1Department of Education

REHABILITATION SERVICES

Fiscal Year 2019 Budget Request

CONTENTS

Page

Appropriations Language ......................................................................................................... I-1

Analysis of Language Provisions and Changes........................................................................ I-2

Appropriation, Adjustments, and Transfers .............................................................................. I-3

Summary of Changes .............................................................................................................. I-4

Authorizing Legislation............................................................................................................. I-5

Appropriations History.............................................................................................................. I-6

Summary of Request ............................................................................................................... I-7

Activities:

Vocational rehabilitation State grants .............................................................................I-10

Client assistance State grants ........................................................................................I-28

Training ..........................................................................................................................I-34

Demonstration and training programs.............................................................................I-40

Protection and advocacy of individual rights...................................................................I-47

Supported employment State grants ..............................................................................I-52

Independent living services for older blind individuals ....................................................I-60

Helen Keller National Center..........................................................................................I-65

State Tables*

State tables reflecting final 2017 allocations and 2018 and 2019 estimates are posted on the 

Department’s webpage at: https://www2.ed.gov/about/overview/budget/statetables/index.html
I-1

Appropriations Language

REHABILITATION SERVICES

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

Helen Keller National Center Act, $3,634,977,000, of which $3,521,990,000 shall be for grants 

for vocational rehabilitation services under Title I of the Rehabilitation Act.

1

NOTES

A full-year 2018 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, 2018 (Division D of 

P.L. 115-56, as amended). The amounts included for 2018 reflect the annualized level provided by the continuing 

resolution.

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

Provisions and Changes document which follows the appropriations language.
REHABILITATION SERVICES

I-2

Analysis of Language Provisions and Changes

Language Provision Explanation

1 ...of which $3,521,990,000 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.
REHABILITATION SERVICES

I-3

Appropriation, Adjustments, and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2017

2018 

Annualized CR 2019

Discretionary:

Discretionar y: Appropriation................................................. $137,035 0 $112,987

Discretionar y: Annualized CR (P.L. 115-56, as amended)... 0 $136,105 0

Total, discretionary appropriation .......... 137,035 136.105 112,987

Mandatory:

Mandator y: Appropriation................................................. 3,398,554 3,452,931 3,521,990

Mandator y Sequester (P.L. 112-25)................................ -234,500 -227,893 0

Total, adjusted mandatory appropriation ... 3,164,054 3,225,038 3,521,990

Total, discretionary and adjusted 

mandatory appropriation............................ 3,301,089 3,361,143 3,634,977
REHABILITATION SERVICES

I-4

Summary of Changes

(dollars in thousands)

2018 Annualized CR ................................................................... $3,589,0361

2019............................................................................................... 3,634,977

Net change................................................................ +45,941

1 Excludes the 6.6 percent reduction of mandatory VR State Grant funds pursuant to the Budget Control Act 

(P.L. 112-25) that went into effect on October 1, 2017. The reduced level for 2018 subsequent to the 6.6 percent 

sequester is $3,361,143, a reduction of $227.9 million.

Increases:

2018

Annualized 

CR 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. $3,452,931 +$69,059

Program

Increase in funding for the Demonstration and Training program 

to support a new inclusive apprenticeship technical assistance 

center for individuals with disabilities. +3,539

Increase in funding to reflect the President’s Budget request to 

fund discretionary programs (excluding Supported Employment 

State Grants) at FY 2017 enacted levels. This amount would 

restore cuts resulting from the 0.6791 percent across-the-board 

reduction included in the FY 2018 Annualized CR Level. +704

Subtotal, increases +73,302

Decreases:

2018

Annualized

CR base

Change 

from base

Program:

No funds are requested for Supported Employment State grants. 27,361 -27,361

Net change +45,941
REHABILITATION SERVICES

I-5

I-5

Authorizing Legislation

(dollars in thousands)

Activity

2018

Authorized

footnote

2018

Annualized CR

footnote

2019

Authorized

footnote

2019

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B-110 and 111) $3,452,931 1 $3,184,8492$3,521,9903 $3,478,238

VR Grants for Indians (RA-I-C) (1, 4) 40,189 (3,4) 43,752

Client assistance State grants (RA-I-112) 13,488 12,912 13,488 13,000

Supported employment State grants (RA-VI) 30,963 0 30,963 0

Training (RA-III-302) 37,830 29,188 37,830 29,388

Demonstration and training programs (RA-III-303) 6,515 5,757 6,515 9,296

Services for older blind individuals (RA-VII-2) 36,635 33,091 36,635 33,317

Protection and advocacy of individual rights (RA-V-509) 19,838 17,530 19,838 17,650

Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) 0 5 10,316 05 10,336

Undistributed 0 27,3616 0 0

Total definite authorization 3,598,200 3,667,259

Total discretionary appropriation 136,105 112,987

Total mandatory appropriation 3,452,931 3,521,990

Total appropriation 3,589,036 3,634,977

Portion of request not authorized 10,336

Total appropriation including required mandatory reduction 3,361,1432

_______________________________

1 The authorizing legislation specifies that the amount to be appropriated for VR State grants for a fiscal year be at least at 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). In FY 2018, this amount 

was $3,452,931 thousand. 2 The amount reflects the 6.6 percent reduction of mandatory programs that went into effect on October 1, 2017, pursuant to the Budget Control Act of 2011 

(P.L. 112-25). 3 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 CPIU. In FY 2019, this amount is $3,521,990 thousand. 4 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. 5 The GEPA extension expired September 30, 2004; continued funding is proposed for this program in FY 2019 under appropriations language. 6 These funds are undistributed pending final Congressional action on the FY 2018 budget for the Rehabilitation Services account.
REHABILITATION SERVICES

I-6

Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation

Foot2010 $3,500,735 $3,504,305 $3,507,3221 $3,506,861

2011 3,565,326 3,501,7662 3,542,5101 3,474,7183

2012 3,541,111 3,522,6864 3,511,7354 3,511,281

2013 3,517,710 3,511,2815 3,626,3805 3,622,925

2014 3,655,577 N/A6 3,698,1741 3,680,497

2015 3,683,335 N/A6 3,722,8537 3,709,853

2016 3,532,109 3,529,6058 3,487,8648 3,529,605

2017 3,541,389 3,534,0279 3,536,3899

1

0 3,535,5899

2018 3,563,008 3,562,58210 3,562,41810 3,361,14310

2019 3,634,977

1 The levels for the Senate allowance reflects Committee action only. 2 The levels for the House allowance reflects the House-passed full-year continuing resolution. 3 The level for appropriation reflects the Department of Defense and Full-Year Continuing Appropriations Act, 2011 

(P.L. 112-10). 4 The level for the House allowance reflects an introduced bill and the level for the Senate allowance reflects Senate 

Committee action only.

5 The level for the House and Senate allowances reflect action on the regular annual 2013 appropriations bill, which 

proceeded in the 112th Congress only through the House Subcommittee and the Senate Committee. 6 The House allowance is shown as N/A because there was no Subcommittee action. 7 The level for the Senate allowance reflects Senate Subcommittee action only. 8 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. 9 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. 10 The levels for the House reflect floor action on an Omnibus appropriation bill; Senate allowances reflect Committee 

action on the regular annual 2018 appropriations bill; the Appropriation reflects the annualized Continuing Resolution 

level.
I-7

Summary of R equ est

Click here for accessible version 

DEPARTMENT OF EDUCATION FISCAL YEAR 2019 PRESIDENT'S BUDGET 

(in thousands of dollars)

Amount Percent

Rehabilitation Services 

1. Vocational rehabilitation State grants:

(a) Grants to States (RA Title I-A, sections 110 and 111) 1 M 3,121,054 3,184,849 3,478,238 293,389 9.21%

(b) Grants to Indians (RA Title I-C) M 43,000 40,189 43,752 3,563 8.87%

Subtotal 1 3,164,054 3,225,038 3,521,990 296,952 9.21%

Mandatory baseline M 3,398,554 3,452,931 3,521,990 69,059 2.00%

 2. Client assistance State grants (RA section 112) D 13,000 12,912 13,000 88 0.68%

 3. Training (RA section 302) D 29,388 29,188 29,388 200 0.69%

 4. Demonstration and training programs (RA section 303) D 5,796 5,757 9,296 3,539 61.47%

 5. Protection and advocacy of individual rights (RA section 509) D 17,650 17,530 17,650 120 0.68%

 6. Supported employment State grants (RA VI) D 27,548 0 0 0 ---

 7. Independent living services for older blind individuals (RA VII, Chapter 2) D 33,317 33,091 33,317 226 0.68%

 8. Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) D 10,336 10,266 10,336 70 0.68%

Undistributed 2 --- 27,361 --- (27,361) -100.00%

Subtotal 137,035 136,105 112,987 (23,118) -16.99%

Total 3,301,089 3,361,143 3,634,977 273,834 8.15%

Discretionary D 137,035 136,105 112,987 (23,118) -16.99%

Mandatory M 3,164,054 3,225,038 3,521,990 296,952 9.21%

NOTES: D = discretionary program; M = mandatory program

Detail may not add to totals due to rounding. 

1

 For the Vocational Rehabilitation State Grants program the level shown in the 2017 Appropriation column reflects the 6.9 percent reduction that went into effect on October 1, 2016, and the level shown in the 

 2018 Annualized CR column reflects the 6.6 percent reduction that went into effect on October 1, 2017, pursuant to the Budget Control Act of 2011 (P.L. 112-25). 

2 These funds are undistributed during the continuing resolution pending final Congressional action on the FY 2018 budget.

2019 President's Budget 

Category Compared to 2018 Annualized CR 

Code

2017 

Appropriation 

2018 

Annualized CR

2019 

President's 

Budget
REHABILITATION SERVICES

I-8

Summary of Request

A full-year fiscal year 2018 appropriation was not enacted at the time the fiscal year 2019 

Budget was prepared; therefore, the Budget assumes the Department is operating under the 

Continuing Appropriations Act, 2018 (Division D of P.L. 115–56, as amended). The amounts 

included for fiscal year 2018 reflect the annualized level provided by the continuing resolution.

People with disabilities represent a vital and integral part of our society. Giving 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 by Title IV of the Workforce Innovation and Opportunity Act (WIOA), enacted 

in July of 2014. WIOA supports the Nation’s workforce development system through programs 

and investments in employment services, workforce development, adult education, and 

vocational rehabilitation.

The Administration’s 2019 Request for the Rehabilitation Services account provides $3.6 billion

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 assist older individuals who are blind live more 

independently. 

The $3.5 billion request for the Vocational Rehabilitation (VR) State Grants program includes an 

increase of $69.1 million over the fiscal year 2018 mandatory level, consistent with the 

inflationary 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 ensure 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. 

For fiscal year 2019, the Administration requests $9.3 million for the Demonstration and Training 

programs, an increase of $3.5 million over the fiscal year 2018 annualized continuing resolution 

level. The requested increase would support an Inclusive Apprenticeships Center (IAC) that 

would further the goals of the President’s Executive Order on Expanding Apprenticeships in 

America (E.O. 13801) by expanding apprenticeship opportunities for individuals with disabilities, 

particularly individuals with significant disabilities.

Consistent with the President’s fiscal year 2018 Budget request, no funds are requested for the 

Supported Employment State Grants program. The Administration recognizes that supported 

employment can be an effective strategy in assisting individuals with the most significant 

disabilities to obtain competitive employment in integrated settings. However, the 

Administration believes that a separate supplemental grant program is not necessary for the 

provision of supported employment services and the proposed elimination would reduce 

unnecessary administrative burden and streamline program administration at the Federal and 

State levels.
REHABILITATION SERVICES

I-9

Summary of Request

All other programs in the Rehabilitation Services account would be maintained at the 2017

appropriation level. The Administration believes that this level will provide sufficient funds for 

the activities in these programs.
REHABILITATION SERVICES

I-10

Vocational rehabilitation State grants

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

(dollars in thousands)

FY 2019 Authorization: $3,521,9901

Budget Authority: 

Program

2018

Annualized CR 2019 footnote

Change from

Annualized CR

State grants $3,412,742 $3,478,238 +$65,496

Indian set-aside 40,189 43,752 +3,563

Total 3,452,9312

3,521,990 +69,059

1 The Vocational Rehabilitation State Grants program was reauthorized in July 2014 by the Workforce Innovation and 

Opportunities Act of 2014. 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). For fiscal year 2019 this amount is $3,521,990 thousand, an 

increase of 2.0 percent. 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 Indians. 2 The total amount shown in the 2018 column is the mandatory amount for the VR State Grants program and does 

not include the sequester reduction for mandatory programs pursuant to the Budget Control Act of 2011. The 

reduced level for 2018 subsequent to the 6.6 percent sequester that went into effect on October 1, 2017, is 

$3,225,037,554, a reduction of $227.9 million.

PROGRAM DESCRIPTION

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

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 are currently a total of 79 State 

VR agencies. Thirty-three States operate a “combined” agency serving all disability categories. 

Twenty-three 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 Urban Consumers.

Workforce Development System

The Vocational Rehabilitation (VR) State Grants program was reauthorized in July of 2014 in 

Title IV of the Workforce Innovation and Opportunity Act (WIOA). WIOA supports the Nation’s 

primary programs and investments in employment services, workforce development, adult 

education, and vocational rehabilitation. WIOA is designed to align workforce development, 

education, and economic development programs with regional economic development 

strategies to meet the needs of local and regional employers, and to provide services through a 

comprehensive, accessible, high-quality workforce development system. The one-stop system, 
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-11

established under 121(e) of WIOA, operates through a network of centers in each State that 

provide a variety of services to assist individuals to meet their employment and training needs, 

while also assisting local employers to meet their needs for qualified personnel. 

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

delivery system. As such, it is subject to provisions in the Rehabilitation Act under Title IV of 

WIOA, as well as applicable provisions under Title I of WIOA. For a State to be eligible to 

receive Federal funds for the core programs, 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. Final implementing regulations for the State VR 

and Supported Employment programs (Titles I and VI of WIOA), including rules on the use of 

subminimum wages under section 511 of the Rehabilitation Act (Title V of WIOA), as well as the 

jointly administered activities for the WIOA core programs (e.g., unified and combined state 

plans, performance accountability, and the one-stop system) were published on

August 19, 2016.

Performance Accountability 

Title I of WIOA establishes six performance accountability measures that apply across the core 

programs, including the VR program, to assess the effectiveness of States and local areas in 

achieving positive outcomes for individuals served by those programs. For WIOA core 

programs, including the State VR Grants program, States must report the results of the following 

primary performance indicators set forth in section 116 of WIOA. 

• Employment Rate – 2nd Quarter After Exit: The percentage of program participants who 

are in unsubsidized employment during the second quarter after exit; 

• Employment Rate – 4th Quarter After Exit: The percentage of program participants who are 

in unsubsidized employment during the fourth quarter after exit; 

• Median Earnings – 2nd Quarter After Exit: The median earnings of program participants 

who are in unsubsidized employment during the second quarter after exit; 

• Credential Attainment: The percentage of those participants enrolled in an education or 

training program (excluding those in on-the-job training and customized training) who attain 

a recognized postsecondary credential or a secondary school diploma, or its recognized 

equivalent, during participation, in or within one year after, exit from the program. 

• Measurable Skill Gains: The percentage of program participants who, during a program 

year, are in an education or training program that leads to a recognized postsecondary 

credential or employment and who are achieving measurable skill gains (defined as 

documented academic, technical, occupational, or other forms of progress) towards such a 

credential or employment; and

• Effectiveness in Serving Employers: Three approaches designed to gauge critical workforce 

needs of the business community are currently being piloted, including: retention with the 

same employer; repeat business customers, and; employer penetration rate. During the 

pilot, States must select two of the three approaches.
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-12

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

for and engage in competitive integrated employment, to the extent of their capabilities. 

