1Department of Education

REHABILITATION SERVICES AND DISABILITY RESEARCH

Fiscal Year 2017 Budget Request

CONTENTS

Page

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

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

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

Summary of Changes .............................................................................................................. I-5

Authorizing Legislation............................................................................................................. I-6

Appropriations History.............................................................................................................. I-7

Significant Items in FY 2016 Appropriations Reports................................................................ I-8

Summary of Request ............................................................................................................... I-9

Activities:

Vocational rehabilitation State grants .............................................................................I-12

Client assistance State grants ........................................................................................I-33

Training ..........................................................................................................................I-39

Demonstration and training programs.............................................................................I-47

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

Supported employment State grants ..............................................................................I-56

Independent living services for older blind individuals ....................................................I-63

Helen Keller National Center..........................................................................................I-68

State Tables*

*State tables reflecting final 2015 allocations and 2016 and 2017 estimates are posted on the Department’s Web 

page at: http://www2.ed.gov/about/overview/budget/statetables/index.html
Appropriations Language

REHABILITATION SERVICES [AND DISABILITY RESEARCH]1

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

Helen Keller National Center Act, [$3,529,605,000]$3,541,389,000, of which [$3,391,770,000]

$3,398,554,000 shall be for grants for vocational rehabilitation services under Title I of the 

Rehabilitation Act:

2

 Provided further, That the Secretary may use amounts provided in this Act 

that remain available subsequent to the reallotment of funds to States pursuant to section 

110(b) of the Rehabilitation Act for innovative activities aimed at improving the outcomes of 

individuals with disabilities as defined in section 7(20)(B) of the Rehabilitation Act, including 

activities aimed at improving the education and post-school outcomes of children receiving 

Supplemental Security Income (“SSI”) and their families that may result in long-term 

improvement in the SSI child recipient's economic status and self-sufficiency:3

 Provided further, 

That States may award subgrants for a portion of the funds to other public and private, nonprofit entities:4 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, [2017]2018:

5 (Department of Education Appropriations Act, 2016)

NOTE: 

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

Provisions and Changes document which follows the appropriation language.

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REHABILITATION SERVICES

Analysis of Language Provisions and Changes

Language Provision Explanation

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

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

(WIOA) transfers several programs from the 

Department’s Office of Special Education and 

Rehabilitative Services to the Administration 

for Community Living in the Department of 

Health and Human Services (HHS), including 

the National Institute on Disability,

Independent Living, and Rehabilitation 

Research (NIDILRR), as renamed by WIOA.

Consequently, the fiscal year 2017 request for 

this account does not include funds for 

NIDILRR. To reflect this change, the 

Administration’s request would eliminate the 

reference to “Disability Research” from the 

title of this account. 

2 ...of which [$3,391,770,000] 

$3,398,554,000 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.

3 Provided further, That the Secretary may 

use amounts provided in this Act that remain 

available subsequent to the reallotment of 

funds to States pursuant to section 110(b) of 

the Rehabilitation Act for innovative activities 

aimed at improving the outcomes of 

individuals with disabilities as defined in 

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

including activities aimed at improving the 

education and post-school outcomes of 

children receiving Supplemental Security 

Income (SSI) and their families that may 

result in long-term improvement in the SSI 

child recipient's economic status and selfsufficiency:

This language would allow the Secretary to 

use amounts that remain available 

subsequent to the reallotment of funds to 

States under the VR State Grants program for 

innovative activities designed to improve the 

outcomes of individuals with disabilities, 

including, if needed, activities to improve the 

outcomes of children receiving SSI and their 

families under the PROMISE pilot program. 

The inclusion of this language would ensure 

that all unused funds would remain available 

to improve the outcomes of individuals with 

disabilities, instead of being returned to the 

Treasury.

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REHABILITATION SERVICES

Analysis of Language Provisions and Changes

Language Provision Explanation

4 Provided further, That States may award 

subgrants for a portion of the funds to other 

public and private, non-profit entities:

This language would permit States to use a 

portion of their project funds to make 

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

activities aimed at improving the outcomes of 

individuals with disabilities.

5 Provided further, That any funds made 

available subsequent to reallotment for 

innovative activities aimed at improving the 

outcomes of individuals with disabilities shall 

remain available until September 30, 

[2017]2018:

This language would permit the funds made 

available subsequent to reallotment of VR 

State Grant funds for activities aimed at 

improving the outcomes of individuals with 

disabilities to remain available for 2 years. 

I-3
REHABILITATION SERVICES

Appropriation, Adjustments and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2015 2016 2017 Footnotes

Discretionary:

Discretionar y: Appropriation .................................................. $374,779 $137,835 $142,835

Mandatory:

Mandator y: Appropriation................................................... 3,335,074 3,391,770 3,398,554

Mandator y Sequester (P.L. 112-25).................................. -243,460 -230,640 0

 Total, adjusted mandatory appropriation...... 3,091,614 3,161,130 3,398,554

 Total, discretionary and adjusted 

mandatory appropriation.................................... 3,446,393 3,298,965 3,541,389

I-4
REHABILITATION SERVICES AND DISABILITY RESEARCH

Summary of Changes

(dollars in thousands)

2016............................................................................................ $3,529,6051

2017............................................................................................... 3,541,389

Net change................................................................ +11,784

1 Excludes 6.8 percent sequester reduction of mandatory VR State Grant funds pursuant to the Budget Control 

Act (P.L. 112-25)

Increases: 2016 base

Change 

from base

Program:

Increase in funding for Vocational Rehabilitation (VR) State 

grants, consistent with the inflation increase specified in the 

authorizing statute. $3,391,770 +$6,784

Increase in funding for Supported Employment State grants to 

help State agencies in meeting the new challenges and 

opportunities resulting from program changes made by WIOA. 

27,548 +3,000

Increase in funding for Independent Living Services for Older 

Individuals who are Blind 33,317 +2,000

 Subtotal, increases +11,784

Net change +11,784

I-5
REHABILITATION SERVICES

Authorizing Legislation

(dollars in thousands)

Activity

2016

Authorized

footnote

2016

Estimate

footnote

2017

Authorized

footnote

2017

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B-110 and 111) $3,391,770 1 $3,118,130 $3,398,5542 $3,355,454

VR Grants for Indians (RA-I-C) (1, 3) 43,000 (2,3) 43,100

Client assistance State grants (RA-I-112) 12,927 13,000 13,195 13,000

Supported employment State grants (RA-VI) 29,676 27,548 30,292 30,548

Training (RA-III-302) 36,257 30,188 37,009 30,188

Demonstration and training programs (RA-III-303) 6,244 5,796 6,373 5,796

Services for older blind individuals (RA-VII-2) 35,890 33,317 36,635 35,317

Protection and advocacy of individual rights (RA-V-509) 19,013 17,650 19,408 17,650

Helen Keller National Center for Deaf-Blind Youths and Adults 

(HKNCA) 0 4 10,336 04 10,336

Total definite authorization 0 0

Total discretionary appropriation 137,835 142,835

Total mandatory appropriation 3,391,770 3,398,554

Total appropriation 3,529,605 3,541,389

Portion of request not authorized 10,336

Total appropriation including mandatory decrease 3,298,965

_______________________________

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 2016, this amount 

was $3,391,770 thousand. 2 The authorizing legislation specifies that the amount to be appropriated for a fiscal year be at least the level of the prior fiscal year increased by the 12-month 

percentage change from October to October in the CPIU. In FY 2017, this amount is $3,398,554 thousand. 3 The Rehabilitation Act requires that 1.0 percent to 1.5 percent of the appropriation for Vocational Rehabilitation State grants be set aside for Grants to

Indians. 4 The GEPA extension expired September 30, 2004; the program is authorized in FY 2016 through appropriations language. Continued funding is proposed 

for this program in FY 2017 under appropriations language.

I-6

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REHABILITATION SERVICES

Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation

Foot2008 3,184,263 $3,279,743 $3,286,942 3,276,768

2009 3,218,264 3,387,4431 3,379,1091 3,387,762

Recovery Act Supplemental 

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

2010 3,500,735 3,504,305 3,507,3222 3,506,861

2011 3,565,326 3,501,7663 3,542,5102 3,474,7184

2012 3,541,111 3,522,6865 3,511,7355 3,511,281

2013 3,517,710 3,511,2816 3,626,3806 3,622,925

2014 3,655,577 N/A7 3,698,1742 3,680,497

2015 3,683,335 N/A7 3,722,8538 3,709,853

2016 3,532,109 3,529,60593,487,86493,529,605

2017 3,541,389

1 The levels for the House and Senate allowances reflect action on the regular annual 2009 appropriations bill, 

which proceeded in the 110th Congress only through the House Subcommittee and the Senate Committee. 2 The levels for the Senate allowance reflects Committee action only. 3 The levels for the House allowance reflects the House-passed full-year continuing resolution. 4 The level for appropriation reflects the Department of Defense and Full-Year Continuing Appropriations Act, 

2011 (P.L. 112-10). 5 The level for the House allowance reflects an introduced bill and the level for the Senate allowance reflects 

Senate Committee action only. 6 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. 7 The House allowance is shown as N/A because there was no Subcommittee action. 8 The level for the Senate allowance reflects Senate Subcommittee action only. 9 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.

