HB-4096, As Passed Senate, December 8, 2004                                 

    SENATE SUBSTITUTE FOR

    HOUSE BILL NO. 4096

(As amended, December 8, 2004)                                              

                                                                             A bill to amend 1994 PA 204, entitled                                             

"The children's ombudsman act,"                                             

by amending the title and sections 2, 3, 4, 5, 6, 7, 8, 9, 10,              

and 11 (MCL 722.922, 722.923, 722.924, 722.925, 722.926, 722.927,           

722.928, 722.929, 722.930, and 722.931) and by adding section 5a;           

and to repeal acts and parts of acts.                                       

THE PEOPLE OF THE STATE OF MICHIGAN ENACT:

1                                 TITLE                                         

2                                                                                An act to  create establish the children's ombudsman                              

3   office; and to prescribe the powers and duties of the children's            

4   ombudsman, certain state departments and officers, and certain              

5   county and private agencies serving children; and to provide                

6   remedies from certain administrative acts.                                  

7       Sec. 2.  As used in this act:                                               

8       (a) "Administrative act" includes an action, omission,                      

1   decision, recommendation, practice, or other procedure of the               

2   department,  of social services,  an adoption attorney, or a                

3   child placing agency with respect to a particular child related             

4   to adoption, foster care, or protective services.                           

5       (b) "Adoption attorney" means that term as defined in section               

6   22 of the adoption code,  being section 710.22 of the Michigan

7   Compiled Laws MCL 710.22.                                                  

8       (c) "Adoption code" means chapter X of  Act No. 288 of the                  

9   Public Acts of 1939, being sections 710.21 to 710.70 of the                 

10  Michigan Complied Laws the probate code of 1939, 1939 PA 288,              

11  MCL 710.21 to 710.70.                                                       

12  (d) "Central registry" means that term as defined in section                

13  2 of the child protection law, MCL 722.622.                                 

14      (e) "Child" means an individual under the age of 18.                        

15      (f) "Child abuse" and "child neglect" mean those terms as                   

16  defined in section 2 of the child protection law, MCL 722.622.              

17      (g) "Child caring institution" means that term as defined in                

18  section 1 of 1973 PA 116, MCL 722.111.

19  (h)  (d)  "Child placing agency" means an organization                      

20  licensed or approved by the department  of social services under            

21  Act No. 116 of the Public Acts of 1973, being sections 722.111 to           

22  722.128 of the Michigan Compiled Laws,  to receive children for             

23  placement in private family homes for foster care or adoption and           

24  to provide services related to adoption.                                    

25  (e) "Child" means an individual under the age of 18.

26  (i)  (f)  "Complainant" means an individual who makes a                     

27  complaint as provided in section 5.                                         

House Bill No. 4096 as amended December 8, 2004                             

1   (j) "Child protection law" means the child protection law,                  

2   1975 PA 238, MCL 722.621 to 722.638.                                        

3       (k) "Children's ombudsman" or "ombudsman" means the                         

4   individual appointed to the office of children's ombudsman under            

5   section 3.                                                                  

6                                                                                (l) "Closed session" means that term as defined in the open                         

7   meetings act, 1976 PA 267, MCL 15.261 to 15.275.

8   (m)  (g)  "Department" means the  department of social                      

9   services family independence agency.                                       

10  (h) "Foster parent" means an individual licensed by the                     

11  department of social services under Act No. 116 of the Public               

12  Acts of 1973 to provide foster care to children.                            

13      (i) "Official" means an official or employee of the                         

14  department or a child placing agency.                                       

15      (j) "Ombudsman" means the children's ombudsman created in                   

16  section 3.

17  (n) "Foster care" means care provided to a child in a foster                

18  family home, foster family group home, or child caring                      

19  institution licensed or approved by the department under 1973 PA            

20  116, MCL 722.111 to 722.128, or care provided to a child in a               

21  relative's home under a court order.                                        

22      (o) "Office" means the children's ombudsman office                          

23  established under section 3.

