Although there has been a growth in goods manufacturing and services employment, four industries dominate Baker County’s economy – agriculture, wood products, tourism and mining. The unemployment rate remains one of the highest in Oregon at 8.6% in 1998, and the 1997 personal income per capita is the eighth lowest in the state at $17,710.

Baker County’s rural location is both an asset and a challenge. Residents of Eastern Oregon often feel removed from the rest of the state. It is difficult to obtain local news or weather on an Oregon television station. Residents of other areas of the state often mistakenly refer to Central Oregon as "Eastern Oregon." Our vote sometimes seems not to matter because we are small in numbers and laws that are passed which pertain to the larger population of the Willamette Valley often either exclude Eastern Oregon residents, or fail to apply to us in a pertinent manner.

Funding issues are another negative aspect of living outside of the Willamette Valley and being home to a small population. Often, allocation of State and Federal funds is based on population, making Baker County a "minimum grant" county. In the end, while our need may be great, our fiscal allowance is reduced dramatically compared to more populated areas, making providing service sometimes difficult.

While these issues may be viewed as a hindrance to community leaders in some areas, Baker County residents have risen to the challenge time and again. Choosing to live in a small, remote location brings with it the necessity to think and act in creative ways that benefit the residents of the county.

Out of necessity, many organizations had begun to work more closely. The Baker County District Attorney’s Multi-Disciplinary Team had for years included many social service agencies, schools, and mental health professionals. The Baker County Commission on Children and Families took a lead role in helping to bring quality programs, such as First Step (see Definitions), to Baker County. Churches, private non-profits, and agencies were commonly at the same table. To address the economic issues, the Baker County Economic Development Department, in conjunction with key leaders and businesses, worked to improve the economy through building, recruitment of businesses, and improvement of the historic district.

The concept of a "one-stop shopping" social services agency began formulating among individuals, key leaders, and groups – both together and separately. Understanding the existing physical and financial limitations imposed by reality, a small group of individuals conceived a partnership of similar organizations who would formalize under one umbrella group. Grants would be written and submitted under the partnership, with each group maintaining their individuality regarding amount, need, and administration of funding. Thus, "Partnership II" was formed in late 1997.

This partnership was made up of social service agencies and local non-profit organizations, which included the domestic violence center, law enforcement, educational institutions, and others. The mission of Partnership II is to make Baker City the Premier rural living experience through a strategic plan to reduce the harmful effects of alcohol and drug abuse on our community’s children and families.

Today, Baker County is recognized around the State of Oregon, and among such prestigious philanthropists as Meyer Memorial Trust, Ford Family Foundation, and Leo Adler Community Fund for the creativeness and ingenuity that has led a community to form such partnerships. This creative approach has brought improved services, increased funding, and strong collaboration to a small, rural location such as ours. As a result of this success, Baker County was chosen in January, 2000 as one of four prototype counties to design and implement county-wide integration of social services. The State of Oregon Department of Human Services (DHS) has made service integration a key priority. DHS Service Integration focuses on shared responsibility with community partners for better outcomes for clients.

With such a history of caring and collaboration, it came as no surprise that Baker County was granted a Training and Technical Assistance Grant through OJJDP to build a Comprehensive Strategy for Serious, Violent and Chronic Juvenile Offenders in January 1998. The first part of this multi-step intensive training was a series of on-site visits and consultations to outline the foundations and goals of the Comprehensive Strategy to our community. Jay Wood of Community Research Associates helped begin the process of engaging community leaders.

Beginning with a public meeting in September, 1999 the Baker County Community Planning Team was born. At that time, the trainers from Developmental Research and Programs, Inc. and National Council on Crime and Delinquency came to Baker City and met with approximately 50 individuals. From there, work groups were formed based on the interests and experience of the participants. These workgroups, and the function of each, are as follows:

• Data Collection and Analysis – Develop a statistical and demographic data profile of the community, conduct an analysis of data sources and accessibility, analyze data to identify priority risk factors and key issues.
• Resource Assessment – Collect information about existing prevention, intervention and sanction programs, identify key issues and gaps related to the programs, and make recommendations based on those gaps.
• Outreach/Media/Communications – Produce various products identifying function, process, and purpose of the Comprehensive Strategy to the public.
• Objective Decision making – Map the current juvenile justice system to identify critical decision points and document the current decision making process used at each decision point. Make recommendations as to which points should be studied & analyze current effectiveness & potential benefits of improvements .
• Legislative/Policy/Systems Issues – Identify data sources, legislative, policy or systems issues, and changes that need to be addressed in each.
• Planning/Monitoring/Evaluation – Act as final work group, utilizing all recommendations from each work group, to oversee the creation of the five-year strategic plan.

