1Department of Education

REHABILITATION SERVICES

Fiscal Year 2016 Budget Request

CONTENTS

Page

Appropriations Language .........................................................................................................J-1

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

Appropriation, Adjustments and Transfers ...............................................................................J-4

Summary of Changes ..............................................................................................................J-5

Authorizing Legislation.............................................................................................................J-6

Appropriations History..............................................................................................................J-8

Significant Items in FY 2015 Appropriations Reports................................................................J-9

Summary of Request .............................................................................................................J-10

Activities:

Vocational rehabilitation State grants..............................................................................J-13

Client assistance State grants.........................................................................................J-33

Training ..........................................................................................................................J-39

Demonstration and training programs .............................................................................J-46

Protection and advocacy of individual rights....................................................................J-51

Supported employment State grants...............................................................................J-55

Independent living services for older individuals who are blind .......................................J-64

Helen Keller National Center...........................................................................................J-68

State Tables* .........................................................................................................................J-78

*State tables reflecting final 2015 allocations and 2016 estimates are posted on the Department’s Web page at: 

http://www2.ed.gov/about/overview/budget/statetables/index.html
REHABILITATION SERVICES

Appropriations Language

REHABILITATION SERVICES [AND DISABILITY RESEARCH]1

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

Assistive Technology Act of 1998,] 2 and the Helen Keller National Center Act, [$3,709,853,000]

$3,532,109,000, of which [$3,335,074,000]$3,391,770,000 shall be for grants for vocational 

rehabilitation services under Title I of the Rehabilitation Act:

3

 Provided further, That the 

Secretary may use amounts provided in this Act that remain available subsequent to the 

reallotment of funds to States pursuant to section 110(b) of the Rehabilitation Act for innovative 

activities aimed at improving the outcomes of individuals with disabilities as defined in section 

7(20)(B) of the Rehabilitation Act, including activities aimed at improving the education, and 

post-school outcomes of children receiving Supplemental Security Income (SSI) and their 

families that may result in long-term improvement in the SSI child recipient's economic status 

and self-sufficiency:4 Provided further, That States may award subgrants for a portion of the 

funds to other public and private, non-profit entities:5 Provided further, That any funds made 

available subsequent to reallotment for innovative activities aimed at improving the outcomes of 

individuals with disabilities shall remain available until September 30, [2016]2017:6 [:Provided 

further, That, $2,000,000 shall be for competitive grants to support alternative financing 

programs that provide for the purchase of assistive technology devices, such as a low-interest 

loan fund; an interest buy-down program; a revolving loan fund; a loan guarantee; or insurance 

program: Provided further, That applicants shall provide an assurance that, and information 

describing the manner in which, the alternative financing program will expand and emphasize 

consumer choice and control: Provided further, That State agencies and community-based 

disability organizations that are directed by and operated for individuals with disabilities shall be 

eligible to compete]:

7 (Department of Education Appropriations Act, 2015)

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

Provisions and Changes document which follows the appropriation language

.

J-1
REHABILITATION SERVICES

Analysis of Language Provisions and Changes

Language Provision Explanation

1 [AND DISABILITY RESEARCH] Section 491 of Workforce Innovation and 

Opportunity Act of 2014, P.L. 113-128, 

(WIOA) transfers several programs from the 

Department’s Office of Special Education and 

Rehabilitative Services to the Administration 

for Community Living in the Department of 

Health and Human Services (HHS), including 

the National Institute on Disability,

Independent Living, and Rehabilitation 

Research (NIDILRR), as renamed by WIOA.

Consequently, the fiscal year 2016 request for 

this account does not include funds for 

NIDILRR. To reflect this change, the 

Administration’s request would eliminate the 

reference to “Disability Research” from the 

title of this account. 

2 [the Assistive Technology Act of 1998,] The reference to the Assistive Technology Act 

is deleted because WIOA transfers 

responsibility for its administration from the 

Department of Education to HHS. Funds to 

support these programs are not requested 

under this account.

3 ...of which [$3,335,074,000] 

$3,391,770,000 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.

4 Provided further, That the Secretary may 

use amounts provided in this Act that remain 

available subsequent to the reallotment of 

funds to States pursuant to section 110(b) of 

the Rehabilitation Act for innovative activities 

aimed at improving the outcomes of 

individuals with disabilities as defined in 

section 7(20)(B) of the Rehabilitation Act, 

including activities aimed at improving the 

education and post-school outcomes of 

children receiving Supplemental Security 

Income (SSI) and their families that may 

result in long-term improvement in the SSI 

child recipient's economic status and selfsufficiency:

This language would allow the Secretary to 

use amounts that remain available 

subsequent to the reallotment of funds to 

States under the VR State Grants program for 

innovative activities designed to improve the 

outcomes of individuals with disabilities, 

including, if needed, activities to improve the 

outcomes of children receiving SSI and their 

families under the PROMISE pilot program. 

The inclusion of this language would ensure 

that all unused funds would remain available 

to improve the outcomes of individuals with 

disabilities, instead of being returned to the 

Treasury.

J-2
REHABILITATION SERVICES

Analysis of Language Provisions and Changes

Language Provision Explanation

5 Provided further, That States may award 

subgrants for a portion of the funds to other 

public and private, non-profit entities:

This language would permit States to use a 

portion of their project funds to make 

subgrants to other public and private, nonprofit entities for carrying out innovative 

activities aimed at improving the outcomes of 

individuals with disabilities.

6 Provided further, That any funds made 

available subsequent to reallotment for 

innovative activities aimed at improving the 

outcomes of individuals with disabilities shall 

remain available until September 30, 

[2016]2017:

This language would permit the funds made 

available subsequent to reallotment of VR 

State Grant funds for activities aimed at 

improving the outcomes of individuals with 

disabilities to remain available for 2 years. 

7 [Provided further, That, $2,000,000 shall be 

for competitive grants to support alternative 

financing programs that provide for the 

purchase of assistive technology devices, 

such as a low-interest loan fund; an interest 

buy-down program; a revolving loan fund; a 

loan guarantee; or insurance program: 

Provided further, That applicants shall 

provide an assurance that, and information 

describing the manner in which, the 

alternative financing program will expand 

and emphasize consumer choice and control: 

Provided further, That State agencies and 

community-based disability organizations 

that are directed by and operated for 

individuals with disabilities shall be eligible to 

compete].

This language, which earmarks funds to 

support alternative financing programs (AFP), 

is deleted because responsibility for the 

administration of the assistive technology 

programs, including the AFP, is transferred 

from the Department of Education to HHS. 

Funds to support these programs are not 

requested under this account.

J-3
REHABILITATION SERVICES

Appropriation, Adjustments and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2014 2015 2016

Discretionary:

Discretionar y: Appropriation .................................................. $378,444 $374,779 $140,339

Mandatory:

Mandator y: Appropriation .................................................. 3,302,053 3,335,074 3,391,770 Discretionar y

: Sequester (P.L. 112-25).................................. -237,748 -243,460 0

 Total, adjusted mandatory appropriation ..... 3,064,305 3,091,614 3,391,770

Total, discretionary and adjusted 

mandatory appropriation 3,442,749 3,446,393 3,532,109

J-4
REHABILITATION SERVICES AND DISABILITY RESEARCH

Summary of Changes

(dollars in thousands)

2015............................................................................................ 3,709,853 1

2016............................................................................................. 3,532,109

Net change.............................................................. +177,744 1 Excludes 7.3 percent sequester reduction of mandatory VR State Grant funds pursuant to the 

Budget Control Act (P.L. 112-25)

Increases: 2015 base

Change 

from base

Program:

Increase in funding for Vocational Rehabilitation (VR) State 

grants, consistent with the inflation increase specified in the 

authorizing statute. $3,335,074 +$56,696

Increase in funding for Supported Employment State grants to 

help State agencies in meeting the new challenges and 

opportunities resulting from program changes made by WIOA. 27,548 +3,000

Increase in funding for the Helen Keller National Center to 

support one-time renovation projects. 9,127 +713

 Subtotal, increases 60,409

Decreases: 2014 base

Change 

from base

Program:

Eliminates funding for the Independent Living State grants 

program because responsibility for the program’s 

administration transferred from the Department of Education to 

HHS pursuant to WIOA. $22,878 -22,878

Eliminates funding for the Centers for Independent Living 

program because responsibility for the program’s 

administration transferred from the Department of Education to 

HHS pursuant to WIOA. 78,305 -78,305

Eliminates funding for the National Institute on Disability and 

Rehabilitation Research because responsibility for the 

Institute’s administration transferred from the Department of 

Education to HHS pursuant to WIOA 103,970 -103,970

Eliminates funding for the Assistive Technology programs

because responsibility for these programs’ administration 

transferred from the Department of Education to HHS

pursuant to WIOA. 33,000 -33,000

 Subtotal, decreases -238,153

Net change -177,744

J-5
REHABILITATION SERVICES

Authorizing Legislation

(dollars in thousands)

Activity

2015

Authorized

footnote

2015

Estimate

footnote

2016

Authorized

footnote

2016

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B-110 and 111) $3,335,074 1 $3,052,454 $3,408,4462 $3,350,594

VR Grants for Indians (RA-I-C) --- 1, 3 39,160 --- 2,3 41,176

Client assistance State grants (RA-I-112) 12,000 13,000 12,927 13,000

Supported employment State grants (RA-VI-B) 27,548 27,548 29,676 30,548

Training (RA-III-302) 33,657 30,188 36,257 30,188

Demonstration and training programs (RA-III-303) 5,796 5,796 6,244 5,796

Independent living (IL):

IL State grants (RA-VII-1-B) 22,878 22,8784 --- ---

IL Centers (RA-VII-1-C) 78,305 78,3054 --- ---

IL Services for older blind individuals (RA-VII-2) 33,317 33,317 35,890 33,317

Protection and advocacy of individual rights (RA-V-509) 17,650 17,650 19,013 17,650

National Institute on Disability and Rehabilitation Research (RA-II) 103,970 103,9704 --- ---

Helen Keller National Center for Deaf-Blind Youths and Adults 

(HKNCA) 0 5 9,127 0 5 9,840

Assistive technology (ATA):

Assistive technology programs (ATA-4,5, and 6) 0 6 31,0004 --- ---

AT Alternative financing programs 0 7 2,0004 --- ---

Total definite authorization 0 0

Total discretionary appropriation 374,779 140,339

J-6

J-6
REHABILITATION SERVICES

Authorizing Legislation—continued

(dollars in thousands)

Activity

2015

Authorized

2015

Estimate

2016

Authorized

2016

Request

Total mandatory appropriation $3,335,074 $3,391,770

Total appropriation 3,709,853 3,532,109

Portion of request not authorized 9,840

Total appropriation including mandatory decrease 3,466,393

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 2014, this 

amount was $3,335,074 thousand. 2 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 2016, this amount is $3,391,770 thousand. 3 The Rehabilitation Act requires that 1.0 percent to 1.5 percent of the appropriation for Vocational Rehabilitation State grants be set aside for Grants to

Indians. 4 On July 22, 2014, the President signed into law the Workforce Innovation and Opportunity Act of 2014 (P.L. 113-128), which transfers the responsibility for 

administering this program from the Department of Education to the Department of Health and Human Services. 5 The GEPA extension expired September 30, 2004; the program is authorized in FY 2015 through appropriations language. Continued funding is proposed 

for this program in FY 2016 under appropriations language. 6 The GEPA extension expired September 30, 2011; the program is authorized in FY 2015 through appropriations language. 7 The FY 2015 appropriation authorized funds to support a separate competitive alternative financing program.

J-7

J-7
REHABILITATION SERVICES

Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Foot

-

note Appropriation

2007 $3,180,414 N/A1 N/A1 $3,242,512

2008 3,184,263 $3,279,743 $3,286,942 3,276,768

2009 3,218,264 3,387,4432 3,379,1092 3,387,762

Recovery Act Supplemental 

(PL 111-5) 0 700,000 610,000 680,000

2010 3,500,735 3,504,305 3,507,3223 3,506,861

2011 3,565,326 3,501,7664 3,542,5103 3,474,7185

2012 3,541,111 3,522,6866 3,511,7356 3,511,281

2013 3,517,710 3,511,2817 3,626,3807 3,622,925

2014 3,655,577 N/A8 3,698,1743 3,680,497

2015 3,683,335 N/A8 3,722,8539 3,709,853

2016 3,532,109

1 This account operated under a full-year continuing resolution (P.L. 110-5). House and Senate Allowance 

amounts are shown as N/A (Not Available) because neither body passed a separate appropriations bill. 2 The levels for the House and Senate allowances reflect action on the regular annual 2009 appropriations bill, 

which proceeded in the 110th Congress only through the House Subcommittee and the Senate Committee. 3 The levels for the Senate allowance reflects Committee action only. 4 The levels for the House allowance reflects the House-passed full-year continuing resolution. 5 The level for appropriation reflects the Department of Defense and Full-Year Continuing Appropriations Act, 2011 

(P.L. 112-10). 6 The level for the House allowance reflects an introduced bill and the level for the Senate allowance reflects 

Senate Committee action only. 7 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. 8 The House allowance is shown as N/A because there was no Subcommittee action. 9 The level for the Senate allowance reflects Senate Subcommittee action only.

J-8
REHABILITATION SERVICES

Significant Items in FY 2015 Appropriations Reports

Vocational Rehabilitation State Grants – Disability Innovation Fund

Managers

Statement: The agreement continues language allowing excess funds above those 

requested during the reallotment process to support innovative activities aimed at 

improving outcomes for individuals with disabilities, including activities under the 

Promoting Readiness of Minors in Supplemental Security Income (PROMISE) 

program. After covering the continuation costs of PROMISE, the agreement 

includes VR funds remaining available at the end of fiscal year 2015 to support a 

new Transition Model System (TMS) that addresses the complex challenges 

facing youth with disabilities as they transition from school to adult life. The 

agreement expects that an estimated $15,000,000 will be needed to support the 

cost of the 5-year TMS projects. The Department shall notify the House and 

Senate Committees on Appropriations in advance of announcements related to 

the initiative. 

Response: The Department plans to use the VR funds that remain available at the end of 

fiscal year 2015 to conduct a Transition Model System competition in fiscal year 

2016. The TMS would support the development and testing of a coordinated 

model system of transition planning, services, and supports in order to improve 

postsecondary results for youth with disabilities. The Department will notify the 

House and Senate Committees on Appropriations in advance of announcements 

related to the initiative. 

