1Department of Education

REHABILITATION SERVICES

Fiscal Year 2020 Budget Request

CONTENTS

Page

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

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

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

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

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

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

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

Activities: 

Vocational rehabilitation State grants................................................................................... I-9

Client assistance State grants.............................................................................................I-22

Training ..............................................................................................................................I-27

Demonstration and training programs.................................................................................I-33

Protection and advocacy of individual rights .......................................................................I-39

Supported employment State grants...................................................................................I-43

Independent living services for older blind individuals.........................................................I-50

Helen Keller National Center ..............................................................................................I-54

State Tables*

State tables reflecting final 2018 allocations and 2019 and 2020 estimates are posted on the 

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

Appropriations Language

REHABILITATION SERVICES

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

Helen Keller National Center Act, [$3,657,189,000] $3,719,527,000, of which [$3,521,990,000]

$3,610,040,000 shall be for grants for vocational rehabilitation services under Title I of the 

Rehabilitation Act

1 [: Provided, That the Secretary may use amounts provided in this Act that 

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

the Rehabilitation Act for innovative activities aimed at 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: Provided further, That States may award 

subgrants for a portion of the funds to other public and private, nonprofit entities: 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, 2020].

2 (Department of Education Appropriations Act, 2019.)

NOTE

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

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

I-2

Analysis of Language Provisions and Changes

Language Provision Explanation

1 ...of which [$3,521,990,000] 

$3,610,040,000 shall be for grants for 

vocational rehabilitation services under Title I 

of the Rehabilitation Act.

 

This language earmarks funds provided for 

Vocational Rehabilitation (VR) State Grants 

program.

2

[: Provided, That the Secretary may use 

amounts provided in this Act that remain 

available subsequent to the reallotment of 

funds to States pursuant to section 110(b) of 

the Rehabilitation Act for innovative activities 

aimed at 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: Provided further, That States 

may award subgrants for a portion of the 

funds to other public and private, nonprofit 

entities: 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, 2020].

This language, which allows the Secretary to 

use amounts that remain available 

subsequent to the reallotment of funds to 

States under the VR State Grants program for 

innovative activities designed to improve the 

outcomes of individuals with disabilities, is 

deleted because it is no longer needed. No 

unobligated VR State Grant funds remained at 

the end of fiscal years 2016, 2017, or 2018 

and all available funds were reallotted to 

States before the end of their respective fiscal 

years. The Department expects to be able to 

reallocate all available grant funds to other 

State VR agencies in fiscal year 2020.
REHABILITATION SERVICES

I-3

Appropriation, Adjustments, and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2018 2019 2020

Discretionary:

Discretionar y: Appropriation................................................. $134,199 $135,199 $109,487

Total, discretionary appropriation .......... 134,199 135,199 109,487

Mandatory:

Mandator y: Appropriation................................................. 3,452,931 3,521,990 3,610,040

Mandator y Sequester (P.L. 112-25)................................ -227,893 -218,363 0

Total, adjusted mandatory appropriation ... 3,225,038 3,303,627 3,610,040

Total, discretionary and adjusted 

mandatory appropriation............................ 3,359,237 3,438,826 3,719,527
REHABILITATION SERVICES

I-4

Summary of Changes

(dollars in thousands)

2019............................................................................................ $3,657,1891

2020............................................................................................... 3,719,527

Net change................................................................ +62,338

1 Excludes the 6.2 percent reduction of mandatory VR State Grant funds pursuant to the Budget Control Act 

(P.L. 112-25) that went into effect on October 1, 2018. The reduced level for 2019 subsequent to the 6.2 percent 

sequester is $3,438,826, a reduction of $218,363 million. 

Increases: 2019 base

Change 

from base

Built in

Increase in funding for Vocational Rehabilitation (VR) State 

grants, consistent with the inflation increase specified in the 

authorizing statute. $3,521,990 +$88,050

Decreases: 2019 base

Change 

from base

Program:

Eliminate funding for Supported Employment State grants

because there is no longer a need for a separate supported 

employment funding stream and its elimination would reduce 

unnecessary administrative burden and streamline program 

administration at the Federal and State levels. $22,548 -$22,548

Decrease in funding for Helen Keller National Center to provide 

funding for other Administration priorities. 13,500 -3,164

Subtotal, decreases -25,712

Net change +62,338
REHABILITATION SERVICES

I-5

I-5

Authorizing Legislation

(dollars in thousands)

Activity

2019

Authorized

footnote

2019

Estimate

footnote

2020

Authorized

footnote

2020

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B-110 and 111) $3,521,990 1 $3,184,8492$3,610,0403 $3,565,940

VR Grants for Indians (RA-I-C) (1, 4) 40,189 2 (3,4) 44,100

Client assistance State grants (RA-I-112) 13,805 13,000 14,098 13,000

Supported employment State grants (RA-VI) 31,691 22,548 32,363 0

Training (RA-III-302) 38,719 29,388 39,540 29,388

Demonstration and training programs (RA-III-303) 6,668 5,796 6,809 5,796

Services for older blind individuals (RA-VII-2) 38,328 33,317 39,141 33,317

Protection and advocacy of individual rights (RA-V-509) 20,305 17,650 20,735 17,650

Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) 0 5 13,500 05 10,336

Total definite authorization 3,671,506 3,667,259

Total discretionary appropriation 135,199 109,487

Total mandatory appropriation 3,521,990 3,610,040

Total appropriation 3,657,189 3,719,527

Portion of request not authorized 10,336

Total appropriation including required mandatory reduction 3,438,82623,719,527

_______________________________

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 2019, this amount 

was $3,521,990 thousand. 2 The amount reflects the 6.2 percent reduction of mandatory programs that went into effect on October 1, 2018, pursuant to the Budget Control Act of 2011 

(P.L. 112-25). 3 The authorizing legislation specifies that the amount to be appropriated for a fiscal year be at least the level of the prior fiscal year increased by the 12-month 

percentage change from October to October in the CPIU. In FY 2020, this amount is $3,610,040 thousand. 4 The Rehabilitation Act requires that 1.0 percent to 1.5 percent of the appropriation for Vocational Rehabilitation State grants be set aside for Grants to Indians. 5 The GEPA extension expired September 30, 2004; continued funding is proposed for this program in fiscal year 2020 under appropriations language.
REHABILITATION SERVICES

I-6

Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation

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

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

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

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

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

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

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

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

1

0 3,535,5899

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

2019 3,634,977 3,657,68911 3,656,18911 3,657,18911

2020 3,719,527

1 The levels for the Senate allowance reflects Committee action only.

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

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

Committee action only.

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

proceeded in the 112th Congress only through the House Subcommittee and the Senate Committee. 6 The House allowance is shown as N/A because there was no Subcommittee action. 7 The level for the Senate allowance reflects Senate Subcommittee action only. 8 The levels for House and Senate allowances reflect action on the regular annual 2016 appropriations bill, which 

proceeded in the 114th Congress only through the House Committee and Senate Committee. 9 The levels for House and Senate allowances reflect Committee action on the regular annual 2017 appropriations 

bill; the Appropriation reflects the Consolidated Appropriation Act, 2017. 10 The levels for the House reflect floor action on an Omnibus appropriation bill; Senate allowances reflect Committee 

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

level.

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

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

Services, and Education Appropriations Act, 2019 (P.L. 115-245)
I-7

Summary of R equ est

Click here for accessible version

DEPARTMENT OF EDUCATION FISCAL YEAR 2020 PRESIDENT'S BUDGET

(in thousands of dollars)

Amount Percent

 1. Vocational rehabilitation State grants:

(a) Grants to States (RA Title I-A, sections 110 and 111) 1 M 3,184,849 3,260,627 3,565,940 305,313 9.36%

(b) Grants to Indians (RA Title I-C) M 40,189 43,000 44,100 1,100 2.56%

Subtotal 1 3,225,038 3,303,627 3,610,040 306,413 9.28%

Mandatory baseline M 3,452,931 3,521,990 3,610,040 88,050 2.50%

 2. Client assistance State grants (RA section 112) D 13,000 13,000 13,000 0 0.00%

 3. Training (RA section 302) D 29,388 29,388 29,388 0 0.00%

 4. Demonstration and training programs (RA section 303) D 5,796 5,796 5,796 0 0.00%

 5. Protection and advocacy of individual rights (RA section 509) D 17,650 17,650 17,650 0 0.00%

 6. Supported employment State grants (RA VI) D 22,548 22,548 0 (22,548) -100.00%

 7. Independent living services for older blind individuals (RA VII, Chapter 2) D 33,317 33,317 33,317 0 0.00%

 8. Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) D 12,500 13,500 10,336 (3,164) -23.44%

Subtotal 134,199 135,199 109,487 (25,712) -19.02%

3,359,237 3,438,826 3,719,527 280,701 8.16%

Discretionary D 134,199 135,199 109,487 (25,712) -19.02%

Mandatory M 3,225,038 3,303,627 3,610,040 306,413 9.28%

NOTES: D = discretionary program; M = mandatory program

Detail may not add to totals due to rounding. 

Rehabilitation Services 

Total

1

 For the Vocational Rehabilitation State Grants program the level shown in the 2019 Appropriation column reflects the 6.2 percent reduction that went into effect on October 1, 2018, 

pursuant to the Budget Control Act of 2011 (P.L. 112-25). 

Cat 

Code

2018 

Appropriation 

2019 

Appropriation

2020 

President's 

Budget

2020 President's Budget Compared 

to 2019 Appropriation
REHABILITATION SERVICES

I-8

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 for in-demand 

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

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

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

reauthorized by Title IV of the Workforce Innovation and Opportunity Act (WIOA), enacted in 

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

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

rehabilitation.

The Administration’s 2020 request for the Rehabilitation Services account provides $3.7 billion 

to support comprehensive and coordinated vocational rehabilitation for individuals with 

disabilities through direct services, training and technical assistance, and model 

demonstrations, as well as direct services to help older individuals who are blind live more 

independently. 

The $3.6 billion request for the Vocational Rehabilitation (VR) State Grants program includes an 

increase of $88.1 million over the fiscal year 2019 mandatory level, consistent with the 

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

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

strengthened the alignment of the VR program with other components of the workforce 

development system to promote a coordinated and streamlined system. As an integral partner 

in this system, the VR program is the primary Federal vehicle for assisting individuals with 

disabilities, particularly individuals with the most significant disabilities, to prepare for, obtain, 

retain, or advance in high quality employment. 

No funds are requested for the Supported Employment State Grants program. The 

Administration recognizes that supported employment can be an effective strategy in assisting 

individuals with the most significant disabilities to obtain competitive employment in integrated 

settings. However, a separate supported employment program is unnecessary because it 

duplicates services that are available under the VR State Grants program. In addition, the 

proposed elimination would reduce administrative burden and streamline program 

administration at the Federal and State levels.

The $10.3 million request for the Helen Keller National Center for Deaf-Blind Youths and Adults

(HKNC), a decrease of $3.2 million, or 23 percent, would provide sufficient resources to support 

independent living and employment opportunities for individuals who are deaf-blind while also 

maintaining the fiscal discipline necessary to support the President’s goal of increasing support 

for national security and public safety without adding to the Federal budget deficit. 

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

account at the 2019 appropriation level.
REHABILITATION SERVICES

I-9

Vocational rehabilitation State grants

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

(dollars in thousands)

FY 2020 Authorization: $3,610,0401

Budget Authority: 

Program footnote2019 2020 footnote

Change from

2019 Mandatory

State grants $3,478,238 $3,565,940 +$87,702

Indian set-aside 43,752 44,100 +348

Total 3,521,9902

3,610,040 +88,050

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

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

all Urban Consumers (CPIU). For fiscal year 2020 this amount is $3,610,040 thousand, an increase of 2.5 percent.

The authorizing statute also requires that not less than 1.0 percent, and not more than 1.5 percent, of the 

appropriation for each fiscal year for VR State Grants be set aside for Grants for American Indians.

