MATTER OF INQUIRY INTO J L B

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IN THE SUPREME COURT OF THE STATE OF MONTANA IN THE MATTER OF INQUIRY INTO J.L.B. YOUTH IN NEED OF CARE. Appeal from: District Court of the Fourth Judicial District, Honorable E. Gardner Brownlee, Judge presiding. Counsel of Record: For Appellant: Klaus Sitte argued, Legal Services, Missoula, Montana For Respondent: Robert L. Deschamps, 111, County Attorney, Missoula Montana Karen Townsend, Deputy County Attorney, argued, Missoula, Montana Suzann Weiland, Deputy County Attorney, argued, Missoula, Montana Dennis Lind argued, Missoula, Montana Mary B. Troland appeared, Assistant Attorney General, Helena, Montana David Scott, SRS appeared, Helena, Montana Submitted: February 1, 1979 Mr. ~ustice Gene B. Daly d e l i v e r e d t h e O p i n i o n o f t h e C o u r t . A m o t h e r b r i n g s t h i s a p p e a l from t h e c o n c l u s i o n s and judgment o f t h e D i s t r i c t C o u r t , F o u r t h J u d i c i a l D i s t r i c t , which d e c l a r e d h e r d a u g h t e r a n e g l e c t e d c h i l d , and g r a n t e d permanent c u s t o d y o v e r t h e c h i l d t o t h e Department o f S o c i a l and R e h a b i l i t a t i o n S e r v i c e s w i t h a u t h o r i t y t o c o n s e n t t o h e r adoption. The mother c o n t e n d s f i r s t t h a t s e c t i o n 1 0 - 1 3 0 1 ( 2 ) ( a ) and ( b ) , R.C.M. MCA, 1947, now s e c t i o n 41-3-102(2) ( a ) and ( b ) d e f i n i n g "abuse" and " n e g l e c t " w e r e u n c o n s t i t u t i o n a l l y vague a s a p p l i e d t o h e r . Second s h e c o n t e n d s t h a t t h e a p p r o p r i a t e s t a n d a r d of p r o o f t o b e a p p l i e d t o t h e S t a t e i n a termination of p a r e n t a l r i g h t s proceeding i s t h e " c l e a r and convincing" s t a n d a r d , r a t h e r t h a n t h e "preponderance of e v i d e n c e " s t a n d a r d . The m o t h e r ' s t h i r d c o n t e n t i o n i s t h a t t h e D i s t r i c t C o u r t a b u s e d i t s d i s c r e t i o n i n removing t h e c h i l d p e r m a n e n t l y from h e r mother b e c a u s e t h a t d e c i s i o n w a s n o t s u p p o r t e d by e v e n a p r e p o n d e r a n c e o f t h e e v i d e n c e . We a f f i r m t h e d e c i s i o n of t h e D i s t r i c t Court. The c h i l d was b o r n on May 1 6 , 1 9 7 5 , when h e r mother w a s seventeen years old. H e r parents w e r e n o t married a t t h e t i m e o f h e r b i r t h , n o r have t h e y e v e r b e e n m a r r i e d . They d i d l i v e t o g e t h e r o n a f a i r l y r e g u l a r b a s i s from s h o r t l y a f t e r t h e c h i l d ' s b i r t h u n t i l December 1977. I n h e r f i f t h month o f p r e g n a n c y t h e mother was r e f e r r e d t o a P u b l i c H e a l t h S e r v i c e n u r s e , Mary X c C a l l , by a h i g h school counselor. From t h a t t i m e on t h e mother and c h i l d h a v e been f r e q u e n t l y v i s i t e d by a v a r i e t y o f h e a l t h and w e l f a r e o f f i c i a l s o f f e r i n g a s s i s t a n c e and i n s t r u c t i o n i n child care. Mary McCall t e s t i f i e d t h a t s h e m e t w i t h t h e mother and a r r a n g e d t o have a s o c i a l worker a s s i g n e d t o h e r . she f u r t h e r a r r a n g e d f o r t h e mother t o m e e t w i t h a n e l i g i b i l i t y t e c h n i c i a n t o p r o v i d e a s s i s t a n c e i n r e c e i v i n g I l e d i c a i d money f o r p r e n a t a l c a r e and a r r a n g e d a n a p p o i n t m e n t w i t h a p h y s i c i a n t o provide her with t h a t care. mother t o t h e W.I.C. She a l s o r e f e r r e d t h e program, a f e d e r a l n u t r i t i o n a l program f o r women, i n f a n t s , and c h i l d r e n , f o r p r e n a t a l n u t r i t i o n a l assistance. A s e n i o r s t u d e n t s o c i a l worker from t h e Univer- s i t y of Montana, T r i c i a W i l l i a m s , made weekly v i s i t s t o t h e m o t h e r from December 1974 u n t i l t h e c h i l d was b o r n . The mother was l a t e r r e f e r r e d t o t h e "At-Risk Program" o f t h e M i s s o u l a City-County H e a l t h D e p a r t m e n t , which a t t e m p t s t o i d e n t i f y mothers and c h i l d r e n t h a t w i l l b e a t r i s k f o r p o t e n t i a l h e a l t h p r o b l e m s d u e t o p r e n a t a l o r d e l i v e r y complications. A c c o r d i n g t o Mary McCall, t h e m o t h e r was r e f e r r e d t o t h e program b e c a u s e s h e was u n d e r e i g h t e e n , had n o t had p r e n a t a l c a r e f o r t h e f i r s t f i v e months o f h e r p r e g n a n c y , w a s u n a b l e t o r e a d o r w r i t e , had s u f f e r e d a k i d n e y i n f e c t i o n a n d anemia d u r i n g h e r p r e g n a n c y , and was u n m a r r i e d . A s a r e s u l t o f t h i s r e f e r r a l , Mary X c C a l l r e g u l a r l y v i s i t e d t h e mother a t h e r m o t h e r ' s home d u r i n g t h e summer o f 1975 and l e a r n e d o f t h e b a b y ' s problem o f s t a y i n g awake and c r y i n g most of t h e t i m e . I n M c C a l l ' s judgment, t h e problem was c a u s e d by t h e i n f a n t ' s d i e t . H e r m o t h e r had p u t c e r e a l i n h e r f o r m u l a , which McCall c o n c l u d e d was p r o b a b l y cons t i p a t i n g t h e baby b e c a u s e s h e w a s t o o young t o h a n d l e s o l i d food. McCall a l s o found t h e mother t o b e d e p r e s s e d and a n x i o u s from l a c k of s l e e p . She a s s i s t e d h e r w i t h t h e p r e p a r a t i o n o f f o r m u l a f o r h e r baby, d e m o n s t r a t i n g e a c h s t e p r a t h e r than l e a v i n g w r i t t e n i n s t r u c t i o n s because t h e mother was u n a b l e t o r e a d . 