J-9
S

DEPARTMENT OF EDUCATION FISCAL YEAR 2016 PRESIDENT'S BUDGET 

Click here for accessible version 

(in thousands of dollars) 2016

Category 2014 2015 President's 

Account, Program and Activity Code Appropriation Appropriation Budget Amount Percent

Rehabilitation Services 

1. Vocational rehabilitation State grants:

(a) Grants to States (RA Title I-A, sections 110 and 111) 1 M 3,027,104 3,052,454 3,350,594 298,140 9.767%

(b) Grants to Indians (RA Title I-C) M 37,201 39,160 41,176 2,016 5.148%

Subtotal 3,064,305 3,091,614 3,391,770 300,156 9.709%

Mandatory baseline M 3,302,053 3,335,074 3,391,770 56,696 1.700%

 2. Client assistance State grants (RA section 112) D 12,000 13,000 13,000 0 0.000%

 3. Training (RA section 302) D 33,657 30,188 30,188 0 0.000%

 4. Demonstration and training programs (RA Section 303) D 5,796 5,796 5,796 0 0.000%

 5. Migrant and seasonal farmworkers (RA section 304) D 1,196 0 0 0 ---

 6. Protection and advocacy of individual rights (RA section 509) D 17,650 17,650 17,650 0 0.000%

 7. Supported employment State grants (RA VI-8) D 27,548 27,548 30,548 3,000 10.890%

 8. Independent living (RA VII):

(a) State grants (Chapter 1, Part B) 1 D 22,878 22,878 0 (22,878) -100.000%

(b) Centers (Chapter 1, Part C) 1 D 78,305 78,305 0 (78,305) -100.000%

(c) Services for older blind individuals (Chapter 2) D 33,317 33,317 33,317 0 0.000%

 9. Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) D 9,127 9,127 9,840 713 7.812%

 10. National Institute on Disability and Rehabilitation Research (RA II) 1 D 103,970 103,970 0 (103,970) -100.000%

 11. Assistive technology programs (ATA, sections 4, 5, and 6) 1 D 33,000 33,000 0 (33,000) -100.000%

Subtotal 378,444 374,779 140,339 (234,440) -62.554%

Total 3,442,749 3,466,393 3,532,109 65,716 1.896%

Discretionary D 378,444 374,779 140,339 (234,440) -62.554%

Mandatory M 3,064,305 3,091,614 3,391,770 300,156 9.709%

NOTES: D = discretionary program; M = mandatory program; FY = fiscal year 

Accounts are shown under the administering office that has primary responsibility for most programs in that account; however, there may be some programs that are administered by another office.

For mandatory programs, the levels shown in the 2014 Appropriation column reflect the 7.2 percent sequester that went into effect October 1, 2013, and the levels shown in the 2015 Appropriation column

reflect the 7.3 percent sequester that went into effect October 1, 2014, pursuant to the Budget Control Act of 2011 (P.L. 112-25).

Detail may not add to totals due to rounding. 

1 On July 22, 2014, the President signed into law the Workforce Innovation and Opportunity Act of 2014 (P.L. 113-128), which transfers the responsibility for administering this program from the Department of Education to the 

Department of Health and Human Services. 

2016 President's Budget 

Compared to 2015 Appropriation

Summary Request

J-10
REHABILITATION SERVICES

Summary of Request

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 to 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 Administration’s 2016 Request for the Rehabilitation Services account provides $3.5 billion 

to support comprehensive and coordinated vocational rehabilitation for individuals with 

disabilities through training, demonstration, technical assistance, and advocacy, and to assist 

older individuals who are blind to live more independently. 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 $3.4 billion request for the Vocational Rehabilitation (VR) State Grants program includes an 

increase of $56.7 million over the fiscal year 2015 mandatory level, consistent with the inflation 

increase specified in the authorizing statute, to assist States and tribal governments in 

increasing the participation of individuals with disabilities in the workforce. WIOA strengthened 

the alignment of the VR program with other components of the workforce development system 

to ensure a coordinated and streamlined workforce development 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. In implementing the changes to Titles I and IV of 

WIOA, the Department’s Office of Special Education and Rehabilitative Services (OSERS) is 

working with its partners in the Federal workforce development system to improve employment 

outcomes for individuals with disabilities, particularly individuals with significant disabilities and 

youth with disabilities.

As in previous years, the 2016 Request includes appropriations language that would allow the 

Secretary to use amounts under the VR State Grants program that would otherwise return to the 

Treasury to support innovative activities aimed at improving outcomes for individuals with 

disabilities. The requested language also would provide authority for these funds to remain 

available for Federal obligation until September 30, 2017. 

The Administration requests $30.5 million for Supported Employment State Grants program, an 

increase of $3 million over the 2015 level to assist State agencies in meeting the new 

challenges and opportunities resulting from WIOA. WIOA made several significant changes to 

this program in order to maximize the potential of individuals with the most significant 

disabilities, particularly youth with the most significant disabilities, who require ongoing supports 

to achieve competitive integrated employment. These changes will have a major impact on the

provision of supported employment services, including increasing the demand and the cost of 

services. 

For the Helen Keller National Center, the Administration requests $9.8 million to provide direct 

services for approximately 65 clients at the Center’s residential training and rehabilitation 

J-11
REHABILITATION SERVICES

Summary of Request

f Request

program, and serve an estimated 1,500 consumers, 350 families, and 800 agencies and 

organizations through its regional offices. The $713,000 increase requested for fiscal year 2016 

would support one-time renovation projects to address safety and infrastructure needs and help 

to upgrade facilities to comply with the American with Disabilities Act.

Section 491 of WIOA transferred several programs administered by OSERS to the 

Administration for Community Living in the Department of Health and Human Services. 

Consequently, the Administration’s 2016 Request does not include funds for the State 

Independent Living Services program, the Centers for Independent Living program, programs 

under the Assistive Technology Act of 1998 (including the Alternative Financing Program) and 

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

All other programs in the Rehabilitation Services account would be maintained at the 2015 level. 

The Administration believes that this level will provide sufficient funds for the activities in these 

programs. 

J-12
REHABILITATION SERVICES

Vocational rehabilitation State grants

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

(dollars in thousands)

FY 2016 Authorization: $3,391,770 1

Budget Authority: 

Program 2015 2016 Change

State grants $3,294,586 $3,350,594 +$56,008

Indian set-aside 40,488 41,176 +688

Total 3,335,074 23,391,770 +56,696

_________________

1 The Vocational Rehabilitation (VR) 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). In fiscal year 2016 this amount is $3,391,770 

thousand. 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 Vocational Rehabilitation State Grants be set aside for Grants for American

Indians.

2 The amount shown in the 2015 column is the mandatory amount to be appropriated 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 the Vocational Rehabilitation State Grants program in 2015 subsequent to the 7.3 percent 

sequester is $3,091,613,598.

PROGRAM DESCRIPTION

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 makes numerous changes that affect the VR 

program, including changes made to the workforce development system under Title I of WIOA 

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

The VR State Grants program supports VR services through formula grants to State VR 

agencies. These 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 with a physical or mental impairment that results in a substantial 

impediment to employment, who can benefit in terms of an employment outcome, and require 

VR services are eligible for assistance. Program services are tailored to the specific needs of 

the individual through an individualized plan for employment (IPE). An eligible individual, or as 

appropriate, the individual’s representative, may develop all or part of the IPE with or without 

assistance from a qualified rehabilitation counselor, or with technical assistance from other 

outside resources. The IPE must be agreed to by the individual and approved and signed by a 

qualified rehabilitation counselor employed by the State VR agency. The program may provide a 

variety of services, such as vocational evaluation, counseling, mental and physical restoration, 

J-13
REHABILITATION SERVICES

Vocational rehabilitation State grants

education, vocational training, job placement, rehabilitation technology, and supported 

employment services. 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. The authorizing legislation requires 

the program to be funded at least at the prior year level, and increased by the percentage 

increase in the Consumer Price Index for Urban Consumers (CPIU) over the past year. 

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

distribute funds among the States. The fiscal year 2014 State distributions were based on the 

July 1, 2012 estimates published on December 20, 2012. The fiscal year 2015 State 

distributions are based on the July 1, 2013 estimates published on December 30, 2013. The 

fiscal year 2016 State distributions will be based on the July 1, 2014 estimates published on 

December 23, 2014. Per capita income averages for fiscal years 2014 and 2015 are based on 

Bureau of Economic Analysis revised estimates for calendar years 2009, 2010, and 2011 as 

reported by the Department of Commerce on September 25, 2012. Per capita income averages 

for fiscal year 2016 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. 

Grant funds are administered by VR agencies designated by each State. There are currently a 

total of 80 State VR agencies. Thirty-two (32) States operate a “combined” agency serving all 

disability categories. Twenty-four (24) States operate a separate agency for individuals who are 

blind or visually impaired and a “general” agency for all other disability categories. The State 

matching requirement is 21.3 percent, except the State share is 50 percent for the cost of 

construction of a facility for community rehabilitation program purposes. 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 are also required to maintain the level of State expenditures made under the State plan 

from non-Federal sources at least at 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. 

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 Rehabilitation Act (the 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 

American Indian VR Services (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. 

J-14
REHABILITATION SERVICES

Vocational rehabilitation State grants

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. 

Workforce Innovation and Opportunity Act

WIOA makes significant changes to the provisions in Title I which govern the workforce 

development. The VR State Grants program is a core program and a required partner in the 

one-stop service delivery system established under 121(e) of WIOA for accessing employment 

and training services. The one-stop system 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. 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. One-stop partners, 

including State VR agencies, are required to use a portion of their available funds to maintain the 

one-stop delivery system, including payment of the infrastructure costs of local one-stop centers. 

The one-stop centers must be physically and programmatically accessible to ensure the equal, 

effective, and meaningful participation by individuals with disabilities in the workforce 

development system. In addition, Title I of WIOA establishes performance accountability 

measures that apply across the core programs to assess the effectiveness of States and local 

areas in achieving positive outcomes for individuals served by those programs and eliminates 

the previous VR standards and indicators under section 106 of the Rehabilitation Act. 

Amendments to the Rehabilitation Act in Title IV of WIOA emphasize the achievement of 

competitive integrated employment by individuals with disabilities, including youth and those with 

the most significant disabilities. The definition of competitive integrated employment and 

extensive use of the term throughout the reauthorized Rehabilitation Act, including the purpose 

of the Rehabilitation Act, signal Congress’ intent that individuals with disabilities, including those 

with the most significant disabilities, are capable of achieving competitive integrated employment 

if they are provided the appropriate supports, services, and training.

WIOA places great emphasis on services to youth, expands the population eligible to receive 

certain discrete VR services and permits a wider range of services to students who are 

transitioning from school to post-school activities, including postsecondary education and 

employment. These changes include the expansion of individual services to students and youth 

with disabilities, including the provision of pre-employment transition services, the provision of 

services for the benefit of groups of students and youth with disabilities, and requirements to 

seek comparable benefits and services from other public agencies prior to expending VR 

program funds for accommodations and auxiliary aids and services. In addition, new State plan 

provisions require each State VR agency to describe how it will address the needs, goals, and 

strategies related to students with disabilities identified in their comprehensive needs 

assessment and how it will implement the provision of pre-employment services to students with 

disabilities. 

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WIOA also amends the Rehabilitation Act by adding provisions (new section 511) that limit the 

use of special wage certificates to pay individuals with disabilities subminimum wages. These 

new provisions would prohibit employers from paying an individual with a disability who is age 24 

or younger a sub-minimum wage, pursuant to section 14(c) of the Fair Labor Standards Act, 

unless certain conditions are met. As a result, State VR agencies will need to develop methods 

of documenting the strategies and services that would meet these conditions in the event that an 

individual is unsuccessful in competitive integrated employment and is willing to work for an 

employer at a subminimum wage or makes an individual choice to do so as provided under the 

Rehabilitation Act.

There is also significant emphasis in WIOA on the relationship between VR agencies and 

employers in increasing the employment of individuals with disabilities through encouraging 

meaningful input by employers and expanding the scope of permissible activities under the VR 

program with respect to employers. For example, the State plan must now describe how the 

designated VR State unit will work with employers to identify competitive integrated employment 

opportunities and career exploration opportunities, in order to facilitate the provision of services. 

The plan must also describe how the State will utilize initiatives involving in-demand industry 

sectors or occupations under sections 106(c) and 108 of WIOA to increase competitive 

integrated employment opportunities for individuals with disabilities. In addition, amendments to 

section 109 of the Rehabilitation Act allow State VR agencies to use their funds to educate and 

provide services to employers, including providing training, technical assistance, and support to 

employers on workplace accommodations, assistive technology, and facilities and workplace 

access to enable the employers to recruit, job match, hire, and retain qualified individuals with 

disabilities; and working with employers to provide opportunities for work-based learning 

experiences and training of employees who are individuals with disabilities; and to promote 

awareness of disability–related obstacles to continued employment; 

Finally, amendments to the Rehabilitation Act add numerous new reporting requirements. 

Currently RSA collects quarterly aggregate data on applicants and individuals receiving VR 

services during the fiscal year and data at the individual consumer level only after their case 

service record is closed. Amendments to the data collection requirements in section101(a)(10) 

of the Rehabilitation Act add new data elements and require that States report data at the 

consumer level on individuals who are currently receiving services (“open cases”).

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

Fiscal Year (dollars in thousands)

2011 ..............................................................$3,084,696

2012 ................................................................3,121,712

2013 ................................................................3,066,192

2014 ................................................................3,064,305 1

2015 ................................................................3,091,614 1

_________________

1 The amounts shown for 2014 and 2015 reflect the sequester reduction for mandatory programs pursuant to the 

Budget Control Act of 2011. The mandatory appropriation was reduced by 7.2 percent in 2014 and 7.3 percent in 

2015.

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FY 2016 BUDGET REQUEST

The Administration requests $3.4 billion, an increase of $56.7 million over the fiscal year 2015

mandatory level to assist States and Tribal governments to increase the participation of 

individuals with disabilities in the workforce. Of the amount requested, $41.2 million would be set 

aside to support grants under the American Indian Vocational Rehabilitation Services (AIVRS) 

program. The request reflects the CPIU adjustment specified in the authorizing statute 

(1.7 percent for 2016).

Although many people with disabilities are obtaining jobs and remaining employed, the 

unemployment rate for people with disabilities is still unacceptably high. For example, in 

“Persons with a Disability: Labor Force Characteristics” report released in June 2014 (2013 

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 much less likely to be employed (either full-time or parttime) than people without such disabilities (26.8 percent versus 70.7 percent respectively) and 

that only 18.9 percent of working-age individuals with disabilities were usually working full-time. 

Of those people with disabilities who were employed, 29.7 percent usually worked part-time (less 

than 35 hours per week) compared to 17.6 percent of people without such disabilities. In 

addition, employed persons with a disability were more likely to be self-employed (10.9 percent) 

than those with no disability (6.4 percent). Source: 

http://www.bls.gov/news.release/disabl.toc.htm. 

The VR State Grants 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 employment. Nationally, there are about 1 million individuals with 

disabilities in various phases of the vocational rehabilitation process within the VR system, about 

94 percent of whom are individuals with significant disabilities. If a State VR agency cannot 

serve all eligible persons, it must serve first those individuals with the most significant disabilities 

under an “order of selection.” For fiscal year 2015, the State Plans of 34 of the 80 State VR 

agencies documented that the agency had established an order of selection, one agency more 

than in fiscal year 2014. This total includes 57 percent of the general and combined State VR 

agencies and 8 percent of the State VR agencies serving blind individuals.

WIOA recognizes the need for continued modernization and improvement of the workforce 

development system and the VR State Grants program to increase employment opportunities for 

disadvantaged populations, including individuals with disabilities. To ensure its swift 

implementation, WIOA established an aggressive timeframe for the Departments of Education 

and Labor to work together to publish regulations. Through these proposed joint regulations, we 

are laying the foundation for the establishment of a workforce development system that serves 

all individuals in need of employment services, including individuals with disabilities, and 

employers in a manner that is customer-focused and that supports an integrated service design 

and delivery model. 

