Department of Education

REHABILITATION SERVICES

Fiscal Year 2023 Budget Request

CONTENTS

Page

Appropriations Language..............................................................................................................1

Analysis of Language Provisions and Changes............................................................................3

Appropriation, Adjustments, and Transfers...................................................................................5

Summary of Changes ...................................................................................................................6

Authorizing Legislation..................................................................................................................7

Appropriations History...................................................................................................................8

Significant Items in FY 2022 Appropriations Reports ...................................................................9

Summary of Request ..................................................................................................................10

Activities

Vocational rehabilitation State grants .....................................................................................11

Client assistance State grants ................................................................................................25

Training...................................................................................................................................29

Demonstration and training programs ....................................................................................36

Protection and advocacy of individual rights ..........................................................................42

Supported employment State grants ......................................................................................46

Independent living services for older blind individuals............................................................51

Helen Keller National Center..................................................................................................56

Randolph-Sheppard Vending Facility Program ......................................................................63

Account Summary Table.............................................................................................................65

State Tables*

*State tables reflecting final 2021 allocations and 2022 and 2023 estimates are posted on the 

Department’s webpage at: https://www2.ed.gov/about/overview/budget/statetables/index.html

1

Appropriations Language

REHABILITATION SERVICES

For carrying out, to the extent not otherwise provided, the Rehabilitation Act of 1973, the 

Helen Keller National Center Act, and the Randolph-Sheppard Act, $4,125,906,000, of which 

$3,949,707,000 shall be for grants for vocational rehabilitation services under title I of the 

Rehabilitation Act1: Provided, That the Secretary may use amounts provided in this Act that 

remain available subsequent to the reallotment of funds to States pursuant to section 110(b) of 

the Rehabilitation Act for innovative activities aimed at increasing competitive integrated 

employment as defined in section 7 of such Act for youth and other individuals with disabilities2: 

Provided further, That up to 15 percent of the amounts made available by this or prior Acts for 

innovative activities as described in the preceding proviso may be used for evaluation and 

technical assistance related to such activities3: Provided further, That States may award 

subgrants for a portion of the funds to other public and private, nonprofit entities4: Provided 

further, That any funds made available subsequent to reallotment for innovative activities aimed 

at improving the outcomes of individuals with disabilities shall remain available until September 

30, 20245: Provided further, That, notwithstanding the provision in section 111(a)(2)(B) of the 

Rehabilitation Act regarding a fiscal year in which a States' allotment under section 110(a) is 

reduced for failure to comply with the requirement of section 111(a)(2)(B), the Secretary may 

apply the reduction specified in section 111(a)(2)(B) over a period of consecutive fiscal years, 

not to exceed 5, until the entire reduction is applied6: Provided further, That, from amounts 

provided under this heading, the Secretary shall use $500,000 for a grant to provide training and 

technical assistance to support implementation of the Randolph-Sheppard Act.7

NOTE

Each language provision that is followed by a footnote reference is explained in the “Analysis of Language 

Provisions and Changes” table, which follows the appropriations language.
2

A full-year 2022 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2022 (Division A of P.L. 117-

43, as amended). The amounts included for 2022 reflect the annualized level provided by the continuing resolution.
REHABILITATION SERVICES AND DISABILITY RESEARCH

3

Analysis of Language Provisions and Changes

Language Provision Explanation

1 ... of which $3,949,707,000 shall be for 

grants for vocational rehabilitation services 

under title I of the Rehabilitation Act:

This language earmarks funds provided for 

Vocational Rehabilitation (VR) State Grants 

program. 

2 Provided, That the Secretary may use 

amounts provided in this Act that remain 

available subsequent to the reallotment of 

funds to States pursuant to section 110(b) of 

the Rehabilitation Act for innovative activities 

aimed at increasing competitive integrated 

employment as defined in section 7 of such 

Act for youth and other individuals with 

disabilities:

This language allows the Secretary to use 

amounts that remain available subsequent to 

the reallotment of funds to States under the 

VR State Grants program for innovative 

activities aimed to increase competitive 

integrative employment for youth and other 

individuals with disabilities. The inclusion of 

this language ensures that unused funds 

remain available to improve the outcomes of 

individuals with disabilities, instead of being 

returned to the Treasury.

3 Provided further, That up to 15 percent of 

the amounts made available by this or prior 

Acts for innovative activities as described in 

the preceding proviso may be used for 

evaluation and technical assistance related 

to such activities:

This language allows the Secretary to use up 

to 15 percent of the amounts that remain 

available subsequent to the reallotment of 

funds to States under the VR State Grants 

program to be used to evaluate the impact 

and effectiveness of the project activities 

aimed at increasing competitive integrated 

employment for youth and other individuals 

with disabilities, and provide technical 

assistance to support grantees in this work. 

4Provided further, That States may award 

subgrants for a portion of the funds to other 

public and private, nonprofit entities: 

This language permits States to use a portion 

of their project funds to make subgrants to 

other public and private, nonprofit entities for 

carrying out innovative activities aimed at 

increasing competitive integrated employment 

for youth and other individuals with 

disabilities.

5Provided further, That any funds made 

available subsequent to reallotment for 

innovative activities aimed at improving the 

outcomes of individuals with disabilities shall 

remain available until September 30, 2024:

This language permits the funds made 

available subsequent to reallotment of VR 

State Grant funds for activities aimed at 

increasing competitive integrated employment 

for youth and other individuals with disabilities 

to remain available for two years.
REHABILITATION SERVICES

4

Language Provision Explanation

6 Provided further, That, notwithstanding the 

provision in section 111(a)(2)(B) of the 

Rehabilitation Act regarding a fiscal year in 

which a States’ allotment under section 

110(a) is reduced for failure to comply with 

the requirement of section 111(a)(2)(B), the 

Secretary may apply the reduction specified 

in section 111(a)(2)(B) over a period of 

consecutive fiscal years, not to exceed 5, 

until the entire reduction is applied:

This language allows the Secretary to spread 

the required reduction for a State’s failure to 

maintain effort across up to five consecutive 

fiscal years. 

7 Provided further, That, from amounts 

provided under this heading, the Secretary 

shall use $500,000 for a grant to provide 

training and technical assistance to support 

implementation of the Randolph-Sheppard 

Act.

This language earmarks funds for training and 

technical assistance to support 

implementation of the Randolph-Sheppard 

Act. 
REHABILITATION SERVICES

5

Appropriation, Adjustments, and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2021 2022 2023

Discretionary:

Discretionary: Appropriation $139,199 $139,199 $176,199

Total, discretionary appropriation 139,199 139,199 176,199

Mandatory:

Mandatory: Appropriation 3,675,021 3,719,121 3,949,707

Mandatory Sequester (P.L. 112-25) -209,476 -211,990 -225,133

Total, adjusted mandatory appropriation 3,465,545 3,507,131 3,724,574

Total, discretionary and adjusted 

mandatory appropriation 3,604,744 3,646,330 3,900,773
J.REHABILITATION SERVICES

6

Summary of Changes

(dollars in thousands)

2022 $3,858,3201

2023 4,125,9062

Net change +267,586

Increases: 2022 base

Change 

from base

Built in

Increase in funding for Vocational rehabilitation (VR) State 

grants, consistent with the inflation increase specified in the 

authorizing statute. $3,719,121 +$230,586

Program:

Increase in funding for Demonstration and training programs to

support a new pilot program aimed at improving employment 

outcomes for VR participants and related technical assistance 

and evaluation, and provide additional support for the Parent 

Information and Training program. 5,796 +35,000

Increase in funding for Helen Keller National Center for DeafBlind Youths and Adults to cover increased operational costs. 17,000 +1,500

New funding for the Randolph-Sheppard Vending Facility 

program to support a training and technical assistance center. 0 +500

Net change +267,586

1 Excludes the 5.7 percent reduction of mandatory VR State Grant funds pursuant to the Budget Control Act of 2011 

(P.L. 112-25) that went into effect on October 1, 2020. The reduced level for 2022 subsequent to the 5.7 percent 

sequester is $3,646,330 thousand, a reduction of $211,990 thousand. 

2 Excludes the 5.7 percent reduction of mandatory VR State Grant funds pursuant to the Budget Control Act of 2011 

(P.L. 112-25) that went into effect on October 1, 2020. The reduced level for 2022 subsequent to the 5.7 percent 

sequester is $3,724,574 thousand, a reduction of $225,133 thousand. 
REHABILITATION SERVICES

7

Authorizing Legislation

(dollars in thousands)

Activity

2022

Authorized

footnote

2022

Estimate

footnote

2023

Authorized

footnote

2023

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B (110, 111 and 113), and C) $0 1 $3,455,5392 0 1 $3,896,616

VR Grants for Indians (RA-I-C) (1,3) 51,5922 (1,3) 53,091

Client assistance State grants (RA-I-112) 0 4 13,000 0 4 13,000

Supported employment State grants (RA-VI) 0 4 22,548 0 4 22,548

Training (RA-III-302) 0 4 29,388 0 4 29,388

Demonstration and training programs (RA-III-303) 0 4 5,796 0 4 40,796

Services for older blind individuals (RA-VII-2) 0 4 33,317 0 4 33,317

Protection and advocacy of individual rights (RA-V-509) 0 4 18,150 0 4 18,150

Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) 0 5 17,000 0 5 18,500

Randolph-Sheppard Vending Facilities Program (R-S) 0 0 0 500

Total definite authorization 0 0

Total discretionary appropriation 139,199 176,199

Total mandatory appropriation 3,719,121 3,949,707

Total appropriation 3,858,120 4,125,906

Portion of request not authorized 3,858,120 4,125,906

Total appropriation including required mandatory reduction 3,646,3302

_______________________________

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations action. The authorizing legislation specifies 

that the amount to be appropriated for a fiscal year be at least the level of the prior fiscal year increased by the 12-month percentage change from October to 

October in the Consumer Price Index for all Urban Consumers (CPIU). 2 The amount reflects the 5.7 percent reduction of mandatory programs that went into effect on October 1, 2020, pursuant to the Budget Control Act of 2011 

(P.L. 112-25). 3 The Rehabilitation Act requires that 1.0 percent to 1.5 percent of the appropriation for Vocational Rehabilitation State grants be set aside for Grants to Indians. 4 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations action. 5 The GEPA extension expired September 30, 2004; reauthorization for FY 2023 is expected through appropriations action.
REHABILITATION SERVICES

8

Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation

Foot20141 $3,655,577 N/A $3,698,174 $3,680,497

20152 3,683,335 N/A 3,722,853 3,709,853

20163 3,532,109 $3,529,605 3,487,864 3,529,605

20174 3,541,389 3,534,027 3,536,389 3,535,589

20185 3,563,008 3,562,582 3,562,418 3,361,143

20196 3,634,977 3,657,689 3,656,189 3,657,189

20207 3,719,527 3,752,076 3,745,239 3,747,739

20218 3,782,952 3,827,500 3,805,500 3,814,220

20229 3,894,820 3,896,820 3,874,145 3,858,320

2023 4,125,906

1 The House allowance is shown as N/A because there was no Subcommittee action. The level for the Senate 

allowance reflects Senate Subcommittee action only.

2 The House allowance is shown as N/A because there was no Subcommittee action. The level for the Senate 

allowance reflects Senate Subcommittee action only.

3 The levels for House and Senate allowances reflect action on the regular annual 2016 appropriations bill, which 

proceeded in the 114th Congress only through the House Committee and Senate Committee.

4 The levels for House and Senate allowances reflect Committee action on the regular annual 2017 appropriations 

bill; the Appropriation reflects the Consolidated Appropriation Act, 2017.

5 The level for the House allowance reflects floor action on the Omnibus appropriations bill; the Senate allowance 

reflects Committee action on the regular annual 2018 appropriations bill; the Appropriation reflects the Consolidated 

Appropriations Act, 2018 (P.L. 115-141).

6 The levels for the House and Senate allowances reflect Committee action on the regular annual 2019 

appropriations bill; the Appropriation reflects enactment of the Department of Defense and Labor, Health and Human 

Services, and Education Appropriations Act, 2019 (P.L. 115-245).

7 The Senate allowance reflects the Chairman’s mark; the Appropriation reflects the Further Consolidated 

Appropriation Act, 2020 (P.L. 116-94).

8 The level for the House allowance reflects subcommittee action. The level for the Senate Allowance reflects the 

Chairman’s mark; the Appropriation reflects Division H of the FY 2021 Consolidated Appropriations Act (P.L. 116-

260).

9 The House allowance reflects floor action on the FY 2022 Consolidated Appropriations Act; the Senate allowance 

reflects the Chairman’s mark; and the Appropriation reflects the annualized continuing resolution level.
REHABILITATION SERVICES

9

Significant Items in FY 2022 Appropriations Reports

Item description

Senate: Disability Innovation Fund [DIF].—The Committee recommendation continues 

authority within the DIF that allows the Department to use unallocated funding, in 

consultation with the Department of Labor, for competitive grants to improve 

opportunities for competitive integrated employment, as defined in the 

Rehabilitation Act, for individuals with disabilities. The Committee directs the 

Department to continue to brief the Committees on Appropriations; the 

Committee on Health, Education, Labor, and Pensions of the Senate; the 

Committee on Education and Labor of the House of Representatives; the 

Committee on Finance of the Senate; and the Committee on Ways and Means of 

the House of Representatives at least every 6 months with updates on 

implementation of this initiative.

Response: The Department will comply with this directive. 
REHABILITATION SERVICES

10

Summary of Request

People with disabilities represent a vital and integral part of our society. Providing workers with 

disabilities the support and the opportunity to acquire the skills that they need for in-demand 

jobs and careers is critical to growing our economy, ensuring that everyone who works hard is 

rewarded, and building a strong middle class. To help achieve this goal, the Rehabilitation Act 

seeks to empower individuals with disabilities to maximize employment, economic selfsufficiency, independence, and inclusion and integration into society. The Rehabilitation Act was 

reauthorized in 2014 under Title IV of the Workforce Innovation and Opportunity Act (WIOA), 

which supports the Nation’s workforce development system through programs and investments 

in employment services, workforce development, adult education, and vocational rehabilitation. 

