99-002204 Department Of Children And Family Services vs. Cleveland And Harolean Roberts
 Status: Closed
Recommended Order on Tuesday, December 28, 1999.


View Dockets  
Summary: Use of corporal punishment by foster mother in violation of Department`s rule on the matter warranted revocation of family foster care license.

1STATE OF FLORIDA

4DIVISION OF ADMINISTRATIVE HEARINGS

8DEPARTMENT OF CHILDREN AND )

13FAMILY SERVICES, )

16)

17Petitioner, )

19)

20vs. ) Case No. 99-2204

25)

26CLEVELAND AND HAROLEAN ROBERTS, )

31)

32Respondents. )

34__________________________________)

35RECOMMENDED ORDER

37Pursuant to notice, a hearing was held in this case in

48accordance with Section 120.57(1), Florida Statutes, on

55September 21 and 28, 1999, by video teleconference at sites in

66Miami and Tallahassee, Florida, before Stuart M. Lerner, a duly-

76designated Administrative Law Judge of the Division of

84Administrative Hearings.

86APPEARANCES

87For Petitioner: Rosemarie Rinaldi, Esquire

92Department of Children and Family Services

98401 Northwest Second Avenue, N-1014

103Miami, Florida 33128

106For Respondents: Cleveland and Harolean Roberts, pro se

1141540 Northwest 203rd Street

118Miami, Florida 33169

121STATEMENT OF THE ISSUE

125Whether Respondents' family foster home license should be

133revoked for the reasons set forth in the March 24, 1999, letter

145that Respondents received from the Department of Children and

154Family Services (Department).

157PRELIMINARY STATEMENT

159By letter dated March 24, 1999, the Department advised

168Respondents of its intention to revoke Respondents' family foster

177care license. The letter read as follows:

184This letter will serve to inform you that

192your foster care license will be revoked

199effective today for failure to meet minimum

206standards for a foster home found in Florida

214Administrative Code 65C-13.

217Specifically, you have violated the

222department's discipline policy. Your foster

227children routinely were beaten [o]n the hands

234with instruments. The four girls in the

241home, when interviewed, consistently

245confirmed the allegations.

248These allegations were reported to the abuse

255hotline and when the PI went out to

263investigate, you demanded that he take the

270children immediately. He pleaded with you to

277keep the children until the next day, but you

286insisted on an immediate removal.

291The children had to be removed during the

299night with only the clothes they were

306wearing.

307As your license is not being renewed, you

315have the right to request an administrative

322hearing to be conducted in accordance with

329sections 120.569 and 120.57, Florida

334Statutes. You have the right to be

341represented by counsel or other qualified

347representative, to present evidence and

352argument, to call and cross-examine

357witnesses, and to have subpoena[s] and

363subpoena[s] duces tecum issued on your behalf

370if a hearing is requested. A hearing request

378must be submitted to the Legal Department at

386401 N.W. 2nd Avenue, Suite N-1014, Miami,

393Florida 33128, within thirty (30) days after

400receipt of this letter and must conform to

408the requirements of Section 28-107.004,

413Florida Administrative Code. . . .

419By letter dated April 22, 1999, Respondents requested an

428administrative hearing pursuant to Sections 120.569 and 120.57,

436Florida Statutes. The Department, on May 14, 1999, referred the

446matter to the Division of Administrative Hearings (Division) for

455the assignment of a Division Administrative Law Judge to conduct

465the hearing Respondents had requested.

470As noted above, the hearing was held on September 21 and 28,

4821999. Victor Onweazuekwu, Rodly St- Villien, C. P., T. R., Jodi

493Forbes, and Ray Gonzalez testified on behalf of the Department.

503In addition to presenting the testimony of these witnesses, the

513Department offered two exhibits (Petitioner's Exhibits 1 and 2),

522both of which were received into evidence. Respondents testified

531in their own defense. They also presented the testimony of

541Dianatha Regina Dobard Roberts, William Brazil, Cleveland Earl

549Roberts III, Dr. Arthur Woodard, Anna Burns, Lucy Toombs, Jean

559Soloman Brown, and Bishop Joseph Watson. They presented no

568further evidence.