I-7
REHABILITATION SERVICES

Significant Items in FY 2016 Appropriations Reports

Vocational Rehabilitation State Grants – Supported Employment State Grants

Senate

Report: The Committee directs the Department to help ensure that State agencies

continue to invest appropriate levels of their resources in supported

employment, and particularly extended services to youth with the most 

significant disabilities, consistent with the changes in WIOA.

Response: Despite changes to the Supported Employment (SE) State Grants program in

WIOA, the Senate Appropriations Committee did not include funds for the 

program, noting that funding for the Vocational Rehabilitation (VR) State Grants

programs, which can be and is used for the same purposes, will increase by

$56,696,000 in fiscal year 2016. However, the fiscal year 2016 Appropriation

included funds for the Supported Employment State Grants program to ensure

that State agencies continue to invest appropriate levels of their resources in

supported employment, and particularly extended services to youth with the most 

significant disabilities, consistent with the changes in WIOA.

Before enactment of WIOA, State VR agencies were prohibited from using the 

Federal funds received under the VR and SE programs for extended services

and other State and local agencies and private nonprofit organizations were 

expected to support the cost of these services. Under WIOA, State VR agencies 

may now provide extended services for up to 4 years to eligible youth with the 

most significant disabilities.

I-8
Summar y of R equest

DEPARTMENT OF EDUCATION FISCAL YEAR 2017 PRESIDENT'S BUDGET

(in thousands of dollars)

Click here for accessible version 

Amount Percent

Rehabilitation Services 

1. Vocational rehabilitation State grants:

(a) Grants to States (RA Title I-A, sections 110 and 111) 1 M 3,052,454 3,118,130 3,355,454 237,324 7.61%

(b) Grants to Indians (RA Title I-C) M 39,160 43,000 43,100 100 0.23%

Subtotal 3,091,614 3,161,130 3,398,554 237,424 7.51%

Mandatory baseline M 3,335,074 3,391,770 3,398,554 6,784 0.20%

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

 3. Training (RA section 302) D 30,188 30,188 30,188 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 27,548 27,548 30,548 3,000 10.89%

 7. Independent living (RA VII):

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

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

(c) Services for older blind individuals (Chapter 2) D 33,317 33,317 35,317 2,000 6.00%

 8. Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) D 9,127 10,336 10,336 0 0.00%

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

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

Subtotal 374,779 137,835 142,835 5,000 3.63%

Total 3,466,393 3,298,965 3,541,389 242,424 7.35%

Discretionary D 374,779 137,835 142,835 5,000 3.63%

Mandatory M 3,091,614 3,161,130 3,398,554 237,424 7.51%

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

For the Vocational Rehabilitation State Grants program, the levels shown in the 2015 Appropriation column reflect the 7.3 percent sequester that went into effect October 1, 2014, and the levels shown in the 

2016 Appropriation column reflect the 6.8 percent reduction that went into effect on October 1, 2015, pursuant to the Budget Control Act of 2011 (P.L. 112-25). 

Detail may not add to totals due to rounding. 

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

Department of Education to the Department of Health and Human Services. 

2017 President's Budget

2016 Compared to 2016 Appropriation

Account, Program and Activity Appropriation

Category 

Code

2015 

Appropriation

2017 President's 

Budget

I-9
REHABILITATION SERVICES

Summary of Request

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

disabilities the support and the opportunity to acquire the skills that they need 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 Administration’s 2017 Request for the Rehabilitation Services account provides $3.5 billion 

to support comprehensive and coordinated vocational rehabilitation for individuals with 

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

older individuals who are blind to live more independently. The Rehabilitation Act was 

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

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

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

rehabilitation.

The $3.4 billion request for the Vocational Rehabilitation (VR) State Grants program includes an 

increase of $6.8 million over the fiscal year 2016 mandatory level, consistent with the 

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

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

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

development system to ensure a coordinated and streamlined workforce development system. 

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

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

prepare for, obtain, retain, or advance in high quality employment. In implementing the changes 

to Titles I and IV of WIOA, the Department’s Office of Special Education and Rehabilitative 

Services (OSERS) is working with its partners in the Federal workforce development system to 

improve employment outcomes for individuals with disabilities, particularly individuals with 

significant disabilities and youth with disabilities.

As in previous years, the 2017 Request includes appropriations language that would allow the 

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

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

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

available for Federal obligation until September 30, 2018.

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

increase of $3 million (10.9 percent) over the 2016 level to assist State agencies in meeting the 

new challenges and opportunities resulting from WIOA. WIOA made several significant 

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

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

ongoing supports to achieve competitive integrated employment. These changes will have a 

major impact on the provision of supported employment services, including increasing the 

demand and the cost of services. 

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REHABILITATION SERVICES

The Administration requests $35.3 million for the Independent Living Services for Older 

Individuals who are Blind (OIB) program for fiscal year 2017, a $2.0 million (6 percent) increase 

over the 2016 level, to assist States in meeting an anticipated increase in the demand for 

program services. Of this amount, the Department plans to reserve 1.8 percent of the funds to 

provide training and technical assistance to Designated State Agencies or other providers of 

OIB services that receive OIB program funds.

All other programs in the Rehabilitation Services account would be maintained at the 2016 level. 

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

programs.

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REHABILITATION SERVICES

Vocational rehabilitation State grants

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

(dollars in thousands)

FY 2017 Authorization: $3,398,5541

Budget Authority: 

Program 2016 footnote2017 footnoteChange

State grants $3,348,770 $3,355,454 +$6,684

Indian set-aside 43,000 43,100 +100

Total 3,391,770 2 3,398,554, +6,784

1 The Vocational Rehabilitation (VR) State Grants program was reauthorized in July 2014 by the Workforce 

Innovation and Opportunities Act of 2014 (WIOA). 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 2017 

this amount is $3,398,554 thousand. The authorizing statute also requires that not less than 1.0 percent, and not 

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

American Indians.

2 The total amount shown in the 2016 column is the mandatory amount for the VR State Grants program and 

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

reduced level for the VR State Grants program in 2016 subsequent to the 6.8 percent sequester is $3,161,129,640.

PROGRAM DESCRIPTION

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

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

the services they need to obtain competitive integrated employment. Grant funds are 

administered by VR agencies designated by each State. There are currently a total of 80 State 

VR agencies. Thirty-two (32) States operate a “combined” agency serving all disability 

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

visually impaired and a “general” agency for all other disability categories. The authorizing 

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

the percentage increase in the Consumer Price Index for Urban Consumers (CPIU) over the 

previous year.

Workforce Development System

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

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

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

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

education, and economic development programs with regional economic development 

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

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REHABILITATION SERVICES AND DISABILITY RESEARCH

Vocational rehabilitation State grants

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

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

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

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

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

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

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

receive Federal funds for the core programs, the Governor must submit a unified State plan, 

including the VR plan. After approval of the VR portion of the plan by the Commissioner of the 

Rehabilitation Services Administration (RSA), the unified State plan is subject to the approval of 

both the Secretaries of Labor and Education.

Performance Accountability 

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

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

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

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

performance indicators set forth in section 116 of WIOA. 

• The percentage of program participants who are in unsubsidized employment during the 

second quarter after exit; 

• The percentage of program participants who are in unsubsidized employment during the 

fourth quarter after exit; 

• The median earnings of program participants who are in unsubsidized employment during 

the second quarter after exit; 

• The percentage of program participants who obtain a recognized postsecondary credential, 

or a secondary school diploma or its recognized equivalent during participation in or within 

1 year after exit, if such participants have also obtained or retained employment or are in an 

education or training program leading to a recognized postsecondary credential within 1 

year of exit; 

• The percentage of program participants who, during a program year, are in an education or 

training program that leads to a recognized postsecondary credential or employment and 

who are achieving measurable skill gains toward such a credential or employment; and

• The State’s effectiveness in serving employers (to be determined by the Secretaries of 

Labor and Education by summer 2016).