WIOA expired in fiscal year 2020 and the one-year GEPA extension ended in fiscal year 2021; 

authorization for all programs within the Rehabilitation Services account for FY 2023 is 

requested through appropriations language.

The Administration’s 2023 request for the Rehabilitation Services account provides $4.1 billion 

in mandatory and discretionary funding to support comprehensive and coordinated vocational 

rehabilitation for individuals with disabilities through direct services, training and technical 

assistance, and model demonstrations, as well as direct services to help older individuals who 

are blind live more independently. 

The $3.9 billion mandatory request for the Vocational Rehabilitation (VR) State Grants program 

includes an increase of $230.6 million over the fiscal year 2022 annualized CR based on the 

fiscal year 2021 appropriation, consistent with the inflation increase specified in the authorizing 

statute, to assist States and Tribal governments in increasing the participation of individuals with 

disabilities in the workforce. WIOA strengthened the alignment of the VR program with other 

components of the workforce development system to promote a coordinated and streamlined 

system. As an integral partner in this system, the VR program is the primary Federal vehicle for 

assisting individuals with disabilities, particularly individuals with the most significant disabilities, 

to prepare for, obtain, retain, or advance in high quality employment.

The request includes an increase of $35 million for the Demonstration and training program to

support a new pilot program aimed at improving employment outcomes for VR participants and 

related technical assistance and evaluation, and provide additional support for the Parent 

Information and Training program. 

The request includes an increase of $1.5 million for the Helen Keller National Center for DeafBlind Youths and Adults to provide services to deaf-blind individuals and their families, as well 

as technical assistance to local service providers. 

The request also includes $500,000 in new funding for the Randolph-Sheppard Vending Facility 

program to support a competitively awarded center that would provide training and technical 

assistance to State licensing agencies and blind vendors. 

The request would maintain support for all other programs in the Rehabilitation Services 

account at the 2022 annualized CR level based on the fiscal year 2021 appropriation.
REHABILITATION SERVICES

11

Vocational rehabilitation State grants

(Rehabilitation Act of 1973, Title I, Parts A, B (Sections 110, 111 and 113), and C)

(dollars in thousands)

FY 2023 Authorization: To be determined 1

Budget Authority: 

2022 Estimate 2023 Request Change 

State grants $3,667,318 $3,896,616 +$229,298

Set-aside for American Indian Vocational 

Rehabilitation Services

 51,803 53,091 1,288

Total2 3,719,121 3,949,707 +230,586

PROGRAM DESCRIPTION

The Vocational Rehabilitation (VR) State Grants program supports formula grants to 56 States, 

including the District of Columbia, Puerto Rico, Guam, American Samoa, the Virgin Islands, and 

the Commonwealth of the Northern Mariana Islands, to provide individuals with disabilities,

particularly individuals with the most significant disabilities, the services they need to obtain 

competitive integrated employment. Grant funds are administered by VR agencies designated 

by each State. There is currently a total of 78 State VR agencies. Thirty-four States and 

Territories operate a “combined” agency serving all disability categories. Twenty-two States 

operate a separate agency for individuals who are blind or visually impaired and a “general” 

agency for all other disability categories. The authorizing legislation requires the program to be 

funded at no less than the prior year level, increased by the percentage change in the 

Consumer Price Index for All Urban Consumers.

Workforce Development System

The VR State Grants program was reauthorized in July 2014 in Title IV of the Workforce 

Innovation and Opportunity Act (WIOA), which supports a comprehensive, accessible, highquality workforce development system that includes programs and investments in employment 

services, workforce development, adult education, and vocational rehabilitation. The workforce 

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations 

action. The authorizing statute specifies that the amount to be appropriated for a fiscal year be at least the level of the 

prior fiscal year increased by the 12-month percentage change (from October to October) in the Consumer Price 

Index for All Urban Consumers (CPIU). The authorizing statute also requires that not less than 1.0 percent, and not 

more than 1.5 percent, of the appropriation for each fiscal year for VR State Grants be set aside for Grants for 

American Indian Vocational Rehabilitation Services.

2 The levels shown are the mandatory amounts for the VR State Grants program and do not include the 5.7 percent 

sequester reduction for mandatory programs that took effect on October 1, 2020, pursuant to the Budget Control Act 

of 2011. The reduced levels reflecting the 5.7 percent sequester are $3,507,131,103 for fiscal year 2022, a reduction 

of $212.0 million from the mandatory level; and $3,724,573,701 for fiscal year 2023, a reduction of $225.1 million 

from the mandatory level.
REHABILITATION SERVICES

Vocational rehabilitation State grants

12

development system is aligned with regional economic development strategies to meet the 

needs of local and regional employers. WIOA’s one-stop system, established under 

Section 121(e) of WIOA, operates through a network of centers in each State; the goal of the 

one-stop system is to provide a variety of services to assist both individuals in meeting their 

employment and training needs, as well as employers in recruiting a qualified workforce. 

The VR State Grants program is a core program and a required partner in the one-stop service 

delivery system. It is governed by provisions in both the Rehabilitation Act (Title IV of WIOA) 

and Title I of WIOA. For a State to be eligible to receive Federal funds for the core programs of 

WIOA (Adult, Dislocated Worker, and Youth Formula programs (Title I of WIOA); the Adult 

Education and Family Literacy Act program (Title II of WIOA); the Wagner-Peyser Employment 

Service program (Title III of WIOA); and the VR program (Title IV of WIOA)), the Governor must 

submit a unified State plan including the VR plan. After approval of the VR portion of the plan by 

the Commissioner of the Rehabilitation Services Administration (RSA), the unified State plan is 

subject to the approval of both the Secretaries of Labor and Education. 

VR agencies provide a wide range of services designed to help individuals with disabilities 

prepare for and engage in competitive integrated employment. In supporting individuals in 

achieving their career goals, VR agencies are encouraged to support the pursuit of 

postsecondary education and vocational training leading to recognized credentials to enable 

individuals with disabilities to advance in high-demand, high quality careers and maximize their 

self-sufficiency and independence. Individuals who are eligible for assistance include those with 

a physical or mental impairment that results in a substantial impediment to employment and 

who require and can benefit from VR services to achieve and maximize employment and career 

goals. Program services are tailored to the specific needs of the individual through an 

individualized plan for employment (IPE). The VR program provides a variety of services, such 

as vocational evaluation, counseling, education, vocational training, job placement, rehabilitation 

technology, supported employment services, and treatment for physical disabilities or mental 

health support, that may reasonably be expected to reduce or eliminate one or more barriers to 

employment. Priority is given to serving individuals with the most significant disabilities. Preemployment transition services may be provided to students with disabilities who are in a 

secondary, postsecondary, or other recognized education program and are eligible or potentially 

eligible for VR services. 

VR State Grants help cover the cost of direct services and program administration. The State 

matching requirement is 21.3 percent, except for the cost of construction of a facility for 

community rehabilitation program purposes, in which case the non-Federal share is 50 percent. 

If a State has met all matching requirements for the fiscal year in which funds were 

appropriated, the State may carry over unobligated Federal funds for an additional year. States 

must also maintain non-Federal expenditures at no less than the level spent during the second 

preceding fiscal year. Amendments made by WIOA to Section 111 of the Rehabilitation Act 

allow the Department to reduce a State’s VR grant by the amount of a Maintenance of Effort 

(MOE) deficit from any previous fiscal year. 

The Department allocates funds to States through a formula that takes into account population 

and per capita income. Each State is required to reserve and expend at least 15 percent of its 

Federal VR State Grant allotment to support pre-employment transition services to all students 
REHABILITATION SERVICES

Vocational rehabilitation State grants

13

with disabilities in need of such services who are eligible or potentially eligible for services under 

Section 113 of the Rehabilitation Act. Each State is also required to reserve and use a portion of 

the Federal funds received under the VR State Grants program for innovation and expansion 

activities authorized in Section 101(a)(18).

Disability Innovation Fund 

Beginning with the fiscal year 2012 appropriation, Congress provided authority to use amounts 

that remained available following the reallotment of funds to States under Section 110(b)(2) of 

the Rehabilitation Act to conduct innovative activities aimed at improving outcomes for 

individuals with disabilities (“Disability Innovation Fund” or DIF). Absent authority provided in 

appropriations language, these annual funds would lapse and no longer be available for Federal 

obligation. The Department funded a variety of DIF projects in prior years, including projects to: 

improve the education and employment outcomes of children receiving Supplemental Security 

Income and their families; ensure that individuals with disabilities can access web-based 

computer information with personalized accommodations at home, school, or the workplace; 

and develop work-based learning transition demonstrations for students with disabilities. 

In fiscal year 2020, $130.1 million remained available following the reallotment of funds to 

States. Section 318 of the Consolidated Appropriations Act, 2021, directed the Department to 

use $20 million of the remaining fiscal year 2020 funds for one-time financial relief and 

restoration grants consistent with the purposes of the Randolph Sheppard Act. The Randolph 

Sheppard Act authorizes the Vending Facility program, which provides persons who are blind 

with remunerative employment and self-support through the operation of vending facilities on 

federal and other property. These funds will be used primarily to offset losses of blind vendors in 

fiscal year 2020. 

The Department used the remaining fiscal year 2020 funds to provide $59,000 in supplemental 

awards to Transition Work-Based Learning DIF projects and approximately $110 million in new 

awards through the Career Advancement Initiative Model Demonstration DIF competition. This 

competition funded a multi-site model demonstration project designed to assist State VR 

agencies, in partnership with other entities, to develop career pathways that are aimed at 

helping individuals with disabilities advance in their careers or change to high-demand, highquality careers (see additional information in the Program Performance Information section 

below). 

In fiscal year 2021, $298.8 million was relinquished by States and $121.4 million was 

redistributed through the reallotment process, leaving $177.4 million available for DIF projects in 

fiscal year 2022. The Department intends to fund multiple innovative model demonstration 

projects to assist individuals with disabilities currently employed in, or contemplating, 

subminimum wage employment to engage with VR agencies so they may obtain competitive 

integrated employment.

Additional information about these projects is provided in the Program Performance Information 

section of this request.
REHABILITATION SERVICES

Vocational rehabilitation State grants

14

American Indian Vocational Rehabilitation Services 

The Rehabilitation Act requires the Department to reserve between 1.0 percent and 1.5 percent 

of the funds appropriated for the VR State grants program for the American Indian Vocational 

Rehabilitation Services (AIVRS) program (Section 121 of the Act), which pays part of the costs 

of VR services for American Indians who are individuals with disabilities residing on or near a 

reservation. The Department also must use between 1.8 percent and 2.0 percent of AIVRS 

funds to provide training and technical assistance to governing bodies of Indian tribes located 

on Federal and State reservations.

Funding levels for the past 5 fiscal years were as follows:

Fiscal Year (dollars in thousands)1

2018 $3,225,038

2019 3,303,627

2020 3,397,048

2021 3,465,545

2022 Estimate 3,507,131

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $3.9 billion for the VR State Grants programs, 

$230.6 million more than a fiscal year 2022 annualized CR based on the fiscal year 2021

appropriation, to help States and Tribal governments increase the participation of individuals 

with disabilities in the workforce. The fiscal year 2023 request reflects the current estimate of 

the mandatory amount required by the authorizing statute. Of the amount requested, 

$53.1 million, or 1.4%, of the funds for the VR State Grants program will be set aside to support 

grants under the AIVRS program. 

Individuals with disabilities are a vital and integral part of American society; however, some face 

particular barriers to obtaining employment. Although many people with disabilities find and 

retain jobs, the overall unemployment rate for people with disabilities is very high. For example, 

2021 employment data from the U.S. Bureau of Labor Statistics show that of those aged 16-64 

(i.e., U.S. working age population), people with disabilities were significantly less likely to be 

employed (either full-time or part-time) than people without such disabilities (31.4 percent 

versus 72.5 percent, respectively). Of those people with disabilities who were employed, 29

percent usually worked part-time (less than 35 hours per week) compared to 16 percent of 

people without such disabilities.2

The VR State Grants program is a critical component of the WIOA workforce development 

system and continues to be the primary Federal vehicle for assisting individuals with 

disabilities—particularly individuals with the most significant disabilities—to obtain 

1 The amounts shown for 2018 through 2022 reflect the sequester reduction for mandatory programs pursuant to the 

Budget Control Act of 2011 (P.L. 112-25). The mandatory appropriation was reduced by 6.6 percent in 2018, 6.2 

percent in 2019, 5.9 percent in 2020, 5.7 percent in 2021, and 5.7 percent in 2022. 2 https://www.bls.gov/news.release/disabl.htm
REHABILITATION SERVICES

Vocational rehabilitation State grants

15

competitive integrated employment. Nationally, there are approximately 1.5 million 

individuals with disabilities, including students with disabilities, in various phases of the 

vocational rehabilitation process, about two-thirds of whom received VR services under an 

individualized plan for employment (IPE) during fiscal year 2021. Approximately 94 percent 

of these individuals were individuals with significant disabilities.

Examples of VR services include support for work-based learning experiences and 

postsecondary training that offer youth and adults with disabilities, including those with the 

most significant disabilities, a pathway to the achievement of competitive integrated 

employment. These VR services ensure that individuals with disabilities have an equal 

opportunity to participate in the workforce in both traditional and high-growth industries. 

State VR agencies play an important role in ensuring that individuals with disabilities can 

successfully access and participate in such programs. For example, State VR agencies can 

provide a variety of services and supports that are beneficial to both eligible individuals with 

disabilities and employers including vocational assessment, career exploration, job readiness 

training, assistive technology services and devices, job accommodations, tuition support, job 

coaching, job restructuring, and/or post-employment services, as necessary.

The Administration is requesting appropriations language that would allow RSA to spread the 

maintenance of effort (MOE) reduction required under Sec. 111(a)(2)(B) of the Rehabilitation 

Act across multiple fiscal years. This flexibility would enable RSA to enforce the MOE 

requirement while also ensuring that significant reductions due to MOE violations do not 

significantly limit a State VR agency’s ability to provide critical VR services in any single fiscal 

year. 

