IN THE INTEREST OF C.C. et al., Children.
No. S22A0584
In the Supreme Court of Georgia
Decided: August 23, 2022
PETERSON, Presiding Justice.
NOTICE: This opinion is subject to modification resulting from motions for reconsideration under Supreme Court Rule 27, the Court‘s reconsideration, and editorial revisions by the Reporter of Decisions. The version of the opinion published in the Advance Sheets for the Georgia Reports, designated as the “Final Copy,” will replace any prior version on the Court‘s website and docket. A bound volume of the Georgia Reports will contain the final and official text of the opinion.
The Division of Family and Children Services (DFCS) is the temporary custodian of Appellants John and Brittani Chandler‘s three children. The Chandlers seek a determination
The Lumpkin County Juvenile Court temporarily removed the Chandlers’ children into DFCS‘s custody on January 6, 2021. The Chandlers consented to an adjudication that the children were dependent within the meaning of
At a regularly scheduled review hearing for the dependency case, Brittani‘s counsel orally moved on religious grounds to block DFCS from obtaining routine vaccinations for the children. Her position was stated in very broad terms; her counsel stated simply that Brittani “believe[d] that she ha[d] a religious belief that bar[red] her from allowing the children to get vaccinated.” DFCS related that it sought immunization to facilitate the children‘s health care, schooling, and foster placement, and asserted the authority to provide “ordinary medical care” to the children under
John then moved for reconsideration and for a stay of vaccination. Brittani joined in this motion and another hearing was held in conjunction with a regularly scheduled hearing on the dependency case. John testified that he did not believe COVID-19 is “real”5 and described himself as “a conspiracy theorist.” He testified that the family attended church before the COVID-19 pandemic, but was not attending at the time of the hearing because, he said, “Sundays are my little bit of time to spend with my wife because I get home late at night [during the week]. So I don‘t really have no family time.” Construed liberally, John argued that (1) the First Amendment to the United States Constitution forbade vaccinating the children over the Chandlers’ objection, (2) parents retain a statutory right to object on religious grounds to the vaccination of their children under
Brittani‘s counsel proffered that Brittani “could get on the stand and testify as to the
The juvenile court denied the Chandlers’ motion in a written order on two principal grounds. First, the juvenile court found that the Chandlers’ asserted religious objections were not sincere:
[T]he Court finds that [the Chandlers‘] argument that vaccination of the dependent children by the Department violates their free exercise of religion is specious at best. The Court finds that [the Chandlers] have not established by a preponderance of the evidence that they have a religious objection or even observe a particular religion. Contrary to, the evidence shows that they previously attended church but are no longer active, are against vaccination by personal philosophical choice based at least in part on an alleged perception after the oldest was vaccinated and that [John] is a self-proclaimed conspiracy theorist.
The juvenile court then went on to rule against the Chandlers on the merits. The juvenile court concluded that, even if the Chandlers did have a sincere religious objection, the First Amendment to the United States Constitution would not prohibit DFCS from vaccinating the children. And the juvenile court determined that the Chandlers lacked any rights arising under
The Chandlers then timely filed a notice of appeal.
1. This case has not been mooted by voluntary cessation.
After the case was docketed in this Court, on June 6, 2022, Appellee Department of Human Services (DHS) filed a motion to dismiss the appeal as moot based on voluntary cessation. See WMW, Inc. v. Am. Honda Mot. Co., 291 Ga. 683, 685 (2) (733 SE2d 269) (2012) (adopting federal voluntary cessation doctrine as a basis for mootness).7 The motion attached as an exhibit a memorandum outlining a new official policy that DFCS shall not “seek immunizations for any child in DFCS’ temporary custody if a noncustodial parent expresses a sincere religious objection
Four days later, on June 10, DHS filed a letter with this Court. It said that the Chandlers’ eldest child received some vaccinations on June 8. It said that this was due to “miscommunication,” it had fired that child‘s case manager, and it was “updating” its new religious-exemption policy “to more clearly explain that foster parents must be made aware of the policy and abide by it.”