14cCall a l s o h e l p e d t h e mother w i t h a n a p p l i c a t i o n f o r a low-income h o u s i n g p r o j e c t i n M i s s o u l a when s h e i n d i c a t e d a d e s i r e f o r i n d e p e n d e n c e from h e r home. The mother o b t a i n e d t h e low-income h o u s i n g and l i v e d i n h e r own a p a r t m e n t i n t h e f a l l o f 1975. A n o t h e r s e n i o r s t u d e n t from t h e U n i v e r s i t y made a t o t a l o f 2 2 v i s i t s w i t h t h e m o t h e r t h a t f a l l t o a s s i s t with care f o r her child. r e c e i v e d a r e f e r r a l from t h e W.I.C. During t h a t t i m e , PllcCall program r e q u e s t i n g n u t r i t i o n a l c o u n s e l i n g f o r t h e m o t h e r , and v i s i t e d h e r o n c e again. The m o t h e r had been f e e d i n g t h e c h i l d s o d a pop r a t h e r than juice, diarrhea. t e l l i n g McCall t h a t j u i c e g a v e t h e baby McCall t e s t i f i e d t h a t t h e m o t h e r ' s a p a r t m e n t was messy, w i t h empty b e e r c a n s l y i n g a r o u n d , s a c k s o f g a r b a g e on t h e f l o o r and d i r t y d i s h e s i n t h e s i n k . She a l s o n o t e d t h a t t h e mother made no e f f o r t t o p i c k up h e r d a u g h t e r when s h e c r i e d , and t h a t t h e baby a p p e a r e d i r r i t a b l e . PlcCall was t o l d by t h e a p a r t m e n t manager t h a t t h e baby had b e e n c r y i n g a l l n i g h t , b u t t h e m o t h e r d e n i e d t h a t c l a i m when a s k e d by McCall. McCall a l s o had s e v e r a l v i s i t s w i t h t h e b a b y ' s f a t h e r , who was o c c a s i o n a l l y w i t h t h e mother d u r i n g h e r v i s i t s . He t o l d McCall t h a t h e hoped t o m a r r y t h e m o t h e r sometime, b u t n e v e r had d e f i n i t e p l a n s . H e t o l d h e r t h a t h e had f a i l e d o n e armed s e r v i c e s t e s t b u t was h o p i n g t o t a k e a n o t h e r s o t h a t h e c o u l d e n t e r t h e m i l i t a r y and t h e n m a r r y t h e m o t h e r . The m a r r i a g e a l w a y s a p p e a r e d t o b e c o n t i n g e n t upon t h e f a t h e r ' s a b i l i t y t o o b t a i n a s t a b l e j o b and home, b u t t h o s e conditions never m a t e r i a l i z e d . McCall c o n c l u d e d from h e r a s s o c i a t i o n w i t h t h e m o t h e r t h a t s h e was n o t r e t a i n i n g t h e b a s i c c h i l d c a r e i n f o r m a t i o n given her: "When I would v i s i t h e r , I u s u a l l y r e i t e r a t e d t h e same k i n d s of t h i n g s a b o u t n u t r i t i o n a l i n s t r u c t i o n s , t h e need f o r a r e g u l a r p h y s i c i a n f o r [ t h e b a b y ] , t h e need f o r i m m u n i z a t i o n s t o p r o t e c t [ t h e baby] from p r e v e n t a b l e c h i l d h o o d d i s e a s e s a n d many t i m e s when I would v i s i t h e r , t h i s m a t e r i a l seemed t o b e new a s i f s h e had never heard it before. She i n d i c a t e d t o m e t h a t s h e was n o t r e t a i n i n g t h i s i n f o r m a t i o n t h a t I had been g i v i n g h e r . " I n A p r i l 1976 t h e p a r e n t s b r o u g h t t h e baby t o D r . K i t Johnson, a p e d i a t r i c i a n , following t h e i r attempts t o g i v e t h e baby a " g r e e n d i s h s o a p " enema. According t o t h e par- e n t s , t h e baby had s u f f e r e d c o n s t i p a t i o n f o r t h r e e d a y s p r i o r t o t h e a t t e m p t e d enema. Dr. Johnson t e s t i f i e d t h a t t h e baby a p p e a r e d " a c u t e l y i l l " and "screamed o f p a i n . " He had h e r a d m i t t e d t o a h o s p i t a l where s h e s t a y e d o v e r n i g h t . Mary McCall had l i t t l e f o r m a l c o n t a c t w i t h t h e mother a n d c h i l d a f t e r F e b r u a r y 1976 when t h e y moved from h e r geographical jurisdiction. some c o n t a c t . However, s h e c o n t i n u e d t o h a v e On August 2 4 , 1976, t h e m o t h e r a p p e a r e d i n a n a l l e y b e h i n d t h e M i s s o u l a County H e a l t h a n d W e l f a r e B u i l d i n g a s McCall r e t u r n e d from a home v i s i t . She had t h e baby w i t h h e r and t o l d P i c c a l l t h a t s h e was g o i n g t o h a v e a n e r v o u s breakdown; t h a t s h e and t h e f a t h e r had had a f i g h t ; t h a t s h e needed a b a b y s i t t e r f o r h e r d a u g h t e r f o r two weeks; t h a t s h e had no money o r f o o d f o r t h e baby; t h a t t h e f a t h e r was d r i n k i n g h e a v i l y ; t h a t s h e was a n g e r e d by t h e b a b y ' s cont i n u o u s c r y i n g ; a n d t h a t s h e was a f r a i d s h e was g o i n g t o hurt the child. The baby was unwashed and c a r r i e d a b o t t l e of s p o i l e d , curdled milk. McCall t o o k them i n t o t h e Department of S o c i a l S e r v i c e s t o make care a r r a n g e m e n t s f o r mother and d a u g h t e r . With two s o c i a l w e l f a r e w o r k e r s t h e r e , Gwen P e t e r s o n and A r l e n e Grossman, McCall a g r e e d t h a t t h e baby s h o u l d b e p l a c e d i n t e m p o r a r y f o s t e r c a r e u n t i l h e r mother was a g a i n a b l e t o t a k e c a r e of h e r . The mother went a l o n g w i t h t h i s d e c i s i o n , a n d t h e c h i l d was t e m p o r a r i l y p l a c e d . The f o l l o w i n g d a y , however, t h e mother r e a p p e a r e d , demanded h e r c h i l d ' s r e t u r n , a n d a c c u s e d t h e w e l f a r e s t a f f of s t e a l i n g h e r d a u g h t e r . A f t e r some d i s c u s s i o n w i t h P e t e r s o n , Grossman, and McCall, t h e mother a g r e e d t o p l a c e m e n t f o r h e r c h i l d and h e r s e l f w i t h a f a m i l y i n C l i n t o n , I:Iontana, where t h e mother h e r s e l f had o n c e been a f o s t e r c h i l d . She l a t e r s i g n e d a s t i p u l a t i o n s t a t i n g t h e t e r m s o f t h a t a g r e e m e n t , which became t h e b a s i s o f a t e m p o r a r y c u s t o d y o r d e r s i g n e d by D i s t r i c t C o u r t J u d g e E. Gardner Brownlee on September 3 , The Baker f a m i l y , w i t h whom mother and d a u g h t e r were 1976. t o s t a y , agreed t o s e r v e a s p a r e n t i n g models, h e l p i n g t h e mother t o understand h e r r e s p o n s i b i l i t i e s . I n O c t o b e r 1976, t h e mother and h e r c h i l d r e t u r n e d t o Missoula t o l i v e w i t h t h e f a t h e r . H e had o b t a i n e d a j o b and a t r a i l e r h o u s e , b u t soon l o s t t h e j o b d u e t o e x c e s s i v e drinking. Through t h e f a l l months t h e m o t h e r m i s s e d s e v e r a l a p p o i n t m e n t s a t which s h e was t o r e c e i v e h i g h p r o t e i n W.I.C. foods. She d i d , however, r e c e i v e in-home a s s i s t a n c e from B e a t r i c e F o u r n i e r , a home a t t e n d a n t f o r t h e N i s s o u l a County W e l f a r e Department. F o u r n i e r h e l p e d t h e m o t h e r p l a n menus and, r e a l i z i n g h e r i n a b i l i t y t o r e a d , brought h e r p i c t u r e s o f food groups t o a i d i n h e r planning. She t e s t i f i e d , however, t h a t t h e mother f a i l e d t o comprehend t h e need f o r a b a l a n c e d d i e t and t h a t t h e i n s t r u c t i o n s w e r e n o t g e t t i n g through t o her. I n November 1976 