Implementing Regulations

In April of 2015, the Departments of Education and Labor concurrently published five Notices of 

Proposed Rulemaking (NPRMs), one of which covers jointly administered activities (e.g., unified 

and combined state plans, performance accountability, and the one-stop system). The other 

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REHABILITATION SERVICES AND DISABILITY RESEARCH

Vocational rehabilitation State grants

NPRMs would implement the remaining provisions of Title I and Title III of WIOA, administered 

by the Department of Labor; Title II, administered by the Department of Education; and Title IV 

of WIOA, administered by the Department of Education. The proposed rules implementing the 

Rehabilitation Act (Title IV of WIOA) are presented in two separate NPRMs due to the number 

of programs affected. The larger of these NPRMs implements the State VR and Supported 

Employment (SE) programs and rules on the use of subminimum wages under section 511 of 

the Rehabilitation Act (Title V of WIOA). The Department received and reviewed over a 

thousand comments in response to the NPRM implementing the State VR and SE programs 

and the use of subminimum wages under section 511. 

VR Grants to States

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 with a physical or mental impairment that results in a substantial impediment to 

employment, who can benefit in terms of an employment outcome, and require VR services are 

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

through an individualized plan for employment (IPE). The program may provide a variety of 

services, such as vocational evaluation, counseling, mental and physical restoration, education, 

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

services. Priority is given to serving individuals with the most significant disabilities.

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

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

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

through September 30 of that year. The State matching requirement is 21.3 percent, except the 

State share is 50 percent for the cost of construction of a facility for community rehabilitation 

program purposes. If a State has met all matching requirements for the fiscal year in which 

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

year. States are also required to maintain the level of State expenditures made under the State 

plan from non-Federal sources at least at the level spent during the fiscal year 2 years earlier. 

Amendments made by WIOA to section 111 of the Rehabilitation Act allow the Department to 

reduce a State’s VR grant by the amount of a Maintenance of Effort (MOE) deficit from any 

previous fiscal year. Previously, only the subsequent fiscal year’s grant could be reduced and 

the Department was required to recover penalties that were discovered after the subsequent 

fiscal year through an audit disallowance. 

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

distribute funds among the States. Each State is required to reserve and use at least 15 

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

for students with disabilities provided in accordance with new section 113 of the Rehabilitation 

Act. Each State is also required to reserve and use a portion of the Federal funds received 

under the VR State Grants program for innovation and expansion activities authorized in 

section 101(a)(18).

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REHABILITATION SERVICES AND DISABILITY RESEARCH

Vocational rehabilitation State grants

The fiscal year 2015 State distributions were based on the July 1, 2013 estimates published on 

December 30, 2013. The fiscal year 2016 State distributions are based on the July 1, 2014

estimates published on December 30, 2014. The fiscal year 2017 State distributions are based 

on the July 1, 2015 estimates published in December 2015. Per capita income averages for 

fiscal year 2015 are based on Bureau of Economic Analysis revised estimates for calendar 

years 2009, 2010, and 2011 as reported by the Department of Commerce on September 25, 

2012. Per capita income averages for fiscal years 2016 and 2017 are based on Bureau of 

Economic Analysis revised estimates for calendar years 2011, 2012, and 2013 as reported by 

the Department of Commerce on September 30, 2014. 

American Indian VR Services (AIVRS)

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

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

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

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

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

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

than 2 percent of the funds set aside for AIVRS to provide training and technical assistance to 

governing bodies of Indian tribes located on Federal and State reservations. 

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

Fiscal Year (dollars in thousands) footnote

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

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

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

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

2016....................................................................3,161,130 1

1 The amounts shown for 2014, 2015, and 2016 reflect the sequester reduction for mandatory programs 

pursuant to the Budget Control Act of 2011 (P.L. 112-25). The mandatory appropriation was reduced by 7.2 percent 

in 2014, 7.3 percent in 2015, and 6.8 percent in 2016.

FY 2017 BUDGET REQUEST

The Administration requests $3.4 billion, an increase of $6.8 million over the fiscal year 2016

mandatory level to help States and Tribal governments increase the participation of individuals 

with disabilities in the workforce. Of the amount requested, $43.1 million would be set aside to 

support grants under the American Indian Vocational Rehabilitation Services (AIVRS) program. 

The Request reflects the economic adjustment specified in the authorizing statute based on the 

Consumer Price Index for all Urban Consumers (0.2 percent for fiscal year 2017).

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

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

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

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REHABILITATION SERVICES AND DISABILITY RESEARCH

Vocational rehabilitation State grants

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

report released in June 2015 (2014 data), the U.S. Bureau of Labor Statistics released results 

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

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

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

(26.0 percent versus 71.7 percent, respectively) and that only 18.4 percent of working-age 

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

were employed, 29.3 percent usually worked part time (less than 35 hours per week) compared 

to 17.3 percent of people without such disabilities. In addition, employed persons with a 

disability were more likely to be self-employed (11.1 percent) than those with no disability 

(6.2 percent). (Source: http://www.bls.gov/news.release/disabl.toc.htm.) 

The VR State Grants program is a critical component of the Federal 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 about 1 million individuals with disabilities in various phases 

of the vocational rehabilitation process within the VR system, about 94 percent of whom are 

individuals with significant disabilities. If a State VR agency cannot serve all eligible persons, it 

must first serve those individuals with the most significant disabilities under an “order of 

selection.” For fiscal year 2016, the State Plans of 37 of the 80 State VR agencies documented 

that the agency had established an order of selection, one agency more than in fiscal year 

2016. This total includes 60.7 percent of the general and combined State VR agencies and 

12.5 percent of the State VR agencies serving blind individuals. 

Opportunities and Challenges

WIOA fosters new opportunities for innovation and collaboration across Federal, State, and 

local agencies, private organizations, and employers; and promotes increased access to 

employment, education, training, and support services to assist individuals with employment 

barriers, such as individuals with disabilities and youth, to succeed in the competitive labor 

market. As a core partner of WIOA’s one-stop service delivery system, the VR program 

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

the services they need to obtain competitive integrated employment. In the 21st century global

economy, individuals with disabilities must acquire the skills they need to compete for, obtain, 

and advance in the same type of high quality jobs and high demand careers as persons without 

disabilities. 

VR agencies will a face number of challenges in developing and expanding employment

opportunities for individuals with disabilities and building their capacity to successfully carry out 

the goals of and requirements of the new workforce development system. State VR agencies 

will need to build their capacity to: 

• Provide the services and supports that individuals with disabilities will require to achieve

high quality employment in the 21st century global economy;

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• Coordinate and work effectively with their workforce partners, including employers,

education and training providers, and other entities providing services to individuals with 

disabilities; 

• Expand the knowledge and skills of VR counselors and other personnel to implement 

effective job-driven strategies that better enable employers to recruit, job match, hire, and 

retain qualified individuals with disabilities; and 

• Efficiently and effectively manage program resources, including reallocating limited 

resources to carry out new statutory and regulatory requirements.

For example, State VR agencies must invest additional resources in building and maintaining

relationships with employers, including working with employers to determine local or regional 

hiring needs, designing training programs that are responsive to those needs, and developing 

work-based learning opportunities (e.g., paid internships, apprenticeships, or on-the-jobtraining) and in training VR personnel to understand and utilize data about job trends and 

industry and occupational classification systems. 

WIOA places great emphasis on the provision of services to students and youth with disabilities

to ensure that they have meaningful opportunities to receive the training and other services they

need to achieve competitive integrated employment. In particular, WIOA amendments to the

Rehabilitation Act expand the population of students who may receive services under the VR 

program and permit a wider range of services to students who are transitioning from school to 

post-school activities. To meet these challenges, State VR agencies will need to: 

• Engage in coordinated transition planning, with various education systems, job training 

programs, Medicaid, independent living centers, housing and transportation authorities, as 

well as businesses and employers;

• Assist students to identify and pursue career pathways and employment goals that will lead 

to competitive integrated employment; and

• Provide a broad spectrum of services that will support students throughout the transition 

process, including work-based learning experiences, postsecondary education and training, 

and supported employment.

In addition, State VR agencies will need to redirect resources to provide pre-employment 

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

services; transition services for the benefit of groups of students and youth with disabilities; and 

extended services to youth with the most significant disabilities seeking supported employment. 

As a core partner of WIOA’s one-stop service delivery system, State VR agencies will also face

new administrative and resource challenges, including mandated support for one-stop system

and implementation and on-going costs associated with performance accountability (e.g., new 

data collection and reporting requirements). In addition, expansion of services under the 

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Rehabilitation Act will present new challenges in the allocation of program resources, case 

management, and the delivery of services. 