We deny DHS‘s motion. An appellee‘s “voluntary cessation of challenged conduct does not ordinarily render a case moot because a dismissal for mootness would permit a resumption of the challenged conduct as soon as the case is dismissed.” WMW, 291 Ga. at 685 (2). In asserting mootness based on voluntary cessation, a party must bear a “heavy burden” of persuasion. Id. That said, “cessation of the allegedly illegal conduct by government officials has been treated with more solicitude by the courts than similar action by private parties.” Ragsdale v. Turnock, 841 F.2d 1358, 1365 (7th Cir. 1988). “The reason . . . is that government actors are more likely than private defendants to honor a professed commitment to changed ways.” Keohane v. Fla. Dept. of Corr. Sec., 952 F.3d 1257, 1267-1268 (11th Cir. 2020) (punctuation and citations omitted). But we give no “bare deference: we probe the record to determine whether the government has met its burden, even as we grant it a presumption of good faith.” Brach v. Newsom, No. 20-56291, 2022 U.S. App. LEXIS 16510, at *15, 38 F.4th 6 (9th Cir. June 15, 2022) (en banc). Weighing against mootness due to voluntary cessation is evidence that a policy change is unilateral such that the government could “reenact[] precisely the same provision” immediately after litigation concludes. City of Mesquite v. Aladdin‘s Castle, Inc., 455 U.S. 283, 289 (102 SCt 1070, 71 LE2d 152) (1982); see also True the Vote, Inc. v. IRS, 831 F.3d 551, 561 (D.C. Cir. 2016) (“[T]here is a difference between the controversy having gone away, and simply being in a restive stage.“). This can be true even if the government does not indicate that it plans to immediately revive the challenged policy, especially where it “vigorously defends the legality of [its previous] approach” in court. West Virginia v. EPA, 142 S. Ct. 2587, 2607 (2022) (punctuation and citation omitted).
These considerations compel us to reach the conclusion that this case is not moot because of voluntary cessation. DHS‘s new policy is not legislative in nature; it is an agency memorandum issued at the discretion of the DHS Commissioner and revocable on the same basis. And DHS defended the legality of its previous approach in briefing and at oral arguments before this Court. We note also that one of the Chandlers’ own children was vaccinated a mere two days after the policy‘s adoption. DHS blames this on a miscommunication, and we have no reason to question that explanation; nor do we question the good faith with which the DHS Commissioner has adopted the new policy. But whatever the reason, a new policy found only in an agency memorandum issued at the discretion of the DHS Commissioner, that does not disclaim the lawfulness of the previous policy that the Chandlers challenged, and that in fact fails to prevent the challenged action does not establish voluntary cessation. We therefore deny DHS‘s motion to dismiss the appeal as moot.
2. We remand this case for proper sincerity analysis.
a. Sincerity is necessary to the Chandlers’ claims.
The Chandlers object to DFCS‘s vaccination of their children based on parental religious rights arising under the First Amendment to the United States Constitution and federal constitutional due-process rights that prohibit overly vague statutes.8 They further
We do not unnecessarily decide the constitutionality of statutes. “As early as 1884, we recognized that principles underlying the separation of powers should also limit occasions on which we determine whether statutes violate the Georgia Constitution to those where such a decision was truly necessary.” Black Voters Matter Fund v. Kemp, 313 Ga. 375, 394 (1) (870 SE2d 430) (2022) (Peterson, J., concurring). “Comity to a co-ordinate department of the government requires, according to many decisions of this and other courts, that causes shall not be disposed of upon constitutional grounds when it is possible to avoid such questions, without a sacrifice of the rights of parties[.]” Bd. of Ed. of Glynn County v. Mayor of Brunswick, 72 Ga. 353, 354-355 (1884).
And it is especially so in cases where the constitutional merits are important, novel, and difficult. This is such a case. When a child is adjudicated dependent and taken into DFCS custody, most of the child‘s parents’ parental rights are transferred to DFCS for the duration of DFCS‘s custody:
A legal custodian has the right to physical custody of a child, the right to determine the nature of the care and treatment of such child, including ordinary medical care, and the right and duty to provide for the care, protection, training, and education and the physical, mental, and moral welfare of such child, subject to the conditions and limitations of the order and to the remaining rights and duties of such child‘s parent or guardian.