Plans considered during the Comprehensive Strategy work included:

• OSU Extension Service County Needs Assessment
• Baker City/County Economic Development Strategic Plan
• Oregon State Incentive Cooperative Agreement (SICA)
• Baker County High Risk Juvenile Crime Prevention Plan (JCP)
• Community Connection of Baker County JOBS Access Plan
• Rural Accessibility to Social Services Report
• Baker County Transportation Systems Plan (TSP)
• Partnership II
• Department of Human Services Service Integration Prototype

In each plan, social services and youth played a role, whether major or minor. Regardless of the group gathered or the plan’s purpose, issues of transportation, family management problems, family conflict, substance abuse, and/or delinquency arose on some level. Here, five of those plans are summarized.

The Resource Assessment workgroup found that transportation was continually an issue that arose as a gap. This issue was addressed as a need in the OSU Extension Service Assessment, the Baker Economic Development Strategic Plan, the Community Connection JOBS plan, the Rural Accessibility report and the Baker County Transportation Systems Plan (TSP). It arose more frequently than any other gap identified by the workgroup.

In reviewing the Baker County Transportation Systems Plan, it was discovered that approximately 40% of the Baker County population have special transportation needs (defined as people under the legal driving age, those under the poverty level, and those with mobility limitations). The findings of the Resource Assessment group showed that 10% of service providers self-identified transportation as a gap in service, and the evaluation of gaps by the Resource Assessment found that the highest gap area for reviewed programs was Transportation, at 45%.

Baker County’s TSP states as its overall goal the need to "develop a transportation system that enhances the livability of each jurisdiction and the County…." Additionally, many of its goals and objectives address the need to improve public transportation, promote alternative modes of transportation, and promote transportation demand management programs. One objective even states "plan for future transit service by seeking state support." The Economic Development Plan calls for "providing affordable, reliable transportation for better access to services for the transportation disadvantaged. The Resource Assessment group proposes that the Baker County Prevention Coalition, as the advocate agency for implementation of the Comprehensive Strategy Five-year Strategic Plan, take the necessary steps to support and work with Baker County in successfully fulfilling the goals of the transportation plan which will benefit social service program recipients.

The Economic Development Plan is important for two reasons. First, it recognized that youth play an important role in the health of communities and families. The plan addressed: reduction of substance abuse throughout the community; promoting healthy, functional families; enhancing cultural diversity; upgrading and enhancing existing social services and facilities; safe housing; and assuring fair, non-discriminatory treatment. It also addresses the need to ensure quality educational opportunities, starting in kindergarten and continuing through higher education.

Second, its primary focus is on improving the economic condition of Baker County. Because the Community Planning Team chose "Economic Deprivation" as one of the risk factors contributing to juvenile delinquency, the economic development, and future potential earning power of Baker County residents plays an important role in the Comprehensive Strategy. This also connects to youth, in that the Economic Development Plan addresses the need for school to work programs for students, and a healthy workforce. Again, the recommendation is that the Baker County Prevention Coalition stay connected with Baker County and City leaders in the need to continue improving the economic condition of Baker County.

The Baker County Juvenile Crime Prevention Plan (JCP) is closely associated with the Comprehensive Strategy Five-Year Strategic Plan. Although the JCP was written previous to this plan, and separately, the findings of that group were similar in nature to those of the Community Planning Team of the Comprehensive Strategy. The JCP profile of the Baker County high-risk juvenile correlates with the four chosen risk factors of the Comprehensive Strategy. As listed in the JCP, the profile includes economic deprivation, family management problems and conflict, drug and alcohol use, and anti-social or acting-out behavior.