Disability Innovation Fund 

The Administration continues to request authority to use funds that remain available following 

reallotment for innovative activities aimed at improving outcomes for individuals with disabilities. 

Additionally, the request includes bill language that would allow the Department to reserve up to 

15 percent of these funds for evaluation of, and technical assistance for, DIF projects. 

American Indian Vocational Rehabilitation Services

The request would provide $53.1 million for continuation awards under the American Indian 

Vocational Rehabilitation Services (AIVRS) program, allowing the Department to support 96

tribal VR projects and one training and technical assistance center. These funds enable Tribal 

governments to provide a program of VR services in a culturally relevant manner to American 

Indians with disabilities residing on or near reservations. The Department plans to reserve 

1.9 percent of these funds to support training and technical assistance to governing bodies of 

Indian tribes located on Federal and State reservations.
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PROGRAM OUTPUT MEASURES

Vocational rehabilitation State grants

Output Measures1 2021 2022 2023

Individuals receiving VR services under an IPE 815,718 850,000 850,000

Individuals with significant disabilities as a percent of 

all individuals receiving services 95% 94% 94%

Eligible individuals whose case files were closed 324,092 425,000 425,000

Individuals whose cases were closed and received 

VR services 258,974 325,000 325,000

Individuals achieving an employment outcome 112,445 120,000 120,000

Individuals with significant disabilities as a percent of 

individuals achieving employment outcomes 92% 94% 94%

American Indian vocational rehabilitation services

(dollars in thousands)

Output Measures 2021 2022 footnote2023 Footnote

Project funding:

Project funding: New awards $27,102 $5,369 0

Project funding: Continuation awards 22,515 $45,200 $52,078

Project funding: Technical assistancefunds 1,013 1,013 1,013

Project funding: Peer review of new awards’ applications 20 10 0

Total 50,650 51,592 53,091

Number of AIVRS projects:

Number of New projects – AIVRS 45 8 0

Number of Continuation projects – AIVRS 44 89 97

Total projects 89 97 97

1 The output measures data for Vocational rehabilitation State grants for fiscal years 2022 and 2023 are estimates 

based on prior year data.
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PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program. 

VR State Grants 

WIOA requires the core programs of the workforce development system, including the State VR 

Services program, to meet common performance accountability requirements, including the 

submission of common performance data to demonstrate that specified performance levels are 

achieved. Required data for the core programs include those related to the primary performance 

indicators, participant counts and costs, and participants’ barriers to employment. Data 

definitions were changed by WIOA, limiting the validity of comparisons to performance data 

reported under the prior law. For fiscal years 2015 through 2020, the Department reported 

interim measures that were aligned with the WIOA performance indicators as State VR 

agencies continued to collect and report WIOA data. 

The Department has developed new performance measures that mirror three of the WIOA 

performance indicators and will report baseline data for 2021, 2022 and 2023 before 

establishing targets. Performance data reported in 2021 are based on data collected under the 

RSA-911 from July 1, 2020 to June 30, 2021. 

These performance measures do not include data for Guam, American Samoa, the 

Commonwealth of the Northern Mariana Islands, or the Virgin Islands because the territories are 

not a part of the performance accountability system set forth in section 116 of WIOA.

Goal: Individuals with disabilities served by the VR program will achieve high quality 

employment outcomes and continue to work following their exit from the program. 

Objective: Ensure that individuals with disabilities, who are participating in an education or 

training program, are making progress towards earning a recognized postsecondary credential 

or achieving employment. 
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Measure: The percentage of VR program participants who achieved measurable skill gains, in 

accordance with WIOA, during the program year.

Year Target Actual

2021 Baseline 43.3%

2022

2023

Objective: Ensure that individuals with disabilities who exit the VR program with competitive 

integrated employment will be capable of maintaining employment as a result of the VR services 

they received. 

Measure: The percentage of VR program participants who were employed during the second 

quarter after exit from the program. 

Year Target Actual

2021 Baseline 48.6%

2022

2023

Measure: The percentage of VR program participants who were employed during the fourth 

quarter after exit from the program. 

Year Target Actual

2021 Baseline 44.0%

2022

2023

American Indian Vocational Rehabilitation Services

WIOA does not require the use of common performance measures and data for the AIVRS 

program, and the Department continues to use previously established performance and 

efficiency measures for this program.

During fiscal year 2019, the economy and labor markets on American Indian reservations began 

a significant decline that reduced viable employment opportunities for American Indians with 

disabilities. As a result of this decline, as well as the COVID-19 pandemic that began during 

fiscal year 2020, the Department anticipates that AIVRS program performance data will 

continue to show a downward trend in fiscal years 2021, 2022 and 2023. 

Goal: To improve employment outcomes of American Indians with disabilities who live 

on or near reservations by providing effective tribal vocational rehabilitation services.
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Objective: Ensure that eligible American Indians with disabilities receive vocational 

rehabilitation services and achieve employment outcomes consistent with their particular 

strengths, resources, abilities, capabilities, and interests.

Measure: The percentage of individuals who leave the program with an employment outcome, after 

receiving services under an individualized plan for employment.

Year Target Actual

2018 67% 68%

2019 67 58

2020 68 57

2021 68

2022 68

2023 68

Additional information: Data for fiscal year 2020 show that 1,557, or 57.0 percent, of the 

2,733 individuals with disabilities who exited the program after receiving services in that year 

achieved an employment outcome. Fiscal year 2021 data will be available in summer 2022.

Efficiency Measures

Objective: Ensure that AIVRS projects demonstrate effective fiscal management. 

Measure: The percentage of AIVRS projects that demonstrate an average annual cost per 

employment outcome of no more than $35,000.

Year Target Actual

2018 76% 84%

2019 76 59

2020 76 60

2021 76

2022 76

2023 76

Additional information: The cost per employment outcome varied significantly across projects, 

ranging from $6,379 to $260,912. The median annual cost per employment outcome for the 88 

projects was $30,609 in fiscal year 2020, while the mean annual cost per employment outcome

was $41,790 due to a small number of project outliers.
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Measure: The percentage of AIVRS projects that demonstrate an average annual cost of 

services per participant of no more than $10,000.

Year Target Actual

2018 80% 73%

2019 75 66

2020 75 64

2021 75

2022 75

2023 75

Additional information: The cost per participant varied significantly across projects, ranging 

from $2,126 to $270,694. The median annual cost per participant for the 88 projects was $7,554

in fiscal year 2020, while the mean annual cost per participant was $13,930 due to a small 

number of project outliers. 

Disability Innovation Fund 

Promoting Readiness of Minors in Social Security Income 

In fiscal year 2013, VR funds remaining from the 2012 appropriation were used to award 5-year 

grants to five States and a consortium of six States for model demonstration projects (MDPs) 

under the Promoting Readiness of Minors in Social Security Income (PROMISE) program. 

PROMISE was a joint initiative with the Social Security Administration (SSA) and the 

Departments of Health and Human Services (HHS) and Labor. Under the PROMISE program, 

States developed partnerships and implemented interventions designed to improve the 

provision and coordination of services and supports for children who received SSI and their 

families, and achieve outcomes leading to increased economic self-sufficiency and a reduction 

in their dependence on SSI payments. 

In fiscal year 2014, the Department used $92.5 million in unobligated VR funds that became 

available from the fiscal year 2013 appropriation to cover continuation costs of the PROMISE 

MDPs, as well as the costs of the PROMISE technical assistance center grant. The Department 

provided an additional $17.2 million in supplemental awards in fiscal year 2015 using 

unobligated fiscal year 2014 VR funds. 

By the end of the recruitment period in April 2016, all six projects met their project recruitment 

goals, with a total of 13,444 participants enrolled across the six projects. Approximately one-half 

of the children and families enrolled were placed in the treatment group and received project 

services. Program participants in the intervention group received services including paid 

competitive employment opportunities. Additional information can be found on the PROMISE 

technical assistance center’s website.1

SSA, in collaboration with the Department, has contracted for a rigorously designed national 

evaluation of PROMISE. A 2019 interim services and impact report presents the estimated 

1 http://www.promisetacenter.org/.
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impacts of the six PROMISE programs on outcomes related to service receipt, education, 

employment, expectations, health insurance coverage, income, and youth self-determination, 

and on participation in SSA and other public assistance programs for youth and their families. 

The impacts on the primary outcomes were measured at 18 months after youth enrolled in the 

PROMISE evaluation. This report and others are available on SSA’s website.1 Key findings, in 

addition to the report, are provided on Mathematica Policy Research’s website.2 Specifically, the 

interim services and impact report found:

• Each of the six programs increased youth’s receipt of transition services, youth’s paid 

employment, and family member receipt of support services.

• None of the programs had an impact on the number of hours of key services that youth 

and families received, but four programs increased the likelihood that youth applied for 

VR services. 

• Each program had a positive impact on youth’s receipt of job-related training or training 

credentials. 

• Four of the programs had positive impacts on youth’s total income from earnings and 

SSA payments. 

• Only one of the programs reduced youth’s receipt of any SSA payments and increased 

parents’ education and job-related training. 

• None of the programs had a desirable impact on youth’s self-determination and 

expectations or youth’s reliance on Medicaid, nor on parents’ total income.

A final impact report is due to be released in fiscal year 2022. The evaluation contractor has 

published multiple PROMISE special topics reports and articles, including most recently, 

Insights About the Transition System for SSI Youth from the National Evaluation of Promoting 

Readiness of Minors in SSI3 and the Family Service Use and Its Relationship with Youth 

Outcomes.4

Automated Personalization Computing Project 

In fiscal year 2015, the Department used approximately $20 million of unobligated fiscal year 

2014 VR funds to fund an innovative Automated Personalization Computing Project (APCP). 

The goal of the APCP was to ensure that individuals with disabilities could access computer 

information with personalized accommodations whether at home, school, or the workplace, as 

long as there is web access. Examples of such personalization could include font size or color, 

line-spacing, text-to-speech functionality, overall cognitive access (such as site simplification, or 

simple language), and volume levels of audio features. The project developed an information 

technology infrastructure on which Internet-capable computers automatically run assistive 

technology solutions customized for individual users with disabilities according to their 

preferences. The Department partnered with the National Institute on Disability, Independent 

1 Reports documenting PROMISE program implementation and service delivery experiences are available at

https://www.ssa.gov/disabilityresearch/promise.htm. 2 These reports will be available at https://www.mathematica-mpr.com/our-publications-andfindings/projects/evaluate-the-promoting-readiness-of-minors-in-supplemental-security-income-promise-grants. 3 https://www.mathematica.org/our-publications-and-findings/publications/insights-about-the-transition-system-for-ssiyouth-from-the-national-evaluation-of-promoting 4 https://www.mathematica.org/our-publications-and-findings/publications/promoting-readiness-of-minors-insupplemental-security-income-family-service-use
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Living, and Rehabilitation Research which is administered by the Administration for Community 

Living in HHS, the National Institute of Standards and Technology, and the Access Board, 

among others, in overseeing this initiative.

During fiscal year 2018, the APCP began transitioning from pre-pilot testing to pilot work with 

selected American Job Centers; in fiscal year 2019, the APCP pilot tested the capabilities of the 

software’s automatic transfer of preference settings to determine the role it can play in 

supporting transition of individuals from high school to the community college, and from the 

community college to job settings. While the COVID-19 pandemic disrupted the grantee’s plans 

to implement many final year activities in fiscal year 2020, such as testing and disseminating its 

software, section 153 of the Continuing Appropriations Act, 2021 and Other Extensions Act

extended the availability of funds for APCP through September 30, 2021, which enabled the 

grantee to complete accessibility testing on multiple computer platforms, conduct disability 

sector outreach and dissemination, and implement its sustainability plan to ensure that the 

project would continue to be available after the Federal award ended. Additional information 

about the final product, Morphic Basic, which is free to use, is available at https://morphic.org/.

Transition Work-Based Learning Demonstrations 

Students with disabilities often have lower high school graduation rates, lower postsecondary 

enrollment rates, and higher unemployment rates than peers without disabilities.1 To help 

address this problem, WIOA expanded the available services as well as the population of 

students with disabilities who may receive these services under the VR program. In particular, 

States are required to reserve 15 percent of their VR allotment to provide pre-employment 

transition services to students with disabilities who are eligible or potentially eligible for VR 

services. These pre-employment transition services include job exploration counseling, 

workplace readiness training, work-based learning experiences, counseling on opportunities for 

enrollment in comprehensive transition or postsecondary educational programs at institutions of 

higher education, and instruction in self-advocacy. Research indicates that work experiences for 

youth with disabilities, especially paid employment, can be effective in influencing post-school 

employment. However, strategies and interventions that are based on the most promising 

evidence of effectiveness in providing work-based learning experiences are needed.

In fiscal year 2016, the Department awarded 5-year demonstration projects to five State VR 

agencies using unobligated fiscal year 2015 VR funds. The goal of these projects is to identify 

and demonstrate work-based learning interventions for students with disabilities that are 

supported by research and are rigorously evaluated.

A brief description of the five projects is provided below.

• The Maryland Work-Based Learning Collaborative (Way2Work Maryland) project worked to 

improve career outcomes for youth with disabilities by incorporating early referral to the VR 

agency, work-based learning experiences, integrated employment, and collaboration among 

1 Luecking, D.M., & Luecking, R.G. (2015, May). Translating Research Into a Seamless Transition Model. Career 

Development and Transition for Exceptional Individuals, 38(1), 4-13.
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the Maryland Division of Rehabilitation Services, local educational agencies, community 

rehabilitation programs, America’s job centers, and employers. The model included a 

randomized control design implemented across eight diverse school districts. 