24      Sec. 3.  (1) As a means of effecting changes in policy,                     

25  procedure, and legislation, educating the public, investigating             

26  and reviewing actions of <<the department, child placing agencies, or

27  child caring institutions>>, monitoring and ensuring compliance with relevant    

1   statutes, rules, and policies pertaining to children's protective           

2   services and the placement, supervision,  and  treatment, and               

3   improving delivery of care of children in foster care and                   

4   adoptive homes, the children's ombudsman is  created established

5   as an autonomous entity in the department of management and                 

6   budget.   The ombudsman shall exercise its powers and duties,               

7   including the functions of budgeting and procurement and other              

8   management-related functions, independently of the director of              

9   the department of management and budget.

10      (2)  The ombudsman shall be appointed by the governor and                   

11  shall serve at the pleasure of the governor. The governor shall            

12  appoint an individual as the ombudsman, with the advice and                 

13  consent of the senate. The individual shall be qualified by                 

14  training and experience to perform the duties and exercise the              

15  powers of the children's ombudsman and the children's ombudsman             

16  office as provided in this act.                                             

17      (3) The governor may remove the children's ombudsman from                   

18  office for cause that includes, but is not limited to,                      

19  incompetency to properly exercise duties, official misconduct,              

20  habitual or willful neglect of duty, or other misfeasance or                

21  malfeasance in connection with the operation of the office of the           

22  children's ombudsman.  The governor shall report the reason for             

23  the removal to the legislature.                                             

24  (4) The children's ombudsman serving in office on the                       

25  effective date of the amendatory act that added this subsection             

26  shall serve at the pleasure of the governor.

27      Sec. 4.  (1) The ombudsman shall establish procedures for                   

House Bill No. 4096 as amended December 8, 2004                             

1   the office for budgeting, expending  funds money, and employing            

2   personnel according to the management and budget act, 1984 PA               

3   431, MCL 18.1101 to 18.1594.  Subject to annual appropriations,             

4   the ombudsman shall employ sufficient personnel to carry out the            

5   duties and powers prescribed by this act.                                   

6       (2) The ombudsman shall establish procedures for receiving                  

7   and processing complaints from complainants and individuals not             

8   meeting the definition of complainant, conducting investigations,           

9   holding informal hearings, and reporting findings and                       

10  recommendations resulting from investigations.                              

11  (3) Personnel employed by the office of the children's                      

12  ombudsman shall receive mandatory training conducted by the                 

13  Michigan domestic violence prevention and treatment board in                

14  domestic violence and in handling complaints of child abuse or              

15  child neglect that involve a history of domestic violence.  <<  

16                                                                              

17                                                                              

18                                                                              

19                 >>

20  (4) Any individual may submit a complaint to the ombudsman.                 

21  The ombudsman has the sole discretion and authority to determine            

22  if a complaint falls within his or her duties and powers to                 

23  investigate and if a complaint involves an administrative act.              

24  The ombudsman may initiate an investigation without receiving a             

25  complaint.  The ombudsman may initiate an investigation upon                

26  receipt of a complaint from an individual not meeting the                   

27  definition of complainant.  An individual not meeting the                   

House Bill No. 4096 as amended December 8, 2004                             

1   definition of complainant is not entitled to receive information            

2   under this act as if he or she is a complainant.  <<The individual is entitled to receive the recommendations of the ombudsman and the department's response to the recommendations of the ombudsman in accordance with state and federal law.>>  During the                                                                      

3   course of an investigation, the ombudsman may refer a case to the           

4   department if the ombudsman determines that the department                  

5   received a complaint on the case, but did not conduct a field               

6   investigation.  If the ombudsman refers a case to the department,           

7   the department shall conduct a field investigation of the case or           

8   provide notice to the ombudsman why a field investigation was not           

9   conducted, or what alternative steps may have been taken to                 

10  address the situation.  If a field investigation has been                   

11  conducted, the department shall report the results to the                   

12  ombudsman.

