Unfortunately, I have had a lot of experience litigating domestic violence issues. What is critical to understand, and this article makes very clear, is that a restraining order does not guarantee safety. They are helpful, but not complete protection.
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Restraining orders no guarantee of safety
By Robert Salonga and Malaika Fraley
Contra Costa Times
Article Launched: 09/27/2008 06:16:40 PM PDT
Margarita Sandoval was diligent about meeting all the conditions to uphold the restraining order she filed against her husband.
When he twice violated the order with threatening phone calls, she told police. When he came to see her and violently tried to coerce her into relinquishing the financial claims tying up their divorce proceedings, she called police again, and officers arrested him.
But Felix Sandoval made bail before charges could be filed, and within two months he went after his wife in an armed rampage, slaying a relative and police officer before police killed him.
The outcome was a tragic reminder of the limitations of a domestic violence restraining order. Law enforcement and advocates for victims of domestic violence maintain the court orders are effective as long as victims know they need to do more than just have the document in hand.
"It's not a force field," Antioch police Lt. Leonard Orman said. "But it is a tool for us and the public. Instead of telling people to leave, (with an order) we can arrest somebody."
More than 1,500 domestic violence restraining orders were filed in Contra Costa County in 2007, according to Bay Area Legal Aid. California law distinguishes a domestic violence restraining order from a civil order by the existence of a relationship between the parties.
Just a modest portion are prosecuted. From April to June this year, the District Attorney's Office received 90 complaints of restraining order violations, which led to prosecution in 35 cases. Charges for just over a third of violations is typical for the office, Contra Costa County District Attorney Robert Kochly said.
To successfully try a restraining-order violator, Kochly said prosecutors need a documented pattern of abuse and noncompliance or corroborating evidence such as witnesses, property damage or injuries. Without this, he said, the complaint risks being viewed as a "he said-she said" instance, not enough to secure a conviction.
Victims also risk compromising an order by letting violations go unreported, or contacting the restrained person in the spirit of reconciliation. Reporting every instance is important, Orman said.
"What we find a lot of times is that people want to enforce them at their pleasure," he said. "That takes away the power (the order) holds."
Two recent homicides in Contra Costa County illustrated how a restraining order — or any court order — falls short against a determined offender.
On Aug. 7 in Bay Point, Javier-Francisco Valladolid, 38, went to the home where his wife was staying and killed a relative, 34-year-old Graciela Guitierrez, and his 4-year-old son before fatally shooting himself.
Guitierrez was watching Valladolid's children while his estranged wife, Maria Elena Ventura Guitierrez, was in court trying to formalize a temporary restraining order.
Then on Sept. 6, Felix Sandoval, 49, stormed a Martinez hair salon looking for his wife and ended up in a nearby apartment. There he shot and killed her cousin, 44-year-old Catalina Torres. In a gunbattle with police, Sandoval fatally shot veteran Martinez police Sgt. Paul Starzyk, whose final act was to fire the bullet that fatally wounded the gunman, saving five other people inside the apartment.
In the Sandoval case, Kochly said a complaint from an assault that preceded the slayings had not yet been forwarded to his office. Police have said they were awaiting toxicology tests based on the suspicion that Felix Sandoval was high on methamphetamine in that incident. Besides coming within 100 yards of his wife, he also had violated the restraining order by possessing ammunition.
But he made bail in under two hours, and would have remained free even if immediately charged, Kochly said.
"I don't believe there was anything that could have been done to have incapacitated him," Kochly said. "Certainly there is no piece of paper that can guarantee protection from someone intent on causing harm — not by a long shot."
Susun Kim, managing attorney for the Contra Costa regional office of Bay Area Legal Aid, agreed with Kochly.
"If a person is so deranged, so desperate that he's willing to kill his children and his spouse, what order will this person listen to?" Kim asked.
Kim said domestic violence victims need to view the killings with the proper perspective — they're extremely rare — and realize that the overall benefits of filing for a restraining order greatly outweigh the chances of tragedy.
"It happens very rarely," Kim said. "I've been doing this 11 years, representing domestic violence survivors, and none of my clients have ever been hurt or killed."
Most people served with a restraining order comply, said Concord police Detective Rick Rivera, one of two investigators dedicated to a monthly domestic violence caseload of about 100 in the county's largest city. About 10 percent of restraining order violations in Concord are committed by chronic offenders, Lt. Andrew Gartner said.
"(A restraining order) ends the behavior for a lot of people," Rivera said. "Once they're served, they realize, 'It's no longer between me and my partner. It's between me and the state.'"
Furthermore, Kim said, domestic violence victims are empowered by the educational process entailed in filing.
"They learn how to protect themselves," Kim said. "It also changes the power dynamics of the relationship."
That sense of power can fuel the persistence needed to get violators prosecuted.
"Victims should never grow tired of reporting violations of restraining orders. Multiple reports show a pattern of disregard for the judge's orders and can be combined later to further justify the seriousness of the matter and the state of mind of the offender," Gartner said.
Even so, Silvia Torres-Limón, who lost her sister, Catalina Torres, to one of the extreme, rare cases, wants to see harsher punishment to stop particularly violent offenders.
"It's better to be too severe than to be regretful," she said.
In the absence of stiffer penalties — violations are classified as misdemeanors, though officers can make arrests based on observed evidence of assault or abuse — Kim said her agency is working with county police departments to standardize response practices, so that instances of family violence are consistently and thoroughly investigated and reach the District Attorney's Office. Concord's domestic violence team, led by Rivera, Detective Greg Pardella and two civilian family violence victim advocates, is one model for that effort.
Meanwhile, law enforcement agencies say they're working earnestly to ensure the orders are enforced. They note that while the system's shortcomings never fail to garner attention, the successes are difficult to quantify.
"It's one of those immeasurable things," Orman said. "How do you know about the ones that worked?"