(https://www.way2workmd.net)

• Vermont’s Linking Learning to Careers project assisted students with disabilities to transition 

to early career success by connecting community college career consultants with VR 

services and school programming. These connections were enhanced by the provision of a 

targeted continuum of work-based learning opportunities, statewide assistive technology 

specialists, college mentors, expanded postsecondary college courses during high school, 

and additional transportation funding and training. This model included a quasi-experimental 

design. (https://vocrehab.vermont.gov/linking-learning-careers-llc)

• The Massachusetts Transition Pathway Services project provided a coordinated set of 

services to improve career and academic planning skills so that high school students with 

disabilities would be successful in achieving competitive integrated employment and postsecondary outcomes upon completion of their secondary education. The project and its 

community partners, including more than a dozen local education agencies, provided workbased learning experiences and a menu of services to students. Through a person-centered 

collaborative team-based approach, students’ career goals were planned and supported. 

The model included a quasi-experimental design. (https://www.mass.gov/servicedetails/transition-pathway-services)

• Maine’s Transition Work-Based Learning Model project partnered with Jobs for Maine 

Graduates (JMG), the Institute for Community Inclusion at the University of Massachusetts 

Boston, American Institutes for Research, and the Council for Administrators of Vocational 

Rehabilitation to evaluate two innovative interventions using a progressive employment 

model. The project worked to expand employer relationships and align its dual customer 

community-based strategy with enhanced JMG programs for students with disabilities. The 

model included a quasi-experimental design. (https://www.explorevr.org/progressiveemployment-maine-transition-work-based-learning-model) 

• The California Career Innovations project incorporated a career-relevant focus in the 

attainment of competitive integrated employment (CIE) and post-secondary education for 

students with disabilities with the goal of increasing economic self-sufficiency, work-based 

learning experiences, and CIE for students with disabilities. The program provided paid and 

volunteer career-focused work experiences in four California regions to help students with 

disabilities gain entrance into post-secondary education and/or competitive integrated 

employment. The program also included basic life skills training to assist with job readiness, 

such as computer literacy, and organization and communication skills. The model included a 

randomized control design. (https://www.ci-california.org)

Due to the COVID-19 pandemic, these projects had to pivot from face-to-face work-based 

learning experiences to virtual work-based learning experiences, which required additional staff 

time and resources. To help offset these costs, the Department provided three of the projects 

with a total of $59,000 in supplemental funding in fiscal year 2021 from the unobligated fiscal 

year 2020 VR funds, which were used to complete the final performance and financial reports, 

thereby allowing the three grantees additional time and resources to carry out the work of the 

grants. 
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Career Advancement Initiative Model Demonstration Project

In fiscal year 2021, VR funds remaining from the 2020 appropriation were used to award 5-year 

grants to fund eight multi-site model demonstration projects designed to assist State VR 

agencies, in partnership with other entities—such as employers, community colleges and 

postsecondary institutions, entities that make up the workforce development systems, entities 

that provide apprenticeships and pre-apprenticeships, comprehensive rehabilitation centers, 

local or State educational agencies, and providers or other Federal or State agencies—to 

develop career pathways that are aimed at helping individuals with disabilities advance in their 

careers or change to high-demand, high-quality careers. Projects funded under this competition 

will help VR-eligible individuals with disabilities, including previously served VR participants in 

employment who re-enter the VR program, to:

• Advance in high-demand, high-quality careers such as science, technology, 

engineering, and math (STEM) fields, including computer science; 

• Enter career pathways in industry-driven sectors through pre-apprenticeships and 

apprenticeship programs;

• Improve and maximize competitive integrated employment outcomes, economic selfsufficiency, independence, and inclusion in society; and

• Reduce reliance on public benefits (e.g., Supplemental Security Income (SSI)/Social 

Security Disability Insurance (SSDI), and/or Temporary Assistance for Needy Families 

(TANF), and State or local benefits). 
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Client assistance State grants

(Rehabilitation Act of 1973, Title I, Section 112)

(dollars in thousands)

FY 2023 Authorization: To be determined 1

Budget Authority: 

2022 Estimate 2023 Request Change 

$13,000 $13,000 0

PROGRAM DESCRIPTION

The Client Assistance Program (CAP) provides grants to States for services to assist eligible 

individuals and applicants for the Vocational Rehabilitation (VR) State Grants program and other 

programs, projects, and services funded under the Rehabilitation Act (the Act). CAP focuses on 

promoting understanding of the rehabilitation services and benefits available under the Act, and 

advising eligible individuals of their rights and responsibilities in connection with those benefits. 

The program also offers eligible individuals and applicants a variety of other kinds of assistance, 

including individual or systemic advocacy, pursuit of legal and administrative remedies, and 

assistance and advocacy in pursuing legal and administrative remedies to ensure the protection 

of their rights. State VR agencies must operate a CAP in order to receive VR State grant funds, 

and are required to inform VR consumers about the services available from the CAP and how to 

contact the CAP. 

Each Governor designates a public or private agency to operate a CAP. This designated 

agency must be independent of any agency that provides services under the Act, except in 

cases where the Act “grandfathered” agencies providing such services under the Act. If one of 

these “grandfathered” agencies should be restructured, the Governor is required to re-designate 

the CAP to an agency that does not provide services under the Act. Currently 43 CAPs are 

operated by independent private or non-profit organizations, 8 are operated by external State 

agencies, and 6 are operated by the State VR agency. 

Allocations are based on population (using the most recent estimates published by the U.S. 

Census Bureau), with a minimum allotment of $100,000 to each of the 50 States, D.C., and 

Puerto Rico and $45,000 to each of the outlying areas. When the appropriation increases, the 

Act also requires the Department to increase the minimum allotments for States and outlying 

areas by an amount not greater than the percentage increase in the appropriation. 

The Workforce Innovation and Opportunity Act also requires that funds be set aside under this 

program for two activities before awarding grants to eligible States and outlying areas with the 

remaining funds. The first set-aside reserves funds, at the same amount as provided to outlying 

areas, for an award to the eligible system established under the Developmental Disabilities 

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations 

action.
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Assistance and Bill of Rights Act to serve the American Indian consortium. In addition, if the 

appropriation rises to at least $14 million, the Department must set aside between 1.8 percent 

and 2.2 percent of the amount appropriated for training and technical assistance to CAPs 

established under this program. The Department currently provides such technical assistance to 

CAPs through the Rehabilitation Training program.

Funding levels for the past 5 fiscal years were as follows:

Fiscal Year (dollars in thousands)

2018 $13,000

2019 13,000

2020 13,000

2021 13,000

2022 Estimate 13,000

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $13 million for CAP, level with a fiscal year 

2022 annualized CR based on the fiscal year 2021 appropriation. CAPs promote understanding 

of the rehabilitation services and benefits available under the Rehabilitation Act and advise 

applicants and individuals who have been determined eligible for such services of their rights 

and responsibilities. The request will help ensure that individuals with disabilities who are 

applying for or receiving services funded under the Rehabilitation Act receive appropriate 

services and have access to administrative, legal, and other appropriate remedies needed to 

protect their rights.

Data collected by the Department’s Rehabilitation Services Administration (RSA) for fiscal year

2021 from the most recently available RSA Annual Client Assistance Program Report (RSA227) show that, nationwide, CAPs responded to 15,306 requests for information and referral 

(I&R). While the average number of I&R requests that States responded to was 268, the median 

number was 60 because of the significant range in the number of I&R requests reported by 

CAPs. Approximately 39 percent of all I&R requests were for information regarding the VR 

program. The remaining requests were in reference to independent living programs, the 

Americans with Disabilities Act, CAP, and other related programs. 

In addition, CAPs provided extensive services, such as assisting and advocating on behalf of a 

client, to 3,009 individuals in fiscal year 2021. Approximately 89 percent of the cases in which 

extensive services were provided by the CAP involved applicants for, or recipients of, services 

from the VR program who needed assistance related to the VR process or delivery of VR 

services. Of the 2,458 cases closed in fiscal year 2021, 973 cases (or 39 percent) were 

resolved by explaining the controlling policies to the individual; 497 cases (20 percent) resulted 

in the development or implementation of an individualized plan for employment (IPE); and 375

cases (15 percent) resulted in the reestablishment of communication between the individuals 

and other parties. The remaining closed cases focused on outcomes such as completing an 

application for services, expediting an eligibility determination, helping the individual participate 

in evaluation, assigning a new counselor or office to the individual, identifying alternative 
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resources for the individual, or filing a complaint. Of the cases closed, 78 percent were resolved 

in the individual’s favor.

Specific examples of CAP activities are described below. Funds requested in fiscal year 2022

would support similar activities. 

• In Illinois, a client had participated in a Division of Rehabilitative Services-supported high 

school transition program and was ready to transition to adult VR services. However, the VR 

counselor discouraged the legal guardian and client from pursuing VR services due to the 

client’s significant disabilities. The legal guardian and client contacted CAP. CAP 

investigated the complaint and contacted the VR counselor to discuss the parent’s concerns

and explore types of VR services from which the client could benefit. As a result of the

discussion, the VR counselor scheduled a meeting with the legal guardian and client and 

determined the client would be a good fit for customized employment. The customer was 

found eligible for VR services and an IPE was developed. The client was referred to a 

community rehabilitation provider for services and is currently working towards employment.

• In New Jersey, CAP intervened on behalf of a 28-year-old female diagnosed with a hearing 

impairment. The client contacted CAP and reported experiencing significant difficulties 

accessing a range of VR services, including communication technology, vocational training, 

and supported employment services. CAP investigated the concerns reported by reviewing 

documentation and attending meetings with the client at the VR agency. Despite CAP’s 

advocacy, the VR agency continued to delay the provision of appropriate services. Based on 

these delays, CAP represented the client at an administrative review. As a result of the 

administrative review, the VR agency agreed to provide the client with a specialized 

assessment to determine technological communication needs and sponsor the client to 

attend a computer training course. The VR agency also agreed to provide the client with job 

search services after she completed computer training.

PROGRAM OUTPUT MEASURES

Output Measures1 2021 2022 2023

Information inquiries/referrals 15,306 27,000 27,000

Individuals provided case services 3,009 3,800 3,800

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

1 Fiscal year 2021 data remain low due to the coronavirus pandemic; however RSA anticipates that the number of 

information inquiries and referrals, and individuals provided case services, will quickly increase as the pandemic 

recedes. Data for fiscal years 2022 and 2023 are projected from actual final data reported for fiscal years 2017

through 2021.
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the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program. 

Goal: To provide assistance and information to help individuals with disabilities secure 

the benefits available under the Vocational Rehabilitation State Grants program and 

other programs funded under the Rehabilitation Act of 1973, as amended.

Objective: Accurately identify problem areas requiring systemic change and engage in systemic 

activity to improve services under the Rehabilitation Act.

Measure: The percentage of CAPs that reported that their systemic advocacy resulted in 

changes in policy or practice.

Year Target Actual

2018 72% 74%

2019 68 67

2020 68 67

2021 68 65

2022 73

2023 73

Additional information: The Department continues to support technical assistance and training 

to increase the capacity of CAP professionals to provide systemic advocacy. As a result of this

technical assistance and training, and an increased focus on relationship-building and outreach 

among CAPs and VR agencies, we expect that performance on this measure will improve over 

time. 

Objective: Resolve cases at lowest possible level. 

Measure: The percentage of cases resolved through the use of alternative dispute resolution 

(ADR).

Year Target Actual 

2018 98% 98%

2019 98 98

2020 98 97

2021 98 98

2022 98

2023 98

Additional information: The percentage of cases being resolved through the use of ADR 

strategies, such as technical assistance, negotiation and mediation, has consistently ranged 

from about 97 to 99 percent. The use of such intervention strategies to resolve consumer 

complaints reduces the need for lengthy and costly interventions such as formal hearings and 

litigation.
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Training

(Rehabilitation Act of 1973, Title III, Section 302)

(dollars in thousands)

FY 2023 Authorization: To be determined 1

Budget Authority: 

2022 Estimate 2023 Request Change 

$29,388 $29,388 0

PROGRAM DESCRIPTION

The purpose of the Training program is to ensure that skilled personnel are available to meet 

the rehabilitation needs of individuals with disabilities assisted through other vocational 

rehabilitation (VR) and independent living programs. The program supports training and related 

activities designed to increase the number of qualified personnel providing rehabilitation 

services. Grants and contracts are awarded to States and public and nonprofit agencies and 

organizations, including institutions of higher education (IHEs), to pay all or part of the cost of 

conducting training programs. 

Awards may be made in any of 30 rehabilitation long-term training fields, in addition to awards 

for rehabilitation short-term training, innovative rehabilitation training, and training interpreters 

for persons who are deaf or hard of hearing and persons who are deaf-blind. These training 

programs vary in terms of content, methodology, and type of trainee. 

The rehabilitation long-term training (LTT) program supports academic training grants that must 

direct at least 65 percent of the funds to trainee scholarships, which may include student 

stipends, tuition and fees, books and supplies, and student travel in conjunction with training 

assignments. Students who receive financial assistance from projects funded under the 

program are required to either work in public or private non-profit rehabilitation agencies for a 

period of time after they complete their training or repay the cost of their training. 

The rehabilitation short-term training program supports special seminars, institutes, workshops, 

and other short-term courses in technical matters relating to the vocational, medical, social, and 

psychological rehabilitation programs, supported employment programs, independent living 

services programs, and client assistance programs. These training projects may be of regional 

or national scope. 

The innovative rehabilitation training program supports grants that develop new types of training 

programs or new and improved methods of training for rehabilitation personnel, including standalone modules and instructional materials to be incorporated into an existing degree program or 

short-term training, and demonstrate the effectiveness of such training programs. 

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations 

action.
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The training of interpreters program supports programing throughout the country in order to 

meet the communication needs of individuals who are deaf or hard of hearing and individuals 

who are deaf-blind. This includes providing financial assistance to establish interpreter training 

programs where they are needed and supporting established interpreter programs to train a

sufficient number of qualified interpreters. The program focuses on training interpreters to 

effectively interpret and transliterate between spoken language and sign language, and oral or 

tactile modes of communication, as well as maintaining and improving the skills of qualified 

interpreters. 

Awards may also be made for technical assistance centers, such as the VR Technical 

Assistance Center on Quality Employment. These awards are made to pay part of the costs of 

projects that provide State VR agency personnel with training and technical assistance 

designed to assist in increasing the numbers of, and upgrading the skills of qualified personnel, 

including rehabilitation counselors. In addition, the National Clearinghouse of Rehabilitation 

Training Materials is contracted to establish a central clearinghouse for information and 

resource availability for individuals with disabilities.

