Legal Document

440 U.S. 125 99 Supreme Court Reporter 957 59 United States Reports Lawyer’s Edition 2d Series KF101.8 U54 194 Jerome MILLER, etc., et al., Appellants,v.Marcel YOUAKIM al. Number 77-742. Argued Oct. 30, 1978. Decided Feb. 22, 1979. Syllabus In administering its Aid to Families with Dependent Children-Foster Care program (AFDC-FC), Illinois distinguishes between children who reside relatives and those do not. Children placed in unrelated foster homes qualify for the AFDC-FC program, which provides greater monthly payments than basic AFDC program. But are relatives' may participate only because State defines term "foster family home" as a facility operator. Section 408(a) of Social Security Act establishes certain conditions eligibility, among is requirement that child be "a home." This defined § 408 home licensed by it situated or has been approved . meeting standards established such licensing." The Department Health, Education, Welfare (HEW) interpreted federal statute require provide benefits "regardless whether operated relative." Appellees four were removed from their mother's following judicial determination neglect, older sister her husband. Two these husband, was licensing homes. nevertheless refused make on behalf they related parents. then brought this action challenging validity Illinois' distinction Appeals, affirming District Court's judgment appellees, struck down statute. Held : encompasses who, pursuant have meet State's requirements Accordingly, not exclude relatives. Pp. 133-146. (a) Both language legislative history show designed particular needs all eligible neglected children, Distinguishing equally based relationship parents would conflict Congress' overriding goal providing best available care dependent neglect. 134-143. (b) Interpretations HEW, agency charged entitled considerable deference. 143-144. 7 Cir., 562 Federal Reporter, 2nd 483, affirmed. Paul Judge Bargiel, Chicago, Ill., appellants. Robert E. Lehrer, appellees. Mr. Justice MARSHALL delivered opinion Court. 1 At issue appeal 2 (AFDC-FC) authorizes financial subsidies support made wards children's conducive welfare. §§ 408(a)(1), (2) 1935 (Act), amended, 42 Code KF62 608(a)(1), (2).1 To Foster assistance, must child-care institution." 408(a)(3), 608(a)(3).2 already existence when enacted 1961, aid live parent relative specified 406(a) Act.3 programs, listed 406(a), benefits, cannot receive assistance operator.4 living lower program.5 specific question presented here correctly eligibility set forth placement rather parents, under 3 * (Linda Youakim), husband (Marcel Youakim). 1969, them Family Services (Department), became responsible children,6 facilities until 1972. During period, each received full $105 month. 1972, decided place two Youakims, no legal obligation accept them.7 investigated Youakim homes, required state law.8 Despite approval, Linda Youakim. 4 exclusion caretakers reflects view covered within meaning provision at here. Interpreting provision, 5 residences families more 8 purpose training full-time basis. ." Ill.Ann.Stat., ch. 23, 2212.17 (Supp. 1978) (emphasis added).9 6 Homes definition licensed,10 law, payments.11 Although payments, did approximately $63 month, substantially less applicable rate.12 however, believed insufficient proper support, declined other children. These remain continue benefits. 1973, Youakims class 1983 themselves persons similarly situated, violative Equal Protection Clause Fourteenth Amendment. A three-judge certified class, but granted summary officials constitutional claim. 374 F.Supp. 1204 (ND Ill.1974). 9 While direct pending Court, issued formal interpretation scope pertinent part: 10 "When had his various 45 Regulations 233.110, rate payment prevails regardless HEW Program Instruction APA-PI-75-9 (Oct. 25, 1974). 11 light administrative interpretation, we vacated directed consider scheme inconsistent therefore invalid Supremacy Clause, U.S.Const., Article VI, cl. 2. versus Miller, 425 231, 96 1399, 47 701 (1976) (per curiam ). 