A r l e n e Grossinan t o o k t h e c h i l d t o D r . J o h n s o n t o examine a stomach r a s h . Dr. Johnson concluded t h a t t h e r a s h was n o t s i g n i f i c a n t b u t d i a g n o s e d an i n f e c t i o n i n b o t h of t h e b a b y ' s e a r s . He p r e s c r i b e d a n a n t i b i o t i c , b u t A r l e n e Grossman d i s c o v e r e d t h a t t h e mother f a i l e d t o g i v e h e r d a u g h t e r t h e p r e s c r i b e d amount a t t h e a p p r o p r i a t e times. Nor d i d t h e mother r e t u r n t o D r . Johnson i n two weeks f o r a checkup on t h e c h i l d ' s e a r s a s s h e had been instructed. On J a n u a r y 1 8 , 1977, t h e c h i l d had a n o t h e r a p p o i n t m e n t w i t h D r . Johnson. A t t h a t t i m e s h e e x h i b i t e d p h y s i c a l and e m o t i o n a l s i g n s which D r . Johnson concluded r e q u i r e d f o s t e r placement: ". . . a t t h i s t i m e t h e c h i l d was v e r y r e s t l e s s and i r r i t a b l e and s h e was b i t i n g on h e r mother a s h e r mother p u t i t . She a p p e a r e d t h i n , s l i g h t l y s w o l l e n abdomen, h e r mother s t a t e d t h a t s h e had had i n a d e q u a t e food f o r t h e l a s t month b e c a u s e o f i n s u f f i c i e n t amount o f money, s t a t e d s h e was n o t l i v i n g w i t h [ t h e f a t h e r ] , s t a t e d [ t h e c h i l d ] had a c o l d and n o t f e e d i n g The abdomen was w e l l f o r t h e l a s t month s l i g h t l y d i s t e n d e d , t h e e a r s , t h e r i g h t was s l i g h t l y d u l l i n d i c a t i n g t h a t maybe some r e s i I thought a t t h i s time dual infection t h e c h i l d was maybe s u f f e r i n g from m a l n u t r i t i o n and m a t e r n a l inadequacy, u n a b l e t o cope with the child." .. . ... Dr. Johnson f u r t h e r t e s t i f i e d t h a t h i s e x a m i n a t i o n showed t h a t t h e c h i l d had l o s t w e i g h t s i n c e t h e p r e v i o u s November. I n F e b r u a r y 1977 D r . Johnson a g a i n examined t h e c h i l d when h e r temporary f o s t e r mother, Marlene Donnelly, b r o u g h t h e r t o him. The ear i n f e c t i o n had n o t y e t c l e a r e d up b u t o t h e r w i s e h e r p h y s i c a l c o n d i t i o n a p p e a r e d normal. Mrs. Donnelly d e s c r i b e d t o him, however, t h a t t h e c h i l d had a s t r o n g tendency t o scavenge f o r f o o d , e s p e c i a l l y t o e a t o u t o f household g a r b a g e . Dr. Johnson t e s t i f i e d t h a t s u c h a tendency b e a r s a h i g h c o r r e l a t i o n t o food d e p r i v a t i o n . He r e p o r t e d h i s f i n d i n g s t o t h e Missoula County W e l f a r e Depart- ment and t e s t i f i e d l a t e r t h a t t h e c h i l d d i d n o t r e c e i v e adequate p a r e n t a l care. Based upon t h e m o t h e r ' s and d a u g h t e r ' s p a s t r e c o r d o f d i f f i c u l t i e s , and D r . J o h n s o n ' s recommendations, C a r o l LaCasse, a M i s s o u l a County s o c i a l w o r k e r , f i l e d a p e t i t i o n f o r t e m p o r a r y i n v e s t i g a t i v e a u t h o r i t y and p r o t e c t i v e services. The D i s t r i c t C o u r t g r a n t e d t h e p e t i t i o n on J a n u a r y 1 9 , 1977, a u t h o r i z i n g t h e Department o f S o c i a l and R e h a b i l i t a t i o n S e r v i c e s t o t a k e temporary custody of t h e c h i l d . During t h e n e x t s e v e r a l weeks SRS c o n t i n u e d t o a s s i s t t h e parents i n learning parenting s k i l l s , but with r e s u l t s s i m i l a r t o those experienced e a r l i e r . I n p a r t i c u l a r , C a r o l LaCasse s o u g h t p a r e n t i n g t r a i n i n g f o r t h e mother. She p l a c e d t h e c h i l d i n t h e home o f a n e x p e r i e n c e d f o s t e r m o t h e r , M a r i l y n F e r n e l i u s , who s e r v e d a s a p a r e n t i n g model f o r t h e mother d u r i n g J a n u a r y 1977. mother v i s i t e d M r s . The F e r n e l i u s on weekdays and d i s c u s s e d and p l a n n e d menus w i t h h e r . Mrs. Fernelius a l s o instructed the mother i n d i s c i p l i n i n g h e r daughter b u t t e s t i f i e d t h a t t h e m o t h e r was i n c a p a b l e o f c o n t r o l l i n g t h e baby, t h a t i n e f f e c t t h e c h i l d c o n t r o l l e d h e r mother. Mrs. Fernelius t e s t i f i e d t h a t s h e o b s e r v e d t h e same a t t r a c t i o n t o g a r b a g e which Marlene Donnelly l a t e r r e p o r t e d t o D r . Johnson. ~ f t e r s e v e r a l weeks M a r i l y n F e r n e l i u s r e q u e s t e d t h a t t h e c h i l d b e p l a c e d e l s e w h e r e b e c a u s e s h e was a l r e a d y p r o v i d i n g f o s t e r c a r e f o r a t e e n a g e g i r l who r e q u i r e d a g r e a t d e a l o f h e r time. W i t h i n a few weeks t h e c h i l d was p l a c e d i n t h e f o s t e r care o f M r s . S a d i e Milward where s h e remained u n t i l t h e t i m e o f t h e h e a r i n g on t h e p e t i t i o n t o g r a n t permanent c u s t o d y t o SRS. While t h e c h i l d s t a y e d w i t h t h e M i l w a r d s , t h e p a r e n t s v i s i t e d t h e i r d a u g h t e r and took h e r w i t h them a t t i m e s b u t r e t u r n i n g h e r t h e same day. The r e c o r d , however, d o e s n o t r e f l e c t t h a t e i t h e r n a t u r a l p a r e n t was p r o v i d e d w i t h f u r t h e r p a r e n t a l t r a i n i n g s e r v i c e s during t h i s time. Following t h e c h i l d ' s temporary removal t h e c h i l d and p a r e n t s had p s y c h o l o g i c a l e x a m i n a t i o n s by t h r e e psychologists, Dr. Stratford. R i c h a r d B a l l , D r . Herman W a l t e r s and D r . W i l l i a m Drs. B a l l and W a l t e r s , who examined t h e p a r e n t s , and D r . S t r a t f o r d , who examined t h e c h i l d , a l l concluded t h a t SRS s h o u l d s e e k permanent a d o p t i v e c u s t o d y b e c a u s e o f t h e g e n e r a l inadequacy of t h e p a r e n t s , t h e p a r e n t s ' a p p a r e n t i n a b i l i t y t o change, and b e c a u s e of t h e c h i l d ' s s p e c i a l needs. On t h e o t h e r hand, a p s y c h i a t r i s t , D r . Yoel H o e l l , who a l s o examined t h e m o t h e r , concluded t h a t he c o u l d f i n d no p a r t i c u l a r c h a r a c t e r i s t i c s which would a b s o l u t e l y p r e v e n t h e r from b e i n g a n a d e q u a t e p a r e n t . He t e s t i f i e d t h a t many p e o p l e w i t h r e l a t i v e l y low l e v e l s