Traditionally Underserved Populations

The Rehabilitation Act requires the Department to fund the Traditionally Underserved 

Populations program (section 21 of the Rehabilitation Act) through a reservation of 1 percent of 

the funds appropriated under the Training, Demonstration and Training, Supported 

Employment, and Independent Living Services for Older Blind Individuals programs. In fiscal 

year 2021, this provision made $910,000 available for the Traditionally Underserved 

Populations program, which is designed to improve the quality, access, delivery of services, and 

outcomes of those services under the Rehabilitation Act, especially services provided to 

individuals with disabilities from minority backgrounds. It also increased the capacity for minority 

entities and Indian Tribes to participate in activities funded under the Rehabilitation Act. 

In fiscal year 2021, the Department ran a competition for a capacity-building center that was

intended to improve the delivery of vocational rehabilitation (VR) services to, and the 

employment outcomes of, individuals of color with disabilities. The Department aimed to provide 

awards to entities to provide cultural competency training to VR leadership and staff, collect and 

analyze relevant data, and disseminate evidence-based practices. The Department did not 

receive any applications for this competition, so the Department used the funds to support LTT 

continuation awards that also meet the requirements of the Traditionally Underserved 

Populations program. The Department will use the fiscal year 2022 funds to support LTT 

continuation awards and will run a new Traditionally Underserved Populations competition in 

fiscal year 2023.
REHABILITATION SERVICES

Training

31

Funding levels for the past 5 fiscal years were as follows:

Fiscal Year (dollars in thousands)

2018 $29,388

2019 29,388

2020 29,388

2021 29,388

2022 Estimate 29,388

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $29.4 million for the Training program, level 

with a fiscal year 2022 annualized CR based on the fiscal year 2021 appropriation. In fiscal 

year 2023, approximately $27.9 million would be used to support continuation awards,

$1.2 million would be used to support contracts, and $294,000 would be used to support a new 

award for the Traditionally Underserved Populations program under section 21 of the 

Rehabilitation Act. 

The Training program supports projects that provide training to new VR staff or upgrade the 

qualifications of existing staff. In response to dramatic turnover at State VR agencies created by 

the retirement of a large number of qualified counselors, the Department has targeted funding 

for LTT programs on training new counselors. Similar shortages, though not as severe, have 

also been affecting other VR providers. The Department believes that the LTT program, in 

concert with the Innovative Training program, which supports the development of new types of 

training programs and new and improved methods of training rehabilitation personnel, are the 

best mechanisms for recruiting new graduates into the rehabilitation field and ensuring they 

have access to the most effective training. The request includes approximately $19.5 million to 

support these activities through non-competing continuation awards under grants and contracts 

made in prior years. 
REHABILITATION SERVICES

Training

32

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2021

footnote

2022

foot

note

2023

footnote

Program Funding:

Long-Term Training:

Long-Term Training: New awards 0 $500 0

Long-Term Training: Continuation awards $14,5471 15,3762 $16,108

Long-Term Training: Subtotal 14,547 15,876 16,108

Technical Assistance:

Technical Assistance: New awards 0 0 0

Technical Assistance: Continuation awards 7,645 5,938 5,736

Technical Assistance: Subtotal 7,645 5,938 5,736

Short-Term Training:

Short-Term Training: New awards 308 0 0

Short-Term Training: Continuation awards 0 308 308

Short-Term Training: Subtotal 308 308 308

Training for Interpreters for Individuals who are 

Deaf and Deaf-Blind:

Training for Interpreters: New awards 2,855 0 0

Training for Interpreters: Continuation awards 0 2,938 2,935

Training for Interpreters Subtotal 2,855 2,938 2,935

Innovative Rehabilitation Training:

Innovative Rehabilitation Training: New awards 0 0 0

Innovative Rehabilitation Training: Continuation awards 3,049 3,392 3,363

Innovative Rehabilitation Training: Subtotal 3,049 3,392 3,363

1 An additional $910 thousand of Traditionally Underserved Populations funding was also used toward continuation 

LTT awards, for a total of $15,457 thousand used for continuation LTT awards in FY 2021. 2 An additional $910 thousand of Traditionally Underserved Populations funding will be used toward continuation LTT 

awards, for a total of $16,286 thousand used for continuation LTT awards in FY 2022.
REHABILITATION SERVICES

Training

33

Output Measures 2021

fo

ot

n

ot

e

2022

foot

note

2023

National Clearinghouse of Rehabilitation Training 

Materials:

National Clearinghouse of Rehabilitation Training Materials: New awards 680 0 0

National Clearinghouse of Rehabilitation Training Materials: Continuation awards 0 642 644

National Clearinghouse of Rehabilitation Training Materials: Subtotal 680 642 644

Other Activities:

Other Activities: Peer review of new award applications 10 0 0

Other Activities: Traditionally Underserved Populations 294 294 294

Other Activities Subtotal 304 294 294

Program Totals:

Total: New awards 3,843 500 0

Total: Continuation awards 25,241 28,594 29,094

Total: Other Activities 304 294 294

Total 29,388 29,388 29,388

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program. 

Goal: To provide the public vocational rehabilitation (VR) sector with well-trained staff 

and to maintain and upgrade the skills of current staff.

Objective: To provide graduates who work within the vocational rehabilitation (VR) system to 

help individuals with disabilities achieve their goals.
REHABILITATION SERVICES

Training

34

Annual Performance Measures

Measure: The percentage of Master’s level counseling graduates fulfilling their payback 

requirements through employment in State vocational rehabilitation agencies.

Year Target Actual

2018 45% 36%

2019 40 35

2020 40 39

2021 40 39

2022 40

2023 40

Measure: The percentage of Master’s level counseling graduates fulfilling their payback

requirements through qualifying employment.

Year Target Actual

2018 85% 88%

2019 85 94

2020 85 88

2021 85 84

2022 85

2023 85

Additional Information: Qualifying employment includes employment in a State vocational 

rehabilitation agency or related agency in the field of study for which the training was received.

Efficiency Measures

Measure: The Federal cost per Master’s level RSA-supported rehabilitation counseling 

graduate.

Year Target Actual

2018 $24,000 ---

2019 24,000 $36,771

2020 24,000 41,780

2021 24,000 45,831

2022 24,000

2023 24,000

Additional Information: This measure is calculated for individual cohorts of grantees by 

dividing the total funding given to each grant over the life of the grant by the number of Master’s 

level scholars who successfully completed funded training programs ending in that year. Only 

those grants with at least 90 percent of the scholars in a Master’s program are included. No 

grants closed in fiscal year 2018 so no data are available for fiscal year 2018. The fiscal year 

2019 data includes 47 closed grants with 1,101 completers. The fiscal year 2020 data includes 

45 closed grants with 993 completers. The fiscal year 2021 data includes 3 closed grants with 

65 completers.
REHABILITATION SERVICES

Training

35

The Department is currently reviewing options to revise the targets for this measure. The 

Department intends to increase the targets based on this analysis beginning with fiscal year 

2024. 
REHABILITATION SERVICES

36

Demonstration and training programs

(Rehabilitation Act of 1973, Title III, Section 303)

(dollars in thousands)

FY 2023 Authorization: To be determined1

Budget Authority: 

Demonstration and training programs

2022 Estimate 2023 Request Change

$5,796 $40,796 +$35,000

PROGRAM DESCRIPTION

Demonstration and Training programs are designed to provide competitive grants to, or enter 

into contracts with, eligible entities to expand and improve the provision of vocational 

rehabilitation (VR) and other services authorized under the Rehabilitation Act (the Act), or to 

further the purposes of the Act by supporting activities that increase the provision, extent, 

availability, scope, and quality of rehabilitation services under the Act, including related research 

and evaluation activities.

Specific activities include:

• Section 303(b) of the Act authorizes activities to demonstrate methods of service 

delivery to individuals with disabilities, as well as activities such as technical assistance, 

systems change, studies and evaluation, and dissemination and utilization of project 

findings. Eligible entities include State VR agencies, community rehabilitation programs, 

Indian tribes or tribal organizations, other public or nonprofit agencies or organizations, 

and for-profit organizations. Competitions may be limited to one or more type of entity.

• Section 303(c) of the Act authorizes a parent information and training program to enable 

individuals with disabilities and their parents, family members, guardians, advocates, or 

other authorized representatives to participate more effectively with professionals in 

meeting the vocational, independent living, and rehabilitation needs of individuals with 

disabilities.

• Section 303(d) of the Act authorizes a Braille training program to support the cost of 

training in the use of braille for personnel providing vocational rehabilitation services or 

educational services to youth and adults who are blind.

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations 

action.
REHABILITATION SERVICES

Demonstration and training programs

37

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2018 $5,796

2019 5,796

2020 5,796

2021 5,796

2022 Estimate 5,796

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $40.8 million for the Demonstration and 

Training programs, $35 million more than a fiscal year 2022 annualized CR based on the fiscal 

year 2021 appropriation. The request will support a new pilot program to catalyze innovative 

approaches for improving employment outcomes for VR participants and related technical 

assistance and evaluation, as well as supplemental funding for the Parent Information and 

Training program.

While individuals with disabilities participating in the VR system are, on average, more likely to 

obtain employment than individuals with disabilities, the percentage of VR participants exiting 

into competitive integrated employment (CIE) has declined each year since FY 2017. In FY 

2020, 44 percent of participants exited the program in CIE, compared to 48 percent in FY 2017. 

The COVID-19 pandemic, which disrupted VR services and disproportionately impacted 

individuals with disabilities seeking employment, has only added to the urgency to improve

employment outcomes for VR participants.

New and innovative approaches are needed in the VR system to overcome both long-term and 

new pandemic-related barriers to employment for individuals with disabilities. The request would 

make available $33.3 million to VR agencies and their partners to spur innovation, promote 

greater alignment of the VR system with a rapidly changing economy, and improve employment 

outcomes for VR participants. Pilot projects would provide innovative employment services for 

unemployed or under-employed individuals with disabilities who are no longer eligible for preemployment transition services, with the goal of assisting them in obtaining competitive 

integrated employment in fields where they are typically underrepresented. Jobs in STEM fields 

such as IT, infrastructure, and green energy represent new opportunities for employees with 

disabilities to seek a living wage in integrated employment. Proposed five-year grants would 

support training and building capacity within VR agencies, delivering enhanced and novel 

employment services to participants, and developing partnerships with employers. For example, 

grantees might use funds to establish partnerships with postsecondary institutions and 

employers to offer novel curricula and workplace learning opportunities to help VR participants 

enter growing employment sectors or to add additional service coordination and performance 

improvement capacity within the VR agency to evaluate and improve the delivery of 

employment supports. Grantees would conduct evaluations of these efforts to create an 

evidence base that can inform the practices of other VR agencies and scale best practices for 

increasing CIE.
REHABILITATION SERVICES

Demonstration and training programs

38

Approximately $1.4 million of the proposed increase for fiscal year 2023 would be used to 

supplement funding for the National Parent Training and Information Center (National PTI), as 

well as its eight Regional Parent Training and Information Centers (Regional PTIs). Each of 

these centers receives approximately $300,000 annually, for a total of $2.7 million that has not 

proven sufficient to support the increased scope of work following the transition to the regional 

model (prior to fiscal year 2020, PTIs received an average of $65,000 per state served; 

currently, they receive an average of $45,000 per state served). This additional $1.2 million 

would bring the average amount PTIs receive per state served to approximately $70,000. New 

funds would also provide the National PTI with an increase of $150,000 to provide much needed 

guidance, support, and coordination to the Regional PTIs. The remaining $1.2 million would 

support increased collaboration among the Regional PTIs, the development of new materials, 

and enhanced services to consumers in their respective regions.

The Rehabilitation Act requires the Department to reserve 1 percent of the funds appropriated 

under the Training, Demonstration and Training, Supported Employment, and Independent 

Living Services for Older Blind Individuals programs for the Traditionally Underserved 

Populations program (section 21 of the Rehabilitation Act). Approximately $350,000 of the 

increase proposed for fiscal year 2023 would be used to cover the related increase to meet this 

requirement, for an estimated contribution of $408,000 from the Demonstration and Training 

programs.

Approximately $3 million of funding would be used for continuation awards for the Braille 

Training program and the National Technical Assistance Center on Transition, and to support 

evaluation activities for two technical assistance centers focused on improving outcomes for 

individuals with disabilities.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2021 2022 2023

Program funding:

Model demonstrations

Demonstrations: New awards 0 0 $33,285

Demonstrations: Continuation awards 0 0 0

Technical assistance

TA: New awards 0 0 0

TA: Continuation awards1 $2,689 $2,689 2,689

Braille training 

Braille: New awards 0 0 0

Braille: Continuation awards 342 342 342

1 The National Technical Assistance Center on Transition is jointly funded with the Office of Special Education 

programs.
REHABILITATION SERVICES

Demonstration and training programs

39

Output Measures 2021 2022 2023

Parent information and training

Parent information: New awards 0 0 0

information: Continuation awards 2,700 2,700 2,700

information: Supplemental awards 7 7 1,350

Peer review of new award applications 0 0 22

Traditionally Underserved Populations 58 58 408

Minority Outreach: Total, Program funding 5,796 5,796 40,796

Number of awards:

Number of New awards 0 0 6

Number of Continuation awards 15 15 15

Total, Number of awards 15 15 21

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program.

In prior years, approximately 60 percent of the funds provided for the Demonstration and 

Training program were used to support model demonstration projects; therefore, the 

Department’s GPRA measures for this program focused on these projects. With the shift from 

model demonstration projects to providing more robust support for the Parent Information and 

Training (PTI) programs and the National Technical Assistance Center on Transition (NTACT), 

the Department is proposing new performance measures that more accurately reflect the impact 

of the bulk of the Demonstration and Training program funds. Fiscal year 2020 is the last year 

the Department will report on the Vocational Rehabilitation Career Pathways for Individuals with 

Disabilities (CPID) Demonstration Projects and its associated measures. The Department plans 

to report on new performance measures starting in fiscal year 2021, with initial data to be 

provided in a future budget justification. Additional performance measures will be developed for 

the proposed pilot program, as appropriate.