The Departments of Education and Labor plan to publish five Notices of Proposed Rulemaking 

(NPRMs) concurrently to implement WIOA, one of which will be a joint NPRM covering jointly 

administered activities, e.g., unified and combined state plans, performance accountability, and 

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the one-stop system. The other NPRMs will implement: 1) the remaining provisions of Title I 

and Title III of WIOA, administered by the Department of Labor; 2) Title II, administered by the 

Department of Education; and 3) Title IV of WIOA, administered by the Department of Education, 

which will be presented in two separate NPRMs due to the number of programs affected. We 

are working diligently toward completion of this important and complex proposal and the 

publication of the NPRMs is currently anticipated to occur in Spring 2015. These NPRMs will be 

published in the Federal Register and posted on http://www.regulations.gov/home, where public 

comments can be submitted. The Departments of Labor and Education will analyze these public 

comments, and anticipate issuing Final Rules implementing WIOA in early 2016. 

In implementing the changes to Titles I and IV of WIOA, ED’s Office of Special Education and 

Rehabilitative Services (OSERS) is working with its partners in the Federal workforce 

development system to improve employment outcomes for individuals with disabilities, 

particularly individuals with significant disabilities and youth with disabilities. The Department’s 

implementation of WIOA with respect to the VR program reflects the following guiding principles: 

(1) strengthen the alignment of the VR program with other components of the workforce 

development system; (2) emphasize the achievement of competitive integrated employment by 

individuals with disabilities, including individuals with the most significant disabilities; (3) expand 

services to support the transition of students and youth with disabilities to postsecondary 

education and employment; and (4) build stronger relationships with employers and provide 

individuals with disabilities with the skills they need to secure good jobs in the labor market that 

are ready to be filled.

The alignment of a comprehensive, accessible, and high quality workforce development system 

will increase access to, and opportunity for, employment, education, training, and support 

services for individuals with disabilities seeking employment. 

The one-stop delivery system brings together entities responsible for administering separate 

workforce development, educational, and other human resource programs and funding streams 

to collaborate in the creation of a seamless customer-focused service delivery network that 

integrates service delivery across programs, enhances access to the programs' services, and 

improves long-term employment outcomes for individuals receiving assistance. A common 

performance accountability system can better address the needs of workers, job seekers, and 

employers by aligning definitions, streamlining performance measures, and integrating reporting 

for each of the core programs to the extent practicable, while maintaining program-specific 

requirements. State VR agencies will need to work with their partner programs to align their 

State workforce development system through unified strategic planning requirements, common 

performance accountability measures, and requirements governing the one-stop delivery system.

The unified or combined State plan will promote a shared understanding of the workforce needs 

of a State, provide a comprehensive strategy to address those needs, align Federal investments 

in job training, and ensure that the workforce development system is job-driven and matches 

employers with skilled individuals, including individuals with disabilities served by the VR 

program and other one-stop system partners. VR agencies must enter into cooperative 

agreements with the other components of the workforce development system regarding the 

provision of staff training and technical assistance to promote equal, effective, and meaningful 

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participation by individuals with disabilities in workforce development activities in the State 

through program accessibility, include both programmatic and physical accessibility.

Individuals with disabilities, including those with the most significant disabilities, are capable of 

achieving high-quality, competitive integrated employment.

The foundation of the VR program is the principle that individuals with disabilities, including those 

with the most significant disabilities, are capable of achieving high-quality, competitive integrated 

employment when provided the necessary skills and supports. However, to increase the 

employment of individuals with disabilities in the competitive labor market, the workforce system 

must be able to provide the opportunity for such individuals to participate in job-driven training 

and pursue high-quality employment outcomes, including full access to necessary supports and 

services. State VR agencies must coordinate and collaborate with other entities, including 

employers, educational and non-educational agencies working with youth, and other agencies 

and programs providing services to individuals with disabilities to maximize opportunities that 

support the achievement of competitive integrated employment for individuals with disabilities. In 

particular, State VR agencies must ensure that individuals with disabilities served under the VR 

program are prepared for, obtain, retain, and advance in the same type of high-quality jobs and 

high-demand careers as persons without disabilities. 

Students and youth with disabilities require coordinated transition planning and services,

including postsecondary education and training, and supports to achieve employment outcomes

in competitive integrated employment.

Approximately 35 percent of current VR consumers are youth with disabilities aged 14-24 and 

the percentage is expected to rise. WIOA places great emphasis on the provision of services to

students and youth with disabilities to ensure that they have meaningful opportunities to receive

the training and other services they need to achieve employment outcomes in competitive

integrated employment. WIOA contains a number of requirements to help ensure to the greatest 

extent possible that youth with disabilities who are transitioning from special education under the 

Individuals with Disabilities Education Act (IDEA) have the opportunities for postsecondary 

success, including greater coordination between services provided by States under the IDEA and 

VR program. Effective transition planning and implementation for youth with disabilities generally 

requires a much broader spectrum of service delivery than job training. Particularly for youth 

with significant disabilities, effective transition requires VR counselors to work in concert with 

various education systems, job training programs, Medicaid, independent living centers, housing 

and transportation authorities, as well as businesses and employers. 

To ensure youth with disabilities have the education and skills necessary to be successful, 

OSERS is leveraging resources across the Department to strengthen the linkages between K-12 

and postsecondary education and careers for individuals with disabilities and their families, 

including general and special education, postsecondary education, civil rights, adult and career 

and technical education, as well as other agencies across the Federal government. In addition 

to issuing regulations that will help State VR agencies in implementing these new provisions, 

OSERS will be developing guidance for the many partners, including parents and families, that 

play a role in the success of a student with a disability’s transition from high school to 

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postsecondary education and careers, to encourage collaborative transition practices that will 

enable youth with disabilities to participate in competitive, integrated employment.

The workforce development system, including the VR program, must provide maximum 

opportunities for individuals with disabilities to participate in job-driven training: providing workers 

with the skills they need to secure good jobs in the labor market that are ready to be filled.

VR counselors must build and maintain relationships with employers, work up-front with 

employers to determine local or regional hiring needs, and design training programs that are 

responsive to those needs. VR agencies and counselors must understand data about job trends 

and industry and occupational classification systems, a knowledge base that is necessary for 

them to engage effectively with employers, as well as knowledge about ways to customize 

employment for individuals with disabilities. VR State agencies will need to coordinate with 

employers to make sure they train individuals with skills that have a high likelihood of leading to 

employment, and should include work-based learning opportunities, such as paid internships, 

apprenticeships, or on-the-job-training. 

Collaboration with employers is essential to the success of VR program participants. VR 

agencies will need to implement effective strategies for providing training and technical 

assistance services to employers hiring, or interested in hiring individuals with disabilities. These 

services could include consultation, technical assistance, and support to employers on workplace 

accommodations, assistive technology, and facilities and workplace access through collaboration 

with community partners and employers to enable the employers to recruit, job match, hire, and 

retain qualified individuals with disabilities.

In fiscal year 2014, RSA awarded a 3-year grant under the Rehabilitation Training Program to 

establish a Job-Driven Vocational Rehabilitation Technical Assistance Center to help support 

State VR agency personnel in implementing job-driven strategies for employer-engagement and 

training for VR consumers. This investment will help to ensure that counselors have the 

knowledge and skills necessary to meet the demands of employers and to promote employment 

of individuals with disabilities. 

While we are optimistic that these changes will improve performance of the VR program in the 

long-term, we recognize that State VR agencies will face challenges in their implementation, 

particularly where such changes are likely to increase the costs and the demand for services. 

For example, new data collection and reporting requirements will increase the cost of 

administering the program. Without additional resources, increased costs coupled with new setasides and infrastructure support will strain resources for providing direct services to VR 

consumers. Unfortunately resources for the VR program have been reduced through 

sequestration, including the implementation of the sequester reduction in funding for mandatory 

programs of 7.2 percent in fiscal year 2014 and 7.3 percent in fiscal year 2015 by the Budget 

Control Act of 2011 (P.L. 112-25).

Disability Innovation Fund 

In recent years, the economic downturn affected a number of States’ ability to provide the 

required non-Federal share (21.3 percent) in order to receive their full Federal VR allotment and 

to meet their MOE requirement. In addition, fewer States requested additional funds during 

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reallotment. 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 the they will be able to use such additional amounts during the 

current or subsequent fiscal year, provided they are able to pay the non-Federal 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, since 2009, the amount of funds that were returned by States, or remained unobligated 

due to MOE penalties, exceeded the additional funds requested because many States were 

unable to match the Federal funds.

As a result, beginning with the fiscal year 2012 budget request, the Administration has sought 

authority to use amounts that remain 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. In fiscal years 2012 and 2013 the Administration requested and received authority to 

the use these unobligated funds to improve the education and employment outcomes of children 

receiving Supplemental Security Income (SSI) and their families, including language for the 

funds to remain available for Federal obligation for an additional 12 month period.

In fiscal year 2013, such funds remaining from the 2012 appropriation, were used to award 

5 - year grants to 5 States and a consortium of 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 and Labor. Under the PROMISE program, States have 

developed partnerships that will implement 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 of Education. The evaluation 

will guide implementation, gather evidence, and validate project outcomes. 

In fiscal year 2014, the Department used the approximately $81 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 

grant awarded in fiscal year 2014. All six MDP projects are recruiting and enrolling participants 

and they will continue this process through April 2016. In total, the projects have committed to 

enrolling 13,172 child SSI participants. Approximately half of the children and families enrolled 

will be placed in the treatment group and receive project services. To date, approximately 2,000 

youth have been enrolled across the six projects.

Cloud Automatic Personalization Project

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 

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

until September 30, 2015. In fiscal year 2015, the Department plans to use unobligated fiscal 

year 2014 VR funds (about $40 million) to cover any additional costs of the PROMISE MDPs and 

up to $20 million to fully-fund an innovative project that would help to advance equal access to 

Web-based content and tools for individuals with disabilities or language barriers. The goal of 

this proposal 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. This proposed initiative, the Cloud Automatic Personalization project (CAPP), 

would build upon past research supported by the National Institute on Disability and 

Rehabilitation Research (NIDRR) on cloud computing (the cloud), including its work with the 

World Wide Web Consortium’s Web Accessibility Initiative, which sets international standards for 

internet accessibility.

The CAPP would be designed as a public/private partnership that would set the foundation for 

and build a government secured cloud server that hosts internet accommodations that work on 

any Web-enabled device. These accommodations are known as “automatic personalization” 

because when a person uses a secure login, the cloud is used instantly to draw down the 

preferences of the user and make any Web-enabled device meet those preferences or 

requirements. Examples of such preferences could include font size or color, 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 Department will be 

partnering with National Institute on Disability, Independent Living, and Rehabilitation Research 

(NIDILRR), now administered by the Administration for Community Living in HHS, and other 

interested Federal entities in refining the development of this proposal.

Transition Model System

Consistent with the President’s 2015 Request, the Department proposes to use VR funds that 

remain available at the end of fiscal year 2015 to support a Transition Model System (TMS) 

initiative under the DIF that would support the development and testing of a coordinated model 

system of transition planning, services, and supports in order to improve postsecondary results 

for youth with disabilities. TMS projects would identify, implement, and test core components of 

a transition system service delivery model that would be validated through a rigorous evaluation 

of the model system. This initiative would build on current knowledge from a variety of 

investments that OSERS and others have made in this area, including early knowledge gained 

from the PROMISE grants. The target population under consideration would include youth with 

disabilities ages 14-24 who are receiving services under the IDEA or accommodations pursuant 

to section 504 of the Rehabilitation Act, as well as youth with disabilities who have dropped out 

or are at risk of dropping out of high school. The Department estimates that at least $15 million 

would be needed to support the cost of the proposed 5-year TMS projects. The Department 

plans to use the balance of any unobligated fiscal year 2015 funds, if any, to begin to develop 

and support the activities described below for implementation with subsequent year DIF funds.

DIF Proposal for Fiscal Year 2016 Funds

After a record high in fiscal year 2012 (over $100 million), the amount of VR funds that remain 

unobligated at the end of the fiscal year is declining, with about $39 million, including 

approximately $15 million in MOE penalties, remaining unobligated at the end of fiscal year 

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2014. Similar to previous years, most of these funds were relinquished by a small number of 

States. States continue to recover from the earlier economic downturn and stabilize their 

spending patterns. In addition, the sequestration of mandatory funds required by the Budget 

Control Act in recent years, has reduced the amount of funds State VR agencies would have 

otherwise received thorough the allotment formula. Thus, we expect that only a very few State 

VR agencies will be unable to match their fiscal year 2016 Federal funds or meet their MOE 

requirement and the Department will be able to reallocate nearly all unused funds to other State 

VR agencies.

While, we anticipate that there will be very few VR funds that will remain available after 

reallotment at the end of fiscal year 2016, the Administration is requesting appropriations 

language for fiscal year 2016 to continue the authority to use such funds to support innovative 

activities under the DIF that would otherwise be unavailable for Federal obligation. If sufficient 

funds are available, the Administration proposes to use $5 million to support demonstrations to 

provide early intervention services to populations at risk of dependence on Social Security 

Disability Insurance (SSDI)/SSI. Section 412(a)(3) of WIOA amends the VR State plan to 

include a new provision that permits a State to elect to serve eligible individuals (whether or not 

receiving vocational rehabilitation services) who require specific services or equipment to 

maintain employment. People with chronic conditions and disabilities, even when those 

conditions cause significant functional impairments, can often remain at work as their condition 

worsens, provided they have affordable access to the right types of accommodations, supports, 

health care, and job training or retraining at the right time. The Department will work with SSA

and other agencies to further develop this proposal as well as other possible demonstrations to 

provide early intervention services to populations at risk of dependence on SSDI/SSI. As 

changes to the workforce development system are implemented, the Department will be

exploring how best to use available resources to support innovation strategies that can improve

outcomes for individuals with disabilities in the new WIOA environment.

American Indian Vocational Rehabilitation Services

In fiscal year 2016, the Department would set aside $41.2 million for grants under the American 

Indian Vocational Rehabilitation Services (AIVRS) program, at least 1.8 percent of which must be 

used to support training and technical assistance to governing bodies of Indian tribes located on 

Federal and State reservations. The request would enable the Department to provide support for 

about 83 tribal VR projects, including 12 new awards and 71 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. 

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PROGRAM OUTPUT MEASURES 

Vocational rehabilitation State grants

Measures 2014 2015 2016

Individuals receiving services 1 955,000 970,000 990,000

Individuals with significant disabilities as a percent

of all individuals receiving services 94% 94% 94%

Total number of cases closed 463,000 464,000 466,000

Individuals whose cases were closed and received 

VR services 326,120 327,000 329,000

Individuals achieving an employment outcome 2 183,500 184,000 185,000

Individuals with significant disabilities as a percent 

of all individuals achieving an employment 

outcome 92% 92% 92%

Note: Data for fiscal years 2014 - 2016 are projections based on actual data for fiscal years 2012, 2013, and 

preliminary data for 2014 from the RSA Quarterly Cumulative Caseload Report (RSA-113). 1 Includes all eligible individuals who received VR services during the fiscal year.