570At the close of the evidentiary portion of the hearing on

581September 28, 1999, the undersigned, on the record, advised that

591proposed recommended orders had to be filed with the Division no

602later than 21 days from the date of the filing of the transcript

615of the hearing. The hearing Transcript was filed on November 17,

6261999.

627The Department and Respondents filed their Proposed

634Recommended Orders on December 8, 1999, and October 29, 1999,

644respectively. These post-hearing submittals have been carefully

651considered by the undersigned.

655FINDINGS OF FACT

658Based upon the evidence adduced at hearing and the record as

669a whole, the following findings of fact are made:

6781. Respondents are husband and wife. They live in a

688comfortable home in a "very nice neighborhood" located in the

698Country Club of Miami area in Miami-Dade County and are well

709respected members of their community.

7142. Mr. Roberts, who, like his wife, is college educated,

724worked as a teacher, administrator, and coach in the Miami-Dade

734County public school system. He retired in 1992 after 32 years

745of exemplary service.

7483. The Roberts have four natural children (all of whom are

759adults and live outside of their home) and 12 grandchildren.

7694. Approximately four years after Mr. Roberts' retirement,

777he and his wife decided that they wanted to become family foster

789parents. Their decision was motivated, not by monetary

797considerations, but by a desire to help children who needed

807foster care.

8095. The Roberts subsequently applied for, and were granted,

818a license to operate a family foster home at their residence.

8296. Following the issuance of this license, foster children

838C. P., her sister L. P., T. R., and her sister S. R. were placed

853in the Roberts' home.

8577. The Roberts were loving and caring family foster parents

867who treated their foster children like they were their own

877children or grandchildren, and provided them with a reasonably

886safe and nurturing environment.

8908. When the foster children in the Roberts' home

899misbehaved, they were disciplined. On occasion, when she

907believed circumstances warranted, Mrs. Roberts disciplined the

914children (just as she would her own grandchildren under similar

924circumstances) by hitting them on their hand with a wooden

934switch. There was no intention on her part to physically harm or

946injure the children, nor is there any persuasive evidence that

956she inflicted any such harm or injury. Mrs. Roberts merely

966wanted to get the children's attention and make them realize that

977what they did was wrong and must not be repeated.

9879. Notwithstanding her good intentions, Mrs. Roberts acted

995in a manner that was contrary to the Department's written policy

1006(of which she was aware and with which she had agreed to comply)

1019prohibiting family foster parents from using corporal punishment

1027to discipline the foster children in their family foster home.

103710. Being hit on the hand with a wooden switch by

1048Mrs. Roberts was the only corporal punishment to which C. P., L.

1060P., T. R., and S. R. were subjected while in the Roberts' care.

1073At no time did Mrs. Roberts "punch [C. P.] in [the] arm,

1085scratch[] her on [the] neck, [or] push[] her head into [the]

1096wall," as was reported on the Department's abuse hotline on

1106October 15, 1998.

110911. Victor Onweazuekwu, a child protective investigator

1116with the Department, was assigned the task of investigating this

1126report of alleged abuse (which was reduced to writing by the

1137Department employee who received the report).

114312. He began his investigation by visiting the Roberts'

1152home at approximately 9:00 p.m. on Sunday, October 18, 1999,

1162three days after the report was made. Jodi Forbes, C. P.'s and

1174L. P.'s adoption counselor, joined Mr. Onweazuekwu later that

1183evening during his visit to the home.

119013. After introducing himself to the Roberts and explaining

1199the purpose of his visit, Mr. Onweazuekwu asked, and was

1209permitted, to speak with C. P. and her sister L. P.

122014. Following his interview of the girls, Mr. Onweazuekwu

"1229read [to the Roberts] the allegations" that had been made

1239against Mrs. Roberts. He then asked Mrs. Roberts if these

1249allegations were true. Mrs. Roberts candidly admitted that she

1258had disciplined the foster children in her home by hitting them

1269on the palm of their hands with a "switch that f[ell] from [one

1282of] the trees in [the Roberts'] back yard," but she (truthfully)

1293denied punching or scratching C. P. or pushing C. P.'s head

1304against the wall.