WIOA Implementation and Capacity Building

The Department has analyzed the public comments from the five NPRMs implementing WIOA 

and the associated information collection requirements and has worked with the Department of 

Labor to address joint policy issues. The final regulations will assist States in implementing the 

new WIOA provisions which the Departments anticipate will be published concurrently in June 

2016. In addition to issuing final rules, the Office of Special Education and Rehabilitative 

Services (OSERS) will be developing guidance to assist State VR agencies and its partners that 

play a role in the success of individuals with disabilities in obtaining and maintaining 

employment, including youth with disabilities transitioning from high school to postsecondary 

education and careers. 

To help meet these challenges, the Department is also directing available discretionary 

resources to assist State VR agencies in implementing new WIOA requirements and building 

their capacity to meet the employment needs of individuals with disabilities and their prospective 

employers. In fiscal years 2014 and 2015, the Rehabilitation Services Administration (RSA) 

awarded cooperative agreements under the Rehabilitation Training and the Demonstration and 

Training programs for this purpose, including five VR technical assistance and training centers 

and four model projects demonstrating promising practices in the use of career pathways to 

improve employment outcomes for individuals with disabilities. 

The Administration is also planning to leverage existing resources to meet the data 

requirements of WIOA. Included in the President’s budget request for the Department of Health 

and Human Services (HHS) is a proposal to allow other agencies, and their State partners,

access to the National Directory of New Hires, a federal database of employment and 

unemployment insurance information administered by the Office of Child Support Enforcement 

within HHS. This resource, which would be utilized at the sole discretion and option of the 

State, would provide States with an additional data collection tool to determine employment and 

wage outcomes across State lines for the purpose of reporting program performance under 

WIOA. The proposal includes language that would limit unauthorized access, use, disclosure, 

or re-disclosure of personally identifiable information; requires that the minimum data necessary 

be accessed; and satisfies the Administration’s criteria for when authority to access NDNH data 

should be considered. More information about this request, as well as the package of proposals 

allowing additional programs and agencies authority to access NDNH, can be found in the HHS 

budget request, posted at http://www.hhs.gov/about/budget/, and the A Government of the 

Future Budget chapter.

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. Without additional resources, increased costs 

coupled with new set-asides and infrastructure support will strain resources for providing direct 

services to VR consumers. Unfortunately in recent years, resources for the VR program have 

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been reduced through sequestration of mandatory programs required by the Budget Control Act 

of 2011.

Disability Innovation Fund 

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

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

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

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

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

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

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

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

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

reobligation. However, since 2009, fewer States have requested additional funds during 

reallotment. As a result, the amount of funds returned by States at the end of the fiscal year, or 

remained unobligated due to MOE penalties, has exceeded the additional funds requested 

because many States are unable to match the Federal funds.

Beginning with the fiscal year 2012 budget request, the Administration has sought authority to 

use amounts that remain available subsequent to the reallotment of funds to States under the 

VR State Grants program to conduct innovative activities aimed at improving outcomes for 

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

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

obligation.

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

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

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

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

remain available for Federal obligation for an additional 12-month period. In fiscal year 2013, 

VR funds remaining from the 2012 appropriation were used to award 5-year grants to five

States and a consortium of States for model demonstration projects (MDPs) under the 

Promoting Readiness of Minors in Social Security Income (PROMISE) program. PROMISE is a 

joint initiative with the Social Security Administration (SSA) and the Departments of Health and 

Human Services and Labor. Under the PROMISE program, States have developed

partnerships and are implementing interventions designed to improve the provision and 

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

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

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

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

evaluation will result in several products, one of which is a series of early assessment reports 

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

have provided recommendations for evaluation-related technical assistance.

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

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

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

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

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

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

placed in the treatment group and receive project services. As of January 25, 2016, 11,257

participants (85 percent of the goal) have been enrolled across the six projects and enrollment 

will continue until April 30, 2016 or earlier, if a project reaches its enrollment target. Program 

participants in the intervention group are receiving services that include paid competitive 

employment opportunities. For example, in the summer of 2015, approximately 280 youth in the 

Arkansas PROMISE project were engaged in summer employment across approximately 200 

different organizations. As of January 21, 2016, 208 Maryland PROMISE participants have

gained paid employment experiences across all five regions in Maryland. In addition, 227 family 

members and 106 youth from Wisconsin PROMISE have participated in paid community 

employment experiences. Additional information can be found on the PROMISE technical 

assistance center’s website at http://www.promisetacenter.org/.

Automatic Personalization Computing Project (FY 2014 VR Funds)

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

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

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

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

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

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

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

Computing Project (APCP) that will help to advance equal access to Web-based content and 

tools for individuals with disabilities or language barriers, and to provide supplemental awards to 

support PROMISE activities. 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. This initiative will build upon past research 

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

Research (NIDILRR) on accessible computing, including its work with the World Wide Web 

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

accessibility.

The APCP is designed as a public/private partnership that will pilot a 5-year project to improve 

outcomes for individuals with disabilities by increasing access to information and communication 

technologies through automatic personalization of needed assistive technology. Examples of 

such personalization could include font size or color, text-to-speech functionality, overall 

cognitive access (such as site simplification, or simple language), translation from one language 

to another, and volume levels of audio features. This project is creating an information 

technology infrastructure to allow users of information and communication technologies to store 

preferences in the cloud or other technology, and allow the supported Internet-capable devices 

they are using to automatically run their preferred assistive technology solutions. In addition to 

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piloting and testing the reliability of the infrastructure, the project will demonstrate the 

transferability of the automated personalization to ensure it can follow a person across multiple 

sites and multiple devices, and the scalability and sustainability of the model(s).

The Department partnered with NIDILRR (now administered by the Administration for 

Community Living in HHS), the National Institute of Standards and Technology (NIST), and the 

Access Board, among others, in overseeing this initiative.

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

Despite heightened emphasis on the provision of transition services under the Individuals with 

Disabilities Education Act, (IDEA) and the Rehabilitation Act of 1973 as amended (Rehabilitation 

Act), students with disabilities continue to face challenges as they transition from school to postschool activities, including postsecondary education and competitive integrated employment. 

These individuals often have lower high school graduation rates, lower postsecondary 

enrollment rates, and higher unemployment rates than peers without disabilities (Leucking, 

D.M., & Luecking, R.G. (2015, May).1

These challenges have led to recent attempts to synthesize what works in transition and to 

suggest approaches to address these challenges. For example, the “National Collaborative on 

Workforce and Disability for Youth, Guideposts for Success” (second edition) identifies five 

guideposts as part of a framework for facilitating the transition of youth with disabilities —

school-based preparation, career preparation and work-based learning activities, youth 

development and leadership, connecting activities, and family involvement and support (see 

http://www.ncwd-youth.info/guideposts).

As stated previously, WIOA expands the services and population of students with disabilities 

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

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

section 113 of the Rehabilitation Act to students with disabilities who are eligible or potentially 

eligible for VR services. The pre-employment transition services that State VR agencies must 

provide under section 113 are aligned with the career preparation and work-based learning 

activities guidepost. These pre-employment transition services include: job exploration 

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

opportunities for enrollment in comprehensive transition or postsecondary educational programs 

at institutions of higher education, and instruction in self-advocacy.

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

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

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

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

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

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

Development and Transition for Exceptional Individuals, 38(1), 4-13.

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

for youth with disabilities. Research also indicates that work experiences for youth with 

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

However, strategies and interventions that are based on the most promising evidence of 

effectiveness in providing work-based learning experiences are needed. 

Through the Disability Innovation Fund, the Department plans to award 5-year demonstration 

projects in FY 2016 to identify and demonstrate work-based learning interventions for students 

with disabilities that are supported by research and rigorously evaluated. Information gained 

from these projects would be translated for use by State VR agencies in collaboration with their 

local partners to improve postsecondary and career outcomes for youth with disabilities. As 

with other DIF initiatives, the Department has sought input in the early planning of this initiative 

from colleagues with related expertise in the Department, such as IES, and our Federal partners 

from the Departments of Labor, Health and Human Services, and the Social Security 

Administration. The Department expects to publish a notice of proposed priorities for this grant 

competition to obtain public comment in March 2016. 

Approximately $28.5 million remained unobligated at the end of fiscal year 2015, the majority of 

which was from MOE penalties ($22.6 million). Similar to previous years, a small percentage of 

States returned grant funds they had been awarded. A total of 13 States returned some of their 

2015 grant funds, while 26 States requested additional funds in reallotment. Three of the 13

States accounted for 45 percent of the returned funds. In addition, 17 States had their fiscal 

year 2015 allotment reduced because they did not meet their fiscal year 2014 MOE 

requirement. Seven of the 17 States with MOE penalty reductions also returned a portion of 

their 2015 grant funds and 2 requested additional funds in reallotment.