2 Number of individuals who exited the program after receiving services and achieved an employment outcome.

American Indian vocational rehabilitation services

Program funding 2014 2015 2016

Project funding:

New VR project funds $21,977 $12,607 $5,852

Continuation VR project funds $15,212 1,2 $25,836 2 $34,574

Technical assistancefunds --- $705 3 $741 3

Peer review of new awards $12 $12 $9

Number of VR projects:

Number of New projects 46 25 12

Number of Continuation projects 37 55 71

Total projects 83 80 83

1 The total amount of continuation funding shown in the table does not include three projects for which the FY 

2011-2014 continuation costs were paid in FY 2010. These costs were paid from unobligated funds that became 

available as a result of the reallotment of funds under the VR State Grants program carried out pursuant to section 

110(b)(2). 2 The total amount of continuation funding shown in the table does not include two projects for which the FY 2012-

2015 continuation costs were paid in FY 2011. These costs were paid from unobligated funds that became available 

as a result of the reallotment of funds under the VR State Grants program carried out pursuant to section 110(b)(2). 3 Beginning with fiscal year 2015, WIOA requires the Commissioner 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.

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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 2016 and future years, as well as the resources and efforts invested by those served by this 

program. Fiscal year 2014 data for the VR State Grants and the American Indian VR Services 

programs will be available in May of 2015.

WIOA eliminated the current VR standards and indicators under section 106 of the Rehabilitation 

Act which are the basis for most of the VR State Grant program measures below. While fiscal 

year 2016 targets have been set for the current measures, these measures will most likely be 

revised. 

VR State Grants

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 employment consistent with their particular 

strengths, resources, abilities, capabilities, and interests.

Measure: Percentage of general and combined State VR agencies that assist at least 

55.8 percent of individuals receiving services to achieve employment.

Year Target Actual

2011 70% 54%

2012 55 57

2013 57 64

2014 59

2015 60

2016 62

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Measure: Percentage of State VR agencies for the Blind that assist at least 68.9 percent of 

individuals receiving services to achieve employment.

Year Target Actual 

2011 60% 62%

2012 60 67

2013 62 62

2014 62

2015 64

2016 64

Additional information: This measure assesses the performance of State VR agencies in 

meeting program performance indicator 1.2 established in program regulations pursuant to 

Section 106 of the Rehabilitation Act. Indicator 1.2 measures the percentage of individuals who 

the State VR agency determines to have achieved an employment outcome out of all the 

individuals who exit the VR program after receiving services. In order to pass indicator 1.2, a 

general or combined agency must achieve an employment outcome rate of 55.8 percent, while 

an agency for the blind must achieve a rate of 68.9 percent. 

In fiscal year 2013, the target set for the group of general and combined State VR agencies was 

exceeded and performance on this measure improved significantly as compared to fiscal year 

2012, with four additional agencies meeting the 55.8 percent performance criteria. The group of 

State VR agencies serving individuals who are blind also met their fiscal year 2013 target for this 

measure. However, performance declined to the 2011 level, because one less State VR agency 

for individuals who are blind met the 68.9 percent performance criteria as compared to fiscal year 

2012.

In fiscal year 2009, there was a large decrease in the total number of individuals who obtained 

an employment outcome (12 percent). While the number of individuals who achieved an 

employment outcome continued to decline in fiscal year 2010, the overall drop in employment 

outcomes was smaller (4.8 percent). However, in fiscal years 2011 and 2012 the number of 

employment outcomes increased. Overall, fiscal year 2013 data show continued progress, with 

a 1.4 percent increase in employment outcomes. However, the performance of many State 

agencies continues to vary, particularly in terms of the number and percentage of employment 

outcomes. For example, in fiscal year 2013, 57 of the 80 agencies experienced an increase or 

no change in the number of employment outcomes, while 23 agencies had a decrease in 

employment outcomes. While 80 percent of general and combined State VR agencies

experienced an increase or no change in the number of employment outcomes, only 50 percent 

of State VR agencies serving blind individuals did so.

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Measure: Percentage of general and combined State VR agencies that assist at least 

85 percent of individuals with employment outcomes to achieve competitive employment.

Year Target Actual

2011 97% 93%

2012 95 96

2013 95 96

2014 95

2015 96

2016 98

Measure: Percentage of State VR agencies for the Blind that assist at least 65 percent of 

individuals with employment outcomes to achieve competitive employment.

Year Target Actual

2011 80% 92%

2012 85 92

2013 90 88

2014 92

2015 92

2016 92

Additional information: This measure is derived from Section 106 performance indicator 1.3, 

which measures the percentage of all individuals with employment outcomes who achieve 

competitive employment. Competitive employment is currently defined in State VR program 

regulations as work in the competitive labor market that is 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 and level of benefits paid by the employer 

for the same or similar work performed by individuals who are not disabled. In order to pass 

indicator 1.3, a general or combined agency must achieve a rate of 72.6 percent, while an 

agency for the blind must achieve a rate of 35.4 percent. 

The GPRA measure is more ambitious and has a higher performance criterion than the State VR 

agency performance indicator 1.3 because in fiscal year 2006 nearly all of the VR agencies 

passed indicator 1.3. Under the GPRA measure, general and combined agencies must assist at 

least 85 percent of individuals with employment outcomes to achieve competitive employment, 

and agencies for the blind must assist at least 65 percent of individuals with employment 

outcomes to achieve competitive employment. Despite the decline in the number of employment 

outcomes, States have been fairly successful in sustaining the percentage of competitive 

employment outcomes. In fiscal year 2013, the performance of the general and combined 

agencies on this measure was the same as in 2012 and the target was again exceeded. In fiscal 

year 2013, only 2 of the 56 general and combined agencies did not meet the performance 

criterion. In 2013, performance for the group of agencies for the blind declined as compared to 

fiscal years 2011 and 2012; with three agencies (one less than previous years) not performing at

the 65 percent criterion and so the target was not met. 

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REHABILITATION SERVICES

Vocational rehabilitation State grants

Measure: Percentage of general and combined State VR agencies for which at least 80 percent 

of the individuals achieving competitive employment have significant disabilities.

Year Target Actual

2011 89% 93%

2012 90 89

2013 91 91

2014 92

2015 92

2016 93

Measure: Percentage of State VR agencies for the Blind for which at least 90 percent of the 

individuals achieving competitive employment have significant disabilities.

Year Target Actual

2011 100% 96%

2012 100 96

2013 100 96

2014 100

2015 100

2016 100

Additional information: This measure is derived from the Section 106 performance indicator 

1.4, which measures the percentage of individuals achieving competitive employment who have 

significant disabilities. In order for a general or combined agency to pass this indicator, at least 

62 percent of individuals achieving competitive employment must have a significant disability. 

The GPRA measure for general and combined agencies is more ambitious and has a higher 

performance criterion than performance indicator 1.4. Under this measure, at least 80 percent of 

individuals achieving competitive employment must have a significant disability. In fiscal year 

2013, the performance of general and combined agencies on this measure increased as 

compared to 2012 and the 91 percent GPRA target was met.

For an agency for the blind to pass indicator 1.4, at least 89 percent of individuals achieving 

competitive employment must have a significant disability. The performance criterion for 

agencies for the blind on the GPRA measure is higher, 90 percent compared to 80 percent, 

because a higher percentage of individuals served by these agencies have significant 

disabilities. As in the three previous years, all but one of the 24 agencies for the blind did meet 

the 90 percent performance criterion and the 100 percent GPRA target was not met.

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REHABILITATION SERVICES

Vocational rehabilitation State grants

Efficiency Measures

The Department established efficiency measures to ensure that State VR agencies demonstrate 

effective fiscal management. These include the cost per participant and a consumer expenditure 

rate.

Objective: Ensure that State VR agencies demonstrate effective fiscal management.

Measure: Percentage of general and combined State VR agencies that demonstrate an 

average cost per participant between $1,200 and $3,300.

Year Target Actual

2011 70% 68%

2012 70 68

2013 70 70

2014 70

2015 70

2016 70

Measure: Percentage of State VR agencies for the Blind that demonstrate an average cost per 

participant of no more than $8,000.

Year Target Actual

2011 70% 63%

2012 63 63

2013 63 58

2014 65

2015 65

2016 65

Additional information: A common efficiency measure for job training programs is the cost per 

participant. At the national aggregate level, the cost per participant is calculated by dividing the 

total appropriation (minus the set-aside for Grants to Indians) by the total number of eligible 

individuals who received VR services. The sources of data for this measure are State agency 

data from the RSA-113 Caseload Report and RSA final State agency allocation tables. In fiscal year 

2013, performance improved compared to 2012 with 38 of the 56 (70 percent) general and 

combined State VR agencies demonstrating an average cost per participant within the 

established performance range (between $1,200 and $3,300). Of the 24 agencies for the blind, 

14 (58 percent) had an average cost per participant of no more than $8,000 – one less agency 

than in 2012. The targets for fiscal year 2012 and subsequent years for agencies for the blind 

were revised in fiscal year 2011 to reflect a more realist target based on performance in recent 

fiscal years. 

For fiscal year 2013, the average annual cost per participant for general and combined State 

vocational rehabilitation agencies was $2,885 with a range (excluding the outlying areas) of 

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REHABILITATION SERVICES

Vocational rehabilitation State grants

$1,218 to $6,265. For agencies for the blind, the average annual cost per participant was $6,994

with a range from $3,114 to $14,149. In comparison, the fiscal year 2012 average annual cost 

per participant for general and combined State vocational rehabilitation agencies was $2,711, 

while for agencies for the blind it was $7,355. 

Measure: Percentage of general and combined State VR agencies that demonstrate an 

average annual consumer expenditure rate of at least 83 percent.

Year Target Actual

2011 74% 70%

2012 74 69

2013 74 70

2014 74

2015 74

2016 74

Measure: Percentage of State VR agencies for the Blind that demonstrate an average annual 

consumer expenditure rate of at least 70 percent.

Year Target Actual

2011 65% 67%

2012 66 58

2013 68 71

2014 70

2015 70

2016 72

Additional information: This efficiency measure examines the percentage of State VR 

agencies whose consumer service expenditure rate is at or above a specified level. Under this 

measure, the consumer service expenditure rate is calculated by dividing the agency’s consumer 

service expenditures by the agency’s total VR program expenditures. The sources of data for 

this measure are State agency data from the RSA-2 report and RSA final State agency allocation 

tables. In fiscal year 2013, performance increased slightly with 37 of the 53 general and 

combined VR agencies reporting data for this measure (70 percent) demonstrated an average 

annual consumer expenditure rate of at least 83 percent and the target was not met (American 

Samoa, Alaska, and Kentucky General agencies did not report data). The average annual 

consumer service expenditure rate for all general and combined State vocational rehabilitation 

agencies was 88 percent with a range (excluding the outlying areas) of 60 percent to nearly 

100 percent. In 2013, 17 of the 24 agencies for the blind (71 percent) had an average annual 

consumer expenditure rate of at least 70 percent and the target was met. The average annual 

consumer service expenditure rate for all agencies for the blind ranged from 41 percent to nearly 

100 percent. 

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REHABILITATION SERVICES

Vocational rehabilitation State grants

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

2011 66% 63%

2012 64 62

2013 65 69

2014 65

2015 65

2016 67

Additional information: The numbers of American Indians with disabilities achieving an 

employment outcome continued to increase in fiscal year 2013. In fiscal year 2013, the 81

projects operating in that fiscal year (projects funded with fiscal year 2012 appropriations) that 

reported data assisted a total of 1,891 American Indians with disabilities to achieve an 

employment outcome. Data for fiscal year 2013 show that 68.8 percent of the 2,750 individuals 

with disabilities who exited the program after receiving services achieved an employment 

outcome year and the target for this measure was met. While data show a significant increase in 

overall performance as compared to the previous year, part of the increase is due to that fact that 

there were fewer individuals who exited the program in 2013, 2,750 compared to 2,977 in 2012. 

However, there is a wide variation in the percentage of individuals who achieved an employment 

outcome reported by AIVRS projects. Fiscal year 2014 data will be available in May 2015.

Efficiency Measures

Objective: Ensure that AIVRS projects demonstrate effective fiscal management.

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. 

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REHABILITATION SERVICES

Vocational rehabilitation State grants

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

employment outcome of no more than $35,000.

Year Target Actual

2011 72% 72%

2012 72 76

2013 72 76

2014 72

2015 74

2016 76

Additional information: This AIVRS program 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. Using this method for the AIVRS program in fiscal year 2013, 76 percent 

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

$35,000 and the target for this measure was exceeded. The overall average cost per 

employment outcome for the 81 projects reporting data was approximately $20,768. However, 

the cost per employment outcome varied significantly across projects. 

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

participant of no more than $10,000.

Year Target Actual

2011 78% 85%

2012 84 88

2013 85 88

2014 86

2015 88

2016 88

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 Individualized Plan for 

Employment (IPE). In fiscal year 2013, 85 AIVRS projects reported serving a total of 7,781 

American Indians with disabilities, about 263 less individuals than in 2012. For fiscal year 2013, 

88 percent of the projects demonstrated an average annual cost per participant of no more than 

$10,000 and the target was met. However, the overall average annual cost per participant for 

the 81 projects reporting data was approximately $5,054, compared to $4,804 in 2012. 

J-32
REHABILITATION SERVICES

Client assistance State grants

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

(dollars in thousands)

FY 2016 Authorization: $12,927

Budget Authority: 

2015 2016 Change

$13,000 $13,000 0

PROGRAM DESCRIPTION

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

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

programs, projects, and services funded under the Rehabilitation Act (the Act). Services are 

provided to help eligible individuals and applicants understand the rehabilitation services and 

benefits available under the Act, and to advise them of their rights and responsibilities in

connection with those benefits. Assistance may also be provided to help eligible individuals and 

applicants in their relationships with those providing services under the Act, including assistance 

and advocacy in pursuing legal and administrative remedies to ensure the protection of their 

rights. State VR agencies must inform VR consumers about the services available from the 

CAP and how to contact the CAP. 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 services under the Act. In the event one of these “grandfathered” agencies is 

restructured, the Governor is required to redesignate the CAP to an agency that does not 

provide services under the Act. 

Current designations include the following:

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

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

• 37 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 

for States and outlying areas by a percentage not greater than the percentage increase in the 

appropriation. The fiscal year 2014 allotments were based on the July 1, 2012 population 

estimates published in December 2012. The fiscal year 2015 allotments are based on the 

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REHABILITATION SERVICES

Client assistance State grants

July 1, 2013 population estimates published in December 2013. The fiscal year 2016 State 

distributions will be based on the July 1, 2014 Census data released on December 23, 2014. 

Workforce Innovation and Opportunity Act (WIOA)

Title IV of WIOA sets specific authorization levels for fiscal years 2015 through 2020 and 

expands the scope of the program’s activities by authorizing CAPs to inform and advise clients 

and client applicants of the benefits available under sections 113 (pre-employment transition 

services) and 511 (subminimum wage) of the Rehabilitation Act. WIOA 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.

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

Fiscal Year (dollars in thousands)

2011..........................................................$12,263

2012............................................................12,240

2013............................................................11,600

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

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

FY 2016 BUDGET REQUEST

The Administration requests $13 million for the CAP in fiscal year 2016, the same as the fiscal 

year 2015 level. This request will help ensure that individuals with disabilities who are applying 

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

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

protect their rights. 