2 The levels shown in the 2019 column are the mandatory amounts for the VR State Grants program and do not 

include the sequester reduction for mandatory programs pursuant to the Budget Control Act of 2011. The reduced 

level for fiscal year 2019 subsequent to the 6.2 percent sequester that went into effect on October 1, 2018 is 

$3,303,626,620, a reduction of $218.4 million from the mandatory level.

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

agency for individuals who are blind or visually impaired and a “general” agency for all other 

disability categories. The authorizing legislation requires the program to be funded at no less 

than the prior year level, increased by the percentage change in the Consumer Price Index for 

Urban Consumers.

Workforce Development System

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

IV of the Workforce Innovation and Opportunity Act (WIOA), which supports a comprehensive, 

accessible, high-quality workforce development system that includes programs and investments 

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

and is aligned with regional economic development strategies to meet the needs of local and 
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-10

regional employers. WIOA’s one-stop system, established under Section 121(e) of WIOA, 

operates through a network of centers in each State that provide a variety of services to assist 

individuals to meet their employment and training needs, while also assisting local employers in

meeting their needs for qualified personnel.

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

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

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

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

Education and Family Literacy Act (AEFLA) program (Title II of WIOA), Wagner-Peyser 

Employment Service program (Title III of WIOA), and VR program (Title IV of WIOA)), the 

Governor must submit a unified State plan, including the VR plan. After approval of the VR 

portion of the plan by the Commissioner of the Rehabilitation Services Administration (RSA), the 

unified State plan is subject to the approval of both the Secretaries of Labor and Education. 

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

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

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

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

employment outcome and also require VR services. Program services are tailored to the 

specific needs of the individual through an individualized plan for employment (IPE). The VR 

program provides a variety of services, such as vocational evaluation, counseling, education, 

vocational training, job placement, rehabilitation technology, supported employment services, 

and treatment of mental or physical conditions, that may reasonably be expected to reduce or 

eliminate one or more barriers to employment. Priority is given to serving individuals with the 

most significant disabilities. Pre-employment transition services may be provided to students 

with disabilities who are in a secondary, postsecondary, or other recognized education program 

and are eligible or potentially eligible for VR services. 

This program provides financial assistance to States to cover the cost of direct services and 

program administration. The State matching requirement is 21.3 percent, except for the cost of 

construction of a facility for community rehabilitation program purposes, in which case the nonFederal share is 50 percent. If a State has met all matching requirements for the fiscal year in 

which funds were appropriated, the State may carry over unobligated Federal funds for an 

additional year. States must also maintain non-Federal expenditures at no less than the level 

spent during the fiscal year 2 years earlier. Amendments made by WIOA to Section 111 of the 

Rehabilitation Act allow the Department to reduce a State’s VR grant by the amount of a 

Maintenance of Effort (MOE) deficit from any previous fiscal year.

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

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

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

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

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

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

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

Vocational rehabilitation State grants

I-11

The fiscal year 2018 State distributions were based on the July 1, 2016, population estimates 

published in December 2016 by the U.S. Census Bureau. The fiscal year 2019 State 

distributions are based on the July 1, 2017 populations estimates published in December 2017.

The fiscal year 2020 State distributions are based on the July 1, 2018 population estimates 

published December 19, 2018. Per capita income averages for fiscal year 2018 and 2019 

distributions are based on Bureau of Economic Analysis (BEA) revised estimates for calendar 

years 2013, 2014, and 2015 released by the Department of Commerce on September 28, 2016.

Per capita income averages for fiscal year 2020 distributions are based on BEA revised 

estimates for calendar years 2015, 2016, and 2017 updated on September 25, 2018.

American Indian Vocational Rehabilitation Services 

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

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

Rehabilitation Services (AIVRS) program (Section 121 of the Act). 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. The 

Department also must use between 1.8 percent and 2.0 percent of AIVRS funds to provide 

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

State reservations.

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

Fiscal Year (dollars in thousands) footnote

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

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

2017.......................................................................3,164,0541

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

2019.......................................................................3,303,627 1

1 The amounts shown for 2014 through 2019 reflect the sequester reduction for mandatory programs pursuant to the 

Budget Control Act of 2011 (P.L. 112-25). The mandatory appropriation was reduced by 7.3 percent in 2015, 

6.8 percent in 2016, 6.9 percent in 2017, 6.6 percent in 2018, and 6.2 percent in 2019.

FY 2020 BUDGET REQUEST

For fiscal year 2020, the Administration requests $3.6 billion for the VR State Grants programs, 

$88.1 million over the fiscal year 2019 mandatory level, to help States and Tribal governments 

increase the participation of individuals with disabilities in the workforce. The fiscal year 2020

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

statute. Of the amount requested, $44.1 million will be set aside to support grants under the 

AIVRS program.

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

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

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

2017 employment data from the U.S. Bureau of Labor Statistics show that of those aged 16-64 
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-12

(i.e., U.S. working age population), people with sensory, physical, mental, and/or self-care 

disabilities are significantly less likely to be employed (either full-time or part-time) than people 

without such disabilities (29.3 percent versus 73.5 percent, respectively). Of those people with 

disabilities who were employed, 27.7 percent usually worked part-time (less than 35 hours per 

week) compared to 16.1 percent of people without such disabilities. In addition, employed 

persons with a disability were more likely to be self-employed (10.6 percent) than those with no 

disability (6.0 percent).

1

Through the workforce development system, the Workforce Innovation and Opportunity

Act of 2014 (WIOA) fosters new opportunities for innovation and collaboration across 

Federal, State, and local agencies, private organizations, and employers. WIOA also

promotes increased access to employment, education, training, and support services to 

assist individuals with disabilities and youth, as well as others who experience employment 

barriers, to succeed in the competitive labor market. The VR State Grants program is a 

critical component of the workforce development system and continues to be the primary 

Federal vehicle for assisting individuals with disabilities—particularly individuals with the 

most significant disabilities—to obtain competitive integrated employment. Nationally, there 

are approximately 1.3 million eligible individuals with disabilities in various phases of the 

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

an individualized plan for employment (IPE) during fiscal year 2017. Approximately

94 percent of these individuals were individuals with significant disabilities.

One example of VR services is support for apprenticeships that offer youth and adults with 

disabilities a career pathway that provides competitive integrated employment. The inclusion of

mentoring and on-the-job training components make apprenticeships a highly successful vehicle 

for recruiting, training, and retaining individuals with disabilities in both traditional and highgrowth industries.

State VR agencies play an important role in working with apprenticeship programs to ensure 

that individuals with disabilities can successfully participate in such programs. For example, 

State agencies can provide a variety of services and supports that are beneficial to both 

employers and eligible individuals participating in or seeking apprenticeships including, 

vocational assessment, career exploration, job readiness training, identifying assistive 

technology devices and accommodations, job coaching, job restructuring, and/or postemployment services, as necessary.

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

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

significant implementation challenges, particularly where such changes are likely to 

increase program costs and the demand for services. In fiscal year 2019, 64.3 percent of 

the 56 general and combined State VR agencies (1 more than in fiscal year 2017) and 

13.6 percent of the 22 State VR agencies serving blind individuals established an “order of 

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

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

Vocational rehabilitation State grants

I-13

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

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

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

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

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

addressing these resource challenges.

Disability Innovation Fund

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

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

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

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

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

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

improve the education and employment outcomes of children receiving Supplemental Security 

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

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

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

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

section of this request.

However no unobligated VR State Grant funds remained at the end of fiscal years 2016, 2017, 

or 2018 and all available funds were reallotted to States before the end of their respective fiscal 

years. The Department expects to be able to reallocate all available grant funds to other State 

VR agencies in fiscal years 2019 and 2020; consequently, the request does not include 

continued authority for the Disability Innovation Fund in fiscal year 2020.

American Indian Vocational Rehabilitation Services

The request would provide $44.1 million for grants under the American Indian Vocational 

Rehabilitation Services (AIVRS) program, allowing the Department to support 88 tribal VR 

projects, including 30 new awards and 58 continuation awards. These funds enable Tribal 

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

Indians with disabilities residing on or near reservations. Consistent with Section 121(c) of the 

Rehabilitation Act, the Department plans to reserve 1.8 percent of these funds to support 

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

State reservations.

Fiscal year 2019 is the final year of funding for the AIVRS Training and Technical Assistance 

Center initially funded in fiscal year 2015 to meet a new requirement in the reauthorized 

Rehabilitation Act. The Department will hold a competition for a new center in fiscal year 2020. 
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-14

PROGRAM OUTPUT MEASURES

Vocational rehabilitation State grants

Output Measures 2018 2019 2020

Individuals receiving VR services under an IPE 939,000 939,000 940,000

Individuals with significant disabilities as a percent of 

all individuals receiving services 94% 94% 94%

Eligible individuals whose case files were closed 447,000 447,000 448,000

Individuals whose cases were closed and received 

VR services 326,000 326,000 328,000

Individuals achieving an employment outcome 170,000 170,000 172,000

Individuals with significant disabilities as a percent of 

individuals achieving employment outcomes 94% 94% 94%

_________________

Note: Data shown for fiscal years 2018 through 2020 are projections based on actual data for fiscal years 2016 and 

2017 from the RSA Quarterly Cumulative Caseload Report (RSA-113) and program year 2017 from the RSA-911 

Case Service Report (RSA-911).

American Indian vocational rehabilitation services

(dollars in thousands)

Output Measures 2018 2019 footnote2020 Footnote

Project funding:

Project fundi ng: New awards 0 $21,262 $14,053

Project fundi ng: Continuation awards $39,466 20,954 29,242

Project fundi ng: Technical assistancefunds 723 774 794

Project fundi ng: Peer review of new awards applications 0 10 11

Total 40,189 43,000 44,100

Number of AIVRS projects:

Number of New projects – AIVRS 0 45 30

Number of Continuation projects – AIVRS 88 42 58

Total projects 88 87 88
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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, those requested in fiscal year 

2020 and future years, as well as the resources and efforts invested by individuals served by 

this program.

VR State Grants

WIOA requires States that operate core programs of the publicly funded workforce system, 

including the VR State Grants program, to meet common performance accountability 

requirements, including the submission of common performance data to demonstrate that 

specified performance levels are achieved. Required data for the core programs include those 

related to the primary performance indicators, participant counts and costs, and barriers to 

employment. Data definitions were changed by WIOA, limiting the validity of comparisons to 

performance data reported under the old law.

State VR agencies began to collect and report quarterly data on the joint performance measures 

and other data for program year (PY) 2017 on July 1, 2017 (the PY runs from July 1 to June 

30). Data from PYs 2017 and 2018 will be used to develop performance targets for inclusion in 

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

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

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

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

performance data on those measures are available.

For the purposes of the interim measures, a VR participant is an eligible individual who has an 

approved and signed IPE and has begun to receive services. A VR participant is reported to 

have exited the program when the participant’s record of service is closed. Competitive 

integrated employment is work in the competitive labor market that is performed on a full-time or 

part-time basis in an integrated setting, and for which an individual is compensated at or above 

the minimum wage, but not less than the customary wage rate paid by the employer for the 

same or similar work performed by other individuals who are not disabled and who are similarly 

situated in similar occupations by the same employer and who have similar training, experience, 

and skills, including eligibility for the same level of benefits. (See 34 CFR 361.5(c)(9)).
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Interim VR Measures

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

program will achieve high quality employment. 

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

Rehabilitation State Grant program achieve competitive integrated employment consistent with 

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

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

employment.

In fiscal year 2017, 48.1 percent of the 350,938 participants who exited the VR program 

obtained competitive integrated employment. State performance varies considerably on this 

measure. For example, performance ranged from a low of 24 percent to a high of 70 percent in 

fiscal year 2017. Among those individuals who exited the VR program in FY 2017 with an 

employment outcome, 97.4 percent obtained competitive integrated employment. 

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

competitive integrated employment outcome.

Median weekly earnings are based on State reported data for all 56 States, including the District 

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

of the Northern Mariana Islands. The median weekly earnings for participants who exited the VR 

program with a competitive integrated employment outcome in fiscal year 2017 were $320, 

compared to $315 in fiscal year 2016. Among States, median weekly earnings at exit ranged 

from $236 to $462 in fiscal year 2017.