Individuals who are eligible for assistance include those with a physical or mental impairment 

that results in a substantial impediment to employment, but who can benefit in terms of an 

employment outcome and also require VR services. 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 of mental or physical conditions, that may reasonably be expected to reduce or 

eliminate an impediment to employment. Priority is given to serving individuals with the most 

significant disabilities.

This is a current-funded formula grant program that provides financial assistance to States to 

cover the cost of direct services and program administration. Funds become available for 

obligation from October 1 of the fiscal year in which they are appropriated and remain available 

through September 30 of that year. 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 fiscal year 2 years earlier. 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. Previously, only 

the subsequent fiscal year’s grant could be reduced and the Department was required to 

recover penalties that were discovered after the subsequent fiscal year through an audit 

disallowance. 

An allotment formula that takes into account population and per capita income is used to 

distribute funds among the States. Each State is required to reserve and use at least 

15 percent of their Federal VR State Grant allotment to support pre-employment transition 

services for students with disabilities, provided in accordance with new 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).

The fiscal year 2017 State distributions were based on the July 1, 2015 estimates published in 

December 2015. The fiscal year 2018 State distributions are based on the July 1, 2016 

estimates published in December 2016. The fiscal year 2019 State distributions are based on 

the July 1, 2017 estimates published in December 2017. Per capita income averages for fiscal 

2017 are based on Bureau of Economic Analysis revised estimates for calendar years 2011, 

2012, and 2013 as reported by the Department of Commerce on September 30, 2014. Per 

capita income averages for fiscal years 2018 and 2019 are based on Bureau of Economic 

Analysis revised estimates for calendar years 2013, 2014, and 2015 as reported by the 

Department of Commerce on September 28, 2016.
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-13

American Indian VR Services (AIVRS)

The Rehabilitation Act requires that not less than 1.0 percent or more than 1.5 percent of the 

funds appropriated for the VR State grants program be set aside for grants under the AIVRS 

program (section 121 of the Act). Service grants for up to 5 years are awarded to Indian tribes 

on a competitive basis to help tribes develop the capacity to provide VR services to American 

Indians with disabilities living on or near reservations. Amendments made to the AIVRS 

program by WIOA require the Department to reserve not less than 1.8 percent and not more 

than 2 percent of the funds set aside for AIVRS 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) footnote

2014............................................ ........................$3,064,3051

2015............................................ ..........................3,091,6141

2016............................................ ..........................3,161,1301

2017............................................ ..........................3,164,054 1

2018............................................ ..........................3,225,038 1

1 The amounts shown for 2014 through 2018 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 7.2 percent in 2014,

7.3 percent in 2015, 6.8 percent in 2016, 6.9 percent in 2017, and 6.6 percent in 2018.

FY 2019 BUDGET REQUEST

For fiscal year 2019, the Administration requests $3.5 billion for the VR State Grants programs, 

$69.1 million over the fiscal year 2018 mandatory level, to help States and Tribal governments 

increase the participation of individuals with disabilities in the workforce. The fiscal year 2019 

request reflects the current estimate of the mandatory amount required by the authorizing 

statute. Of the amount requested, $43.8 million must be set aside to support grants under the 

American Indian Vocational Rehabilitation Services (AIVRS) program. 

While individuals with disabilities are a vital and integral part of American society, some face 

particular barriers to high-quality employment. Although many people with disabilities are 

obtaining jobs and remaining employed, the unemployment rate for people with disabilities is 

still very high. For example, in the “Persons with a Disability: Labor Force Characteristics” 

report released in June 2016 (2015 data), the U.S. Bureau of Labor Statistics released results 

from the Current Population Survey indicating that of those aged 16-64 (U.S. working age 

population), people with sensory, physical, mental, and/or self-care disabilities are significantly 

less likely to be employed (either full time or part time) than people without such disabilities 

(26.9 percent versus 72.2 percent, respectively) and that only 19.2 percent of working-age 

individuals with disabilities were usually working full-time. Of those people with disabilities who 

were employed, 28.8 percent usually worked part time (less than 35 hours per week) compared 

to 16.8 percent of people without such disabilities. In addition, employed persons with a 
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-14

disability were more likely to be self-employed (10.0 percent) than those with no disability 

(6.3 percent).

1

Through the workforce development system, WIOA fosters new opportunities for innovation 

and collaboration across Federal, State, and local agencies, private organizations, and 

employers. WIOA also promotes increased access to employment, education, training, and 

support services to assist individuals with employment barriers, such as individuals with 

disabilities and youth, to succeed in the competitive labor market. The VR State Grants 

program is a critical component of the 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 competitive integrated employment. 

Nationally, there are approximately 1.3 million eligible individuals with disabilities in various 

phases of the vocational rehabilitation process within the VR system, about three-quarters 

of who had an individualized plan for employment (IPE) during fiscal year 2016. About 94 

percent of these individuals were individuals with significant disabilities. 

Consistent with the Secretary’s ongoing focus on ensuring that State and local entities have 

flexibility and autonomy in administering Federal education programs, WIOA recognizes 

that local businesses are best positioned to inform the workforce development system. 

Within this system, local economies drive alignment between programmatic services and 

industry needs, thereby increasing opportunities for job-seekers. To take advantage of 

these opportunities, individuals with disabilities must acquire the skills needed to compete 

for, obtain, and advance in the same type of high quality jobs and high demand careers as 

persons without disabilities. Amendments to the VR State Grants program made by WIOA 

emphasize the importance of fostering working relationships between State VR agencies 

and business, including expanding the scope of services that a VR agency may provide to 

employers for the benefit of individuals with disabilities in achieving competitive integrated 

employment. Through these relationships with business, VR agencies are able to provide 

the services necessary to assist individuals with disabilities to gain the requisite skills and 

training, thereby promoting careers that match employers’ needs in the local area.

WIOA includes new unified State planning requirements intended to build positive 

cooperative working relationships between VR agencies and employers. Requiring VR 

agencies to plan how they will work collaboratively with employers, forces VR agencies to 

be thoughtful and strategic about building these relationships in order to expand work-based 

learning and employment opportunities for individuals with disabilities in their communities. 

The emphasis on the provision of services to students and youth with disabilities under 

WIOA also heightens the importance of the relationships between VR agencies and 

employers. The cooperative working relationships that VR agencies foster with employers

will be especially critical for the development of work-based learning experiences for 

students with disabilities with respect to the provision of pre-employment transition services. 

Apprenticeships are a growing strategy for connecting more workers with the skills they need to 

get jobs and offer youth and adults with disabilities a career pathway that provides competitive 

integrated employment. Recognizing the value of apprenticeships in providing affordable 

 

1 https://www.bls.gov/news.release/disabl.htm
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-15

pathways to secure high-paying jobs, the President signed Executive Order 13801 (June 25, 

2017), which seeks to expand access to and participation in apprenticeships, particularly the 

number of apprenticeships in sectors that do not currently have sufficient apprenticeship 

opportunities. With its mentoring and on-the-job training components, apprenticeship programs 

can be a highly successful strategy to recruit, train, and retain individuals with disabilities in both 

traditional and other high-growth industries.

Given the constantly changing workforce trends and demands, more pre-apprenticeship 

opportunities are also needed to help ensure that people interested in becoming apprentices, 

including people with disabilities, have the requisite skills and transferable competencies needed 

to enter apprenticeship programs and to succeed. Pre-apprenticeship experiences provide

participants with on-the-job training, the ability to fulfill meaningful job responsibilities, and the 

opportunity to hone employment skills. Lessons learned from early Federal investments 

highlight that youth and adults benefit from soft skill development, career exploration, 

individualized services, and competency training models that facilitate the acquisition of skills1

. 

In addition, a major concern in the workforce community is the gap between applicants' skills 

and employers’ needs. This concern also relates to employers’ apprehensions about hiring 

people with disabilities; they fear that the applicant may not be suitable due to limited work 

experience or skills.

1

 In collaboration with its workforce partners, VR State agencies can play 

an important role in promoting the value of apprenticeships as a strategy for ensuring that 

individuals with disabilities can demonstrate to employers that they have the required 

competencies. State VR agencies can also play an important role in working with 

apprenticeship programs to ensure that individuals with disabilities can successfully participate 

in such programs. For example, State agencies can provide a variety of services and supports 

that are beneficial to both employers and eligible individuals participating in or seeking 

apprenticeships including, vocational assessment, career exploration, job readiness training, 

identifying assistive technology devices and accommodations, and job coaching, job 

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

Despite the Department of Labor’s efforts to promote apprenticeships in recent years, a majority 

of disability-serving organizations that work with people with disabilities may not be aware of the 

potential that exists for creating apprenticeship or pre-apprenticeship programs and of the 

important role they can play in partnering with sponsors to support making such opportunities 

available to more people with disabilities. In recent years, the Department’s Rehabilitation 

Service Administration (RSA) has directed discretionary resources to improve the ability of State 

VR agencies to work with employers and training providers and to promote career pathways 

and work-based learning experiences for individuals with disabilities. Information on these 

 

1 Registered Apprenticeship Programs: Improving the Pipeline for People with Disabilities, Economic 

Systems Inc., July 2015. White paper funded by the Department of Labor, Office of Disability 

Employment Policy. https://www.dol.gov/odep/pdf/ApprenticeshipReport.pdf
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investments can be found on the Department’s website.

1

 State VR agencies are implementing a 

number of initiatives to build better working relationships and increase coordination with employers 

and workforce partners to improve opportunities for individuals with disabilities to engage in 

employment in the competitive labor market. However, RSA is only aware of two States that have 

active, productive relationships with apprenticeship programs (i.e., Nebraska and South Carolina). 

To further the goals of the President’s Executive Order on Expanding Apprenticeships in America 

(E.O. 13801), the Administration’s fiscal year 2019 request for the Special Demonstration and 

Training programs includes funds to support a 5-year Inclusive Apprenticeship Center that would 

provide intensive and targeted technical assistance to State VR agencies, business and 

industry, trade and labor organizations, and current and potential apprenticeship sponsors to 

expand apprenticeship opportunities for individuals with disabilities, particularly individuals with 

significant disabilities. 

While the Department is optimistic that changes resulting from WIOA will improve 

performance of the VR program in the long-term, we recognize that State VR agencies face 

significant implementation challenges, particularly where such changes are likely to 

increase program costs and the demand for services. Currently, 60.7 percent of the 56 

general and combined State VR agencies (2 more than in fiscal year 2017) and 13 percent 

of the 23 State VR agencies serving blind individuals have established an “order of 

selection,” consistent with program regulations at 34 CFR 361.36, because they cannot 

serve all eligible persons and must first serve those individuals with the most significant 

disabilities. Without additional resources, increased costs coupled with new set-asides and 

workforce infrastructure supports will strain resources for providing direct services to VR 

consumers. The requested increase, although subject to the sequestration of mandatory 

programs under Budget Control Act of 2011, will provide some assistance to States in 

addressing these resource challenges. 

Disability Innovation Fund 

In order to receive their full Federal VR allotment, States must provide the required non-Federal 

share (21.3 percent) and have met their maintenance of effort (MOE) requirement for the 

previous year. In recent years, the economic downturn negatively affected a number of States’

ability to meet these requirements. Section 110(b)(2) of the Rehabilitation Act requires the 

Commissioner of RSA to make available for reallotment to States any funds that were allotted 

but not utilized by a State to carry out the VR program, if they will be able to use such additional 

amounts during the current or subsequent fiscal year, provided they are able to pay the nonFederal share of the cost in the fiscal year for which the funds are appropriated. Historically, the 

Department had been able to reallot all of the funds that had been returned or unallotted due to 

MOE penalties because the request for additional funds exceeded the amounts available for 

reobligation. However, in fiscal years 2009 through 2015, there was a significant increase in the 

amount of funds returned by States, and there were fewer States that requested additional 

funds during reallotment because they were unable to match the Federal funds. As a result, the 

 

1 https://www2.ed.gov/about/offices/list/osers/rsa/programs.html 
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amount of funds returned by States at the end of the fiscal year, or remained unobligated due to 

MOE penalties, exceeded the additional funds requested.

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

that remained available subsequent to the reallotment of funds to States under the VR State 

Grants program 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.

Promoting Readiness of Minors in Social Security Income (FY 2012 and 2013 VR Funds)

In the fiscal year 2012 and 2013 appropriation bills, Congress provided authority to use these 

unobligated funds to improve the education and employment outcomes of children receiving 

Supplemental Security Income (SSI) and their families, including authority for the funds to 

remain available for Federal obligation for an additional 12-month period. 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 is 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 have developed

partnerships and are implementing interventions designed to improve the provision and 

coordination of services and supports for children who receive SSI and their families and 

achieve outcomes that lead to increased economic self-sufficiency and a reduction in their 

dependence on SSI payments. A rigorously designed national evaluation of PROMISE is being

conducted under a contract with SSA, in collaboration with the Department. The evaluation will 

result in several products, one of which was a series of early assessment reports that have 

assessed issues related to the implementation of the evaluation in each program and have 

provided recommendations for evaluation-related technical assistance.

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

available from the fiscal year 2013 appropriation for the VR State Grants program to cover 

continuation costs of the MDPs, as well as the costs of the PROMISE technical assistance 

center grant awarded in fiscal year 2014. 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 receive project services. Program participants in the 

intervention group are receiving services that include paid competitive employment 

opportunities.

For example, since 2015, 875 Arkansas PROMISE adults have completed PROMISE plans 

identifying long-term education and career goals, and approximately 895 youth have completed 

PROMISE plans identifying long-term education and career goals. Arkansas PROMISE youth 

have engaged in 891 paid work experiences with more than 300 employers. As of December 

2017, 762 Maryland PROMISE participants have secured paid employment experiences and 

541 participants have engaged in financial education and 653 participants have had the full 

work incentives counseling. In Wisconsin, over 596 PROMISE family members and 496 youth 
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have participated in paid community employment experiences. In addition, in California, 1,264 

(87%) of parents/guardians have received such services as referrals to agencies/organizations, 

coaching, and family resource center support. Additional information can be found on the 

PROMISE technical assistance center’s website.

1

In the first half of fiscal year 2018, the evaluation contractor will prepare drafts of MDP-specific 

process analysis reports. These reports will provide descriptions (through April 2017) of the 

different MDPs, including descriptions of participants and of the services available under 

PROMISE and usually available in the MDP site, including an analysis of changes of local 

partnerships under PROMISE. Final reports will be available in late fiscal year 2018. The 

evaluator will use these reports to inform the interim services and impact reports also due in late 

fiscal year 2018.

Automatic Personalization Computing Project (FY 2014 VR Funds)

The fiscal year 2014 appropriation included language that allows the Department to use funds 

that remain available subsequent to the reallotment of 2014 funds to State VR agencies to 

support activities under the PROMISE program and up to an additional $20 million of such funds 

for other innovative activities aimed at improving outcomes for individuals with disabilities. The 

2014 language also provided authority for the funds to remain available for Federal obligation 

until September 30, 2015. In fiscal year 2015, the Department used unobligated fiscal year 

2014 VR funds (about $37.2 million) to fully fund a 5-year innovative Automated Personalization 

Computing Project (APCP) ($20 million), and to provide supplemental awards to support 

PROMISE activities ($17.2 million). 

The goal of the APCP is to ensure that individuals with disabilities can 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), translation from one language to another, and volume levels of audio 

features. The 5-year project will develop an information technology (IT) infrastructure on which 

Internet-capable computers automatically run AT solutions customized for individual users with 

disabilities according to their preferences. In addition to piloting and testing the reliability of the 

infrastructure, the project will demonstrate the transferability of the automated personalization to 

ensure it can follow a person across multiple sites and multiple devices, and the scalability and 

sustainability of the model(s).