Data collected by the Rehabilitation Services Administration for fiscal year 2013 show that, 

nationwide, CAPs responded to 48,723 requests for information and provided extensive 

services to 6,698 individuals. Slightly more than 95 percent of those cases in which extensive 

services were provided involved applicants for or recipients of services from the VR program. In 

83 percent of all cases, issues related to the VR process or delivery of VR services. This data 

also demonstrates that in 39 percent of the cases closed, CAPs enabled the individuals to 

advocate for themselves through the explanation of policies; 16 percent resulted in the 

development or implementation of an Individualized Plan for Employment (IPE); and 15 percent 

of these cases resulted in the reestablishment of communication between the individuals and 

other parties. In addition, 71 percent of the cases requiring action by the CAP on behalf of the 

individual were resolved in the individual’s favor.

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REHABILITATION SERVICES

Client assistance State grants

Examples of CAP activities during FY 2013 include:

• In Maryland, a 19 year old woman who was studying to become a special education 

teacher contacted CAP and requested information and assistance to resolve funding 

issues with the VR agency for her to attend college and receive funding for room and 

board. A review of the VR case file for this individual showed that she had completed an 

Individualized Plan for Employment (IPE) with a vocational goal of becoming a special 

education teacher at Gallaudet University. The consumer had a letter from her doctor 

stating that she should be allowed to stay on campus due to a medical limitation that 

affected her ability to commute to classes. This letter was submitted along with the 

required Administrative Approval form for room and board, but was denied based on lack 

of sufficient documentation regarding functional limitations. The consumer then 

submitted additional medical documentation and again her request was denied. The 

client and her family chose to send a formal letter of appeal to the VR Director with the 

assistance of CAP. The client case was referred to the Office of Administrative Hearing 

and a telephone prehearing conference was scheduled to begin the appeals process.

CAP reviewed the VR agency’s policy regarding funding for room and board for 

individuals attending a training program. This issue was discussed with the agency’s 

administration before the prehearing conference to see if a resolution could be agreed 

upon. In light of this individual’s circumstances and medical documentation supporting 

this request for room and board, the VR agency agreed to support the consumer’s 

request for room and board for the previous semester, as well as future semesters.

• In Maine, a male consumer was actively engaged in VR services and had an agreed 

upon vocational goal to become an attorney. Out of necessity, the consumer obtained 

part-time employment as a delivery driver. His VR counselor wanted to close his case 

successful since he had, on his own, obtained employment and seemed happy with this 

job. 

The consumer contacted CAP because he did not agree to the potential closure of his 

case. CAP staff successfully advocated for a change of his VR counselor and the VR 

agency agreed to continue providing services as outlined in the IPE. As the case 

progressed, the VR agency also declined to provide disability related services to 

overcome the consumer’s barriers to employment as an attorney. Through CAP’s 

advocacy and negotiation, the necessary services were supported by the VR agency 

and the consumer achieved his vocational goal.

• In Louisiana, a male consumer was interested in pursuing his vocational goal as a Ph.D. 

candidate in bioengineering. The consumer is visually impaired and uses reader 

services provided by the VR agency. The Ph.D. program is highly technical and requires 

mastery of complex math and graphing. The consumer was informed by the VR agency 

that his reader’s hours would be reduced in half and suggested the consumer get his 

books brailled. The consumer explained to his VR counselor that current braille 

technology has not yet reached the capacity to translate complex math and graphs into 

understandable Braille. 

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REHABILITATION SERVICES

Client assistance State grants

The consumer and CAP provided the VR agency a portfolio of his Ph.D. program, 

achievements, awards and additional information that supported his request that the VR 

agency reinstate his reader services. CAP also informed the VR agency of its willingness 

to take the case to a fair hearing if the decision was overturned. The VR agency 

reviewed the request and portfolio and immediately reinstated the reader services. The 

consumer completed his Ph.D. in 2013 and sought work as a professor.

• In California, a young female adult who has a vocational interest in becoming a toy 

designer was found eligible for VR services as a high school student. Her initial IPE was 

developed with a goal of customer service representative. While the consumer 

expressed an interest in working in customer service as a summer job, the VR agency 

failed to explain to her that she had the right to select a longer term vocational goal 

consistent with her unique strengths, abilities, interests, and informed choice. The 

consumer requested a revision to her IPE and after several months of dispute regarding 

her goal and necessary training, she contacted CAP for assistance. CAP represented 

the consumer at two IPE meetings and negotiated with the VR agency to develop a 

mutually agreed-upon IPE with an employment goal of commercial and industrial 

designer. As a result, the consumer’s IPE included reimbursement for the spring 2012 

semester at her community college, ongoing training services for a Bachelor’s degree, 

transportation services, counseling and guidance, books and supplies, and employment 

services. The consumer was pleased with the new IPE and looking forward to pursuing a 

meaningful career with the support of the VR agency.

PROGRAM OUTPUT MEASURES 

Measures 2014 2015 2016 

Information inquiries/referrals 48,700 48,700 48,700

Individuals provided case services 6,700 6,700 6,700

NOTE: Data for fiscal years 2014 through 2016 are projected from actual data collected for fiscal year 2013 in 

which CAPs responded to 48,723 requests for information and provided extensive services to 6,698 individuals. 

Data for fiscal year 2014 will be available in December of 2015. 

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 

2016 and future years, as well as the resources and efforts invested by those served by this 

program. 

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REHABILITATION SERVICES

Client assistance State grants

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

the benefits available under the Vocational Rehabilitation State Grants program and 

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

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

systemic activity to improve services under the Rehabilitation Act.

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

changes in policy or practice.

Year Target Actual 

2011 65% 87%

2012 70 80

2013 70 73

2014 72

2015 74

2016 74

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 56 CAPs currently 

are engaged in work that should ultimately result in systemic change, but this indicator 

measures only those States that report their activity as complete. 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. 

During fiscal years 2009 through 2012, performance on this measure was significantly higher as 

compared to previous years. In fiscal year 2011, 87 percent of the CAP agencies (49 of 56 

agencies) reported that their systemic advocacy resulted in changes in policy or practice. In 

fiscal year 2012, performance decreased to 80 percent and in 2013, performance dropped 

further to 73 percent (40 of 56 agencies). However, performance for both years was still above 

the 2010 level of 64 percent and the targets were met. It is not clear what factor or factors may 

account for these large variations in performance. However, overall, CAP performance on this 

measure has increased over time, as the baseline established in 1999 was 43 percent (24 of 56 

agencies). Performance data for fiscal year 2014 will be available in December 2015.

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REHABILITATION SERVICES

Client assistance State grants

Objective: Resolve cases at lowest possible level. 

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

(ADR).

Year Target Actual 

2011 93% 97%

2012 93 98

2013 98 98

2014 98

2015 98

2016 98

Additional information: Since fiscal year 2007, the percentage of cases being resolved 

through the use of ADR has ranged from about 97 to 98 percent and the program has 

consistently met the performance targets established for this measure. Targets for fiscal year 

2013 and future years were raised to reflect the high level of performance. Performance data 

for fiscal year 2014 will be available in December 2015.

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REHABILITATION SERVICES

Training

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

(dollars in thousands)

FY 2016 Authorization: $36,257

Budget Authority: 

2015 2016 Change

$30,188 $30,188 0

PROGRAM DESCRIPTION 

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

the rehabilitation needs of individuals with disabilities assisted through vocational rehabilitation 

(VR), supported employment, 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, 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. 

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REHABILITATION SERVICES

Training

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

Fiscal Year (dollars in thousands) footnot

e

2011................................................................................... $35,582

2012..................................................................................... 35,515

2013..................................................................................... 33,657

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

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

FY 2016 BUDGET REQUEST

The Administration requests $30.188 million for the Training program in fiscal year 2016, the 

same as the fiscal year 2015 level. In fiscal year 2016, 80 percent of the funds requested would 

be used to support continuation costs.

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 institutions of higher education (IHEs) to train new counselors and administrators. 

Currently, VR agencies are undergoing dramatic turnover in their staffs 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 nationwide in these offices. Over the 

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

the next 5 years, State VR agencies may need to hire as much as 39 percent of their staff 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. In order to address this issue, 

the Department has focused a considerable amount of resources in the Training program on 

long-term training, and is seeking to further target funds to address those areas of greatest 

need. Additionally, 75 percent of the funds awarded to universities under the Long-Term 

Training (LTT) program goes 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 Administration believes it is the best mechanism for recruiting new graduates into 

the field of rehabilitation. 

Further, the Administration made significant revisions to the way the program supports IHEs in 

the preparation of VR counselors beginning in fiscal year 2014. The program now focuses on 

evidence-based practices and competency-based skills necessary to promote employment of 

individuals with disabilities; emerging labor market trends; internships; working with business; 

evaluations of effectiveness; and the use of technology to support employment of people with 

disabilities.

In fiscal year 2016, the Administration would also continue support for technical assistance to 

State VR agency personnel and their partners to improve their knowledge and use of promising 

practices that have the potential to improve the performance of the VR program. Beginning in 

fiscal year 2014, the Administration shifted its approach to technical assistance supported under 

this program from a network of comprehensive, regionally-based centers to supporting a series 

of targeted, topical centers that focused on providing a wide range of support to State VR 

J-40
REHABILITATION SERVICES

Training

agency personnel nationwide on a specific set of issues. In 2014, the Administration funded the 

Job-Driven Vocational Rehabilitation Technical Assistance Center to help support State VR 

agency personnel in implementing job-driven strategies for employer-engagement and training 

for VR consumers. The Administration plans to expand this approach in 2015 through the 

support of additional content-specific centers. The majority of funds requested for fiscal 

year 2016 would be used to support these awards and those in the Long-Term Training 

program. 

PROGRAM OUTPUT MEASURES (dollars in thousands)

Program Funding: 2014 2015 2016 footnote

Long-Term Training:

Long-ter m: New $11,246 $9,047 TBD

Long-ter m: Continuations 5,829 1 9,108 $13,996

Subtotal 17,075 18,155 TBD

Technical Assistance:

TA: New 3,000 9,000 TBD

TA: Continuations 6,000 2 0 9,000

Subtotal 9,000 9,000 TBD

Short-Term Training:

Short-term: New 0 200 TBD

Short-term: Continuations 200 0 200

Subtotal 200 200 TBD

Training for Interpreters for Individuals 

who are Deaf and Deaf-Blind:

Interpr eters: New 0 0 TBD

Interpr eters: Continuations 1,900 1,900 0

Subtotal 1,900 1,900 TBD

Unit In-Service Training: 3

In-Ser vice: New 0 0 0

In-Ser vice: Continuations 5,049 0 0

Subtotal 5,049 0 0

Other Activities:

Other acti viti es: New 395 200 TBD

Other acti viti es: Continuations 0 396 850

Subtotal 395 596 TBD

Program Totals:

New 14,641 18,447 5,805

Continuations 18,978 11,404 24,046

Peer review of new award applications 38 35 35

Minority Outreach 4 0 302 302

Total 33,657 30,188 30,188

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REHABILITATION SERVICES

Training

NOTE: Amounts listed as “TBD” in FY 2016 reflect topical areas for which decisions on FY 2016 competitions 

have not been made. 1 The FY 2014 awards total includes approximately $3,351 thousand in FY 2014 funds used to support FY 2015 

continuation costs. 2 The FY 2014 awards total includes approximately $6,000 thousand in FY 2014 funds used to support FY 2015 

continuation costs. 3 Pursuant to the Workforce Innovation and Opportunity Act, support for these activities was no longer authorized 

beginning in FY 2015. 4 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 

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 2016 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 three annual performance measures. All three 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, the proportion of scholars 

fulfilling their payback requirements, and the proportion of currently employed State VR agency 

counselors who meet their State’s CSPD 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 

2011 53% 37%

2012 53 35

2013 55 33

2014 45

2015 47

2016 47

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

Payback Reporting Form, which grantees submit by November 30th of each year. The 

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

employment in State VR agencies has decreased consistently since 2005. 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. This overall downward 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 State VR agencies relative to those in other 

acceptable employment settings. 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. As a result, some of the program’s graduates are able to find acceptable 

employment in a number of different settings other than State VR agencies. When combined 

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

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

terms of their service obligation. Of all graduates, 75 percent were fulfilling their service 

obligation in some form of acceptable employment in 2013, with roughly 56 percent of the 

employed graduates opting to work in settings other than the State VR agency. Over the past 

eight years, the proportion of graduates fulfilling their payback requirements in settings other 

than the State VR agency has, in general, been slowly increasing. Data for 2014 are expected 

to be available in fall 2015.

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

requirements through acceptable employment.

Year Target Actual 

2011 87% 83%

2012 87 81

2013 87 81

2014 85

2015 80

2016 83

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

report the number of Rehabilitation Services Department (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, 75 percent were fulfilling their 

payback requirements through acceptable employment in 2013. It is possible that some portion 

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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. The Department does not expect data on this issue from the revised form to be 

available until winter 2015 at the earliest.

Measure: The percentage of currently employed State Vocational Rehabilitation agency 

counselors who meet their state’s Comprehensive System of Personnel Development (CSPD) 

standards.

Year Target Actual 

2011 76% 86%

2012 77 N/A

2013 78 87

2014 78

2015 80

2016 80

Additional Information: The Department annually collects data from State VR agencies about 

the qualifications of their currently-employed counselors. Since 2002, the proportion of currently 

employed State VR agency counselors who meet their State’s CSPD standards has increased 

and performance on this measure in 2010 and 2011 was markedly better than in prior years. 

The general trend of improved performance could be due, in part, to enhanced training made 

possible through the Training program. However, it could also be due to the natural aging of the 

State VR workforce accompanied by replacing retiring counselors who do not meet the CSPD 

standards with new counselors who do. The Department believes that both factors may have 

contributed to the increased qualifications of State VR counselors, but cannot definitively parse 

out the individual effects of each. Performance on this measure increased by 9 percentage 

points in 2010, which the Department believes may be due to higher quality data reporting on 

the part of States and increased monitoring and technical assistance from the Department. In 

general, more information is needed about this measure and the potential causes of the recent 

trends. The Department has recently changed the way it collects data on this measure and, as 

a result, did not collect data on this measure for 2012. Data for 2014 will be available in 

fall 2015.

Additionally, the Department is in the process of analyzing the impacts of amendments to 

section 101(a)(7)(B)(ii) of the Rehabilitation Act on this measure. Generally, these amendments 

made a wider range of education and work experience acceptable for meeting States’ CSPD 

standards. While it is likely that those amendments may increase performance on this measure, 

actual data will not be available for several years. 

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Efficiency Measures

The Administration has adopted an efficiency measure for the Long-Term Training program 

(LTT). This measure is the cost per Master’s-level vocational rehabilitation counseling graduate. 

Measure: The Federal cost per RSA supported rehabilitation counseling graduate at the 

Masters-level.

Year Target Actual 

2011 $10,702 $23,721

2012 10,702 20,275

2013 24,000 28,351

2014 24,000

2015 24,000

2016 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. Since 2001, the Federal cost per RSA supported rehabilitation 

graduate at the Masters level typically ranged from $10,000 to $12,000. Beginning in 2010, the 

Department has calculated 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. Prior to 2010, this measure was calculated using only the funds 

directly made available for scholarships. The targets for 2011 and 2012 are based on the 

previous methodology. The higher Federal cost per RSA-supported graduate under the new 

methodology 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. 

The decrease in Federal cost in 2012 is because only one project qualified for inclusion in this 

measure in that year, and may not actually reflect any improvements in efficiency. The 

Department is currently reviewing its methodology for calculating this measure to ensure that it 

accurately and reliably reflects the Federal cost per Masters-level graduate. Data for 2014 are 

expected to be available in fall 2015.