DIF Proposal for Fiscal Year 2016 and 2017 Funds

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

are not reallotted to States by September 30th of that fiscal year has been gradually declining. 

In general, States continue to recover from the earlier economic downturn and stabilize their 

spending patterns. In addition, the sequestration of mandatory funds in recent years has 

reduced the amount of funds State VR agencies would have otherwise received thorough the 

allotment formula. 

The Department expects that only a very few State VR agencies will be unable to match their 

fiscal year 2016 and 2017 Federal funds and will be able to reallocate all returned grant funds to 

other State VR agencies. While the Department expects that the number of States that are 

unable to meet their MOE requirement will decline, we also anticipate that there will continue to 

be unobligated funds resulting from MOE penalties in fiscal years 2016 and 2017. Based on 

this assumption, the Administration is requesting appropriations language for fiscal year 2017 to 

continue the authority to use such funds to support innovative activities under the DIF that would 

otherwise be unavailable for Federal obligation.

Consistent with the fiscal year 2016 Budget Request, the Administration would use unobligated 

fiscal year 2016 VR funds to help support demonstrations to provide early intervention services 

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to populations at risk of dependence on SSDI/SSI. If unobligated FY 2016 VR funds are not 

sufficient to fully fund the cost or ED’s contribution to the total cost of this initiative, a portion of 

FY 2017 unobligated VR funds may also be used for this purpose. People with chronic 

conditions and disabilities, even when those conditions cause significant functional impairments, 

can often remain at work as their condition worsens, provided they have affordable access to 

the right types of accommodations, supports, health care, and job training or retraining at the 

right time. Additionally, Section 412(a)(3) of WIOA amends the VR State plan to include a new 

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

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

employment. This DIF proposal would support that provision by helping State VR agencies to 

identify and implement effective strategies to help individuals maintain employment. The 

Department will work with SSA and other agencies to further develop this proposal as well as 

other possible demonstrations to provide early intervention services to populations at risk of 

dependence on SSDI/SSI.

WIOA made significant changes to the VR State Grants program and its core partner programs 

under the workforce development system. As States begin implementing new regulations over 

the next two years, the Administration will be closely monitoring their impact and will work with 

the Departments of Labor and Education in identifying how FY 2017 unobligated funds could be 

used to support innovative strategies that can improve outcomes for individuals with disabilities 

in the new WIOA environment.

American Indian Vocational Rehabilitation Services

In fiscal year 2017, the Department would set aside $43.1 million for grants under the American 

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

Department to provide support for the continuation of about 86 tribal VR projects that were 

awarded in previous years. These funds assist tribal governments to provide a program of VR 

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

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

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

bodies of Indian tribes located on Federal and State reservations.

New section 121(c) of the Rehabilitation Act requires RSA to reserve not less than 1.8 percent 

and not more than 2 percent of the funds set aside from the State VR program (section 110(c) 

of the Act) for the AIVRS program to provide training and TA to governing bodies of Indian tribes 

that have received AIVRS grants under section 121(a) of the Act. The Department awarded a 

five year cooperative agreement in fiscal year 2015 to establish an AIVRS Training and 

Technical Assistance Center. The Center will develop and provide training and TA for AIVRS 

projects in the following priority areas:

• Applicable laws and regulations governing the AIVRS program;

• Promising practices for providing services to American Indians with disabilities;

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• Delivery of services to American Indians with disabilities, including the determination of 

eligibility, case management, case record documentation, assessment, development of the 

individualized plan for employment, and placement into competitive integrated employment;

• Assistive Technology (AT), including what AT is, how to evaluate the need for AT, use of AT, 

and access to AT;

• Professional development practices to ensure effective project coordination, administration, 

and management; 

• Financial and grant management practices to ensure compliance with OMB’s Uniform 

Guidance (2 CFR 200) and the Education Department General Administrative Regulations; 

and

• Evaluating program performance, including data collection, data analysis, and reporting. 

PROGRAM OUTPUT MEASURES

Vocational rehabilitation State grants

Output Measures 2015 2016 2017

Individuals receiving services 1 950,000 960,000 965,000

Individuals with significant disabilities as a percent of 

all individuals receiving services 94% 94% 94%

Total number of cases closed 464,000 466,400 467,000

Individuals whose cases were closed and received 

VR services 325,000 326,000 327,000

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

Individuals with significant disabilities as a percent of 

all individuals achieving an employment outcome 94% 94% 94%

_________________

Note: Data for fiscal years 2015 through 2017 are projections based on actual data for fiscal years 2013 and 

2014 and preliminary 2015 data from the RSA Quarterly Cumulative Caseload Report (RSA-113).

1 Includes all eligible individuals who received VR services during the fiscal year. 2 Represents the number of individuals who exited the program after receiving services and achieved an 

employment outcome.

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American Indian vocational rehabilitation services

(dollars in thousands)

Output Measures 2015 footnote2016 footnote2017 Footnote

Project funding:

Project fundi ng: New AIVRS project funds $13,598 1$7,840 0

Project fundi ng: Continuation AIVRS project funds 24,850 2

34,378 42,324

Project fundi ng: Technical assistancefunds 705 774 776

Project fundi ng: Peer review of new awards applications 7 8 0

Number of AIVRS projects:

Number of New projects – AIVRS 29 11 0

Number of Continuation projects - AIVRS 55 75 86

Total projects 84 86 86

1 The total amount for new awards shown in the 2015 column of the table includes $593 thousand that was used 

to pay a portion of the 2016 continuation costs of 3 AIVRS projects awarded in 2015.

2 The total amount of continuation funding shown in the table does not include two projects for which the fiscal 

year 2012 through 2015 continuation costs were paid in fiscal year 2011. These costs were paid from unobligated 

funds that became available as a result of the reallotment of funds under the VR State Grants program carried out 

pursuant to section 110(b)(2).

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, as well as the resources and 

efforts invested by those served by this program.

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

which previously served as the basis for most of the VR State Grant program GPRA measures 

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

including the VR State Grants program, to comply with common performance accountability 

requirements in section 116 of WIOA. Section 116 of WIOA requires States that operate core 

programs to submit common performance data to demonstrate that specified performance 

levels are achieved. Required annual data for the core programs include those related to the 

primary performance indicators, participant counts and costs, and barriers to employment. A list 

of the primary performance indicators set forth in section 116 of WIOA is included in the 

‘Program Description’. In addition to the data to support the WIOA primary performance 

indicators, State VR agencies will continue to report program-specific data through the RSAI-25
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911. However, consistent with its WIOA partners, the Department plans to collect program and 

performance data on a quarterly basis for a 12-month program year cycle from July to June, 

rather than the current fiscal year cycle from October to September. While, agencies are 

expected to begin to collect data to support the joint performance measures during program 

year 2016, the Departments of Education and Labor expect all agencies to fully collect and 

report quarterly performance and other data for program year 2017. Thus, the Budget Request 

does not include 2017 performance targets for the current GPRA measures.

While targets for fiscal years 2015 and 2016 have been included for the current GPRA 

measures below, the Department is considering whether to replace these measures with interim 

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

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

data that is available from the current VR Case Service Report (RSA-911) to assess program 

performance.

VR State Grants

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

program will achieve high quality employment.

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

Rehabilitation State Grant program achieve employment consistent with their particular 

strengths, resources, abilities, capabilities, and interests.

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

55.8 percent of individuals receiving services to achieve employment.

Year Target Actual

2012 55% 57%

2013 57 64

2014 59 79

2015 60

2016 62

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

individuals receiving services to achieve employment.

Year Target Actual 

2012 60% 67%

2013 62 62

2014 62 62

2015 64

2016 64

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Additional information: This measure assesses the percentage of individuals who the State 

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

exit the VR program after receiving services. In order to pass this indicator, a general or 

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

for the blind must achieve a rate of 68.9 percent. 

In fiscal year 2014, the target set for the group of general and combined State VR agencies was 

far exceeded and performance on this measure (78.6 percent) improved significantly, with 44 of 

56 agencies meeting the 55.8 percent performance criteria, 8 more than in 2013. The group of

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

measure. Overall, fiscal year 2014 data show continued progress, with an increase of 

737 employment outcomes as compared to fiscal year 2013. However, the performance of 

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

employment outcomes. In fiscal year 2014, 59 of the 80 agencies experienced an increase or 

no change in the number of employment outcomes, however, 21 agencies had a decrease in 

employment outcomes. For example, one agency reported an increase of approximately 1,000 

employment outcomes in fiscal year 2014, while another agency reported a decrease of 

approximately 2,000 employment outcomes.