12 On remand, holding denial services otherwise conflicts 401 Act. 431 40, Ill.1976).13 It found "plain words" 408, adjudged State, relative. F.Supp., 44-45. so ruling, court relied HEW's interpretive ruling national policy embodied "encourag[e] own relatives." 44. Since concluded satisfied. 43-44. 13 Appeals unanimously affirmed 483 (CA7 1977).14 held statutory last sentence does "implied intent" create an exclusion. F.2d, 487; see id., 486 n. 4. any 408. 486, 490. 14 We noted probable jurisdiction, 434 1060, 98 1230, 55 760 (1978), now affirm. II 15 participating deny unless Congress clearly indicated permissive. See, e. g., Burns Alcala, 420 575, 580, 95 1180, 1184, 43 469 (1975); Carleson Remillard, 406 598, 92 1932, 32 352 (1972); Townsend Swank, 404 282, 286, 502, 30 448 (1971); King Smith, 392 309, 88 2128, 20 1118 (1968). like AFDC-FC, employ "dependent child" define "all individuals." 402(a)(10), 602(a)(10); Quern Mandley, 436 725, 740-743, 18, 2068, 2074-2079 56 658 (1978). 408(e) reinforces general rule requiring "any" satisfies criteria 408(a). Thus, if encompassed places 16 arguing fall 408's home," appellants submit solely benefit categorical assistance. disagree. simply duplicate different beneficiaries. As demonstrate, Atlantic 17 408(a), defining child," eligibility. First, "as result effect continuation therein contrary welfare child." 608(a)(1). Second, child. 408(a)(2), 608(a)(2). Third, 608(a)(3). Fourth, plan prior initiation removal proceedings. 408(a)(4), 608(a)(4). 18 dispute case centers used third requirement, 408(a)(3) itself phrase sweeping language: 19 "[T]he 'foster home' means approved, type, 608 (last sentence). manifestly limit encompass nonrelated caretakers. Rather, approves falls ambit definitional provision. That intended further demonstrated "aid children," includes "in individual." 408(b)(1), 608(b)(1) added). Far excluding caretakers, uses broadest possible refers 21 Appellants concede provisions explicitly bar Juris. Statement 11; Brief 22; Reply 5; Nevertheless, infer isolated passages congressional intent except first rely 408(a)(1) (3). relevant 22 "(a) 'dependent child' shall, notwithstanding section [406(a)—the provision], also include (1) [406(a)] (specified [406(a)]) ., [and] (3) (Emphasis added.) 23 construe "notwithstanding" conjunction creating beneficiaries distinct AFDC. view, "notwithstanding 406(a)" both suspends close relative, precludes meets Under appellants' construction, read: For aid, shall he nonrelative's home. 24 difficulty strained use word "only." states "also " there basis construing unquestionably expands implicitly contracting 406(a). Because preclusive urged appellants, modify denote think clear neither nor embodies constrict broad 25 next maintain interpreting render meaningless another 408(f)(1) obligates ensure 26 "services provided improve [the child] being [406(a)]." 608(f)(1) 27 According homes," unnecessary suitable lives relative's 28 By ignoring critical "or," misconstrue import sure, 408(f) expresses preference return original transfer Congress, expressed alternative. When care, obviously can satisfy working toward ultimate removed, fully consonant including 29 Had presumably done explicitly, just restricted "child-care institution."15 Instead, plainly individual requirements, unpersuaded expansive definition. B structure fortify our conclusion should given scope. aftermath declaration could longer discontinue due unsuitable "while continues Letter 452, Bureau Public Assistance, Administration, (Jan. 17, 1961) (hereinafter Flemming Ruling). directing "either conditions" "make arrangements elsewhere," ibid., Ruling prompted encourage protection children.16 carefully tailored whose "home ENVIRONMENTS ARE CLEARLY CONTRARY TO THE[IR] BEST INTERESTS,"17 offered implement plan. Neither indicates differentiate Indeed, several respects neglected. See S.Rep.No.165, Page 6; 107 Cong.Rec. 6388 (1961) (remarks Sen. Byrd). 31 fundamental facilitate took steps "safeguard" intact units upheaval. 