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Demonstration and training programs

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

(dollars in thousands)

FY 2016 Authorization: $6,244

Budget Authority:

2015 2016 Change

$5,796 $5,796 0

PROGRAM DESCRIPTION

Demonstration and Training programs are authorized to provide competitive grants to, or 

contracts with, eligible entities to expand and improve the provision of rehabilitation and other 

services authorized under the Rehabilitation Act (the Act) and to further the purposes and 

policies of the Act. 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. 

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, special 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. 

Sections 303(c) and (d) of the Act authorize a parent information and training program and a 

Braille training program. 

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. 

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Demonstration and training programs

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2011.....................................................................$6,459

2012.......................................................................5,325

2013.......................................................................5,046

2014.......................................................................5,796

2015.......................................................................5,796

FY 2016 BUDGET REQUEST

The Administration requests $5.796 million for the Demonstration and Training programs in 

fiscal year 2016, the same as the fiscal year 2015 level. The request includes funds to support 

continuation costs for awards that began in previous fiscal years, including $3.6 million to 

support career pathway model demonstration projects to be awarded in fiscal year 2015. There 

are no funds requested for new awards in fiscal year 2016. 

The Organisation for Economic Co-operation and Development’s (OECD) program for the 

International Assessment of Adult Competencies (PIAAC), reports that a significant portion of 

adults with low literacy and numeracy skills are individuals with disabilities. Too often our 

systems for preparing low-skilled individuals with disabilities with marketable and in-demand 

skills can be complex and difficult to navigate for students, job seekers and employers. Career 

pathways approaches can offer an efficient and customer-centered approach to training and 

education by successfully articulating the necessary adult basic education, occupational 

training, postsecondary education, career and academic advising, and support services to enter 

and progress in a career. Career pathways generally refer to a series of connected education 

and training strategies and support services that enable individuals to secure industry relevant 

certification, obtain employment within an occupational area, and to advance to higher levels of 

future education and employment in that area.

In fiscal year 2015, the Department plans to conduct a new competition to award approximately 

four 5-year career pathways model projects intended to help individuals with disabilities enter 

into competitive integrated employment. The projects would demonstrate a well-defined strategy 

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. Eligible applicants would include State 

Vocational Rehabilitation (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, two-year and four-year postsecondary educational institutions (including vocational 

and technical schools), and employers. 

Fiscal year 2016 funds would also be used to support the second year of a planned two-year 

contract to develop voluntary comprehensive model standards for initial and continuing training

for employees under the Federal Randolph-Sheppard program. The Randolph-Sheppard 

program provides persons who are blind with remunerative employment and self-support 

through the operation of vending facilities on Federal and other property. Sites covered by the 

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program include military mess halls, cafeterias, snack bars, miscellaneous shops, and facilities 

comprised of vending machines. Currently there are approximately 2,200 vendors participating 

in the Randolph-Sheppard program. State VR agencies, serving as the State licensing agency, 

recruit qualified individuals who are blind, train such individuals on the management and 

operation of small business enterprises, and license qualified blind vendors to operate the 

facilities. In addition, there are no standards for either training that is provided to potential 

vendors or for the training to improve the skills of current vendors. Standards are needed to 

ensure that employees under the Federal Randolph-Sheppard program receive training that will 

enable them to effectively acquire and operate a vending facility, maintain their skills, learn of 

best practices, and to keep employees knowledgeable about evolving technologies.

PROGRAM OUTPUT MEASURES (dollars in thousands)

Program funding and number of awards: 2014 2015 2016

Program funding:

Demonstration projects

Demonstr ati on: Career Pathways 0 $3,637 $3,642

Demonstr ati on: SSDI/SSI Continuation $4,025 0 0

Technical assistance activities

TA: Continuation award 0 400 1400 1

TA: New award 400 1 0 0

TA: Subtotal 400 400 400

Braille training 

Braille: Continuation awards 0 330 330

Braille: New awards 330 0 0

Braille: Subtotal 330 330 330

Parent information and training

Par ent: Continuation awards 0 1,166 1,166

Par ent: New awards 2 1,036 0 0

Par ent: Subtotal 1,036 1,166 1,166

Randolph-Sheppard contract 0 200 200

Peer review of new award applications 5 5 0

Minority Outreach 0 2 58 58

Total---Program funding 5,796 5,796 5,796

Number of awards:

Continuation awards 1 11 17

New awards 11 6 0

Total---Number of awards 12 17 17

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__________________________

1 These funds are used to jointly support the National Technical Assistance Center on Improving Transition 

to Postsecondary Education and Employment for Students with Disabilities with the Office of Special 

Education Programs.

2 The Rehabilitation Act allows the RSA Commissioner flexibility in determining how it will meet the 1 percent 

set-aside for Minority Outreach activities required under section 21 of the Rehabilitation Act. In 2014, 

Demonstration and Training funds were not used to meet this requirement.

PROGRAM PERFORMANCE INFORMATION

Efficiency Measure

Goal: To expand, improve or further the purposes of activities authorized under the Act.

Objective: Expand and improve the provision of rehabilitation services that lead to employment 

outcomes. 

The efficiency measure for this program is the percentage of projects that met their goals and 

objectives as established in their original applications, or as modified during the first year. This 

efficiency measure is designed to determine whether grantees under this program are 

accomplishing the objectives of their projects for which they were awarded funding through the 

competitive process. 

Transition Model Demonstrations 

In fiscal year 2007, the Department awarded six grants to demonstrate the use of promising 

practices of collaborative transition planning and service delivery to improve the postsecondary 

education and employment outcomes of youth with disabilities. These 5-year grants were 

implemented in Maryland, Massachusetts, Ohio, Oregon, Pennsylvania, and South Carolina. 

The six projects used various models to provide services and address the needs of transitioning 

youth. The projects ranged in scope from targeted services at a small number of sites to 

statewide capacity building. All projects, with the exception of South Carolina, received no-cost, 

one-year extensions for fiscal year 2013 to complete project activities. All grantees met their 

goals and objectives as established in their original applications. Examples of project outcomes 

include: 

• South Carolina is replicating their model in multiple school districts within the State; 

• Oregon is replicating their model in four other school districts and implementing their 

model in four Native American tribes within the State; and 

• Maryland intends to expand their model outside their current service area.

Improving Outcomes of Individuals with Disabilities who are Social Security Beneficiaries 

Disability Insurance (SSDI)

The purpose of this 5-year model project is to demonstrate how State VR agencies can improve 

employment outcomes for Social Security Disability Insurance (SSDI) and Social Security 

Income recipients. Specific measures were developed for this model demonstration, awarded in 

fiscal year 2010, to assess the effectiveness of the grantee’s performance. After the project has 

concluded, data from the grantee’s final performance report will be used to assess performance 

in the following areas:

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• The degree to which the data collected from the project sites show that the intervention 

model results in improvement in employment outcomes, such as employment rate, wages 

at case closure, average hours worked, and percentage of individuals earning an amount 

greater than substantial gainful activity, as determined by the Social Security 

Administration, at closure;

• The degree to which the project recommended strategies that could be used by other 

State VR agencies to implement the model;

• The degree to which the grantee has disseminated its findings to State VR agencies; and 

• The responsiveness of the grantee to recommendations made through the reviews 

conducted by the panel of experts.

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REHABILITATION SERVICES

Protection and advocacy of individual rights

(Rehabilitation Act of 1973, Title V, Section 509)

(dollars in thousands)

FY 2016 Authorization: $19,013

Budget Authority: 

2015 2016 Change

$17,650 $17,650 0

PROGRAM DESCRIPTION

The Protection and Advocacy of Individual Rights (PAIR) program supports a statewide system 

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 2014 State distributions were 

based on the July 1, 2012 estimates published in December 2012. The fiscal year 2015 State 

distributions are based on the July 1, 2013 estimates published on December 20, 2013. The 

fiscal year 2016 State distributions will be based on the July 1, 2014 estimates published on 

December 23, 2014. 

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

areas by a percentage 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 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. 

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

Year (dollars in thousands)

2011...........................................................$18,065

2012.............................................................18,031

2013.............................................................17,088

2014.............................................................17,650

2015.............................................................17,650

FY 2016 BUDGET REQUEST

The Administration requests $17.650 million for the PAIR program for fiscal year 2016, the 

same as the fiscal year 2015 appropriation level. The Protection and Advocacy of Individual 

Rights (PAIR) program supports a state-wide system 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. Title IV of the Workforce Innovation 

and Opportunities Act of 2014 reauthorized the PAIR program, setting specific authorization 

levels for fiscal year 2015 through 2020, but did not make substantive changes to program 

provisions. 

During fiscal year 2013, PAIR programs reported handling 13,675 cases and responded to 

46,908 requests for information or referral. Of the cases handled by PAIR programs in that 

year, the greatest number of specified issues involved government benefits/services (21 

percent), education (15 percent), employment (12 percent), housing (12 percent) and health 

care (12 percent). 

In addition to providing representation to individuals, PAIR programs address systemic issues 

faced by persons with disabilities through a variety of methods, including negotiations with 

public and private entities and class action litigation. In fiscal year 2013, 52 out of the 57 PAIR 

programs (91 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 2013 illustrate how PAIR 

programs assist individuals and, in some cases, bring about systemic change:

 

• Disability Rights Iowa assisted a 29-year old woman who is partially blind and had not 

received her requested accommodations when taking the graduate entrance exams. 

The P&A contacted the testing service, explained her onsite and testing experience, and 

recommended accommodations to the testing process for individuals with disabilities. 

As a result, the testing service modified its policy to improve access to the exam for 

individuals with disabilities, including those who are blind. 

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• Disability Rights New Mexico (DRNM) assisted a 77-year old veteran to transition from a 

nursing home, where he had lived for one year, to the community. He had been placed 

in the home by his legal guardian under the authority of a power of attorney (POA), 

though he had the ability to live independently. The veteran sought guidance and 

services from DRNM after the nursing home took the position that he lacked capacity to 

revoke the POA. The P&A advocated for the veteran by clarifying that, when a POA is 

revoked by an individual of sound mind, this decision must be upheld. Consequently, 

the nursing home acquiesced to the veteran’s decision and he is currently living 

independently within the community. 

• The Georgia Advocacy Office advocated for an individual with deafness after he was 

refused a sign language interpreter by the hospital during a post-operative procedure. 

The P&A successfully negotiated with the hospital’s attorney to ensure that this 

individual would have a qualified sign language interpreter for the entire duration of 

future visits. In addition, the P&A provided the hospital with technical assistance, 

including policy and legal decisions, to improve its communication policy. The P&A also 

addressed this issue by training staff of another hospital on effective communication with 

persons who are both deaf and blind. 

PROGRAM OUTPUT MEASURES 

Measures 2014 2015 2016 

Information inquiries/referrals 46,500 46,500 46,500

Individuals provided case services 13,600 13,600 13,600

________________

NOTE: Data for fiscal years 2014 through 2016 are projected from actual data collected for fiscal 

year 2013. Data for fiscal year 2014 will be available in April 2015.

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 

2016 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. 

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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 

2011 89% 89%

2012 91 96

2013 91 91

2014 91

2015 92

2016 92

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 

measured by the number of PAIR programs reporting a change in policy or practice that results 

from their intervention. The target was met in fiscal year 2013 with 52 out of the 57 (91 percent) 

PAIR programs reporting success.

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REHABILITATION SERVICES

Supported employment State grants

(Rehabilitation Act of 1973, Title VI, Part B)

(dollars in thousands)

FY 2016 Authorization: $29,676

Budget Authority: 

2015 2016 Change

$27,548 $30,548 +3,000

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 nonprofit 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. The term “supported employment” includes 

both competitive integrated employment and working on a short-term basis toward competitive 

integrated employment. Supported employment enables individuals with the most significant 

disabilities who, because of the nature and severity of their disability, need ongoing support, 

including intensive supported employment services followed by extended services after the 

individual’s ability to perform the job with support has stabilized, in order to 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 Vocational Rehabilitation State Grants program. 

The requirements pertaining to individuals with an employment goal of supported employment 

are the same in both the VR State Grants program and the SE State Grants program. A State 

VR agency may support an individual’s supported employment services solely with VR State 

Grant funds, or it may fund the cost of SE services in whole or in part with funds under the SE 

State Grants program. On an aggregate level, VR consumers who had a goal of supported 

employment represented about 12 percent of the total individuals whose cases were closed 

after receiving VR services in fiscal year 2013 (about 39,300 individuals). Of those individuals, 

about 60 percent had their supported employment services paid solely with VR State Grant 

funds and about 40 percent received at least some support for their supported employment 

services from Supported Employment State Grant funds.

Workforce Innovation and Opportunity Act 

The Workforce Innovation and Opportunity Act (WIOA) made a number of significant changes to 

the SE State Grants program. These changes include:

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• Permitting States to provide SE services for up to 24 months, rather than the current 18 

months. This change was made by a revision of the definition of the term “supported 

employment services” in section 7 of the Rehabilitation Act;

• Requiring States to use half of their SE allotment to provide SE 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; and

• Permitting States to use SE funds to provide extended services for up to 4 years to eligible 

youth with the most significant disabilities.

Before enactment of WIOA, State VR agencies were prohibited from using the Federal funds 

they receive under these programs for extended services, and other State and local agencies 

and nonprofit private organizations were expected to pay for such services. State VR agencies 

were required to identify the State, Federal, or other resources that would provide the extended 

services at the time the IPE was developed, including the basis for determining that there was

reasonable expectation that those services would become available. With the change in the 

provision of extended services under WIOA, this language has been eliminated and State VR 

agencies must only demonstrate evidence of the efforts of the designated State agency 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.

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 2014 State allotments were based on the July 1, 2012 estimates 

published in December 2012. The fiscal year 2015 allotments are based on the July 1, 2013

estimates published in December 2013. The fiscal year 2016 allotments will be based on the 

July 1, 2014 estimates published in December 2014.

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

Year (dollars in thousands)

2011...........................................................$29,123

2012.............................................................29,068

2013.............................................................27,548

2014.............................................................27,548

2015.............................................................27,5481

FY 2016 BUDGET REQUEST

The Administration requests $30.548 million for Supported Employment (SE) State Grants 

program, an increase of $3 million over the 2015 level. Supported employment is recognized as 

an effective strategy in assisting individuals with the most significant disabilities to obtain 

competitive employment in integrated settings. The amendments Congress made to this 

program under WIOA reflect supported employment’s important role in increasing competitive 

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Supported employment State grants

employment opportunities for such individuals, particularly youth with the most significant 

disabilities. While each of the changes outlined in the Program Description are significant; 

together, they will have a major impact on the provision of supported employment services 

under both the VR and SE State Grant programs. 

Under WIOA, State VR agencies may provide SE services for a longer period of time and may 

provide extended services to youth with the most significant disabilities with either VR or SE 

funds for up to 4 years. While in the long-term we expect the benefit to outweigh the costs; in 

the short-term, providing additional services for a longer period of time will likely increase the 

average cost of an individual served in supported employment. Without additional resources, 

fewer individuals may be served by State VR agencies. In addition, the new requirement that a 

State use half of its SE allotment to provide services to eligible youth may change who receives 

SE services from the State VR agency. While the new 10 percent match required of the funds 

reserved for youth with the most significant disabilities is intended to help increase resources for 

such services, it may not be sufficient enough to offset the demand for and cost of services. The 

requested increase would help State agencies offset the increased costs associated with

meeting the new challenges and opportunities resulting from WIOA. 

