Josephine County, Oregon

 

 

 

Introduction

Oregon’s child welfare agency (the State Office for Services to Children and Families or SOSCF) serves abusive families, neglectful families, overwhelmed families, families in crisis, and families with children exhibiting extreme behaviors. There are 40 SOSCF branch offices located throughout Oregon. Caseworkers in those offices assess allegations of maltreatment, provide services, arrange services for the parents and children, identify and assess prospective foster parents, identify and assess prospective adoptive parents, interact with the court system and police, and assure children and parents are provided the necessities to improve the likelihood of family reunification. Caseworkers must continually balance the benefits of reunifying families with the likelihood of subsequent maltreatment.

The Child Welfare Partnership (CWP) at Portland State University provides educational, training, and research assistance to SOSCF. The research component of the CWP conducts research to recognize the changing client population, provide statistical models for deploying and redeploying staff, and optimizing the use of limited resources. These studies enable SOSCF administration to make informed decisions about serving this needy population of Oregonians.

This report profiles the client population served by SOSCF branch offices. The “Cohort Studies” profile a group of children entering substitute care during a period of time. This report profiles children entering long-term foster care from mid-1992 to 1995; the profiles include parental problems or conditions, child problems, child’s age, severity of maltreatment, barriers affecting family reunification, and services offered to families. The long-term population profiled in this report are children who are in care for at least 14 days during the year after their removal. About 80% of the children entering foster care in Oregon are considered long-term cases; the remaining 20% are quickly returned home and do not remain in foster care for an extended period.

Methods

The average branch office removes between 125 and 150 children per year. Some larger branch offices place over 300 children while some smaller offices place fewer than 30 children per year. A random sample of children entering foster care in a branch office are identified and their records are reviewed. The case file review includes the period from first allegation to one year post-removal. The case records include legal material, medical information, financial information, demographic data, correspondence, service involvement, and descriptions of reported maltreatment.

Reason for Removal

Children enter foster care for a multitude of reasons. These many reasons have been consolidated into 10 categories including physical abuse, mental abuse, sexual abuse, neglect, parental absence, threat of harm, child’s treatment needs, parent’s treatment needs, voluntary request for placement, and child’s behavior. All abusive and neglectful categories reflect caretaker maltreatment of a child. Each category is briefly defined below although more detail is available on the Partnership’s website (http://www.cwp.pdx.edu/). Most physical abuse involves bruises, broken bones, burns, facial slapping, over discipline, shaken baby, and drug exposed or drug affected infants harmed by maternal consumption of drugs during pregnancy. Mental or emotional abuse includes continual belittlement, yelling, or extended periods of isolation. Sexual abuse includes fondling, penetration, exposure to inappropriate sexual acts or using children to produce pornographic material. Neglect is primarily poor household sanitation, lack a supervision, and inadequate response to a child’s medical needs. Parental absence includes parental incarceration, and children left with babysitters when the parent does not return at the prescribed time. Threat of harm is a caretakers failure to protect a child from a known perpetrator. Child’s treatment issues include children requiring residential treatment for behavioral problems, child sexual offenders requiring treatment, and children requiring hospitalization for mental or medical problems. Parental treatment issues include the hospitalization of a parent for drug/alcohol problems, mental problems requiring extensive treatment, or medical problems requiring convalescence. Voluntary request for placement are situations where a parent requests foster care although no maltreatment has occurred; these situations are not common and are often referred to other community resources. Child’s behavior issues generally involve out-of-control teenagers sometimes involved with criminal activities.

Child's Age Groups

There are approximately 70 million children in the United States and about 825,000 live in Oregon. Children ages 0-17 years represent about 26% of the population in the United States and in Oregon.

In Oregon, children ages 0-4 years represent 29% of the child population, children ages 5-9 years represent 28% of the child population, children 10-14 years represent 28% of the child population, and children 15-17 years represent 16% of the child population. For the population of children entering foster care, nearly half are 0-5 years, 29% are ages 6-12 years, and 23% are ages 13-17 years. A disproportionate number of preschool children are in long-term foster care. Reuniting families with young children is a difficult decision -- the youngest children are the most vulnerable to serious maltreatment, however, parent-child bonding is most important when children are young.

