Dep't of Human Servs. v. T. M. D. (In re R. D. D.-G.)Dep't of Human Servs. v. T. M. D. (In re R. D. D.-G.)
Lead Opinion
In the court's view, notwithstanding the juvenile court's "passing references to child, it is evident that the court's focus was on mother and its desire to see her succeed,
Yet, the court determined, a permanent guardianship with child's foster parents was not an adequate means to establish the permanency that child needs.
"[M]any of the concerns that MacPhail expressed would not be alleviated by making child's foster parents his guardians. That is, the various concerns regarding the stress of uncertainty and the consequences of delaying child's attachment to his permanent caregiver would still be present, but the delay would be in the transition back to mother, rather than to his guardians. MacPhail opined that, in the approximately two years that child had been in the care of his uncle and aunt, he had 'developed a very secure bond, particularly with his [uncle].' MacPhail explained that once that happens, a subsequent move to another caregiver can be extremely disruptive and stressful, and that the child's reaction to being separated from the foster parent can be quite traumatic. We recognize that there is likely some risk of that phenomenon occurring every time that a child rejoins his or her parents following a temporary placement;
the question here, however, is whether, given child's already lengthy removal from his mother's care-together with the likelihood of an equal amount of future delay-it is in his best interests to leave open the possibility of a return to mother. We conclude that it is not."
Finally, the court reasoned, "the juvenile code expresses a legislative preference that children be placed in the most permanent setting suitable to their needs."
Judge Ortega authored the dissent, and four other judges joined her. The dissent was not persuaded by the majority's assertion that it was not applying a presumption in favor of adoption; in the dissent's view, the majority had effectively done so by "concentrating its analysis entirely on the evidence that established mother's unfitness *** and in assuming that termination of mother's parental rights was the only way to address child's need for permanency."
Mother filed a petition for review in this court, which we allowed. In this court, the parties do not square
ANALYSIS
The first question we must analyze is whether the statutory scheme contains a presumption or a preference for termination when a parent has been found to be unfit under ORS 419B.504. In analyzing that question, we begin with the relevant text. See State v. Gaines ,
The statutory grounds for termination of parental rights are set out in ORS 419B.502 to 419B.524. ORS 419B.504, the statute on which DHS relies for termination in this case, provides that
"[t]he rights of the parent or parents may be terminated as provided in ORS 419B.500 if the court finds that the parent or parents are unfit by reason of conduct or condition seriously detrimental to the child or ward and integration of the child or ward into the home of the parent or parents is improbable within a reasonable time due to conduct or conditions not likely to change." 7
ORS 419B.500, which is the focus of this case, includes an additional "best interest" requirement. It provides that,
"[t]he parental rights of the parents of a ward may be terminated as provided in this section and ORS 419B.502 to 419B.524, only upon a petition filed by the state or the ward for the purpose of freeing the ward for adoption if the court findsit is in the best interest of the ward." 8
"The first stage focuses on the conduct of a parent, i.e. , the alleged statutory grounds for termination. The second stage focuses on whether the best interests of the child will be served by termination. In a termination proceeding, if a parent's conduct justifies termination, then the best interests of the child are considered explicitly, and could even then prevent termination from occurring."
State ex rel. Juv. Dept. v. Beasley ,
That two-stage inquiry suggests that the legislature did not intend that establishing unfitness-a parent-focused consideration-would give rise to a presumption that termination is in a child's best interest-a child-focused consideration. Instead, as the department acknowledges, the legislature expressly contemplated that, even when a parent is unfit and reunification within a reasonable time is improbable, it may not be in a child's best interest to terminate parental rights. The department therefore does not press its original argument for a statutory presumption,
Specifically, the department identifies ORS 419B.476(5) as establishing a hierarchy of preferred placements, with parental reunification as the most desirable option and adoption as the second most:
"(5) The court shall enter an order within 20 days after the permanency hearing. In addition to any determinations or orders the court may make under subsection (4) of this section, the order shall include the following:
"* * * * *
"(c) If the court determines that the permanency plan for the ward should be to return home because further efforts will make it possible for the ward to safely return home within a reasonable time, the court's determination of the services inwhich the parents are required to participate, the progress the parents are required to make and the period of time within which the specified progress must be made.
"(d) If the court determines that the permanency plan for the ward should be adoption, the court's determination of whether one of the circumstances in ORS 419B.498 (2) is applicable.
"(e) If the court determines that the permanency plan for the ward should be establishment of a legal guardianship, the court's determination of why neither placement with parents nor adoption is appropriate.
"(f) If the court determines that the permanency plan for a ward should be placement with a fit and willing relative, the court's determination of why placement with the ward's parents, or for adoption, or placement with a legal guardian, is not appropriate."