Data from the FY 2013 RSA-911 Case Service Report (RSA-911) show that approximately 

39,300 individuals whose cases were closed that year after receiving services had a goal of 

supported employment on their individualized plan for employment at some time during their 

participation in the VR program. These numbers do not include those individuals who were still 

receiving supported employment services at the close of the fiscal year. Fiscal year 2014 data 

on individuals receiving supported employment services will not be available until the spring of 

2015. However, annual aggregate 2014 data for the VR State Grants program indicate a 

reduction in the total number of individuals receiving VR services and the number of individuals 

whose cases were closed in 2014 as compared to previous years. Based on this information, 

we assume that there will be similar reductions in the total number of individuals with a 

supported employment IPE goal who received services and exited the program in 2014.

Because the WIOA amendments only recently went into effect, we do not expect significant 

changes in the 2015 program output estimates as compared to 2014. The Department

anticipates that the amendments will begin to have an impact on output measures in fiscal year 

2016. However, the Department does not have the information necessary on which to base 

estimates for 2016 at this time and is, therefore, showing outputs for 2015 and 2016 at the same 

level as estimated for 2014.

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PROGRAM OUTPUT MEASURES (dollars in thousands)

Measures 2014 2015 2016

Individuals with a supported 

employment IPE goal who received 

services and exited the program.

38,000 38,000 38,000

Employment outcomes: 1 19,600 19,600 19,600

Supported employment outcomes 2 17,500 17,600 17,700

Employment without supports in an 

integrated setting3 2,000 1,915 1,830

Other employment outcomes4 100 85 70

Minority outreach $275 $275 $305

Note: Estimates for FYs 2014, 2015, and 2016 are based on actual 2011, 2012, and 2013 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 VR consumers who had or are estimated to have a supported employment 

goal.

2 Of the individuals who had a supported employment goal, the number who were employed in an integrated 

setting and receiving ongoing support services. 3 Of the individuals who had a supported employment goal, the number who met the employment outcome 

criteria for the VR State Grants program but who were not receiving ongoing support services. 4 Of the individuals who had a supported employment goal, 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. 

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 Vocational Rehabilitation 

State Grants program in previous years, and those requested in fiscal year 2016 and future 

years, as well as the resources and efforts invested by those served by these programs. 

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.

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Supported employment State grants

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 Supported Employment State Grants program.

Year Target Actual

2011 94% 93%

2012 94 94

2013 94 95

2014 94

2015 95

2016 95

Additional information: Individuals with a supported employment goal who achieve an 

employment outcome may be working in competitive employment (employment at least at the 

minimum wage in an integrated setting) or may be working in an integrated setting toward 

competitive work (receipt of the minimum wage). In fiscal year 2013, 21,257 individuals, or 

54 percent of individuals whose service records were closed after receiving services who had a 

SE goal, including both consumers who received SE services from funds provided under the 

VR State Grants and under the Supported Employment State Grants programs, achieved an 

employment outcome. Fiscal year 2013 RSA 911 Case Service Report data show that the total 

number of individuals with a supported employment goal who achieved an employment 

outcome increased from 18,613 to 21,257, or about 14 percent over the prior year. Of those

who achieved an employment outcome, 94.5 percent of individuals with a supported 

employment goal achieved a competitive employment outcome, a slight increase over the prior 

year, and the performance target was met. 

The percentage of individuals with a supported employment goal achieving an employment 

outcome who obtained a supported employment outcome (employment in the integrated labor 

market and receiving ongoing supports) was 81 percent in fiscal year 2013. Data for fiscal year 

2014 are expected to be available in May 2015. 

Measure: Average weekly earnings for individuals with significant disabilities who achieved a 

supported employment outcome.

Year Target Actual

2011 $203 $205

2012 203 211

2013 205 207

2014 208

2015 208

2016 210

Additional information: Individuals with significant disabilities in supported employment may 

be working in competitive employment or may be working in an integrated setting toward the 

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Supported employment State grants

receipt of the minimum wage. 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 2013 data show that the average weekly earnings of 

individuals with significant disabilities who achieved a supported employment outcome was 

$207, a decrease from 2012, but slightly higher than 2011. However, the performance target 

was still met. 

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

2011 70% 79%

2012 75 75

2013 75 75

2014 75

2015 77

2016 77

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 

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 2013, the average number of supported employment outcomes per $100,000 

remained at 75, the same in fiscal year 2012, with a median of 55 supported employment 

outcomes per $100,000. 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 2013 ranging from 3 (Hawaii) to 269 (New Jersey). 

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Supported employment State grants

Other Performance Information 

Limited information is available about how State VR agencies serve individuals who have a goal 

of SE or how State VR agencies use funds from the SE State Grants Program in conjunction 

with VR State Grant funds to pay for services provided to individuals with disabilities. RSA-911

2013 State data indicate there is variation among State agencies in the percentage of 

individuals who have supported employment (SE) as an employment goal. Moreover, the 

reviews of the State plans and monitoring reports reveal that the extent to which State VR 

agencies achieve SE outcomes for individuals with disabilities is uneven. This variability stems 

in part from differences in policies, practices, and resources that States and State agencies 

have with regard to SE. 

State agencies report whether any SE funds were used to provide services to an individual with 

a supported employment goal, but not the amount of SE funds that were expended for such 

individuals. Because VR agencies may use funds from one or both funding sources to 

purchase supported employment services, information is unavailable on the actual cost of 

providing SE services to an individual with a SE goal, including individuals who did or did not 

obtain a supported employment outcome. 

The Department recently completed a study to obtain a more in-depth understanding of how 

State VR agencies provide SE services for their consumers, including how the supplemental SE 

appropriation is used in conjunction with VR State Grant funds to assist individuals with the 

most significant disabilities to achieve a supported employment outcome. The Department 

collected survey data from 94 percent of the 80 State VR agencies on how they implement SE 

services, how they use Title VI Part B funds in conjunction with Title I funds to fund SE, and SE 

outcomes. To explore agency strategies for providing SE services in more detail, the final step 

in data collection was to conduct in-depth discussions with three agencies to follow up on their 

responses and to learn more about the administration of the SE State Grants program as 

implemented in these agencies. The final report, released in August 2013, contained the 

following findings:

• The majority of individuals with an SE goal had cognitive disabilities (53.5 percent). More 

than half (55.7 percent) of individuals with an SE goal were age 25 and older.

• Compared to other individuals receiving VR services without an SE goal, individuals with 

an SE goal were more likely to be under age 25 (44.3 percent compared to 33.9 percent) 

and more likely to have public support as their primary support at application 

(49.2 percent compared to 27.0 percent).

• Supported employment (Title VI-B) spending was a very small percentage of all agency 

expenditures on services: 5.5 percent in general agencies, 2.5 percent in combined 

agencies, and 2.1 percent in blind agencies.

• Thirty-two agencies limited the use of supported employment funds to specific services, 

including on-site job coaching, job development, job placement, and supplemental 

assessments.

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• Among the 38 responding agencies that used multiple methods to reimburse SE service 

providers, 15 agencies said performance-based methods resulted in more competitive 

employment outcomes; 10 said fee-for-service; 4 said contract/slot-based, 7 said other, 

and 6 said the methods are not comparable. The other 28 agencies did not use multiple 

methods to reimburse SE service providers. 

• Agencies that purchased more of their services tended to have a higher concentration of 

SE outcomes among all employment outcomes.

• Employment rates ranged from a low of 41.5 percent for physical impairments to a high 

of 54.3 percent for communicative impairments and for cognitive impairments.

• Average weekly earnings ranged from $157.70 for individuals with visual impairments to 

$209.30 for individuals with communicative impairments.

• Overall and for general and combined agencies, most limits on availability of SE services 

were external. Insufficient funding from other partners or agencies was ranked as the 

most common limit of availability of program services.

As a part of its recent re-design of the RSA 911 data collection, the Rehabilitation Services 

Administration (RSA) included additional SE-related data elements that will enable RSA to 

better monitor the services, service costs, and the outcomes achieved by individuals with a 

supported employment goal under the VR State Grants program and identify those agencies 

that need technical assistance. The revised data collection form went into effect on October 1, 

2013 and State VR agencies will report fiscal year 2014 data on the revised collection. WIOA 

will require additional data on individuals receiving supported employment services under both 

the VR State Grants and SE State Grants programs.

In 2010, funds appropriated under RSA’s Evaluation program were used to support a sub-study 

focusing on supported employment services through the National Institute on Disability and 

Rehabilitation Research’s Rehabilitation Research and Training Center on Vocational 

Rehabilitation (VR RRTC). The purpose of this sub-study was to identify the role and impact of 

the VR program within the larger supported employment delivery system. This research 

focused on vocational rehabilitation agency partnerships with other State entities, and sources 

and models for long-term funding (extended services). Examples of topics that were 

investigated include providers and sources of funding for supported employment, the availability 

of supported employment services, SE placements, and extended services, and methods or 

models of collaboration and coordination in providing SE services that can be identified within or 

across States.

The study design called for embedding supported employment questions in ongoing surveys of 

multiple State agencies and case studies of SE coordination and funding models in several 

States to illuminate issues identified through these surveys. The SE sub-study also included 

additional analysis of data obtained from an ongoing survey of community rehabilitation 

programs (CRPs) relevant to supported employment. The VR RRTC then conducted case 

studies of SE partnerships in five States. These case studies were designed to further the 

Department’s understanding of the range of practices that VR systems might use to ensure 

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Supported employment State grants

more successful transitions to long-term support through other resources. The survey and case 

study effort raised several issues for further discussion and review. 

• First, there is a need for further clarification, guidance, and consensus on indicators of 

job stability and on what constitutes integration in employment (i.e., acceptable 

employment settings for SE). 

• Second, there is a need for more exploration of creative models for SE funding that 

focus on the needs of individuals more than the constraints (real and perceived) of 

funding sources and service providers, including further consideration of strategies for 

more “braided” funding mechanisms between VR and other public systems such as 

Mental Health or Intellectual/Developmental Disabilities. Such strategies would certainly 

enhance coordination of service delivery around the individual, create more robust 

partnerships, and promote more efficient use of resources by agencies. 

• Third, there is a need to expand State funding for extended employment for groups that 

might not otherwise have access to long-term support dollars (e.g., people with learning 

disabilities, chronic physical impairments, or traumatic brain injuries). However, the 

report notes that this system improvement may be difficult to achieve in a challenging 

economy.

• Fourth, more work is needed to refine and develop practical strategies for VR, partner 

agencies, and their providers to use in developing strong and sufficient natural supports 

as part of the long-term services required post-VR in SE. The report states that “it is 

clear from our on-site interviews as well as the extant research on this issue that policy 

and practice in this area varies dramatically, and that many States lack a structured 

approach to the use of natural supports.” 

In addition, the report recommended that RSA and Medicaid consider working together to 

develop guidance for State Medicaid systems about allowable Medicaid reimbursable expenses 

under the Mental Health Rehabilitation Option or the new 1915(i) State plan amendment 

attendant to employment. 

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REHABILITATION SERVICES

Independent living services for older individuals who are blind

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2016 Authorization: $35,890

Budget Authority: 

2015 2016 Change

33,317 33,317 0

PROGRAM DESCRIPTION

The purpose of independent living programs is to maximize the leadership, empowerment, 

independence, and productivity of individuals with disabilities, and to integrate these individuals 

into the mainstream of American society. The Independent Living Services for Older Individuals 

Who Are Blind program supports services to assist individuals aged 55 or older whose recent 

severe visual impairment makes 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. 

Services are designed to help persons served under this program to adjust to their blindness by 

increasing their ability to care for their individual needs. Services provided under this program 

are typically not covered under private insurance or Medicaid. 

In 2013, 60,551 individuals received services under the Independent Living Services for Older 

Individuals who are Blind program, over half of whom were over 80 years of age. Additionally, 

approximately 35,000 of those individuals were either legally blind or totally blind; one fourth of 

individuals receiving services under this program also suffered from some degree of hearing 

impairment. Approximately 82% were still living in a private residence.

Grantees are State vocational rehabilitation agencies for persons who are blind and visually 

impaired or, in States with no separate agency for persons who are blind, State combined 

vocational rehabilitation 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 fiscal year 2014 allotments were based on the July 1, 2012 estimates of the 

population of individuals age 55 and older published by the Census Bureau in December 2012. 

The fiscal year 2015 State allotments are based on the July 1, 2013 population estimates 

released in June 2014. The fiscal year 2016 allotments will be revised when new population 

estimates by age group become available (currently estimated to be June 2015). 

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Independent living

Funding levels for the past 5 fiscal years were:

Year (dollars in thousands)

2011..........................................................$34,083

2012............................................................34,018

2013............................................................32,239

2014............................................................33,317

2015............................................................33,317

FY 2016 BUDGET REQUEST

The Administration requests $33.32 million for the Independent Living Services for Older 

Individuals who are Blind program for fiscal year 2016, the same as the fiscal year 2015 level. 

At the requested funding level, an estimated 16 States would receive the minimum award of 

$225,000, and the Territories would continue to be funded at their minimum level. According to 

the U.S. Census Bureau’s 2012 American Community Survey, 6.5 percent of individuals 65 and 

older (about 2.7 million people) have a vision-related disability. The occurrence of a sensory 

disability was 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. Independent living services for 

these individuals are predominately provided through contracts administered by State vocational 

rehabilitation agencies, not centers for independent living, and many of the needs of this older 

population are different from those of the consumers that would be served under the newly 

authorized Grants for Independent Living program. 

At the requested level, the Administration would be able to continue to support independent 

living services, including the provision of assistive technology and aids, orientation and mobility 

training, and daily living skills, to over 60,000 older individuals who are blind.

The Administration’s request does not include funds for the Independent Living State Grants or 

Centers for Independent Living programs for fiscal year 2016 in this account, as the Workforce 

Innovation and Opportunity Act of 2014 transferred authority for those programs to the 

Department of Health and Human Services.

PROGRAM OUTPUT MEASURES (dollars in thousands)

Measures: 2014 2015 2016

Number of Grantees 56 56 56

Minimum State award $225 $225 $225

Average State award $631 $631 $631

Minority outreach $333 $333 $333

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Independent living

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, including funding provided 

under the Recovery Act, and those requested in fiscal year 2016 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

2011 58% 52%

2012 58 50

2013 58 55

2014 58

2015 58

2016 58

Additional information: The percentage of consumers reporting access to previously 

unavailable assistive technology in 2013 increased from the prior year but still fell below the 

target level for the third consecutive year. 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. This measure is calculated by dividing 

the number of consumers who received assistive technology by the total number of Older Blind 

program consumers (33,421 / 60,551 = 55%). Data for 2014 are expected by fall 2015. 

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Independent living

Measure: The percentage of Independent Living Older Blind program consumers who report 

an improvement in daily living skills.

Year Target Actual

2011 59% 52%

2012 59 51

2013 60 54

2014 60

2015 58

2016 58

Additional information: The percentage of consumers reporting improvement in their daily 

living skills for 2013 increased from the prior year but still below the target level for the third 

consecutive year. This measure is calculated by dividing the number of Older Blind program 

consumers who reported improvement in daily living skills by the total number of Older Blind 

program consumers (32,563 / 60,551 = 54%). 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 2014 are 

expected by fall 2015.

