Court Opinion

ID: 9881487
Source: CourtListenerOpinion
Date Created: 2023-10-02 20:03:57.919116+00
Date Added: 2024-06-11T14:08:35.133543
License: Public Domain

Filed 10/2/23 In re N.R. CA5

                  NOT TO BE PUBLISHED IN THE OFFICIAL REPORTS
California Rules of Court, rule 8.1115(a), prohibits courts and parties from citing or relying on opinions not certified for
publication or ordered published, except as specified by rule 8.1115(b). This opinion has not been certified for publication
or ordered published for purposes of rule 8.1115.

           IN THE COURT OF APPEAL OF THE STATE OF CALIFORNIA
                                     FIFTH APPELLATE DISTRICT

    In re N.R., a Person Coming Under the Juvenile
    Court Law.

    KERN COUNTY DEPARTMENT OF HUMAN                                                          F085881
    SERVICES,
                                                                              (Super. Ct. No. JD142214-00)
           Plaintiff and Respondent,

                    v.                                                                    OPINION
    VANESSA L.,

           Defendant and Appellant.

                                                   THE COURT*
         APPEAL from an order of the Superior Court of Kern County. Louie L. Vega,
Judge. (Retired Judge of the Kern County Sup. Ct. assigned by the Chief Justice pursuant
to art. VI, § 6 of the Cal. Const.)
         Carolyn S. Hurley, under appointment by the Court of Appeal, for Defendant and
Appellant.
         Margo A. Raison, County Counsel, and Alexandria M. Ottoman, Deputy County
Counsel, for Plaintiff and Respondent.
                                                        -ooOoo-

*        Before Peña, Acting P. J., Meehan, J. and Snauffer, J.
                                    INTRODUCTION
       Vanessa L. (mother) and I.R. (father)1 are the parents of daughter N.R. (born
June 2016). Mother appeals from the juvenile court’s order terminating her parental
rights pursuant to Welfare and Institutions Code section 366.26.2 She contends the Kern
County Department of Human Services (department) and the juvenile court failed to
comply with the inquiry requirements of the Indian Child Welfare Act (25 U.S.C. § 1901
et seq.) (ICWA) and related California law because an inquiry was not conducted with
father or the extended family members.3 The department concedes.
       For the reasons discussed herein, we accept the department’s concession of ICWA
error. Consistent with our decisions in In re K.H. (2022) 84 Cal.App.5th 566 (K.H.) and
In re E.C. (2022) 85 Cal.App.5th 123 (E.C.), we conclude “the error is prejudicial
because neither the [department] nor the court gathered information sufficient to ensure a
reliable finding that ICWA does not apply and remanding for an adequate inquiry in the
first instance is the only meaningful way to safeguard the rights at issue. ([In re A.R.
(2021)] 11 Cal.5th [234,] 252–254 [(A.R.)].) Accordingly, we conditionally reverse the
juvenile court’s finding that ICWA does not apply and remand for further proceedings
consistent with this opinion, as set forth herein.” (K.H., at p. 591; accord, E.C., at
pp. 157–158.)

1      Father was also known as W.R.
2      All further statutory references are to the Welfare and Institutions Code.
3      “[B]ecause ICWA uses the term ‘Indian,’ we do the same for consistency, even
though we recognize that other terms, such as ‘Native American’ or ‘indigenous,’ are
preferred by many.” (In re Benjamin M. (2021) 70 Cal.App.5th 735, 739, fn. 1.)

                                              2.
                 FACTUAL AND PROCEDURAL BACKGROUND4
Petition and Detention
       On July 6, 2021, the department filed a petition on behalf of N.R. pursuant to
section 300, subdivision (b). Father was listed as an alleged father. The petition
contained an Indian Child Inquiry Attachment (ICWA-010(A)) form indicating mother
gave no reason to believe N.R. was or could be an Indian child. N.R. was placed in
protective custody that same day.
       Prior to the detention hearing, mother filled out a Parental Notification of Indian
Status (ICWA-020) form denying Indian ancestry. At the detention hearing, the juvenile
court conducted its own inquiry on mother and found ICWA did not apply as to her.
Father was not present but was elevated to presumed father status. He was incarcerated
in Illinois. The court found a prima facie case had been established and ordered N.R.
detained from mother.
Jurisdiction and Disposition
       On July 30, 2021, the juvenile court held a combined jurisdiction and disposition
hearing. The allegations in the petition were found true, and the disposition hearing was
continued and set for contest.
       The disposition social study stated ICWA did not apply. The social study also
detailed the department’s contacts with extended family members for placement
purposes. The department had been in contact with maternal aunt Sara L., paternal sister
A.R., maternal grandmother D.S., and paternal aunt J.R. The father of N.R.’s half sister
and paternal aunt J.R. had both requested placement of N.R.