of i n t e l l i g e n c e a r e adequate parents. A pediatrician, D r . D a n i e l H a r p e r , saw t h e mother and c h i l d on s e v e r a l o c c a s i o n s a s D r . J o h n s o n ' s s u c c e s s o r a f t e r t h e c h i l d had been p l a c e d i n temporary SRS c u s t o d y . He t e s t i f i e d t h a t f o l l o w i n g t h e temporary c u s t o d y o r d e r t h e c h i l d w h i l e i n t h e p r e s e n c e of h e r mother seemed more "bonded" t o h e r f o s t e r mother t h a n t o h e r n a t u r a l m o t h e r , and t h a t t h e c h i l d d i d n o t l o o k t o h e r own mother a s a n " o r i e n t a t i n g " o r "guiding" f o r c e . Dr. Harper a l s o t e s t i f i e d t h a t D r . J o h n s o n ' s c o n c e r n s a b o u t growth d e f i c i e n c i e s w e r e p r o b a b l y n o t a s o u r c e of g r e a t c o n c e r n , s i n c e i t w a s l a t e r c l e a r t h a t t h e c h i l d was of normal s h o r t s t a t u r e . Following t h e h e a r i n g on t h e p e t i t i o n f o r permanent custody, t h e D i s t r i c t Court issued i t s f i n d i n g s , conclusions a n d judgment. The c o u r t found t h a t t h e m o t h e r ' s l i m i t e d e d u c a t i o n and o t h e r l e a r n i n g d i s a b i l i t i e s and t h e f a t h e r ' s e x c e s s i v e d r i n k i n g had r e s u l t e d i n " i m p r o p e r p a r e n t i n g " a n d had " s u b j e c t e d t h e minor c h i l d t o p h y s i c a l and e m o t i o n a l n e g l e c t a s w e l l as o t h e r evidence of improper t r a i n i n g . " It found f u r t h e r t h a t t h e p a r e n t s w e r e unable o r unwilling t o p r o v i d e t h e n e c e s s a r y t r a i n i n g and g u i d a n c e f o r t h e i r c h i l d ; t h a t SRS was r e q u i r e d t o p l a c e t h e c h i l d i n f o s t e r c a r e p r i m a r i l y b e c a u s e of a l a c k o f and need f o r e m o t i o n a l d e v e l o p ment; t h a t f o s t e r p l a c e m e n t had r e s u l t e d i n " g r e a t improvement" i n h e r development; t h a t t h e b e s t i n t e r e s t s o f t h e c h i l d would n o t b e s e r v e d by r e t u r n i n g h e r t o o n e o r b o t h p a r e n t s b e c a u s e t h e n a t u r a l mother " a p p e a r s i n c o m p e t e n t t o f a c e and h a n d l e t h e p r o b l e m s p r e s e n t e d t o p a r e n t s by c h i l d r e n i n t h e i r a d v a n c i n g y e a r s " ; and t h a t t h e c h i l d ' s b e s t i n t e r e s t s c o u l d o n l y b e m e t by h e r a d o p t i o n " i n t o a home where t h e p a r e n t s h a v e d e m o n s t r a t e d t h e i r a b i l i t y " t o r a i s e and guide a " c h i l d w i t h problems." The c o u r t c o n c l u d e d f i r s t t h a t t h e c h i l d was n e g l e c t e d a n d s e c o n d t h a t h e r b e s t i n t e r e s t s and f u t u r e w e l f a r e c o u l d o n l y b e s e r v e d by g r a n t i n g permanent a d o p t i v e c u s t o d y t o t h e Department o f S o c i a l and R e h a b i l i t a t i o n S e r v i c e s . ~ased upon t h e s e f i n d i n g s and c o n c l u s i o n s , t h e c o u r t g r a n t e d c u s t o d y t o SRS w i t h a u t h o r i t y t o c o n s e n t t o h e r a d o p t i o n . of t h C o n s t i t u t i o n a l i t y - -e N e g l e c t S t a t u t e A s A p p l i e d The m o t h e r ' s f i r s t c o n t e n t i o n i s t h a t s e c t i o n 101 3 0 1 ( 2 ) ( a ) and ( b ) , R.C.M. 1947, now s e c t i o n 41-3-102 ( 2 ) ( a ) a n d ( b ) MCA, was u n c o n s t i t u t i o n a l l y a p p l i e d t o t e r m i n a t e h e r parental rights. H e r argument i s t h a t b e c a u s e s e c t i o n 10- 1 3 0 1 ( 2 ) , which d e f i n e s " a b u s e " and " n e g l e c t " , f a i l s t o s t a t e a n y s p e c i f i c harms t o a c h i l d which m i g h t j u s t i f y t e r m i n a t i o n of p a r e n t a l r i g h t s , i t i s s u b j e c t t o o v e r l y - b r o a d i n t e r p r e t a t i o n and a r b i t r a r y a p p l i c a t i o n . She c o n t e n d s t h a t i n t h i s c a s e t h e c h i l d i s n o t s u f f e r i n g any p a r t i c u l a r harm which r e q u i r e s s t a t e i n t e r v e n t i o n i n t o f a m i l y l i f e b u t t h a t t h e S t a t e m e r e l y p e r c e i v e s t h a t t h e c h i l d would b e b e t t e r o f f i n some home o t h e r t h a n h e r n a t u r a l m o t h e r ' s . This, she asserts, i s an inadequate j u s t i f i c a t i o n f o r termination of her parental rights. This Court has recognized t h a t family i n t e g r i t y i s a constitutionally protected i n t e r e s t . (1977) I Mont. , G u a r d i a n s h i p o f Doney 570 P.2d 575, 577, 34 S t . R e p . 1107, 1110. A s t h e U n i t e d S t a t e s Supreme C o u r t h e l d i n S t a n l e y v . I l l i n o i s ( 1 9 7 2 ) , 405 U.S. 645, 651, 92 S . C t . "The C o u r t h a s f r e q u e n t l y emphasized t h e i m p o r t a n c e of t h e family. The r i g h t s t o c o n c e i v e and t o r a i s e o n e ' s c h i l d r e n have been deemed ' e s s e n t i a l , ' Meyer v . Nebraska, 262 U.S. 390, 399 ( 1 9 2 3 ) , ' b a s i c c i v i l r i g h t s o f man,' S k i n n e r v . Oklahoma, 316 U.S. 535, 541 ( 1 9 4 2 ) , and ' [ r l i g h t s f a r more p r e c i o u s than property r i g h t s , ' May v . Anderson, 345 U.S. 528, 533 (1953). ' I t i s c a r d i n a l with u s t h a t t h e cust o d y , c a r e and n u r t u r e o f t h e c h i l d r e s i d e f i r s t i n t h e p a r e n t s , whose p r i m a r y f u n c t i o n a n d f r e e dom i n c l u d e p r e p a r a t i o n f o r o b l i g a t i o n s t h e s t a t e can n e i t h e r supply nor h i n d e r . ' Prince v . M a s s a c h u s e t t s , 321 U.S. 1 5 8 , 166 ( 1 9 4 4 ) . The i n t e g r i t y o f t h e f a m i l y u n i t h a s found p r o t e c t i o n i n t h e Due P r o c e s s C l a u s e o f t h e F o u r t e e n t h Amendment, Meyer v . Nebraska, s u p r a , a t 399, t h e E q u a l P r o t e c t i o n C l a u s e of t h e F o u r t e e n Amendment, S k i n n e r v . Oklahoma, s u p r a , a t 541, and t h e N i n t h Amendment, G r i s w o l d v . C o n n e c t i c u t , 381 U.S. 479, 496 (1965) ( G o l d b e r g , J . , c o n c u r - . . . ring) ." The mother c o n t e n d s t h a t s e c t i o n 1 0 - 1 3 0 1 ( 2 ) w i l l i n a d e q u a t e l y p r o t e c t t h e s e c o n s t i t u t i o n a l i n t e r e s t s i f it i s i n t e r p r e t e d t o a u t h o r i z e a termination of her r i g h t s a s a parent i n t h i s case. "abuse" o r " n e g l e c t " : The s t a t u t e i t s e l f m e r e l