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

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

integrated employment.

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

seven specified training services.

In fiscal year 2017, 42,902 of the 135,606 youth participants (31.6 percent) who exited the VR 

program in fiscal year 2017 received at least one of seven specified training services. However, 

State performance varies considerably on this measure; excluding the four territories, 

performance ranged from a high of about 74 percent to a low of about 9 percent in fiscal year 

2017. Of the seven training services, the most frequently received was occupational or 

vocational training followed closely by 4-year college or university training. 

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

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

this measure, include: (1) graduate college or university training; (2) 4-year college or university 

training; (3) junior or community college training; (4) occupational or vocational training; 
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(5) apprenticeship training; (6) basic academic remedial or literacy training; or (7) miscellaneous 

training.

American Indian Vocational Rehabilitation Services

Performance Measures

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

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

Objective: Ensure that eligible American Indians with disabilities receive vocational 

rehabilitation services and achieve employment outcomes consistent with their particular 

strengths, resources, abilities, capabilities, and interests.

Measure: The percentage of individuals who leave the program with employment outcomes, 

after receiving services under an individualized plan for employment.

Year Target Actual

2015 66% 68%

2016 66 67

2017 67 68

2018 67

2019 67

2020 68

Additional information: Data for fiscal year 2017 show that 2,363, or 68.2 percent, of the 

3,465 individuals with disabilities who exited the program after receiving services in that year 

achieved an employment outcome. However, the percentage of individuals who exited the 

AIVRS program with an employment outcome ranged from 18 percent to 100 percent. Fiscal 

year 2018 data will be available in May 2019.

Efficiency Measures

The Department established two efficiency measures to ensure that AIVRS projects 

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

cost per participant. 
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Objective: Ensure that AIVRS projects demonstrate effective fiscal management. 

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

employment outcome of no more than $35,000.

Year Target Actual

2015 76% 68%

2016 76 72

2017 76 77

2018 76

2019 76

2020 76

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

ranging from $2,000 to $151,000.

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

participant of no more than $10,000.

Year Target Actual

2015 86% 71%

2016 86 76

2017 80 74

2018 80

2019 75

2020 75

Additional information: The median annual cost per participant for the 87 projects reporting 

data was $6,634 in fiscal 2017, $476 more than the median cost in fiscal year 2016 of $6,158. 

Performance on this measure is likely to continue to fall below the targets that were established 

based on performance in prior years. Targets for fiscal year 2019 and 2020 have been lowered 

to reflect increased costs in serving American Indians with disabilities.

Disability Innovation Fund

Promoting Readiness of Minors in Social Security Income 

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

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

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

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

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

developed partnerships and are implementing interventions designed to improve the provision 

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

achieve outcomes that lead to increased economic self-sufficiency and a reduction in their 
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dependence on SSI payments. A rigorously designed national evaluation of PROMISE is being 

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

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

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

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

assistance center grant awarded in fiscal year 2014. By the end of the recruitment period in 

April 2016, all six projects met their project recruitment goals, with a total of 13,444 participants 

enrolled across the six projects. Approximately one-half of the children and families enrolled 

were placed in the treatment group and receive project services. Program participants in the 

intervention group are receiving services that include paid competitive employment 

opportunities. Examples of project accomplishments as of July 2018 are provided below.

Additional information can be found on the PROMISE technical assistance center’s website.1

As of December 2018, the evaluation contractor has prepared MDP-specific process analysis 

reports. These reports have documented PROMISE program implementation and service 

delivery experiences of the different MDPs through August 2017, including an analysis of the 

interactions with formal and informal partnerships under PROMISE. Reports are available on 

SSA’s website.

2 Key findings, in addition to the reports, are provided on Mathematica Policy 

Research’s website3. The evaluator will use these reports to inform the interim services and 

impact reports due in fiscal year 2019. The evaluation contractor has published two PROMISE 

special topics briefs, The Role of PROMISE in the Landscape of Federal Programs Targeting 

Youth with Disabilities4 and the PROMISE Programs’ Use of Effective Transition Practices in 

Serving Youth with Disabilities.

5

Automatic Personalization Computing Project 

In fiscal year 2015, the Department used about $37.2 million of unobligated fiscal year 2014 VR 

funds to fully fund a 5-year innovative Automated Personalization Computing Project (APCP) 

($20 million) and to provide supplemental awards to support PROMISE activities ($17.2 million).

The goal of the APCP is to ensure that individuals with disabilities can access computer 

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

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

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

simple language), translation from one language to another, and volume levels of audio 

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

Internet-capable computers automatically run assistive technology solutions customized for 

1 http://www.promisetacenter.org/. 2 Reports documenting PROMISE program implementation and service delivery experiences are available at

https://www.ssa.gov/disabilityresearch/promise.htm. 3 These reports will be available at https://www.mathematica-mpr.com/our-publications-andfindings/projects/evaluate-the-promoting-readiness-of-minors-in-supplemental-security-income-promise-grants. 4 https://www.mathematica-mpr.com/our-publications-and-findings/publications/the-role-of-promise-in-the-landscapeof-federal-programs-targeting-youth-with-disabilities 5 https://www.mathematica-mpr.com/our-publications-and-findings/publications/promoting-readiness-of-minors-insupplemental-security-income-promise-promise-programs-use
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individual users with disabilities according to their preferences. The Department is partnering 

with the National Institute on Disability, Independent Living, and Rehabilitation Research which 

is now administered by the Administration for Community Living in HHS, the National Institute of 

Standards and Technology, and the Access Board, among others, in overseeing this initiative.

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

selected American Job Centers; in fiscal year 2019, pilot testing will expand to several high 

schools, a community college, and a community job center. The purpose of this pilot is to test 

the capabilities of the software’s automatic transfer of preference settings to determine the role 

it can play in supporting transition of individuals from high school to the community college, and 

from the community college to job settings.

During 2020, the fifth and final year of the grant, the project will create support materials for use 

by organizations and individuals implementing the software beyond the pilot sites. The project 

will then be disseminated to increase public awareness of the results of the APCP. The project 

will then increase the reliable scaling of the software to handle up to 10 million simultaneous 

users. The final activities of the APCP will be to oversee privacy policy and conformance when it 

transitions from the institutional review board to cover non-research related data. Lastly, the 

University of Maryland will operate the transfer of the technology to users’ sites.

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

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

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

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

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

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

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

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

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

enrollment in comprehensive transition or postsecondary educational programs at institutions of 

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

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

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

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

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

VR agencies in fiscal year 2016. The goal of these projects is to identify and demonstrate workbased learning interventions for students with disabilities that are supported by research and are 

rigorously evaluated.

A brief description of the five projects is provided below.

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

Development and Transition for Exceptional Individuals, 38(1), 4-13.
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• The Maryland Work-Based Learning Collaborative (Way2Work Maryland) project is 

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

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

the Maryland Division of Rehabilitation Services, local educational agencies, community 

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

randomized control design implemented across eight diverse school districts.

(https://www.way2workmd.net)

• Vermont’s Linking Learning to Careers project is assisting students with disabilities to 

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

VR services and school programming. These connections are enhanced by the provision of 

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

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

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

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

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

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

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

community partners, including more than a dozen local education agencies, are providing 

work based learning experiences and a menu of services to students. Through a personcentered collaborative team-based approach, students’ career goals will be thoughtfully 

planned and supported. The model includes a quasi-experimental design.

(https://www.mass.gov/service-details/transition-pathway-services)

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

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

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

Rehabilitation to evaluate two innovative interventions using a progressive employment 

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

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

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

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

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

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

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

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

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

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

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

randomized control design. (https://www.ci-california.org)
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Client assistance State grants

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

(dollars in thousands)

FY 2020 Authorization: $14,098

Budget Authority: 

2019 2020 Change 

$13,000 $13,000 0

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

in order to receive VR State grant funds.

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

requirement to establish a CAP in each State. Each Governor designates a public or private 

agency to operate a CAP. This designated agency must be independent of any agency that 

provides services under the Act, except in cases where the Act “grandfathered” agencies 

providing such services under the Act. If one of these “grandfathered” agencies should be 

restructured, the Governor is required to re-designate the CAP to an agency that does not 

provide services under the Act.

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

follows:

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

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

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

When the appropriation exceeds $7.5 million, the CAP formula grant program distributes funds 

on the basis of population (using the most recent estimates published by the U.S. Census 

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

and $45,000 to each of the outlying areas. When the appropriation increases, the Act also 

requires the Department to increase the minimum allotments for States and outlying areas by an 

amount not greater than the percentage increase in the appropriation. 
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The Workforce Innovation and Opportunity Act also requires that funds be set aside under this 

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

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

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

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

appropriation is equal to or exceeds $14 million, the Department must set aside between 

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

CAPs established under this program. 

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

Fiscal Year (dollars in thousands)

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

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

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

2018............................................................13,000

2019............................................................13,000

FY 2020 BUDGET REQUEST

For fiscal year 2020, the Administration requests $13 million for CAP, the same as the fiscal 

year 2019 appropriation. CAPs promote understanding of the rehabilitation services and 

benefits available under the Rehabilitation Act and advise applicants and individuals who have 

been determined eligible for such services of their rights and responsibilities. The request will 

help ensure that individuals with disabilities who are applying for or receiving services funded 

under the Rehabilitation Act receive appropriate services and have access to administrative, 

legal, and other appropriate remedies needed to protect their rights.

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

2017 from the most recent available RSA Annual Client Assistance Program Report (RSA-227)

show that, nationwide, CAPs responded to 34,488 requests for information and referral (I&R). 

While the average number of I&R requests that States responded to was 616, the median 

number was 73 because of the significant range in the number of I&R requests reported by 

CAPs. Approximately 26 percent of all I&R requests were for information regarding the VR 

program.

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

client, to 4,608 individuals in fiscal year 2017. Approximately 96 percent of the cases in which 

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

from the VR program. In 95 percent of all cases, issues raised were related to the VR process 

or delivery of VR services. Of the 3,576 cases closed in fiscal year 2017, 1,394 cases (or 

39 percent) were resolved by explaining the controlling policies to the individual; 741 cases 

(21 percent) resulted in the development or implementation of an individualized plan for 

employment (IPE); and 507 cases (14 percent) resulted in the reestablishment of 

communication between the individuals and other parties. Of the cases closed, 72 percent were 

resolved in the individual’s favor.
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Specific examples of CAP activities are described below. Funds requested in fiscal year 2020

would support similar activities. 

• In Texas, the CAP represented a 25-year-old male pursuing a baccalaureate degree in 

meteorology at a university in Texas with the goal of becoming a meteorologist. The client 

has a form of muscular dystrophy, uses a power wheelchair and requires an attendant for 

activities of daily living, as well as accommodations and assistive services in college. The 

VR agency had been assisting with a portion of the attendant care costs while the Medicaid 

Waiver program paid for the remaining attendant care charges. The client was informed 

without notice that support from the VR agency would end because the amount paid to the 

attendant was approaching a $5,000 indicator. The VR agency informed the client that an 

attendant care requisition needed to go out for bidding before assistance could continue. 

The client still needed attendant care services during this time and called the CAP in Texas. 

The CAP communicated with the counselor, manager, and regional office, learned of an 

exception procedure that avoided the need to obtain an attendant through a bidding 

process, and won agreement from the VR Agency to continue paying for attendant care 

going forward.

• In Arizona, the CAP represented a 19-year-old female with an attention deficit disorder who 

was pursuing a baccalaureate in music with the goal of becoming a music teacher. Due to 

her disability, the client required additional study and practice time. She had difficulty with

time management and needed to follow a strict schedule each day to accomplish all her 

required school work. The client’s IPE with the VR agency included payment for her college 

tuition, dorm room and meal plan. Upon review by a new VR counselor and a VR 

supervisor, however, the client was informed that the VR agency would no longer pay for 

her on-campus housing and meal plan, in part based on the agency’s policy of paying room 

and board only for students whose residence is more than 50 miles from the school (the 

student lives 36 miles from her school).