VR-CPID Measures

Goal: To develop replicable promising practices in the use of career pathways by VR 

State agencies to assist eligible individuals with disabilities, including youth with 

disabilities, to acquire marketable skills and recognized postsecondary credentials, and 
REHABILITATION SERVICES

Demonstration and training programs

40

thus secure competitive integrated employment in high-demand, high-quality 

occupations.

Objective: Increase the number of career pathways accessible to individuals with disabilities, 

the number of individuals who obtain competitive employed through those career pathways, and 

the weekly earnings and benefits of those who obtain competitive employment through CPIDfunded activities.

Measure: The total number of distinct career pathways accessed or created through CPID.

Year Target Actual 

2018 114 103

2019 121 107

2020 131 111

Measure: The total number of VR-eligible individuals who achieve competitive integrated 

employment through CPID-accessed or created career pathways.

Year Target Actual 

2018 150 201

2019 200 277

2020 250 292

Measure: The average weekly wages of VR-eligible CPID participants who obtained 

competitive integrated employment.

Year Target Actual 

2018 $600 $650

2019 630 680

2020 680 685

Other VR-CPID Measures

VR-CPID grantees reported on two additional measures: (1) the numbers of competitive 

integrated employment and employer-provided benefits obtained by CPID participants 

compared to those obtained by VR consumers in their State outside of CPID; (2) the average 

weekly earnings of CPID participants who obtained competitive integrated employment 

compared to the average weekly earnings of VR consumers in their State who obtained 

competitive integrated employment outside of the CPID project. All four grantees reported 

higher results for CPID participants compared to non-CPID participants on both measures.
REHABILITATION SERVICES

Demonstration and training programs

41

New Performance Measures

National Technical Assistance Center on Transition

Goal: To increase the number of students with disabilities who receive the VR services 

needed to prepare them for competitive integrated employment.

Objective: To provide VR State agencies with training and technical assistance that ensures 

that staff are well-trained in providing services for students with disabilities that lead to 

competitive integrated employment.

Measure: Of VR agencies that receive targeted and/or intensive technical assistance from 

NTACT, the percentage that show an increase in the percentage of potentially eligible students 

receiving pre-employment transition services.

Measure: Of VR agencies that receive targeted and/or intensive technical assistance NTACT, 

the percentage that show an increase in the percentage of potentially eligible students who 

become VR program participants.

Measure: Of the VR agencies that receive TA from NTACT to strengthen their SEA 

agreements, the percentage of those VR agencies that show an increase in the percentage of 

students with disabilities who receive VR services.

Parent Information and Training Programs

Goal: To ensure that individuals with disabilities and their families have the skills and 

knowledge necessary to effectively advocate for vocational, independent living, and 

other rehabilitation needs.

Objective: Individuals with disabilities and their families who are served by the Rehabilitation 

Services Parent Information Centers will be knowledgeable about their rights and available 

services.

Measure: The percentage of individuals with disabilities and their families receiving PTI 

services who report enhanced knowledge and understanding of VR services.

Objective: Improve the quality of parent training and information products and services.

Measure: The percentage of all products and services developed to improve VR service 

utilization deemed to be useful by individuals with disabilities and their families receiving PTI 

services.
REHABILITATION SERVICES

42

Protection and advocacy of individual rights

(Rehabilitation Act of 1973, Title V, Section 509)

(dollars in thousands)

FY 2023 Authorization: To be determined1

Budget Authority: 

Protection and advocacy of individual rights

2022 Estimate 2023 Request Change

$18,150 $18,150 0

PROGRAM DESCRIPTION

The Protection and Advocacy of Individual Rights (PAIR) program supports statewide systems 

that provide assistance and information to eligible individuals with disabilities and conduct 

advocacy to ensure the protection of their rights under Federal law. These systems protect the 

legal and human rights of individuals with disabilities who are ineligible for protection and 

advocacy (P&A) services provided under Part C of the Developmental Disabilities Assistance 

and Bill of Rights Act, the Protection and Advocacy for Individuals with Mental Illness Act, or 

who need P&A services that are beyond the scope of the Client Assistance Program. States 

may use these funds to plan and carry out P&A programs for eligible individuals with disabilities 

and to develop outreach strategies to inform individuals with disabilities of their rights.

The program also requires the Department to reserve between 1.8 percent and 2.2 percent of 

the amount appropriated for training and technical assistance to eligible systems established

under this program. In addition, the Department must award $50,000 to the eligible system 

established under the Developmental Disabilities Assistance and Bill of Rights Act to serve the 

American Indian consortium. Remaining funds are allocated to eligible systems within the States 

and outlying areas based on population estimates (using the most recent estimates from the 

U.S. Census Bureau).

The Rehabilitation Act establishes a minimum allotment of $100,000 for States, or one-third of 1 

percent of funds remaining after the technical assistance set-side and grant for the American 

Indian consortium, whichever is greater. The outlying areas receive a minimum allotment of 

$50,000. The program is current-funded, but States and outlying areas may carry over 

unobligated Federal funds for an additional year.

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations 

action.
REHABILITATION SERVICES

Protection and advocacy of individual rights

43

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2018 $17,650

2019 17,650

2020 17,650

2021 18,150

2022 Estimate 18,150

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $18.5 million for the PAIR program, level with

a fiscal year 2022 annualized CR based on the fiscal year 2021 appropriation, to help provide 

information and P&A services to individuals with disabilities. The Department plans to reserve 

1.8 percent of the funds requested ($326,700) to provide training and technical assistance to 

eligible statewide systems established under this program, as required by the authorizing 

statute.

During fiscal year 2021, PAIR programs nationwide reported handling 8,771 cases and 

responded to 22,503 requests for information or referral. Of the individual cases handled by 

PAIR programs in that year, most were related to housing (17 percent), employment 

(17 percent), and health care (14 percent). The most frequent primary disability categories 

(i.e., the ones directly related to the issues/complaints raised) reported for such individuals were 

orthopedic impairments (23 percent), neurological impairments (13 percent), and other 

disabilities (11 percent).

In addition to providing representation to individuals, PAIR programs address systemic issues 

faced by persons with disabilities through a variety of methods, including negotiations with 

public and private entities and class action litigation. In fiscal year 2021, 55 out of the 57 PAIR 

programs (96 percent) reported that these activities resulted in changes in policies and practices 

benefiting individuals with disabilities.

The following examples of case services provided in fiscal year 2021 illustrate how PAIR 

programs assist individuals and, in some cases, bring about systemic change. Funds requested 

in fiscal year 2023 would support similar activities.

• The PAIR staff of Disability Rights Florida advocated for accessible COVID-19 testing in 

several counties throughout the state. Many individuals with disabilities could not travel to 

test sites and wait in long lines to be tested. PAIR staff advocated for reasonable 

accommodations for qualified individuals with disabilities by sending demand letters to the 

organizations who managed testing in each county. The counties who received demand 

letters engaged with PAIR staff around the reasonable accommodation requests and set up 

accessibility procedures to ensure qualified individuals would have access to COVID testing. 

One county in South Florida established a process by which qualified individuals could be 

tested for COVID in their homes.

• In 2018, a U.S. District Court judge approved a settlement agreement between the City of 

Portland and plaintiffs in the case of Hines, et al. v. City of Portland. Plaintiffs were people 
REHABILITATION SERVICES

Protection and advocacy of individual rights

44

with disabilities who reside or visit Portland and “who use...a wheelchair or scooter for 

mobility.” The Civil Rights Education and Enforcement Center (CREEC) and Goldstein, 

Borgen, Dardarian & Ho are now in the enforcement phase of this settlement. CREEC 

asked Disability Rights Oregon (DRO) to assist in enforcement activities by partnering with 

other parties to provide on-the-ground monitoring, including sharing information about the 

curb ramp complaint system, and ensuring the city responds in a timely manner. Monitoring 

may also include checking on the installation of new curb ramps to make sure they are 

being built according to the design standards outlined in the Americans with Disabilities Act. 

The settlement remains in effect for 12 years. DRO’s involvement in this case provides DRO 

attorneys with the ancillary benefit of building relationships with national experts in ADA 

design standards and enforcement and other national partners. DRO continues to monitor 

the enforcement of the settlement agreement with the Portland Bureau of Transportation to 

build or repair noncompliant curb ramps.

PROGRAM OUTPUT MEASURES

Output Measures 2021 2022 2023

Information inquiries/referrals 22,503 23,000 23,000

Individuals provided case services 8,771 9,000 9,000

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program.

Goal: To provide assistance and information to individuals with disabilities eligible for 

the Protection and Advocacy of Individual Rights program and conduct advocacy to 

ensure the protection of their rights under Federal law.

Objective: Identify problem areas requiring systemic change and engage in systemic activities 

to address those problems.
REHABILITATION SERVICES

Protection and advocacy of individual rights

45

Measure: The percentage of PAIR programs that reported that their systemic advocacy 

resulted in a change in policy or practice.

Year Target Actual 

2018 89% 77%

2019 89 95

2020 89 74

2021 89 96

2022 89

2023 89

Additional information: Because PAIR programs cannot address all issues facing individuals 

with disabilities solely through individual advocacy, they seek to change public and private 

policies and practices that present barriers to the rights of individuals with disabilities, utilizing 

negotiations and class action litigation.
REHABILITATION SERVICES

46

Supported employment State grants

(Rehabilitation Act of 1973, Title VI)

(dollars in thousands)

FY 2023 Authorization: To be determined1

Budget Authority:

2022 Estimate 2023 Request Change 

$22,548 $22,548 0

PROGRAM DESCRIPTION

The Supported Employment (SE) State Grants program assists States in developing 

collaborative programs with appropriate public and private non-profit organizations to provide 

supported employment services for individuals with the most significant disabilities. The 

program provides formula-based supplemental funding to State vocational rehabilitation (VR) 

agencies to assist VR consumers with the most significant disabilities in achieving the 

employment outcome of supported employment. 

Supported employment uses a “place-train” model in which individuals with the most significant 

disabilities are placed in a job and provided intensive services and supports. These services are 

typically provided by a job coach in conjunction with supports provided by the employer to train 

the individual on the job site, followed by extended services after the individual’s ability to 

perform the job with support has stabilized. These services and supports enable individuals with 

the most significant disabilities to engage in and maintain competitive integrated employment.

An individual’s potential for supported employment must be considered as part of the 

assessment to determine if an individual is eligible for the Title I VR State Grants program. VR 

funds are used to pay the costs associated with assessment and the determination of eligibility, 

as well as other needed VR services prior to placement in supported employment. Ongoing 

services are provided by the VR agency, using funds under the SE State Grants program and/or 

the VR State Grants program, from the time of job placement until the transition to extended 

services, and thereafter by one or more extended services providers. A State VR agency may 

support an individual’s supported employment services solely with VR State grant funds, or it 

may support these services in whole or in part with funds under the SE State Grants program.

In addition, States are required, under the amendments to Title VI of the Rehabilitation Act 

made by WIOA, to use one-half of their SE program funding allotment to provide supported 

employment and extended services to youth with the most significant disabilities and to provide 

a State dollar match of 10 percent for the SE allotment portion used to serve such youth.

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through appropriations 

action.
REHABILITATION SERVICES

Supported employment State grants

47

Supported employment funds are distributed on the basis of population, using the most recent 

estimates from the U.S. Census Bureau, with no State receiving less than $300,000, or onethird of 1 percent of the amount appropriated, whichever is greater. The minimum allotment for 

territories remains one-eighth of 1 percent of the appropriation. 

Funding levels for the past 5 fiscal years were as follows:

Fiscal Year (dollars in thousands)

2018 $22,548

2019 22,548

2020 22,548

2021 22,548

2022 Estimate 22,548

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $22.5 million for SE State Grants, level with 

the fiscal year 2022 annualized CR based on the fiscal year 2021 appropriation, to continue to 

provide a dedicated source of funding for supported employment services, including significant

support for services to youth with the most significant disabilities.

When the SE State Grants program was first authorized in 1986, supported employment was a 

new promising practice in employing individuals who traditionally would not have achieved 

employment in the integrated labor market, and the program provided a critical incentive for 

State VR agencies to adopt this practice. State VR agencies now recognize supported 

employment as a viable employment option for individuals with the most significant disabilities, 

and an individual’s potential for supported employment must be considered as part of the 

assessment to determine if an individual is eligible for the Title I VR State Grants program. 

One issue of concern is that States have struggled to meet the requirement to use one-half of 

their SE allocations—along with a 10 percent state dollar match—to provide supported 

employment and extended services to youth with the most significant disabilities.

The challenge of meeting these requirements is demonstrated by recent SE State grant 

expenditure patterns. Grantees did not use more than $3.4 million of fiscal year 2020 SE funds, 

representing more than 15 percent of the entire SE appropriation that will return to the Treasury. 

This is an increase of over $850,000 from the fiscal year 2019 funds remaining unused. In fiscal 

year 2020, 17 out of 75 grantees did not meet the matching requirement for the funds required 

to be reserved and expended for students with significant disabilities. The Department will be 

exploring, in consultation with Congress, potential options for addressing this problem and

ensuring that States provide critical supported employment and extended services for youth with 

the most significant disabilities, consistent with the intent of the authorizing statute.

The Rehabilitation Act requires the Department to reserve 1 percent of the funds appropriated 

under the Training, Demonstration and Training, Supported Employment, and Independent 

Living Services for Older Blind Individuals programs for the Traditionally Underserved 
REHABILITATION SERVICES

Supported employment State grants

48

Populations program (section 21 of the Rehabilitation Act). The request includes $225,000 to 

meet this requirement. 

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures1 2021 2022 2023

Individuals with the most significant disabilities 

who exited with SE outcomes in competitive 

integrated employment 12,000 12,250 12,500

Individuals with the most significant disabilities 

who received SE services

43,000 43,250 43,500

Youth2 with the most significant disabilities who 

received SE services 20,200 20,400 20,600

Traditionally Underserved Populations $225 $225 $225

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program and the VR State 

grants program as well as the resources and efforts invested by those served by the program. 