Although narrow, these claims still present questions of considerable potential impact. These significant questions are ones of first impression in our Court. And appellate courts of at least two other states have barred vaccinations in response to challenges like those raised by the Chandlers, albeit in the context of those states’ different statutory schemes. See In the Interest of T.C., 290 So. 3d 580, 583-584 (Fla. 2d DCA 2020) (applying constitutional avoidance to decline to “reach the issue of whether the Mother has a right under the federal or Florida constitutions to keep her children from being immunized,” and holding unlawful under Florida statutory law trial court order authorizing immunization of her children who were in foster care); Diana H. v. Rubin, 171 P. 3d 200, 201 (Ariz. Ct. App. 2007) (“Because we conclude the dependency adjudication did not extinguish [a mother‘s] right
The sincerity of the Chandlers’ religious beliefs is a necessary element of their First Amendment claims. See Frazee v. Ill. Dept. of Employ. Servs., 489 U.S. 829, 833 (109 SCt 1514, 103 LE2d 914) (1989) (“Our judgments in [previous First Amendment free exercise of religion cases] rested on the fact that each of the claimants had a sincere belief that religion required him or her to refrain from [what the government required of them] . . . . Because [a claimant in one such case] unquestionably had a sincere belief that his religion prevented him from doing [what the government required], he was entitled to invoke the protection of the Free Exercise Clause. . . . There is no doubt that only beliefs rooted in religion are protected by the Free Exercise Clause. Purely secular views do not suffice. Nor do we underestimate the difficulty of distinguishing between religious and secular convictions and in determining whether a professed belief is sincerely held. States are clearly entitled to assure themselves that there is an ample predicate for invoking the Free Exercise Clause.” (punctuation and internal citations omitted)); Thomas v. Review Bd. of Ind. Empt. Sec. Div., 450 U.S. 707, 713 (101 SCt 1425, 67 LE2d 624) (1981) (“Only beliefs rooted in religion are protected by the Free Exercise Clause[.]“). Their claim that
Religious sincerity is necessary for the Chandlers to pursue their statutory claim, too.
In observing that sincerity is a necessary foundation for the Chandlers’ claims, we do not mean to suggest that a court must always make a determination as to sincerity before considering the remainder of a religion-based claim. Courts often assume the sincerity of a professed religious belief before rejecting claims that clearly fail on other grounds, partly because sincerity can be much harder to analyze than the merits of the claims themselves. See, e.g., Kentucky ex rel. Danville Christian Acad., Inc. v. Beshear, 981 F.3d 505, 509 (6th Cir. 2020) (order); Workman v. Mingo County Bd. of Educ., 419 Fed. Appx. 348, 352 (4th Cir. 2011). But here, the opposite appears to be the case: the Chandlers’ claims are novel, whereas the trial court already expressed serious doubts about the sincerity of their beliefs. Under these circumstances, we decline to resolve the difficult and consequential merits of the Chandlers’ claims before the juvenile court has properly addressed the preliminary question of sincerity.
b. The juvenile court incorrectly analyzed sincerity.
The juvenile court did determine that the Chandlers did not carry their burden of showing that their religious objections regarding vaccination are sincerely held. As recounted above, the juvenile court made the following findings regarding sincerity:
[T]he Court finds that [the Chandlers‘] argument that vaccination of the dependent children by the Department violates their free exercise of religion is specious at best. The Court finds that [the Chandlers] have not established by a preponderance of the evidence that they have a religious objection or even observe a particular religion. Contrary to, the evidence shows that they previously attended church but are no longer active, are against vaccination by personal philosophical choice based at least in part on an alleged perception after the oldest was vaccinated and that [John] is a self-proclaimed conspiracy theorist.
The juvenile court‘s conclusion of insincerity is apparent. It would be entitled to significant deference were it properly arrived at, and would likely end our analysis of this case. See Byrd v. State, No. S22A0254, 2022 Ga. LEXIS 178, at *7, ___ Ga. ___ (2) (c) n.5 (June 22, 2022) (“[A] factual and credibility finding . . . is generally afforded great deference on appeal.“); Sourbeer v. Robinson, 791 F.2d 1094, 1102 (3d Cir. 1986) (First Amendment case: “Unless the district court‘s finding of insincerity is clearly erroneous, we need go no further.“).
Moreover, we would go astray were we to try to resolve the important — and difficult — legal questions this case raises about the relationship between parental religious rights and the State‘s custodial authority over dependent children without the trial court first making the necessary factual findings and then our being assured that determining the merits questions was truly necessary. We therefore remand this case for the juvenile court to apply the proper standard in deciding whether the Chandlers have raised a sincere religious objection.