The APCP is designed as a public/private partnership and builds upon past research supported 

by the National Institute on Disability, Independent Living, and Rehabilitation Research 

(NIDILRR) on accessible computing, including its work with the World Wide Web Consortium’s 

Web Accessibility Initiative, which sets international standards for Internet accessibility. The 

Department is partnering with NIDILRR (now 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.

 

1 http://www.promisetacenter.org/.
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During fiscal year 2018, the APCP begins its third year of activities, transitioning from pre-pilot 

testing to pilot work with the selected American Job Centers. Results of pilot testing, including 

user experience feedback, will continuously inform refinement of the technology, support 

materials, and methods to be used in ongoing pilot implementations. In fiscal year 2019, pilot 

testing will expand to several high schools, a community college, and a community job 

center. The purpose of this pilot is to test 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.

Transition Work-Based Learning Demonstrations (FY 2015 VR Funds)

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 services and population of students with disabilities 

who may receive services under the VR program. In particular, States are required to reserve 

15 percent of their VR allotment to provide pre-employment transition services identified in new 

section 113 of the Rehabilitation Act 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.

While there is emerging consensus about the practices, factors, or elements that appear to 

contribute to the delivery of optimal transition services, the evidence base for specific 

interventions aligned with these elements is very limited. However, work-based learning is 

widely considered a key component in improving outcomes for youth with disabilities. Research 

conducted by Richard Luecking and others over the last 10 years has shown a strong 

relationship between work experiences during secondary school and post-school employment 

for youth with disabilities. Research also 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. 

Through the DIF authority, the Department awarded 5-year demonstration projects to five State 

VR agencies in fiscal year 2016 to identify and demonstrate work-based learning interventions 

for students with disabilities that are supported by research and rigorously evaluated. 

Information gained from these projects will be translated for use by State VR agencies in 

collaboration with their local partners to improve postsecondary and career outcomes for youth 

with disabilities. As with other DIF initiatives, the Department sought input in the early planning 

of this initiative from colleagues with related expertise in the Department, such as the Institute of 

Education Sciences, and our Federal partners from the Departments of Labor, HHS, and SSA. 

 1 Leucking, 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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In their first project year (2017), the Transition Work-Based Learning Model Demonstration 

projects focused on hiring staff, completing cooperative agreements with appropriate agencies,

refining their evaluation plans, and began the process of recruiting students for participation in 

their projects. In fiscal year 2018, the projects will continue to recruit students with disabilities 

and implement their service models. For example, Vermont’s Linking Learning to Careers 

project is assisting students with disabilities to transition to early career success by connecting 

community college career consultants with VR services and school programming, enhanced by 

work-based learning, assistive technology, mentors, college courses, transportation, and 

training. Maine’s Transition Work-Based Learning Model project is partnering with Jobs for 

Maine Graduates, 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 Maryland Work-Based Learning Collaborative model is improving career outcomes 

for youth with disabilities by incorporating early referral to the VR agency, work-based learning 

experiences, integrated employment; and collaboration among the Maryland Division of 

Rehabilitation Services, local educational agencies, community rehabilitation programs, 

America’s job centers, and employers.

DIF— Fiscal Year 2016 and Future Years

There were no unobligated VR State Grant funds remaining at the end of fiscal years 2016 or 

2017 and all available funds were reallotted to States before the end of their respective fiscal 

years. After a record high in fiscal year 2012 (over $100 million), the amount of available VR 

funds that were not reallotted to States by September 30 of that fiscal year had been gradually 

declining. In general, this trend suggested that States were slowly recovering from the earlier 

economic downturn and were stabilizing their spending patterns. In addition, the sequestration 

of mandatory funds in recent years has reduced the amount of funds State VR agencies would 

have otherwise received thorough the allotment formula and have been required to match. In 

fiscal years 2016 and 2017 there were more funds requested by States in the annual 

reallotment then there were available for the redistribution. 

Similar to previous years, a small percentage of States returned grant funds they had been 

awarded in fiscal year 2017 either because they were unable to provide the required match or 

meet their maintenance of effort (MOE). A total of 9 States and 2 outlying areas returned some 

of their fiscal year 2017 grant funds (approximately $100 million), while 30 States and 1 outlying 

area requested a total of nearly $200 million in fiscal year 2017 reallotment funds. Three of the 

11 VR agencies accounted for 62 percent of the returned funds. In addition, 7 State agencies 

had their fiscal year 2017 allotment reduced because they did not meet their fiscal year 2016

MOE requirement, and 1 State had an unrecovered prior year MOE penalty that was assessed 

in fiscal year 2017. The total amount of funds available for the fiscal year 2017 reallotment 

(MOE penalties plus funds relinquished) was $106 million. This amount is approximately 

$29 million less than the amount available for reallotment in fiscal year 2016.

The Department expects the number of State VR agencies that are unable to match their fiscal 

year 2018 and 2019 VR allocations to decline, while the number of States requesting an 

increase in funds during reallotment is expected to remain about the same or to slightly 

increase. The Department also expects that the number of States that are unable to meet their 
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MOE requirement will decline. Thus, the Department expects to be able to reallocate all

available grant funds to other State VR agencies in fiscal years 2018 and 2019. 

American Indian Vocational Rehabilitation Services

In fiscal year 2019, the Department would set aside $43.8 million for grants under the American 

Indian Vocational Rehabilitation Services (AIVRS) program. The request would enable the 

Department to provide support for 88 tribal VR projects, including 46 new awards and 42 

continuation awards. These funds assist tribal governments to provide a program of VR 

services in a culturally relevant manner to American Indians with disabilities residing on or near 

reservations. Consistent with Section 121(c) of the Rehabilitation Act, the Department plans to 

reserve 1.8 percent of these funds to support training and technical assistance to governing 

bodies of Indian tribes located on Federal and State reservations.

New subsection 121(c) of the Rehabilitation Act requires the RSA to reserve not less than 

1.8 percent and not more than 2 percent of the funds set aside from the State VR program

(section 110(c) of the Act) for the AIVRS program to provide training and TA to governing 

bodies of Indian tribes that have received AIVRS grants under section 121(a) of the Act. The 

Department awarded a cooperative agreement in fiscal year 2015 to establish an AIVRS 

Training and Technical Assistance Center. Under the terms of the grant, the performance of the 

grantee will be evaluated during the first 3 years of the grant and a decision made on whether to 

extend funding for an additional 2 years. 

PROGRAM OUTPUT MEASURES

Vocational rehabilitation State grants

Output Measures 2017 2018 2019

Individuals receiving VR services under an IPE 950,000 950,000 950,000

Individuals with significant disabilities as a percent of 

all individuals receiving services 94% 94% 94%

Eligible individuals whose case files were closed 463,000 452,000 454,000

Individuals whose cases were closed and received 

VR services 333,000 322,000 324,000

Individuals achieving an employment outcome 178,000 180,000 182,000

Individuals with significant disabilities as a percent of 

all employment outcomes 94% 94% 94%

_________________

Note: Data shown for fiscal years 2017 through 2019 are projections based on actual data for fiscal years 2015 and 

2016 from the RSA Quarterly Cumulative Caseload Report (RSA-113) and preliminary 2017 information. However, 

the transition to new data collection and reporting requirements during fiscal year 2017, as well as State efforts to 

prepare for the implementation of the WIOA accountability system, limit the usefulness of available data in making 

projections for fiscal years 2018 and 2019. 
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American Indian vocational rehabilitation services

(dollars in thousands)

Output Measures 2017 footnote2018 footnote2019 Footnote

Project funding:

Project fundi ng: New AIVRS project funds 0 0 $22,000

Project fundi ng: Continuation AIVRS project funds $42,226 1

$39,466 20,954

Project fundi ng: Technical assistancefunds 774 723 788

Project fundi ng: Peer review of new awards applications 0 0 10

Number of AIVRS projects:

Number of New projects – AIVRS 0 0 46

Number of Continuation projects – AIVRS 88 88 42

Total projects 88 88 88

 

1 The total amount for continuations shown in the 2017 column of the table includes about $3.4 million that will be 

used to pay a portion of the 2018 continuation costs.

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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 resources provided in previous years and those requested in fiscal 

year 2019 and future years, as well as the resources and efforts invested by those served by 

this program.

VR State Grants 

Section 106 of the Rehabilitation Act, as amended by WIOA, requires that the VR standards and 

indicators be consistent with the performance accountability measures established under title I 

of WIOA, thereby eliminating the standards and indicators that previously served as the basis 

for most of the VR State Grant program GPRA measures. WIOA requires States that operate 

core programs of the publicly funded workforce system, including the VR State Grants program,

to comply with common performance accountability requirements in section 116 of WIOA. In 

particular, section 116 of WIOA requires States that operate core programs to submit 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 barriers to employment.
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Consistent with its WIOA partners, the Department will collect program performance data on a 

quarterly basis for a 12-month program year (PY) cycle from July to June, rather than on a fiscal 

year cycle from October to September as it has done in the past. For the first 9 months of fiscal 

year 2017, State VR agencies continued to report program-specific annual data on closed 

service records through the Case Service Report (RSA-911-14). State VR agencies are 

expected to fully collect and report quarterly data on the joint performance measures and other 

data through the revised Case Service Report (RSA-911-16) for PY 2017 that began on 

July 1, 2017. The transition from the RSA-911-14 to the RSA-911-16 reporting requirements 

during fiscal year 2017 limits the usefulness of data collected under the RSA-911-14 in making 

projections for fiscal years 2018 and 2019. The data collected under the RSA-911-16 follow new 

WIOA definitions thus making comparisons to prior years invalid. During PYs 2017 and 2018, 

States are collecting baseline data for reporting under the WIOA accountability system. States 

will use this baseline data in program year 2019 for developing performance targets for inclusion 

in their 2020 Unified/Combined State Plan submissions. Baseline data will also be used to 

provide output and outcome estimates, as well as projections for subsequent program years.

For GPRA reporting for fiscal years 2015, 2016, and 2017, the Department developed interim 

GPRA measures that are more aligned with the WIOA joint performance measures until State 

performance data on those measures are available. The interim GPRA measures use available 

data from the Case Service Report (RSA-911-14) which States continued to use through June 

30, 2017 to assess program performance. Fiscal year 2016 performance data for these 

measures is presented below. Because these measures will only be used for a limited time, no 

targets have been established.

Interim VR Measures

Goal: Individuals with disabilities served by the Vocational Rehabilitation State Grant 

program will achieve high quality employment. 

Objective: Ensure that individuals with disabilities who are served by the Vocational 

Rehabilitation State Grant program achieve competitive integrated employment consistent with 

their particular strengths, resources, abilities, capabilities, interests, and informed choice.

Measure: Percentage of participants who exited the VR program in competitive integrated 

employment.

In fiscal year 2016, 54.7 percent of the 328,414 participants who exited the VR program 

obtained competitive integrated employment, a slight increase as compared to fiscal year 2015 

in which 54.3 percent of the 328,220 participants who exited the VR program obtained 

competitive integrated employment. State performance varied considerably in both years. For 

example, performance ranged from a low of 36.4 percent to a high of 69.4 percent in fiscal year 

2016. 

For the purposes of this interim measure and the interim measures below, A VR participant is 

an eligible individual who has an approved and signed IPE and has begun to receive services. 

A VR participant is reported to have exited the program when the participant’s record of service 

is closed. Competitive integrated employment is work in the competitive labor market that is 
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performed on a full-time or part-time basis in an integrated setting, and for which an individual is 

compensated at or above the minimum wage, but not less than the customary wage rate paid 

by the employer for the same or similar work performed by other individuals who are not 

disabled and who are similarly situated in similar occupations by the same employer and who 

have the similar training, experience, and skills, including eligibility for the same level of 

benefits. (See 34 CFR 361.5(c)(9)).

Measure: Median weekly earnings for participants who exited the VR program with a 

competitive integrated employment outcome.

The median weekly earnings for participants who exited the VR program with a competitive 

integrated employment outcome in fiscal year 2016 were $315, compared to $303 in fiscal year 

2015. Among States, median weekly earnings at exit ranged from $240 to $568 in fiscal year 

2016. It should be noted, however, that two of the five agencies that had median weekly 

earnings of over $400 included the Northern Marianas and the Virgin Islands each of which had 

less than 35 participants who exited with a competitive integrated employment outcome in fiscal 

year 2016. 

Median weekly earnings are based on RSA 911-14 State reported data for all 56 States, 

including the District of Columbia, Puerto Rico, and the 4 territories as defined in program 

regulations. 

Objective: Ensure that youth with disabilities who are served by the Vocational Rehabilitation 

State Grant program receive the education and training needed to achieve competitive 

integrated employment.

Measure: Percent of youth participants who exit the VR program who received at least one of 

seven specified training services. 

In fiscal year 2016, 43,827 of the 122,921 youth participants (35.7 percent) who were between 

the ages of 14 and 24 at the time of application and who exited the VR program in fiscal year 

2016 received at least one of seven specified training services. However, State performance 

varies considerably; excluding the 4 territories, performance ranged from a high of about 

76 percent to a low of about 8 percent in fiscal year 2016. In addition the number of youth 

participants who were between the ages of 14 and 24 at the time of application and who exited 

the VR program in fiscal year 2016 ranged from 263 to 9,544. Of the seven training services, 

the most frequently received was occupational or vocational training followed closely by 4-year 

college or university training. However, please note that under program regulations, training or 

training services in an institution of higher education (universities, colleges, community or junior 

colleges, vocational schools, technical institutes, or hospital schools of nursing or any other 

postsecondary education institution) may not be paid for with VR program funds unless 

maximum efforts have been made by the VR State agency and the individual to secure grant 

assistance in whole or in part from other sources to pay for that training.

For the purpose of this measure, youth participants are youth with a disability between the ages 

of 14 and 24 at the time of application to the VR program. Training services, for the purpose of 

this measure, include graduate college or university training, 4-year college or university 
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training, junior or community college training, occupational or vocational training, apprenticeship 

training, basic academic remedial or literacy training, or miscellaneous training.

American Indian Vocational Rehabilitation Services

Performance Measures

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

on or near reservations by providing effective tribal vocational rehabilitation services.

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 employment outcomes, 

after receiving services under an individualized plan for employment.

Year Target Actual

2014 65% 67%

2015 66 68

2016 66 67

2017 67

2018 67

2019 67

Additional information: Data for fiscal year 2016 show that 67 percent of the 3,203 individuals 

with disabilities who exited the program after receiving services in that year achieved an 

employment outcome, and the performance target for this measure was met. However, there is 

a wide variation in the reported number and percentage of individuals who achieve an 

employment outcome by individual AIVRS projects. In fiscal year 2016, the 83 of the 84 

projects operating in that fiscal year (projects funded with fiscal year 2015 appropriations and 3 

projects operating under a no-cost extension) reported that they assisted a total of 2,148

American Indians with disabilities to achieve an employment outcome. These numbers do not 

include data for one of the 84 projects that Rehabilitation Service Administration is working with 

to obtain updated information. Fiscal year 2017 data will be available in May 2018.

Efficiency Measures

The Department established two efficiency measures to ensure that AIVRS projects 

demonstrate effective fiscal management. These include cost per employment outcome and 

cost per participant. 

Objective: Ensure that AIVRS projects demonstrate effective fiscal management. 
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Measure: The percentage of AIVRS projects that demonstrate an average annual cost per 

employment outcome of no more than $35,000.