Data reported for these measures include outcomes for individuals who received supported 

employment services and exited the VR program with a supported employment outcome in 

competitive integrated employment, whether such services were paid for with VR State Grants 

or SE State Grants. Consequently, the measures do not permit independent assessment of the 

performance of the SE State Grants program. 

The Department has established three new performance measures, including two measures 

that mirror the WIOA performance indicators, to replace the current performance measures. The 

new measures are designed to more effectively assess the role of supported employment 

services in the outcomes that participants with the most significant disabilities achieve. 

Goal: Individuals with significant disabilities with a goal of supported employment will 

achieve high quality employment.

1 The output measures data for Supported Employment State Grants are estimates based on program year 2020 

data.

2 Youth is defined as individuals 14 to 24 years old.
REHABILITATION SERVICES

Supported employment State grants

49

Objective: Ensure that individuals with significant disabilities with a supported employment goal 

achieve high quality employment.

Measure: Of those individuals with most significant disabilities who had a supported 

employment goal and achieved an employment outcome, the percentage who exited with

competitive employment, including individuals who receive supported employment services 

funded under the VR State Grants program and/or the SE State Grants program.

Year Target Actual

2018 96.0% 99.8%

2019 96.0 99.6

2020 99.0 99.9

2021 99.0 99.9

2022

2023

Additional information: The Department has not established targets for fiscal years 2022 or 

2023 because fiscal year 2021 is the last year that the Department will report data on this 

measure.

Measure: Average weekly earnings for individuals with most significant disabilities who 

achieved a supported employment outcome.

Year Target Actual

2018 $215 $230

2019 215 222

2020 222 244

2021 222 260

2022

2023

Additional information: The data reported for this measure include data on all individuals who 

obtained a supported employment outcome with earnings. The average weekly earnings

calculation does not include data for Guam, the Commonwealth of the Northern Mariana 

Islands, or the Virgin Islands. The Department has not established targets for fiscal years 2022

or 2023 because fiscal year 2021 is the last year that the Department will report data on this 

measure.
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50

New Performance Measures

Performance data reported in 2021 are based on data collected under the RSA-911 from July 1, 

2020 to June 30, 2021. The Department will report baseline data for 2021 and 2022 under the 

new measures in fiscal years 2022 and 2023.

Goal: Individuals with the most significant disabilities who receive supported 

employment services will achieve high-quality employment outcomes and continue to 

work following their exit from the program.

Objective: Ensure that individuals with the most significant disabilities, who exit the VR program 

with supported employment outcomes in competitive integrated employment, will be capable of 

maintaining employment as a result of the supported employment services they received and 

that, consistent with their informed choice, they will have opportunities to maximize the number 

of hours they work each week. 

Measure: Of those individuals who received supported employment services, the median hours 

worked per week at the time they exit from the program with supported employment outcomes 

in competitive integrated employment. 

Year Target Actual

2021 Baseline 20

2022

2023

Measure: Of those individuals who received supported employment services, the percentage 

who were employed during the second quarter after exit from the program. 

Year Target Actual

2021 Baseline 61.3

2022

2023

Measure: Of those individuals who received supported employment services, the percentage 

who were employed during the fourth quarter after exit from the program. 

Year Target Actual

2021 Baseline 53.8

2022

2023
REHABILITATION SERVICES

51

Independent living services for older blind individuals

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2023 Authorization: To be determined 1

Budget Authority:

2022 Estimate 2023 Request Change 

$33,317 $33,317 0

PROGRAM DESCRIPTION

The Independent Living Services for Older Individuals Who Are Blind (ILOIB) program assists 

individuals aged 55 or older who have severe visual impairment making competitive 

employment extremely difficult to obtain, but for whom independent living goals are feasible. 

Funds are used to provide independent living services, improve or expand services for these 

individuals, and improve public understanding of the challenges they face. ILOIB services are 

designed to help eligible persons adjust to their blindness by increasing their ability to care for 

their individual needs. Services under this program are not typically covered under private 

insurance, Medicaid or Medicare.

Grantees are State Vocational Rehabilitation (VR) agencies for persons who are blind and 

visually impaired or, in States with no separate agency for persons who are blind, State 

combined VR agencies. States participating in the ILOIB program must match 10 percent of 

their grant with non-Federal cash or in-kind resources in the year for which the Federal funds 

are appropriated. Awards are distributed to States according to a formula based on the 

population of individuals who are 55 years of age or older (using the most recent estimates from 

the U.S. Census Bureau). The minimum allotment for each of the 50 States, D.C., and Puerto 

Rico is $225,000, with each of the territories receiving a minimum allotment of $40,000.

Independent living services are typically provided through contracts with local providers 

administered by State VR agencies. The services most frequently provided to program 

participants in fiscal year 2021 were assistive technology devices and services (provided to 66

percent of participants), information and referral services (53 percent) and daily living skills 

training (53 percent), with some participants receiving more than one service. These services 

allow older individuals who are blind or severely visually impaired to be more independent at 

home and in the community. Service providers are knowledgeable about blindness and other 

visual impairments, as well as the needs of older individuals with such impairments, including 

adaptive strategies that can assist these individuals to adjust to their impairments and increase 

their ability to function more independently.

1 The GEPA extension expired September 30, 2021; reauthorization for FY 2023 is expected through 

appropriations action.
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Independent living for older blind individuals

52

The Department also reserves 1.8 percent of the funds appropriated to the ILOIB program, 

consistent with the requirements of WIOA, to provide training and technical assistance to

Designated State Agencies or other providers of ILOIB services.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2018 $33,317

2019 33,317

2020 33,317

2021 33,317

2022 Estimate 33,317

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $33.3 million for the ILOIB program, level with 

a fiscal year 2022 annualized CR based on the fiscal year 2021 appropriation. These funds will 

assist States in meeting the need for independent living services by older individuals who are 

blind or severely visually impaired. The Department would use nearly $600,000 to provide 

training and technical assistance to ILOIB grantees and service providers. 

In fiscal year 2021, 45,972 individuals received services under the ILOIB program, 61 percent of 

whom were over 75 years of age and about 84 percent of whom were still living in a private 

residence. Approximately 55 percent of these individuals were either legally blind or totally blind, 

and 19 percent also had some degree of hearing impairment. Macular degeneration continues 

to be the most commonly reported eye condition, followed by glaucoma and diabetic 

retinopathy. 

The prevalence of disability increases with age, and the occurrence of a sensory disability is 

greater among older adults than working-age people. Persons age 55 or older, the target 

population of this program, are projected to comprise a larger share of the population over the 

next decade and beyond as nearly 75 million Americans who make up the baby-boomer 

generation (born from 1946 to 1964) continue to age. According to the U.S. Census Bureau’s 

2019 American Community Survey (1-Year Estimates), 6.0 percent of individuals 65 and older 

(about 3.2 million people) have a vision-related disability. In addition, the percentage of 

individuals who have a disability that affects their independent living status (including visionrelated disabilities) increases with age, with a dramatic increase for individuals in the 75 years 

and over category, where 23.1 percent report having a disability that affects their independent

living status. 

The Rehabilitation Act requires the Department to reserve 1 percent of the funds appropriated 

under the Training, Demonstration and Training, Supported Employment, and Independent 

Living Services for Older Blind Individuals programs, or 333,000, for the Traditionally 

Underserved Populations program (section 21 of the Rehabilitation Act).
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Independent living for older blind individuals

53

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures: 2021 2022 2023

Minimum State award $225 $225 $225

Number of States at minimum 17 17 17

Average State award $620 $620 $620

Traditionally Underserved Populations $333 $333 $333

Training and technical assistance $600 $600 $600

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program. 

Goal: To promote and support a philosophy of independent living (IL)—including a 

philosophy of consumer control, peer support, self-help, self-determination, equal 

access, and individual and system advocacy—in order to maximize the leadership, 

empowerment, independence, and productivity of individuals with disabilities, and the 

integration and full inclusion of individuals with disabilities into the mainstream of 

American society.

Objective: Through the provision of services (either directly or through contracts), increase the 

percentage of consumers receiving services funded through the Older Blind program who report 

having access to services needed to improve their ability to live more independently and 

participate fully in their communities.

Measure: The percentage of Independent Living Older Blind program consumers who have 

access to previously unavailable assistive technology aids and devices.

Year Target Actual

2018 57% 58%

2019 58 57

2020 58 55

Additional information: Fiscal year 2020 was the last year that the Department collected data 

on this measure. New measures are described below. 
REHABILITATION SERVICES

Independent living for older blind individuals

54

Measure: The percentage of Independent Living Older Blind program consumers who report an 

improvement in daily living skills.

Year Target Actual

2018 61% 65%

2019 61 55

2020 61 56

Additional information: Daily living skills include activities such as bathing, moving around the 

home, getting out of bed or a chair, and eating a meal. Fiscal year 2020 was the last year that 

the Department collected data on this measure. New measures are described below.

New Performance Measures

Due to concerns about the precision of the previous performance measures shown above, the 

Department established five new performance measures designed to more accurately measure 

the performance of the ILOIB program. Targets will be established after the Department has 

collected two years of baseline data from fiscal year 2021 to fiscal year 2022. 

Objective: To restore, improve, or maintain the independence of older individuals whose 

functional capabilities have been lost or diminished as a result of vision loss or blindness. 

Measure: The percentage of individuals receiving assistive technology devices and services 

who demonstrated improvement in one or more functional capabilities during the reported 

federal fiscal year consistent with the objectives for receiving such devices and services.

Year Target Actual

2021 Baseline 79%

2022

2023

Measure: The percentage of individuals receiving one or more independent living and 

adjustment training services who demonstrated improvement in functional capabilities during the 

reported federal fiscal year.

Year Target Actual

2021 Baseline 78%

2022

2023
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55

Measure: The percentage of individuals completing a plan of services who reported feeling that 

they are more confident in their ability to maintain their current living situation. 

Year Target Actual

2021 Baseline 87%

2022

2023

Measure: The percentage of individuals completing a plan of services who reported an 

increased ability to engage in their customary daily life activities in the home and community. 

Year Target Actual

2021 Baseline 77%

2022

2023

Objective: To provide cost effective supports and services to increase the independence of 

older individuals who are blind so that they may remain in the community and to prevent or 

delay the need for an increasing level of care, particularly for those individuals who are at risk of

entering institutions. 

Measure: The average annual cost per individual served through the program during the 

reported federal fiscal year.

Year Target Actual

2021 Baseline $942

2022

2023
REHABILITATION SERVICES

56

Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2023 Authorization: To be determined1

Budget Authority: 

Helen Keller National Center

2022 Estimate 2023 Request Change

$17,000 $18,500 +$1,500

PROGRAM DESCRIPTION

The Helen Keller National Center for Deaf-Blind Youths and Adults (HKNC) was created by 

Congress in 1967 and operates under the auspices of Helen Keller Services. The HKNC 

provides services on a national basis to youth and adults who are deaf-blind, their families, and 

service providers through on- and off-campus services, professional learning, and information 

on combined vision and hearing loss. HKNC’s mission is to enable each person who is deafblind to live, work, and thrive in their community of choice. This includes having access to local 

resources for community living and employment opportunities.

HKNC provides direct services through a residential training facility at its national headquarters 

center (Center) located in Sands Point, New York, where deaf-blind individuals receive intensive 

specialized services. The Center provides comprehensive services for individuals with deafblindness to enhance their potential for employment and help them live independently in their 

home communities. The Center’s residential programs provide consumers with an array of 

services, and supports, including adaptive skills training to help them achieve their vocational 

and independent living goals. The Center’s programs emphasize several areas such as 

enhanced mobility, improved and accessible communication (including the use of adaptive 

technology), constructive participation in home and community settings, leadership and 

advocacy training through mentoring, ongoing social and professional opportunities, and 

employment.

HKNC also provides services through a network of 10 regional field offices staffed by 20

regional representatives and 10 deaf blind specialists. Through this network, HKNC assists

deaf-blind individuals and their families and provides technical assistance to local service 

providers. The regional network offices provide counseling, information, transition assistance, 

and referral services for individuals who are deaf-blind and their families to assist them to 

achieve successful participation in their community and employment.

The HKNC Community Services Program (CSP), operated by the Center in collaboration with 

the New York State Commission for the Blind and the California Department of Rehabilitation 

Services, provides comprehensive rehabilitation, vocational, and support services to eligible 

persons who are deaf-blind in their homes, worksites, and communities. CSP is staffed by 

1 The GEPA extension expired September 30, 2004; reauthorization for FY 2023 is expected through appropriations 

action.
REHABILITATION SERVICES

Helen Keller National Center

57

credentialed professionals in the fields of blindness and deafness, including orientation and 

mobility specialists, low vision specialists, vision rehabilitation teachers, and vocational 

specialists. All CSP staff are proficient in American Sign Language and other alternative modes 

of communication.

In addition, HKNC has developed a Deaf-Blind National Community of Practice, a 67-member 

collaborative of professional organizations working together to improve the quality of services to 

individuals who are deaf-blind through shared learning, research, and practice. These 

organizations consist of three national organizations, vocational rehabilitation agencies for both 

deaf and hard of hearing and blind consumers, many State deaf-blind projects, two schools for 

the deaf and blind, and agencies that provide support services (such as Support Service 

Provider and interpreting services) to deaf-blind individuals.

HKNC also offers a program called the Deaf-Blind Immersion Experience, which provides 

consumers who are deaf-blind with intellectual disabilities, and their support teams, a 5-day 

training experience that includes participation in work experiences that match their interests, 

gifts, and abilities.

HKNC also provides professional development, training and technical assistance, and 

consultation to other organizations, programs, and providers serving individuals who are deafblind.

