In re C.L., a Person Coming Under the Juvenile Court Law. AMADOR COUNTY DEPARTMENT OF SOCIAL SERVICES, Plaintiff and Respondent, v. R.L., Defendant and Appellant.
C097911
IN THE COURT OF APPEAL OF THE STATE OF CALIFORNIA THIRD APPELLATE DISTRICT (Amador)
Filed 10/13/23
CERTIFIED FOR PUBLICATION; (Super. Ct. No. 22DP00857)
Carol A. Koenig, under appointment by the Court of Appeal, for Defendant and Appellant.
Gregory G. Gillott, County Counsel, and Lesley C. Barlow, Deputy County Counsel, for Plaintiff and Respondent.
Appellant R.L., presumed father (father) of minor C.L. (the minor), appeals from the juvenile court‘s order terminating father‘s parental rights and freeing the minor for adoption. (
The minor was removed from his parents through a protective custody warrant under
We agree with father and hold that the duty to inquire of extended family members applies when removal is made via a
FACTUAL AND PROCEDURAL BACKGROUND
The minor was removed via protective custody warrant based on a failure to thrive diagnosis and his parents’ refusal to take him to a hospital to be treated for an infection. The department filed a dependency petition on behalf of the minor, alleging he fell within the meaning of
At the detention hearing, the court (Judge J.S. Hermanson) asked both parents whether they were aware of any Indian ancestry. Mother responded that she wasn‘t sure, and father responded that his great-grandmother was full-blooded Cherokee but stated this couldn‘t be verified by any records. The court found a prima facie case to detain the minor from his parents. The court‘s minute order indicated the court found ICWA may apply, while its completed finding and orders after detention hearing form indicated it found no reason to believe or know that the minor is an Indian child and ICWA does not apply. No additional inquiry regarding the minor‘s Indian ancestry was made.
For purposes of the jurisdictional and dispositional hearings, the department reported that ICWA did not apply. Following the dispositional hearing, the court (Judge Renee C. Day) found no reason to know the child is an Indian child. At the selection and implementation hearing, the court (Judge Renee C. Day) found the minor likely to be adopted and terminated parental rights.
DISCUSSION
“Congress enacted ICWA in 1978 in response to ‘rising concern in the mid-1970‘s over the consequences to Indian children, Indian families, and Indian tribes of abusive child welfare practices that resulted in the separation of large numbers of Indian children from their families and tribes through adoption or foster care placement, usually in non-Indian homes.’ ” (In re Isaiah W. (2016) 1 Cal.5th 1, 7.) Those problematic practices were due to “a lack of culturally competent State child-welfare standards for assessing the fitness of Indian families; systematic due process violations against both Indian children and their parents during child-custody procedures; economic incentives favoring removal of Indian children from their families and communities; and social conditions in Indian country.” (81 Fed.Reg. 38778, 38780 (June 14, 2016).) The goal of ICWA is to “protect the best interests of Indian children and to promote the stability and security of Indian tribes and families.” (
California law implementing ICWA imposes requirements to protect the rights of Indian children and their families and tribes. (
I. Initial Inquiry
California‘s juvenile dependency statutes allow the state to take custody of juveniles in advance of a detention hearing in limited situations, both with and without a warrant. (See, e.g.,
Questions of statutory construction present issues of law subject to independent review on appeal. (Honchariw v. County of Stanislaus (2013) 218 Cal.App.4th 1019, 1026.) We begin with the statutory language because it is generally the most reliable indication of legislative intent, and if the statutory language is unambiguous, we usually adopt the plain meaning of the statute. (Committee for Green Foothills v. Santa Clara County Bd. of Supervisors (2010) 48 Cal.4th 32, 45.) This “plain meaning” rule does not require us to automatically adopt the literal meaning of a statutory provision. (Goodman v. Lozano (2010) 47 Cal.4th 1327, 1332.) “For example, when a literal construction would frustrate the purpose of the statute, that construction is not adopted.” (Honchariw, at p. 1027.) Instead, “[t]he intent prevails over the letter, and the letter will, if possible, be so read as to conform to the spirit of the act.” (Lungren v. Deukmejian (1988) 45 Cal.3d 727, 735.) In addition, “[r]emedial statutes should be broadly and liberally construed to promote the underlying legislative goals.” (Estate of Stoker (2011) 193 Cal.App.4th 236, 242.)