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

85 percent of individuals with employment outcomes to achieve competitive integrated 

employment.

Year Target Actual

2012 95% 96%

2013 95 96

2014 95 95

2015 96

2016 98

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

individuals with employment outcomes to achieve competitive integrated employment.

Year Target Actual

2012 85% 92%

2013 90 88

2014 92 88

2015 92

2016 92

Additional information: These measures assess the percentage of all individuals with 

employment outcomes who achieve competitive employment. Competitive employment is 

defined in current State VR program regulations as work in the competitive labor market that is 

performed on a full-time or part-time basis in an integrated setting, and for which an individual is 

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compensated at or above the minimum wage, but not less than the customary wage and level of 

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

disabled.

Under these measures, general and combined agencies must assist at least 85 percent of 

individuals with employment outcomes to achieve competitive employment, and agencies for 

the blind must assist at least 65 percent of individuals with employment outcomes to achieve 

competitive employment. In fiscal year 2014, the performance of the general and combined 

agencies on this measure was slightly below 2013, but the target was still met. In fiscal year 

2014, only 3 of the 56 general and combined agencies did not meet the performance criterion. 

In 2014, performance for the group of agencies for the blind was the same as in 2013, but 

performance was still lower than in fiscal years 2011 and 2012, with three agencies not 

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

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

percent of the individuals achieving competitive employment have significant disabilities.

Year Target Actual

2012 90% 89%

2013 91 91

2014 92 93

2015 92

2016 93

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

individuals achieving competitive employment have significant disabilities.

Year Target Actual

2012 100% 96%

2013 100 96

2014 100 96

2015 100

2016 100

Additional information: This measure assesses the percentage of individuals achieving 

competitive employment who have significant disabilities. In order for a general or combined 

agency to pass this indicator, at least 80 percent of individuals achieving competitive 

employment must have a significant disability. In fiscal year 2014, the performance of general 

and combined agencies on this measure increased as compared to 2013, and the 92 percent 

GPRA target was met.

For an agency for the blind to pass this indicator, at least 90 percent of individuals achieving 

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

agencies for the blind on this measure is higher, 90 percent compared to 80 percent, because a 

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higher percentage of individuals served by these agencies have significant disabilities. As in the 

3 previous years, all but one of the 24 agencies for the blind met the 90 percent criterion, but 

performance fell short of the 100 percent target.

Efficiency Measure

Goal: State VR agencies will effectively manage their Federal Vocational Rehabilitation 

State Grant program resources.

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

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

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

Year Target Actual

2012 70% 68%

2013 70 64

2014 66 61

2015 64

2016 64

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

participant of no more than $8,000.

Year Target Actual

2012 63% 63%

2013 63 58

2014 63 58

2015 63

2016 63

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

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

final grant award by the total number of eligible individuals who received VR services. The 

sources of data for this measure are State agency data from the RSA-113 Caseload Report and 

RSA final State agency allocation tables. In fiscal year 2014, performance on this measure 

decreased with 34 of the 56 (60.7 percent) general and combined State VR agencies 

demonstrating an average cost per participant within the established performance range 

(between $1,200 and $3,300), two agencies fewer than in fiscal year 2013. Of the 24 agencies 

for the blind, 14 (58.3 percent) had an average cost per participant of no more than $8,000, the 

same as the previous year. 

For fiscal year 2014, the average annual cost per participant for general and combined State 

vocational rehabilitation agencies was $3,015 with a range (excluding the outlying areas) of 

$1,383 to $6,295. For agencies for the blind, the average annual cost per participant was 

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$7,065 with a range from $3,789 to $14,308. In comparison, the fiscal year 2013 average 

annual cost per participant for general and combined State vocational rehabilitation agencies 

was $2,885, while for agencies for the blind it was $6,994. 

The Department plans to revise these measures because the criterion set (e.g., average cost 

per participant between $1,200 and $3,300 for general and combined State VR agencies) is no 

longer appropriate. Therefore, fiscal year 2017 targets for these measures have not been set. 

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

2012 64% 62%

2013 65 69

2014 65 67

2015 66

2016 66

2017 67

Additional information: Data for fiscal year 2014 show that 67 percent of the 3,139 individuals 

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

employment outcome and the performance target for this measure was met. While overall 

performance on this measure decreased as compared to the previous fiscal year, the reported 

number of American Indians with disabilities achieving an employment outcome increased 

compared to 2013. In fiscal year 2014, the 84 projects operating in that fiscal year (projects 

funded with fiscal year 2013 appropriations) that reported data assisted a total of 2,102

American Indians with disabilities to achieve an employment outcome as compared to 1,891 in 

the previous year. However, there is a wide variation in the reported number and percentage of 

individuals who achieve an employment outcome by individual AIVRS projects. Fiscal year 

2014 was the fifth and final project year for over half of the grantees, which may have 

contributed to the reported increase in employment outcomes. Fiscal year 2015 performance is 

likely to drop as it will be the first project year for over half of the 83 projects operating in that 

year. Fiscal year 2015 data will be available in May 2016.

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Vocational rehabilitation State grants

Efficiency Measures

The Department established two efficiency measures to ensure that AIVRS projects 

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

cost per participant. 

Objective: Ensure that AIVRS projects demonstrate effective fiscal management. 

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

employment outcome of no more than $35,000.

Year Target Actual

2012 72% 76%

2013 72 76

2014 72 80

2015 76

2016 76

2017 76

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

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

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

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

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

outcome. Using this method for the AIVRS program in fiscal year 2014, 79.6 percent of the 

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

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

outcome for the 84 projects reporting data was approximately $20,294. However, the cost per 

employment outcome varied significantly across projects. 

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

participant of no more than $10,000.

Year Target Actual

2012 84% 88%

2013 85 88

2014 86 83

2015 86

2016 86

2017 86

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

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

the total number of individuals who received services under an Individualized Plan for 

Employment (IPE). In fiscal year 2014, 84 AIVRS projects reported serving a total of 

8,185 American Indians with disabilities, about 404 more individuals than in 2013. While the 

total number of participants increased, performance on this measure decreased in fiscal year 

2014 with more projects reporting an average annual cost per participant of more than $10,000, 

and so the target was not met. The median annual cost per participant for the 84 projects 

reporting data was approximately $5,834.

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REHABILITATION SERVICES

Client assistance State grants

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

(dollars in thousands)

FY 2017 Authorization: $13,195

Budget Authority: 

2016 2017 Change

$13,000 $13,000 0

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

CAP and how to contact the CAP. States must operate a CAP in order to receive VR State 

grant funds.

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

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

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

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

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

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

provide services under the Act. 

Current designations include the following:

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

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

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

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

funds are distributed on the basis of population, with a minimum allotment of $100,000 to each 

of the 50 States, D.C., and Puerto Rico and $45,000 to each of the outlying areas. When the 

appropriation increases, the Act also requires the Secretary to increase the minimum allotments 

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

appropriation. The Workforce Innovation and Opportunity Act also requires that funds be set 

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aside under this program for two activities before awarding grants to eligible States and outlying 

areas with the remaining funds. The first set-aside reserves funds, at the same amount as 

provided to outlying areas, for an award to the eligible system established under the 

Developmental Disabilities Assistance and Bill of Rights Act to serve the American Indian 

consortium. In addition, if the appropriation is equal to or exceeds $14 million, the Secretary 

must set aside between 1.8 percent and 2.2 percent of the amount appropriated for training and 

technical assistance to CAPs established under this program. The fiscal year 2015 allotments 

were based on the July 1, 2013 population estimates published in December 2013. The fiscal 

year 2016 allotments are based on the July 1, 2014 population estimates published in 

December 2014. The fiscal year 2017 State distributions will be based on the July 1, 2015 

Census data released in December 2015. 

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

Fiscal Year (dollars in thousands)

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

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

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

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

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

FY 2017 BUDGET REQUEST

The Administration requests $13 million in fiscal year 2017 for the Client Assistance Program 

(CAP), the same as the fiscal year 2016 level. This request will help ensure that individuals with 

disabilities who are applying for or receiving services funded under the Rehabilitation Act will 

receive appropriate services and have access to administrative, legal, and other appropriate 

remedies when needed to protect their rights. 

Data collected by the Rehabilitation Services Administration for fiscal year 2014 show that, 

nationwide, CAPs responded to 39,654 requests for information and provided extensive 

services to 5,415 individuals. Slightly more than 96 percent of those cases in which extensive 

services were provided involved applicants for or recipients of services from the Vocational 

Rehabilitation (VR) program. In 89 percent of all cases, issues related to the VR process or 

delivery of VR services. This data also demonstrates that in 41 percent of the cases closed, 

CAPs enabled the individuals to advocate for themselves through the explanation of policies; 

16 percent resulted in the development or implementation of an Individualized Plan for 

Employment (IPE); and 15 percent resulted in the reestablishment of communication between 

the individuals and other parties. In addition, 71 percent of the cases requiring action by the 

CAP on behalf of the individual were resolved in the individual’s favor.

