Opinion ID: 4119202
Heading Depth: 3
Heading Rank: 2

Heading: Foster Family Home

Text: The Cabinet must provide maintenance payments only if “the child has been placed in a foster family home or child-care institution.” 42 U.S.C. § 672(a)(2)(C). The Act defines “foster family home” to mean a “home for children which is licensed by the State in which it is situated or has been approved, by the agency of such State having responsibility for licensing homes of this type, as meeting the standards established for such licensing.” Id. § 672(c) (emphasis added). The Act contemplates two categories of foster families. The first category includes licensed foster parents, who usually care for unrelated foster children. To become licensed, prospective foster parents must satisfy certain safety standards, which include passing a background check and submitting to a home evaluation. Id. § 671(a)(20). The state also establishes non-safety standards, id. § 671(a)(10), which in Kentucky include mandatory periodic training. The second category consists of approved foster homes, which typically care for a relative child. Reflecting Congress’s preference that children live with family members, id. § 671(a)(19), the Act allows states to place children with unlicensed relatives. To obtain approval, the home must “meet[] the standards established for such licensing.” Id. § 672(c). Each state may waive non-safety standards on a case-by-case basis for children in relative foster family homes. Id. § 671(a)(10)(D). Furthermore, the Act requires states to give preference to adult relative caregivers only when the relative caregiver meets the relevant safety standards. Id. § 671(a)(19). Here, the parties stipulated to the following:  “[The mother] stipulated to dependency of A.O. on December 13, 2012 in the private petition in Clark County and to neglect of D.O. in April of 2013 in the Fayette County Family Court DNA proceeding. Accordingly, A.O. was initially placed with the person who made the petition, a non-relative placement, and D.O. was initially placed in foster care.”  “R.O. is the maternal great aunt of the children. She is a para-educator (teacher’s assistant) for Fayette County public schools. CHFS conducted a standard home No. 16-5461 D.O., et al. v. Glisson Page 13 evaluation and criminal background check on R.O. and eventually both children were placed in her home by Court Order.” The family argues that the Cabinet approved R.O. to be a foster parent. Prior to placement, the Cabinet verified that R.O. met relevant non-safety standards by conducting a home evaluation and a background check. After determining that her home was safe, the family court moved the children from another foster provider to her care. R.O. therefore argues that the Cabinet “approved” her as a foster parent for the children. Kentucky offers several arguments in response. Kentucky distinguishes between “foster care” and “kinship care.” According to Kentucky, “foster care” refers to licensed foster family homes. “Kinship care,” by contrast, refers to relative caregivers. Although the Cabinet must remit maintenance payments to foster parents, the Cabinet need only pay kinship care providers “[t]o the extent funds are available.” Ky. Rev. Stat. Ann. § 605.120(5) (West 2016). Due to inadequate appropriations, Kentucky ceased funding its kinship care program. To the extent the Cabinet’s failure to make maintenance payments turns on the distinction between relative and non-relative foster care providers, it plainly violates federal law. In Miller v. Youakim, 440 U.S. 125 (1979), Illinois placed two children with their older sister, Linda Youakim, and her husband. Id. at 130. “The Department investigated the Youakim home and approved it as meeting the licensing standards established for unrelated foster family homes . . . .” Id. Yet, “[d]espite this approval, the State refused to make Foster Care payments on behalf of the children because they were related to Linda Youakim.” Id. The Court reviewed the definition of “foster family home.” Id. at 130–31. After noting that the statute “defines this phrase in sweeping language,” the Court found that “Congress manifestly did not limit the term to encompass only the homes of nonrelated caretakers. Rather, any home that a State approves as meeting its licensing standards falls within the ambit of this definitional provision.” Id. at 135. Though Congress changed aspects of the Act over the ensuing years, it has not added any provision distinguishing relative and non-relative foster care providers. Nor has it modified the definition of “foster family home” that the Court interpreted in Youakim. Compare id. (defining “foster family home” under prior version of the Act), with 42 U.S.C. § 672(c). Thus, if No. 16-5461 D.O., et al. v. Glisson Page 14 Kentucky is denying benefits because the aunt is related to the children, it is violating federal law. Second, Kentucky notes that the Act makes kinship guardianship assistance optional: [A]t the option of the State, [the plan] provides for the State to enter into kinship guardianship assistance agreements to provide kinship guardianship assistance payments on behalf of children to grandparents and other relatives who have assumed legal guardianship of the children for whom they have cared as foster parents and for whom they have committed to care on a permanent basis, as provided in section 673(d) of this title. 42 U.S.C. § 671(a)(28). Under § 673(d), states may provide kinship guardianship assistance on behalf of children who previously resided “for at least 6 consecutive months in the home of the prospective relative guardian” and for whom the prospective guardian committed to caring on a permanent basis. Id. § 673(d)(3)(A). But kinship guardianship assistance applies only when the relative becomes the child’s permanent guardian, not while the child is in temporary status. As noted above, it is unclear whether R.O. is the children’s permanent guardian, or whether the placement is temporary. If R.O. has temporary custody of the children, then the Cabinet’s argument about kinship guardianship assistance is irrelevant. Accordingly, because the Cabinet “conducted a standard home evaluation and criminal background check on R.O.” prior to delivering the children to her care, she is an approved foster care provider.