Year Target Actual

2014 72% 80%

2015 76 68

2016 76 72

2017 76

2018 76

2019 76

Additional information: This efficiency measure examines the percentage of AIVRS projects 

having a cost per employment outcome within a specified range. The source of data for this 

measure is the AIVRS Annual Reporting Form. At the national level, the average cost per 

employment outcome for this program is calculated by dividing the amount of the set-aside, 

excluding peer review costs, by the total number of individuals who achieved an employment 

outcome. In fiscal year 2016, AIVRS projects reported assisting a total of 2,148 individuals to 

obtain employment outcomes, 313 more than the total reported in fiscal year 2015. As a result, 

62 projects demonstrated an average annual cost per employment outcome of no more than 

$35,000, as compared to 57 projects in 2015. However, overall performance remains below the 

2014 level. The median cost per employment outcome decreased from approximately $25,000

in fiscal year 2015 to $24,400 in fiscal year 2016. However, the cost per employment outcome 

varied significantly across projects. The Department expects that performance on this measure 

will continue to improve in fiscal year 2017 because the new projects awarded in fiscal year 

2015 will be in their second project period.

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

participant of no more than $10,000.

Year Target Actual

2014 86% 83%

2015 86 71

2016 86 76

2017 80

2018 80

2019 80

Additional information: At the national level, the average annual cost per participant for this 

program is calculated by dividing the amount of the set-aside, excluding peer review costs, by 

the total number of individuals who received services under an IPE. In fiscal year 2016, the 83 

of the 84 projects operating in that fiscal year (projects funded with fiscal year 2015 

appropriations and 3 projects operating under a no-cost extension) reported serving a total of 

7,063 American Indians with disabilities, 429 more than were served in 2015, so the percentage 

of AIVRS projects that met the average annual cost per participant of no more $10,000 
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increased to 76 percent. However, performance remained below the target based on prior year 

levels and the target was not met. While the Department expects performance to improve 

slightly in fiscal year 2017, the target has been lowered to reflect an increase costs. The 

median annual cost per participant for the 86 projects reporting data was $6,158 in fiscal year 

2016.
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Client assistance State grants

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

(dollars in thousands)

FY 2019 Authorization: $13,805

Budget Authority: 

2018 

Annualized CR 2019

Change from

Annualized CR

$12,912 $13,000 +$88

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

protection of their rights. State VR agencies are required to inform VR consumers about the 

services available from the CAP and how to contact the CAP. Also, States must operate a CAP 

in order to receive VR State grant funds.

States and outlying areas have adopted different organizational structures for meeting the 

requirement to establish a CAP in each State. 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. 

Designations for the 57 CAPs, including the CAP for the American Indian consortium, are as 

follows:

• 10 of the Governors have designated the CAP to external State agencies;

• 8 of the Governors have designated CAP agencies internal to the VR agency; and

• 39 of the Governors have designated CAP to private or non-profit organizations. 

The CAP is a current-funded formula grant program. When appropriations exceed $7.5 million, 

funds are distributed on the basis of population, 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 Secretary to increase the minimum allotments 
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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 

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

appropriation is equal to or exceeds $14 million, the Secretary 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 fiscal year 2017 State distributions were based on 

the July 1, 2015 estimates published by the U.S. Census Bureau in December 2015. The fiscal 

year 2018 distributions are based on the July 1, 2016 estimates published in December 2016. 

The fiscal year 2019 distributions are based on the July 1, 2017 estimates published in 

December 2017.

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

Fiscal Year (dollars in thousands)

2014..........................................................$12,000

2015............................................................13,000

2016............................................................13,000

2017............................................................13,000

2018............................................................12,912

FY 2019 BUDGET REQUEST

The Administration requests $13.0 million for fiscal year 2019 for CAP, an increase of $88,000, 

to restore funding to the fiscal year 2017 level. 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

2016 from the most recent available RSA Annual Client Assistance Program Report (RSA-227)

show that, nationwide, CAPs responded to 28,600 requests for information and referral (I&R). 

While the average number of I&R requests that States responded to was 502, the median 

number was 91. The most frequent I&R requests were for information regarding the VR 

program (45 percent). 

In addition, CAPs provided extensive services to 5,113 individuals in fiscal year 2016. 

Approximately 96 percent of the cases in which extensive services were provided by the CAP 

involved applicants for, or recipients of, services from the VR program. In 93 percent of all

cases, issues raised were related to the VR process or delivery of VR services. Of the 3,867 

cases closed in fiscal year 2016, 1,603 cases (or 41 percent) were resolved through CAPs

explaining the controlling policies to the individual; 747 cases (19 percent) resulted in the 

development or implementation of an IPE; and 590 cases (15 percent) of these cases resulted 
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in the reestablishment of communication between the individuals and other parties. In addition, 

69 percent of the cases closed were resolved in the individual’s favor.

The following activities provided in fiscal year 2016 are examples of CAP activities. Fiscal year 

2019 funds may support similar activities.

• In California, CAP represented a consumer with mental health disabilities who wanted to 

work as a physical therapist. Before her application for vocational services, she had 

completed her Bachelor’s Degree and became certified as a Physical Therapy Aid and 

Sports Therapy Aid. She requested VR services to become a physical therapist which, in 

California, requires a Doctorate of Physical Therapy and state licensure. The consumer 

participated in a psychological assessment to determine her eligibility for services and 

vocational needs. Both assessments supported her requested employment goal and her 

ability to benefit from training services. However, the VR agency denied her request, stating 

that it would only assist her with obtaining employment at her current level of education as a 

Physical Therapy Aid or a Sports Therapy Aid. The consumer disagreed with the denial of 

her vocational goal and training services and requested an Administrative Review. 

The CAP contacted the VR agency to clarify the consumer’s concerns. The VR agency, 

misinterpreting a state regulation to mean that the VR agency is only obligated to provide 

training services that allow the consumer to obtain entry-level employment at her current 

level of education, again denied the consumer’s request. VR program regulations at 

§361.42(a)(1)(iii) clarify that an applicant meeting all other eligibility criteria may be 

determined eligible if he or she requires services to advance in employment, not just obtain 

or maintain employment. The CAP requested mediation and an administrative hearing on 

the consumer’s behalf to appeal the denial. At mediation, the parties were able to come to 

an agreement that an IPE would be developed within 30 days for the vocational goal of 

Physical Therapist that includes training services for a doctorate degree at an approved 

physical therapy program. The CAP then represented the consumer in informal negotiations 

with the VR agency to develop her IPE. As a result of this representation, the consumer has 

obtained an IPE that includes a goal that matches her interests, skills, and abilities, with the 

services and supports needed for her to become a successful physical therapist. 

• In New Jersey, the CAP intervened on behalf of a 61-year-old individual diagnosed with mild 

cognitive and visual impairment resulting from brain surgery. The client, formerly a teacher 

with 25 years of teaching experience, contacted the CAP when the VR agency informed him 

they could not assist him. A CAP advocate attended a meeting with the VR agency and the 

client and advocated for the provision of appropriate vocational rehabilitation services. The 

client agreed to attend a 25-day program recommended by the VR agency to evaluate his 

ability to work competitively. However, citing poorly defined provider program goals 

unrelated to his vocational goal, the client expressed dissatisfaction with the assessment

report’s recommendation that he remain in the program an additional 60 days. Based on the 

client’s concerns, the CAP advocated for alternative services. An agreement was reached 

for the client to attend a short-term cognitive rehabilitation program to address residual 

memory and organizational deficits. The client completed the program and shortly 

afterwards secured part-time employment as a tutor in the school district where he was 

previously employed.
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• In Hawaii, a 53 year-old individual who was working full time who needed assistive 

technology equipment to allow him to maintain his employment contacted CAP when he was 

determined by the VR agency to be ineligible for VR services. When the CAP advocate was 

assigned the case, he investigated the case and was told by the VR counselor that the client 

was found ineligible not because he didn’t have a qualifying disability, but because it was 

determined he was not at risk of losing his job. Upon further questioning of the VR 

counselor, the CAP advocate was informed that the counselor had not spoken or otherwise 

communicated with the client’s work supervisor. The CAP advocate held a conference call 

with the client, the VR counselor and the VR supervisor and it was agreed the counselor 

would contact the client’s supervisor at work. The very next day, the client was found eligible 

for VR services and a meeting was scheduled for the client to develop an IPE necessary to 

acquire assistive technology that would allow him to maintain his employment.

• In Missouri, CAP assisted a 46 year-old individual diagnosed with brittle bone disease and a 

hearing impairment in obtaining services from the VR agency. The consumer sought 

additional job training and certification that would allow him to be employed. The client had 

been an electrician when he became disabled due to bone fusions. VR had previously 

assisted the client to obtain an Associate’s and Bachelor’s degree in Information Technology 

Project Management. However, the client was unable to find employment in the field of his 

choice and identified additional training and certification was needed for this field. The 

advocate provided advocacy services with the client during a meeting with the VR agency 

and during the development of an IPE matching the client’s goal for employment as an 

Information Technology Project Manager. The VR agency agreed to assist the client in 

obtaining the proper certifications for A+, Networking, and Security via a one-to-one 

instructor from a local college and in assisting in job placement.

PROGRAM OUTPUT MEASURES

Output Measures 2017 2018 2019

Information inquiries/referrals 34,400 34,200 34,400

Individuals provided case services 5,000 4,800 5,000

_______________________________

NOTE: Data for fiscal years 2017 through 2019 are projected from actual final data reported for fiscal years 2015 and 

2016, and preliminary fiscal year 2017 data on requests for information and the provision of extensive service through

RSA Annual Client Assistance Program Report (RSA-227). Final data for fiscal year 2017 will be available in May of 

2018. 

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures, and performance targets and data, and an assessment of the 

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

cumulative effect of the resources provided in previous years and those requested in fiscal year 
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2019 and future years, as well as the resources and efforts invested by those served by this 

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.

2014 72% 78%

2015 74 72

2016 74 68

2017 74

2018 72

2019 72

Additional information: CAPs address numerous systemic issues related to the provision of 

VR and other services under the Act. CAPs utilize a variety of methods to achieve changes in 

policies and practices, including individual advocacy, participation in the policymaking process, 

and negotiation with State agencies. Permanent systemic change is very difficult to achieve, 

and some States undertake activities that may take years to accomplish. All CAPs are engaged 

in work that should ultimately result in systemic change, but this indicator measures only those 

States that report their activity as complete. Thus, performance on this measure often varies 

from year to year. Data are compiled from narrative reports submitted by all CAPs. A random 

sample of files is cross-checked with reported data to verify the data quality. The grantees input 

their data into the RSA Management Information System (MIS), which has edit checks to verify 

the accuracy of the information entered into the data fields. The information provided is based 

on data from 56 State designated CAPs and the American Indian Consortium CAP authorized in 

the amendments to the Rehabilitation Act under Title IV of WIOA.

CAP performance on this measure has increased over time, as the baseline established in 1999 

was 43 percent (24 of 56 agencies). Performance on this measure jumped from 73 percent in 

fiscal year 2013 to 78 percent in fiscal year 2014 (an increase of 4 agencies) and the targets for 

this measure were increased for future years. However for the past 2 years, performance has 

dropped below the fiscal year 2013 level. In fiscal year 2016, only 68.4 percent of the CAP 

agencies (39 of 57 agencies) reported that their systemic advocacy resulted in changes in policy 

or practice, 2 less than in fiscal year 2015, and the target was not met. Based on analysis of 

data from fiscal years 2013 through 2016, the Department has adjusted the targets for fiscal 

years 2018 and 2019 for this measure. Performance data for fiscal year 2017 will be available 

in June 2018.
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Objective: Resolve cases at lowest possible level. 

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

(ADR).

Year Target Actual 

2014 98% 99%

2015 98 98

2016 98 99

2017 98

2018 98

2019 98

Additional information: The information provided is based on data from 56 State designated 

CAPs and the American Indian Consortium CAP authorized in the amendments to the 

Rehabilitation Act under Title IV of WIOA. For fiscal year 2016, 3,930 of the 3,983 cases closed 

(98.7 percent) were resolved through the use of ADR strategies, such as technical assistance, 

negotiation and mediation. The percentage of cases being resolved through the use of ADR 

strategies 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. Performance data for fiscal year 2017 will be available in 

June 2018.
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Training

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

(dollars in thousands)

FY 2019 Authorization: $38,719

Budget Authority: 

2018

Annualized CR 2019

Change from 

Annualized CR

$29,188 $29,388 +$200

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 31 long-term training fields, in addition to awards for continuing 

education, short-term training, experimental and innovative 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. For example, the LongTerm Training program supports academic training grants that must direct 75 percent of the 

funds to trainee scholarships. Students who receive financial assistance from projects funded 

under the program are required to pay back such assistance, either by maintaining acceptable 

employment in public or private non-profit rehabilitation agencies for a period of time after they 

complete their training, or by making a cash repayment to the Federal Government.

The Training program authority requires recipients of grants under the Long-Term Training 

program to build closer relationships between training institutions and State VR agencies, 

promote careers in public vocational rehabilitation programs, identify potential employers who 

would meet students’ payback requirements, and ensure that data on student employment are 

accurate. Training of statewide workforce systems personnel is authorized under the Training 

program, and such training may be jointly funded by the Department of Labor. Statewide 

workforce systems personnel may be trained in evaluation skills to determine whether an 

individual with a disability may be served by the VR State grants program or another component 

of the statewide workforce system. 
REHABILITATION SERVICES

Training

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

Fiscal Year (dollars in thousands)

2014.............................................................. ................$33,657

2015.............................................................. ..................30,188

2016.............................................................. ..................30,188

2017.............................................................. ..................29,388

2018.............................................................. ..................29,188

FY 2019 BUDGET REQUEST

For fiscal year 2019, the Administration requests $29.4 million for the Training program, an 

increase of $200 thousand over the fiscal year 2018 annualized continuing resolution (CR) level.

In fiscal year 2019, approximately $11.1 million would be used to support new awards (including 

peer review costs) and approximately $18.0 million would be used to support continuation 

awards.

The Training program is designed to support programs that provide training to new VR staff or 

upgrade the qualifications of existing staff. In recent years, the major focus of the program has 

been to address the shortage of qualified State VR agency staff by supporting long-term training 

programs at IHEs to train new counselors and administrators. Currently, VR agencies are 

undergoing dramatic turnover due to the retirement of a large number of qualified counselors. 

According to 2013 data from State VR agencies, there were 1,622 vacancies out of the 

17,655 total positions (9.1 percent of positions vacant) nationwide in these offices. Over the 

next 5 years, these agencies projected an additional 5,201 vacancies. This would mean that, in 

the next few years, State VR agencies may need to successfully fill 39 percent of existing 

positions just to maintain current staffing levels. The Department believes that similar 

shortages, though not as severe, will also affect other VR providers in the same timeframe. To 

address this issue, the Department has sought to target funds to address those areas of 

greatest need. Additionally, 75 percent of the funds awarded to universities under the LongTerm Training (LTT) program go directly to students for tuition assistance and stipends. Since 

this tuition assistance must be repaid through work in State VR agencies and other appropriate 

work settings, the Department believes that the LTT program is the best mechanism for 

recruiting new graduates into the rehabilitation field. As such, the Department plans to award 

approximately $11.1 million in new grants in this area in fiscal year 2019.