The age of the child victim is one of the most important variables in child welfare. The age of children entering care is continually decreasing as limited resources prohibit serving all needy children and families. SOSCF is forced to prioritize families with the greatest need or most likely to severely maltreat their child. This trend is expected to continue as the demand for child welfare services continues to outstrip the agency’s ability to serve maltreating families.

Level of Vulnerability

SOSCF’s vulnerability system was created nearly 10 years ago to recognize the changing client population. Although numerous child and family characteristics are considered when categorizing a child’s vulnerability, child’s age and severity of maltreatment are the major considerations. There are seven levels in the vulnerability system. Younger and more severely maltreated children are identified as more vulnerable (levels 1-3) and older less severely maltreated children are identified as less vulnerable (levels 4-7).

Level 1 cases involve the most severe types of child maltreatment. Child maltreatment related fatalities, fractured skulls, brain damaged children resulting from shaken baby syndrome, severely drug affected infants, abandoned children, and severely sexually abused children are all considered level 1. Level 2 cases involve younger children exposed to chronic neglect, severe emotional abuse, moderate physical abuse, and children left with babysitters whose parents do not return. Level 3 cases often involve treatment for children or treatment for parents. Children with severe emotional disturbances, physical/medical handicaps, mental problems, and child sexual offenders requiring treatment are all considered level 3. In addition, parental incarceration, parental hospitalization, and parental detoxification treatment are all categorized as level 3. Level 4 cases are milder forms of child maltreatment to young children (ages 0-5 years) and more severe forms of child maltreatment to older children (ages 13-17 years). Level 5 and level 6 cases include mild and moderate maltreatment to older children. Level 7 cases have traditionally been recognized as out of control teenagers. In addition to the chronic acting out teenagers, level 7 cases involve mild physical abuse, mild neglect, juvenile delinquents, and voluntary requests for placement. Fewer and fewer level 7 children are being served by SOSCF; other community agencies are provided resources to serve this population of children and parents.

Child Problems

Many children entering foster care exhibit behaviors. Some child behaviors are related to maltreatment while other behaviors reflect poor parenting of the caretakers. Many of the problems or behaviors require extensive treatment and affect the child’s ability to maximize their potential and become productive citizens.

Most of the older children entering foster care exhibit problems. Although younger children tend to exhibit fewer problems, many younger children later develop behaviors or problems related to the maltreatment. Thus, although 85% of the children entering foster care do exhibit problems, some not identified with problems will later exhibit problems. These estimates are considered conservative and reflect the proportion of children entering foster care who exhibit problems in the year after the removal.

Problems exhibited by children entering foster care are important to profile. More problematic children require more extensive treatment and require more skilled providers. Foster parents will need more training and skills, residential treatment facilities will require more intensive services for more extended periods, and matching of children to prospective adoptive families will require more efforts to minimize disruption rates.

Family Factors

Parents who maltreat children are often afflicted with problems or conditions known as family factors. The Cohort Studies recognize about three dozen different family factors including parental drug involvement, domestic violence, criminal involvement, alcohol abuse, mental illness, unemployment, and homelessness. Monitoring family characteristics enables SOSCF and their community partners to develop programs and services that meet the changing needs of the client population.

Some family factors increase the likelihood a child will be placed in foster care; other family factors increase the likelihood a child will be seriously maltreated. Unemployment, drug/alcohol involvement, criminal involvement, and inadequate housing increase the likelihood of a foster care placement. These family factors are much more common with the population of children in foster care than the population being served in-home. There are other parental characteristics associated with the risk of serious maltreatment. Mothers with young infants who are mentally ill are more susceptible to seriously maltreating their child. Father figures who are criminally involved and prone to violent acts are more likely to seriously maltreat a child.

The factors below include the more important factors associated with risk of a child entering foster care and /or risk of serious maltreatment. When these factors are common in a community, the number of children entering care and the number of serious maltreatment cases are expected to be higher than other communities.

Parental Barriers

There were over 5,400 children placed in foster care in 1996 and over 80% were in foster care for at least 14 days during the year after the removal; about 40% return to the same caretaker(s). Those not returned to the same caretaker(s) are adopted, placed with relatives, placed with a different biological parent, emancipate, or return home more than a year after placement into foster care. Every family has identified “barriers” that influence whether a child is returned home to the same caretaker(s). An incarcerated parent might be released from jail, a sexual offender may leave the family, a parent’s mental condition might prohibit family reunification, and a homeless family might find suitable housing -- resolution of these “barriers” determines if a child returns home. Barriers are generally a limited number of family problems or situations directly associated with a child’s return home. Most problems or situations that prevent family reunification are parental; child problems generally do not prevent family reunification.