y d e f i n e s ( 2 ) 'Abuse' o r ' n e g l e c t ' means: " ( a ) t h e commission o r o m i s s i o n o f a n y a c t o r a c t s which m a t e r i a l l y a f f e c t t h e normal p h y s i c a l o r e m o t i o n a l development of a y o u t h . Any e x c e s s i v e physical injury, sexual a s s a u l t , o r f a i l u r e t o t h r i v e , t a k i n g i n t o a c c o u n t t h e a g e and medic a l h i s t o r y o f t h e y o u t h , s h a l l b e presumed t o b e n o n a c c i d e n t a l and t o ' m a t e r i a l l y a f f e c t ' t h e normal development o f t h e y o u t h . " ( b ) t h e commission o r o m i s s i o n o f a n y a c t o r a c t s by a n y p e r s o n i n t h e s t a t u s o f p a r e n t , g u a r d i a n , o r c u s t o d i a n who t h e r e b y and by r e a son of p h y s i c a l o r mental i n c a p a c i t y o r o t h e r c a u s e r e f u s e s o r , w i t h s t a t e and p r i v a t e a i d and a s s i s t a n c e i s unable, t o d i s c h a r g e t h e d u t i e s and r e s p o n s i b i l i t i e s f o r p r o p e r and necessary subsistence, education, medical, o r any o t h e r c a r e necessary f o r t h e y o u t h ' s physic a l , m o r a l , and e m o t i o n a l w e l l - b e i n g . " S i n c e a f i n d i n g o f " a b u s e o r n e g l e c t " however g i v e s t h e District Court j u r i s d i c t i o n t o terminate p a r e n t a l r i g h t s , G u a r d i a n s h i p o f Doney, 570 P.2d a t 577, 34 St.Rep. a t 1110, t h e meaning a p p l i e d t o i t i s t h e p a r e n t ' s o n l y s a f e g u a r d against unjustified intrusion i n t o t h e family unit. To i l l u s t r a t e h e r c o n t e n t i o n , t h e m o t h e r c o n t r a s t s t h e r e l a t i v e l y u n s p e c i f i c t e r m s contained i n s e c t i o n 10-1301(2) w i t h t h e more p r e c i s e s t a n d a r d s p r o p o s e d by t h e I n s t i t u t e of J u d i c i a l Administration-American Bar A s s o c i a t i o n J o i n t Commission o n J u v e n i l e J u s t i c e S t a n d a r d s i n i t s S t a n d a r d s R e l a t i n g t o Abuse and N e g l e c t ( T e n t a t i v e D r a f t 1 9 7 7 ) ( I J A / A B A standards). The I J A / A B A p r o p o s a l s a r e b a s e d upon a " s t r o n g p r e s u m p t i o n f o r p a r e n t a l autonomy i n c h i l d r e a r i n g , " and l i m i t "coercive intervention" t o p r o t e c t children "only where t h e c h i l d i s s u f f e r i n g o r t h e r e i s a s u b s t a n t i a l l i k e l i h o o d t h a t t h e c h i l d w i l l s u f f e r , s e r i o u s harm." IJA/ABA S t a n d a r d s 1.1 and 1 . 3 ( A ) . The I J A / A B A p r o p o s a l s s e e k t o a v o i d u n n e c e s s a r y o r u n j u s t i f i e d i n t r u s i o n s i n t o f a m i l y i n t e g r i t y by c l o s e l y d e f i n i n g t h e grounds f o r i n t e r v e n t i o n i n t e r m s of s p e c i f i c , o b j e c t i v e , s e r i o u s harm t o t h e c h i l d . F o r example, a c o u r t may o r d e r in-home s u p e r v i s i o n o r remove a c h i l d from h i s o r her parents i f : "A c h i l d h a s s u f f e r e d , o r t h e r e i s a s u b s t a n t i a l r i s k t h a t t h e c h i l d w i l l imminently s u f f e r , p h y s i c a l harm c a u s i n g d i s f i g u r e m e n t , impairment of b o d i l y f u n c t i o n i n g , o r o t h e r s e r i o u s p h y s i c a l i n j u r y a s a r e s u l t of condit i o n s c r e a t e d by h i s / h e r p a r e n t s o r by t h e f a i l u r e of t h e p a r e n t s t o a d e q u a t e l y s u p e r v i s e o r p r o t e c t him/her; "A c h i l d i s s u f f e r i n g s e r i o u s e m o t i o n a l damage, e v i d e n c e d by s e v e r e a n x i e t y , d e p r e s s i o n , o r w i t h d r a w a l , o r untoward a g g r e s s i v e b e h a v i o r toward s e l f o r o t h e r s , and t h e c h i l d ' s p a r e n t s a r e n o t w i l l i n g t o p r o v i d e t r e a t m e n t f o r him/ h e r . " IJA/ABA S t a n d a r d s 2 . 1 ( B ) and ( C ) . The r a t i o n a l e b e h i n d t h e s e s t a n d a r d s i s p a r t i c u l a r l y important t o t h e mother's p o s i t i o n because t h e District C o u r t ' s f i n d i n g s f o c u s e d p r i n c i p a l l y on e m o t i o n a l r a t h e r t h a n p h y s i c a l n e g l e c t of h e r daughter: ". . . t h e Department o f S o c i a l and R e h a b i l i t a t i o n S e r v i c e s was r e q u i r e d t o p l a c e t h i s v e r y young c h i l d i n f o s t e r homes p a r t i a l l y b e c a u s e o f t h e c h i l d ' s p h y s i c a l n e e d s b u t m o s t l y bec a u s e t h e e m o t i o n a l development o f t h e c h i l d w a s s o lacking t h a t t h e only chance f o r t h e c h i l d t o have a r e a s o n a b l e f u t u r e was t o p l a c e t h e c h i l d i n a home a b l e t o p r o v i d e f o r i t s (Emphasis a d d e d . ) p h y s i c a l and e m o t i o n a l n e e d s . " A s t h e m o t h e r p o i n t s o u t , vague a b u s e and n e g l e c t s t a t u t e s o f t e n r e s u l t i n a r b i t r a r y a p p l i c a t i o n when t h e p a r e n t s i n v o l v e d i n t h e a l l e g e d n e g l e c t a r e p o o r and uneducated. K a t z , Ambrosino, McGrath o n C h i l d Abuse & & Sawitsky, Legal Research N e g l e c t : P a s t and F u t u r e , 11 Fam.L.Q. 151, 172-75 ( 1 9 7 7 ) ; Wald, S t a t e I n t e r v e n t i o n on Behalf o f "Neg l e c t e d " C h i l d r e n : S t a n d a r d s f o r Removal o f C h i l d r e n from T h e i r Homes, X o n i t o r i n g t h e S t a t u s o f C h i l d r e n i n F o s t e r C a r e , and T e r m i n a t i o n o f P a r e n t a l R i g h t s , 28 Stan.L.Rev. 623 (1976) (Wald 11); Wald, S t a t e I n t e r v e n t i o n on Behalf o f " N e g l e c t e d " C h i l d r e n : A S e a r c h f o r X e a l i s t i c S t a n d a r d s , 27 S t a n . ~ . ~ e v 985 (1975) (Wald I ) ; Areen, I n t e r v e n t i o n Between . P a r e n t and C h i l d : A R e a p p r a i s a l of t h e S t a t e ' s R o l e i n C h i l d ~buse and N e g l e c t C a s e s , 6 3 Ge0.L.J. (Areen) 887, 917-32 (1975) . I t i s l i k e l y however t h a t t h e g r e a t e s t p e r c e n t a g e o f c h i l d neglect cases involve matters similar t o t h e present o n e i n which t h e a l l e g e d n e g l e c t r e s u l t s n o t from t h e del i b e r a t e d e s i g n of a p a r e n t , b u t r a t h e r from t h e p a r e n t ' s low m e n t a l o r e m o t i o n a l c a p a c i t y and low f i n a n c i a l s t a t u s . Wald I a t 1020-21; Areen a t 888; Dembitz, W e l f a r e Home Visits: C h i l d v e r s u s P a r e n t s , 57 A . B . A . J . 