In fiscal year 2019, the Department would also continue support for technical assistance to 

State VR agency personnel and their partners to improve use of promising practices that have 

the potential to improve the performance of the VR program. Beginning in fiscal year 2014, the 

Department shifted its technical assistance strategy under this program from a network of 

comprehensive, regionally-based centers to supporting a series of targeted, topical centers that 

focus on providing a wide range of support to State VR agency personnel nationwide on a 

specific set of issues (see, for example, http://www.wintac.org). 
REHABILITATION SERVICES

Training

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PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2017

footnote

2018

foot

note

2019

foot

note

Program Funding:

Long-Term Training:

Long-Ter m Tr aini ng: New 0 0 $11,062

Long-Ter m Tr aini ng: Continuations $18,541 $18,388 7,703

Long-Ter m Tr aini ng: Subtotal 18,541 18,388 18,765

Technical Assistance:

Technical Assistance: Continuations 7,353 7,499 7,228

Technical Assistance: Subtotal 7,353 7,499 7,228

Short-Term Training:

Short-Ter m Traini ng: Continuations 200 200 200

Short-Ter m Traini ng: Subtotal 200 200 200

Training for Interpreters for Individuals 

who are Deaf and Deaf-Blind:

Training for Inter preters: Continuations 2,400 2,400 2,400

Training for Inter preters: Subtotal 2,400 2,400 2,400

Other Activities:

Other Acti viti es: Continuations 600 400 491

Other Acti viti es: Subtotal 600 400 400

Program Totals:

Total: New 0 0 11,062

Total: Continuations 29,094 28,887 18,022

Peer review of new award 

applications 0 0 10

Minority Outreach 1 294 301 294

Total 29,388 29,188 29,388

1 Section 21(b) the Rehabilitation Act requires the Rehabilitation Services Administration to set aside 1 percent of 

funds appropriated under this account for minority outreach activities.

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures and performance targets and data; and an assessment of the 
REHABILITATION SERVICES

Training

I-37

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

the cumulative effect of the resources provided in previous years and those requested in fiscal 

year 2019 and future years, and the resources and efforts invested by those served by this 

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.

Annual Performance Measures

This program has two annual performance measures. Both of these measures are designed to 

provide information on various aspects of the program, including its ability to address the 

shortage of State VR agency counselors and staff and the proportion of scholars fulfilling their 

payback requirements. While these measures alone do not provide a comprehensive view of 

the Training program, the Department believes that they do provide evidence as to the efficacy 

of the program and its expenditures. 

Measure: The percentage of masters-level counseling graduates fulfilling their payback 

requirements through employment in State Vocational Rehabilitation agencies.

Year Target Actual

2014 45% 32%

2015 47 30

2016 47 30

2017 45 29

2018 45

2019 40

Additional Information: The Department annually collects data about scholars through the 

Payback Reporting Form, which grantees submit by November 30 of each year. According to 

the Act, program graduates are able to meet the requirements of their payback through 

employment in a number of different types of agencies, including employment in private VR 

agencies or in related State agencies, such as special education. While program graduates are 

not mandated to meet their service obligation by working in State VR agencies, the Department 

believes that these agencies should be the main employer of these graduates, especially given 

the current and future shortages outlined above

The proportion of Masters-level counseling graduates fulfilling their payback requirements 

through employment in State VR agencies has decreased consistently since 2005, while the 

proportion opting for different employment settings to fulfill payback requirements has grown. 

Of all graduates, 63 percent were fulfilling their service obligation in some form of acceptable 

employment in 2017, with a majority of the employed graduates opting to work in settings other 

than the State VR agency. This overall trend may have been the result of a confluence of 

factors, including, but not limited to, the range of acceptable employment for meeting the service 

obligations outlined in statute, State hiring freezes, and the salary and working conditions in 
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Training

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State VR agencies relative to those in other acceptable employment settings. When combined 

with the lower salary offered by State VR agencies compared to private firms, it may be that 

more program graduates are opting to seek employment elsewhere, while still meeting the 

terms of their service obligation. 

To address this issue, in 2014, the Department developed new priorities for all LTT competitions 

that required, where appropriate, that students in LTT programs complete internships or 

practicum experiences in State VR agencies as a requirement for their program of study. We 

believe that these requirements will provide students with hands-on experience in State VR 

agencies, helping them to build rapport with current staff in those agencies and hopefully 

increasing the number of graduates who are willing to accept positions in such agencies.

Measure: The percentage of RSA-supported masters-level graduates fulfilling their payback 

requirements through acceptable employment.

Year Target Actual

2014 85% 78%

2015 80 74

2016 83 73

2017 85 71

2018 85

2019 85

Additional Information: Using the annual Payback Reporting Form, grantees are required to 

report the number of Rehabilitation Services Administration (RSA)-supported graduates fulfilling 

their payback requirements through acceptable employment. This measure captures all 

Masters-level program graduates who received RSA-supported scholarships. It also includes 

individuals maintaining acceptable employment in all acceptable agencies, not just State VR 

agencies. The Act requires that all program graduates maintain acceptable employment for at 

least 2 years for every year they received assistance from an RSA-supported grant. However, 

only four in five scholars are currently doing so. Among all program graduates, including those 

receiving undergraduate and graduate degrees and certificates, 63 percent were fulfilling their 

payback requirements through acceptable employment in 2017. It is possible that some portion 

of program graduates are receiving waivers of their payback requirements for various reasons, 

including exceptions and deferrals provided in accordance with 34 CFR 386.41, such as 

permanent disability or full-time enrollment in an institution of higher education. It is also 

possible that some subset of individuals who received scholarship support opt to obtain 

employment in for-profit rehabilitation agencies and simply repay their initial scholarship as if it 

were a loan. Without further information, the Department cannot determine the extent to which 

these explanations hold, but RSA has revised the Payback Reporting Form to be used by 

grantees in order to significantly improve the quality and accuracy of the data RSA receives 

about scholars.
REHABILITATION SERVICES

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Efficiency Measures

Measure: The Federal cost per RSA supported rehabilitation counseling graduate at the 

masters level.

Year Target Actual

2014 $24,000 $20,596

2015 24,000

2016 24,000

2017 24,000

2018 24,000

2019 24,000

Additional Information: The measure is calculated by dividing the total funds spent on longterm training during a fiscal year by the number of graduates supported under that program 

during the same fiscal year. The Department calculates this measure for individual cohorts of 

grantees by dividing the sum of all project costs supported with Federal funds (across all years 

of each individual scholar’s training) by the number of degree recipients who successfully 

completed funded training programs closing in that year. The Federal cost per RSA-supported 

graduate is in line with similar measures in other programs supporting training at the Masters 

level. However, there remains wide variation across types of programs and projects. Data for 

2015 are expected in spring 2018.
REHABILITATION SERVICES

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Demonstration and training programs

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

(dollars in thousands)

FY 2019 Authorization: $6,668

Budget Authority: 

2018

Annualized CR 2019

Change from

Annualized CR

$5,757 $9,296 +$3,539

PROGRAM DESCRIPTION

Demonstration and Training programs support activities to expand and improve the provision of 

rehabilitation and other services authorized under the Rehabilitation Act (the Act). Eligible

entities receive support through competitive grants and contracts. These current-funded 

discretionary programs are also authorized to support activities that increase the provision, 

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

research and evaluation activities. 

The majority of projects currently supported under Demonstration and Training programs are 

designed to increase employment opportunities for individuals with disabilities by expanding and 

improving the availability and provision of rehabilitation and other services. These projects are 

intended to increase employment outcomes for individuals for whom vocational rehabilitation 

services were previously unavailable or who previously did not take advantage of such services. 

Other activities authorized and currently funded under the Act include: 

• Section 303(b) of the Rehabilitation Act authorizes the support of 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 Vocational 

Rehabilitation (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 the parents, family members, guardians, advocates, or 

other authorized representatives of the individuals 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.
REHABILITATION SERVICES

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Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)Footnote

2014 ....................................................................$5,796

2015 ......................................................................5,796

2016 ......................................................................5,796

2017 ......................................................................5,796

2018 ......................................................................5,757

FY 2019 BUDGET REQUEST

For fiscal year 2019, the Administration requests $9.3 million for the Demonstration and Training 

programs, an increase of $3.5 million over the fiscal year 2018 annualized continuing resolution 

level. The requested increase would support an Inclusive Apprenticeships Center (IAC) that is 

intended to further the goals of the President’s Executive Order on Expanding Apprenticeships 

in America (E.O. 13801). The proposed 5-year IAC would provide intensive and targeted 

technical assistance (TA) to State VR agencies, business and industry, trade and labor 

organizations, and current and potential apprenticeship sponsors to expand apprenticeship 

opportunities for individuals with disabilities, particularly individuals with significant 

disabilities. The IAC would be developed in consultation with Department of Labor (DOL) and 

would build on the knowledge gained from the Department’s recent employer engagement and 

job-driven employment investments, as well as apprenticeship resources made available 

through DOL, including the Office of Disability Employment Policy (ODEP).

The IAC would work in collaboration with State VR agencies and other key partners to increase 

the participation of individuals with disabilities in existing apprenticeship programs, through the 

identification and provision of technical assistance and services to employers, training providers, 

and apprentices. The Center would also educate potential employers and apprenticeship 

sponsors about reasonable accommodations and employing individuals with disabilities. 

Through the VR program, State agencies can provide a variety of services and supports that are 

beneficial to both employers and eligible individuals participating in or seeking apprenticeships 

including, vocational assessment, career exploration, job readiness training, identifying assistive 

technology devices and accommodations, and job coaching, job restructuring, and/or postemployment services as necessary. The IAC would also provide technical assistance to 

develop new apprenticeship and pre-apprenticeship programs designed to accommodate the 

needs of individuals with disabilities in high demand occupations. Building on the existing work 

in State VR agencies related to customized training and career pathways, the Center would 

develop these opportunities into full apprenticeship programs that involve individuals with 

disabilities from the start.

Apprenticeships provide paid, relevant workplace experiences and opportunities to develop 

skills that employers’ value and provide affordable paths to good jobs and, ultimately, careers. 

Apprenticeship programs, including pre-apprenticeship programs, offer youth and adults with 

disabilities a career pathway that provides competitive integrated employment as the individual 

learns on the job. While apprenticeship programs have traditionally been more prevalent in the 
REHABILITATION SERVICES

Demonstration and training programs

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building and construction trade occupations, apprenticeships can be found in all industries, 

including in high demand occupations that are suitable for individuals with a broad range of 

abilities given reasonable accommodations. DOL’s Apprenticeship Office reports that there are 

more than 21,000 registered apprenticeship programs across the nation, including over 1,700 

new apprenticeship programs that were established in fiscal year 2016. New programs are 

continually being added to the apprenticeship program rolls, with over 1,300 occupations 

recognized as apprenticeable by DOL.

1

Although Federal legislation mandates that youth and young adults with disabilities have equal 

opportunity to benefit from the full range of career and technical educational programs and 

services available to their peers without disabilities, research conducted by ODEP in 2007 and 

2012 revealed that youth and young adults with disabilities rarely participate in apprenticeship 

programs (See Training and Employment Notice No. 04-15 at

https://wdr.doleta.gov/directives/attach/TEN/TEN_04-15_Acc.pdf.

There have been efforts at the Federal level by DOL’s Office of Apprenticeship and ODEP to 

expand the participation of individuals with disabilities in apprenticeship programs. For 

example, in July 2015, ODEP released a DOL-funded paper by Systems Inc., entitled 

Registered Apprenticeship Programs: Improving the Pipeline for People with Disabilities, that 

highlights prior apprenticeship initiatives that have focused on persons with disabilities, along 

with challenges and lessons learned about the participation of individuals with disabilities in 

apprenticeship programs. https://www.dol.gov/odep/pdf/ApprenticeshipReport.pdf. In particular, 

ODEP’s website https://www.dol.gov/odep/topics/youth/apprenticeship.htm includes 

informational resources and tool kits, primarily designed for employers, to promote the inclusion

of individuals with disabilities in apprenticeship programs. However, support is needed to more 

effectively engage the collaboration of State VR agencies and their workforce partners in 

expanding apprenticeship opportunities for this population, and to expand the use of best 

practices at State and local levels.

DOL recently published new equal employment opportunity (EEO) regulations designed to help 

employers grow and diversify their apprenticeship programs and ensure equal employment 

opportunities in apprenticeship programs for traditionally under-represented groups, including 

individuals with disabilities. Previous rules did not include nondiscrimination or affirmative 

action requirements on the basis of disability. Apprenticeship programs are now obligated to 

provide reasonable accommodations to apprentices with disabilities. The new rules also clarify

expectations for outreach, recruitment, and retention activities. 

The Presidents’ Executive Order coupled with the recent EEO regulations creates a unique 

opportunity to expand employment opportunities for individuals with disabilities through 

apprenticeship and pre-apprenticeship programs. State VR agencies and VR providers bring to 

 

1 U.S. Department of Labor's List of Occupations Officially Recognized as Apprenticeable by the Office of 

Apprenticeship, Revised March 2016 https://www.doleta.gov/OA/bul16/Bulletin_2016-

28_Attachment1.pdf
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the table relevant knowledge and expertise, as well as the services and supports that can bridge 

the needs of employers and individuals with disabilities.

The fiscal year 2019 request would also support approximately $345 thousand in new awards 

for braille training under section 303(d) and approximately $1.1 million in new awards for parent 

information and training programs consistent with section 303(c) of the Rehabilitation Act. 

Braille training programs provide training in the use of braille for personnel providing vocational 

rehabilitation services or educational services to youth and adults who are blind. Parent 

information and training programs assist individuals with disabilities, their families, advocates, or 

other authorized representatives of the individuals to participate more effectively with 

professionals in meeting the vocational, independent living, and rehabilitation needs of 

individuals with disabilities.

The request also provides funds to support approximately $3 million in continuations of four 

5-year career pathways model projects that were initially funded in fiscal year 2015. The career 

pathways model projects are demonstrating strategies to help youth and adults with disabilities 

acquire marketable skills and industry-recognized credentials through better alignment of 

education, training, employment, and human and social services among public agencies and 

with employers. Grantees are State VR agencies or a consortium of State VR agencies in 

partnership with other key entities, such as State and local educational agencies, community 

rehabilitation providers, 2-year and 4-year postsecondary educational institutions (including 

vocational and technical schools), and employers.

In fiscal year 2018, the National Technical Assistance Center on Transition (NTACT)1 that is 

jointly funded by Office of Special Education Programs and the Rehabilitation Services 

Administration (RSA) will receive its last year of funding. NTACT helps State Education 

Agencies, Local Education Agencies, State VR agencies, and VR service providers implement 

evidence-based and promising practices ensuring students with disabilities, including those with 

significant disabilities, graduate from high school prepared for success in postsecondary 

education and employment. States' need for collaborative TA focused on pre-employment 

transition services and cross-agency collaboration has increased with the implementation of 

amendments to the Rehabilitation Act under the Workforce Innovation and Opportunities Act. 

RSA and OSEP are exploring options for continued investments in this area for fiscal year 2019.

 

1 http://www.transitionta.org/
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PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output measures 2017 footnote

2018 footnot

e

2019 footn

ote

Program funding:

Inclusive Apprenticeship Initiative (new award) $3,500

Career Pathways (continuation awards) $3,319 $3,806 1 3,010

Technical assistance

TA: New award 1,261

TA: Continuation award 726 2

400

Braille training 

Braille: New awards 345

Braille: Continuation awards 328 328

Parent information and training

Par ent infor mation: New awards 1,063

Par ent infor mation: Continuation awards 1,165 1,165

Young Adult Diversion project 200 3 0 0

Peer review of new award applications 0 0 24

Minority Outreach 58 58 93

Minority Outreach: Total, Program funding 5,796 5,757 9,296

Number of awards:

Number of New awards 1 0 12

Number of Continuation awards 16 16 4

Total, Number of awards 17 16 16

 1 The total amount for continuations shown in the 2018 column of the table includes about $396 thousand that will be 

used to pay a portion of the 2019 continuation costs for these awards.

2 These funds are used to jointly support the National Technical Assistance Center on Improving Transition to 

Postsecondary Education and Employment for Students with Disabilities which also receives funding from the Office 

of Special Education programs. About $326 thousand of FY 2017 funds were used to support a supplement 

contributing to this TA Center.

3 In FY 2017, RSA made a one-time contribution to a joint (Departments of Education and Justice) young adult 

diversion initiative that will provide technical assistance to communities to support the development and strengthening 

of interventions that reduce reliance on incarceration, improve career and technical educational attainment, and 

reduce recidivism of justice-involved young adults. Specifically, Demonstration and Training programs funds will be 

used to provide VR services to justice-involved young adults with significant disabilities.
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PROGRAM PERFORMANCE INFORMATION

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

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 resources provided in previous years and those requested in fiscal 

year 2019 and future years, and the resources and efforts invested by those served by this 

program.

