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Maryland 4-H: Reaching Underserved and Underrepresented Youth and Adults as a National Perspective
Executive Summary
The 4-H Organization in the United States is a youth organization administered by the National Institute of Food and Agriculture of the United States Department of Agriculture. The 4-H had its humble beginnings a mere 100 years ago as an innovative way to introduce new agriculture technology to the community. Today the mission of the 4-H is to help youth and families gain skills needed to be productive forces within the community and develop ideas for a more innovative economy. This practical hands on learning experience connects youth with leadership skills and an opportunity to explore ways to give back. Maryland 4-H has a long history in advocating the core values of 4-H through its ability to help youth throughout the state reach their highest potential. In 2002 the University of Maryland Cooperative Extension system developed vision and mission statements to bring the 4-H program into their centennial years. The goal in focus for this report adopted in the new initiatives of the 4-H program is stated as: Reach currently underserved and underrepresented youth and adults. While 4-H is historically rooted in rural America, this category of target youth and adults are often defined as those of diverse and urban backgrounds. The 4-H wants to expand its Youth Development Program to this target audience in order to increase participation for those who would greatly benefit from cognitive life skills through communityfocused, research-based experimental programs to create competent, caring, and responsible individuals. The purpose of this report is to evaluate the Maryland 4-H program and to determine if it is indeed being successful in implementing its strategy to reach underserved and underrepresented youth and adults. If programs are in the birthing stage, those programs are analyzed to map actions used to bring

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these programs to fruition in effort to determine if implementation problems are a factor. A review of staff make-up is reported in this evaluation to provide insight on the collaborative approaches to staffing and fiscal resources. The overall summary from this report will not only determine if Maryland 4-H is successfully reaching underserved and underrepresented youth and adults in accordance with their mission and vision, but if it is equally affective in its target programs as that of national perspective.

Literature Review
Youth Development Programs The National Center for Charitable Statistics states that there were 17,000 youth organizations active in the United States in 1990 (Quinn, 1999). Programs can be affiliated with national youth organizations or sponsored by public agencies. Some are also operated by private organizations. These programs are in operation to offer prevention, intervention or to promote normal development such as new knowledge or useful life skills. In the opinion of the public it has been determined that there is national concern about youth and the programs which provide assistance to schools and families in guiding young adolescents in need. In a 1998 poll, 93% of parents and non-parents reported support for expanding after-school activities. Additionally 80% said they were willing to use tax dollars for this purpose (The Charles Stewart Mott Foundation, 1998). A survey conducted by the U.S Department of Education demonstrated parents desire for their children to be involved in community programs during non-school hours. Programs of interest include that of educational enrichment (Farkas, 1997). Even todays youth have

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expressed interest in a need for programs after school. Young people have voiced that they want constructive activities to engage in during the time they are not in school (Carnegie Council). National youth organizations are the largest category of youth development programs for early teens. Some of these programs in the U.S include: 4-H, Boy Scouts, Girl Scouts, Boys and Girls Clubs and the YMCA to name a few (Quinn, 1999). The U.S Department of Education reported that 50% of eight graders in the nation, through a sampling survey, reported participating in a national youth organization (National Center for Education Statistics, 1990). National youth organizations operate in two differing settings; within their own facilities or within troops that meet in community locations. Troop organizations, such as 4-H, rely primarily on volunteers to work directly with the youth and meet approximately one time week for a few hours. In contrast, facility-based organizations, offer 20-40 hours of programing per week (Tierney, 1995). National youth organizations also vary in the aspect of independence offered to those running the programs as to program content. At one end of the continuum (the top-down approach) are the scouting organizations which provide a well-developed national program with handbooks, uniforms, badges, and management guidelines. Using the bottom-up approach are the YMCA, which provide few nationally developed programs and encourage local variation in service offerings (Quinn, 1995, pg. 99). The 4-H falls into the category of bottom-up approach. Young adolescents need opportunity for physical activity, self-definition, creative expression and positive social interaction with peers and adults within a structured meaningful