The department is correct that when a court changes a permanency plan from reunification to adoption, the legislature contemplates that a petition for termination of parental rights will be filed. When a court determines that the appropriate permanency plan is adoption, ORS 419B.476(5) requires the court to enter an order providing for that plan, including whether, and if applicable, when the ward will be placed for adoption and a petition for the termination of parental rights will be filed. And ORS 419B.498(3) provides that no petition to terminate parental rights may be filed until after a court has conducted a permanency hearing and has determined that the permanency plan for the child or ward should be adoption. But, the fact that termination is contemplated does not mean it must be ordered. The statutes set out procedural and substantive requirements that still must be met before parental rights are terminated, and those requirements are different from those that apply in a permanency proceeding. In a termination proceeding, the department must prove all of the facts required for
The legislative history is of no greater help. The "best interest" requirement of ORS 419B.500 was added as an amendment to House Bill (H.B.) 3200 in 1989. The representative who proposed the amendment explained that the best-interest requirement was the "traditional doctrine" but was not reflected in the termination statute as it was written. Audio Recording, House Committee on Judiciary, Subcommittee on Family Justice, H.B. 3200, Mar. 31, 1989 (statement of Rep. Kevin Mannix). A representative from the Department of Justice "strongly concur[red]" that H.B. 3200 should be so amended, explaining that requiring that termination was in the child's best interest was in case law and that it should be in the statute because termination should not occur merely
In short, there is no indication in the text of ORS 419B.500 that the legislature intended the "best interest" inquiry to be weighted with a presumption or a preference for termination. Nor is there any other support in the statute's context or legislative history to indicate that the legislature intended that, once the department has established parental unfitness and that reunification within a reasonable time is improbable, there is a preference for termination. Rather, ORS 419B.500 requires the juvenile court to
That conclusion also answers the department's more nuanced argument that "the legislative preference for adoption would be dispositive only in the absence of any evidence that the termination of parental rights would have a potential harmful effect on the child." When a court determines that the permanency plan for a child is adoption and the department files a petition for termination, the department still must prove, at the termination hearing, that adoption and termination are in the child's best interest. If the evidence demonstrates that adoption and termination would have a potential harmful effect on the child, then that evidence may support a juvenile court's decision to dismiss the petition. And, when the department establishes that a parent is unfit and that reunification within a reasonable time is not probable, it may not be difficult for the department to meet that burden. Facts that demonstrate the parent's unfitness also may demonstrate that it is in the child's best interest that the parent have no further relationship with the child. So, for instance, if a parent has physically abused a child and the child continues to suffer trauma in the parent's presence, those facts alone may establish that it is in the child's best interest to terminate parental rights. But, when a parent and a child have a positive bond, more may be required. The department is not correct that the absence of evidence that termination will cause potential harm is sufficient to meet the department's burden of proof.
And the department also is incorrect in its related argument that, absent the construction for which it argues, ORS 419B.500 would require the department to disprove the suitability of a permanency plan other than adoption in every case. Under ORS 419B.500, termination does not turn on the appropriate permanency plan. It is true that, in a termination proceeding, a parent may contend that a child's best interest can be met without termination and adoption. If the parent does so, the availability of another permanency plan that will advance the child's best interest, such as a permanent guardianship, may be a factor in a court's decision. But regardless of whether a parent takes
Having concluded that that statutory inquiry requires consideration of the evidence presented, without reliance on a statutory presumption or preference, we turn now to the evidence presented in this case and whether it established that termination of mother's parental rights is in child's best interest. The juvenile court weighed that evidence and permissibly concluded that it did not; child had an interest in maintaining maternal familial relationships, and his interest in permanency could be met through a permanent guardianship. On de novo review, the Court of Appeals weighed the facts differently, and, putting more emphasis on child's need for permanency, permissibly reached the contrary conclusion. We allowed mother's petition for review and also review the record de novo ; we are not bound by and need not
We begin with the evidence presented regarding child's need for permanency. MacPhail's testimony and report described the kind of permanency child needs: a consistent and reliable caregiver who offers a high level of consistency, stability, and routine; a caregiver who can advocate for child in both educational and community settings; a caregiver who can expose him to language-rich activities
To analyze that question, it is necessary to understand the statutes that pertain to permanent guardianships. The grounds for granting a petition for permanent guardianship are the same as those for termination of parental rights. ORS 419B.365(2).
Second, there is no evidence in this record that child's need for permanency is a need to have legal assurance that no court will ever change his placement. The witnesses testified that child's need is a need to be placed with a permanent caregiver without further delay. This is not a case in which there was evidence, for example, that child feared that mother would not accept his uncle and aunt as his permanent caregivers or that child would be harmed if a court were to make a different decision about his best interest in the distant future. The evidence suggests that the immediate security that child needs can be provided through a permanent guardianship.