Approximately 60 percent of the funds provided for the Demonstration and Training program are 

used to support model demonstration projects. Therefore, the Department’s GPRA measures 

for this program are focused on these projects.

Vocational Rehabilitation Career Pathway for Individuals with Disabilities (CPID) 

Demonstration Projects

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 

thus and 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 

2016 n/a 39

2017 77 71

2018 85

2019 94

Additional Information: Using the baseline established in the first year of project data 

collection (2016), each of the four grantees determines a target cumulative number of career 

pathways to be accessed or created by the project for each (succeeding) project year against 

which the grantee’s’ progress will be measured. Annual targets and actual performance data for 

grantees are aggregated in order to assess annual program performance under this measure. 

Through 2017, the CPID demonstration projects accessed or created a cumulative total of 71 

distinct career pathways, or a total of 32 more than were accessed or created during the first 

year of the project (2016). However, the cumulative total was slightly less than the 77 distinct 

pathways the grantees had set as a target cumulative total for 2017.
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Measure: The total number of VR-eligible individuals who achieve competitive integrated 

employment through CPID-accessed or created career pathways.

Year Target Actual 

2016 3

2017 107 84

2018 171

2019 222

Additional Information: Using the baseline established in the first year of project data 

collection (2016), each of the four grantees determines a target number of VR-eligible 

individuals who will achieve competitive integrated employment through career pathways 

accessed or created by the project for each (succeeding) project year against which a grantee’s

progress will be measured. Annual targets and actual performance data for each grantee are 

aggregated in order to assess annual program performance under this measure. In 2016, the 

grantees reported limited employment outcomes because very few individuals had completed 

project services. In 2017, 84 VR-eligible individuals achieved competitive integrated 

employment through CPID-accessed or created career pathways. While less than the total 

number of competitive employment outcomes set as a target for the four projects, significant 

progress was made toward achieving the goal.

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

competitive integrated employment, as compared to the average weekly wages of VR 

consumers who are not participating in a CPID project.

The average weekly wage for this measure will be calculated based on the weekly wages 

reported for each of the CPID project participants who obtained competitive integrated 

employment across all four projects for each reporting year. 

The Department intends to compare the average weekly wages of VR-eligible CPID participants 

with non-participants. Meaningful comparisons require the selection of a VR non-participant 

cohort that matches the salient characteristics (nature and significance of disability, 

demographic profile, etc.) of the CPID cohort. However, the data needed for these comparisons 

is not yet available. Comparison data are expected to be available by May 2019 once 

statistically valid methodologies and data can be generated.
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Protection and advocacy of individual rights

(Rehabilitation Act of 1973, Title V, Section 509)

(dollars in thousands)

FY 2019 Authorization: $20,305

Budget Authority: 

2018

Annualized CR 2019

Change from 

Annualized CR

$17,530 $17,650 +$120

PROGRAM DESCRIPTION

The Protection and Advocacy of Individual Rights (PAIR) program supports statewide systems 

to 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. The purpose of this program is to provide assistance and information to 

eligible individuals with disabilities and conduct advocacy to ensure the protection of their rights 

under Federal law. 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.

Funds must be set aside under this program for two activities before awarding grants to eligible 

States and outlying areas with the remaining appropriation. If the appropriation is equal to or 

exceeds $5.5 million, the Secretary must first set aside 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 Rehabilitation Act of 1973 (the Act) requires that in any year 

in which the total appropriation exceeds $10.5 million, the Secretary 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. The Secretary distributes the remainder of the 

appropriation to the eligible systems within the States and outlying areas based on population 

estimates and after satisfying minimum allocations. The fiscal year 2017 distributions were

based on the July 1, 2015 estimates published by the U.S. Census Bureau in December 2015. 

The fiscal year 2018 distributions are based on the July 1, 2016 estimates published in 

December 2016. The fiscal year 2019 distributions are based on the July 1, 2017 estimates 

published in December 2017.

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

areas by an amount not greater than the percentage increase in the total amount appropriated 

for this program for the previous fiscal year. The 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 
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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. 

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

Fiscal Year (dollars in thousands)

2014 .......................................................... $17,650

2015 ............................................................ 17,650

2016 ............................................................ 17,650

2017 ............................................................ 17,650

2018 ............................................................ 17,530

FY 2019 BUDGET REQUEST

The Administration requests $17.650 million for fiscal year 2019 for the PAIR program, an 

increase of $120,000, to restore funding to the fiscal year 2017 level. PAIR funds support 

statewide systems to protect the legal and human rights of individuals with disabilities who are 

ineligible for protection and advocacy (P&A) services provided under other P&A programs or 

who need P&A services that are beyond the scope of the Client Assistance Program. The 

request will assist PAIR programs to provide information and P&A services to over 50,000 

individuals with disabilities in fiscal year 2019. The Department plans to reserve 1.8 percent of 

the funds requested ($317,700) to provide training and technical assistance to eligible statewide 

systems established under this program, as required by the authorizing statute.

During fiscal year 2016, PAIR programs nationwide reported handling 11,626 cases and 

responded to 39,260 requests for information or referral. Of the individual cases handled by 

PAIR programs in that year, the greatest numbers of issues were primarily in the areas of 

education (16 percent), government benefits/services (14 percent), health care (13 percent), 

employment (12 percent) and housing (11 percent). Over half (55 percent) of these individuals 

were between the ages of 23 and 59. The most frequent primary disability categories (the ones

directly related to the issues/complaints raised) reported for such individuals were orthopedic 

impairments (27 percent), neurological impairments (15 percent), and sensory disabilities such 

as visual and hearing impairments. 

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 2016, 48 out of the 57 PAIR 

programs (84 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 2016 illustrate how PAIR 

programs assist individuals and, in some cases, bring about systemic change. Funds requested 

in fiscal year 2019 will support similar activities. 

The Alabama Disabilities Advocacy Program attended meetings of the Alabama State 

Department of Education's (ALSDE) Charter School Commission to ensure that the rights and 

needs of students with disabilities are appropriately considered and accommodated in the 
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course of the implementation of the state's new charter school legislation. In devising its 

contract with charter school operators, the ALSDE Charter School Commission better 

understood the application and service practices to monitor in evaluating applications of new 

charter schools and in evaluating their practices once in operation as related to students with 

disabilities, including issues related to outreach, enrollment, discipline and service planning. As 

a result, students with disabilities seeking admission into charter schools are less likely to be 

excluded from admission or denied services required under the Individuals with Disabilities 

Education Act or Section 504 of the Rehabilitation Act.

Disability Rights Oregon (DRO) has been representing a blind job seeker for the past 3 years. 

He is a computer technical support person and has also worked in customer service positions. 

He came to DRO after being denied many jobs because the jobs required an applicant to 

complete a computerized test as part of the application. Virtually all of the employment 

agencies and employers used tests that were inaccessible to a person using JAWS, the 

computer software for people with visual impairments. DRO and co-counsel researched the 

scope of the problem, and found that two companies offered testing services worldwide, with 

thousands of on-line applications and tests, none of which were accessible to the visually 

impaired. DRO, working with attorneys for the National Federation of the Blind, helped the job 

seeker file a charge with the EEOC, which ultimately resulted in a Commissioner’s charge 

against one of the largest companies marketing the inaccessible tests. After years of 

negotiation, an accessible test was developed.

Disability Rights Pennsylvania (DRP) entered into a comprehensive settlement agreement with 

defendants to resolve a Fair Housing Act (FHA) lawsuit (Fair Housing Council of Suburban 

Philadelphia v. Wagner Enterprises, Ltd.) that challenged a developer’s violation of the FHA’s 

accessibility requirements for newly-constructed condominiums in Northampton County. Under 

the agreement, the defendant will: (1) retrofit curb ramps and a sidewalk in the development that 

did not meet FHA guidelines so that there are accessible routes to the common areas; (2) lower 

mail boxes within reach; (3) make the entrances, interior doorways, and thermostats accessible 

in the four units it owns; and (4) provide notice to owners of other units offering the opportunity 

to make accessibility modifications for up to five additional units. DRP is monitoring 

implementation of the settlement agreement, as construction work has begun on the 

accessibility improvements that will provide increased access for current or prospective 

condominium residents. 

After determining that a school system had discriminated against a large group of students with 

disabilities who received special transportation services, Disability Rights Tennessee (DRT) 

successfully ensured that those students in a rural Tennessee county are provided a free and 

appropriate public education. It was determined that the students were being dismissed from 

school approximately 30 minutes early every day depriving them of significant instructional time 

and considered discriminatory under Section 504 of the American with Disabilities Act. DRT 

demanded that this practice be stopped immediately and asked for compensatory tutoring for all 

students involved. As a result, the transportation services policy for students with disabilities 

was revised to ensure that the dismissal times are consistent with the dismissal times of general 

education students. Further, compensatory services were offered to the 20 students impacted 

by the early dismissal time. 
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PROGRAM OUTPUT MEASURES 

Output Measures 2017 2018 2019

Information inquiries/referrals 38,000 38,000 38,000

Individuals provided case services 11,000 11,000 11,000

________________

NOTE: Data are projected from actual data reported by PAIRs for fiscal years 2015 and 2016 on the 

number of requests for information and provision of case services to individuals with disabilities. Final 

data for fiscal year 2017 will be available in June 2018.

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

cumulative effect of the resources provided in previous years and those requested in fiscal year 

2019 and future years, and the resources and efforts invested by those served by this 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.

Measure: The percentage of PAIR programs that reported that their systemic advocacy 

resulted in a change in policy or practice. 

Year Target Actual 

2014 91% 93%

2015 91 86

2016 91 84

2017 91

2018 88

2019 88

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. Successful performance under this measure is 

calculated by the number of PAIR programs reporting a change in policy or practice that results 

from their intervention. The performance target for this measure (91 percent or 52 of 57 PAIR 
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programs) was met in fiscal years 2013 and 2014. However, performance in fiscal years 2015

and 2016 has decreased. In fiscal year 2016, 48 of the 57 PAIR programs (84 percent) 

reported that their systemic advocacy resulted in a change in policy or practice in that year, a 

decrease of 3 programs. Based on a review of these data, preliminary 2017 data, and other 

program information, RSA has reduced the targets for fiscal years 2018 and 2019 to 88 percent 

(50 of 57 PAIR programs). Final fiscal year 2017 data will be available in June 2018.
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Supported employment State grants

(Rehabilitation Act of 1973, Title VI)

(dollars in thousands)

FY 2019 Authorization: $31,691

Budget Authority: 

2018 

Annualized CR 2019

Change from 

Annualized CR

0 1 0 0

 

1 These funds are undistributed during the FY 2018 Continuing Resolution pending final Congressional action on the 

FY 2018 Budget for the Rehabilitation Services account. Neither the House nor the Senate Appropriation Committees 

included funding for the Supported Employment State Grants program in their FY 2018 appropriation bills. The 

amount of these undistributed funds at the FY 2018 annualized continuing resolution level is $27,361,000.

PROGRAM DESCRIPTION

The purpose of the Supported Employment (SE) State Grants program is to assist 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. 

Under this formula grant program, State vocational rehabilitation (VR) agencies receive 

supplemental funds to assist VR consumers with the most significant disabilities in achieving the 

employment outcome of supported employment. Section 7(38) of the Rehabilitation Act defines 

“supported employment” as competitive integrated employment, including customized 

employment, or employment in an integrated work setting in which an individual with a most 

significant disability, including a youth with a most significant disability, is working on a shortterm basis toward competitive integrated employment; and that is individualized and 

customized, consistent with the individual’s unique strengths, abilities, interests, and informed 

choice, including with ongoing support services for individuals with the most significant 

disabilities.

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 support enable individuals with 

the most significant disabilities who, because of the nature and severity of their disability, need 

ongoing support 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 eligibility 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 

furnished by the VR agency, using funds under the Supported Employment program and/or the 
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VR 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.

Recent amendments to Title VI of the Rehabilitation Act made by the Workforce Innovation and 

Opportunities Act of 2014 (WIOA) significantly change the provision of supported employment 

services. Such changes include, for example, extending the time frame for the provision of 

supported employment services from 18 months to 24 months. However, the most significant of 

these changes focus on the provision of services to youth with the most significant disabilities.

Consistent with the previous authority, State VR agencies must still demonstrate evidence of 

their efforts to identify and make arrangements with other public or nonprofit agencies or 

organizations within the State, employers, natural supports, and other entities with respect to 

the provision of extended services. However, under the new law State VR agencies must now 

make extended services available to youth with the most significant disabilities with funds 

available under the SE program, based upon the individual needs of the youth for a period not 

to exceed 4 years. Furthermore, section 604(b)(2) under the SE program permits VR agencies 

to use VR program funds to pay for extended services to youth with the most significant 

disabilities who have received supported employment services. Extended services are those 

services provided to individuals with the most significant disabilities by a State agency, a private 

non-profit organization, employer, or any other appropriate resource once an individual has 

concluded services from the State VR agency. State VR agencies were previously prohibited 

from using the Federal funds received under the VR and SE programs for extended services. 

State VR agencies are still prohibited from providing extended services to individuals with the 

most significant disabilities who are not youth with significant disabilities using SE or VR 

program funds.

In addition, States are now required 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 match of 10 percent for the SE allotment portion used to serve such 

youth.

Supported employment funds are distributed on the basis of population, with no State receiving 

less than $300,000, or one-third of 1 percent of the sums appropriated, whichever is greater. 

The minimum allotment for Territories remains one-eighth of 1 percent of the sums 

appropriated. The fiscal year 2017 allotments were based on the July 1, 2015 estimates 

published in December 2015. If funds are appropriated for this program for fiscal year 2018, 

allotments would be based on the July 1, 2016 estimates that were published in December 

2016.
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Funding levels for the past 5 fiscal years were as follows:

Fiscal Year (dollars in thousands)

2014 .....................................................................$27,548

2015 .......................................................................27,548

2016 .......................................................................27,548

2017 .......................................................................27,548

2018 ................................................................................0 1

 

1 These funds are undistributed during the FY 2018 Continuing Resolution pending final Congressional 

action on the FY 2018 Budget for the Rehabilitation Services account. 

FY 2019 BUDGET REQUEST

Consistent with the President’s fiscal year 2018 Budget request, no funds are requested in fiscal 

year 2019 for the Supported Employment (SE) State Grants program. The Administration

recognizes that supported employment can be an effective strategy in assisting individuals with 

the most significant disabilities to obtain competitive employment in integrated settings. 

However, because supported employment is now an integral part of the Vocational 

Rehabilitation (VR) State Grants program, the Administration believes that there is no longer a 

need for a separate funding stream to ensure the provision of such services. The proposed 

elimination would reduce unnecessary administrative burden and streamline program 

administration at the Federal and State levels. The Department expects that State VR agencies 

will continue to provide supported employment services in fiscal years 2018 and 2019 to nearly 

the same number of individuals as they did under the two separate authorities. However, 

maintaining these levels will require State VR agencies to use an increased portion of their 

Title I VR funds to provide supported employment services or seek additional support from State 

and local resources. 

In carrying out its review and monitoring responsibilities under section 107(a)(4) of the 

Rehabilitation Act Title I of the Rehabilitation Act, the Department will continue to examine the 

provision of supported employment services to ensure that State agencies invest appropriate 

levels of their resources in supported employment and to provide technical assistance where 

needed.

