Tillamook 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.

Tillamook Summary

The Child Welfare Partnership at Portland State University has conducted a series of research studies for the State Office for Services to Children and Families. The studies enable researchers to profile the families with children entering long term foster care. Long term foster care is considered the population of children who remain in foster care for at least 14 days or longer in the year after their placement in foster care. This study, known as the third Cohort Study, considers cases of children entering foster care between July 1992 and December 1995. Statewide 2,421 cases were reviewed including 59 from Tillamook County. The cases were randomly selected and reviewed by trained researchers. The profiles generated from this research include the reasons for removal, level of vulnerability, child's problems, family factors, barriers to return the child home, and services offered.

The most common reasons children enter foster care in Oregon include neglect (25%), parental absence (17%), threat of harm (13%), physical abuse (11%), and treatment issues of the child (11%). These five reasons account for 77% of all removals statewide and 62% of removals in Tillamook County. In Tillamook County neglect (15%) and threat of harm (5%) are less pervasive, parental absence and child's treatment are similar, and physical abuse (15%) is higher when compared to the state estimates. Parental absence includes abandonment, incarceration, and situations where parents leave a child with a babysitter well beyond the prescribed time. Threat of harm is a situation where a child is at risk of abuse or neglect (e.g. perpetrator resides in the home) although maltreatment has not yet occurred. Voluntary request (14% verses 2%), and parental treatment issues (12% verses 8%) are other removal reasons higher in prevalence in Tillamook County than statewide.

Children entering foster care have been categorized into three groups - children ages 0-5 years, children ages 6-12 years, and children ages 13-17 years. Statewide, of the children entering foster care 48% are ages 0-5, 29% are ages 6-12 and 23% are ages 13-17 years. Tillamook County serves a somewhat older population with children entering foster care falling into the youngest age group, 24% in the mid age group, and 35% in the oldest age group.

Level of vulnerability is a seven level system that profiles the population of children entering foster care in Oregon. The severity of abuse and the age of the child are the primary considerations for categorizing cases into different levels. 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 about 82% of children entering foster care are identified as levels 1-3, and in Tillamook County this estimate is 67%. When comparing the Tillamook County estimates to the state estimates Tillamook County serves fewer level 1 children (12%), and fewer level 2 children (21%) cases and a similar percentage of level 3 children (35%). Another notable difference in Tillamook County is in level 7. Twenty percent of the children entering care in Tillamook County are identified as level 7; this is significantly higher than the 8% served statewide. Level 7 cases deal with juvenile delinquency, children acting out and moderate physical abuse to older children.

Within each level of vulnerability there are sublevels. Each mutually exclusive sublevel describes the type and severity of maltreatment prompting the placement into foster care. In level 1, the most common reason for removal in Oregon is severe sexual abuse (6%), which is only 2% in Tillamook County. Child relinquished for adoption in the most prevalent level 1 issue in Tillamook County, which is 3% but is somewhat higher than the statewide estimate (0.7%). For cases identified as level 2, chronic neglect to young children is the most common statewide (15%) and is more prevalent than the 8% served in Tillamook County. Other reasons for removal include desertion and parental mental disability, each being 6% in Tillamook County and statewide. For level 3 cases the most common reasons for removal in Oregon include parental incarceration (9%), child needs residential treatment (7%), and chronic neglect to children ages 6-13 years (5%). These are less common in Tillamook County, with the exception of chronic neglect, which is similar to the state. Parental hospitalization/detox, and moderate physical abuse (each 5%) are more common in Tillamook County than statewide (each 3%).

The effects of abuse, neglect and family separation often have a negative effect on the child. Only 15% of the children statewide and 18% of the children entering care in Tillamook County are not recognized with mental, physical or behavioral problems. Victim of sexual abuse, angry/aggressive behavior and out of control acting out are each exhibited by one-quarter of the children entering foster care in Oregon. Victim of sexual abuse, and angry/aggressive behavior are also exhibited by one-quarter of the children served in Tillamook County. Out of control/acting out is a child problem more common in Tillamook County (34%) than statewide. Delinquency (17% verses 11%), academically delayed (22% verses 15%), criminal involvement (20% verses 12%), medical condition (16% verses 12%) and sexually acting out (14% verses 10%) are all child problems that are more common in Tillamook County than they are statewide. This is primarily due to the higher proportion of level 7 children entering care in Tillamook County. Exposure to domestic violence and victim of sequential physical abuse are problems more common elsewhere in Oregon than in Tillamook County.