4      Because the sole issue on appeal concerns ICWA, we restrict our facts to those
bearing on that issue or helpful for clarity.

                                             3.
       On August 26, 2021, the juvenile court held a disposition hearing and ordered
N.R. detained, ordered mother to participate in reunification services, and set a six-month
review hearing.
Six-Month Status Review
       The six-month status review social study stated ICWA had been previously found
inapplicable to “the parents” and no new information had been received. It should be
noted that ICWA had only been found inapplicable as to mother.
       On February 25, 2022, the juvenile court held a six-month review hearing where
father made his first appearance in court, but the court continued the hearing. Father did
not appear at the continued hearing. Mother’s reunification services were continued, and
a 12-month status review hearing was set.
Twelve-Month Status Review
       The 12-month status review social study reiterated the information from the prior
social study, stating ICWA had been found inapplicable and new information had not
been received.
       On September 19, 2022, the juvenile court held a 12-month status review hearing.
Father appeared at the hearing. Mother was not present. The court adopted the
department’s recommendation to terminate mother’s reunification services and set a
section 366.26 hearing.
Section 366.26
       The section 366.26 social study again stated ICWA had been found inapplicable
and that no new information had been received.
       On March 2, 2023, the juvenile court terminated parental rights.
       On March 8, 2023, mother filed a notice of intent, which this court deemed a
notice of appeal.

                                            4.
                                       DISCUSSION
I.     ICWA
       A.     Legal Principles
       “ ‘ICWA is a federal law giving Indian tribes concurrent jurisdiction over state
court child custody proceedings that involve Indian children living off of a reservation’
[citations], in furtherance of ‘federal policy “ ‘that, where possible, an Indian child should
remain in the Indian community’ ” ’ [citations]. ‘ICWA establishes minimum federal
standards, both procedural and substantive, governing the removal of Indian children
from their families’ [citations], and ‘[w]hen ICWA applies, the Indian tribe has a right to
intervene in or exercise jurisdiction over the proceeding.’ ” (K.H., supra, 84 Cal.App.5th
566, 594, fn. omitted; accord, E.C., supra, 85 Cal.App.5th at p. 138, fn. omitted.)
       “ ‘In 2006, California adopted various procedural and substantive provisions of
ICWA.’ [Citations.] The Legislature’s ‘primary objective … was to increase
compliance with ICWA. California Indian Legal Services (CILS), a proponent of the
bill, observed that courts and county agencies still had difficulty complying with ICWA
25 years after its enactment, and CILS believed codification of [ICWA’s] requirements
into state law would help alleviate the problem. [Citation.]’ ” (K.H., supra, 84
Cal.App.5th at p. 595; accord, E.C., supra, 85 Cal.App.5th at pp. 138–139.)
       “ ‘In 2016, new federal regulations were adopted concerning ICWA compliance.
[Citation.] Following the enactment of the federal regulations, California made
conforming amendments to its statutes, including portions of the Welfare and Institutions
Code related to ICWA notice and inquiry requirements. [Citations.] Those changes
became effective January 1, 2019 .…’ [Citation.] Subsequently, the Legislature
amended section 224.2, subdivision (e), to define ‘reason to believe,’ effective
September 18, 2020.” (K.H., supra, 84 Cal.App.5th at pp. 595–596, fn. omitted; accord,
E.C., supra, 85 Cal.App.5th at p. 139.)

