In re Interest of Erick M.
Statutes: Appeal and Error. Stаtutory interpretation presents a question of law, which an appellate court reviews independently of the lower court‘s determination. - ____: ____. Absent a statutory indication to the contrary, an appellate court gives words in a statute their ordinary meaning.
- Statutes: Legislature: Intent: Appeal and Error. An appellate court will not look beyond a statute to determine the legislative intent when the words are plain, direct, or unambiguous.
- ____: ____: ____: ____. An appellate court cаn examine an act‘s legislative history when a statute is ambiguous.
- Statutes. A statute is ambiguous if it is susceptible of more than one reasonable interpretation.
- Juvenile Courts: Judgments: Abandonment: Proof. For obtaining special immigrant juvenile status under
8 U.S.C. § 1101(a)(27)(J) (Supp. IV 2010), a petitioner can show an absent parent‘s abandonment by proof that the juvenile has never known that parent or has received only sporadic contact and support from that parent for a significant period. - Juvenile Courts: Judgments: Child Custody: Proof. If a juvenile lives with only one parent when a juvenile court enters a guardianship or dependency order, the reunification component under
8 U.S.C. § 1101(a)(27)(J) (Supp. IV 2010) is not satisfied if a petitioner fails to show that it is not feasible to return the juvenile to the parent who had custody. - Juvenile Courts: Judgments: Evidence. If a juvenile alien‘s absent parent has abused, neglected, or abandoned the juvenile, a petitioner seeking special immigrant juvenile status for the juvenile should offer evidence on this issue. Thus, when ruling on a рetitioner‘s motion for an eligibility order under
8 U.S.C. § 1101(a)(27)(J) (Supp. IV 2010), a court should generally consider whether reunification with either parent is feasible.
Appeal from the Separate Juvenile Court of Lancaster County: LINDA S. PORTER, Judge. Affirmed.
Kevin Ruser, of University of Nebraska Civil Clinical Law Program, and Amanda M. Civic, Senior Certified Law Student, for appellant.
John C. McQuinn, Chief Lincoln City Prosecutor, for appellee.
CONNOLLY, J.
SUMMARY
Erick M., a juvenile, requested that the juvenile court issue an order finding that under
The crux of this appeal is the meaning of the phrase “1 or both” parents under
BACKGROUND
SIJ STATUS
Under
There are two eligibility provisions under
Subparagraph (ii) is the best interest component. It requires a judicial or administrative finding that “it would not be in the alien‘s best interest to be returned to the alien‘s or parent‘s previous country of nationality or country of last habitual residence.”6 If a state court finds that both of the eligibility components are satisfied, then federal authorities may grant a petition for SIJ stаtus.7
THE FACTS OF ERICK‘S CASE
Here, the juvenile court adjudicated Erick and committed him to the care and custody of a state agency. The court committed him to the Office of Juvenile Services (OJS) in December 2010 because of two charges of being a minor in possession of alcohol. The court initially placed him in a residential treatment center. In July 2011, the juvenile court heard OJS’ motion to transfer Erick to the Youth Rehabilitation and Treatment Center in Kearney, Nebraska. While in the residential treatment center, Erick had continually disappeared from the residential center, used alcohol and drugs, committed
In September 2011, the court hеard Erick‘s motion for an eligibility order for SIJ status. Erick‘s family permanency specialist testified that she had no contact information for Erick‘s father. In fact, she did not know whether paternity had ever been established. She said Erick was unsure whether his father was in Mexico or New York. She anticipated that she would continue to work with Erick‘s mother after OJS released Erick from the Youth Rehabilitation and Treatment Center in Kearney. She did not know of any reports or investigations of abuse or neglect by Erick‘s mother.
Erick‘s mother testified that she did not know where Erick‘s father was and had not spoken to him in many years. She had never been accused of abusing or neglecting Erick.
The court overruled Erick‘s motion for an eligibility order. It found that the first requirement was met because Erick was committed to a state agency or department. But the court found that the facts failed to show that reunification with Erick‘s mother was not viable because of abuse, neglect, or abandonment. The court found that (1) it had removed Erick from his home because of his alcohol abuse and he had never been removed from his mother‘s home because of abuse, neglect, or abandonment; (2) Erick‘s mother had been present at almost every hearing; (3) Erick had lived with her before the court committed him to OJS; and (4) no evidence showed that he would not be returned to his mother when he was paroled or discharged from the Youth Rehabilitation and Treatment Center in Kearney.
The court concluded that there was no evidence that Erick‘s father had ever abused or neglected Erick. It made no findings whether he had abandoned Erick. Because the reunification component was not met, the court did not consider whether return to Erick‘s country of origin would be in his best interest.
ASSIGNMENT OF ERROR
Erick argues that the court erred in denying his motion for an eligibility order for SIJ status.
STANDARD OF REVIEW
[1] Statutory interpretation presents a question of law, which we review independently of the lower court‘s determination.8
ANALYSIS
As stated, this case hinges on the meaning of the federal statute‘s requirement that a juvenile court determine that reunification with “1 or both of the immigrant‘s parents” is not feasible because of abuse, neglect, or abandonment.9 Both parties argue that the plain language of the statute supports their interpretation.
Erick argues that
The State counters that if Congress had intended that a juvenile could satisfy the statute by showing only that reunification with one parent was not feasible, then it would not have included the words “or both.” It contends that Erick‘s interpretation renders this language superfluous and that Congress did not intend courts to ignore the presence of a parent with whom reunification is feasible. It argues that under Erick‘s interpretation, a juvenile court would be required to find that the reunification component was satisfied every time the State could not idеntify or find a juvenile‘s parent, even when reunification with the other parent was appropriate. In addition, the State argues that the evidence fails to show that Erick‘s father ever established paternity or abandoned him.