130715. The Roberts were upset that Mrs. Roberts had been

1317falsely accused of having engaged in such abusive conduct, and

1327they were understandably concerned that, if C. P. (who they

1337reasonably believed to be deceitful and manipulative) and her

1346sister L. P. (who they viewed as being easily influenced by

1357C. P.) remained in their home, they [the Roberts] might be

1368subjected to additional false accusations by the girls, perhaps

1377even more serious than those that had already been made against

1388Mrs. Roberts. Therefore, despite the pleas of Mr. Onweazuekwu

1397and Ms. Forbes that C. P. and L. P. be allowed to remain in the

1412Roberts' home overnight, the Roberts insisted that the two girls

1422be removed that evening.

142616. When Ms. Forbes left the Roberts home that evening, she

1437took C. P. and L. P. with her and subsequently placed them in

1450another family foster home.

145417. The girls departed the Roberts' home with only the

1464clothes that they were wearing that evening. The following day,

1474Ms. Forbes telephoned Mrs. Roberts and made arrangements to pick

1484up the remainder of the girls' belongings. Later that day,

1494Ms. Forbes paid a visit to the Roberts' home and asked Mrs.

1506Roberts for the girls' clothes. Mrs. Roberts initially declined,

1515stating that she thought that Ms. Forbes would be picking up the

1527clothes the following day. Ms. Forbes then asked Mrs. Roberts

1537for at least "one outfit so that [Ms. Forbes] could send the

1549girls to school the next day." Mrs. Roberts responded to this

1560request by giving Ms. Forbes "most of [the girls'] clothes."

157018. Two days later, C. P. and her new family foster parent

1582came to the Roberts' home and picked up the rest of C. P.'s and

1596L. P.'s belongings.

159919. Mr. Onweazuekwu, following his visit to the Roberts'

1608home on October 18, 1998, requested the University of Miami,

1618School of Medicine's Child Protection Team ( CPT) to conduct

1628psychological evaluations of C. P., L. P., T. R., and S. R. The

1641CPT conducted these psychological evaluations as requested and,

1649on or about January 14, 1999, submitted a report to

1659Mr. Onweazuekwu detailing the findings that were made. The

1668report contained the following recommendation:

1673CPT believes that DCF [the Department] should

1680revoke the Roberts' foster parents license

1686since they are clearly using not only

1693corporal punishment with instruments to

1698discipline children placed in their care, but

1705also fear and intimidation to control the

1712children. Alternative placements should be

1717immediately sought for [T. R.] and [S. R.].

172520. Thereafter, the Department removed T. R. and S. R. from

1736the Roberts' home and, subsequently, initiated proceedings to

1744revoke the Roberts' family foster home license.

1751CONCLUSIONS OF LAW

175421. With certain exceptions not applicable to the instant

1763case, "a person, family foster home, or residential child-caring

1772agency shall not receive a child for continuing full-time care or

1783custody unless such person, home, or agency has first procured a

1794license from the [D] epartment to provide such care." Section

1804409.175(3)(a), Florida Statutes.

180722. The nature of such license is described in Section

1817409.175(2)(f), Florida Statutes, as follows:

"1822License" means "license" as defined in s.

1829120.52(9). A license under this section is

1836issued to a family foster home or other

1844facility and is not a professional license of

1852any individual. Receipt of a license under

1859this section shall not create a property

1866right in the recipient. A license under this

1874act is a public trust and a privilege, and is

1884not an entitlement. This privilege must

1890guide the finder of fact or trier of law at

1900any administrative proceeding or court action

1906initiated by the department.

191023. A license to operate a family foster home, once issued,

1921may be suspended or revoked by the Department for, among other

1932reasons, "[a] violation of the provisions of [Section 409.175,

1941Florida Statutes] or of licensing rules promulgated pursuant to

1950this section." Section 409.175(8)(b)2, Florida Statutes.