Families served by SOSCF often have multiple problems that increase the risk of maltreatment and affect their functioning. Caretakers who maltreat their children often have problems or conditions that affect their ability to parent. These problems and conditions are known as family factors. The most prevalent factor of caretakers with children entering foster care statewide (72%) is poor parenting. Poor parenting only affects half the families served in Tillamook County. Poor parenting implies the caretakers do not understand the child's needs and their lack of knowledge places the child at risk. Chronic neglect is another family factor common in 57% of the families served statewide and 48% of the families in Tillamook County. The most common family factor in Tillamook County is alcohol involvement (52%), which is 43% statewide. Half the parents served, with children entering foster care statewide are single or abuse drugs; these issues are both less pervasive in Tillamook County. Family factors more common in Tillamook County than statewide include emotionally unstable (49% verses 28%), overwhelming child care (44% verses 28%), past CPS removal (44% verses 39%), mental illness (30% verses 19%), and history of being abusive (36% verses 29%). Conversely, family factors more common statewide when compared to Tillamook County are teen at first birth (45% verses 33%), unemployment (39% verses 30%), and poverty/inadequate income are. Family factors with similar estimates for parents served statewide and in Tillamook County include criminal involvement, which affects about 40% of each population and parent abused as a child, which affects about 30% of each population.

Barriers are problems or situations that affect the likelihood of a child returning home. Often barriers are related to risk factors and the maltreatment prompting the foster care placement. Although both child and parental barriers exist, resolution of parental barriers determine if a child returns home. The most common parental barriers in Oregon include drug involvement (36%), chronic neglect (19%), and alcohol abuse (16%). In Tillamook County drug involvement (24%) tends to be less prevalent, chronic neglect and alcohol abuse are similar to the state profile. More parents served in Tillamook County are angry/aggressive (26% verses 12%) or have a mental condition (16% verses 10%) when compared to the state estimates. Sexual offender is a barrier more common statewide (10%) than in Tillamook County (2%). Only 6% statewide and 14% of families in Tillamook County have no identified parental barriers. When caretakers have no identified barrier, the child's problems generally prompt the removal and also dictate the return home.

The most common child barrier statewide and in Tillamook County is the child beyond parental control; this barrier is more pervasive in Tillamook County (17%) than statewide (12%). Child barriers tend to mimic the state in Tillamook County. However, child on the run is a child barrier more pervasive in Tillamook County (11%) than elsewhere in Oregon (3%). Almost half the children served statewide have no barriers preventing their return home; this estimate is about 37% in Tillamook County.

SOSCF families are offered services to resolve the issues prompting placement, to minimize the potential for reabuse, to reduce the effects of maltreatment on the child and to increase the likelihood of family reunification. There are many different types of services including parent training, treatment, counseling and support. Some of these services are provided through community agencies and some are provided directly by SOSCF. Visitation is the most common service statewide (68%) and in Tillamook County (51%). The second most common service offered to parents statewide is parent training (44%); this service is only offered to 14% of the parents served in Tillamook County. Most parental services offered to parents in Tillamook County have estimates lower than the state profile. However, individual counseling (19%) and drug/alcohol outpatient treatment (about 25%) are services with similar estimates to the state profile.

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 Tillamook County (21%) is individual counseling. Statewide the second most common service offered to children statewide is psychological examinations. Psychological examination are provided to 15% of children entering foster care statewide, and to 11% of the children entering foster care in Tillamook County. More children served in Tillamook County are offered sexual abuse victim treatment (12%) when compared statewide (8%). Individual education plan (IEP's) is a service offered to 10% of the children entering foster care statewide, as well as in Tillamook County. More than 1/4 of the children statewide and in Tillamook County are offered no services.

The Tillamook County SOSCF branch office and their community partners work to respond to families at risk of child maltreatment, protect vulnerable children, and prevent reabuse. By serving abusive and neglectful families, the agency endeavors to preserve the emotional and physical well being of the children and families and promote healthier family functioning.


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