[2-5] Interpreting this statute to reach a legal conclusion presents a challenge. To construe it as something other than
Although Erick‘s argument is reasonable, Congress’ use of the word “or” does not necessarily decide the issue in his favor. Beсause “or” describes what a juvenile court must determine in the alternative, we could also reasonably interpret the phrase “1 or both” parents to mean that a juvenile court must find, depending on the circumstances, that either reunification with one parent is not feasible or reunification with both parents is not feasible. Unfortunately, there are no related provisions in the act from which we can discern Congress’ intent.14
It is true that courts will sometimes look to an agency‘s interpretation of a governing, ambiguous statute for guidance.15 But here, the proposed regulations for the 2008 amendment to
In 2008, Congress amended the eligibility requirements for SIJ status under
Under the 2008 amendment, the eligibility requirements under subparagraph (i) hinge primarily on a reunification determination. The amendment expanded eligibility to include juvenile immigrants whom a court has committed to or placed in the custody of an individual or a state-appointed entity—not just those whom a court has committed to or placed with a state agency оr department. In addition, Congress removed the requirement that the juvenile be under the court‘s jurisdiction because of abuse, neglect, or abandonment. Finally, Congress removed the requirement that a state juvenile court find that a juvenile is eligible for long-term foster care because of abuse, neglect, or abandonment. Instead, a court must find that reunification is not possible because of abuse, neglect, or abandonment.
So under the amended subparagraph (i), a juvenile court no longer needs to find that the juvenile is in the juvenile system because of abuse, neglect, or abandonment. It is sufficient that the court has placed the juvenile with a court-approved individual or entity and that reunification with “1 or both” parents is not feasible because of abuse, neglect, or abandonment. For
These 2008 changes expanded the pool of juvenile aliens who could apply for SIJ status. But an earlier 1997 amendment to the statute shows that despite this expansion, these juveniles must still be seeking relief from parental abuse, neglect, or abandоnment.
We start with the original language. Congress enacted the SIJ statute as part of the Immigration Act of 1990.21 The original eligibility requirements were a judicial or administrative order determining only that the juvenile alien was dependent on a juvenile court and that it would not be in the juvenile‘s best interest to be returned to the juvenile‘s or parent‘s home country.
In 1997, however, Congress amended
Even before the 1997 amendment, immigration authorities interprеted the “eligible for long-term foster care” requirement to mean that “a determination has been made by the juvenile court that family reunification is no longer a viable option.”24
Moreover, administrative appeal decisions from the denial of petitions for SIJ status illustrate how USCIS applies the requirement that a juvenile court find that reunification with “1 or both” parents is not feasible. We recognize that only designated decisions rendered in administrative appeals are published and considered binding precedent on immigration officials.26 But USCIS’ unpublished decisions nonetheless enlighten and confirm our analysis.27
A petition for SIJ status is typically filed for two general categories of juveniles: (1) for juvenile aliens who came to the United States without their parents or who began living with someone else soon after coming with their parents28; and
But even when reunification with an absent parent is not feasible because the juvenile has never known the parent or the parent has abandoned the child, USCIS and juvenile courts generally still consider whether reunification with the known parent is an optiоn.31 Thus, if the juvenile lives in the United States with only one parent and never knew the other parent, the reunification component is satisfied if reunification with the known parent is not feasible.32
We believe that this result shows that the “1 or both” parents rule is consistent with Congress’ intent to expand the pool of potential applicants. That is, under the “1 or both” parents rule, a juvenile is not disqualified from SIJ status solely because one parent is unknown оr cannot be found and, thus, cannot be excluded from the possibility of reunification.33
[6] So we reject the State‘s argument that Erick was required to show that his father had established paternity before Erick could prove abandonment. Because Erick has lived with only his mother, his family circumstances appear
These cases also illustrate, however, that USCIS does not consider proof of one absent parent to be the end of its inquiry under the reunification component. A petitioner must normally show that reunification with the other parent is also not feasible.35
[7] But if a juvenile lives with only one parent when a juvenile court enters a guardianship or dependency order, the reunification component under
In contrast, if the juvenile was living with both parents before a guardianship or dependency order was issued, reunification with both parents is usually at issue.37 These varied results are all consistent with Congress’ intent that SIJ status be available to only those juveniles who are seeking relief from parental abuse, neglect, or abandonment.
In re E.G. is distinguishable because the only parent with whom the juvenile was living when the dependency order was issued was the parent who had neglected and abandoned him. Also, the court‘s order does not show whether his mother had attempted to support or contact him. She did not attempt to intervene in the neglect proceedings. So her absence may have been the equivalent of abandonment. Most important, we disagree with the court‘s reasoning. Although many parents in other countries might be willing to relinquish custody of their child so the child could remain in the United States, the question for SIJ status is parental abuse, neglect, or abandonment.40
So we disagree that when a court determines that a juvenile should not be reunited with the parent with whom he or she has been living, it can disregard whether reunification with an absent parent is not feasible because of abuse, neglect, or
[8] We believe that this is the better rule. If a juvenile alien‘s absent parent has abused, neglected, or abandoned the juvenile, a petitioner seeking SIJ status for the juvenile should offer evidence on this issue. Thus, when ruling on a petitioner‘s motion for an eligibility order under
But this cаse presents the exception. Because Erick was living with only his mother when the juvenile court adjudicated him, he could not satisfy the reunification component without showing that reunification with his mother was not feasible. Because he failed to satisfy this requirement, the court had no need to consider whether reunification with Erick‘s father was feasible. We conclude that the juvenile court did not err in concluding that Erick did not satisfy the reunificаtion component. Erick was not seeking SIJ status to escape from parental abuse, neglect, or abandonment. There is no claim that reunification with his mother is not feasible for those reasons.
AFFIRMED.