                                              5.
              1.     Summary of Duties of Inquiry and Notice
       “[W]hether a child is a member, or is eligible for membership, in a particular tribe
is a determination that rests exclusively with the tribe, and neither the [department] nor
the court plays any role in making that determination. [Citations.] ‘ “Because it typically
is not self-evident whether a child is an Indian child, both federal and state law mandate
certain inquiries to be made in each case.” ’ ” (K.H., supra, 84 Cal.App.5th at p. 596;
accord, E.C., supra, 85 Cal.App.5th at pp. 139–140.)
       “In California, section 224.2 ‘codifies and elaborates on ICWA’s requirements of
notice to a child’s parents or legal guardian, Indian custodian, and Indian tribe, and to the
[Bureau of Indian Affairs].’ ” (In re A.R. (2022) 77 Cal.App.5th 197, 204.) California
law imposes “an affirmative and continuing duty [on the court and the county welfare
department] to inquire whether a child for whom a petition under [s]ection 300, … may
be or has been filed, is or may be an Indian child.” (§ 224.2, subd. (a).)
       “The [state law] duty to inquire begins with the initial contact, including, but not
limited to, asking the party reporting child abuse or neglect whether the party has any
information that the child may be an Indian child.” (§ 224.2, subd. (a).) “If a child is
placed into the temporary custody of a county welfare department pursuant to
[s]ection 306 … the county welfare department … has a duty to inquire whether that
child is an Indian child. Inquiry includes, but is not limited to, asking the child, parents,
legal guardian, Indian custodian, extended family members, others who have an interest
in the child, and the party reporting child abuse or neglect, whether the child is, or may
be, an Indian child and where the child, the parents, or Indian custodian is domiciled.”
(§ 224.2, subd. (b).) Additionally, “[a]t the first appearance in court of each party, the
court shall ask each participant present in the hearing whether the participant knows or
has reason to know that the child is an Indian child. The court shall instruct the parties to
inform the court if they subsequently receive information that provides reason to know
the child is an Indian child.” (§ 224.2, subd. (c).)

                                              6.
       “If the initial inquiry provides ‘reason to believe’ that an Indian child is involved
in a proceeding—that is, if the court or social worker ‘has information suggesting that
either the parent of the child or the child is a member or may be eligible for membership
in an Indian tribe’—then the court or social worker ‘shall make further inquiry’ regarding
the child’s possible Indian status as soon as practicable.” (In re Ezequiel G. (2022) 81
Cal.App.5th 984, 999 (Ezequiel G.), citing § 224.2, subd. (e).) “Further inquiry
‘includes, but is not limited to, all of the following: [¶] (A) Interviewing the parents,
Indian custodian, and extended family members[;] [¶] (B) Contacting the Bureau of
Indian Affairs and the State Department of Social Services[; and] [¶] (C) Contacting the
tribe or tribes and any other person that may reasonably be expected to have information
regarding the child’s membership, citizenship status, or eligibility.’ ” (Ezequiel G., at
p. 999.)
       “If there is ‘reason to know’ a child is an Indian child, the [department] shall
provide notice to the relevant tribes and agencies in accordance with section 224.3,
subdivision (a)(5).” (Ezequiel G., supra, 81 Cal.App.5th at p. 999, citing § 224.2,
subd. (f).) “There is ‘reason to know’ a child is an Indian child if any one of six statutory
criteria is met—i.e., if the court is advised that the child ‘is an Indian child,’ the child’s or
parent’s residence is on a reservation, the child is or has been a ward of a tribal court, or
either parent or the child possess an identification card indicating membership or
citizenship in an Indian tribe.” (Ezequiel G., at p. 999, citing § 224.2, subd. (d).)
       County welfare departments “must on an ongoing basis include in its filings a
detailed description of all inquiries, and further inquiries it has undertaken, and all
information received pertaining to the child’s Indian status, as well as evidence of how
and when this information was provided to the relevant tribes. Whenever new