Additionally, the JCP gives a considerable amount of attention to cultural competency of service providers, and gender specific service delivery – both addressed in the Strategic Plan priority areas and outcome. It is significant that the Baker County JCP has given attention to the needs of girls. The need for gender specific and culturally competent programs has been proven repeatedly. Historically, girls have been overlooked by policymakers, program providers, those within the juvenile justice system, and researchers studying juvenile delinquency. (Chesney-Lind & Shelden 1998). Consequently, laws and treatment models designed with boys in mind were demonstrably inadequate for girls.

Females as victims will act out differently than males. Girls and boys also react and respond differently to different treatment methods. A 1986 study of runaways conducted by McCormack, Janus and Burgess found that runaway girls who are sexually abused are significantly more prone to the crimes of substance abuse, petty theft, and prostitution than their male counterparts (Chesney-Lind 1997). A sampling of imprisoned women by Snell and Morton in 1994 found that 43 percent of the women were victims of physical or sexual abuse, and a 1998 study by Belknap and Holsinger acknowledges that physical, sexual, and emotional victimization are the "pathways to offending." Victimization leads them into the criminal justice system, acting as the principal element of both types and patterns of offenses that women typically commit (Investing in Girls, OJJDP Journal 1999). To better serve each group, it is preferable to have programs that have been designed to work within the differences and needs of each (Maniglia, 1998).

In at least one area, numbers show that Baker County is consistent with national averages in that the category of runaway is the second highest offense committed by girls. For the period of October 1, 1999 through March 31, 2000, the local domestic violence crisis center reports that three girls under 18 were sexually assaulted by a family member, and nine boys and six girls under 18 were physically assaulted by a family member. The Baker County Victims Assistance office shows that, for the same period, twelve children were victims of sexual and/or physical assault. That office does not report the gender of the victims, nor do they identify whether the nature of the assault was physical or sexual. By including priorities that embrace improving services for girls, and awareness of cultural differences, Baker County shows an interest in pursuing improved services to all of Baker County juveniles, based on proven findings and methods.

Baker County Partnership II plays a substantial leadership role in uniting social service agencies in a manner that benefits the partners and the clients. Partnership II’s projects and collaborative planning form the basis for real, long-term systems change. PII Partners have a proven record of accomplishment of joint strategic planning, collaborative service provision and team problem solving for clients. There are regular monthly partners’ meetings and monthly Partnership II Treatment Team meetings (unified case management meetings for selected clients). Although individual partners approach issues from differing perspectives, partners have agreed to act as a body whenever possible, with frequent communication and a strong commitment to working for common solutions.

The effectiveness of Partnership II efforts is analyzed through specific, measurable outcomes reported to the partnership and the funders. Where outcomes do not meet strategic objectives, the partner members assist each other in modifying methods for increased success.

The earliest evidence of PII success is the way that partners now problem solve together and support each other’s work with joint clients. From the client’s perspective, this teamwork results in integrated service plans and reduced numbers of conflicting appointments. An important indicator that may show Partnership II’s collaborative efforts are working is a substantial decrease in Baker County’s child abuse victimization rate in the last year. In 1998, Baker County had the second highest child abuse victimization rate in the State – 27.7 children per thousand. In 1999, Baker County’s child abuse rate declined to eleventh highest, as compared to other Oregon counties – 21.5 per thousand.

The State Department of Human Services recently selected Baker County as one of four "prototype" counties in Oregon to develop a model for county-wide integration of social services. The Service Integration project is staffed by a full time Partnership Leader. The Partnership Leader will facilitate integration efforts, including addressing barriers such as differing approaches to information technology, contracting budgeting, accounting, or facilities. While the State is not providing additional significant funding for local initiatives, DHS leaders and staff are committed to sharing training and technical assistance. The goal is to integrate and build on the strengths of existing local collaborative efforts, so that all supports are coordinated and readily accessible to those who need them, leading to better outcomes for clients and communities through shared responsibility. The idea is that Baker County citizens who are clients of various agencies should be able to meet with case managers at the same time.

Table of Contents

Data Collection and Analysis