The SE State Grants program was first authorized under the Rehabilitation Act Amendments of 

1986 to provide supplemental grants to assist States in developing collaborative programs with 

public agencies and private nonprofit organizations for training and time-limited postemployment services for individuals with the most severe handicaps. At that time, supported 

employment was a new promising practice in employing individuals who traditionally would not 

have achieved employment in the integrated labor market. Initially, many rehabilitation 

professionals were skeptical about its feasibility and concerned about the potential costs. As a 

supplemental source of dedicated funds, the SE State grant program was designed to provide 

an incentive for State VR agencies to provide supported employment services. State VR 

agencies now recognize supported employment as a viable employment option for individuals 

with the most significant disabilities and no longer require such an incentive.
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State VR agencies spend a significant amount of VR State Grant funds (including State 

matching funds) to provide supported employment services for those individuals who require 

such services to participate in the integrated labor market. For example, in fiscal year 2016 

State agencies spent a total of $247.1 million to provide purchased services for individuals with 

a goal of supported employment at the time they exited the VR program, including $208 million 

from Title I VR funds and $39.1 million from Title VI SE funds. Funds expended in fiscal year

2016 include funds awarded to States in FY 2016, as well as funds awarded in FY 2015 that 

were eligible to be carried over for expenditure in fiscal year 2016. State agencies spent 

$20.5 million more of their Title I VR funds in FY 2016 than in fiscal year 2015 to provide 

purchased services for such individuals. These amounts do not include funds spent on 

purchased services for individuals whose individualized plan for employment (IPE) was 

amended during the VR process to change the goal from supported employment to another 

employment goal. The cost of purchased services is in addition to the costs of services 

provided directly by VR agency staff for individuals. 

Finally, while well-intentioned, the changes to the SE State Grants program made by the WIOA 

amendments have significantly increased the Federal and State cost and burden of 

administering the program. Thus, consistent with the Administration’s overall goal of 

streamlining the Federal government, the Administration’s proposal would reduce unnecessary 

program administration burden at both the Federal and State levels. Further, lowering the cap 

on amount of administrative costs that can be paid for with funds under the SE program (from 

5 percent of State’s SE annual allotment to 2.5 percent of State’s SE annual allotment) has 

shifted the higher administrative costs to the VR State Grants program. The increase requested 

for the VR State Grants program would reduce the impact of the loss of these supplemental 

funds.
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PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures 2017 footnote2018 footnote2019 footnote

Individuals with a supported 

employment IPE goal when they 

exited the program 47,000 46,500 46,060

Employment outcomes: 27,000126,700

1

26,4601

Supported employment outcomes 19,5002 19,3002 19,1202

Employment without supports in an 

integrated setting 7,4003 7,3103 7,2603

Other employment outcomes 1004 905 805

Minority outreach $275 0 0

 

NOTE: Estimates are based on actual 2015 and 2016 closure data from the RSA-911 Case Service Report for all VR 

consumers with a supported employment goal identified on their IPE, including consumers who received SE services 

with funds provided under the VR State Grants and/or under the Supported Employment State Grants programs. 

1 Includes employment outcomes for all VR consumers who had a supported employment goal at exit. 2 Of the individuals who had a supported employment goal at exit, the number who were employed in an integrated 

setting and receiving ongoing support services.

3 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program but who were not receiving ongoing support services at exit. 4 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program who were either self-employed, employed in a Business Enterprise Program, 

a family worker, or a homemaker. 5 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program who were either self-employed or employed in a Business Enterprise 

Program. 

PROGRAM PERFORMANCE INFORMATION

Performance Measures

This section presents program performance information, including, for example, GPRA 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 resources provided for this program and the VR State Grants program

in previous years, and the resources provided for supported employment services through the 

VR State Grants program in fiscal year 2019 and future years, as well as the resources and 

efforts invested by those served by these programs. 

The Department will continue to assess the outcomes of individuals receiving supported 

employment services through the VR State Grants program (i.e., competitive employment 

outcomes and earnings)
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Goal: Individuals with significant disabilities with a goal of supported employment will 

achieve high quality employment.

Objective: Ensure that individuals with significant disabilities with a supported employment goal 

achieve high quality employment.

Measure: Of those individuals with significant disabilities who had a supported employment 

goal and achieved an employment outcome, the percentage who obtained 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

2014 94% 95%

2015 95 95

2016 95 95

2017 95

2018 96

2019 96

Additional information: Individuals with a supported employment goal who achieve an 

employment outcome may be working in competitive integrated employment (employment at 

least at the minimum wage in an integrated setting) or may be working in an integrated setting 

toward competitive employment at or above the minimum wage. 

Fiscal year 2016 RSA 911 Case Service Report data show that 27,106 individuals who had a 

goal of supported employment on their IPE at the time their case service record was closed, 

including both consumers who received SE services from funds provided under the VR State 

Grants and under the SE State Grants programs, achieved an employment outcome. Of those 

who achieved an employment outcome, 25,606 individuals (95 percent) achieved a competitive 

employment outcome and the performance target was met. Data for fiscal year 2017 are 

expected to be available in July 2018.
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Measure: Average weekly earnings for individuals with significant disabilities who achieved a 

supported employment outcome.

Year Target Actual

2014 $208 $200

2015 208 215

2016 208 219

2017 210

2018 215

2019 215

Additional information: Performance data for this measure are calculated by dividing the 

average weekly earnings for all individuals who obtained a supported employment outcome with 

earnings by the total number of individuals who obtained a supported employment outcome with 

earnings. The performance data do not include individuals served by State VR agencies for the 

blind. 

For the performance group, fiscal year 2016 data show that the average weekly earnings of 

individuals with significant disabilities who achieved a supported employment outcome was 

$218.88, and the performance target was surpassed. After a small drop in average weekly 

earnings reported for fiscal year 2014 as compared to previous years, there were significant 

consecutive increases in average weekly earnings for 2015 and 2016. While average hours 

worked per week at the time the service record was closed remained about the same as in 2014 

and 2015, average hourly earnings increased from $9.12 to $9.42. For fiscal year 2014,

average hourly earnings were $8.93. It should be noted that the average weekly earnings

calculation for 2015 did not include data for five States. Data for fiscal year 2017 are expected 

to be available in July 2018.

Efficiency Measure

Objective: Ensure that State VR agencies effectively use Supported Employment Grant funds 

to achieve supported employment outcomes.

Measure: Percentage of general and combined State VR agencies that demonstrate at least 

30 supported employment outcomes per $100,000 received in SE Grant funds.

Year Target Actual

2013 75% 75%

2014 75 65

2015 75 65

2016 75 73

2017 75

Additional information: The efficiency measure developed for the Supported Employment 

State Grants program examines the percentage of State VR agencies for which the number of 
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supported employment outcomes per $100,000 received in SE Grants funds is within a 

specified range. For the purpose of this measure, the number of supported employment 

outcomes per $100,000 is calculated by dividing the reported number of individuals that

achieved a supported employment outcome by the amount of a State agency’s SE allocation 

and multiplying the result by 100,000. The performance group does not include State VR 

agencies for the Blind or the four territories because they receive less than $100,000 in SE 

Grants funds. In fiscal year 2016, 38 of the 52 combined and general VR agencies 

demonstrated at least 30 supported employment outcomes per $100,000 received in fiscal year 

2016 SE Grant funds. While performance on this measure increased to near pre-2014 levels, 

the performance target was not met. The median number of supported employment outcomes 

per $100,000 received in SE Grant funds for the 52 State agencies was 61.7. However, it 

should be noted that there is significant variation among agencies in the performance group, 

with the supported employment outcomes per $100,000 in fiscal year 2016 ranging from 1 to 

350. Performance targets have not been established for this measure for fiscal years 2018 and 

2019 because the Administration has not requested funds for the Supported Employment State 

Grants program. In addition, the Department is reevaluating this measure given the potential 

impact of the WIOA amendments on the cost per supported employment outcome. If funds are 

not provided for the Supported Employment State Grants program, the Department will continue 

to monitor supported employment outcomes under the VR State Grants program through the 

revised Case Service Report (RSA-911-16).

Other Performance Information

On an aggregate level, VR consumers who had a goal of supported employment represented 

14.5 percent of the total individuals whose cases were closed after receiving VR services in 

fiscal year 2016. Data from the fiscal year 2016 Case Service Report (RSA-911-14) show that 

approximately 47,662 individuals receiving services had a goal of supported employment on 

their IPE at the time their case service record was closed in fiscal year 2016, 5,924 more than 

were reported in fiscal year 2015. These numbers do not include those individuals who were 

still receiving supported employment services at the close of the fiscal year. While the number 

of individuals receiving services that had a goal of supported employment at the time their case 

service record was closed in fiscal year 2016 is higher than the numbers reported for fiscal 

years 2014 and 2015, some of the difference may be due to the fact that SE-related data 

elements changed in the revised RSA-911 data implemented in fiscal year 2014 and the 

changes may have resulted in reporting errors.

Please note that data collection requirements resulting from WIOA amendments to the 

Rehabilitation Act have required additional changes to the RSA-911 Case Service data 

collection. The redesigned post-WIOA data collection will provide quarterly data on individuals 

who are receiving services under the VR program, including data collected on individuals 

receiving supported employment services. State VR agencies are required to implement the 

new data collection beginning in July 2017. Annual data will be based on a 12-month program 

year instead of the fiscal year. The data on individuals receiving supported employment 

services will enable RSA to better monitor the services, service costs, and the outcomes 

achieved by such individuals and help to identify those agencies that need technical assistance. 

For the first nine months of fiscal year 2017, State VR agencies continued to report programspecific annual data on closed service records through the Case Service Report (RSA-911-14).
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Independent living services for older blind individuals

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2019 Authorization: $38,328

Budget Authority: 

2018

Annualized CR 2019

Change from 

Annualized CR

$33,091 $33,317 +$226

PROGRAM DESCRIPTION

The Independent Living Services for Older Individuals Who Are Blind (ILOIB) program supports 

services to assist 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, conduct activities that will 

improve or expand services for these individuals, and conduct activities to improve public 

understanding of the problems of these individuals. ILOIB services are designed to help eligible 

persons adjust to their blindness by increasing their ability to care for their individual needs. 

The Workforce Innovation and Opportunities Act (WIOA) amended the ILOIB program in section 

751A of the Rehabilitation Act to require that not less than 1.8 percent and not more than 

2 percent of the funds appropriated to the ILOIB program be used to provide training and 

technical assistance to Designated State Agencies or other providers of ILOIB services that 

receive ILOIB program funds. As a result, the amount of funds available for allocation to States

has decreased as compared to fiscal year 2014.

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 Services for Older Individuals Who Are Blind 

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. When appropriations for this program 

exceed $13 million—as they have since fiscal year 2000—awards are distributed to States 

according to a formula based on the population of individuals who are 55 years of age or older. 

The minimum allotment for each of the 50 States, D.C., and Puerto Rico is $225,000, with each 

of the outlying areas receiving a minimum allotment of $40,000.

The fiscal year 2017 allotments were based on July 1, 2015 estimates of the population of 

individuals age 55 and older published by the Census Bureau in June 2016. The fiscal year 

2018 allotments are based on July 1, 2016 population estimates of individuals age 55 and older 

published by the Census Bureau in June 2017. The fiscal year 2019 allotments are based on 

July 1, 2016 population estimates and will be updated based on July 1, 2017 estimates by age 

group when they become available in June 2018.
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Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2014 .....................................................................$33,317

2015 .......................................................................33,317

2016 .......................................................................33,317

2017 .......................................................................33,317

2018 .......................................................................33,091

FY 2019 BUDGET REQUEST

The Administration requests $33.3 million for fiscal year 2019 for the ILOIB program, an 

increase of $226,000, to restore funding to the fiscal year 2017 level. 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 plans to reserve 1.8 percent of the funds requested 

($599,706) to provide training and technical assistance to the ILOIB program and its service 

providers, as required by the authorizing statute.

Independent living services are typically provided through contracts with local providers 

administered by State vocational rehabilitation (VR) agencies. Services provided under the 

ILOIB program, which most frequently include technology aids and devices (61 percent), daily 

living skills (53 percent) and low vision assessments (40 percent), allow older individuals who 

are blind or severely visually impaired to be more independent at home and in the community. 

Many of the needs of this older population are different from those of the consumers that are

served under the Centers for Independent Living, now administered by the Department of 

Health and Human Services. In 2016, 58,555 individuals received services under the ILOIB 

program, over half of whom were over 80 years of age and about 82 percent of whom were still 

living in a private residence. Approximately 56 percent of the individuals served in fiscal year

2016 were either legally blind or totally blind and 21 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. 

Trained program personnel are knowledgeable about blindness and other visual impairments,

as well as the needs of older individuals with such impairment, including adaptive strategies that 

can assist these individuals to adjust to their impairments and increase their ability to function 

more independently. However, most of the specialized services provided by the program for 

these older individuals are not covered by other public and private payers, such as private 

insurance, Medicaid, or Medicare.

The prevalence of disability increases with age and the occurrence of a sensory disability is 

more than six times 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. According to the U.S. Census Bureau’s 2015 

American Community Survey (1-Year Estimates), 6.5 percent of individuals 65 and older (about 

3.0 million people) have a vision-related disability. In addition, the percentage of individuals 
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who have a disability that affects their independent living status (including vision-related 

disabilities) increases with age, with a dramatic increase for individuals in the 75 years and over 

category, where 25.2 percent report having a disability that affects their independent living 

status. Since advancing age is associated with higher prevalence of vision loss, the ILOIB 

program will likely face an increasing demand for services.

In addition, the final regulations implementing changes to the VR State Grants program, 

published in the Federal Register on August 19, 2016, eliminate uncompensated outcomes (i.e., 

homemaker and unpaid family worker outcomes), from the definition of the term “employment 

outcome.” While the national percentage of individuals with such outcomes served by the VR 

program has been very small (about 3 percent), many of these individuals were 55 years of age 

or older and had severe visual impairments. The Department anticipates that VR agencies will 

refer many of the individuals affected by the rule change to the ILOIB program to obtain the 

services they need.

In fiscal year 2019, the Department will reserve approximately $599,706 (1.8 percent of the 

funds appropriated for the ILOIB program) to support training and technical assistance, as 

required by the authoring statute. In fiscal year 2015, the National Research and Training 

Center on Blindness and Low Vision (NRTC) at Mississippi State University was awarded the 

training and technical Assistance grant for older individuals who are blind that was established 

under the Rehabilitation Act through amendments to Title IV of WIOA.

1 The training and 

technical assistance activities provided by this 5-year grant are designed to improve program 

and consumer outcomes and to enhance service providers' knowledge and skills in the areas of 

best practice, community outreach, budget management, and data collection.

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures: 2017 2018 2019

Number of Grantees 56 56 56

Minimum State award $225 $225 $225

Number of States at minimum 17 17 17

Average State award $620 $620 $620

Minority outreach $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, GPRA 

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 

 

1 http://www.blind.msstate.edu/research/current-research/oib.php
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the cumulative effect of the resources provided in previous years and those requested in fiscal 

year 2019 and future years, 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

2014 58% 54%

2015 56 57

2016 56 61

2017 57

2018 57

2019 57

Additional information: The percentage of consumers reporting access to previously 

unavailable assistive technology in 2016 increased from the prior year and the performance 

target was exceeded. Assistive technology is one of the most frequently requested and 

expensive forms of assistance offered by this program, and consequently some States may 

have difficulty meeting consumer demand. For fiscal year 2016, performance on this measure 

was calculated by dividing the number of consumers who received assistive technology 

(35,583) by the total number of Older Blind program consumers (58,555). However, it should be 

noted that while the number of consumers who received assistive technology increased by 

about 1,400 in 2016, the total number of Older Blind program consumers decreased by 1,880, 

which partially accounts for the jump in performance on this measure. Data for 2017 are 

expected by summer of 2018. 
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Measure: The percentage of Independent Living Older Blind program consumers who report an 

improvement in daily living skills.