13      Sec. 5.  All of the following individuals may make a                        

14  complaint to the ombudsman with respect to a particular child,              

15  alleging that an administrative act is contrary to law, rule, or            

16  policy, imposed without an adequate statement of reason, or based           

17  on irrelevant, immaterial, or erroneous grounds:                            

18      (a) The child, if he or she is able to articulate a                         

19  complaint.                                                                  

20      (b) A biological parent of the child.                                       

21      (c) A foster parent of the child.                                           

22      (d) An adoptive parent or a prospective adoptive parent of                  

23  the child.                                                                  

24      (e) A legally appointed guardian of the child.                              

25      (f) A guardian ad litem of the child.                                       

26      (g) An adult who is related to the child within the fifth                   

27  degree by marriage, blood, or adoption, as defined in section 22            

1   of the adoption code,  being section 710.22 of the Michigan                 

2   Compiled Laws MCL 710.22.                                                  

3       (h) A Michigan legislator.                                                  

4   (i) An individual required to report child abuse or child                   

5   neglect under section 3 of the child protection law, 1975 PA 238,           

6   MCL 722.623.

7   (j)  (i)  An attorney for any individual described in                       

8   subparagraphs subdivisions (a) to (g).                                    

9   Sec. 5a.  The children's ombudsman has the authority to do                  

10  all of the following:

11  (a) Pursue all necessary action, including, but not limited                 

12  to, legal action, to protect the rights and welfare of a child              

13  under the jurisdiction, control, or supervision of the                      

14  department, the Michigan children's institute, the family                   

15  division of circuit court under section 2(a)(1) of chapter XIIA             

16  of the probate code of 1939, 1939 PA 288, MCL 712A.2, a child               

17  caring institution, or a child placing agency.                              

18      (b) Pursue legislative advocacy in the best interests of                    

19  children.                                                                   

20      (c) Review policies and procedures relating to the                          

21  department's involvement with children and make recommendations             

22  for improvement.                                                            

23      (d) Review each departmental death review team study in which               

24  the child's death may have resulted from child abuse or child               

25  neglect.  As a result of the reviews, the ombudsman may recommend           

26  policies, measures, or procedures to prevent future similar                 

27  occurrences.

1       Sec. 6.  The ombudsman may do all of the following in                       

2   relation to a child who may be a victim of child abuse or child             

3   neglect:                                                                    

4       (a) Upon  its his or her own initiative or upon receipt of a               

5   complaint,  from a complainant,  investigate an administrative              

6   act that is alleged to be contrary to law or rule,  or  contrary            

7   to policy of the department or a child placing agency, imposed              

8   without an adequate statement of reason, or based on irrelevant,            

9   immaterial, or erroneous grounds.  The ombudsman has sole                   

10  discretion to determine if a complaint involves an administrative           

11  act.

12      (b) Decide, in  its his or her discretion, whether to                      

13  investigate  a complaint an administrative act.                            

14      (c) Upon its own initiative or upon receipt of a complaint                  

15  from a complainant, conduct a preliminary investigation to                  

16  determine whether an adoption attorney may have committed an                

17  administrative act that is alleged to be contrary to law, rule,             

18  or the Michigan rules of professional conduct adopted by the                

19  Michigan supreme court.                                                     

20  (d) Except as otherwise provided in this subdivision, access                

21  records and reports necessary to carry out the ombudsman's powers           

22  and duties under this act to the same extent and in the same                

23  manner as provided to the department under the provisions of the            

24  child protection law.  The ombudsman shall be provided access to            

25  medical records in the same manner as access is provided to the             

26  department under section 16281 of the public health code, 1978 PA           

27  368, MCL 333.16281.  The ombudsman shall be provided access to              

House Bill No. 4096 as amended December 8, 2004                             

1   mental health records in the same manner as access is provided to           

2   the department in section 748a of the mental health code, 1978 PA           

3   258, MCL 330.1748a <<, subject to section 9>>.  The ombudsman is subject to the same                                                                            

4   standards for safeguarding the confidentiality of information               

5   under this section and the same sanctions for unauthorized                  

6   release of information as the department.                                   

7       (e) Request a subpoena from a court requiring the production                

8   of a record or report necessary to carry out the ombudsman's                

9   duties and powers.  If the person to whom a subpoena is issued              

10  fails or refuses to produce the record or report, the ombudsman             

11  may petition the court for enforcement of the subpoena.