The following activities provided in fiscal year 2014 are examples of CAP activities. Fiscal year 

2017 funds may support similar activities. 

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• In the District of Columbia (DC), CAP represented a consumer with autism and learning 

disabilities who was denied college tuition by the VR agency to a college in Connecticut that 

specializes in educating students with significant learning disabilities. Due to the consumer’s 

significant learning disability, the consumer requires intensive supports while attending 

college to be successful. The VR agency questioned whether the consumer needed to 

attend college to meet his vocational goal, which was to be a criminal investigator. The DC 

CAP filed for an expedited hearing before the Office of Administrative Hearings, seeking 

college tuition, room and board, tutoring support, transportation and a computer and 

software. 

During the Administrative Hearing, CAP presented four witnesses, which included the 

consumer, his mother, his high school guidance counselor, and the psychologist from his 

high school. After the first day of a 3-day trial, the VR agency agreed to settle the case and 

funded the consumer’s tuition for all 4 years, including the costs for tuition, room and board. 

In addition, the VR agency agreed to provide the consumer with a computer, needed 

software, and all transportation costs to and from the college.

• In Louisiana, a consumer diagnosed with quadriplegia following an all-terrain vehicle 

accident, required the use of an electric wheelchair for mobility, and assistance through 

personal care services for most of her personal needs, requested CAP’s representation to 

resolve a dispute she was having with the VR agency.

The VR agency conducted a vocational evaluation and found the consumer to be “an 

excellent candidate for vocational rehabilitation” and “capable of college study.” As the 

consumer began her college education in pursuit of a Psychology degree, the consumer 

made arrangements to purchase a van and requested the VR agency provide the necessary 

funding for her van modification as a means for her to get to and from college. The VR 

agency denied the consumer’s request for the modifications and offered no other alternative 

means of transportation for her attend college.

CAP filed a request for a Fair Hearing on the consumer’s behalf and submitted a pre- and 

post-Hearing Memorandum. Following an administrative hearing, the Hearing Officers 

determined, “[the VR agency] acted contrary to the Rehabilitation Act of 1973 in its decision 

in not providing [the consumer] van modifications as those are necessary for her to obtain 

her education which, in turn, is paramount for her to be able to work.” As a result, the VR 

agency was ordered to provide the necessary van modifications to the consumer. The 

consumer is currently attending college and excelling in her classes.

• In Maryland, a consumer who is deaf contacted CAP and asked for assistance in appealing 

a decision by the VR agency related to services under his individualized plan for 

employment (IPE). Specifically, the VR agency denied the consumer’s request to attend an 

out-of-state community college with a program designed specifically for the deaf. The 

consumer stated that the VR agency had offered to provide funding for him to attend school, 

but would only provide the same level of funding for an in-state community college since the 

VR agency believed he could receive the needed accommodation at a local school.

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CAP evaluated the consumer’s request for funding to attend an out-of-state school along 

with the policies of the VR agency to determine if the case had merit. This individual was 

represented by the CAP’s attorney at the appeal hearing held before an Administrative Law 

Judge with the Maryland Office of Administrative Hearings. This hearing resulted in a 

favorable ruling for the individual and the VR agency was required to fund the required costs 

associated with attending an out-of-state community college. The VR agency appealed the 

Administrative Law Judge’s ruling to the Circuit Court. The Circuit Court reviewed and 

upheld the ruling made by the Administrative Law Judge to provide the necessary funding 

for the individual to attend school out-of-state.

• In Massachusetts, an individual with a disability related to her spinal cord had requested 

assistance from the CAP following the VR agency’s denial of her desired vocational goal. 

The VR counselor denied the consumer’s request for funding required for a real estate 

course noting multiple barriers to achieving the vocational goal of a real estate agent, 

including disability related limitations, financial difficulties, lack of a vehicle, and 

technological illiteracy. In addition, the consumer did not have any recent work history and 

very little financial means. The VR counselor suggested the consumer work in a paid 

internship in a different, unrelated field, and to take computer courses. The consumer was 

not interested in pursuing these options and was adamant about her chosen vocational goal. 

The CAP agreed to represent her in an administrative review with the goal of assisting her to 

achieve her vocational goal. An administrative review was conducted, followed by the VR 

agency committing to assisting the consumer to achieve her vocational goal by finding an 

on-the-job training opportunity within a local real estate agency. She proceeded to learn, 

first hand, the particulars and job functions of a real estate agent as she began her career in 

real estate.

PROGRAM OUTPUT MEASURES

Output Measures 2015 2016 2017 

Information inquiries/referrals 40,000 40,000 40,000

Individuals provided case services 5,500 5,500 5,500

_________________

NOTE: Data for fiscal years 2015 through 2017 are projected from actual data collected for fiscal year 2014 in 

which CAPs responded to 39,654 requests for information and provided extensive services to 5,415 individuals. 

Data for fiscal year 2015 will be available in December of 2016. 

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 

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

2017 and future years, as well as the resources and efforts invested by those served by this 

program. 

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

the benefits available under the Vocational Rehabilitation State Grants program and 

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

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

systemic activity to improve services under the Rehabilitation Act.

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

changes in policy or practice.

Year Target Actual 

2012 70% 80%

2013 70 73

2014 72 78

2015 74

2016 74

2017 74

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

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

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

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

and some States undertake activities that may take years to accomplish. All 56 CAPs currently 

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

measures only those States that report their activity as complete. Data are compiled from 

narrative reports submitted by all CAPs. A random sample of files is cross-checked with 

reported data to verify the data quality. The grantees input their data into the RSA Management 

Information System (MIS), which has edit checks to verify the accuracy of the information 

entered into the data fields. 

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

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

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

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

further to 73 percent (40 of 56 agencies). During fiscal year 2014, performance increased to 

78 percent (44 of 56 agencies). Overall, performance during fiscal years 2012 through 2014 

was still above the 2010 level of 64 percent and the targets were met. It is not clear what factor 

or factors may account for these large variations in performance. However, CAP performance 

on this measure has increased over time, as the baseline established in 1999 was 43 percent 

(24 of 56 agencies). Performance data for fiscal year 2015 will be available in April 2016.

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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 

2012 93% 98%

2013 98 98

2014 98 99

2015 98

2016 98

2017 98

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

through the use of ADR has ranged from about 97 to 99 percent and the program has 

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

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

for fiscal year 2015 will be available in April 2016.

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REHABILITATION SERVICES

Training

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

(dollars in thousands)

FY 2017 Authorization: $37,009

Budget Authority: 

2016 2017 Change

$30,188 $30,188 0

PROGRAM DESCRIPTION 

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

the rehabilitation needs of individuals with disabilities assisted through vocational rehabilitation 

(VR), supported employment, and independent living programs. The program supports training 

and related activities designed to increase the number of qualified personnel providing 

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

agencies and organizations, including institutions of higher education (IHEs), to pay all or part of 

the cost of conducting training programs. 

Awards may be made in any of 31 long-term training fields, in addition to awards for continuing 

education, short-term training, experimental and innovative training, and training interpreters for 

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

programs vary in terms of content, methodology, and type of trainee. For example, the LongTerm Training program supports academic training grants that must direct 75 percent of the 

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

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

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

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

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

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

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

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

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

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

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

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

of the statewide workforce system. 

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Training

FY 2017 BUDGET REQUEST

The Administration requests $30.188 million for the Training program in fiscal year 2017, the 

same as the fiscal year 2016 level. In fiscal year 2017, 91 percent of the funds requested would 

be used to support continuation costs.

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

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

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

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

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

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

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

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

the next 5 years, State VR agencies may need to successfully fill 39 percent of existing 

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

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

address this issue, the Department has focused a considerable amount of Training program 

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

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

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

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

recruiting new graduates into the rehabilitation field. 

In fiscal year 2017, the Department would also continue support for technical assistance to 

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

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

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

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

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

specific set of issues. The majority of funds requested for fiscal year 2017 would be used to 

support ongoing work through these centers and those in the Long-Term Training program.