The CAP successfully represented the client at a mediation hearing before the Office of the 

Arizona Attorney General, asserting that living on campus was required for the client both to 

successfully complete her course requirements without the additional stress and anxiety of 

daily commuting, and to achieve her IPE goal of becoming a music teacher. As a result, the 

VR agency agreed to make an exception to the policy and paid for the client’s dorm room 

and meal plan. 

PROGRAM OUTPUT MEASURES

Output Measures 2018 2019 2020

Information inquiries/referrals 34,500 34,500 34,500

Individuals provided case services 4,800 4,800 4,800

_______________________________

NOTE: Data for fiscal years 2018 through 2020 are projected from actual final data reported for fiscal years 2015 

through 2017 on requests for information and the provision of extensive service through the RSA Annual Client 

Assistance Program Report (RSA-227). Final data for fiscal year 2018 will be available in May of 2019.
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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 results is based on the 

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

2020 and future years, and the resources and efforts invested by individuals served by this 

program. 

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

the benefits available under the Vocational Rehabilitation State Grants program and 

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

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

activity to improve services under the Rehabilitation Act.

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

changes in policy or practice.

Year Target Actual

2015 74% 72%

2016 74 68

2017 74 63

2018 72

2019 68

2020 68

Additional information: Performance on this measure has been gradually declining since fiscal 

year 2014. RSA discussed this issue with the CAP Directors at the June 2018 CAP conference. 

While many CAP Directors cited the lack of resources as a significant factor, many of the 

directors and advocates were not clear on what would constitute systemic advocacy, and some 

CAPs appear to be using a higher reporting standard than necessary. The conference provided 

an opportunity for RSA to address potential errors and inconsistencies in reporting by explaining 

what types of CAP activities can result in systemic change, and we expect that performance on 

this measure will improve over time. Performance data for fiscal year 2018 will be available in 

June 2019.
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Objective: Resolve cases at lowest possible level. 

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

(ADR).

Year Target Actual 

2015 98% 98%

2016 98 99

2017 98 98

2018 98

2019 98

2020 98

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

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

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

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

litigation. Performance data for fiscal year 2018 will be available in June 2019.
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Training

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

(dollars in thousands)

FY 2020 Authorization: $39,540

Budget Authority: 

2019 2020 Change 

$29,388 $29,388 0

PROGRAM DESCRIPTION

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

the rehabilitation needs of individuals with disabilities assisted through other vocational 

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

activities designed to increase the number of qualified personnel providing rehabilitation 

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

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

conducting training programs. 

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

training, experimental and innovative training, training interpreters for persons who are deaf or 

hard of hearing and persons who are deaf-blind, and technical assistance centers offering 

training-related services. These training programs vary in terms of content, methodology, and 

type of trainee. For example, the Long-Term Training program supports academic training 

grants that must direct 65 percent of the funds to trainee scholarships. Students who receive 

financial assistance from projects funded under the program are required to either work in public 

or private non-profit rehabilitation agencies for a period of time after they complete their training

or repay the cost of their training. Grantees report data on fulfillment of these requirements after 

gathering information from students and their employers. Beginning in fiscal year 2020, the 

Department will implement a new system to collect payback information directly from students, 

grantees and employers, which will allow the Department to obtain more timely and accurate 

information.

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

Fiscal Year (dollars in thousands)

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

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

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

2018.............................................................. ..................29,388

2019.............................................................. ..................29,388

FY 2020 BUDGET REQUEST

For fiscal year 2020, the Administration requests $29.4 million for the Training program, the 

same as the fiscal year 2019 appropriation. In fiscal year 2020, approximately $14.1 million 

would be used to support new awards, $14.9 million would be used to support continuation 

awards, and $340 thousand would be used to support other activities including peer review and 

minority outreach.

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

qualifications of existing staff. In recent years, in response to dramatic turnover at State VR 

agencies created by the retirement of a large number of qualified counselors, the Department 

has targeted funding for long-term training (LTT) programs on training new counselors. Similar 

shortages, though not as severe, have also been affecting other VR providers. The Department

believes that the LTT program is the best mechanism for recruiting new graduates into the 

rehabilitation field, in part because 65 percent of the LTT funds awarded to universities go 

directly to students for tuition assistance and stipends, providing a strong incentive for students 

to enter the field. The Department plans to award approximately $15.6 million in LTT grants and 

$350 thousand in contracts in this area in fiscal year 2020, including $6.6 million in new awards.

The request also includes $6.0 million for technical assistance to State VR agency personnel 

and their partners to improve use of promising practices that have the potential to improve the 

performance of the VR program. Beginning in fiscal year 2014, the Department shifted its 

technical assistance strategy under this program from a network of comprehensive, regionally

based centers to supporting a series of targeted, topical centers that focus on providing a wide 

range of support to State VR agency personnel nationwide on a specific set of issues. This 

change resulted in the centers providing extensive targeted and intensive technical assistance 

to numerous States. For example, the WINTAC (www.wintac.org) has provided technical 

assistance to 28 agencies in 26 States, on topics including pre-employment transition services

and peer mentoring, and has provided training and technical assistance for four pilot projects.

The request also includes $2.4 million for continuations for Training for Interpreters for 

Individuals who are Deaf and Deaf-Blind to increase the number of interpreters and improve 

their skills; $4.3 million for Experimental and Innovative Training grants, including $1.6 million in 

new awards; and $436 thousand to support continuations for the National Clearinghouse of 

Rehabilitation Training Materials to gather and disseminate rehabilitation information and 

training materials.
REHABILITATION SERVICES

Training

I-29

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2018

footnote

2019

foot

note

2020

foot

note

Program Funding:

Long-Term Training:

Long-Ter m Tr aini ng: New 0 $9,292 $6,564

Long-Ter m Tr aini ng: Continuations $19,682 8,050 9,398

Long-Ter m Tr aini ng: Subtotal 19,682 17,342 15,962

Technical Assistance:

Technical Assistance: New 0 0 6,000

Technical Assistance: Continuations 5,758 5,758 0

Technical Assistance: Minority Outreach 1 376 0 0

Technical Assistance: Subtotal 6,134 5,758 6,000

Short-Term Training:

Short-Ter m Traini ng: Continuations 200 200 0 2

Short-Ter m Traini ng: Subtotal 200 200 0

Training for Interpreters for Individuals who are 

Deaf and Deaf-Blind:

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

Experimental and Innovative Training:

Experi mental and Innovati ve Traini ng: New 0 2,700 1,5502

Experi mental and Innovati ve Traini ng: Continuations 500 500 2,700

Experi mental and Innovati ve Traini ng: Subtotal 500 3,200 4,250

National Clearinghouse of Rehabilitation Training 

Materials:

National Clearing house of R ehabilitation Tr aini ng Materials: Continuations 472 454 436

1 Amounts shown do not include minority outreach contributions from the Supported Employment program of 

$35 thousand in fiscal year 2018, and $352 thousand from Demonstrations and Training and $60 thousand from 

Supported Employment in fiscal year 2019. 2 The Department is considering extending by one year the Short-Term Training award. If the award is extended, 

$200 thousand will be used to fund a Short-Term Training continuation award in fiscal year 2020 and $1,350 

thousand will be used to fund new Experimental and Innovative Training awards in fiscal year 2020.
REHABILITATION SERVICES

Training

I-30

Output Measures 2018

footnote

2019

foot

note

2020

foot

note

Other Activities:

Other Acti viti es: Peer review 0 $34 $46

Other Acti viti es: Minority Outreach --- 1

 0 294

Other Acti viti es Subtotal 0 34 340

Program Totals:

Total: New 0 11,992 14,114

Total: Continuations $29,388 17,362 14,934

Total: Other Activities 0 34 340

Total 29,388 29,388 29,388

1 The Rehabilitation Act allows RSA flexibility in determining how it will meet the 1 percent set-aside for Minority 

Outreach activities required under Section 21. Minority Outreach includes approximately $376 thousand of Training’s 

minority outreach contribution to the Technical Assistance continuations in fiscal year 2018. 

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

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

year 2020 and future years, as well as the resources and efforts invested by those served by 

this program. 

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

and to maintain and upgrade the skills of current staff.

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

help individuals with disabilities achieve their goals.

Annual Performance Measures

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

provide information on various aspects of the program, including its contribution to addressing

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

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

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

efficacy of the program and its expenditures.
REHABILITATION SERVICES

Training

I-31

Measure: The percentage of Masters level counseling graduates fulfilling their payback 

requirements through employment in State vocational rehabilitation agencies.

Year Target Actual

2015 47% 30%

2016 47 30

2017 45 36

2018 45 36

2019 40

2020 40

Additional Information: Data reported for fiscal years 2016 and earlier were based on all 

Masters level counseling graduates and the percentage meeting requirements through 

employment in State vocational rehabilitation agencies in a given year. Beginning with data 

reported for fiscal year 2017, the methodology was refined to look at the cohort of scholars who 

graduated 3 years earlier and exclude those scholars with waivers provided in accordance with 

34 CFR §386.41. This revised methodology provides a more accurate representation of the 

program’s impact because it takes into account that scholars have a 2-year grace period to 

obtain employment and excludes those scholars that were not required to obtain employment 

because they had obtained waivers.

Measure: The percentage of Masters level counseling graduates fulfilling their payback 

requirements through qualifying employment.

Year Target Actual

2015 80% 74%

2016 83 73

2017 85 88

2018 85 90

2019 85

2020 85

Additional Information: Data reported for fiscal years 2016 and earlier were based on all 

Masters level counseling graduates and the percentage meeting requirements for qualifying 

employment in a given year. Beginning with data reported for fiscal year 2017, the methodology 

was refined to look at the cohort of scholars who graduated 3 years earlier and exclude those 

scholars with waivers provided in accordance with 34 CFR §386.41. This revised methodology 

provides a more accurate representation of the program’s impact because it takes into account 

that scholars have a 2-year grace period to obtain qualifying employment and excludes those 

scholars that were not required to obtain qualifying employment because they had obtained 

waivers.
REHABILITATION SERVICES

Training

I-32

Efficiency Measures

Measure: The Federal cost per Masters level RSA supported rehabilitation counseling 

graduate.

Year Target Actual

2015 $24,000 $21,576

2016 24,000 29,605

2017 24,000 48,823

2018 24,000

2019 24,000

2020 24,000

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

dividing the total funding given to each grant over the life of the grant by the number of Masters 

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

Scholars who did not complete the program during the life of the grant (e.g., dropped out or 

were expelled) and scholars who graduated with degrees other than a Master’s (Doctoral and

certificate) are excluded from the denominator. Only those grants with at least 90 percent of the 

scholars in a Master’s program are included. One grant with only five completers closed in fiscal 

year 2017, leading to the high Federal cost per RSA-supported graduate in fiscal year 2017.
REHABILITATION SERVICES

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Demonstration and training programs

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

(dollars in thousands)

FY 2020 Authorization: $6,809

Budget Authority: 

2019 2020 Change 

$5,796 $5,796 0

PROGRAM DESCRIPTION

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 competitively awarded 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. 

Specific activities include: 

• Section 303(b) of the Rehabilitation Act authorizes the support of activities to 

demonstrate methods of service delivery to individuals with disabilities, as well as 

activities such as technical assistance, systems change, studies and evaluation, and 

dissemination and utilization of project findings. Eligible entities include State Vocational 

Rehabilitation (VR) agencies, community rehabilitation programs, Indian tribes or tribal 

organizations, other public or nonprofit agencies or organizations, and for-profit 

organizations. Competitions may be limited to one or more type of entity. 

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

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

other authorized representatives of these individuals to participate more effectively with 

professionals in meeting their vocational, independent living, and rehabilitation needs.

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

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

educational services to youth and adults who are blind.
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Demonstration and training programs

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Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)Footnote

2015 ....................................................................$5,796

2016 ......................................................................5,796

2017 ......................................................................5,796

2018 ......................................................................5,796

2019 ......................................................................5,796

FY 2020 BUDGET REQUEST

The request would provide $5.8 million for the Demonstration and Training programs, the same 

as the fiscal year 2019 appropriation. The request would support $345 thousand in continuation 

awards for braille training, at least $789 thousand for technical assistance programs, and at 

least $1.1 million for parent information and training programs.