12  (f)  (d)  Hold informal hearings and request that individuals               

13  appear before the ombudsman and give testimony or produce                   

14  documentary or other evidence that the ombudsman considers                  

15  relevant to a matter under investigation.                                   

16  (g)  (e)  Make recommendations to the governor and the                      

17  legislature concerning the need for children's protective                   

18  services, adoption, or foster care legislation, policy, or                  

19  practice without prior review by other offices, departments, or             

20  agencies in the executive branch in order to facilitate rapid               

21  implementation of recommendations or for suggested improvements             

22  to the recommendations.  However, no other office, department, or           

23  agency shall prohibit the release of an ombudsman's                         

24  recommendation to the governor or the legislature.

25      Sec. 7.  (1) Upon  rendering a decision deciding to                        

26  investigate a complaint, from a complainant and an individual not           

27  meeting the definition of complainant, the ombudsman shall notify           

House Bill No. 4096 as amended December 8, 2004                             

1   the complainant or the individual not meeting the definition of             

2   complainant of the decision to investigate and shall notify the             

3   department, adoption attorney, or child placing agency of the               

4   intention to investigate.  If the ombudsman declines to                     

5   investigate a complaint or continue an investigation, the                   

6   ombudsman shall notify the complainant or the individual not                

7   meeting the definition of complainant and the department,                   

8   adoption attorney, or child placing agency of the decision and of           

9   the reasons for the ombudsman's action.                                     

10      (2) If the preliminary investigation described in section 6                 

11  leads the ombudsman to believe that the matter may involve                  

12  misconduct by an adoption attorney, the ombudsman shall                     

13  immediately refer the complaint to the attorney grievance                   

14  commission of the state bar of Michigan.                                    

15      (3) The ombudsman  may advise a complainant shall advise a                 

16  complainant of administrative remedies and may advise the                   

17  individual to pursue all administrative remedies or channels of             

18  complaint open to the complainant before pursuing a complaint               

19  with the ombudsman.  Subsequent to the administrative processing            

20  of a complaint, the ombudsman may conduct further investigations            

21  of  any a complaint upon the request of the complainant <<or upon the ombudsman's own initiative>>.  or                                               

22  upon the ombudsman's own initiative.

23      (4) If the ombudsman finds in the course of an investigation                

24  that an individual's action is in violation of state or federal             

25  criminal law, the ombudsman shall immediately report that fact to           

26  the county prosecutor or the attorney general.  If the complaint            

27  is against a child placing agency, the ombudsman shall refer the            

1   matter to the department  of social services  for further action            

2   with respect to licensing.                                                  

3       (5) The ombudsman may file a petition on behalf of a child                  

4   requesting the court to take jurisdiction under section 2(b) of             

5   chapter XIIA of  Act No. 288 of the Public Acts of 1939, being              

6   section 712A.2 of the Michigan Compiled Laws the probate code of           

7   1939, 1939 PA 288, MCL 712A.2, or a petition for termination of             

8   parental rights under section 19b of chapter XIIA of  Act No. 288           

9   of the Public Acts of 1939, being section 712A.19b of the                   

10  Michigan Compiled Laws the probate code of 1939, 1939 PA 288,              

11  MCL 712A.19b, if the ombudsman is satisfied that the complainant            

12  has contacted the department, the prosecuting attorney, the                 

13  child's attorney, and the child's guardian ad litem, if any, and            

14  that none of these persons intend to file a petition as described           

15  in this subsection.                                                         

16      Sec. 8.  (1) The department and a child placing agency shall                

17  do all of the following:                                                    

18      (a) Upon the ombudsman's request, grant the ombudsman or                    

19  its his or her designee access to all  relevant  information,             

20  records, and documents in the possession of the department or               

21  child placing agency that the ombudsman considers relevant and

22  necessary in an investigation.                                              

23      (b) Assist the ombudsman to obtain the necessary releases of                

24  those documents that are specifically restricted.                           

25      (c)  Provide Upon the ombudsman's request, provide the                     

26  ombudsman  upon request  with progress reports concerning the               

27  administrative processing of a complaint.                                   