7; Byrd).18 demonstrably inimical welfare, obtain 7, U.S.Code Cong. & Admin.News 1722; 108 12693 (1962) Eugene McCarthy); 408(a)(1). Protecting integrity mandating approval decision remove embraces caretaker be. Yet construction justify relatives, since same child, facilities, rights allegedly abused guardians thus depend happenstance where placed, normally determined after necessary. reluctant attribute anomalous particularly absence indication meant protect strangers. concerned assuring substitute appropriate care. Pages 6-7. deter indiscriminate placements, establish every home, (definition home"), supervise 408(a)(2); 220.19(a), 233.110(a)(2)(i) (1977). materials point suggest subject some others, minimum quality, excluded authorizing procedure alternative actual homes,"19 evinced understanding time many exempted imposed types settings placed.20 likely procedure, particular, 33 indicate intend distinguish attached significance unique special problems order, distinguishing children: 34 "The necessary [neglected] often psychiatric medical 35 36 "These most underprivileged problems. 12692-12693 McCarthy). 37 recognition peculiar status continually develop "to assure receives care," 408(f)(1), periodically review necessity retaining appropriateness provided. ibid.; 220.19(b), (c), 233.110(a)(2)(ii) Additionally, work child's him feasible, 408(f)(1); supra, 137. comports underlying inception 1935. S.Rep.No.628, 74th Cong., 1st Sess., 16-17 (1935); H.R.Rep.No.615, 10-12 U.S., 581-582, S.Ct., 1184-1185, 401, 601, 132-133. believe extended depart principle.21 envisioned remedial environment correct enduring effects past neglect abuse. There nothing discriminate potential beneficiaries, need 38 evidenced 1967 amendments Act, increased match3¢s-FC exceed share payments.22 increase state-supervised programs cost care.23 amendment reveals homes.24 discloses generalized concern plight sheltered current environments forced States' inability finance S.Rep.No.744, 163-165; H.R.Rep.No.544, 100-101, 1967, 2834. Significantly, Committee increasing matching "not legally support" undertake order 164; 101, 3001. described, without qualification, "more favorable order." 4; 4, 2837. Contract 39 Our buttressed APA-PI-75-9, requires reaching conclusion, reasoned: 40 "A non-legally liable responsibility towards income resources factors determining entitlement payment. noted, too, liberalized participation recognizing costly APA-PI-75-9. 41 vacating "[t]he enforcement substantial factor considered statute." 235-236, 1402, citing New York Dept. Dublino, 413 405, 421, 93 2507, 2516, 688 (1973); Columbia Broadcasting System, Incorporated Democratic National Committee, 412 94, 121, 2080, 2095, 772 Investment company Institute Camp, 617, 626-627, 91 1091, 1097, 367 (1971). Administrative interpretations especially persuasive where, here, participated developing Adams States, 319 312, 314-315, 63 1122, 1123, 87 L.Ed. 1421 (1943); American Trucking Assns, 310 534, 549, 60 1059, 1067, 1345 (1940). supported statute, history, common-sense observation protections monetary afforded program.25 III mistreated ordered additional resources—both service arises parent.26 abused, arrangement bearing created meet. Absent decline unreasonable attribution. hold 44 below STEVENS part consideration case. 608, sets governing program: "Payment children; definitions "Effective period beginning May 1, 1961— 606(a) title, 607 title April 606(a)) (A) local 602 institution determination, (4) month proceedings leading initiated, (B)(i) application therefor, (ii) months (and of) therefor; "(b) 'aid children' 606(b) described paragraph section— "(1) individual, therefor public nonprofit private child-placement agency, "(2) institution, "(c) number individuals counted clause 603(a)(1) respect whom expenditures "but title— "(e) section, "(f) development (including periodic institution) "For purposes licensing; 'child-care institution' institutions contained supra. 606(a): part— needy deprived parental reason death, continued physical mental incapacity parent, father, mother, grandfather, grandmother, brother, sister, stepfather, stepmother, stepbrother, stepsister, uncle, aunt, cousin, nephew, niece, residence maintained one age eighteen, (B) twenty-one (as accordance prescribed Secretary) student regularly attending school, college, university, course vocational technical fit gainful employment." 