The request also includes approximately $3.6 million in funding for new awards. The 

Department is considering the following options for improving employment outcomes and 

services for individuals with disabilities in fiscal year 2020:

• expansion of the Parent Information and Training Centers to allow implementation of a 

regional approach, which would significantly expand access to transition-related services 

nationwide;

• consolidation of transition-related technical assistance into a single center to improve 

coordination of services and reduce the Department’s administrative burden; and

• model demonstrations to provide early intervention services to populations at risk of 

dependence on Social Security Disability Insurance.

The Department may take actions in fiscal year 2019 to promote the alignment of activities and 

funding streams in support of one or more of these options in fiscal year 2020, as described in 

the Output Measures table below.
REHABILITATION SERVICES

Demonstration and training programs

I-35

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output measures 2018 footnote

2019 Footnote

2020 footnote

Program funding:

Model demonstrations

Demonstr ati ons : New awards 0 0 TBD

Demonstr ati ons : Continuation awards $3,410 $3,406 0

Technical assistance

TA: New award 0 5811

TBD 1

TA: Continuation awards 400 2 0 789

Braille training 

Braille: New awards 0 345 0

Braille: Continuation awards 328 0 345

Parent information and training

Par ent infor mation: New awards 0 1,1003 TBD

Par ent infor mation: Continuation awards 1,165 0 1,100

Peer review of new award applications 0 124 4

Minority Outreach 493 5 3525 58

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

NOTE: Amounts listed as “TBD” in fiscal year 2020 reflect topical areas for which decisions on fiscal year 2020 

competitions are not yet final. 

1 The Department is considering extending by one year the Technical Assistance award provided to the National 

Technical Assistance Center on Transition to enable RSA to realign and more strategically compete its technical 

assistance awards in fiscal year 2020. If the award is extended, $300 thousand will be used to fund its continuation 

award in fiscal year 2019 and $2,000 thousand will be used to fund a new award in fiscal year 2020. 2 The National Technical Assistance Center on Transition is jointly funded with the Office of Special Education 

programs, which provides the majority of the funding for this activity. 3 The Department is considering extending by one year the 7 Parent Training and Information Centers (PTIs) and the 

1 National PTI Center that are scheduled to be competed in fiscal year 2019. If the awards are extended, 

$1,165 thousand will be used to fund continuation awards in fiscal year 2019 and $2,700 thousand will be used to 

fund new awards in fiscal year 2020. 4 If the Department extends the Technical Assistance award and the PTI awards by one year, the peer review of new 

applications will be $3 thousand in fiscal year 2019 and $93 thousand in fiscal year 2020. 5 The amount shown for fiscal year 2018 includes contributions to the 1 percent set-aside for Minority Outreach under 

Section 21 of the Rehabilitation Act for the Demonstration and Training Programs ($57,960) and the Independent 

Living Services for Older Blind Individuals program ($333,170), as well a portion of the 1 percent required for the 

Supported Employment State Grants program ($101,856). The fiscal year 2019 amount includes $57,960 for the 

Demonstration and Training program and $293,880 for the Training Program.
REHABILITATION SERVICES

Demonstration and training programs

I-36

Output measures 2018 footnote

2019 Footnote2020 footnote

Number of awards:

Number of New awards 0 10 1 TBD 1

Number of Continuation awards 16 4 11 TBD 1

Total, Number of awards 16 14 TBD

1 If the Department extends the Technical Assistance award and the PTI awards by one year, there will be 3 new and 

13 continuation awards in fiscal year 2019, and 12 new and 3 continuation awards in fiscal year 2020.

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, those requested in fiscal 

year 2020 and future years, and the resources and efforts invested by individuals served by this 

program.

Approximately 60 percent of the funds provided for the Demonstration and Training program are 

used to support model demonstration projects. Therefore, the Department’s GPRA measures 

for this program are focused on these projects.

Vocational Rehabilitation Career Pathways for Individuals with Disabilities (CPID) 

Demonstration Projects

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

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

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

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

occupations.

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

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

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

Demonstration and training programs

I-37

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

Year Target Actual 

2016 29

2017 72 78

2018 114 103

2019 121

2020 131

Additional Information: Grantees report the number of pathways that CPID participants enter

as a result of CPID project activities. Using the baseline established in the first year of project 

data collection (fiscal year 2016), each grantee, in consultation with the project officer, 

determines a target number of career pathways that CPID participants will enter for each 

succeeding project year against which the grantee's progress will be measured. Annual targets 

and actual performance data for grantees are aggregated in order to assess annual program 

performance under this measure. Data for fiscal year 2019 are expected to be available by 

November 2019.

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

employment through CPID-accessed or created career pathways.

Year Target Actual 

2016 10

2017 50 70

2018 150 201

2019 200

2020 250

Additional Information: Using the baseline established in the first year of project data 

collection (fiscal year 2016), each of the four grantees, in consultation with the project officer, 

determines a target number of VR-eligible individuals who will achieve competitive integrated 

employment through the career pathways entered by project participants for each succeeding 

project year against which a grantee’s progress is measured. Annual targets and actual 

performance data for each grantee are aggregated in order to assess annual program 

performance under this measure.

Competitive integrated employment is 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 rate paid by the employer 

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

similarly situated in similar occupations by the same employer and who have the similar training, 

experience, and skills, including eligibility for the same level of employee benefits. Data for fiscal 

year 2019 are expected to be available by November 2019.
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Demonstration and training programs

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

competitive integrated employment.

Year Target Actual 

2016 n/a n/a

2017 $600 $543

2018 $600 650

2019 $630

2020 $680

Additional Information: The average weekly wage for this measure is calculated based on the 

weekly wages reported for each of the CPID project participants who obtained competitive 

integrated employment across all four projects for each reporting year. The average weekly 

wage for the 201 participants who achieved competitive integrated employment in fiscal 

year 2018 was $650. This represents a 20 percent increase in the average weekly earnings 

reported for fiscal year 2017 ($543), the first full year of operation for the CPID projects. These 

aggregate weekly earnings reflect individual weekly earnings that vary widely according to CPID 

participants’ age, significance of disability, and degree of career readiness—ranging from 

students and youth working a few hours per week on their first job to employed professionals 

moving up the career ladder through advanced education and training. Data for fiscal year 2019

are expected to be available by November 2019.

Other VR-CPID Measures

VR-CPID grantees are expected to report on two additional measures beginning in August 

2019: (1) the numbers of competitive integrated employment and employer-provided benefits 

obtained by CPID participants will be compared to those obtained by VR consumers in their 

State outside of CPID; (2) the average weekly earnings of CPID participants who obtained 

competitive integrated employment will be compared to the average weekly earnings of VR 

consumers in their State who obtained competitive integrated employment outside of the CPID 

project.
REHABILITATION SERVICES

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Protection and advocacy of individual rights

(Rehabilitation Act of 1973, Title V, Section 509)

(dollars in thousands)

FY 2020 Authorization: $20,735

Budget Authority: 

2019 2020 Change 

$17,650 $17,650 0

PROGRAM DESCRIPTION

The Protection and Advocacy of Individual Rights (PAIR) program supports statewide systems 

that provide assistance and information to eligible individuals with disabilities and conduct 

advocacy to ensure the protection of their rights under Federal law. These systems protect the 

legal and human rights of individuals with disabilities who are ineligible for protection and 

advocacy (P&A) services provided under Part C of the Developmental Disabilities Assistance 

and Bill of Rights Act, the Protection and Advocacy for Individuals with Mental Illness Act, or 

who need P&A services that are beyond the scope of the Client Assistance Program. States 

may use these funds to plan and carry out P&A programs for eligible individuals with disabilities 

and to develop outreach strategies to inform individuals with disabilities of their rights.

The program also requires the Department to reserve between 1.8 percent and 2.2 percent of 

the amount appropriated for training and technical assistance to eligible systems established 

under this program. In addition, the Department must award $50,000 to the eligible system 

established under the Developmental Disabilities Assistance and Bill of Rights Act to serve the 

American Indian consortium. Remaining funds are allocated to eligible systems within the States 

and outlying areas based on population estimates (using the most recent estimates from the 

U.S. Census Bureau). 

The 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.
REHABILITATION SERVICES

Protection and advocacy of individual rights

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

Fiscal Year (dollars in thousands)

2015 .......................................................... $17,650

2016 ............................................................ 17,650

2017 ............................................................ 17,650

2018 ............................................................ 17,650

2019 ............................................................ 17,650

FY 2020 BUDGET REQUEST

For fiscal year 2020, the Administration requests $17.7 million for the PAIR program, the same 

as the fiscal year 2019 appropriation. The request will assist PAIR programs in providing

information and P&A services to over 46,000 individuals with disabilities in fiscal year 2020. The 

Department plans to reserve 1.8 percent of the funds requested ($317,700) to provide training 

and technical assistance to eligible statewide systems established under this program, as

required by the authorizing statute.

During fiscal year 2017, PAIR programs nationwide reported handling 10,256 cases and 

responded to 36,300 requests for information or referral. Of the individual cases handled by 

PAIR programs in that year, most were related to education (18 percent), health care 

(15 percent), employment (14 percent), government benefits/services (13 percent), housing 

(12 percent), and transportation (12 percent). Over half (55 percent) of these individuals were 

between the ages of 23 and 59. The most frequent primary disability categories (i.e., the ones

directly related to the issues/complaints raised) reported for such individuals were orthopedic 

impairments (28 percent), neurological impairments (16 percent), and sensory disabilities such 

as visual and hearing impairments (15 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 2017, 51 out of the 57 PAIR 

programs (89 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 2017 illustrate how PAIR 

programs assist individuals and, in some cases, bring about systemic change. Funds requested 

in fiscal year 2020 would support similar activities. 

• The Minnesota PAIR served as a member of the Target Center Accessibility Advisory 

Committee during a $140 million renovation of the Target Center in the summer of 2017.

Prior to the renovation, the Accessibly Committee, which included people with 

disabilities, city and state representatives, and disability advocates, provided design and 

policy suggestions to ensure that the renovated stadium meets and exceeds Americans 

with Disabilities Act accessibility requirements. As a result of the Committee’s work, 

various accessibility improvements were made to the facility, including improved 

placement of wheelchair accessibility seating, and improved access coming to and from 
REHABILITATION SERVICES

Protection and advocacy of individual rights

I-41

the building. The Minnesota Disability Law Center estimates that the committee’s work 

will affect approximately 232,000 PAIR eligible clients. 

• During the 2017 Legislative Session, Disability Rights Oregon (DRO) successfully 

educated policy makers on bills affecting Oregonians experiencing disabilities, including 

proposals regulating the use of abbreviated school days and improvements on the 

guardianship process. Other protection and advocacy issues affecting individuals with 

disabilities in which DRO has been involved include pay equity, keeping students safe 

from abuse, banning discrimination in organ transplants, and duties of 

Intellectual/Developmental Disability case managers in end-of-life decisions.

DRO’s work resulted in a law that limits a school district’s ability to shorten child’s school 

day because of behavior problems that are part of his or her disability. A companion law

sets out procedures for conducting functional behavioral assessments and for 

developing, reviewing, and revising behavior intervention plans for students with 

individualized education programs or 504 Plans. DRO also successfully advocated for 

HB 2630, which was designed to limit the power of guardians, which in Oregon may be 

appointed without a court hearing and who previously could make major changes to a 

person’s life without the opportunity for the affected individual to object. The new law, 

which became effective on January 1, 2018, requires a person who asks to be the 

guardian for an adult to tell the court what less-restrictive alternatives to guardianship 

were considered and why they were inadequate. Additionally, it provides for notifications 

that ensure the adult and other concerned parties are informed about the proposed 

guardianship and changes to the adult’s abode or placement. 