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environment (Dorman 1985). Community environments help to protect youth against negative and support healthy development such as educational success, interpersonal strength and emotional well-being. (Pittman, 1991). Youth organizations, such as 4-H work with the community and its leaders to strengthen youth support. While not just assistance from the general community, other community institutions are recognized a meaningful partnerships. Youth development is a shared responsibility. Communities are implementing partnerships between public schools and community organizations that increase access for safe places that enrich education and enforce positive relationships at all hours of the day outside of school hours (Quinn, 1999). Youth development programs have a long history of working to address elements, non-school factors of poverty, family structure, and health and peer influences that challenge the impact on children (Bialeschki, 2011) Underrepresented and Underserved Youth Programing of all facets struggle to meet the challenges in expansion efforts to young adolescents. It is important to make the organization and programs attractive to the target audience. As the demographics of the nation continue to change, increasing access for lowincome urban communities becomes increasingly important. (Quinn 1999 pg. 105) Participation in programs such as Scouts and 4-H historically drop off during the years of early adolescents. This phenomenon can be attributed to relevant programing, free-will of time, and adult leaders comfort level working with teenage youth. (Quinn, 1999 pg. 105) Other factors of income, gender and race may have an impact on those who join programs. A survey by the U.S Department of Education revealed that boys are girls were equally likely to participate in

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organized out-of-school activities (71% and 72% participated in at least one activity). They did, however, join different activities. The survey also determined that white eighth graders were more likely than young teens of color to be involved in after school programing. Most dramatic findings were when looking at income. In 1988, 40% of eight graders from low-income backgrounds did not participate in any organized activity. In contrast, 17% of youth from the highest level of income were not involved (National Center for Educational Statistics, 1990). A study conducted involving community resources available for youths ages 11 to 14 compared a low-income, African American neighborhood in Chicago to that of an affluent white suburb. The suburban community offered 75% more services than that of the city community and one that was more diverse in choices. Public resources in the suburban also offered far more services; middle school offered seven times as many extracurricular activities (Littell 1989). Access to programs that is unequal affects the participation rates by youths of a lower income verses that of higher income. Youths from higher income families are more likely to participate in programs and activities out of school than youth of lower income families. This finding suggests that there is a need to target non-school resources for underserved youth who are less likely to participate (Duffet, 2004). A study by The Harvard Family Research Project determined that youth form lower income families were more likely to participate in tutoring programs indicating that academic deficits of disadvantaged youth keep them from participating in other types of activities and programs (HFRP, 2006). The HFRP study revealed that while a historical analysis has remained static for participation rates demographically over the late 1990s, there however, has been an increase in and participation among lower income youth -narrowing the gap between lower income and higher income families (HFRP, 2006).

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Participation is directly related to access. Race and gender as well as physical ability influence perceptions of participation and access. Extending to underserved youth requires programs to take their services to neighborhoods where low-income youths live or attend school. The recruitment of a diverse staff and volunteers is important when working with these urban populations. (Quinn, 1999) Access issues can arise from whether young adolescents feel welcome at the organization and having a skilled, yet diverse, staff may aid in comfort and drive participation within welcomed environment. (Quinn, 1999, pg. 105) National 4-H In 2006 4-H Youth Development Program began the 4-H Science Initiative with the goal of engaging more young people in science and related fields. In order to accomplish this goal strategies were formed to recruit and enroll youth from specific demographics to broaden the pool of participants (Riley, 20012). Word of mouth was used through the encouragement of program directors and staff to tell others about the program. Programs may improve outreach by utilizing past and current participants while giving youth members the leaderships skills in reviewing applications and deciding who is accepted. Recruitment efforts through the Youth Development Program included the creation of partner organizations. According to this study by the Policy Studies Associates, Inc. longstanding partnerships with host organizations and continued interest of these families introduce new members and maintain high retention rates. (Riley, 2012) An example of this is youth organizations and programing that is partnered with schools as a community institution partnership. Communities are designing extended service