195624. The specific authority to promulgate these "licensing

1964rules" referenced in Section 409.175(8)(b)2, Florida Statutes, is

1972set forth in subsection (4) of Section 409.175, Florida Statutes,

1982which provides as follows:

1986The department shall adopt and amend

1992licensing rules for family foster homes,

1998residential child-caring agencies, and child-

2003placing agencies. The department may also

2009adopt rules relating to the screening

2015requirements for summer day camps and summer

202224-hour camps. The requirements for

2027licensure and operation of family foster

2033homes, residential child-caring agencies, and

2038child placing agencies shall include:

20431. The operation, conduct, and maintenance

2049of these homes and agencies and the

2056responsibility which they assume for children

2062served and the evidence of need for that

2070service.

20712. The provision of food, clothing,

2077educational opportunities, services,

2080equipment, and individual supplies to assure

2086the healthy physical, emotional, and mental

2092development of the children served.

20973. The appropriateness, safety, cleanliness,

2102and general adequacy of the premises,

2108including fire prevention and health

2113standards, to provide for the physical

2119comfort, care, and well-being of the children

2126served.

21274. The ratio of staff to children required

2135to provide adequate care and supervision of

2142the children served and, in the case of

2150foster homes, the maximum number of children

2157in the home.

21605. The good moral character based upon

2167screening, education, training, and

2171experience requirements for personnel.

21756. The department may grant exemptions from

2182disqualification from working with children

2187or the developmentally disabled as provided

2193in s. 435.07.

21967. The provision of preservice and inservice

2203training for all foster parents and agency

2210staff.

22118. Satisfactory evidence of financial

2216ability to provide care for the children in

2224compliance with licensing requirements.

22289. The maintenance by the agency of records

2236pertaining to admission, progress, health,

2241and discharge of children served, including

2247written case plans and reports to the

2254department.

225510. The provision for parental involvement

2261to encourage preservation and strengthening

2266of a child's relationship with the family.

227311. The transportation safety of children

2279served.

228012. The provisions for safeguarding the

2286cultural, religious, and ethnic values of a

2293child.

229413. Provisions to safeguard the legal rights

2301of children served.

2304(b) In promulgating licensing rules pursuant

2310to this section, the department may make

2317distinctions among types of care; numbers of

2324children served; and the physical, mental,

2330emotional, and educational needs of the

2336children to be served by a home or agency.

2345(c) The department shall not adopt rules

2352which interfere with the free exercise of

2359religion or which regulate religious

2364instruction or teachings in any child-caring

2370or child-placing home or agency; however,

2376nothing herein shall be construed to allow

2383religious instruction or teachings that are

2389inconsistent with the health, safety, or

2395well-being of any child; with public

2401morality; or with the religious freedom of

2408children, parents, or legal guardians who

2414place their children in such homes or

2421agencies.

242225. Among the "licensing rules" that the Department has

2431adopted pursuant to this legislative grant of authority is Rule

244165C-13.010, Florida Administrative Code, which provides as

2448follows with respect to the subject of "discipline":

2457(1)(a)5. Discipline.

2459a. The substitute care parents must

2465discipline children with kindness,

2469consistency, and understanding, and with the

2475purpose of helping the child develop

2481responsibility with self-control.

2484b. The substitute care parents must help

2491each child learn that he is responsible for

2499his behavior by teaching him the natural and

2507learned consequences of his behaviors.

2512c. Substitute care parents should use

2518positive methods of discipline, including the

2524following:

2525(I) Reinforcing acceptable behavior.

2529(II) Verbal disappointment of the child's

2535behavior.

2536(III) Loss of privileges.

2540(IV) Grounding, restricting the child to the

2547house or yard, or sending the child out of

2556the room and away from the family activity;

2564and

2565(V) Redirecting the child's activity, for

2571example, if a child is playing with a sharp

2580object take the object away, and replace it

2588with a safe toy.

2592d. The substitute care parents must not

2599allow children in care to be subjected to

2607verbal abuse, derogatory remarks about

2612themselves and family members or threats of

2619removal from the home.

2623e. The substitute care parents must not

2630subject children to cruel, severe,

2635humiliating or unusual punishment, for

2640example, to use soap to wash out the mouth,

2649eating hot sauces or pepper, placing in hot

2657water, kneeling on stones, etc.

2662f. The substitute care parents must not use

2670corporal punishment of any kind.

2675g. The substitute care parent must not

2682delegate discipline or permit punishment of a

2689child by another child or by an adult not

2698known to the child.