PROGRAM OUTPUT MEASURES

Output Measures 2018 2019 2020

Information inquiries/referrals 37,300 37,300 37,300

Individuals provided case services 11,000 11,000 11,000

________________

NOTE: Data are projected from actual data reported by PAIRs for fiscal years 2015, 2016, and 2017 on 

the number of requests for information and provision of case services to individuals with disabilities. Final 

data for fiscal year 2018 will be available in June 2019.

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, those requested in fiscal year 

2020 and future years, and the resources and efforts invested by individuals served by this 

program.
REHABILITATION SERVICES

Protection and advocacy of individual rights

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Goal: To provide assistance and information to individuals with disabilities eligible for 

the Protection and Advocacy of Individual Rights program and conduct advocacy to 

ensure the protection of their rights under Federal law.

Objective: Identify problem areas requiring systemic change and engage in systemic activities 

to address those problems.

Measure: The percentage of PAIR programs that reported that their systemic advocacy resulted 

in a change in policy or practice.

Year Target Actual 

2015 91% 86%

2016 91 91

2017 91 89

2018 89

2019 89

2020 89

Additional information: Because PAIR programs cannot address all issues facing individuals 

with disabilities solely through individual advocacy, they seek to change public and private 

policies and practices that present barriers to the rights of individuals with disabilities, utilizing 

negotiations and class action litigation. Based on a review of the last 4 years of data and other 

program information, RSA has reduced the targets for fiscal years 2018 and 2019 to 89 percent 

(51 of 57 PAIR programs). Final fiscal year 2018 data will be available in June 2019.
REHABILITATION SERVICES

I-43

Supported employment State grants

(Rehabilitation Act of 1973, Title VI)

(dollars in thousands)

FY 2020 Authorization: $32,363

Budget Authority:

2019 2020 Change 

$22,548 0 -$22,548

PROGRAM DESCRIPTION

The Supported Employment (SE) State Grants program assists States in developing 

collaborative programs with appropriate public and private non-profit organizations to provide 

supported employment services for individuals with the most significant disabilities. More 

specifically, the program provides formula-based supplemental funding to State vocational 

rehabilitation (VR) agencies to assist VR consumers with the most significant disabilities in 

achieving the employment outcome of supported employment. Section 7(38) of the 

Rehabilitation Act defines “supported employment” as competitive integrated employment, 

including customized employment, or employment in an integrated work setting in which an 

individual with a most significant disability, including a youth with a most significant disability, is 

working on a short-term basis toward competitive integrated employment; and that is 

individualized and customized, consistent with the individual’s unique strengths, abilities, 

interests, and informed choice, including with ongoing support services for individuals with the 

most significant disabilities.

Supported employment uses a “place-train” model in which individuals with the most significant 

disabilities are placed in a job and provided intensive services and supports. These services are 

typically provided by a job coach in conjunction with supports provided by the employer to train 

the individual on the job site, followed by extended services after the individual’s ability to 

perform the job with support has stabilized. These services and support enable individuals with 

the most significant disabilities who, because of the nature and severity of their disability, need 

ongoing support to engage in and maintain competitive integrated employment.

An individual’s potential for supported employment must be considered as part of the 

assessment to determine eligibility for the Title I VR State Grants program. VR funds are used 

to pay the costs associated with assessment and the determination of eligibility, as well as other 

needed VR services prior to placement in supported employment. Ongoing services are 

provided by the VR agency, using funds under the Supported Employment program and/or the 

VR program, from the time of job placement until the transition to extended services, and 

thereafter by one or more extended services providers. Amendments to Title VI of the 

Rehabilitation Act made by the Workforce Innovation and Opportunity Act (WIOA) extended the 

time frame for the provision of supported employment services from 18 months to 24 months. A 

State VR agency may support an individual’s supported employment services solely with VR 
REHABILITATION SERVICES

Supported employment State grants

I-44

State Grant funds, or it may support these services in whole or in part with funds under the SE 

State Grants program.

State VR agencies must demonstrate evidence of their efforts to identify and make 

arrangements with other public or nonprofit agencies or organizations within the State, 

employers, natural supports, and other entities with respect to the provision of extended 

services. State VR agencies must make extended services available to youth with the most 

significant disabilities with funds available under the SE program, based upon the individual 

needs of the youth for a period not to exceed 4 years. Furthermore, Section 604(b)(2) of the 

Rehabilitation Act permits VR agencies to use VR program funds to pay for extended services 

for a period not to exceed 4 years to youth with the most significant disabilities who have 

received supported employment services. Extended services are those services provided to 

individuals with the most significant disabilities by a State agency, a private non-profit 

organization, employer, or any other appropriate resource once an individual has concluded 

services from the State VR agency. State VR agencies were previously prohibited from using 

the Federal funds received under the VR and SE programs for extended services. State VR 

agencies are still prohibited from providing extended services to individuals with the most 

significant disabilities who are not youth with significant disabilities using SE or VR program 

funds.

In addition, States are required to use one-half of their SE program funding allotment to provide 

supported employment and extended services to youth with the most significant disabilities and 

to provide a match of 10 percent for the SE allotment portion used to serve such youth.

Supported employment funds are distributed on the basis of population, using the most recent 

estimates from the U.S. Census Bureau, with no State receiving less than $300,000, or onethird of 1 percent of the sums appropriated, whichever is greater. The minimum allotment for 

territories remains one-eighth of 1 percent of the appropriation.

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

Fiscal Year (dollars in thousands)

2015 .....................................................................$27,548

2016 .......................................................................27,548

2017 .......................................................................27,548

2018 .......................................................................22,548

2019 .......................................................................22,548
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FY 2020 BUDGET REQUEST

No funds are requested for the SE State Grants program. The Administration recognizes that 

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

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

because supported employment is now an integral part of the VR State Grants program, the 

Administration believes that there is no longer a need for a separate funding stream to ensure 

the provision of such services. The proposed elimination would reduce unnecessary 

administrative burden and streamline program administration at the Federal and State levels, 

allowing State VR agencies to continue to provide supported employment services in fiscal year 

2020 to roughly the same number of individuals as they did under the two separate authorities. 

However, maintaining these levels will require State VR agencies to use an increased portion of 

their VR State grant allocation to provide supported employment services or seek additional 

support from State and local resources.

The SE State Grants program was first authorized under the Rehabilitation Act Amendments of 

1986 to provide supplemental grants to assist States in developing collaborative programs with 

public agencies and private nonprofit organizations for training and time-limited postemployment services for individuals with the most severe disabilities. At that time, supported 

employment was a new promising practice in employing individuals who traditionally would not 

have achieved employment in the integrated labor market. Initially, many rehabilitation 

professionals were skeptical about its feasibility and concerned about the potential costs. As a 

supplemental source of dedicated funds, the SE State grant program was designed to provide 

an incentive for State VR agencies to provide supported employment services. State VR 

agencies now recognize supported employment as a viable employment option for individuals 

with the most significant disabilities, and an individual's potential for supported employment 

must be considered as part of the assessment to determine eligibility for the Title I VR State 

Grants program. Consequently, States no longer require such an incentive, as demonstrated by 

the fact that in fiscal year 2017, State agencies spent nearly $183 million in VR State grant 

funds on supported employment services.

In addition, recent amendments to Title VI of the Rehabilitation Act by WIOA made changes to 

the SE Grants program that have negatively affected the provision of supported employment 

services and significantly increased the Federal and State cost and burden of administering the 

program. More specifically, States are now required to reserve and expend one-half of their SE 

program allotment to provide supported employment and extended services to youth with the 

most significant disabilities and to provide a non-Federal share of 10 percent to match the 

reserved funds. 

Many States have been slow to implement these new requirements, resulting in the lapse of 

funds. For example, in fiscal year 2018 several States did not provide any matching funds and 

one State and one outlying area relinquished their entire annual SE awards. Of those States 

that did not provide any matching funds for their SE allotments, one State did not expend any of 

its fiscal year 2018 funds and did not relinquish those funds during reallotment for use by other 

States. In addition, one State that requested and received additional funds in reallotment did not 

expend or match any of its SE funds and two States improperly expended their full allotments

without providing the required match. 
REHABILITATION SERVICES

Supported employment State grants

I-46

As a result, over $1 million of Federal SE fiscal year 2018 funds were left unexpended by the 

States that did not provide any matching funds. This data does not include agencies that may 

have only partially matched their award, already spent funds they provided no match for, or any 

SE funds that should have been relinquished based on the State’s Standard Financial Report.

Funds that are not expended or relinquished for reallotment are lost to the program and return 

to the Treasury. 

The WIOA requirements have also significantly increased the Federal and State cost and 

burden of administering the program because they essentially require the administration of a 

second formula grant that requires duplicative efforts on the part of State VR agencies, including 

separate tracking of financial data, different matching requirements, and separate accounts for 

drawing down funds. These requirements also increase burden at the Federal level, including 

additional monitoring and technical assistance efforts.

Under the Administration’s proposal, the Department would monitor the provision of supported 

employment services under the VR State Grants program to ensure that State agencies invest 

appropriate levels of their VR resources in supported employment and to provide technical 

assistance where needed.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2018 footnote2019 footnote2020 footnote

Individuals with a supported 

employment IPE goal when they 

exited the program 45,500 45,500 0

Employment outcomes: 25,000125,000

1

0

Supported employment outcomes 18,100218,100

2

0

Employment without supports in an 

integrated setting 6,8603 6,8603 0

Other employment outcomes 40440

4

0

Minority outreach $275 $225 0

NOTE: Estimates are based on actual FY 2017 data from the RSA-911 Case Service Report.

1 Includes employment outcomes for all VR consumers who had a supported employment goal at exit. 2 Of the individuals who had a supported employment goal at exit, the number who were employed in an integrated 

setting and receiving ongoing support services.

3 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program but who were not receiving ongoing support services at exit. 4 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program who were either self-employed or employed in a Business Enterprise 

Program.
REHABILITATION SERVICES

Supported employment State grants

I-47

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

cumulative effect of the resources provided for this program and the VR State Grants program

in previous years, as well as the resources and efforts invested by individuals served by these 

programs.

A State VR agency may support an individual’s supported employment services solely with VR 

State Grant funds, or in whole or in part with funds under the SE State Grants program, 

therefore, data reported for these measures include outcomes for individuals with a supported 

employment goal/outcome, regardless of whether such services were paid from funds under the 

VR State Grants program or the SE State Grants program. Thus, while the measures provide 

information on the results of VR State agencies efforts in assisting individuals with significant 

disabilities to obtain supported employment outcomes, the measures cannot be used to assess 

the performance of the Supported Employment State Grants program, especially since most of 

the funds expended for these individuals are VR State Grant funds. The Department will 

continue to assess the outcomes of individuals receiving supported employment services 

through the VR State Grants program (i.e., competitive employment outcomes and earnings) in 

future years.

As discussed in the performance section of the request for the VR State Grants program, States 

will report performance data required by WIOA to RSA on a quarterly basis for the July to June 

program year (PY), rather than the annual fiscal year cycle (i.e., October to September) as it 

has done in the past. First quarter PY 2017 data were reported to the Department on November 

15, 2017 for the period July 1, 2017, through September 30, 2017.

The transition to the new reporting requirements limits the usefulness of prior year data in 

making projections for fiscal years 2018, 2019, and 2020. The data collected under the RSA911-16 follow new WIOA definitions thus making most comparisons to prior years invalid. The 

fiscal year 2017 performance information provided below is based on data reported for 

individuals whose case service records were closed during the first 9 months of the fiscal year 

(i.e., October 1, 2016 through June 30, 2017) after receiving services from the VR State 

agency. Performance data for 2018 will be reported quarterly by States based on the program 

year (i.e., July 1, 2018 to June 30, 2019). Data for the 4th quarter of PY 2018 (i.e., April 1, 2019 

through June 30, 2019) are due on August 15, 2019.

Targets for 2020 are not included because funding for this program is proposed for elimination.
REHABILITATION SERVICES

Supported employment State grants

I-48

Goal: Individuals with significant disabilities with a goal of supported employment will 

achieve high quality employment.