Third, there was substantial evidence in this case that child had an interest in maintaining his relationship with his mother and his larger maternal family. As noted above, the juvenile court found that child "has a good albeit very limited relationship with Mother." That finding is supported by evidence that child is excited to see mother during visits and has a difficult time separating from her when the visit ends; he typically sits next to mother, without prompting, when the family takes photos. Child's maternal grandparents are significantly involved in his life; they spend a lot of time with child, including going to the library and the YMCA. Child's grandparents, his foster parents, and his mother are all "working together" for child because "family is very important to them." We give that evidence significant weight.
Although we, like the lower courts, recognize that child has an urgent need for a permanent caregiver and should not be required to wait longer to see if mother can fill that role, we also recognize that child is attached, not only to his foster parents, but also to mother and her family. We do not defer to the juvenile court's conclusions that termination of mother's parental rights is not in child's best interest, but we do draw confidence from its experience, knowing that it often has pondered how best to protect children. We conclude, as did the juvenile court, that there is a way to meet child's need for a permanent caretaker without sacrificing his interest in maintaining his maternal family relationships and that termination of mother's parental rights is not in his best interest.
The decision of the Court of Appeals is reversed. The judgment of the circuit court is affirmed.
Balmer, J., concurred and filed an opinion.
Notes
Both the juvenile court and the Court of Appeals stated their conclusions about child's best interest in terms of whether the department had proved that termination was in child's best interest by "clear and convincing" evidence. See ORS 419B.521(1) (facts on which termination is based must be established by clear and convincing evidence). In this court, neither party argues that that standard of proof is determinative.
ORS 419B.504 provides, in full:
"The rights of the parent or parents may be terminated as provided in ORS 419B.500 if the court finds that the parent or parents are unfit by reason of conduct or condition seriously detrimental to the child or ward and integration of the child or ward into the home of the parent or parents is improbable within a reasonable time due to conduct or conditions not likely to change. In determining such conduct and conditions, the court shall consider but is not limited to the following:
"(1) Emotional illness, mental illness or mental retardation of the parent of such nature and duration as to render the parent incapable of providing proper care for the child or ward for extended periods of time.
"(2) Conduct toward any child of an abusive, cruel or sexual nature.
"(3) Addictive or habitual use of intoxicating liquors, cannabis or controlled substances to the extent that parental ability has been substantially impaired.
"(4) Physical neglect of the child or ward.
"(5) Lack of effort of the parent to adjust the circumstances of the parent, conduct, or conditions to make it possible for the child or ward to safely return home within a reasonable time or failure of the parent to effect a lasting adjustment after reasonable efforts by available social agencies for such extended duration of time that it appears reasonable that no lasting adjustment can be effected.
"(6) Criminal conduct that impairs the parent's ability to provide adequate care for the child or ward."
ORS 419B.500 provides, in full:
"The parental rights of the parents of a ward may be terminated as provided in this section and ORS 419B.502 to 419B.524, only upon a petition filed by the state or the ward for the purpose of freeing the ward for adoption if the court finds it is in the best interest of the ward. If an Indian child is involved, the termination of parental rights must be in compliance with the Indian Child Welfare Act. The rights of one parent may be terminated without affecting the rights of the other parent."
Beasley addressed an older version of ORS 419B.500 and 419B.504, in which the two provisions above were originally combined. Former ORS 419.523 (1991). In 1993, the legislature recodified the statute in S.B. 257 to its current form. The move made "no substantive change in the law." Exhibit B, Senate Judiciary Committee, S.B. 257, Feb. 15, 1993 (testimony of Judge Stephen B. Herrell).
Before the Court of Appeals, the department relied in part on a statement from this court's decision in Geist ,
"Where a parent is unable or unwilling to rehabilitate himself or herself within a reasonable time so as to provide such an environment, the best interests of the child(ren) generally will require termination of that parent's parental rights."
ORS 419B.365(2) provides that the "grounds for granting a permanent guardianship are the same as those for termination of parental rights."
ORS 419B.365(3) provides that the court "shall grant a permanent guardianship if it finds by clear and convincing evidence that:
"(a) The grounds cited in the petition are true; and
"(b) It is in the best interest of the ward that the parent never have physical custody of the ward but that other parental rights and duties should not be terminated."
This court has allowed review of a case in which a parent successfully moved to dismiss jurisdiction and thereby ended a durable guardianship without seeking to have that guardianship vacated under ORS 419B.368. Dept. of Human Services v. J. C. ,
ORS 419B.368(2) provides that a court "may modify a guardianship order if the court determines to do so would be in the ward's best interests."
Concurrence Opinion
The court's opinion, which I join without reservation, explains how the "best interest of the child" standard operates in termination proceedings and carefully applies that standard to the facts of this case. I write separately to make two observations about how that opinion should be understood.
First, "this is a close case." Dept. of Human Services v. T. M. D. ,