Year Target Actual

2014 60% 61%

2015 61 60

2016 61 61

2017 61

2018 61

2019 61

Additional information: The percentage of consumers reporting improvement in their daily 

living skills for 2016 returned to the 2014 level and the target was met. For fiscal year 2016, 

performance on this measure was calculated by dividing the number of Older Blind program 

consumers who reported improvement in daily living skills (18,830) by the total number of Older 

Blind program consumers who received daily living skills training (31,135). Daily living skills 

include activities such as bathing, moving around the home, getting out of bed or a chair, and 

eating a meal. State agencies collect and provide this data in their annual program reports. 

Data for 2017 are expected by summer 2018. Because of concerns about the subjectivity of 

this measure and the difficulty in isolating improvement on the basis of one of a number of 

services that may be received, the Department is considering alternative methods for assessing

the functional improvement of consumers receiving services under the ILOB that will not 

increase the overall data collection burden for grantees.
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Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2019 Authorization: 0 1

Budget Authority: 

2018

Annualized CR 2019

Change from

Annualized CR

$10,266 $10,336 +$70

_________________ 

1 The GEPA extension expired September 30, 2004; continued funding is proposed for this program in FY 2019

through appropriations language.

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 his or her 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 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 a number of 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 11 regional field offices staffed by 11 

regional representatives and one associate regional representative. Through this network, 

HKNC provides assistance to deaf-blind individuals and their families, as well as 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. Regional representatives provide a wide variety of services to individuals who are 

deaf-blind in their home communities, including: training for State and local service agency staff, 
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general technical assistance, program assessment, community advocacy, and assistance to 

vocational rehabilitation (VR) counselors, mental health workers, special education personnel, 

and deaf-blind consumers with developing individualized service plans. Regional 

representatives also assist clients who have received training at the Center with making the 

transition back to their home community. 

Regional representatives collaborate with States to increase local capacity in the areas of 

implementing support service provider (SSP) programs, professional development training for 

VR and blind/visually impaired counselors, developing VR case sharing models, identifying 

deaf-blind leaders for representation on task forces/advisory councils and program 

planning/training, developing online and webinar training, and expanding the vocational access 

service provider model.

The HKNC Community Services Program (CSP), a model collaboration between the Center and 

the New York State Commission for the Blind (NYSCB), provides comprehensive rehabilitation, 

vocational, and support services to eligible persons who are deaf-blind in their homes, worksites 

and communities. CSP is staffed by 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.

HKNC also provides professional development, training and technical assistance, and 

consultation to other organizations, programs, and providers serving individuals who are deafblind. Through its Information, Research and Professional Development (IRPD) department, 

HKNC provides technical knowledge, expertise, training, and services to its partners across the 

United States. The IRPD department offers on-campus workshops and seminars in a myriad of 

disciplines such as train-the-trainer seminars for adaptive technology instructors working to 

support the National Deaf-Blind Equipment Distribution Program, SSP services, and training for 

VR counselors. In collaboration with personnel preparation programs, and research projects 

located at universities throughout the country, IRPD staff work to identify effective practices for 

working with youths and adults who are deaf-blind and disseminates these best practices 

nationally via professional training initiatives in collaboration with HKNC direct services and field 

service staff. In addition, HKNC has developed a Deaf-Blind National Community of Practice, a 

51-member collaborative of professional organizations working together to improve the quality 

of services to individuals who are deaf-blind through learning, research and practice.

In fiscal year 2017, the Center offered three summer programs that focused on the needs and 

goals of transitioning youth who are deaf-blind. At the end of these programs, 

recommendations are provided to the student’s school in order to continue vocational planning 

and support the development of individualized plan for employment goals, as appropriate. Brief 

descriptions of these programs are provided below.

• Summer Youth Vocational Program – This 6-week program offers young adults their first 

paid work experience with an exploration into how strategies for communication, 

independent living, mobility, self-advocacy, and vocational readiness can foster their 

independence and success at work. 
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• Young Adult Summer Program (YASP) – This 2-week program offers transition-age students

who are deaf-blind and completing their high school education the opportunity to learn about 

future options related to college, work, and apartment living, how to advocate, and to 

experience adult life in the residence and community. This program is facilitated by deafblind leaders who are graduates of HKNC.

• Comprehensive Summer Youth Assessment – This 8-week comprehensive assessment for 

transition-aged youth focuses on identifying goals for the remaining years of high school and 

college, including exploring vocational interests and identifying specific accommodations 

needed in college environments.

HKNC also offers a program called the Deaf-Blind Immersion Experience (DBIE), now in its 

second year, which provides consumers who are deaf-blind with intellectual disabilities, and 

their support team, a 5-day training experience that includes the consumer’s participation in 

work experiences that match their interests, gifts, and abilities.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2014..................................................................$9,127

2015....................................................................9,127

2016..................................................................10,336

2017..................................................................10,336

2018..................................................................10,266

FY 2019 BUDGET REQUEST

The Administration requests $10.3 million for fiscal year 2019 for the Helen Keller National 

Center for Deaf-Blind Youths and Adults (HKNC), an increase of $70 thousand, to restore 

funding to the fiscal year 2017 level. The funds requested in FY 2019 would expand 

independent living and employment opportunities for individuals who are deaf-blind by 

supporting the Center’s comprehensive residential training and assessment programs and

HKNC’s regional network of field service representatives, along with professional development 

and training for individuals and organizations who work with deaf-blind individuals.

The request would support services through its regional offices to an estimated 

1,600 consumers, 475 families, and 985 agencies and organizations. The request would also 

support the provision of direct intensive services to approximately 93 consumers, including an 

estimated 65 consumers at HKNC’s residential training and rehabilitation program and an 

estimated 30 consumers through the Community Services Program (CSP).

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 11 regional offices and the IRPD 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.
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In fiscal year 2017, the Center served 96 consumers, most of whom were participants in the 

intensive specialized vocational and independent living programs (60) and the CSP (36). In 

fiscal year 2017, HKNC provided a number of specialized residential programs, including a 

confident living program for seniors and programs designed to serve transitioning youth and

individuals who are deaf-blind and have intellectual disabilities. The Center also provided 

specialized services to other deaf-blind individuals in need of comprehensive assessment and 

training services. In fiscal year 2017, HKNC provided opportunities for individuals with 

vocational goals to participate in one or more short-term work experiences (80 work 

experiences in total) with 27 different employers.

Professional Development

The fiscal year 2019 request would continue to support HKNC activities that promote best 

practices and provide quality information and training to individuals who are deaf-blind, their 

families, and professionals. To address the critical shortage of professionals qualified to meet 

the unique needs of individuals who are deaf-blind, HKNC provides training for personnel such 

as teachers and vocational rehabilitation (VR) counselors, rehabilitation teachers, orientation 

and mobility specialists, adaptive technology instructors and interpreters. One of the IRPD 

department’s main objectives is to support training for professionals in conjunction with HKNC 

headquarters staff members, regional representatives and consultants across the country. For 

example, in fiscal year 2017, the IRPD department provided 25 professional development 

opportunities in a number of areas, such as touch signals training, current techniques in working 

with consumers in group home settings, creating successful employment options for deaf-blind 

workers, and orientation and mobility training. Information and training materials are 

disseminated through customized responses to requests for information, short term and onsite 

individualized training, topical seminars, and small scale, customized training at locations 

throughout the United States.

HKNC has also helped to increase the number of qualified professionals working with 

individuals who are deaf-blind by utilizing technology and distance learning opportunities, such 

as instructional videos, webinars, and online courses. For example, HKNC offers five online 

courses and short training videos focused on professional development. The online courses 

offer Certified Rehabilitation Counseling credits and Academy for the Certification of Vision 

Rehabilitation and Education Professionals continuing education units upon successful 

completion. The coursework includes topics such as: Working with Individuals who are 

DeafBlind - A Course for Vocational Rehabilitation Counselors and Other Professionals and 

Confident Living - A Guide to Working with Senior Adults with Combined Vision and Hearing 

Loss. In addition, HKNC has developed short training videos on topics such as Working with 

your SSP and Advocacy in the Deaf-Blind World for consumers that are available free of 

charge. HKNC’s IRPD goal is to become a national information clearinghouse on deafblindness.

Sources of HKNC Revenue

In fiscal year 2017, funds appropriated directly to HKNC through the Department’s 

Rehabilitation Services account ($10,336,000) made up 60 percent of its total revenue, and 

direct and indirect funds from other Federal sources ($1,669,000) made up 10 percent of its 

total revenue. Training fees generated $2,360,000 (14 percent) and funding from State grants 
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and contracts amounted to $1,780,000 (10 percent). HKNC received $320,000 in donations 

and public support (2 percent), while other revenue generated by HKNC operations (1 percent) 

and investment income (3 percent) amounted to $780,000. The figure below provides 

information on the sources of revenue and dollar amounts in thousands.
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For fiscal year 2017, HKNC reported total public support and revenues of $17,246,000 and incurred total 

operating expenses of $16,589,000. While the Center has sought to increase other sources of funding, 

the Federal appropriation remains its primary source of support. Because most of the specialized 

services required by this population are provided by HKNC staff, salaries and fringe benefits account for 

most of their expenses (76 percent).

Federal 

Appropriations

$10,336 

60%

Training Fees

$2,360 

14%

State Grant & 

Contracts

$1,780 

10%

Other Federal 

Funding Direct & 

Indirect

$1,669 

10%

Other Revenue

$780 

4%

Donations and 

Public Support

$320 

2%

FY 2017 Sources of Funds - $17,246 thousand

(All dollars in thousands)
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FY 2017 Expenses - $16,589 thousand

(All dollars in thousands)

Professional 

Services

$898 

5%

Consumer 

Related 

Expenses

$696 

4%

Building, Utilities 

& Rent

$970 

6%

Salaries & 

Fringe Benefits

$12,654 

76%

Other Operating 

Expenses

$1,371 

8%

Note: Percentages may not add to 100% due to rounding.
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PROGRAM OUTPUT MEASURES

Output measures 2017 2018 2019

Number of individuals served at headquarters: 

Number of Adult training program clients 60 65 65

Number recei vi ng Specialized training services:

Specialized tr aini ng ser vices: Number of Transition for high school students 14 20 20

Specialized tr aini ng ser vices: Number of Senior citizens 7 5 5

Specialized tr aini ng ser vices: N umber recei vi ng Targeted skills training 2 3 3

Specialized tr aini ng ser vices: N umber recei vi ng Community Services Program 36 30 30

Number of individuals served through regional 

representatives: 

Number of Consumersserved through r egional r epr esentati ves 1,339 1,600 1,600

Number of Familiesser ved thr oug h regional representati ves 383 475 475

Number of Agencies/organizationsserved thr ough r egional repr esentati ves 1,126 985 985

f HKNC FTE staff 122 125 145

PROGRAM PERFORMANCE INFORMATION

This section presents selected program performance information, including, for example, GPRA 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 resources provided in previous years and those requested in fiscal year 2019 and future years, as 

well as the resources and efforts invested by those served by this program.

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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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

% in Less 

Restrictive 

Settings

Actual

% in Less 

Restrictive 

Settings

Target

% of 

Training 

goals met

Actual

% of 

Training 

goals met

Target

% Placed in 

Employment

Actual

% Placed in 

Employment

2014 70 57/38 86% 83% 95% 91% 47% 42/88%

2015 71 55/30 87 82 95 93 48 41/56

2016 75 63/29 86 86 95 91 48 53/50

2017 75 60/36 86 87 95 89 48 47/78

2018 75 86 95 48

2019 75 86 95 48

Additional information: In fiscal year 2017, HKNC served 6 consumers in the on-campus rehabilitation 

training programs and 29 additional off-campus consumers through its Community Services Program. 

HKNC points out that the number of consumers served may fluctuate from year to year due to 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 differing levels of training intensity and 

individual needs.

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. In addition, this measure includes 

participants who achieved a less restrictive living environment by successfully acquiring skills in two or 

more core areas, resulting in the ability to maintain a home and more fully participate in community life.

In 2017, 87 percent of consumers moved into, or remained in, less restrictive settings, and the target set 

for the fiscal year was met.

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. The consumers and their 

instructors mutually develop these instructional objectives. To ensure that the measure is an accurate 

reflection of the Center’s performance, the Department and HKNC have agreed that it should only 

include the outcomes for adult consumers enrolled in the long-term formal program and the targeted 

skills training program. Consumers in the short-term programs for high school students are not included 

in the calculation. In 2017, 89 percent of training goals were met by adult consumers; however, the target 

(95 percent) was not met.

In fiscal year 2017, 47 percent of consumers in on-campus programs and 78 percent of off-campus 

consumers with an employment goal were placed in employment, and the target was met.

Objective: Increase the capacity of deaf-blind consumers to function more independently in the home 

community.

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 

2014 265 575

2015 265 551
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Year Target Actual 

2016 300 626

2017 500 472

2018 600

2019 600

Additional information: In fiscal year 2017, HKNC’s regional offices referred 472 individuals to State or 

local agencies or service providers, which represents a decrease from previous years and falls slightly 

short of the target. 

Measure: The percentage of consumers who participated in services programs (other than HKNC) as a 

result of receiving a referral from HKNC’s regional offices.

Year Target Actual 

2014 67% 95%

2015 68 66

2016 66 75

2017 66 94

2018 75

2019 75

Additional information: This measure provides information on the activities of the field services 

programs, including the 11 regional representatives and 1 regional representative associate. Regional 

representatives serve individuals who are deaf-blind in their home communities, which often lack other 

service providers that are trained and equipped to meet the unique and multi-faceted needs of these 

consumers. The referrals provided by regional representatives often are the gateway to finding 

appropriate and individualized supports from various agencies and organizations. The intensity of 

consumers’ interactions with HKNC field staff varies significantly. Some consumers interact with staff 

only once via telecommunications, while others benefit from repeated in-person visits for a variety of 

services, such as skills assessments, counseling, and advocacy.

Fiscal year 2017 performance exceeded that of the previous year and the target for the fiscal year. The 

year-to-year variation in performance on this measure in recent years makes it difficult to set an 

appropriate annual target. Based on the data trend, a target of 75 percent has been set for fiscal year 

2019. However, this target may be adjusted based on 2018 performance.

Objective: HKNC will assist State vocational rehabilitation (VR) and employment programs in increasing 

employment outcomes for individuals who are deaf-blind.

Measure: The number of referrals by HKNC’s regional offices to VR or related employment programs.

Year Target Actual 

2014 88 65

2015 92 65

2016 65 41

2017 65 33

2018 65

2019 65
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Additional information: HKNC plays an important role in connecting individuals who are deaf-blind to 

VR agencies. Many VR agencies lack sufficient numbers of personnel trained in providing services to 

consumers who are deaf-blind. HKNC field staff frequently facilitate interactions between consumers and 

VR agencies, train VR agency staff about the specialized needs of these clients, and assist consumers 

who are returning to their State’s VR system after attending intensive training at HKNC headquarters.

The lower number of referrals in 2017 is attributed to extended staff vacancies in four regions, and the 

associated hiring and training of four new regional representatives. In addition, the number of referrals to 

VR agencies can also fluctuate depending on whether the consumers served by HKNC field staff have 

vocational goals. The target of 65 referrals that was established for fiscal years 2016 and 2017 has been 

retained for fiscal year 2018 and 2019.

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 

2014 30% 55%

2015 32 46

2016 40 45

2017 40 39

2018 45

2019 45

Additional information: For the measure on the percentage of individuals who achieved employment 

outcomes, 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 clients served by HKNC regional representatives who achieved employment outcomes. In 

fiscal year 2017, 39 percent of individuals achieved successful employment outcomes in which HKNC’s 

regional offices played a collaborative role in providing training, advocacy and/or support to the consumer 

or job training agency.