House Bill No. 4096 as amended December 8, 2004                             

1   (d) Upon the ombudsman's request, provide the ombudsman                     

2   information he or she requests under subdivision (a) within 10              

3   business days after the request.  If the department determines              

4   that release of the information would violate federal or state              

5   law, the ombudsman shall be notified of that determination within           

6   the same 10-day deadline.

7       (2) The department, an  adoption  attorney involved with an                 

8   adoption, and a child placing agency shall provide information to           

9   a biological parent, prospective adoptive parent, or foster                 

10  parent regarding the provisions of this act.                                

11  (3) The ombudsman, the department, and the department of                    

12  information technology shall enter an agreement not later than              

13  June 30, 2005 that shall ensure that the ombudsman has access, in           

14  the ombudsman's own office, to departmental computer networks               

15  pertaining to <<protective services, foster care, and adoption>>, including the    

16  central registry, service workers support system/foster care,               

17  adoption, juvenile justice (SWSS), and customer information                 

18  management system (CIMS) unless otherwise prohibited by state or            

19  federal law, or the release of the information to the ombudsman             

20  would jeopardize federal funding.  The cost of implementing this            

21  subsection shall be negotiated among the office of the children's           

22  ombudsman, the department, and the department of information                

23  technology.

24      Sec. 9.  (1)  The ombudsman shall treat all matters under                   

25  investigation, including the identities of recipients or                    

26  individuals from whom information is acquired, as confidential,             

27  except so far as disclosures may be necessary to enable the                 

House Bill No. 4096 as amended December 8, 2004                             

1   ombudsman to perform the duties of the office and to support any            

2   recommendations resulting from an investigation.  A record of the           

3   office of the ombudsman is confidential, shall be used only for             

4   purposes set forth in this act, and is not subject to court                 

5   subpoena.  A record of the office of the ombudsman is exempt from           

6   disclosure under the freedom of information act, Act No. 442 of             

7   the Public Acts of 1976, being sections 15.231 to 15.246 of the             

8   Michigan Compiled Laws. Subject to subsections (2) through (7),            

9   a record of the children's ombudsman's office is confidential,              

10  shall only be used for purposes set forth in this act, is not               

11  subject to court subpoena, and is not discoverable in a legal               

12  proceeding.  A record of the children's ombudsman's office is               

13  exempt from disclosure under the freedom of information act, 1976           

14  PA 442, MCL 15.231 to 15.246.  If the ombudsman identifies action           

15  or inaction by the state, through its agencies or services, that            

16  failed to protect children, the ombudsman shall provide his or              

17  her findings and recommendations to the agency affected by those            

18  findings, and make those findings and recommendations available             

19  to the complainant <<and the legislature upon request>>, to the extent consistent with state or                                                        

20  federal law.  The ombudsman shall not disclose any information              

21  that impairs the rights of the child or the child's parents or              

22  guardians.                                                                  

23      (2) The ombudsman may release information to a complainant or               

24  to a closed session of a legislative committee that has                     

25  jurisdiction over family and children's services issues regarding           

26  the department's handling of a case under the child protection              

27  law that is obtained or generated during an investigation                   

House Bill No. 4096 as amended December 8, 2004                             

1   conducted by the office.                                                    

2       (3) Unless otherwise part of the public record, the office                  

3   shall not release any of the following confidential information             

4   to the general public:                                                      

5       (a) Records relating to mental health evaluation or treatment               

6   of a parent or child.                                                       

7       (b) Records relating to the evaluation or treatment of a                    

8   substance abuse-related disorder of a parent or child.                      

9       (c) Records relating to medical diagnosis or treatment of a                 

10  parent or child.                                                            

11      (d) Records relating to domestic violence-related services                  

12  and sexual assault services provided to a parent or child.                  

