze whether the 2009 order violated the UIFSA’s restrictions on modifications.
¶30 Nebraska does allow for proceedings to modify child support.
IV. An Award of Postsecondary Educational Support Is a Durational Change to Child Support under the UIFSA
¶32 The 2009 modification clearly changed the duration of support from age 19 to include a period of postsecondary support up to age 23. The order necessarily violates
In a proceeding to modify a child support order, the law of the state that is determined to have issued the initial controlling order governs the duration of the obligation of support. The obligor’s fulfillment of the duty of support established by that order precludes imposition oía further obligation of support by a tribunal of this state.
¶33 Washington’s statutory scheme also supports the conclusion that postsecondary educational support is “support” within the meaning of UIFSA. The provisions for postsecondary educational support are found in chapter 26.19 RCW along with the child support schedule.
¶34 Finally, common sense dictates that an award of postsecondary educational support is a durational change to child support under the UIFSA. Postsecondary educational support is granted to support an otherwise adult child while pursuing education beyond high school; it is money paid to support a dependent child, therefore it is child support. And the statute sets a durational limit to this form of child support.
¶35 The New Hampshire Supreme Court has recently addressed a case similar to the case at bar. In re Scott,
¶36 Other states have also addressed postsecondary educational support as a durational issue under the UIFSA. See, e.g., Marshak v. Weser,
¶37 Because this is a matter of first impression in Washington of interpreting a uniform law adopted by all 50 states, we may consider how these other states have addressed the issue.
¶38 It may seem anomalous to deny postsecondary educational support for Amanda, who has lived in Washington for several years and attends a Washington state university. But there are two sides to this result. A child who is initially allowed the potential of postsecondary educational support in Washington will be able to receive that support even after moving to another state. Every state has adopted the UIFSA in some form and the UIFSA provides that the originating state’s law applies to the duration of child support. Because the issue is durational, Washington law will apply to Washington child support orders that provide for postsecondary educational support. If the issue were not durational, other states would be free to reject the provisions for postsecondary support under Washington law.
¶39 In any event, the legislature has resolved this policy choice by adopting the UIFSA. Our responsibility under the Washington Constitution is to interpret and apply the decision of the legislature. Accordingly, we hold that post-secondary educational support is a durational aspect of child support under the UIFSA.
CONCLUSION
¶40 Under the UIFSA, a Washington court has subject matter jurisdiction to modify out-of-state child support orders but lacks the authority to do so if (1) the conditions set in
Notes
On the other hand, we need not address apparent procedural errors in the registration of the Nebraska decree in Washington. Neither party has raised these issues and they do not affect our analysis because we may assume that the mother has substantially complied with the procedural requirements of UIFSA.
Although Washington has adopted the 2001 version of the UIFSA, the 2008 comment is quoted here because it more clearly sets out the history and purpose of § 611(c) and (d), which correspond to
The Court of Appeals held that, even if the UIFSA did apply, Nebraska law permitted the grant of postsecondary educational support. Schneider,
Amanda has neither died, married, nor become emancipated.