871 ( 1 9 7 1 ) . P a r e n t s i n t h i s c a t e g o r y a r e sometimes d e s c r i b e d a s "marg i n a l " people: ". . . they a r e c o n t i n u a l l y a t t h e border- l i n e of being a b l e t o s u s t a i n themselves--economically, e m o t i o n a l l y , and m e n t a l l y . " Wald I a t 1021. A s Beatrice F o u r n i e r d e s c r i b e d t h e mother i n t h i s c a s e , "Well, I t h i n k [ t h e m o t h e r ] i s g o i n g t o have a h a r d enough t i m e t o t a k e c a r e of h e r s e l f . " A p a r e n t ' s a b i l i t y t o c a r e f o r himself o r h e r s e l f n a t u r a l l y a f f e c t s h i s o r her a b i l i t y t o provide a s t a b l e , s u p p o r t i v e home f o r a c h i l d . "Such p a r e n t s may p r o v i d e l i t t l e emotional support f o r t h e i r c h i l d r e n . While t h e c h i l d r e n may n o t b e p h y s i c a l l y a b u s e d , l e f t u n a t t e n d e d , d a n g e r o u s l y m a l n o u r i s h e d , o r o v e r t l y r e j e c t e d , t h e y may r e c e i v e l i t t l e love, a t t e n t i o n , s t i m u l a t i o n , o r emotional involvement." Wald I a t 1021. The U n i t e d S t a t e s Supreme C o u r t h a s r e c e n t l y o b s e r v e d t h a t middle-class s o c i a l workers tend t o favor long t e r m f o s t e r p l a c e m e n t f o r c h i l d r e n o f s u c h f a m i l i e s , " t h u s ref l e c t i n g a b i a s t h a t t r e a t s t h e n a t u r a l p a r e n t s ' p o v e r t y and l i f e s t y l e a s p r e j u d i c i a l t o t h e b e s t i n t e r e s t s of t h e c h i l d . " Smith v . O r g a n i z a t i o n of F o s t e r F a m i l i e s f o r E q u a l i t y Reform ( 1 9 7 7 ) , 431 U.S. L.Ed.2d 816, 832, 97 S . C t . & 2094, 2105, 53 1 4 , 29 ( c i t i n g , R e i n , N u t t & Weiss, F o s t e r Family C a r e : Myth and R e a l i t y , i n C h i l d r e n and D e c e n t P e o p l e 24, 25-29 (A. Schorr ed. 1 9 7 4 ) ) . Yet, t h e mother c o n t e n d s p o v e r t y and i t s v a r i o u s a t t e n d a n t l i f e s t y l e s must n o t b e e q u a t e d w i t h n e g l e c t a b s e n t some showing o f a c t u a l o r i m m i n e n t harm t o t h e c h i l d . 649-50; Areen a t 925-28, S e e Wald I a t 1001-02; Wald I1 a t 930-32. T h i s C o u r t h a s h e l d t h a t t h e S t a t e may n o t t e r m i n a t e a p a r e n t ' s r i g h t t o r a i s e h i s o r h e r own c h i l d " m e r e l y b e c a u s e a d i s t r i c t judge o r a s t a t e agency m i g h t f e e l t h a t a nonp a r e n t h a s more f i n a n c i a l r e s o u r c e s o r p u r s u e s a ' p r e f e r able' lifestyle." 34 S t . R e p . a t 1110. G u a r d i a n s h i p o f Doney, 570 P.2d a t 578, Beyond t h a t p r i n c i p l e , however, i t i s more d i f f i c u l t t o s a y what i s t h e minimum c o n s t i t u t i o n a l l y a c c e p t a b l e standard f o r such an extreme i n t e r v e n t i o n i n t o family i n t e g r i t y . The I J A / A B A s t a n d a r d s , which r e m a i n i n t e n t a t i v e d r a f t form, m i g h t p r o v i d e a p o l i c y measure by which t o e v a l u a t e t h e adequacy o f s e c t i o n 1 0 - 1 3 0 1 ( 2 ) , b u t t h e y r e p r e s e n t o n l y one p r o p o s a l . Other proposals a r e equally available f o r our consideration. Areen f o r example, h a s p r o p o s e d a s t a n d a r d f o r n e g l e c t which i s d e l i b e r a t e l y less s p e c i f i c t h a n t h e p r o p o s e d I J A / A B A s t a n d a r d s , espe- c i a l l y i n t h e a r e a most r e l e v a n t t o t h i s c a s e , "emotional" neglect: "A ' n e g l e c t e d ' c h i l d i s one whose p h y s i c a l o r emotional h e a l t h i s s i g n i f i c a n t l y impaired, o r i s i n danger o f being s i g n i f i c a n t l y impaired, a s a r e s u l t of t h e a c t i o n o r i n a c t i o n of h i s p a r e n t , g u a r d i a n , o r p r i m a r y c a r e t a k e r . " Areen a t 933. While t h i s s t a n d a r d , l i k e t h e IJA/ABA p r o p o s a l , f o c u s e s t h e a t t e n t i o n of t h e c o u r t o n t h e " c o n d i t i o n o f t h e c h i l d r a t h e r t h a n on p a r e n t a l f a u l t , " i t d e l i b e r a t e l y a v o i d s l i s t i n g s p e c i f i c e v i d e n c e s o f e m o t i o n a l damage s u c h a s " s e v e r e a n x i e t y , " " d e p r e s s i o n , " " w i t h d r a w a l , " and "untoward a g g r e s s i v e b e h a v i o r . " The r e a s o n , which i s o f o b v i o u s i m p o r t a n c e h e r e , i s a l a c k o f a d e q u a t e c o n s e n s u s among c h i l d b e h a v i o r e x p e r t s a s t o w h a t b e h a v i o r symptoms i n d i c a t e e m o t i o n a l deprivation. Areen a t 933. A t o t a l l y d i f f e r e n t a p p r o a c h i s found i n t h e Model S t a t u t e f o r T e r m i n a t i o n of P a r e n t a l R i g h t s (MSTPR), p r e p a r e d by t h e N e g l e c t e d C h i l d r e n Committee o f t h e N a t i o n a l C o u n c i l o f J u v e n i l e and F a m i l y C o u r t J u d g e s . 4, 3, 7 ( 1 9 7 6 ) . S e e , 27 J u v . J u s t . No. The NSTPR d i r e c t s t h e c o u r t t o c o n s i d e r t h e p a r e n t ' s f i t n e s s d i r e c t l y r a t h e r than look f o r s p e c i f i c e v i d e n c e o f harm t o t h e c h i l d . S e c t i o n 1 2 ( 1 ) ( a ) , f o r example, r e q u i r e s t h e c o u r t t o consider t h e "emotional i l l n e s s , m e n t a l i l l n e s s o r m e n t a l d e f i c i e n c y o f -e p a r e n t , o f s u c h - th duration o r nature a s t o render the parent unlikely t o care f o r t h e o n g o i n g p h y s i c a l , m e n t a l and e m o t i o n a l n e e d s o f t h e child." (Ehnphasis added. ) I n a p r e f a c e t o t h e MSTPR, i t s a u t h o r s , j u d g e s from s e v e r a l s t a t e s , n o t e t h a t t h e y " h a v e n o t b e e n i s o l a t e d from n o r u n m i n d f u l o f t h e c r o s s c u r r e n t s o f t h e b e h a v i o r a l scie n c e s which have p r e o c c u p i e d t h i s n a t i o n i n r e c e n t y e a r s . " 27 J u v . J u s t . a t 3. Y e t a s judges, t h e y c o n t i n u e , t h e y have been a b l e t o " t e s t t h e s e t h e o r e t i c a l fermentations a g a i n s t t h e r e a l i t i e s o f t h e i r day-to-day practice." 