COVID-19 Pandemic Adjustments

Due to COVID-19, HKNC transformed the in-person vocational rehabilitation program into a 

virtual program approximately halfway through fiscal year 2020. Four-week virtual assessments 

were offered to match each consumer’s schedule and goals. Remote training programs were 

designed on a part-time and full-time basis and focused on goals that would improve outcomes

or would help to develop a foundation upon which to build, especially when in-person services 

resume. The HKNC field staff joined with the Center staff to support consumers with obtaining 

and setting up the necessary equipment and technology needed to access Zoom and Google 

Docs training sessions, support groups, and peer learning opportunities. Staff utilized a 

transdisciplinary approach and partnered with consumers and vocational rehabilitation 

counselors to provide services remotely. The HKNC campus remained closed in fiscal year 

2021; however, HKNC continued virtual offerings developed under the online training and 

regional activity framework developed over the previous fiscal year.

Revenue and Expenses

For fiscal year 2021, HKNC reported total public support and revenues of $21 million. Funds 

from the Federal government ($17 million) made up 81 percent of its total revenue. Funding 

from State grants and contracts amounted to $2.9 million (14 percent). HKNC received 

approximately $510,000 in donations and public support (2 percent) and reported an 

approximately $630,000 increase in HKNC operations and investment income (3 percent). 

While the Center has sought to increase other sources of funding, the Federal appropriation 

remains its primary source of support.
REHABILITATION SERVICES

Helen Keller National Center

58

For fiscal year 2021, HKNC incurred total operating expenses of $24 million. Because most of 

the specialized services required by this population are provided by HKNC staff, salaries, and 

fringe benefits (approximately $18.8 million) account for most expenses (78 percent). Other 

expenses include: building, utilities, and rent (approximately $1.7 million, or 7 percent); 

professional services (approximately $1.3 million, or 6 percent); client related services 

(approximately $200,000, or 1 percent); and other operating expenses (approximately 

$2 million, or 8 percent).

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2018 $12,500

2019 13,500

2020 16,000

2021 17,000

2022 Estimate 17,000

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $18.5 million for HKNC, $1.5 million more than 

a fiscal year 2022 annualized CR based on the fiscal year 2021 appropriation, to expand 

regional office support for an estimated 2,300 individual consumers, 700 families, and 1,000 

agencies and organizations, while also strengthening direct intensive services to approximately 

90 consumers at HKNC’s residential training and rehabilitation program.

While most of the request would support core activities at HKNC headquarters, approximately 

30 percent of the funds requested would provide support to the HKNC for field services, 

community education, and professional development programs, including the activities of 

HKNC’s 10 regional offices and the Information, Research, and Professional Development 

department. These programs help reach consumers in their home communities and assist 

personnel at State agencies and other organizations to serve or develop the capacity to serve 

individuals who are deaf-blind through training, community education, and technical assistance.
REHABILITATION SERVICES

Helen Keller National Center

59

PROGRAM OUTPUT MEASURES

Output Measures 2021 2022 2023

Number of individuals served at headquarters:

Number of Adult training program clients 82 85 90

Number receiving Specialized training services:

Specialized training services: Number of Transition for high school students 9 10 15

Specialized training services: Number of Senior citizens 22 25 30

Specialized training services: Number of Individuals with intellectual disabilities 9 10 15

Specialized training services: Number receiving Targeted skills training 10 10 15

Specialized training services: Number receiving Community Services Program 142 150 165

Number of individuals served through regional 

representatives and deaf-blind specialists:

Number of Consumersserved through regional representatives 1,288 1,300 2,300

Number of Familiesserved through regional representatives 354 360 700

Number of Agencies/organizationsserved through regional representatives 944 945 1,000

f HKNC FTE staff 160 160 175

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents selected program performance information, including, for example, 

program goals, objectives, measures, and performance targets and data; and an assessment of 

the progress made toward achieving program results. Achievement of program results is based 

on the cumulative effect of the Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program.

Due to the ongoing COVID-19 pandemic and the unique health and developmental needs of the 

communities served by HKNC, several of the performance outcomes outlined below indicate 

notable shifts from past performance. These shifts are typically decreases and are found in 

performance measures designed to capture outcomes in spaces where service recipients are 

typically required to either live at HKNC headquarters or have extensive in-person contact with 

HKNC-affiliated staff. HKNC expects outcomes on these performance indicators to move back 

toward normality.

Goal: Individuals who are deaf-blind will become independent and function as full and 

productive members of their local community.

Objective: Individuals who are deaf-blind receive the specialized services and training they 

need to become as independent and self-sufficient as possible.
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Helen Keller National Center

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Measure: The percentage of: (1) training goals set and achieved by adult consumers (both on 

and off campus); (2) adult consumers seeking employment who are placed in employment (both 

on and off campus); and (3) adult consumers seeking to maintain their ability to live 

independently or move to less restrictive settings who achieve their goals.

Year

Target

# of Adult 

Consumers

Actual

# of Adult 

Consumers

Target

% of 

Training 

goals met

Actual

% of 

Training 

goals met

Target

% Placed 

in Employment

Actual

% Placed 

in Employment

Target

% in Less 

Restrictive 

Settings

Actual

% in Less 

Restrictive 

Settings

2018 75 76/40 95% 90% 48% 50/71% 86% 91%

2019 80 59/38 95 89 48 63/67 86 87

2020 80 86/92 95 87 60 33/50 86 93

2021 80 82/95 95 88 60 9/41 86 12

2022 80 95 60 86

2023 80 95 60 86

Additional information: In fiscal year 2021, HKNC served 82 consumers through its virtual 

training programs sponsored by HKNC headquarters and 95 additional off-campus consumers 

through its NY Community Services Program. HKNC points out that the number of consumers 

served may fluctuate from year to year due to multiple factors beyond the control of the Center. 

For example, the length of time an individual participates in training may vary anywhere from 

two weeks to beyond one year due to varying levels of training intensity and differing individual 

needs.

The Center evaluates the progress of consumers in achieving the goals stated in their 

individualized training plans (ITPs). This measure represents the percent of adult consumers 

served by the HKNC who successfully achieved identified training goals during the program 

year.

In fiscal year 2021, 9 percent of consumers served by HKNC headquarters and 41 percent of 

regional consumers participating in the Community Services Program with an employment goal 

were placed in employment.

The “less restrictive settings” measure refers to consumers who move from settings such as 

living with parents or guardians, assisted living settings, and nursing homes to more 

independent living arrangements such as their own home or apartment or group homes.

Objective: Increase the capacity of deaf-blind consumers to function more independently in the 

home community.
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Helen Keller National Center

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Measure: The number of individuals (or families on behalf of individuals) referred to State or 

local agencies or service providers by HKNC‘s regional offices.

Year Target Actual

2018 600 573

2019 600 505

2020 600 372

2021 600 384

2022 600

2023 600

Additional information: These referrals help deaf-blind consumers access resources within 

their home community that improve their ability to function independently.

Measure: The percentage of consumers who participated in services or programs (other than 

HKNC) as a result of receiving a referral from HKNC’s regional offices.

Year Target Actual

2018 75% 74%

2019 75 68

2020 75 75

2021 75 75

2022 75

2023 75

Additional information: This measure provides information on the activities of the field 

services programs, including the regional representatives and deployed deaf-blind specialists. 

The referrals provided by regional representatives often are the gateway to finding appropriate 

and individualized supports from various agencies and organizations.

Objective: HKNC will assist State vocational rehabilitation (VR) and employment programs in 

increasing employment outcomes for individuals who are deaf-blind.
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Helen Keller National Center

62

Measure: The number of referrals by HKNC’s regional offices to VR or related employment 

programs.

Year Target Actual

2018 65 71

2019 65 55

2020 65 79

2021 65 47

2022 65

2023 65

Additional information: HKNC field staff frequently facilitate interactions between consumers 

and VR agencies, including assistance for consumers who are returning to their State’s VR 

system after attending intensive training at HKNC headquarters. The number of referrals to VR 

agencies fluctuates depending on whether the consumers served by HKNC field staff have 

vocational goals.

Measure: The percentage of individuals who achieved successful employment outcomes in 

which HKNC’s regional offices played a collaborative role contributing training, advocacy and/or 

support to the consumer or job training agency.

Year Target Actual 

2018 45% 41%

2019 45 47

2020 45 35

2021 45 35

2022 45

2023 45

Additional information: The numerator is the number of clients served by HKNC regional 

representatives who achieved employment outcomes in which HKNC’s regional offices played a 

collaborative role providing training, advocacy and/or support to the consumer or job training 

agency. The denominator is the total number of consumers served by HKNC regional 

representatives who achieved employment outcomes.
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63

Randolph-Sheppard Vending Facility Program

(Randolph-Sheppard Act, 20 U.S.C. §107 et. seq.)

(dollars in thousands)

FY 2023 Authorization: Proposed legislation

Budget Authority:

2022 Estimate 2023 Request Change 

0 $500 $500

PROGRAM DESCRIPTION

The Vending Facility program authorized by the Randolph-Sheppard Act provides persons who 

are blind with remunerative employment and self-support through the operation of vending 

facilities on Federal and other property. The program, enacted into law in 1936, was intended to 

enhance employment opportunities for trained, licensed blind persons to operate facilities. The 

law was subsequently amended in 1954 and again in 1974 to ultimately give individuals who are 

blind priority in the operation of vending facilities, which included cafeterias, snack bars, and 

automatic vending machines, that are on Federal property. The program priority has broadened 

in most States to include State, county, municipal, and private locations as well. Under the 

program, State licensing agencies (SLAs) recruit, train, license, and place individuals who are 

blind as operators of vending facilities located on Federal and other properties. The act 

authorizes a blind individual licensed by the SLA to conduct specified activities in vending 

facilities through permits or contracts.

In fiscal year 2020, a total of 1,697 blind vendors operated 2,183 vending facilities located on 

Federal and other property. The program generated $564.9 million and the average vendor 

earnings amounted to $55,958.

Funding levels for the past 5 fiscal years were as follows:

Fiscal Year (dollars in thousands)

2018 $0

2019 0

2020 0

2021 0

2022 Estimate 0

FY 2023 BUDGET REQUEST

For fiscal year 2023, the Administration requests $500,000 for the newly proposed RandolphSheppard Vending Facility program, which would support a competitively awarded center that 

would provide training and technical assistance to SLAs and blind vendors. Of this amount, 
REHABILITATION SERVICES

Randolph-Sheppard Vending Facility Program

64

approximately $3,000 would be used to support the peer review process, and the remaining 

$497,000 would be used to provide training and technical assistance. The request includes 

appropriations language that would authorize the new program. 

In fiscal year 2021, Congress provided $20 million in one-time relief and restoration payments to 

blind vendors who incurred losses under the Randolph-Sheppard Vending Facility program in 

calendar year 2020 due to the COVID-19 pandemic. While SLAs have worked hard to support 

blind vendors during this time, many SLAs have struggled to keep up with the number and 

complexity of requests from blind vendors for technical assistance and other support to ensure 

the effective operation of the Vending Facility Program. Additionally, many SLAs also need 

further support to ensure that their State rules align with current requirements. 

Establishing a federally-funded training and technical assistance center would support efforts to 

help blind vendors fully recover from the COVID-19 pandemic. Key activities would include

technical assistance to SLAs and blind vendors on programmatic requirements, including fiscal 

and reporting requirements under the Randolph-Sheppard Act. The grantee also would support 

States by establishing communities of practice around key topics, and sharing best practices

and innovative approaches among SLAs and blind vendors. Additionally, the grantee would 

develop and provide training for blind vendors, supplementing the trainings already being 

provided by SLAs.

PROGRAM PERFORMANCE INFORMATION

Performance Measures

The Department will establish goals and performance indicators to assess the impact and 

effectiveness of activities supported by the training and technical assistance center through the 

Randolph-Sheppard Vending Facility Program. Potential indicators include the number of 

trainings provided and arbitrations requested, the number of blind vendors and facilities, and the 

average vendor earnings.
REHABILITATION SERVICES

65

Account Summary Table

DEPARTMENT OF EDUCATION FISCAL YEAR 2023 PRESIDENT'S BUDGET

(in thousands of dollars)

Cat

Code

2021

Appropriation 2022 Estimate 2023 Request

2023 Request Compared to

2022 Estimate

Amount Percent

Rehabilitation Services

1. Vocational rehabilitation State grants:

(a) Grants to States (RA Title I-A, sections 110 and 111) M 3,414,895 3,455,539 3,671,483 215,944 6.25%

(b) Grants to Indians (RA Title I-C) M 50,650 51,592 53,091 1,499 2.91%

Subtotal M 3,465,545 3,507,131 3,724,574 217,443 6.20%

Mandatory baseline M 3,675,021 3,719,121 3,949,707 230,586 6.20%

2. Client assistance State grants (RA section 112) D 13,000 13,000 13,000 0 0.00%

3. Training (RA section 302) D 29,388 29,388 29,388 0 0.00%

4. Demonstration and training programs (RA section 303) D 5,796 5,796 40,796 35,000 603.86%

5. Protection and advocacy of individual rights (RA section 509) D 18,150 18,150 18,150 0 0.00%

6. Supported employment State grants(RA VI) D 22,548 22,548 22,548 0 0.00%

7. Independent living services for older blind individuals (RA VII, Chapter 2) D 33,317 33,317 33,317 0 0.00%

8. Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) D 17,000 17,000 18,500 1,500 8.82%

9. Randolph-Sheppard Vending Facility Program D 0 0 500 500 ---

Subtotal 139,199 139,199 176,199 37,000 26.58%

Total 3,604,744 3,646,330 3,900,773 254,443 6.98%

Discretionary D 139,199 139,199 176,199 37,000 26.58%

Mandatory M 3,465,545 3,507,131 3,724,574 217,443 6.20%

NOTES:

1) D = discretionary program; M = mandatory programs

2) Pursuant to the Budget Control Act of 2011 (P.L. 112-25), for most mandatory programs, with the exception of Pell Grants, Credit Liquidating, and Credit Reestimates the levels

shown in the 2021 Appropriation column reflect the 5.7 percent reduction that went into effect on October 1, 2020; the levels shown in the 2022 Estimate column reflect the 5.7

percent reduction that went into effect on October 1, 2021.

3) Detail may not add to totals due to rounding.

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