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schools- partnerships between public schools and community organizations that increase access to programing (Quinn, 1999). The 4-H Science Initiative desired a more diverse population of new participants in the program. Previous studies of 4-H implementation have determined that few states and county agents have set specified goals to increase the numbers of underrepresented and underserved youth. One program, Rutgers Summer Science Program has made it a priority to recruit underserved from urban communities through the cooperation with science teachers to reach the target audience. This program has also spent time recruiting volunteers who are representative of the backgrounds of youth enrolled in the program (Riley, 2012 pg. 7). In 2011, the National 4-H Council announced its kick-off of a nationwide mentoring initiative. Forty-seven states received funding to land-grant universities to replicate three evidence based Extension 4-H programs serving at risk populations. These programs have been recognized as having effective strategies to reduce juvenile delinquency, drug abuse, and school failure. These programs incorporate principles of positive youth development to improve the lives of 6,000 youth ages 8-17, specifically populations of underserved youth; Latino, African America and children of incarcerated parents (Kesner, 2011).
Maryland State and Local 4-H When addressing the goals of a youth development program and strategies to reach the target audience of underserved and underrepresented youth it is important to evaluate local urban statistics. This allows programing to better understand the environment of the target population. Baltimore City has a school age population of 154,000. According to Baltimore City Police Department in 2007, there were

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8,100 juvenile arrests. Out of those youth, over 50% were released to parents. Nationally, including Maryland, 8 of 10 previously arrested youth will be rearrested following release from an institution. A few 20% of all youth remain arrest free across Maryland. According to the Maryland State Department of Education, Baltimore City in 2007 reported 34% of 6-8 graders absent more than twenty days and 44% of 9-12 graders absent more than twenty days. Maryland having an 85% graduation rate, Baltimore City reflected a mere 63% of students graduating high school. (Baltimore Rising, 2010) In 2003 the Maryland Cooperative Extension (MCE) completed a statewide strategic planning process that addressed commitment and mission to engaging communities. The plan introduced five goals reflecting principles of active involvement, supportive relationships, community-based programing, collaboration, accessibility, asset development, diversity and programs addressing complex conditions. Specifically, one of these five goals of the Maryland 4-H Strategic Plan is to increase the participation of underserved and underrepresented youth and adults. (Maryland Cooperative Extension Office, 2003). Maryland created the New Communities Project grant to enhance youth developing programing in these underserved areas. Three counties in the State selected to implement the project have sustained community partnerships and collaborative relationships along with a willingness to sustain the project beyond grant funding. Garrett County, Maryland created a program entitled After-school Extension Enhancement. The program meets the need for academic enrichment by bringing resources of the Extension into after-school programs across the county. These resources include an outdoor education center, computer lab, life skills curricula, and expertise of the 4-H Youth Development educator and program assistance. Youths, in an after school setting, are exposed to a variety of experimental education programs, agriculture education including farm field trips, and interactive programing at after-school sites (Maryland Cooperative Extension Office, 2003).

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Evaluation Despite the recent reach of youth development programs and the potential for promotion, little analysis of their effectiveness has been conducted. Today there is a push to for evidence proving effectiveness where accountability and management results are limited (Quinn 1999). Outcome evaluations are used in youth agencies both with categorical and core programing. Categorical programs seek to prevent or reduce specific risk behaviors while core programs promote positive development ad socialization (Quinn, 1999). There is a large gap in youth development evaluations pertaining to core services of youth organizations. A study of the Quantum Opportunities Program demonstrated that the program had significant positive influence on economically disadvantaged high school youths. Using a randomized design, a five-year longitudinal study of four sites proved that in comparison to youths in the control group program participants showed higher highs school graduation rates, higher enrollment and higher level of community involvement (Hahn, 1994). While there are few examples of program outcome evaluation, it is not due to an overwhelming display of lack of results, it is in fact due to funding problems. Methodological problems hinder evaluation as there concrete outcomes are not specified, voluntary participation and the lack of good measurement tools. To build support from policy makers and society it will be required to have better outcome evaluations to expand youth develop programs. Investing in carefully designed and implemented evaluations that show promising results have a better chances of wide spread replication (American Youth Policy Forum). Conclusion The following report is to evaluate the Maryland 4-H Youth Development Program and determine if it is being successful in implementing the goal of reaching underserved and underrepresented youth and adults. Through the review of literature, specific evaluation questions can be discerned:

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1) Is the 4-H programing increasing participation of the target audience defined as underserved and underrepresented youth? 2) Are community alliances and relationships being formed with agencies, schools, government, and faith based organizations to address local issues? 3) Is the 4-H program successful in recruiting youth families, volunteers and staff from underrepresented audiences? 4) What training I being provided for volunteers and youth educators to increase the ability to program for at-risk youth? 5) How does the Maryland 4-H Youth Development Program compare to the mission of the National 4-H Council in its mission to reach underserved and underrepresented youth? These evaluation questions tie together the variables that directly relate to the overall evaluation of Maryland 4-H youth programs reaching the target audience and its comparison to a national perspective.

Methodology
The purpose of evaluation is to determine the Maryland 4-H Youth Development Program and determine if it is being successful in implementing its strategy to reach underserved and underrepresented youth and adults.

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The Maryland 4-H Youth Development Program currently has 500* clubs with 860 4-H organization club leaders, reaching 9,000* youth. The average number of clubs per county/city is 20*. Within the next 2 years through multiple phases, the Maryland 4-H Youth Development Program seeks to answer to the following evaluation questions: 6) Is the 4-H programing increasing participation of the target audience defined as underserved and underrepresented youth? 7) Are community alliances and relationships being formed with agencies, schools, government, and faith based organizations to address local issues? 8) Is the 4-H program successful in recruiting youth families, volunteers and staff from underrepresented audiences? 9) What training is being provided for volunteers and youth educators to increase the ability to program for at-risk youth? 10) How does the Maryland 4-H Youth Development Program compare to the mission of the National 4-H Council in its mission to reach underserved and underrepresented youth?

The population for this research will include 4-H Youth Development Educators and local 4H policy-making board members. These individuals are responsible for the creation and implementation of 4-H program policies and guidelines on a local level. This sampling I purposeful in that it will determine individuals selected for case study analysis. Once the individuals are selected an additional sampling will utilize members and parents participating in

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4-H programs. Phase 1 through 3 will be implemented over the first year. Phase 4 will be implemented during the second and final year. Phase 1 will consist of in-depth, semi-structured interviews with staff members from Maryland Extension office pertaining to Youth Development and policy makers which will take place over the course of 6 months. Some of this interview will be one-on-one while on the occasion there may be group interviews. These interviews, each taking 30-60 minutes audio taped, will help the researcher gain perspective to ascertain communication between staff members and volunteers/leaders that the work as it pertains to the mission of reaching the target audience of underserved and underrepresented youth. During these interviews respondents will be asked to refer the researcher to local organizations believed to have programing in place implementing the mission of serving the underserved. Phase 2 will consist of interviews with the local chapter leads given by the Maryland Extension Office each taking 30- 60 minutes audiotaped over the course of an additional 6 months. During the interviews with representatives of these local chapters, a survey will be implemented (Appendix A and last page of Appendix B). The first section survey originated from the New York Extension Office as a Directory for Successful Urban 4-H programs. These interviews will be transcribed and survey data coded to give quantitative measure (ordinal and ratio level). Phase 3 will consist of a third round of audio-taped interviews lasting 30 minutes, this time involving 4-H members and their parents. This will give insight to the background and perception of the 4-H program by those participating in a round table forum. These interviews

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will be accompanied by a survey (see Appendix B; sans last page). These interviews will be transcribed and survey data coded to give quantitative measure (ordinal and ratio level) The second year of evaluation, phase 4, will be comparing the coded survey data against a National perspective. To initiate this research an abridged version of phases 1-3 will be implemented through the National 4-H Council policy makers, educators and its leads to national recognized 4-H Youth Development Programs successfully reaching the target audience of underserved and underrepresented youth. Surveys (Appendix A and B) will be distributed to these programs and coded for the purpose of comparison to Maryland 4-H Youth Development Programs to that of a national perspective. The Process The implementation of the survey along with interviews gives the opportunity for both quantitative and qualitative measure. In an effort to answer the evaluation questions all samplings from key players involved in Phases 1-4 are important in linking the relationships between the target audience, community alliances, staff diversity and national comparisons. These surveys are part of an input-output analysis method (Appendix A and B) used previously in other evaluations within the 4-H program. The advantage of this method is the wide scope of those participating in the collection of data. This could give insight to organization structure and implementation failure. This disadvantage to this approach is the two year time frame used to complete the evaluation.
There are various areas of concern and potential problems: Stereotypes of the 4-H Youth Development Program