2702h. The substitute care parents must not

2709withhold meals, clothing, or shelter as a

2716form of punishment.

2719i. The substitute care parents must not

2726punish children for bed wetting or errors

2733which occur during the toilet training

2739process.

2740j. The substitute care parents must not

2747resist implementation of the performance

2752agreement or permanent placement plan as

2758punishment for misdeeds of a child.

2764k. The substitute care parents must not deny

2772a child contact or visits with his family as

2781punishment.

2782l. Substitute care parents may assign chores

2789as the consequence of misbehavior, although

2795these chores must not involve physical

2801exercise so excessive as to endanger the

2808child's health, or so extensive as to impinge

2816on time set aside for school work, sleeping,

2824or eating.

2826m. The substitute must not threaten a child

2834with removal or with a report to authorities

2842as punishment for behavior. Threatening the

2848child with removal plays into the child's

2855conviction that they are doomed to a series

2863of placements and rejections. The

2868counselor's first task is to identify the

2875child's specific behaviors which are causing

2881the substitute parent to request the child's

2888removal. Once problems are identified the

2894counselor along with the substitute parents

2900and child assess ways to correct the problem.

2908If problems are not corrected and the

2915substitute family continues to request

2920removal, a conference should be held by the

2928counselor with the substitute family and

2934child to discuss the possibility of removal

2941and replacement. Involving the child in the

2948planning may help him feel he has some

2956control of his life.

296026. In the instant case, the Department has given

2969Respondents notice (by letter dated March 24, 1999) of its intent

2980to revoke Respondents' family foster care license on the ground

2990that Respondents "have violated the [D] epartment's discipline

2998policy" by hitting the foster children in their care on the hand

3010as a disciplinary measure.

301427. It is undisputed that Mrs. Roberts disciplined C. P.,

3024L. P., T. R., and S. R. by hitting them on the palm of their

3039hands with a wooden switch. In so doing, Mrs. Roberts violated

3050Rule 65C-13.010(1)(a)5f, Florida Administrative Code, which

3056prohibits family foster parents from "us[ ing] "corporal

3064punishment of any kind."

306828. While Mrs. Roberts did not intend to, nor cause, any

3079harm or injury to the children, she did act in blatant disregard

3091of the Department's policy, codified in Rule 65C-13.010(1)(a)5f,

3099Florida Administrative Code, prohibiting the use of corporal

3107punishment. Her conduct raises serious questions concerning her

3115willingness to comply with licensing requirements with which she

3124disagrees and therefore warrants the revocation (rather than the

3133mere suspension) of Respondents' family foster home license

3141pursuant to Section 409.175(8)(b)2, Florida Statutes.

3147RECOMMENDATION

3148Based on the foregoing Findings of Fact and Conclusions of

3158Law, it is

3161RECOMMENDED that the Department enter a final order revoking

3170Respondents' family foster care license pursuant Section

3177409.175(8)(b)2, Florida Statutes, based on Mrs. Roberts' use of

3186corporal punishment in violation of Rule 65C-13.010(1)(a)5f,

3193Florida Administrative Code.

3196DONE AND ENTERED this 28th day of December, 1999, in

3206Tallahassee, Leon County, Florida.

3210___________________________________

3211STUART M. LERNER

3214Administrative Law Judge

3217Division of Administrative Hearings

3221The DeSoto Building

32241230 Apalachee Parkway

3227Tallahassee, Florida 32399-3060

3230(850) 488-9675 SUNCOM 278-9675

3234Fax Filing (850) 921-6847

3238www.doah.state.fl.us

3239Filed with the Clerk of the

3245Division of Administrative Hearings

3249this 28th day of December, 1999

3255COPIES FURNISHED:

3257Rosemarie Rinaldi, Esquire

3260Department of Children and Family Services

3266401 Northwest Second Avenue, N-1014

3271Miami, Florida 33128

3274Cleveland and Harolean Roberts

32781540 Northwest 203rd Street

3282Miami, Florida 33169

3285Samuel C. Chavers, Acting Agency Clerk

3291Building 2, Room 204B

32951317 Winewood Boulevard

3298Tallahassee, Florida 32399-0700

3301John S. Slye, General Counsel

3306Building 2, Room 204

33101317 Winewood Boulevard

3313Tallahassee, Florida 32399-0700

3316NOTICE OF RIGHT TO SUBMIT EXCEPTIONS

3322All parties have the right to submit written exceptions within 15

3333days from the date of this Recommended Order. Any exceptions to

3344this Recommended Order should be filed with the agency that will

3355issue the final order in this case.