Objective: Ensure that individuals with significant disabilities with a supported employment goal 

achieve high quality employment.

Measure: Of those individuals with significant disabilities who had a supported employment 

goal and achieved an employment outcome, the percentage who obtained competitive 

employment, including individuals who receive supported employment services funded under 

the VR State Grants program and/or the SE State Grants program.

Year Target Actual

2015 95% 95%

2016 95 95

2017 95 97

2018 96

2019 96

Additional information: Individuals with a supported employment goal who achieve an 

employment outcome may be working in competitive integrated employment (employment at 

least at the minimum wage in an integrated setting) or may be working in an integrated setting 

toward competitive employment at or above the minimum wage. 

Measure: Average weekly earnings for individuals with significant disabilities who achieved a 

supported employment outcome.

Year Target Actual

2015 $208 $215

2016 208 219

2017 210 226

2018 215

2019 215

Additional information: Performance data for this measure are calculated by dividing the 

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. Unlike previous years, the data reported for this measure in 2017 include data on all 

individuals who obtained a supported employment outcome with earnings, and do not exclude 

individuals served by State VR agencies for the blind. As a result, performance data are not 

comparable to previous years. The average weekly earnings calculation for 2017 also does not 

include data for Guam, the Commonwealth of the Northern Mariana Islands, or the Virgin 

Islands.
REHABILITATION SERVICES

Supported employment State grants

I-49

Efficiency Measure

Objective: Ensure that State VR agencies effectively use Supported Employment Grant funds 

to achieve supported employment outcomes.

Measure: Percentage of State VR agencies that demonstrate at least 30 supported 

employment outcomes per $100,000 received in SE State Grant funds.

Year Target Actual

2015 75% 65%

2016 75 73

2017 75 67

2018 70

2019 70

Additional information: This measure includes the 50 States, the District of Columbia and 

Puerto Rico, but excludes the four territories because they receive less than $100,000 in SE 

State Grant funds. 

The minimum State allotment (including the District of Columbia and Puerto Rico) under the SE

State Grants distribution formula is $300,000. So, for example, a minimum allotment for a State 

whose final grant was $300,000 would need a minimum of 90 supported employment outcomes 

to pass this measure. Because the cost of services for individuals with a supported employment 

outcome is supported through both the VR State Grants program and the SE State Grants

program, this measure cannot be used to assess the impact of the performance of the SE State 

Grants program.
REHABILITATION SERVICES

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Independent living services for older blind individuals

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2020 Authorization: $39,141

Budget Authority:

2019 2020 Change 

$33,317 $33,317 0

PROGRAM DESCRIPTION

The Independent Living Services for Older Individuals Who Are Blind (ILOIB) program supports 

services to assist individuals aged 55 or older who have severe visual impairment making 

competitive employment extremely difficult to obtain, but for whom independent living goals are 

feasible. Funds are used to provide independent living services, conduct activities that will 

improve or expand services for these individuals, and conduct activities to improve public 

understanding of the problems of these individuals. ILOIB services are designed to help eligible 

persons adjust to their blindness by increasing their ability to care for their individual needs.

Grantees are State Vocational Rehabilitation (VR) agencies for persons who are blind and 

visually impaired or, in States with no separate agency for persons who are blind, State 

combined VR agencies. States participating in the Services for Older Individuals Who Are Blind 

program must match 10 percent of their grant with non-Federal cash or in kind resources in the 

year for which the Federal funds are appropriated. Awards are distributed to States according to 

a formula based on the population of individuals who are 55 years of age or older (using the 

most recent estimates from the U.S. Census Bureau). The minimum allotment for each of the 

50 States, D.C., and Puerto Rico is $225,000, with each of the outlying areas receiving a 

minimum allotment of $40,000.

Independent living services are typically provided through contracts with local providers

administered by State vocational rehabilitation (VR) agencies. Services most frequently 

provided to program participants through the ILOIB program include technology aids and 

devices (58 percent), daily living skills (53 percent) and low vision assessments (35 percent). 

These services allow older individuals who are blind or severely visually impaired to be more 

independent at home and in the community. Trained program personnel are knowledgeable 

about blindness and other visual impairments, as well as the needs of older individuals with 

such impairments, including adaptive strategies that can assist these individuals to adjust to 

their impairments and increase their ability to function more independently. 

The Department also reserves 1.8 percent of the funds appropriated to the ILOIB program, 

consistent with the requirements of WIOA, to provide training and technical assistance to

Designated State Agencies or other providers of ILOIB services that receive ILOIB program 

funds.
REHABILITATION SERVICES

Independent living for older blind individuals

I-51

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2015 .....................................................................$33,317

2016 .......................................................................33,317

2017 .......................................................................33,317

2018 .......................................................................33,317

2019 .......................................................................33,317

FY 2020 BUDGET REQUEST

For fiscal year 2020, the Administration requests $33.3 million for the ILOIB program, the same 

as the fiscal year 2019 appropriation. These funds will assist States in meeting the need for 

independent living services by older individuals who are blind or severely visually impaired. The 

Department would use nearly $600,000 to provide training and technical assistance to the ILOIB 

program and its service providers.

In 2017, 56,849 individuals received services under the ILOIB program, over half of whom were 

over 80 years of age and about 82 percent of whom were still living in a private residence.

Approximately 59 percent of the individuals served in fiscal year 2017 were either legally blind 

or totally blind, and 20 percent also had some degree of hearing impairment. Macular 

degeneration continues to be the most commonly reported eye condition, followed by glaucoma

and diabetic retinopathy.

The prevalence of disability increases with age, and the occurrence of a sensory disability is 

more than six times greater among older adults than working-age people. Persons age 55 or 

older, the target population of this program, are projected to comprise a larger share of the 

population over the next decade and beyond. According to the U.S. Census Bureau’s 2016

American Community Survey (1-Year Estimates), 6.6 percent of individuals 65 and older (about 

3.2 million people) have a vision-related disability. In addition, the percentage of individuals who 

have a disability that affects their independent living status (including vision-related disabilities) 

increases with age, with a dramatic increase for individuals in the 75 years and over category, 

where 24.8 percent report having a disability that affects their independent living status.

In fiscal year 2020, the Department will reserve approximately $600,000 (1.8 percent of the 

funds appropriated for the ILOIB program) to support training and technical assistance, as 

required by the authoring statute. In fiscal year 2015, the National Research and Training 

Center on Blindness and Low Vision (NRTC) at Mississippi State University was awarded the 

training and technical assistance grant for older individuals who are blind. (See 

https://www.blind.msstate.edu/research/current-research/oib.php). NRTC activities are designed 

to improve program and consumer outcomes and to enhance service providers’ knowledge and 

skills in the areas of best practice, community outreach, budget management, and data 

collection. In fiscal year 2020, the Department plans to hold a new competition for a 5- year 

grant award to support training and technical assistance.
REHABILITATION SERVICES

Independent living for older blind individuals

I-52

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures: 2018 2019 2020

Number of Grantees 56 56 56

Minimum State award $225 $225 $225

Number of States at minimum 17 17 17

Average State award $626 $620 $620

Minority outreach 0 1 $333 $333

Training and technical assistance $600 $600 $600

1 The Rehabilitation Act allows the RSA Commissioner flexibility in determining how it will meet the 1 percent setaside for Minority Outreach activities required under Section 21 of the Rehabilitation Act. In fiscal year 2018, no funds 

were used from this program to meet this requirement because the Department met the requirement through the use 

of available funds under the Demonstration and Training Programs. 

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, those requested in fiscal year 

2020 and future years, and the resources and efforts invested by individuals 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.
REHABILITATION SERVICES

Independent living for older blind individuals

I-53

Measure: The percentage of Independent Living Older Blind program consumers who have 

access to previously unavailable assistive technology aids and devices.

Year Target Actual

2015 56% 57%

2016 56 61

2017 57 58

2018 57

2019 58

2020 58

Additional information: In fiscal year 2016, the number of consumers who received assistive 

technology increased, and the total number of Older Blind program consumers decreased, 

resulting in a jump in performance as compared to fiscal year 2015. However, this increase was 

not sustained in fiscal year 2017. Data for 2018 are expected by summer of 2019. 

Measure: The percentage of Independent Living Older Blind program consumers who report an 

improvement in daily living skills.

Year Target Actual

2015 61% 60%

2016 61 61

2017 61 60

2018 61

2019 61

2020 61

Additional information: Daily living skills include activities such as bathing, moving around the 

home, getting out of bed or a chair, and eating a meal. State agencies collect and provide this 

data in their annual program reports. Data for 2018 are expected by summer 2019. Because of 

concerns about the subjectivity of this measure and the difficulty in isolating improvement on the 

basis of one of a number of services that may be received, the Department is considering 

alternative methods for assessing the functional improvement of consumers receiving services 

under the ILOIB that will not increase the overall data collection burden for grantees.
I-54

Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2020 Authorization: 0 1

Budget Authority: 

2019 2020 Change

$13,500 $10,336 -$3,164

________________ 

1 The GEPA extension expired September 30, 2004; continued funding is proposed for this program in FY 2020 through 

appropriations language.

PROGRAM DESCRIPTION

The Helen Keller National Center for Deaf-Blind Youths and Adults (HKNC) was created by Congress in 

1967 and operates under the auspices of Helen Keller Services. The HKNC provides services on a 

national basis to youth and adults who are deaf-blind, their families, and service providers through onand off-campus services, professional learning, and information on combined vision and hearing loss. 

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.

HKNC provides direct services through a residential training facility at its national headquarters center 

(Center) located in Sands Point, New York, where deaf-blind individuals receive intensive specialized 

services. The Center provides comprehensive services for individuals with deaf-blindness to enhance 

their potential for employment and help them live independently in their home communities. The Center’s 

residential programs provide consumers with an array of services, and supports, including adaptive skills 

training to help them achieve their vocational and independent living goals. The Center’s programs 

emphasize a number of areas such as enhanced mobility; improved and accessible communication 

(including the use of adaptive technology); constructive participation in home and community settings; 

leadership and advocacy training through mentoring, ongoing social and professional opportunities, and 

employment.

HKNC also provides services through a network of 10 regional field offices staffed by 11 regional 

representatives and one associate regional representative. Through this network, HKNC provides

assistance to deaf-blind individuals and their families as well as technical assistance to local service 

providers. The regional network offices provide counseling, information, transition assistance, and 

referral services for individuals who are deaf-blind and their families to assist them to achieve successful 

participation in their community and employment. Regional representatives provide a wide variety of 

services for individuals who are deaf-blind in their home communities, including training for State and 

local service agency staff, general technical assistance, program assessment, community advocacy, and 

assistance to vocational rehabilitation (VR) counselors, mental health workers, special education 

personnel, and deaf-blind consumers with developing individualized service plans. Regional 

representatives also assist clients who have received training at the Center with making the transition 

back to their home community. 
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Regional representatives collaborate with States to increase local capacity in the areas of implementing 

support service provider (SSP) programs, professional development training for VR and blind/visually 

impaired counselors, developing VR case sharing models, identifying deaf-blind leaders for 

representation on task forces/advisory councils and program planning/training, developing online and 

webinar training, and expanding the vocational access service provider model.

The HKNC Community Services Program (CSP), a model collaboration between the Center and the New 

York State Commission for the Blind (NYSCB), provides comprehensive rehabilitation, vocational, and 

support services to eligible persons who are deaf-blind in their homes, worksites and communities. CSP 

is staffed by credentialed professionals in the fields of blindness and deafness including orientation and 

mobility specialists, low vision specialists, vision rehabilitation teachers, and vocational specialists. All 

CSP staff are proficient in American Sign Language and other alternative modes of communication.