In fairness to the juvenile court, the proper standard is not easily reducible to a simple formula; accordingly, we offer the following guidance drawn from federal precedent regarding how to evaluate religious sincerity. Ultimately, the juvenile court must determine whether the Chandlers’ religious objection to the vaccination of their children is “truly held.” Seeger, 380 U.S. at 185 (interpreting federal statute). The juvenile court‘s inquiry “must be handled with a light touch, or ‘judicial shyness.‘” Moussazadeh v. Tex. Dept. of Crim. Justice, 703 F.3d 781, 792 (5th Cir. 2012) (applying federal statute). The court should “sh[y] away from attempting to gauge how central a sincerely held belief is to the believer‘s religion.” Watts v. Fla. Int‘l Univ., 495 F.3d 1289, 1295 (11th Cir. 2007) (First Amendment case). And it must bear in mind that “a belief can be both secular and religious. The categories are not mutually exclusive.” Wiggins, 753 F.2d at 666. Thus, the juvenile court will have to parse out whether the Chandlers’ objection is at least partly religiously motivated, as opposed to being entirely motivated by secular concerns. See United States v. Quaintance, 608 F.3d 717, 722 (10th Cir. 2010) (interpreting a federal statute incorporating constitutional standards); Penwell v. Holtgeerts, 386 Fed. Appx. 665, 667 (9th Cir. 2010) (per curiam); Doswell v. Smith, No. 94-6780, 1998 U.S. App. LEXIS 4644, at *13-14 (4th Cir. Mar. 13, 1998) (unpublished opinion); United States v. DeWitt, 95 F.3d 1374, 1376 (8th Cir. 1996) (per curiam).
The Chandlers’ characterization of their objection as religious is not determinative of their sincerity. See Ackerman v. Washington, 16 F.4th 170, 181 (6th Cir. 2021) (interpreting federal statute). The juvenile court can weigh various factors, including (but not limited to) how long the Chandlers have asserted their professed religious belief, how much they know about it, and their reliance on “religious literature and teachings supporting the belief[.]” Ackerman, 16 F.4th at 181. Whether the Chandlers have wavered in their actions related to vaccination “also appears to be relevant[.]” Id. So is whether they have been consistent and transparent in indicating that they have a religiously motivated objection to vaccination. See Friedman v. Clarkstown Cent. Sch. Dist., 75 Fed. Appx. 815, 819 (2d Cir. 2003) (summary order) (“We note particularly, as did the district court, evidence that plaintiff never described her religious beliefs as the
In sum, the juvenile court‘s task is ultimately to assess whether the Chandlers are credible in asserting that their objection to the vaccination of their children is religiously motivated. See Snyder v. Murray City Corp., 124 F.3d 1349, 1352 (10th Cir. 1997) (observing in First Amendment case that “[t]he inquiry into the sincerity of a free-exercise plaintiffs religious beliefs is almost exclusively a credibility assessment . . . .“); see also Krishna Consciousness, Inc. v. Barber” cite=“650 F.2d 430” pinpoint=“439” court=“2nd Cir.” date=“1981“>Int‘l Soc. for Krishna Consciousness, Inc. v. Barber, 650 F.2d 430, 439 (2d Cir. 1981) (observing in First Amendment case that key issue was whether religious belief was asserted “in good faith“). The considerations identified above are meant merely as aids to that inquiry.
If, after applying the proper standard to the existing record, the juvenile court finds that the Chandlers failed to carry their burden of showing that their objection to their children being vaccinated was motivated by a sincere religious belief, then it should deny their claims with no further analysis. See Sourbeer, 791 F.2d at 1102 (First Amendment case: “Unless the district court‘s finding of insincerity is clearly erroneous, we need go no further.“). If it finds that the Chandlers have carried their burden on this point, then the court may resolve the merits of their claims based on its previous order or, at the discretion of the court, may do additional analysis on the merits.
Judgment vacated and case remanded with direction.
All the Justices concur.
Notes
A legal custodian has the right to physical custody of a child, the right to determine the nature of the care and treatment of such child, including ordinary medical care, and the right and duty to provide for the care, protection, training, and education and the physical, mental, and moral welfare of such child, subject to the conditions and limitations of the order and to the remaining rights and duties of such child‘s parent or guardian.
