[¶ 1.] In this abuse and neglect appeal, the primary question is whether the Indian Child Welfare Act (ICWA) applies to an Indian child not eligible for tribal membership.
Background
[¶ 2.] On March 30, 2010, L.S., age three, went alone to a neighbor’s apartment because his mother, C.S., was drunk. The neighbor soon called the police and reported that the mother was acting disorderly. Police officers responding to the call found C.S. extremely intoxicated with barely intelligible speech. Her blood alcohol tested at .34. She was arrested on outstanding warrants. L.S. was removed from her custody.
[¶ 3.] C.S. began drinking early in life; she was first admitted for inpatient treatment at age fourteen. Following treatment, she remained sober for nineteen years. But in 2007 she began drinking again after the deaths of her mother, L.S.’s father, and a daughter due to Sudden Infant Death Syndrome.
[¶ 4.] C.S. agreed to work with the Department of Social Services (DSS) in an effort to regain custody of L.S. She signed a stipulation in June 2010 that L.S. was an abused or neglected child within the meaning of SDCL 26-8A-2. She also agreed to a case plan addressing her alcohol and parenting problems. But she struggled to make her appointments with DSS and visitation sessions with L.S. When she did attend, she often arrived intoxicated or exhibiting physical signs of alcohol withdrawal. She resisted initial attempts to treat her alcohol problems, including counseling and treatment. She also turned down assistance in obtaining her GED.
[¶5.] After missing two start dates, C.S. eventually entered inpatient alcohol treatment in July 2010. She was successfully discharged in August 2010. She refused to transition into a halfway house, but continued to work on her sobriety and attended appropriate aftercare groups for four months. She did not take advantage of any counseling services or parenting programs.
[¶ 6.] L.S. was returned to C.S. on November 5, 2010, for a trial reunification. C.S. relapsed, however, after a physical altercation with her adult son. On November 28, 2010, police officers were dispatched to C.S.’s apartment on a disorderly person report. Officers found the front door wide open. C.S. and her live-in boyfriend were passed out in the living room. L.S. was asleep on the couch. When eventually revived, C.S. had a .25 blood-alcohol level and struggled to communicate with the officers. C.S. was arrested on an outstanding warrant and L.S. was taken back into DSS custody.
[¶ 8.] DSS workers attempted to address other concerns, but C.S. was not receptive. L.S. had poor nutrition and was obese when he was with her, but his health improved in foster care. L.S. also had respiratory problems. Although C.S. was told it would be best not to smoke around L.S., she continued to smoke in her apartment and when L.S. was around. DSS was also concerned about C.S.’s two adult children who either lived or spent significant time at her residence. Both had chemical dependency issues. C.S.’s adult daughter was arrested after a plastic bag containing cocaine was found in C.S.’s home. C.S.’s adult son had domestic violence tendencies and had assaulted C.S. Additionally, C.S.’s live-in boyfriend had committed domestic violence against both L.S. and C.S. Her boyfriend also abused alcohol and had kicked C.S. out of the apartment before.
[¶ 9.] A dispositional hearing scheduled for June 15, 2011 was delayed because C.S. was in the emergency room for unknown reasons. A DSS worker discovered later that morning that although C.S. had a high blood alcohol level, she had been discharged and did not go to detox. At a hearing on June 28, C.S. requested a delay to recover from the effects of drinking too much. The court refused but told C.S. she could come and go from the courtroom as necessary. C.S. left after the first break and did not return.
[¶ 10.] When the dispositional hearing was held on July 26, C.S. did not attend. Again her attorney requested a continuance so that “hopefully [C.S.] can get to detox[.]” A continuance was denied. Testimony at the hearing established that L.S. displayed negative behaviors attributable to C.S.’s inconsistent visitation. L.S.’s behaviors included physical aggressiveness with other children and excessive anxiety about upcoming visits with C.S. L.S. had been seeing a therapist since September 2010 and had made considerable progress despite a regression when he was temporarily returned to C.S.’s home in November 2010. The therapist helped L.S. address his fears of not being able to wake C.S. up and being alone. They also worked on L.S.’s reluctance to let others take care of him. Other testimony established that L.S. improved his communication and physical health while in foster care. The circuit court terminated C.S.’s parental rights in August 2011.