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Competition from other youth programs Limited time of Volunteers Limited time and number of staff Adult perceptions of youth resources Funding Demographic shifts Length of Evaluation process Teens entering the workforce

*Please note: I am waiting on up to date numbers from contact, Linda Walsh, at the Maryland Extension Office. ** The PDFs available (below) are unable to be edited. I am in the process of receiving documents from the MD Extension office that I can manipulate strictly for the purposes of this class. Attached are the sources for these evaluations as they have been created by the other 4-H organizations. *** I would will also be creating an addendum to Appendix B (the evaluation for members) to include the following; age, grade, home location and race.

Analysis and Results

In an effort to evaluate the Maryland 4-H program and determine if it is indeed being successful in implementing its strategy to reach underserved and underrepresented youth and adults, data has been collected through interviews and distributed surveys.

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Through the four phases discussed in methodologies to interview and survey 4-H Youth Development Educators (Extension Office), local 4-H program facilitators, youth and parents several questions are used to guide the research. 11) Is the 4-H programing increasing participation of the target audience defined as underserved and underrepresented youth? 12) Are community alliances and relationships being formed with agencies, schools, government, and faith based organizations to address local issues? 13) Is the 4-H program successful in recruiting youth families, volunteers and staff from underrepresented audiences? 14) What training is being provided for volunteers and youth educators to increase the ability to program for at-risk youth? 15) How does the Maryland 4-H Youth Development Program compare to the mission of the National 4-H Council in its mission to reach underserved and underrepresented youth? The data collected is a combination of quantitative (Number of participants, number of volunteers, etc.) and qualitative (race, home location, project area). To start the process of analyzing, the most important thing to do is to get a handle on the data retrieved is to look at the central tendencies using descriptive statistics such as mean, median, mode and standard deviation. Mean is the average, mode is the number that appears most frequently, and median is the number in the middle of the data set. For example, the mean of the number of participants across several 4-H programs can be utilized to look at the average enrollment numbers. The use of standard deviation is used to look at the dispersion of data. Descriptive statistics are best used for variables that are interval or ratio, however for ordinal and nominal values frequency tables can be used to visually see mode. An ordinal value is a number that is assigned to a person, place or thing. Values are assigned to

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things such as sex, race and project area. A nominal variable is a number assigned to answers on a survey (i.e. 1- very important, 2-important, and 3-not important). Frequency tables are a visual tool to examine the mode; the number that appears most often. Histograms are another way to look at the spread of data as well as box and whisker plots. Both give a visual on the spread of data, easily discerning how the data is distributed and compared. These visual tools also allow outliers to be easily detected. Specifically, using box and whisker plots, you can see where the majority of the data falls (within quartiles). Such as a range of 1-10 participants or 11-20 participants, the majority of data may fall in one of these ranges verses the other. To give an example, here is a breakdown of the first question: Is the 4-H programing increasing participation of the target audience defined as underserved and underrepresented youth? Using descriptive statistics, I would look at the population of programs analyzed and of what percentage are underserved represented in the data. This could then be compared to past data collected by others. The data collected and analyzed through the various descriptive statistics could then be compared to the data collected such as race and home location of the youth participating in these programs. It would be important to look at a program that a much smaller enrollment and determine the most represented race within that group. This same process can be implemented to help answer questions 2 and 3. In this particular evaluation, it is important to see if certain variables have a relationship to other variables. For example, is there a relationship between the number of participants and the number of volunteers in a certain program being implemented? This can be shown through a scatter plot where a linear line of best fit is drawn. The line and equation associated shows the relationship, if any, between at least two variables.