27 J u v . J u s t . a t 3-4. The C o u n c i l o f J u v e n i l e and Family C o u r t J u d g e s h a s responded more d i r e c t l y t o t h e IJA/ABA proposed s t a n d a r d s , concluding t h a t they o f f e r e n t i r e l y inadequate p r o t e c t i o n t o children: " T h i s l e n g t h y volume n e e d s d r a s t i c r e v i s i o n i n t h a t it t o t a l l y disregards the r i g h t s of a c h i l d t o b e p r o t e c t e d and s a f e i n h i s home environment. These s t a n d a r d s g r e a t l y l i m i t t h e p r o c e s s by which a n e g l e c t e d o r a b u s e d c h i l d may b e p r o t e c t e d t h r o u g h t h e j u v e n i l e j u s t i c e system. T h e r e i s a n a t t e m p t by t h e a u t h o r s t o restrict t h e i n t e r f e r e n c e of s o c i e t y i n t h e u p b r i n g i n g o f c h i l d r e n . While t h i s i s o b v i o u s l y a worthwhile g o a l , t h e r e needs t o be a balance s o t h a t youngsters can be adequately p r o t e c t e d from t h e p h y s i c a l and m e n t a l a b u s e and n e g l e c t o f p a r e n t s . " 8 J u v e n i l e and Family C o u r t N e w s l e t t e r , No. 6 a t 9 ( 1 9 7 8 ) . Thus, t h e I J A / A B A t e n t a t i v e d r a f t p r o p o s a l s which t h e m o t h e r r e l i e s o n l a c k n o t o n l y a c o n s e n s u s of s u p p o r t among c h i l d b e h a v i o r e x p e r t s , Areen a t 933, b u t a r e c o n s i d e r e d i n a d e q u a t e by t h e N a t i o n a l C o u n c i l o f J u v e n i l e and F a m i l y Court Judges. While i t i s n o t t h i s C o u r t ' s p o s i t i o n t o d e c l a r e w h e t h e r o n e p r o p o s a l o r a n o t h e r i s a b e t t e r app r o a c h , w e c a n s a y w i t h some c o n f i d e n c e t h a t t h e I J A / A B A proposal i s n o t t h e only c o n s t i t u t i o n a l approach. The p r o c e e d i n g s i n t h i s case need n o t b e measured a g a i n s t t h e IJA/ABA model and r e j e c t e d on c o n s t i t u t i o n a l d u e p r o c e s s grounds i f they f a i l t o m e e t i t s s t r i c t standards. S t a t e v . McMaster ( 1 9 7 1 ) , 259 O r . See, 291, 486 P.2d 567, 569. Our p a s t d e c i s i o n s i n d i c a t e t h a t s e c t i o n 1 0 - 1 3 0 1 ( 2 ) i s n o t so b r o a d l y i n t e r p r e t e d a s t o p e r m i t t e r m i n a t i o n o f p a r e n t a l r i g h t s merely because t h e c o u r t s o r t h e concerned s o c i a l w e l f a r e agency d i s a p p r o v e o f t h e p a r e n t s ' l i f e s t y l e s . S e e , Guardianship o f Doney, 570 P.2d a t 578, 3 4 S t . R e p . 1110; M a t t e r o f F i s h e r ( 1 9 7 6 ) , 169 Flont. P.2d 654, 656. 254, 258-59, a t 545 On t h e o t h e r hand, t h e s t a t u t e i s b r o a d enough t o i n c l u d e e m o t i o n a l d e p r i v a t i o n , i n a d e q u a t e n u t r i t i o n , a n d e x t r e m e and p r o l o n g e d u n c l e a n l i n e s s o f t h e c h i l d under t h e d e f i n i t i o n of n e g l e c t . Mont. 397. I Matter of J. J.S. 577 P.2d 378, 380-81, (1978), 35 S t . ~ e p . 394, 395, S e e a l s o , M a t t e r o f Henderson ( 1 9 7 5 ) , 168 Mont. 329, 332, 542 P.2d 1204, 1205-06. I n t h e p r e s e n t c a s e t h e D i s t r i c t C o u r t ' s f i n d i n g of p o o r e m o t i o n a l development of t h e c h i l d was b a s e d on t h e t e s t i m o n y of s e v e r a l q u a l i f i e d w i t n e s s e s . The r e c o r d d o e s n o t show t h a t t h e m o t h e r d e l i b e r a t e l y r e f u s e d t o p r o v i d e emotional support f o r her daughter. Rather, t h e s o c i a l w e l f a r e w o r k e r s who a t t e m p t e d t o h e l p h e r t e s t i f i e d t h a t t h e m o t h e r was s i m p l y i n c a p a b l e o f c a r i n g f o r h e r d a u g h t e r , p h y s i c a l l y a s w e l l as e m o t i o n a l l y . Thus, t h i s c a s e i n v o l v e s n o t s o much a l e g a l d u e p r o c e s s problem o f n o t i c e t o t h e m o t h e r o f what b e h a v i o r was e x p e c t e d o f h e r o r what s h e c o u l d d o t o have h e r d a u g h t e r r e t u r n e d t o h e r , b u t r a t h e r a human problem o f a m o t h e r ' s i n a b i l i t y t o u n d e r s t a n d h e r c h i l d ' s n e e d s and t o r e a l i s t i c a l l y p r o v i d e f o r them. W e a r e aware t h a t t h e mother may have r e c e i v e d con- f l i c t i n g i n s t r u c t i o n s , e s p e c i a l l y regarding d i s c i p l i n e of her child. However, a n o v e r a l l r e a d i n g o f t h e t e s t i m o n y i n d i c a t e s t h a t t h e m o t h e r ' s problem w e n t beyond t h e s e app a r e n t c o n f l i c t s , f o r s h e was n o t e v e n c a p a b l e of u n d e r standing o r r e t a i n i n g simple i n s t r u c t i o n s i n t h e f i r s t place. The m o t h e r ' s c o n d i t i o n , which was d e s c r i b e d t o t h i s Court a s "borderline mentally retarded," presents a s p e c i a l problem which c o u r t s i n o t h e r s t a t e s have r e c e n t l y c o n s i d e r e d . The New York Family C o u r t , i n G u a r d i a n s h i p o f S t r a u s b e r g ( 1 9 7 7 ) , 92 Misc.2d 620, 400 N.Y.S.2d 1013, d e a l t w i t h t h e same s o r t o f c o n d i t i o n a s w e f a c e h e r e : . . . " A summary of t h e e x p e r t t e s t i m o n y showed t h e r e s p o n d e n t t o b e a b o r d e r l i n e r e t a r d e d p e r s o n , who u n d e r stress i s e a s i l y confused i n h e r thinking. That a t t h e prese n t t i m e and i n t h e immediate f u t u r e t h e r e s p o n d e n t h a s l i t t l e u n d e r s t a n d i n g o r ca2ac i t y t o p r o v i d e t h e n u r t u r a n c e , s t r u c t u r e and c o n t r o l s and f u l f i l l o t h e r e m o t i o n a l n e e d s o f a developing c h i l d . " 400 N.Y.S.2d a t 1014. The c o u r t n o t e d p a r t i c u l a r l y t h e impending d i f f i c u l t i e s which would c o n f r o n t p a r e n t and c h i l d i f t h e y w e r e r e u n i t e d a n d e x p r e s s e d c o n c e r n o v e r t h e t i m e which f u r t h e r a t t e m p t s a t t r a i n i n g t h e mother i n c h i l d c a r e methods would r e q u i r e : "The o l d e r t h e c h i l d g e t s t h e more d i f f i c u l t i t w i l l become f o r t h e r e s p o n d e n t t o f u l f i l l t h e p a r e n t a l r o l e and provide t h e d i r e c t i o n s t r u c t u r e and o t h e r e m o t i o n a l n e e d s o f t h e c h i l d herein. The i n f a n t should n o t be h e l d i n l i m b o f o r t h i s i n d e f i n i t e p e r i o d of t i m e f o r t h e purposes of t r a i n i n g t h e respond e n t i n t h e a r e a of c h i l d care." 400 N.Y.S.2d a t 1015. . . . On t h i s b a s i s , t h e c o u r t r e f u s e d t o o r d e r t h e c h i l d r e t u r n