Efficiency Measures

The Department has not established efficiency measures for the Older Blind program. Several 

years ago, the Department examined the utility of two possible measures of efficiency: the 

number of consumer service records closed with all goals met for every $10,000 in net 

operating funds; and the number of consumer goals accomplished per $10,000 in net operating 

funds. RSA pilot tested these measures and commissioned a contractor to analyze the 

efficiency data, but found that these measures did not provide valid and reliable results. Data 

from the measures showed that grantees varied widely in their reported efficiency depending on 

the size, location, funding sources, intensity of services, and accuracy of records of each CIL. 

The Department will continue to explore alternative methods of evaluating the efficiency of the 

program.

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REHABILITATION SERVICES

Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2016 Authorization: 0 1

Budget Authority: 

2015 2016 Change

$9,127 $9,840 +$713

_________________

1 The GEPA extension expired September 30, 2004; the Department proposes to continue funding this program 

in FY 2016 through appropriations language.

PROGRAM DESCRIPTION

The Helen Keller National Center for Deaf-Blind Youths and Adults (HKNC) was created by 

Congress in 1969, and operates under the auspices of Helen Keller Services for the Blind, Inc. 

The Center provides services on a national basis to youths and adults who are deaf-blind, their 

families, and service providers through three programs: a national headquarters center located 

in Sands Point, New York, with a residential training and rehabilitation facility where deaf-blind 

individuals receive intensive specialized services; a network of 10 regional field offices that 

provide referral, counseling, advocacy, and transition assistance to deaf-blind individuals and 

technical assistance to service providers; and an Information, Research and Professional 

Development (IRPD) component. The IRPD, in collaboration with universities, personnel 

preparation programs, and research projects throughout the country, identifies effective 

practices for working with youths and adults who are deaf-blind and disseminates these 

effective/best practices nationally via professional training initiatives in collaboration with HKNC 

Direct Services and Field Service staff.

The purpose of the program at the national headquarters center is to provide comprehensive 

vocational rehabilitation (VR) services for individuals with deaf-blindness in order to enhance 

their potential for employment and to live independently in their home communities. The 

program provides clients with an array of services, supports, and adaptive skill training leading 

to enhanced mobility, improved and accessible means of communication including the use of 

adaptive technology, constructive participation in the home and community, leadership and 

advocacy training through mentoring, and ongoing social and professional opportunities, 

increased employability, and other improvements to their personal development and quality of 

life. The headquarters program also offers training and consultation to other programs serving 

individuals who are deaf-blind. The IRPD, in collaboration with HKNC’s multi-disciplinary team,

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, training for sign language interpreters working with individuals 

who are deaf-blind, Support Service Providers (SSP) services, and training for VR Counselors. 

The Center has increased the number of qualified professionals working with individuals who 

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Helen Keller National Center

are deaf-blind by utilizing technology and distance learning opportunities such as instructional 

videos, webinars, and online courses. Through these means, HKNC provides technical 

knowledge, expertise, training, and services to its partners across the United States. 

The Center employs 11 regional representatives to serve individuals who are deaf-blind in their 

home communities. These representatives provide a variety of services, including training for 

State and local service agency staff, general technical assistance, program assessment, 

community advocacy, and helping vocational rehabilitation counselors, mental health workers, 

special education personnel, and deaf-blind consumers with developing individualized service 

plans. In addition, the regional offices provide counseling, information, and referral services for 

individuals who are deaf-blind and their families to assist them to live and work independently. 

The regional representatives also assist clients who have received training at headquarters with 

making the transition back to their home community. 

HKNC’s mission is to enable each person who is deaf-blind 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. Regional representatives collaborate with States to increase local 

capacity in the areas of implementing SSP programs, professional development training for VR 

and blind/visually impaired counselors, developing VR case sharing models, identifying deafblind leaders for representation on task forces/advisory councils and program planning/training, 

development of online and webinar training, and expanding the vocational access service 

provider model. 

HKNC also operates a number of special projects related to deaf-blindness and partners with 

other national organizations. These include service projects for deaf-blind individuals who are 

elderly and for transition age youth. HKNC provides financial support to the National Family 

Association for Deaf-Blind, CHARGE Foundation and DeafBlind Citizens in Action. HKNC has 

participated in research conducted by Mississippi State University, the National Institute of 

Health, Virginia Commonwealth University, and in collaboration with VR in the States of 

Georgia, Missouri, Arizona, and Oregon. The research portfolio has expanded with several 

focus areas on assistive technology, Congenital Rubella Syndrome, Ushers Syndrome, mental 

health, Services for Senior Citizens, SSP services, and statewide needs of individuals who are 

deaf-blind. In addition, the Center operates an internship program for undergraduate and 

graduate students studying and practicing in a variety of disciplines such as orientation and 

mobility, art therapy, rehabilitation counseling, and interpreting in the field of deaf-blindness. The 

center partners with university-based personnel preparation programs at the undergraduate and 

graduate levels to ensure that they include a focus on the needs of individuals with combined 

vision and hearing loss.

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Helen Keller National Center

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2011..................................................................$9,163

2012....................................................................9,145

2013....................................................................8,667

2014....................................................................9,127

2015....................................................................9,127

FY 2016 BUDGET REQUEST

The Administration request for the Helen Keller National Center (HKNC) is $9.840 million, an 

increase of $713,000 over the fiscal year 2015 level. The funds requested would provide direct 

services for approximately 65 clients at the Center’s residential training and rehabilitation 

program, and serve an estimated 1,500 consumers, 350 families, and 800 agencies and 

organizations through its regional offices. The $713,000 increase requested for fiscal year 2016 

would support one-time renovation projects to address safety and infrastructure needs and help 

to upgrade facilities to comply with the American with Disabilities Act. While other 

modernization needs were found in a recent external facilities improvement survey, the 

Administration’s request includes funding for what we believe to be the most crucial and timesensitive needs at this time. 

The fiscal year 2016 Request would support the Center’s educational and vocational 

rehabilitation training programs that expand independent living and employment opportunities 

for individuals who are deaf-blind. Currently most of the Center’s budget supports operations 

and programs associated with serving clients in the HKNC headquarters, however HKNC 

recognizes the need to expand its field services component and also restore the national affiliate 

network. In 2014, the Center served 57 adult clients in the intensive training program and 14 

short-term clients at HKNC headquarters, 55 clients through its Community Services Program, 

and 1,859 consumers through its regional offices. 

During fiscal year 2016, HKNC would use federal funding to strengthen a national infrastructure 

to address the unmet needs of individuals with combined vision and hearing loss by cultivating 

and maintaining a collaborative affiliate in each State. In addition, funds will be used to support 

client training, program support activities, consumer housing and residence life expenses, 

maintenance and plant operations, and administrative functions at the Center’s headquarters 

facility. These activities are carried out by the Center’s 11 departments: audiology; case 

management; communications; independent living; low vision; medical; orientation and mobility; 

vocational services; adaptive technology; clinical social work services; and staff functions such 

as payroll and benefits. The experts from these departments contribute to professional 

development activities offered by the Center to other service providers who work with individuals 

who are deaf-blind. 

At the request level, the Center estimates that it would serve approximately 65 adult clients with 

deaf-blindness at the HKNC headquarters intensive training program and provide specialized 

short-term training for approximately 11 high school students, 3 senior citizens, and 2 individuals 

who need training in the use of technology or other targeted skills. The comprehensive 

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Helen Keller National Center

vocational rehabilitation program is an active adult learning community whereby promising and 

best practices emerge and the co-construction of knowledge is the result of collaboration among 

members of the deaf-blind community. HKNC’s current focus is participatory leadership among 

individuals in the deaf-blind community with anticipated outcomes of deaf-blind community 

members playing a pivotal role in the design and implementation of services and organizational 

strategy. 

HKNC would devote approximately 30 percent of the amount requested to its field services, 

community education and professional development programs, including the activities of 

HKNC’s 10 regional offices and the Information, Research and Professional Development 

Department (IRPD). 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. HKNC helps to address a critical shortage of professionals qualified to meet the 

unique needs of individuals who are deaf-blind by training personnel such as teachers and 

vocational rehabilitation counselors, rehabilitation teachers, orientation and mobility specialists, 

adaptive technology instructors and interpreters. 

Other Sources of Funding: In addition to the funds appropriated to HKNC through the 

Rehabilitation Services account, the Center receives funding from a variety of State, private, and 

other Federal sources. For example, as a member on the National Consortium on DeafBlindness, HKNC received $583,000 in fiscal year 2014 through a grant from the Department’s 

Office of Special Education Programs to provide technical assistance to State and local 

educational agencies. In recent years, the Center has also received a number of non-Federal 

grants. In fiscal year 2014, HKNC received $1,084,000 as part of a 5-year grant from the New 

York State Office for People with Developmental Disabilities to operate housing and provide 

supported employment services for individuals who are deaf-blind with intellectual disabilities 

who were former participants in HKNC’s training program. HKNC also has a contract with the 

New York State Commission for Blind and Visually Impaired to operate a Community Services 

Program that provides rehabilitation teaching, orientation and mobility, case work, and job 

placement to deaf-blind individuals in the New York metropolitan area who do not require the 

comprehensive services offered at the headquarters training program. 

HKNC has been identified by the Federal Communication Commission as the certified entity in 

the State of New York responsible to administer the New York Deaf-Blind Equipment 

Distribution Program. HKNC received $265,000 in fiscal year 2014 to provide assessment 

training and telecommunications equipment to residents of New York States who are deaf-blind. 

During the first two years of the three-year pilot project HKNC served 133 individuals.

The following charts show HKNC’s revenues and expenses for fiscal year 2014. The Center 

reported total public support and revenues of $14,362,000 and incurred total operating 

expenses of $16,000,000 resulting in a net loss of $1,377,000. While, the Center has sought to 

increase other sources of funding, the Federal appropriation remains its primary source of 

support. Salaries and fringe benefits account for most of the Center’s expenses, 92 percent of 

which are to support staff that are responsible for providing program services. 

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PROGRAM OUTPUT MEASURES 

2014 2015 2016

Number of individuals served at headquarters: 

Adult training program clients 57 65 65

Specialized training services:

Transition for high school students 11 11 11

Senior citizens 3 3 3

Targeted skills training 2 2 2

Community Services Program (CSP) 2 2 2

Number of individuals served through regional 

representatives: 

Consumers 1,500 1,500 1,500

Families 350 350 350

Agencies/organizations 800 800 800

HKNC FTE staff 144 144 144

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 2016 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 training goals set and achieved by adult consumers, of adult 

consumers seeking employment who are placed in employment, and of adult consumers 

seeking to maintain their ability to live independently or move to less restrictive settings who 

achieve their goals.

Year Target Actual Target Actual Target Actual Target Actual

Year

# of Adult 

Consumers

# of Adult 

Consumers 

% in Less 

Restrictive 

Settings

% in Less 

Restrictive 

Settings

% of 

Training 

goals met

% of 

Training 

goals 

met

% Placed

in

Employment

% Placed

in

Employment 

2011 90 85 1 75% 81% 90% 94% 45% 43%

2012 90 52 75 89 90 89 45 38

2013 68 52 85 83 95 96 46 36

2014 70 57 2 86 83 95 91 47 42

2015 71 87 95 48

2016 71 87 95 48

1 Program year change-statistic includes period from July 2010 – September 2011. 2 An additional 38 consumers (unduplicated) were off-campus consumers.

Additional information: The number of adult clients attending the HKNC on-campus 

rehabilitation training center in fiscal year 2014, 57, was below the target of 70. 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 the level of intensity of training 

needs. 

In addition to traditional adult consumers, HKNC also provided training for eight high school 

students and nine homemakers. The high school students participate in career exploration, 

college preparation, and other services offered by the Center and returned to high school after 

their training. The high school students are not included in the counts of adult consumers, 

consumers placed in employment or less restrictive settings, or consumers who meet their 

individualized training goals. 

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 shortterm programs for high school students are not included in the calculation. In 2014, 91 percent 

of adult consumers achieved their training goals.

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The less restrictive settings measure refers to clients 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 2014, 83 percent of clients moved into, or remained in, less 

restrictive settings, which was slightly below the target set for this measure.

In fiscal year 2014, twelve (12) of the fifty-seven (57) individuals who terminated training had a 

desire to achieve a vocational outcome. Of this twelve (12), five (5) or 42% achieved this goal, 

seven (7) are home seeking competitive or supportive employment. Among the forty five (45) 

individuals not seeking a vocational outcome, seven (7) are continuing their education and eight 

(8) were homemakers. Five (5) did not complete the program and/or took a leave of absence. 

Five (5) consumers received short-term training and ten (10) were senior adults; two (2) are in 

day habilitation programs. In addition HKNC served eight (8) high school consumers. 

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 

2011 239

2012 300

2013 245 898

2014 265 575

2015 285

2016 285

Additional information: In fiscal year 2014, HKNC’s regional offices referred 575 individuals 

to State or local agencies or service providers. In recent years, regional offices have significantly 

increased the number of individuals referred to other entities for assistance due to the regional 

representatives’ involvement in four state-wide needs assessments and services rendered as 

part of the National Deaf-Blind Equipment Distribution Program (NDBEDP). While regional 

representatives’ continued their involvement in the NDBEDP in 2014, the number of individuals 

referred to other agencies or service providers through these efforts was lower than in the 

previous fiscal year and we expect that performance in fiscal years 2015 and 2016 to return to 

levels prior to the fiscal year 2013 performance. 

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Measure: The percentage of consumers who participated in services of programs (other than 

HKNC) as a result of receiving a referral from HKNC’s regional offices. 

Year Target Actual 

2011 63%

2012 74

2013 66% 66

2014 67 95

2015 68

2016 68

Additional information: These measures provide information on the activities of the field 

services programs, including the 11 regional representatives and the national training team, 

which consume a significant portion of the Center’s resources. Regional representatives serve 

individuals with deaf-blindness in their home communities, which often lack other service 

providers that are trained and equipped to 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 over the phone, while others benefit from repeated in-person visits for a 

variety of services, such as skills assessments, counseling, and advocacy. 

Fiscal year 2014 data reported by HKNC for this measure show a significant increase in the 

percentage of consumers participating in service programs (other than HKNC programs) as a 

result of a regional office referral. RSA is reviewing the data reported for fiscal year 2014, and 

will work with HKNC to assess whether fiscal year 2014 performance represents a one-time 

anomaly or whether this higher rate of performance is expected to continue in future years. If 

this rate is expected to continue, RSA will review the performance measure and determining if 

revisions need to be made.

Objective: HKNC will assist State vocational rehabilitation and employment programs in 

increasing employment outcomes for individuals who are deaf-blind.

Measure: The number of referrals by HKNC’s regional offices to vocational rehabilitation or 

related employment programs.

Year Target Actual 

2011 32

2012 57

2013 84 62

2014 88 65

2015 92

2016 92

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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 

2011 28%

2012 45

2013 28% 32

2014 30 55

2015 32

2016 32

Additional information: HKNC plays an important role in connecting individuals who are deafblind to vocational rehabilitation agencies. Many vocational rehabilitation (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. 

However the number of referrals to VR agencies is somewhat limited by the fact that not all 

consumers served by HKNC field staff have vocational goals. 

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 2014, 55 percent of individuals achieved successful 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, and exceeded the target for 

this measure.

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State Tables

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