[¶ 11.] C.S. is Native American and eligible to be enrolled in the Crow Creek Sioux Tribe. She indicated that she intended to enroll once she obtained her birth certificate, but she took no further steps while these proceedings were pending. Because C.S. was not actually enrolled, an ICWA specialist for the Crow Creek Sioux Tribe concluded that L.S. was not eligible for enrollment. Since L.S. was not enrolled or eligible for enrollment, the court found ICWA inapplicable. C.S. contends on appeal that the court erred in this decision, and erred in terminating her parental rights as the least restrictive alternative available.
[¶ 12.] “Parental rights may be terminated if it is in the best interests of the child and is also the least restrictive alternative available.” In re E.L. & R.L.,
1. ICWA Application to Nontribal Member
[¶ 13.] C.S. argues that the court erred in concluding that ICWA did not apply to this proceeding. When C.S. was a child, she was adopted by non-tribal members in another state. If not for this adoption, C.S. believes she would have been a member of the Crow Creek Sioux Tribe. And if she were an enrolled member, then L.S. would be eligible for enrollment within the meaning of ICWA. Based on these circumstances, C.S. asserts that the spirit of ICWA is not being followed because L.S. is a child Congress intended to protect in a way she was not.
[¶ 14.] These contentions have consequence: ICWA requires heightened standards for termination of parental rights. Yet those standards apply only if the child is an Indian child, as defined by ICWA in 25 U.S.C. § 1903(4):
“Indian child” means any unmarried person who is under age eighteen and is either (a) a member of an Indian tribe or (b) is eligible for membership in an Indian tribe and is the biological child of a member of an Indian tribe.
Thus, the term “Indian child” as defined by the ICWA means “something more specific than merely having Native American ancestors.” In re Arianna R.G.,
[¶ 15.] Indeed, at least one court has held that expanding ICWA to include ethnic Indians ineligible for tribal membership violates the Equal Protection Clause of the United States Constitution as an improper racial classification. In re A.W.,
[¶ 16.] Many tribes require persons to register or enroll to be considered members of the tribe; other tribes automatically include as members persons descended from tribal members listed on the tribal rolls as of a certain date. See United States v. Broncheau,
[¶ 17.] In the circumstances here, however, the Crow Creek Sioux Tribe requires an application for membership. See Constitution and By-Laws of the Crow Creek Sioux Tribe of Fort Thompson, South Dakota, Art. II, Membership. An Indian tribe’s determination of its membership and eligibility for membership is binding and conclusive in an ICWA proceeding. In re Adoption of C.D.,
[¶ 18.] “[I]n determining whether ICWA applies, state courts ‘may not second-guess the internal decision-making processes of the tribe in regard to its membership determination.’” Id. at 242 (quoting In re Phillip A.C.,
[¶ 19.] As the proponent, C.S. had the burden of proving that ICWA applied. In re A.S.,
2. Least Restrictive Alternative
[¶ 20.] C.S. contends that the circuit court erred in finding that termination of her parental rights was the least restrictive alternative available. She asserts that L.S. could have been “placed in another planned permanent living arrangement until C.S. was capable of parenting him again.”
[¶ 21.] Parental rights may be terminated if it is in the best interests of the child and is also the least restrictive alternative available. SDCL 26-8A-26. While termination of parental rights must be exercised cautiously, the “best interests of the [child] must always prevail.” People ex rel. T.G.,
[¶ 22.] C.S. had sixteen months to take advantage of many opportunities to ad
[¶ 23.] C.S. also argues that the circuit court failed to take into account her good faith efforts to cooperate with DSS, as required by SDCL 26-8A-21. She asserts that she did go to treatment and achieved sobriety for a time. She also points to the areas of parenting where she did not struggle, such as providing a suitable home.
[¶ 24.] The circuit court considered all the efforts C.S. made. But these good faith, temporary efforts cannot negate the fact that despite having sixteen months to do so, C.S. was unsuccessful in providing a suitable, sober home for L.S. She did not take advantage of any parenting classes or counseling to address her problems other than alcoholism. She took no steps to ensure that L.S. would be returning to a home without domestic violence and substance abuse. C.S.’s apparent inability to be actively involved in the court proceedings, due to intoxication or its effects, only reinforces the circuit court’s conclusions. The court considered the entire record of C.S.’s behavior and efforts, as well as L.S.’s progressive improvement, and found that it was in his best interest that C.S.’s rights be terminated. The court also found that this was the least restrictive alternative available. “When it comes to something as important as the welfare of young children, promises of the parents to conform to the standard of care for their children which is expected in our society do not carry as much weight as their past actions of not properly caring for the children.” People ex rel. L.S.,
[¶ 25.] Affirmed.
Notes
C.S. Was represented by counsel at all proceedings.