All barriers influencing a child’s return home have been identified for each family. When a single barrier is selected for children not returning home, the most important barriers preventing family reunification can be identified. Parental drug involvement (27%), a parent unwilling to be a parental resource (10%), a parent who cannot be located (7%), mental condition (7%), chronic neglect (6%), and alcohol abuse (6%) are the most important parental barriers that prevent a child from returning home. Communities where these barriers are common will have more difficulty returning children home.

Parental Services

Maltreating parents usually require a lifestyle or behavioral change to adequately parent their child. Services provided by SOSCF, organizations contracted with SOSCF, other state agencies, the federal government, and SOSCF’s community partners provide an array of services intended to resolve problems and improve parenting. In addition to the services provided to parents, abused and neglected children are provided services to help mitigate the effects of child maltreatment and modify detrimental behaviors.

There are 38 different services provided to maltreating parents that are recognized by the Cohort Study. The fifteen most common services constitute 80% of the services provided. The average family is provided with four services to the parent(s). About 50% of those services are completed by either parent, about 25% are partially competed, and about 25% are not attended.

Most of the common services listed below are associated with promoting family reunification or minimizing re-abuse. Visitation, parent training, drug/alcohol treatment, counseling, and alcoholics/narcotics anonymous are all associated with higher return home rates. Low return home rates are associated with parents who do not participate with services. Although many services are associated with increased numbers of children returning home, fewer services are associated with lower re-abuse rates. Parent training, drug/alcohol inpatient treatment, individual counseling, and alcoholic/narcotics anonymous are all associated with lower re-abuse rates. Most services require full parental participation to decrease re-abuse rate. A full report on service effectiveness can be obtained from the Child Welfare Partnership (503-315-4268).

Child Services

Eighty-five percent of the children entering foster care exhibit problems. SOSCF and other social services agencies provide treatment services to abused children, neglected children, and children considered dangerous to themselves or others. There are 26 different services provided to children that are recognized in the Cohort Studies. Although one-quarter of the children in foster care receive no services, child’s age influences the number and types of services offered to children.

Children ages 0-5 years average one services in the year after their removal, children ages 6-12 years average 1.9 services, and children ages 13-17 years average 2.2 services. The most common services provided in all age groups is individual counseling. Individual counseling to very young children might be substantially different from individual counseling provided to a teenager. About half the children ages 6-12 years are provided individual counseling, about one in five receives a psychological examination, and about 1 in 6 receive an individualized education plan (IEP). These three services represent about half the services provided to children ages 6-12 years. Children ages 13-17 years are the smallest population of children entering foster care yet each child tends to receive more services. Individual counseling is provided to half the children ages 13-17 years, one-quarter are provided psychological examinations and residential treatment, about 16% receive independent living, and about one in nine receive drug/alcohol treatment, an individualized education plan, sexual abuse treatment, and drug/alcohol evaluations.

Josephine Summary

The Child Welfare Partnership at Portland State University conducted the third Cohort Study of long term foster care cases for the State Office for Services to Children and Families. Long term cases are considered children who are placed in substitute care for a cumulative total of 14 days or longer within the year after their removal. Children entering care between July 1992 through December 1995 were sampled. Statewide 2,421 cases were reviewed including 55 from Josephine County. The cases were randomly selected and reviewed by trained researchers. This summary profiles children entering care in Josephine County and compares that profile to the state profile for numerous family characteristics including reason for removal, level of vulnerability, child's problems, family factors, barriers to return home, and services provided.

