This manual assists state agencies in developing public policy and programs to address prevention and treatment for the abuse of alcohol and other drugs by women during pregnancy. It stresses the importance of collaborative action among the many agencies involved. The first chapter is a specific call for collaboration, noting several federal programs which emphasize collaboration. The second chapter discusses three specific state service systems in terms of their missions, mandates, and structures, responsibilities, and relationship to federal agencies and support. They are Maternal and Child Health Bureau services, substance abuse services, and child welfare. Other state agencies and groups are also considered (e.g., Medicaid, mental health, and corrections). The third chapter identifies four stages of development in establishing an interagency approach: (1) formation, (2) conceptualization, (3) development, and (4) implementation. Each stage is illustrated by the experiences of communities and organizations serving families affected by alcohol and other drug use. A list of 12 guidelines for establishing collaboration is offered. Appendices list state Title V directors, state alcohol and drug agency directors, and state child welfare commissioners/directors. (Contains 29 references.) (DB)