Matter of William W.

Legal Aid Society of Wayne County, Inc. (Jonathan Lorge of counsel), for Katherine W. Gary Lee Bennett for Wayne County Department of Social Services, respondent.

John P. Porter, Law Guardian. OPINION OF THE COURT

JOHN B. NESBITT, J. This case continues the recent judicial exegesis of section 383-c of the Social Services Law regarding revocation of judicial surrenders for adoption. The relevant facts are uncomplicated and undisputed. In September of 2000, Katherine W. appeared before a Judge of the Wayne County Family Court and, consistent with the requirements of section 383-c (1), surrendered her son, William, to the Department of Social Services for the purpose of adoption. Pursuant to subdivision (5) (c), the surrender instrument signed by Ms. W. stated that the surrender became final and irrevocable immediately upon signing. Relevant for present purposes is the fact that the surrender instrument contained language reciting the provisions of subdivision (5) (b) (ii) and (iii) in pertinent part as follows:

"[T]hat the parent is giving up all rights to have custody, visit with, speak with, write to or learn about the child, forever, unless the parties have agreed to different terms * * * [as] written in this surrender.

"[T]hat the child will be adopted without the parent's consent and without further notice to the parent, and will be adopted by any person who the agency chooses, unless the surrender paper contains the name of the person or persons who will be adopting the child." (Emphasis added.)

The underscored language inspired a section in the surrender instrument for insertion of "terms and conditions agreed upon by all the parties." That section stated by typed addition that "William will be adopted by his foster parents, Shannane and Mariano Zanghi; Zanghis will provide me with a yearly photograph at Christmastime." Approximately three months after the surrender proceeding in Family Court, the Department of Social Services issued Ms. W. a notice pursuant to subdivision (6) (c), which provides:

"In any case in which the authorized agency determines that the persons specified in the surrender will not adopt the child, the agency promptly shall notify the parent thereof, unless such notice is expressly waived by a statement written by the parent and appended to or included in such instrument."

The notice sent by the Department notified Ms. W. of the fact that the individuals named in the surrender document would not be adopting the child, that the surrender nevertheless remained in effect allowing the child to be adopted without Ms. W.'s further consent absent a court order revoking the surrender, and that Ms. W. could make application for such revocation to the Family Court. Thereafter, Ms. W. appeared in Family Court in response to a petition by the Department of Social Services seeking continuation of foster care placement of William under article 10 of the Family Court Act, which was ordered upon consent and the required judicial findings. In conjunction therewith, Ms. W. moved for an order revoking the judicial surrender, enjoining the Department of Social Services from proceeding with any adoption, and granting her liberal visitation. That application was supported by affidavit of Ms. W. stating, among other things, that Ms. W. had met with the erstwhile adoptive parents at least 12 times prior to the judicial surrender, that Ms. W.'s belief that they were good role models for her child induced the surrender, and that she would not have surrendered the child but for her approval of the adoptive parents, as evidenced by the specification of their identity in the surrender instrument. The Department of Social Services opposes Ms. W.'s application, arguing that the surrender instrument states that it is final and irrevocable, and thus Ms. W. lacks standing to seek revocation. Apart from the express limitation in the instrument barring revocation, the Department relies upon section 383-c of the Social Services Law, which provides at subdivision (6) (d):

"Nothing contained in this section shall bar actions or proceedings brought on the ground of fraud, duress or coercion in the execution or inducement of a surrender. No action or proceeding may be maintained by the surrendering parent or guardian for the custody of the surrendered child or to revoke or annul such surrender except as provided herein."

Inasmuch as the basis for revocation asserted by Ms. W. is other than fraud, duress or coercion and is not one otherwise provided in statute, the Department argues that her application perforce must fail. On a surface level, extant decisional law conflicts as to the legal status and ramifications of a judicial surrender expressly anticipating adoption by named individuals when such adoption fails to consummate. (Compare Matter of Christopher F., 260 AD2d 97 [3d Dept 1999], Matter of Shannon F., 175 Misc 2d 565 [Fam Ct, Richmond County 1998], with Matter of Beauford v Monroe County Dept. of Social Servs., 180 Misc 2d 669 [1997].) For the Department here to be consistent in its analysis, however, it must concede that as section 383-c does not provide a right to seek revocation of the judicial surrender upon failure of identified adoptive parents to adopt, neither does it provide that such identification in the surrender then becomes a nullity. Indeed, such would be interdicted by clear negative implication from the express wording of subdivision (5) (b) (iii), allowing adoption by any person the agency chooses, unless the names of the adoptive parents are stated in the surrender instrument. The result of this literal reading of section 383-c of the Social Services Law would leave a judicial surrender after notice of nonadoption by the identified adoptive parents in unassailable limbo, except, perhaps, by stipulated revocation by all parties to the surrender. The "plain meaning" rule of statutory interpretation will not apply where a reading gives rise "to absurd or mischievous consequences or thwart a manifest purpose." (See Llewellyn, Remarks on the Theory of Appellate Decision and the Rules or Canons About how Statutes Are to be Construed, 3 Vand L Rev 395, 403 [1950].) In such cases, a contextual approach directs that "courts will construe the details of an act in conformity with its dominating general purpose, will read text in light of context and will interpret the text so far as the meaning of the words fairly permits as to carry out in particular cases the generally expressed legislative policy. (Securities & Exch. Commn. v Joiner Leasing Co., 320 US 344, 350-351 [1943] [Jackson, J.].) The manifest legislative purpose in allowing conditional surrenders is not obscure:

"In order to encourage the parent to sign a Judicial Surrender whereby the parents give up parental rights, was the inclusion by the legislature of the ability to place conditions in the Surrender itself. Conditional Surrenders have become more popular because it not only does away with the need for a full-blown trial whereby the state is attempting to prove either abandonment or permanent neglect, mental illness or mental retardation against the parent, but also permits the parent to continue some kind of contact with the child after the adoption, or permits the birth parent to specify the person who will adopt." (Joseph R. Carrieri, Supp Practice Commentaries, McKinney's Cons Laws of NY, Book 52A, Social Services Law § 383-c, 2001 Supp Pamph, at 291.)

By way of coda, this Court is mindful of the Law Guardian's well-stated admonition that contract analysis in the adoption context must be applied with great caution. However, the Legislature in enacting section 383-c of the Social Services Law allowed negotiation of terms and conditions for insertion in surrender instruments. An agency may decline to accept a surrender subject to conditions, and particularly may decline to accept a surrender identifying adoptive parents. But it may not induce, or at least accept, a surrender subject to such limitations without allowing biological parents an appropriate and meaningful remedy for noncompliance. That remedy under the facts of this case is revocation of the judicial surrender. The motion of Katherine W. to revoke her judicial surrender of William W. is hereby granted, and the matter shall be recalendared to consider other consequent relief requested by movant.