                                               7.
information is received, that information must be expeditiously provided to the tribes.”
(Cal. Rules of Court, rule 5.481(a)(5).)5
       B.     Standard of Review
       “The juvenile court’s finding that ICWA does not apply to the proceeding rests on
two elemental determinations, ‘subject to reversal based on sufficiency of the
evidence.’ ” (K.H., supra, 84 Cal.App.5th at p. 601, quoting § 224.2, subd. (i)(2); accord,
E.C., supra, 85 Cal.App.5th at pp. 142–143.) First, “[t]he court must find there is ‘no
reason to know whether the child is an Indian child,’ which is dependent upon whether
any of the six circumstances set forth in subdivision (d) of section 224.2 apply.” (K.H., at
p. 601, quoting § 224.2, subd. (i)(2); accord, E.C., at p. 143.) Second, “[t]he juvenile
court must … find a ‘proper and adequate further inquiry and due diligence .…’ ” (K.H.,
at p. 601, quoting § 224.2, subd. (i)(2); accord, E.C., at p. 143.)
       Under the substantial evidence standard, “ ‘a reviewing court should “not reweigh
the evidence, evaluate the credibility of witnesses, or resolve evidentiary conflicts.”
[Citation.] The determinations should “be upheld if … supported by substantial
evidence, even though substantial evidence to the contrary also exists and the trial court
might have reached a different result had it believed other evidence.” ’ [Citations.] The
standard recognizes that ‘[t]rial courts “generally are in a better position to evaluate and
weigh the evidence” than appellate courts’ [citation], and ‘an appellate court should
accept a trial court’s factual findings if they are reasonable and supported by substantial
evidence in the record’ [citation]. ‘[I]f a court holds an evidentiary hearing, it may make
credibility determinations, to which an appellate court would generally defer.’ ” (K.H.,
supra, 84 Cal.App.5th at p. 601; accord, E.C., supra, 85 Cal.App.5th at p. 143.)
       The juvenile court’s finding on the second element, however, “is ultimately
discretionary because it requires the juvenile court to ‘engage in a delicate balancing of’

5      All further references to rules are to the California Rules of Court.

                                              8.
various factors in assessing whether the [department’s] inquiry was proper and adequate
within the context of ICWA and California law, and whether the [department] acted with
due diligence.” (K.H., supra, 84 Cal.App.5th at p. 601, quoting In re Caden C. (2021)11
Cal.5th 614, 640; accord, E.C., supra, 85 Cal.App.5th at p. 143; Ezequiel G., supra, 81
Cal.App.5th at pp. 1004–1005.) Therefore, we employ a hybrid standard and review the
court’s determination for substantial evidence and abuse of discretion. (K.H., at p. 601;
accord, E.C., at pp. 143–144; Ezequiel G., at pp. 1004–1005.)
       “ ‘Review for abuse of discretion is subtly different [from review for substantial
evidence], focused not primarily on the evidence but the application of a legal standard.
A court abuses its discretion only when “ ‘ “the trial court has exceeded the limits of legal
discretion by making an arbitrary, capricious, or patently absurd determination.” ’ ”
[Citation.] But “ ‘ “[w]hen two or more inferences can reasonably be deduced from the
facts, the reviewing court has no authority to substitute its decision for that of the trial
court[.]” ’ ” [Citations.] [¶] While each standard here fits a distinct type of determination
under review, the practical difference between the standards is not likely to be very
pronounced.’ ” (K.H., supra, 84 Cal.App.5th at p. 602; accord, E.C., supra, 85
Cal.App.5th at pp. 143–144.)
       “Review of the juvenile court’s findings under the foregoing standards is
deferential, but ‘ “an appellate court [nevertheless] exercises its independent judgment to
determine whether the facts satisfy the rule of law.” ’ [Citations.] Where the material
facts are undisputed, courts have applied independent review to determine whether
ICWA’s requirements were satisfied.” (K.H., supra, 84 Cal.App.5th at p. 602; accord,
E.C., supra, 85 Cal.App.5th at p. 144.)
       C.     Analysis
              1.      Summary of ICWA Inquiry
       In the present case, mother denied having Indian ancestry when the department
and the juvenile court inquired of her. However, there is no indication the department or