Here, the text at issue appears in
Father contends that the inquiry definition—specifically, the requirement to ask extended family members—applies as part of the department‘s initial inquiry where the child is detained through a protective custody warrant. The department counters that such inquiry is required only when the child is placed in temporary custody under
Early decisions from the Court of Appeal, Fourth Appellate District aligned with father, holding that the duty of initial inquiry in
Nevertheless, drawing from a concurring opinion in In re Adrian L. (2022) 86 Cal.App.5th 342 (Adrian L.), certain panels from the Court of Appeal, Fourth Appellate District, Division Two have departed from these early decisions and California Rules of Court, rule 5.481. (In re Robert F. (2023) 90 Cal.App.5th 492, review granted July 26, 2023, S279743 (Robert F.); In re Ja.O. (2023) 91 Cal.App.5th 672, review granted July 26, 2023, S280572 (Ja.O.); In re Andres R. (2023) 94 Cal.App.5th 828 (Andres R.).) According to this line of cases, the duty to inquire of extended family
Two members of a different panel of the Court of Appeal, Fourth Appellate District, Division Two reached the opposite conclusion in In re Delila D. (2023) 93 Cal.App.5th 953, review granted September 27, 2023, S281442 (Delila D.).1 They held “there is only one duty of initial inquiry, and that duty encompasses available extended family members no matter how the child is initially removed from [the] home.” (Delila D., at p. 962.) After providing an extensive review of the legislative history of
We find Delila D.‘s analysis persuasive.
though initially removed by protective custody warrant, are then delivered or placed into the department‘s custody pending a detention hearing.” (Delila D., at p. 973.)
Delila D. expresses the opinion that practically speaking, “[t]here is no . . . difference between children taken by warrant and those taken without a warrant . . . so there is no reason to distinguish between them for ICWA inquiry purposes.” (Delila D., supra, 93 Cal.App.5th at p. 972, review granted.) We agree and add that this lack of practical difference is demonstrated by the legislative history of
Before 2018, existing California statute allowed social workers and police officers to take a child into custody without a warrant and authorized a court to issue a protective custody warrant only after a dependency petition had been filed. (Sen. Rules Com., Off. of Sen. Floor Analyses, 3d reading analysis of Assem. Bill No. 1401 (2017-2018 Reg. Sess.) as amended Aug. 23, 2017, p. 4; see, e.g.,
The legislative history of
As to the purpose of
We begin by noting that minimizing separation of Indian families and maximizing early placement of Indian children with extended family, other members of the child‘s Indian tribe, or other Indian families is the resounding preference of ICWA and of the ICWA regulations that the BIA guidelines interpret. (81 Fed.Reg., supra, at p. 38782; BIA, “Frequently Asked Questions, Bureau of Indian Affairs, Final Rule: Indian Child Welfare Act (ICWA) Proceedings” (June 17, 2016), p. 4, available at <https://www.bia.gov/sites/default/files/dup/assets/as-ia/raca/pdf/idc1-034295.pdf> [as of October 13, 2023] archived at: <https://perma.cc/VWN7-JZGL>.) This placement preference reflects “[f]ederal policy that, where possible, an Indian child should remain in the Indian community.” (Miss. Band of Choctaw Indians v. Holyfield (1989) 490 U.S. 30, 37.) Thus, identification of a child‘s Indian community early on is paramount.
The legislative history indicates the Legislature sought to implement not only the BIA guidelines that Robert F. identifies but also, and more fundamentally, the federal regulations that those guidelines interpret. (Assem. Com. on Human Services, Analysis of Assem. Bill No. 3176 (2017-2018 Reg. Sess.) as introduced Apr. 2, 2018, p. 1; Sen. Com. on Judiciary, Analysis of Assembly Bill No. 3176 (2017-2018 Reg. Sess.) as amended June 18, 2018, p. 1.) Those regulations provide standards that apply to emergency proceedings and define those proceedings to “mean[] and include[] any court action that involves an emergency removal or emergency placement of an Indian child.” (
And second, the BIA explained that these emergency proceedings are those that “occur without the full suite of protections in ICWA” and that the emergency proceeding standards are “substantially similar to the emergency removal provisions of many states,” specifically listing Virginia Code section 16.1-251, which provides for an ex parte emergency removal order through sworn testimony before a judge. (81 Fed.Reg., supra, at p. 38794.)
We conclude that a removal under
Applying this conclusion here, the department‘s initial duty of inquiry was triggered when the minor was detained via warrant and included the duty to inquire of extended family members. The record is clear this duty
II. Further Inquiry
“State law requires [a juvenile] court to pursue an inquiry ‘[a]t the first appearance in court of each party’ by asking ‘each participant present in the hearing whether the participant knows or has reason to know that the child is an Indian child.’ (
The required further inquiry includes interviewing the parents and extended family members to gather the information necessary for an ICWA notice, contacting the Bureau of Indian Affairs and State Department of Social Services to gather the names and contact information of the pertinent tribes, contacting the tribes, and contacting any other person who may reasonably be expected to have information regarding the child‘s membership status or eligibility. (
DISPOSITION
The order terminating father‘s parental rights is conditionally reversed. We remand the matter to the juvenile court with directions to comply with the inquiry and notice provisions of
/s/
MESIWALA, J.
We concur:
/s/
HULL, Acting P. J.
/s/
BOULWARE EURIE, J.