e d t o h e r mother. However, m e n t a l d e f i c i e n c i e s a l o n e do n o t j u s t i f y t e r m i n a t i o n i f t h e r e i s no e v i d e n c e t h a t t h e c h i l d i s i n some way harmed o r l i k e l y t o b e harmed b e c a u s e o f t h e parent's condition. I n construing its termination s t a t u t e , t h e M i n n e s o t a Supreme C o u r t made t h i s r e q u i r e m e n t c l e a r : ". . . w e wish t o s t a t e unequivocally t h a t m e n t a l i l l n e s s i n and of i t s e l f s h a l l n o t b e c l a s s i f i e d a s ' o t h e r c o n d u c t ' which w i l l p e r m i t termination of p a r e n t a l r i g h t s . Rather, i n e a c h case, t h e a c t u a l c o n d u c t o f t h e p a r e n t i s t o be evaluated t o determine h i s o r her f i t n e s s t o maintain the parental relationship with t h e c h i l d i n question s o a s t o n o t be detrimental t o the child." I n r e Kidd (Minn. 1 9 7 8 ) , 261 N.W. 2d 833, 835. S e e a l s o , I n re E & B ( U t a h 1 9 7 8 ) , 578 P.2d 831, 833-34; T e l l e s ( 1 9 7 8 ) , Gal-App., 1 5 1 C a l . R p t r . of Fish - Mont. 263, 266-67; I n re Matter I n t h e p r e s e n t case t h e D i s t r i c t C o u r t found t h a t t h e c h i l d was harmed by h e r m o t h e r ' s f a i l u r e t o p r o v i d e a d e q u a t e e m o t i o n a l s u p p o r t , and c o n c l u d e d t h a t t h e mother was "incomp e t e n t t o f a c e and h a n d l e t h e p r o b l e m s p r e s e n t e d t o p a r e n t s by c h i l d r e n i n t h e i r a d v a n c i n g y e a r s . " These c o n s i d e r a t i o n s a r e beyond t h e m e r e " p o v e r t y " o r " l i f e s t y l e " c h a r a c t e r i z a t i o n s which t h i s C o u r t found i n a d e q u a t e i n F i s h e r and Doney. Here, t h e D i s t r i c t C o u r t ' s c o n c l u s i o n t h a t t h e c h i l d was harmed by h e r home e n v i r o n m e n t i s s u p p o r t e d by t h e t e s t i m o n y o f s o c i a l w o r k e r s , p h y s i c i a n s , and p s y c h o l o g i s t s . W e con- c l u d e , t h e r e f o r e , t h a t s e c t i o n 10-1301 ( 2 ) was c o n s t i t u tionally applied i n t h i s case. S t a n d a r d - Proof of The m o t h e r ' s second c o n t e n t i o n on a p p e a l i s t h a t t h e burden of proof r e q u i r e d o f t h e S t a t e i n a t e r m i n a t i o n of p a r e n t a l r i g h t s a c t i o n i s t h e " c l e a r and c o n v i n c i n g " s t a n d a r d , and t h a t t h e S t a t e f a i l e d t o m e e t t h a t b u r d e n . No previous d e c i s i o n of t h i s Court has set f o r t h t h i s r e q u i r e ment, n o r i s a n y p a r t i c u l a r b u r d e n mandated by s t a t u t e . However, i n l i g h t o f o u r p a s t r u l i n g s and t h e i n t e r e s t s i n v o l v e d i n s u c h c a s e s , w e h o l d t h a t t h e s t a t e must show, by c l e a r and c o n v i n c i n g e v i d e n c e , t h a t t h e c h i l d i s n e g l e c t e d o r a b u s e d b e f o r e p a r e n t a l r i g h t s may b e t e r m i n a t e d . A s t h e f o r e g o i n g a n a l y s i s shows, p a r e n t a l i n t e r e s t s i n raising children a r e constitutionally protected. W e note f u r t h e r t h a t i n t h i s c a s e t h e p r o t e c t i o n which t h e mother e n j o y s i s n o t weakened by t h e f a c t t h a t h e r c h i l d was b o r n o u t o f wedlock. S.Ct. S t a n l e y v. I l l i n o i s , 405 U . S . a t 1213, 3 1 L.Ed.2d a t 559. a t 651-52, 92 The c o n s t i t u t i o n a l v a l u e of p r o t e c t i n g family i n t e g r i t y a l s o has received support from a p o l i c y p o i n t of v i e w a s n o t e d by t h e a u t h o r i t i e s above. s i m i l a r l y , t h e d e c l a r a t i o n o f p o l i c y which accom- p a n i e s t h e s t a t u t e s g o v e r n i n g t e r m i n a t i o n p l a c e s e m p h a s i s on t h e p r e s e r v a t i o n o f f a m i l y u n i t y "whenever p o s s i b l e . " S e c t i o n 1 0 - 1 3 0 0 ( 4 ) , R.C.M. 1947, now s e c t i o n 41-3-101(1) ( d ) S e e , M a t t e r of F i s h e r , 169 Mont. a t 258-59, MCA. 545 P.2d a t 656. I n t h e p a s t t h i s Court has held t h a t t h e required s t a n d a r d o f p r o o f i n a t e r m i n a t i o n of p a r e n t a l r i g h t s c a s e i s " s u b s t a n t i a l c r e d i b l e evidence" t h a t t h e c h i l d i s abused, neglected, o r dependent. 258, 545 P.2d a t 656. M a t t e r of F i s h e r , 169 Mont. a t Yet, o f t h o s e s t a t e s t h a t have con- s i d e r e d t h e i s s u e , m o s t have c h o s e n between a " p r e p o n d e r a n c e o f t h e e v i d e n c e " s t a n d a r d and t h e " c l e a r and c o n v i n c i n g " t e s t p r o p o s e d by t h e m o t h e r . Misc.2d 482, 374 N.Y.S.2d S e e , M a t t e r of Orzo ( 1 9 7 5 ) , 84 554, 564-65 and n. 20. While t h e d i s t i n c t i o n between t h e s e s t a n d a r d s i s o f t e n e l u s i v e , w e c o n c l u d e t h a t t h e h i g h e r s t a n d a r d r e p r e s e n t e d by t h e " c l e a r a n d c o n v i n c i n g " t e s t more a d e q u a t e l y f u r t h e r s t h e p o l i c y o f f a m i l y u n i t y and more n e a r l y a p p r o x i m a t e s t h e p r e v i o u s approach of t h i s Court than does t h e "preponderance of evidence" test. S e e I n r e Maria (U.S. T e r r i t o r i a l C o u r t , 1 9 7 8 ) , 5 Fam.L.Rep. V.I. Cal.Rptr. N.W.2d a t 265-66; 2089, 2090; I n re T e l l e s , 1 5 1 M a t t e r o f Rosenbloom (Minn. 1 9 7 8 ) , 266 888, 889-90. I t i s i m p o r t a n t t o o b s e r v e t h a t t h i s t e s t d o e s n o t deny c h i l d r e n t h e p r o t e c t i o n t h e y need. W e note i n particular t h a t t h e t h e " c l e a r and c o n v i n c i n g " s t a n d a r d o f p r o o f i s n o t a s r i g o r o u s a s t h e "beyond r e a s o n a b l e d o u b t " s t a n d a r d . I n r e M a r i a , 5 Fam.L.Rep. CaL.Rptr. See, a t 2090; I n r e T e l l e s , 1 5 1 a t 265; M a t t e r o f Rosenbloom, 266 N.W.2d a t 889. The D i s t r i c t C o u r t d i d n o t a b u s e i t s d i s c r e t i o n i n c o n c l u d i n g t h a t t h e mother was a n u n f i t p a r e n t ; r a t h e r , i t s c o n c l u s i o n i s s u p p o r t e d by s u b s t a n t i a l c r e d i b l e e v i d e n c e . The judgment g r a n t i n g permanent a d o p t i v e c u s t o d y t o t h e Department o f S o c i a l and R e h a b i l i t a t i o n S e r v i c e s i s a f f i r m e d . W e concur: Chief J u s t i c e e, ,2i?LA Justices

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