The most common reasons children enter foster care in Oregon are neglect (25%), parental absence (17%), threat of harm (13%), physical abuse (11%), and treatment issues of the child (11%). Statewide these five reasons account for 77% of the removals; in Josephine County these same five reasons account for 55% of the children entering foster care. Reasons children enter foster care in Josephine County differ significantly when compared to the rest of the state. In Josephine County the most common reason for removal is child's behavior (27%), this issue is more than four times the state estimate (6%). Neglect the second most common reason children are placed in foster care in Josephine County (19%) is less prevalent elsewhere in Oregon. Child’s treatment issues (17%) is the third most common reason for removal in Josephine County; this estimate is somewhat higher compared to other Oregon Counties (11%). Estimates for parental absence and threat of harm are both more common elsewhere in Oregon than in Josephine County. Parental absence includes situations where the caretaker is incarcerated or where the caretaker leaves a child with a baby-sitter well beyond the prescribed time. Threat of harm includes situations where a child is at risk for abuse or neglect (e.g. perpetrator residing in the home) although child maltreatment has not occurred. The estimate of children entering care in Josephine County due to sexual abuse is 6% and, children who are physically abused in Josephine County is only 4%. In Oregon the estimate of sexual abuse victims is similar to Josephine County, however, the estimate of children entering foster care in Oregon, who are physically abused is higher than the estimate in Josephine County. Sexual abuse is a common type of child maltreatment, however, sexual abuse is not a common reason children enter foster care. If the perpetrator leaves the home and the child can be protected from the perpetrator, the child does not enter foster care.

Children entering foster care are categorized into three groups - children age 0-5 years, children ages 6-12 years, and children 13-17 years. Of the children entering foster care in Oregon 48% are ages 0-5 years, 29% are ages 6-12 years, and 23% are ages 13-17 years. Compared to the statewide profile the age groups in Josephine County differ significantly. Josephine County served fewer children ages 0-5 (20%), more children ages 6-12 (37%), and more children ages 13-17 (43%) when compared to the statewide estimate.

The level of vulnerability is a child welfare profiling system which considers the severity of abuse and the age of the child. Younger and more severely maltreated children are identified as the most vulnerable (levels 1-3); older, less severely abused children are considered less vulnerable (levels 4-7). Statewide almost 82% of children entering long term foster care are identified as levels 1-3 whereas 56% were identified in levels 1-3 in Josephine County. There are fewer level 2 cases in Josephine County (17%) when compared to the rest of Oregon (31%), and the estimate for level 3 is similar in Josephine County (36%) and in Oregon. The most notable difference between Josephine County and the state estimate is for level 7 cases, which were 31% and 8% respectively.

Within each level of vulnerability there are numerous sublevels which specifically describe why children enter foster care. Although the limited number of observations prohibits definitive comparisons between the county and statewide profiles, there are some similarities and differences worth noting. For level 1 cases the primary reason for removal statewide is severe sexual abuse (6%). In Josephine County only 1% of the children in care enter due to severe sexual abuse. Abandonment accounts for about 2% of the children entering care in Josephine County and in Oregon. In level 2 the primary reason for removal statewide is chronic neglect to young children (15%). This is also the primary level 2 reason in Josephine County, however, it only affects 8% of the cases. Desertion, the second most common level 2 reason statewide (5%) only affects 2% of the children entering care in Josephine County. Estimates for parental mental disability (4%), moderate physical abuse (3%), and moderate sexual abuse (2%) are similar in Josephine County when compared to the state estimate. In level 3 the primary reasons for removal statewide are parental incarceration (9%), residential treatment (7%), and chronic neglect to school aged children (5%). These same issues are also the most common in Josephine County. Parental incarceration is somewhat higher (12%), residential treatment (8%) is similar and chronic neglect to school aged children (3%) is slightly less prevalent in Josephine County when compared to other counties in Oregon.

The effects of abuse, neglect and family separation often result in problems for children who enter substitute care. Some children entering foster care exhibit no problems while most have one or more mental, physical or behavioral problems. Sixteen percent of the children entering foster care in Josephine County are identified with no problems; this estimate is similar for children entering foster care in Oregon. Victim of sexual abuse (27%), angry/aggressive behavior (27%), and out of control/acting out (26%) are the most common child problems identified in Oregon. These same child problems are also the most common in Josephine County, however, the county serves more victims of sexual abuse (32%), more angry/aggressive children (31%), and more out of control/acting out children (40%) when compared to the state estimate. Josephine County serves fewer children who are exposed to domestic violence (12% verses 22%) and who are victims of sequential physical abuse (14% verses 19%) but more who are academically delayed (25% verses 15%) compared to other Oregon counties.