1978). infra, 130-131. Illinois, consistently authorized Soc.Sec.Bull., 2, Tables 10, 14, 28, (Feb. 1962); Assistance Statistics: 1977, A, B, 6, (Sept. 1977); Ill.Rev.Stat., 37, 705-7(1)(f) 5005 1978), Pub. 80-1124, 1977 Ill. Laws 3367; 80-1364, Ill.Legis.Serv. 713 (West 10-2 Ch. 4-1.2 2217 1978); Services, Child Manual 2.8.2 DCFS Manual). recently revised conform decisions below. Agency documented "Relative Home Placement Agreements" identical, form obligations imposed, "foster" sometimes crossed out, references familial usual promise deleted. 43-44, nn. Ill.1976); App. 20-23. Similarly, "facility "any person, group persons, association organization, gain otherwise, arranges operator 2212.05 2213-2215; 2.8.2. exception differential, supplemental upon adequate showing bring up per 1204, 1206 September 1974, need-based previously receipt moot. 236 1402 pendent jurisdiction 1343(3) issue. 236, 1402; Hagans Lavine, 415 528, 94 1372, 577 (1974). appears Jones Davis, Civ. 76-805 (Ore., Apr. 8, 1977), docketed, CA9, 77-2254; Alston Health [1974-1976 Transfer Binder] Commerce Clearing House Poverty L.Rep. ¶ 22,336 (Wis.Cir.Ct., Jan. 21, 1976); Thompson 22,303 9, Taylor Dumpson, 79 Misc.2d 379, 362 N.Y.S.2d 888 (Sup.Ct.1974), moot, N.Y.2d 765, 375 90, 337 North Eastern 600 Clampett Madigan, [1972-1974 17,979 (SD, 24, 1973); Jackson Ohio Welfare, C72-182 Ohio, 1972); Sockwell Maloney, 1006, 1008, (Conn.1976) (dicta), aff'd, 554 1236 (CA2 1977) contrast institution" qualified exempt profit institutions. 87th 6-7 S.Rep.No.165), 1716; S.Rep.No.1589, 12-13 (1962), 1962, 1943; Hearings 1962 before Senate Finance, 65 (memorandum Secretary Ribicoff Byrd); Amendments Ways Means, 294-297, 305-307 (1962). 6-7, 1721. precaution reflected awareness events culminated Ruling. years preceding Ruling, using suitability rules intrusively impose moral social 321-327, 2135-2138, 118 example, threatening initiate proceedings, coerced mothers into "voluntarily" placing although might initiated. W. Bell, 124-136 (1965). Colo.Rev.Stat. 22-12-2, 22-12-3 (1953); Fla.Stat. 409.05 (1961); Idaho 39-1201, 39-1202 2304, 2310, 2314 Iowa Ann. 237.2, 237.3, 237.8 (1949); Md.Ann. Code, 88A, 20, (1957); Mo.Ann.Stat. 210.211 (1952 Supp. 1961); Mont.Rev. Codes 10-520, 10-521 N.H.Rev.Stat.Ann. 170:1-170:3 (1964); Pa.Stat.Ann., Tit. 11, 801, 802 (Purdon 1939 1964); R.I. Gen. 40-14-2, 40-14-11 (1956); Vt.Stat.Ann., 33, 501, 502 (1959); Wis.Stat. 48.62 (1957). goals behind matter, constitute homes." They contend permitting "financial incentive" refrain caring order. 26. Even true, "issue[s] [are] better addressed wisdom Court." Marquette Nat. Bank First Omaha Service Corp., 439 299, 319, 540, 551, 58 534 Furthermore, inclusion consistent evidently encouraging "most McCarthy), whatever cost, worth price. correct, incentive refuse altogether. Concerned subordinate interests supervising well-being youngsters love cash availability significantly motivate authorities even suited Law 90-248, 205(b), 81 Statutes-at-Large 892, 403(a)(1)(B) 603(a)(1)(B); 90th 286 (1967) S.Rep.No.744), adding 402(a)(20) 602(a)(20). 163-164; 100-101 H.R.Rep.No.544). Nor system why made. state-imposed responsibilities costs equivalent. Relying General Electric Gilbert, 429 125, 142-143, 97 411-413, 50 343 (1976), earlier pronouncement deserves little weight. refer sent 1971 regional official, stated However, correspondence Counsel departmental official office. letter Assistant Special Attorney Richard Ryan (Dec. 1976), Amicus Curiae 1a. reflect position, take agency's concerning coverage Appellants' reliance misplaced, bound "principle execution followed compelling indications wrong." Red Lion FCC, 395 367, 381, 89 1794, 1802, 371 (1969) (footnote omitted); Board Governors Reserve System Lincolnwood 234, 251, 505, 514-515, 484 (1978); Zemel Rusk, 381 11-12, 85 1271, 1278, 179 (1965); Udall Tallman, 380 16-18, 792, 616 recognizes much grants recipients. 12,

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