Select the PDF icon to view the document.
PDF
Date
Proceedings
Date: 03/26/2001
Proceedings: Letter to C. and H. Roberts from Judgle Lerner regarding response to letter dated March 23, 20001 sent out.
Date: 03/26/2001
Proceedings: Letter to Judge Lerner from R. Rinaldi regarding defense of foster home filed.
Date: 02/24/2000
Proceedings: Final Order Revoking Licensure to Provide Foster Care filed.
PDF:
Date: 02/20/2000
Proceedings: Agency Final Order
PDF:
Date: 12/28/1999
Proceedings: Recommended Order
PDF:
Date: 12/28/1999
Proceedings: Recommended Order sent out. CASE CLOSED. Hearing held September 21 and 28, 1999.
Date: 12/08/1999
Proceedings: Petitioner`s Proposed Recommended Order (for Judge Signature) (filed via facsimile).
Date: 11/17/1999
Proceedings: (2 Volumes) Transcript ; (Petitioner) Notice of Filing filed.
Date: 10/29/1999
Proceedings: Preliminary Statement (Respondents PRO) (filed via facsimile).
Date: 09/28/1999
Proceedings: CASE STATUS: Hearing Held.
Date: 09/24/1999
Proceedings: Hearing Held; see case file for applicable time frames.
Date: 09/24/1999
Proceedings: Order sent out. (Video Hearing set for 9:00am; Miami and Tallahassee; 9/28/99)
Date: 09/22/1999
Proceedings: Letter to Judge Lerner from R. Rinaldi Re: Dates of availability (filed via facsimile).
Date: 09/20/1999
Proceedings: Memorandum to Judge Lerner from H. and C. Roberts Re: Revised Witness List (filed via facsimile).
Date: 09/17/1999
Proceedings: Order sent out. (Ms. James is granted leave to withdraw as counsel of record for respondents)
Date: 09/16/1999
Proceedings: (T. James) Motion to Withdraw (filed via facsimile).
Date: 09/13/1999
Proceedings: Letter to Rosemarie Rinaldi from Judge Lerner sent out. (RE: enclosing copy of Respondent`s witness list filed 9/13/99)
Date: 09/13/1999
Proceedings: (R. Rinaldi) Notice of Filing; Petitioner`s Exhibits (numbers 1-2) filed.
Date: 09/13/1999
Proceedings: Witness List (from Harolean Roberts) (filed via facsimile).
Date: 07/07/1999
Proceedings: Notice of Hearing by Video Teleconference sent out. (Video Hearing set for 1:00pm; Miami & Tallahassee; 9/21/99)
Date: 06/25/1999
Proceedings: (R. Rinaldi) Unilateral Response to Initial Order (filed via facsimile).
Date: 06/01/1999
Proceedings: (R. Rinaldi) Motion for Extension of Time to Respond to Initial Order (filed via facsimile).
Date: 05/20/1999
Proceedings: Initial Order issued.
Date: 05/14/1999
Proceedings: Agency Referral Letter; Amended Administrative Complaint; Notice to Parties; Petition for a Formal Hearing Pursuant to Florida Administrative Code Rule 28-5.201; Answer to Amended Administrative Complaint and Affirmative Defenses filed.
Date: 05/14/1999
Proceedings: Notice; Agency Action Letter; Request for Hearing (letter) filed.

Case Information

Judge:
STUART M. LERNER
Date Filed:
05/14/1999
Date Assignment:
05/20/1999
Last Docket Entry:
03/26/2001
Location:
Miami, Florida
District:
Southern
Agency:
ADOPTED IN TOTO
 

Related DOAH Cases(s) (1):

Related Florida Statute(s) (5):

Related Florida Rule(s) (2):