Parents who maltreat their children often have problems or conditions that affect their parenting. These problems and conditions are described as family factors. The most common family factor for both Oregon and Josephine County is poor parenting. This factor was present in 72% of families statewide and 53% in Josephine County. Neglectful is the second most pervasive factor statewide (57%) this factor is also common in Josephine County (34%) but less pervasive. About half the parents served statewide are single and just under half the parents are single in Josephine County (47%). Drug abuse also affects half the families statewide as well as, in Josephine County. In addition, Oregon serves more parents who were teens at first birth (45% verses 32%), who abuse alcohol (43% verses 33%), are unemployed (39% verses 25%), have had a past CPS removal (39% verses 31%), were abused as children (32% verses 21%), who suffer from poverty/inadequate income (32% verses 24%) and who are involved in domestic violence (31% verses 10%) when compared to Josephine County. The estimate for parents who are criminally involved is similar in Josephine County and Oregon (both about 43%).

Barriers are problems or situations that affect the likelihood of a child returning home. Often, barriers are related to the risk factors and maltreatment that caused the placement in foster care. Although the agency recognizes both child and parental barriers, most often it is resolution of parental barriers that determines if a child returns home. The most common barriers for caretakers statewide include drug involvement (36%), chronic neglect (19%), and alcohol abuse (16%). These same barriers also common in Josephine County, however, drug involvement (29%), and alcohol abuse (12%) are slightly less common and chronic neglect (6%) is roughly one-third as common when compared to the state estimate. In Josephine County the second most common barrier after drug involvement is overwhelming childcare (12%); this barrier is about 8% statewide. Poor parenting supervision is also more common in Josephine County (11%) than statewide (8%) whereas, angry/aggressive (12% verses 6%), mental condition (10% verses 5%), sexual offender (10% verses 7%) and parental incarceration (8% verses 4%) are less common in Josephine County than in other Oregon counties. Thirty-five percent of the parents with children in care in Josephine County have no barriers, which is considerably higher than the statewide estimate (7%).

Although parental problems and parental barriers determine if most children return home, children may also present barriers to their return home. The most common child barrier statewide and for Josephine County is out of control behavior. This child barrier is nearly twice the state estimate (12%) in Josephine County (23%). The second most common child barrier statewide is mental/emotional condition, which was identified in 11% of cases. This barrier was only common in 4% of the cases sampled in Josephine County. The second most common child barrier in Josephine County is criminal involvement (19%) which is significantly more prevalent than the statewide estimate (3%). In Oregon almost half the children are identified with no barriers; this estimate is only 18% for children sampled in Josephine County.

Services are offered to families in order to resolve the issues that brought the child into care, minimize the potential for reabuse, reduce the effects of maltreatment on the child and increase the likelihood of family reunification. Services including parent training, treatment, counseling and support are provided through community agencies and directly by SOSCF. Visitation is the most common service offered to parents in Josephine County (31%) and statewide (68%). Parent training, the second most common service is offered to 44% of the families with children entering foster care in Oregon, and about half that proportion in Josephine County (23%). Drug/alcohol evaluations are offered to nearly 40% of the parents served statewide. This estimate is considerably lower in Josephine County (23%). Psychiatric/psychological examinations are provided to 6% of the clientele in Josephine County; this is considerably less when compared to other families served statewide (34%). Both drug/alcohol inpatient and outpatient treatment are offered to 21% of the parents sampled in Josephine County, these are both about 26% in Oregon. And finally, individual counseling is a service offered to 19% of the parents statewide and 15% of the parents in Josephine County.

Services to children are intended to minimize the effects of maltreatment and modify behavior. The most common service offered to children in Oregon (32%) and Josephine County (22%) is individual counseling. Psychological examinations are offered to 15% of the children entering foster care statewide, whereas 9% of the children in Josephine County are offered this service. Ten percent of the statewide population are provided residential treatment or an individual education plan (IEP) these services are about two to three percentage points less in Josephine County. Sexual abuse victim treatment is provided to slightly less than 10% of the children entering foster care in Oregon and in Josephine County. Statewide about 28% of children in care did not receive additional services. This estimate is somewhat less when compared to the 46% in Josephine County.

The Josephine County SOSCF branch office and their community partners work to respond to the needs of families at risk, protect vulnerable children, and prevent reabuse. By working to diminish abuse and neglect, the agency endeavors to preserve the emotional and physical well being of the children and families they serve, as well as promote healthier family functioning.


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