                                               9.
the juvenile court ever conducted an inquiry with father. Moreover, nothing in the record
suggests the department conducted inquiries with the extended family members it was in
contact with. The record shows the department was at least in contact with maternal aunt
Sara, paternal sister A.R., maternal grandmother, and paternal aunt J.R. Mother asserts
the department’s failure to conduct inquiries with father and the extended family
members resulted in prejudicial error, which the department does not dispute.
       In K.H. and E.C., we addressed ICWA error at the inquiry stage. There, we
explained our decision not to follow the approaches articulated by other appellate courts
for determining whether ICWA error requires reversal and concluded that the Supreme
Court’s decision in A.R. supplies the appropriate framework for assessing prejudice in
this context. (K.H., supra, 84 Cal.App.5th at pp. 607–608, citing A.R., supra, 11 Cal.5th
at pp. 252–254; accord, E.C., supra, 85 Cal.App.5th at p. 152.) Applying the standards
we articulated in K.H. and E.C., as we discuss below, we agree with the parties and
conclude the department’s error is prejudicial and remand for the department to conduct a
proper, adequate, and duly diligent inquiry is necessary.
              2.     The Department and Juvenile Court Erred
       As previously mentioned, “[a]t the first appearance in court of each party, the
court shall ask each participant present in the hearing whether the participant knows or
has reason to know that the child is an Indian child. The court shall instruct the parties to
inform the court if they subsequently receive information that provides reason to know
the child is an Indian child.” (§ 224.2, subd. (c).) Moreover, when “a child is placed into
the temporary custody of a county welfare department …, the county welfare department
… has a duty to inquire whether [the] child is an Indian child. Inquiry includes, but is not
limited to, asking the child, parents, legal guardian, Indian custodian, extended family
members, others who have an interest in the child, and the party reporting child abuse or
neglect, whether the child is, or may be, an Indian child and where the child, the parents,
or Indian custodian is domiciled.” (§ 224.2, subd. (b).) Extended family members

                                             10.
include adult grandparents, siblings, brothers- or sisters-in-law, aunts, uncles, nieces,
nephews, and first or second cousins. (25 U.S.C. § 1903(2); § 224.1, subd. (c).)
       Here, the department inquired only of mother, which fell short of complying with
the plain language of section 224.2, subdivision (b). “[T]he law demands more than
merely inquiring of [a parent]” (K.H., supra, 84 Cal.App.5th at p. 620, citing In re
Antonio R. (2022) 76 Cal.App.5th 421, 431; accord, In re M.M. (2022) 81 Cal.App.5th
61, 74, review granted Oct. 12, 2022, S276099 (dis. opn. of Wiley, J.)), a point the
department does not dispute. There may be cases in which there is no one else to ask, but
if that is so, the record must be developed to reflect that fact and supported by
documentation. (Rule 5.481(a)(5).) “On a well-developed record, the court has relatively
broad discretion [in such cases] to determine [that] the [department’s] inquiry was proper,
adequate, and duly diligent on the specific facts of the case.” (K.H., at p. 589; accord,
E.C., supra, 85 Cal.App.5th at p. 157.) Accordingly, the juvenile court’s finding that
ICWA did not apply was not supported by substantial evidence, and its contrary
conclusion was an abuse of discretion. (§ 224.2, subd. (i)(2).)
              3.     Prejudice
       “Where, as here, the deficiency lies with the [department’s] duty of […] inquiry
and a juvenile court’s related finding of ‘proper and adequate further inquiry and due
diligence’ (§ 224.2, subd. (i)(2)), the error is one of state law ([In re] Benjamin M., supra,
70 Cal.App.5th at p. 742). Under the California Constitution, ‘[n]o judgment shall be set
aside, or new trial granted, in any cause, on the ground of misdirection of the jury, or of
the improper admission or rejection of evidence, or for any error as to any matter of
pleading, or for any error as to any matter of procedure, unless, after an examination of
the entire cause, including the evidence, the court shall be of the opinion that the error
complained of has resulted in a miscarriage of justice.’ (Cal. Const., art. VI, § 13.)”
(K.H., supra, 84 Cal.App.5th at p. 606; accord, E.C., supra, 85 Cal.App.5th at p. 151.)