13      (e) Records relating to educational services provided to a                  

14  parent or child.                                                            

15      (4) Notwithstanding subsection (3), if the ombudsman                        

16  determines that disclosure of confidential information is                   

17  necessary to identify, prevent, or respond to the abuse or                  

18  neglect of a child, the ombudsman may disclose information in his           

19  or her possession to <<the department or>> a court.  The ombudsman shall not release                                                                         

20  the address, telephone number, or other information regarding the           

21  whereabouts of a victim or suspected victim of domestic violence            

22  unless ordered to by a court.                                               

23      (5) The ombudsman shall not disclose information relating to                

24  an ongoing law enforcement investigation or an ongoing children's           

25  protective services investigation.                                          

26  (6) The ombudsman shall not disclose the identity of an                     

27  individual making a child abuse or neglect complaint under the              

1   child protection law unless that individual's written permission            

2   is obtained first or a court has ordered the ombudsman to release           

3   that information.                                                           

4       (7) The ombudsman may release an individual's identity who                  

5   makes an intentionally false report of child abuse or neglect               

6   under the child protection law.

7       Sec. 10.  (1) The ombudsman shall prepare a report of the                   

8   factual findings of an investigation and make recommendations to            

9   the department or child placing agency if the ombudsman finds               

10  1 or more of the following:                                                 

11      (a) A matter should be further considered by the department                 

12  or child placing agency.                                                    

13      (b) An administrative act or omission should be modified,

14  or  canceled, or corrected.                                                

15      (c) Reasons should be given for an administrative act or                    

16  omission.                                                                   

17      (d) Other action should be taken by the department or child                 

18  placing agency.                                                             

19      (2) Before announcing a conclusion or recommendation that                   

20  expressly or by implication criticizes an individual, the                   

21  department, or a child placing agency, the ombudsman shall                  

22  consult with that individual, the department, or the child                  

23  placing agency.  When publishing an opinion adverse to the                  

24  department or child placing agency, the ombudsman shall include             

25  in the publication any statement of reasonable length made to the           

26  ombudsman by the department or child placing agency in defense or           

27  mitigation of the action.  The ombudsman may request to be                  

1   notified by the department or child placing agency, within a                

2   specified time, of any action taken on any recommendation                   

3   presented.                                                                  

4       (3) The ombudsman shall notify the complainant of the actions               

5   taken by the ombudsman and by the department or child placing               

6   agency.                                                                     

7       (4)  The ombudsman shall provide the complainant with a copy                

8   of its recommendations on a complaint. The ombudsman may provide           

9   to the complainant the following information:                               

10      (a) A copy of the ombudsman's report regarding the                          

11  investigation's findings, recommendations to the department made            

12  according to the investigation, the department's response to the            

13  ombudsman's findings and recommendations, and any epilogue to the           

14  ombudsman's report and the department's response.                           

15      (b) Information that has otherwise been made public.                        

16      (5) The ombudsman shall not release information to the                      

17  individual making the complaint that will endanger the health or            

18  welfare of a child or another individual.

19  (6)  (5)  The ombudsman shall submit to the governor, the                   

20  director of the department, and the legislature an annual report            

21  on the ombudsman's conduct,  of the ombudsman,  including any               

22  recommendations regarding the need for legislation or for change            

23  in rules or policies.                                                       

24      Sec. 11.  (1)  An Subject to subsection (4), an official,                  

25  the department, or a child placing agency shall not penalize any            

26  person for filing a complaint or cooperating with the ombudsman             

27  in investigating a complaint.                                               

1       (2) An individual, the department, an adoption attorney, or a               

2   child placing agency shall not hinder the lawful actions of the             

3   ombudsman or employees of the ombudsman.                                    

4   (3) A report by the ombudsman is not subject to prior                       

5   approval by a person outside of the office.                                 

6       (4) An individual who intentionally makes a false complaint                 

7   of child abuse or neglect under this act is subject to the                  

8   penalties contained in section 13(5) of the child protection law,           

9   MCL 722.633.

10      Enacting section 1.  Sections 13, 14, and 15 of the                         

11  children's ombudsman act, 1994 PA 204, MCL 722.933, 722.934, and            

12  722.935, are repealed.                                                      

13      Enacting section 2.  Section 6(e) of the children's                         

14  ombudsman act, 1994 PA 204, MCL 722.936, is repealed 5 years                

15  after the effective date of this amendatory act.