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After analyzing the data pools within the state of Maryland, the same will be done with the data obtained at the National Level using descriptive statistics, histograms, box and whiskers, and finding relationships between the data. In order to compare the Maryland data to that of the National, a t-test will be used to compare. A t-test is a statistical examination of two population means. With the t-test an analysis could be done to determine the average number of participants of Maryland to that of different states. This would help to answer: How does the Maryland 4-H Youth Development Program compare to the mission of the National 4-H Council in its mission to reach underserved and underrepresented youth?

After looking at the descriptive statistics, visual graphs and comparison data, other questions will start to formulate. For example, say there are a few program areas that all have very low participation. One may ask, why is this? This would be an opportunity to look at those program areas and determine if there is a relationship between the enrollment and collaborative community efforts. It is in through this analysis of the data that will drive home answers to questions like 3 and 4 of my evaluation. These can be answered through plotting these data sets and determining if there is correlation. Examining causation is important to look at as well. In this case, because much of the data through survey and interview is qualitative it would be interesting to set up a small network to indicate possible casual links. Setting up this network may open the eyes to other comparative data to analyze.

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Works Cited

American Youth Policy Forum. (1997) Some things DO make a difference for youth: A compendium of evaluations of youth programs and practices. Washington, DC: AYP

Baltimore Rising (2010) Baltimore: A City of Challenges for Youth. Retrieved from [Link] Bialeschki, Deb. The Impact of Youth Development Programs on Student Academic Achievement. National Collaboration for Youth, 2010
Byrne, Dick. (2008). 4-H in a Changing World: A plan for Maryland. Retrieved from [Link]

Dorman, G. (1985).3:00 to [Link] Planning programs for young adolescents. Carrboro, NC: Center for Early Adolescence Duffet, A., Johnson, J., Farkas, S., Kung, S., & Ott, A. (2004). All work and no play? Listening to what kids and parents really want from out-of-school time. New York: Public Agenda Farkas, S., and Johnson, J. (1997). Kids these days: What Americans really think about the next [Link] York: Public Agenda Hahn, A., Leavitt, T., and Aaron, P. (1994).Evaluation of the Quantum Opportunities Program (QOP): Did the program work? Waltham, MA: Center for Human Resources, Heller Graduate School,Brandeis University Kesner, Carolyn (2011) 4-H National Mentoring Program. Volume 1, Issue 1. Retrieved from [Link]/Programs/Healthy-Living/National-Mentoring-... Littell, J., and Wynn, J. (1989) .The availability and use of community resources for young adolescents in an inner-city and suburban community. Chicago: University of Chicago, Chapin Hall Center for Children Maryland Cooperative Extension Office. Maryland Cooperative Extension; New Communities Project. (2003) Retrieved from [Link]
National 4-H Council (2008) History of 4-H. Retrieved from [Link]

Pittman, K., and Wright, M. (1991).A rationale for enhancing the role of the non-school

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voluntary sector in youth development. Paper commissioned by the Carnegie Task Force on Youth Development and Community Programs. Washington, DC: Carnegie Council on Adolescent Development

Quinn, Jane. (1999) Where Neet Meets Opportunity: Youth Development Programs for Early Teens. The Future of Our Children. Princeton University Riley, Derek and Alisha Butler. (2012) Priming the Pipeline: Lessons from Promising 4-H Science Programs. Policy Studies Associates, Inc. The Charles Stewart Mott Foundation. Poll finds overwhelming support for afterschool enrichment programs to keep kids safe and smart. Press release. Flint, MI: The Charles Stewart Mott Foundation, September 24, 1998. Available online at [Link] special_report/sr_press_release.htm. Tierney, J.P., Grossman, J.B., and Resch, N.L. (1995) Making a difference: An impact study of Big Brothers/Big Sisters. Philadelphia: Public/Private Ventures U.S. Department of Education. (1990).National education longitudinal study of 1988: A profile of the American eighth grader. Washington, DC: U.S. Department of Education, Office of Educational Research and Improvement, National Center for Education Statistics What young adolescents want and need from out-of-school programs: A focus group report. Commissioned by the Carnegie Council on Adolescent Development. Washington, DC: S.W. Morris and Company, 1992