HKNC also provides professional development, training and technical assistance, and consultation to 

other organizations, programs, and providers serving individuals who are deaf-blind. Through its 

Information, Research and Professional Development (IRPD) department, HKNC provides technical 

knowledge, expertise, training, and services to its partners across the United States. The IRPD 

department offers on-campus workshops and seminars in disciplines such as train-the-trainer seminars 

for adaptive technology instructors working to support the National Deaf-Blind Equipment Distribution 

Program, SSP services, and training for VR counselors. In collaboration with personnel preparation 

programs and research projects located at universities throughout the country, IRPD staff work to identify 

effective practices for working with youth and adults who are deaf-blind and disseminate these best 

practices nationally via professional training initiatives in collaboration with HKNC direct services and 

field service staff. In addition, HKNC has developed a Deaf-Blind National Community of Practice, a 52-

member collaborative of professional organizations working together to improve the quality of services to 

individuals who are deaf-blind through learning, research and practice.

In fiscal year 2018, the Center offered three summer programs that focused on the needs and goals of 

transitioning youth who are deaf-blind. At the end of these programs, recommendations are provided to 

the student’s school in order to continue vocational planning and support the development of an 

individualized plan for employment goals, as appropriate. Brief descriptions of these programs are 

provided below.

• Summer Youth Vocational Program – This 6-week program offers young adults their first paid work 

experience with an exploration into how strategies for communication, independent living, mobility, 

self-advocacy, and vocational readiness can foster their independence and success at work. 

• Young Adult Summer Program (YASP) – This 2-week program offers transition-age students who are

deaf-blind and completing their high school education the opportunity to learn about future options 

related to college, work, and apartment living, how to advocate, and to experience adult life in the 

residence and community. This program is facilitated by deaf-blind leaders who are graduates of 

HKNC.

• Comprehensive Summer Youth Assessment – This 8-week comprehensive assessment for 

transition-aged youth focuses on identifying goals for the remaining years of high school and college, 

including exploring vocational interests and identifying specific accommodations needed in college 

environments.

HKNC also offers a program called the Deaf-Blind Immersion Experience (DBIE), now in its second year,

which provides consumers who are deaf-blind with intellectual disabilities, and their support team, a 5-

day training experience that includes the consumer’s participation in work experiences that match their 

interests, gifts, and abilities.
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Sources of HKNC Revenue

For fiscal year 2018, HKNC reported total public support and revenues of $18.9 million. Funds 

appropriated directly to HKNC through the Department’s Rehabilitation Services account ($12.5 million)

made up 66 percent of its total revenue, and direct and indirect funds from other Federal sources ($2.2 

million) made up 11 percent of its total revenue. Training fees generated $1.7 million (9 percent) and 

funding from State grants and contracts amounted to $1.4 million (7 percent). HKNC received $460,000 

in donations and public support (2 percent), while other revenue generated by HKNC operations and 

investment income amounted to $670,000 (4 percent). While the Center has sought to increase other 

sources of funding, the Federal appropriation remains its primary source of support. 

For fiscal year 2018, HKNC incurred total operating expenses of $17.5 million. Because most of the 

specialized services required by this population are provided by HKNC staff, salaries and fringe benefits 

($13.2 million) account for most expenses (75 percent). Building, utilities and rent ($1.7 million) account 

for 10 percent of expenses; professional services ($964,528), 5 percent; client related services 

($655,518), 4 percent; and other operating expenses ($1 million), 6 percent. 
I-57

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2015..................................................................$9,127

2016..................................................................10,336

2017..................................................................10,336

2018..................................................................12,500

2019..................................................................13,500

FY 2020 BUDGET REQUEST

For fiscal year 2020, the Administration requests $10.3 million for the Helen Keller National Center for 

Deaf-Blind Youths and Adults (HKNC), a decrease of $3.2 million from the fiscal year 2019 appropriation

and the same as the fiscal year 2019 request. The request would provide substantial resources to 

support independent living and employment opportunities for individuals who are deaf-blind while also 

maintaining the fiscal discipline necessary to support the President’s goal of increasing support for 

national security and public safety without adding to the Federal budget deficit. 

The request would support services through HKNC’s regional offices to an estimated 1,600 individual 

consumers, 475 families, and 985 agencies and organizations while also helping to fund direct intensive 

services to approximately 63 consumers at HKNC’s residential training and rehabilitation program.

Approximately 30 percent of the funds requested would provide support to the HKNC for field services, 

community education, and professional development programs, including the activities of HKNC’s 

10 regional offices and the Information, Research, and Professional Development (IRPD) department. 

These programs help reach consumers in their home communities and assist personnel at State 

agencies and other organizations to serve or develop the capacity to serve individuals who are deaf-blind 

through training, community education, and technical assistance.

The request also would continue to support HKNC activities that promote best practices and provide 

quality information and training to individuals who are deaf-blind, their families, and professionals. To 

address the shortage of professionals qualified to meet the unique needs of individuals who are deafblind, HKNC provides training for personnel such as teachers and vocational rehabilitation (VR)

counselors, rehabilitation teachers, orientation and mobility specialists, adaptive technology instructors, 

residential support staff, support service providers (SSP), and interpreters. One of the IRPD department’s 

main objectives, for example, is to support training for professionals in conjunction with HKNC 

headquarters staff members, regional representatives, and new deaf-blind specialists and consultants 

across the country. In fiscal year 2018, the IRPD department provided or supported headquarters and 

field staff with the tools for 54 in-service and professional development opportunities in a number of 

areas, such as Haptics (i.e., a standardized system of touch signals used to convey visual and 

environmental information), emergency and disaster preparedness, using SSPs, Deaf-Blind rights, 

strategies for creating successful employment options for deaf-blind workers, and orientation and mobility 

training. Information and training materials are disseminated through customized responses to requests 

for information, short-term and onsite individualized training, topical seminars, and small-scale, 

customized training at locations throughout the United States.

PROGRAM OUTPUT MEASURES

Output measures 2018 2019 2020

Number of individuals served at headquarters: 

Number of Adult training program clients 76 65 63
I-58

Output measures 2018 2019 2020

Number recei vi ng Specialized training services:

Specialized tr aini ng ser vices: Number of Transition for high school students 20 20 20

Specialized tr aini ng ser vices: Number of Senior citizens 5 10 5

Specialized tr aini ng ser vices: N umber of Individuals with intellectual disabilities 9 36 5

Specialized tr aini ng ser vices: N umber recei vi ng Targeted skills training 3 10 3

Specialized tr aini ng ser vices: N umber recei vi ng Community Services Program 40 70 30

Number of individuals served through regional 

representatives and deaf-blind specialists: 

Number of Consumersserved through r egional r epr esentati ves 1,600 1,800 1,600

Number of Familiesser ved thr oug h regional representati ves 400 500 475

Number of Agencies/organizationsserved thr ough r egional repr esentati ves 1,150 1,280 985

f HKNC FTE staff 133 133 125

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, those requested in fiscal year 2020 and future years, and the 

resources and efforts invested by individuals 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.

Measure: The percentage of: (1) training goals set and achieved by adult consumers (both on and off 

campus); (2) adult consumers seeking employment who are placed in employment both on and off 

campus); and (3) adult consumers seeking to maintain their ability to live independently or move to less 

restrictive settings who achieve their goals.

Year

Target

# of Adult 

Consumers

Actual

# of Adult 

Consumers

Target

% of 

Training 

goals met

Actual

% of 

Training 

goals met

Target

% Placed 

in Employment

Actual

% Placed 

in Employment

Target

% in Less 

Restrictive 

Settings

Actual

% in Less 

Restrictive 

Settings

2015 71 55/30 95% 93% 48% 41/56% 87% 82%

2016 75 63/29 95 91 48 53/50 86 86

2017 75 60/36 95 89 48 47/78 86 87

2018 75 76/40 95 90 48 50/71 86 91

2019 75 95 48 86

2020 80 95 60 86

Additional information: In fiscal year 2018, HKNC served 76 consumers in the on-campus rehabilitation 

training programs and 40 additional off-campus consumers through its Community Services Program.

HKNC points out that the number of consumers served may fluctuate from year to year due to factors 

beyond the control of the Center. For example, the length of time an individual participates in training 

may vary anywhere from two weeks to beyond one year due to differing levels of training intensity and 

individual needs.
I-59

The “less restrictive settings” measure refers to consumers who move from settings such as living with 

parents or guardians, assisted living settings, and nursing homes to more independent living 

arrangements such as their own home or apartment or group homes. In addition, this measure includes 

participants who achieved a less restrictive living environment by successfully acquiring skills in two or 

more core areas, resulting in the ability to maintain a home and more fully participate in community life. In 

2018, 91 percent of consumers moved into, or remained in, less restrictive settings, and the target set for 

the fiscal year was met.

The Center evaluates the progress of consumers in achieving the goals stated in their individualized 

training plans (ITPs). This measure represents the percent of adult consumers served by the HKNC who 

successfully achieved identified training goals during the program year. The consumers and their 

instructors mutually develop these instructional objectives. To ensure that the measure is an accurate 

reflection of the Center’s performance, the Department and HKNC have agreed that it should only 

include the outcomes for adult consumers enrolled in the long-term formal program and the targeted 

skills training program. Consumers in the short-term programs for high school students are not included 

in the calculation. In 2018, 90 percent of training goals were met by adult consumers; however, the target 

(95 percent) was not met.

In fiscal year 2018, 50 percent of consumers in on-campus programs and 71 percent of off-campus 

consumers with an employment goal were placed in employment, and the target was met.
I-60

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 

2015 265 551

2016 300 626

2017 500 472

2018 600 573

2019 600

2020 600

Additional information: In fiscal year 2018, HKNC’s regional offices referred 573 individuals to State or 

local agencies or service providers, which represents an increase from previous years and falls slightly 

short of the target. These referrals help deaf-blind consumers access resources within their home 

community that improve their ability to function independently.

Measure: The percentage of consumers who participated in services or programs (other than HKNC) as 

a result of receiving a referral from HKNC’s regional offices.

Year Target Actual 

2015 68% 66%

2016 66 75

2017 66 94

2018 75 94

2019 75

2020 75

Additional information: This measure provides information on the activities of the field services 

programs, including the 11 regional representatives and 1 regional representative associate. Regional 

representatives serve individuals who are deaf-blind in their home communities, which often lack other 

service providers that are trained and equipped to meet the unique and multi-faceted needs of these 

consumers. The referrals provided by regional representatives often are the gateway to finding 

appropriate and individualized supports from various agencies and organizations. The intensity of 

consumers’ interactions with HKNC field staff varies significantly. Some consumers interact with staff 

only once via telecommunications, while others benefit from repeated in-person visits for a variety of 

services, such as skills assessments, counseling, and advocacy.

The year-to-year variation in performance on this measure makes it difficult to set an appropriate annual 

target. Based on the data trend, a target of 75 percent has been set for fiscal year 2020. However, this 

target may be adjusted based on 2019 performance.

Objective: HKNC will assist State vocational rehabilitation (VR) and employment programs in increasing 

employment outcomes for individuals who are deaf-blind.

Measure: The number of referrals by HKNC’s regional offices to VR or related employment programs.

Year Target Actual 

2015 92 65
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Year Target Actual 

2016 65 41

2017 65 33

2018 65 71

2019 65

2020 65

Additional information: HKNC plays an important role in connecting individuals who are deaf-blind to 

VR agencies. Many VR agencies lack sufficient numbers of personnel trained in providing services to 

consumers who are deaf-blind. HKNC field staff frequently facilitate interactions between consumers and 

VR agencies, train VR agency staff about the specialized needs of these clients, and assist consumers 

who are returning to their State’s VR system after attending intensive training at HKNC headquarters.

HKNC hired three new regional representatives in fiscal year 2018, resulting in a significant increase in 

the number of referrals. In addition, the number of referrals to VR agencies can also fluctuate depending 

on whether the consumers served by HKNC field staff have vocational goals. 

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 

2015 32% 46%

2016 40 45

2017 40 39

2018 45 41

2019 45

2020 45

Additional information: For the measure on the percentage of individuals who achieved employment 

outcomes, the numerator is the number of clients served by HKNC regional representatives who 

achieved employment outcomes in which HKNC’s regional offices played a collaborative role providing 

training, advocacy and/or support to the consumer or job training agency. The denominator is the total 

number of clients served by HKNC regional representatives who achieved employment outcomes.