                                             11.
       “ ‘[T]o be entitled to relief on appeal from an alleged abuse of discretion, it must
clearly appear the resulting injury is sufficiently grave to manifest a miscarriage of
justice’ [citations], and California law generally interprets its constitutional miscarriage
of justice requirement ‘as permitting reversal only if the reviewing court finds it
reasonably probable the result would have been more favorable to the appealing party but
for the error.’ ” (K.H., supra, 84 Cal.App.5th at pp. 606–607; accord, E.C., supra, 85
Cal.App.5th at pp. 151–152.)
       However, in A.R., the Supreme Court “recognized that while we generally apply a
Watson[6] likelihood-of-success test to assess prejudice, a merits-based outcome-focused
test is not always appropriate because it cannot always adequately measure the relevant
harm. [Citation.] In other words, where the injury caused by the error is unrelated to an
outcome on the merits, tethering the showing of prejudice to such an outcome misplaces
the measure, at the expense of the rights the law in question was designed to protect.”
(K.H., supra, 84 Cal.App.5th at p. 609, italics omitted.)
       As we explained in K.H., “ ‘ICWA compliance presents a unique situation .…’ ”
(K.H., supra, 84 Cal.App.5th at p. 608.) “ICWA is not directed at reaching, or
protecting, a specific outcome on the merits.” (Id. at p. 609; accord, E.C., supra, 85
Cal.App.5th at p. 154.) Rather, “ ‘[t]he purpose of ICWA and related California statutes
is to provide notice to the tribe sufficient to allow it to determine whether the child is an
Indian child, and whether the tribe wishes to intervene in the proceedings’ [citation], and
an adequate initial inquiry facilitates the information gathering upon which the court’s
ICWA determination will rest.” (K.H., at p. 608; accord, E.C., at pp. 152–153.) Yet,
“while the appealing party is usually a parent, parents do not bear the burden of gathering
information in compliance with ICWA [citations], and parents may raise the claim of
error for the first time on appeal.” (K.H., at p. 608; accord, E.C., at p. 153.) Further, the

6      People v. Watson (1956) 46 Cal.2d 818, 836.

                                             12.
ultimate determination whether a child is an Indian child rests with the tribe, not with a
parent, the department, or the juvenile court. (K.H., at p. 590; accord, E.C., at pp. 139–
140.) “[W]here the opportunity to gather the relevant information critical to determining
whether the child is or may be an Indian child is lost because there has not been adequate
inquiry and due diligence, reversal for correction is generally the only effective
safeguard.” (K.H., at p. 610, citing A.R., supra, 11 Cal.5th at pp. 252–254; accord, E.C.,
at p. 155.)
       Here, the department’s inquiry, limited only to mother, “ ‘fell well short of that
required to gather the information needed to meaningfully safeguard the rights of the
tribes, as intended under ICWA and California law’ ” (E.C., supra, 85 Cal.App.5th at
p. 156, quoting K.H., supra, 84 Cal.App.5th at p. 620), and “[a] finding of harmlessness
on this record would necessarily require speculation and ‘is at odds with the statutory
protections that ICWA and California law intend to afford Indian children and Indian
tribes.’ ” (E.C., at p. 155, quoting K.H., at p. 611.) Therefore, the error is prejudicial and
reversal is required.
       Accordingly, the juvenile court’s finding that ICWA does not apply is
conditionally reversed and the matter is remanded. The juvenile court is instructed to
ensure the department conducts “ ‘a proper, adequate, and duly diligent inquiry under
section 224.2, subdivision[s] (b) [and (e)], and document its inquiry in the record in
compliance with rule 5.481(a)(5).’ ” (E.C., supra, 85 Cal.App.5th at p. 157, quoting
K.H., supra, 84 Cal.App.5th at p. 621.) “ ‘This should not be interpreted as requiring an
exhaustive search for and questioning of every living relative of [N.R.]’ but ‘[w]e leave
that determination for the juvenile court in the first instance because it is better positioned
to evaluate the evidence provided by the [d]epartment. So long as the court ensures the
inquiry is reasonable and of sufficient reach to accomplish the legislative purpose
underlying ICWA and related California law, the court will have an adequate factual

                                             13.
foundation upon which to make its ICWA finding. (§ 224.2, subd. (i)(2).)’ ” (E.C.,
supra, 85 Cal.App.5th at p. 157, quoting K.H., supra, 84 Cal.App.5th at p. 621.)
                                      DISPOSITION
       The juvenile court’s finding that ICWA does not apply is conditionally reversed,
and the matter is remanded to the juvenile court with directions to order the department to
comply with the inquiry and documentation provisions set forth in section 224.2,
subdivisions (b) and (e), and rule 5.481(a)(5). The court is directed to comply with the
inquiry provisions of section 224.2, subdivision (c). If, after determining that an
adequate inquiry was made consistent with the reasoning in this opinion, the court finds
that ICWA applies, the court shall vacate its existing order and proceed in compliance
with ICWA and related California law. If the court instead finds that ICWA does not
apply, its ICWA finding shall be reinstated. In all other respects, the court’s order is
affirmed.

                                             14.