In particular, the Department is targeting the Training program’s resources to assist State VR 

agencies in implementing new requirements under the Workforce Innovation and Opportunities

Act (WIOA) and building their capacity to meet the employment needs of individuals with 

disabilities and their prospective employers. In fiscal year 2014, the Rehabilitation Services 

Administration (RSA) awarded a cooperative agreement under the Rehabilitation Training 

Program to establish a Job-Driven Vocational Rehabilitation Technical Assistance Center to 

help support State VR agency personnel in implementing job-driven strategies for employerengagement and training for VR consumers. In fiscal year 2015, RSA awarded cooperative 

agreements to establish four additional vocational rehabilitation technical assistance and 

training centers (VRTACs) under the Rehabilitation Training Program. The Workforce 

Innovation Technical Assistance Center will support State VR agency personnel in 

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Training

implementing key WIOA requirements, such as the integration of the State VR program into the 

workforce development system, transition to the new common performance accountability 

system under section 116 of WIOA, and the provision of pre-employment transition services. 

Other new VRTACs would help to increase the capacity of VR personnel to:

• Improve services to and outcomes of students with disabilities who are not receiving 

services under the IDEA and targeted youth with disabilities who are no longer in school and 

unemployed;

• Assist economically disadvantaged individuals with disabilities to achieve competitive 

integrated employment outcomes through outreach to partner agencies within targeted 

communities; and 

• Improve performance management by building capacity to carry out high quality program 

evaluations and quality assurance practices that promote continuous program improvement. 

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2015 footnote2016 footnote2017 footnote

Program Funding:

Long-Term Training:

Long-Ter m Tr aini ng: New $7,771 0 $2,045

Long-Ter m Tr aini ng: Continuations 9,693 1$19,468 17,626

Long-Ter m Tr aini ng: Subtotal 17,464 19,468 19,671

Technical Assistance:

Technical Assistance: New 8,100 0 0

Technical Assistance: Continuations 0 7,500 7,500

Technical Assistance: Subtotal 8,100 7,500 7,500

Short-Term Training:

Short-Ter m Traini ng: New 200 0 0

Short-Ter m Traini ng: Continuations 0 200 200

Short-Ter m Traini ng: Subtotal 200 200 200

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Training

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2015 footnote2016 footnote2017 footnote

Program Funding:

Training for Interpreters for Individuals 

who are Deaf and Deaf-Blind:

Training for Inter preters: New 0 $2,100 0

Training for Inter preters: Continuations $1,980 0 $2,100

Training for Inter preters: Subtotal 1,980 2,100 2,100

Experimental & Innovative Training:

Experi mental & Innovati ve: New 500 0 0

Experi mental & Innovati ve: Continuations 1,000 2 0 0

Experi mental & Innovati ve: Subtotal 1,500 0 0

Other Activities:

Other Acti viti es: New 212 612 0

Other Acti viti es: Continuations 396 0 400

Other Acti viti es: Subtotal 608 612 400

Program Totals:

New 16,783 2,712 2,045

Continuations 13,069 27,168 27,826

Peer review of new award 

applications

34

6 15

Minority Outreach 3 302 302 302

Total 30,188 30,188 30,188

NOTE: Amounts listed as “TBD” in FY 2017 reflect topical areas for which decisions on FY 2016 competitions 

have not been made.

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

funds appropriated under this account for minority outreach activities. 2 The FY 2015 awards total includes approximately $1,000 thousand in FY 2015 funds used to support FY 2016 

continuation costs. 3 Section 21(b) the Rehabilitation Act requires the Rehabilitation Services Administration to set aside 1 percent of 

funds appropriated under this account for minority outreach activities.

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Training

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 

FY 2017 and future years, and the resources and efforts invested by those served by this 

program. 

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

and to maintain and upgrade the skills of current staff.

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

help individuals with disabilities achieve their goals.

Annual Performance Measures

This program has three annual performance measures. All three of these measures are 

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

address the shortage of State VR agency counselors and staff, the proportion of scholars 

fulfilling their payback requirements, and the proportion of currently employed State VR agency 

counselors who meet their State’s CSPD requirements. While these measures alone do not 

provide a comprehensive view of the Training program, the Department believes that they do 

provide evidence as to the efficacy of the program and its expenditures.

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

requirements through employment in State Vocational Rehabilitation agencies.

Year Target Actual

2012 53% 35%

2013 55 33

2014 45 31

2015 47

2016 47

2017 47

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

Payback Reporting Form, which grantees submit by November 30 of each year. The proportion 

of Masters-level counseling graduates fulfilling their payback requirements through employment 

in State VR agencies has decreased consistently since 2005. While program graduates are not 

mandated to meet their service obligation by working in State VR agencies, the Department 

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

the current and future shortages outlined above. This overall downward trend may have been 

the result of a confluence of factors, including, but not limited to, the range of acceptable 

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employment for meeting the service obligations outlined in statute, State hiring freezes, and the 

salary and working conditions in State VR agencies relative to those in other acceptable 

employment settings. According to the Act, program graduates are able to meet the 

requirements of their payback through employment in a number of different types of agencies, 

including employment in private VR agencies or in related State agencies, such as special 

education. As a result, some of the program’s graduates are able to find acceptable 

employment in a number of different settings other than State VR agencies. When combined 

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

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

terms of their service obligation. Of all graduates, 73 percent were fulfilling their service 

obligation in some form of acceptable employment in 2014, with roughly 60 percent of the 

employed graduates opting to work in settings other than the State VR agency. Over the past 

8 years, the proportion of graduates fulfilling their payback requirements in settings other than 

the State VR agency has, in general, been slowly increasing. To address this issue, in 2014, 

the Department developed new priorities for all LTT competitions that required, where 

appropriate, that students in LTT programs completed internships or practicum experiences in 

State VR agencies as a requirement for completion of their program of study. We believe that 

these requirements will provide students with hands-on experience in State VR agencies, 

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

number of graduates who are willing to accept positions in such agencies. Data for 2015 are 

expected to be available in fall 2016.

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

requirements through acceptable employment.

Year Target Actual

2012 87% 82%

2013 87 81

2014 85 77

2015 80

2016 83

2017 85

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

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

their payback requirements through acceptable employment. This measure captures all 

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

individuals maintaining acceptable employment in all acceptable agencies, not just State VR 

agencies. The Act requires that all program graduates maintain acceptable employment for at 

least 2 years for every year they received assistance from an RSA-supported grant. However, 

only four in five scholars are currently doing so. Among all program graduates, including those 

receiving undergraduate and graduate degrees and certificates, 73 percent were fulfilling their 

payback requirements through acceptable employment in 2014. It is possible that some portion 

of program graduates are receiving waivers of their payback requirements for various reasons, 

including exceptions and deferrals provided in accordance with 34 CFR 386.41, such as 

permanent disability or full-time enrollment in an institution of higher education. It is also 

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Training

possible that some subset of individuals who received scholarship support opt to obtain 

employment in for-profit rehabilitation agencies and simply repay their initial scholarship as if it 

were a loan. Without further information, the Department cannot determine the extent to which 

these explanations hold, but RSA has revised the Payback Reporting Form to be used by 

grantees in order to significantly improve the quality and accuracy of the data RSA receives 

about scholars. The Department does not expect data on this issue from the revised form to be 

available until summer 2016 at the earliest.

Measure: The percentage of currently employed State Vocational Rehabilitation agency 

counselors who meet their state’s Comprehensive System of Personnel Development (CSPD) 

standards.

Additional Information: Previously, the Administration annually reported on this measure 

using data submitted by State VR agencies about the qualifications of their currently-employed 

counselors. From 2002 until 2013, the proportion of currently employed State VR agency 

counselors who met their State’s CSPD standards increased consistently, with 87 percent of 

staff meeting the CSPD standards in 2013. However, amendments to section 101(a)(7)(B)(ii) of 

the Rehabilitation Act made by the Workforce Innovation and Opportunity Act made a wider 

range for work experience acceptable for meeting States’ CSPD Standards. As such, the 

Department believes continuing to report on this measure, which already exhibited a high level 

of performance, when the CSPD standards have been dramatically decreased would no longer 

be appropriate as we do not believe it would continue to provide relevant, meaningful 

performance information regarding the Training program.

Efficiency Measures

Measure: The Federal cost per RSA supported rehabilitation counseling graduate at the 

masters level.

Year Target Actual

2012 $10,702 $20,275

2013 24,000 28,351

2014 24,000 20,596

2015 24,000

2016 24,000

2017 24,000

Additional Information: The measure is calculated by dividing the total funds spent on longterm training during a fiscal year by the number of graduates supported under that program 

during the same fiscal year. The Department calculates this measure for individual cohorts of 

grantees by dividing the sum of all project costs supported with Federal funds (across all years 

of each individual scholar’s training) by the number of degree recipients who successfully 

completed funded training programs closing in that year. Prior to 2010, this measure was 

calculated using only the funds directly made available for scholarships. The target for 2012 is 

based on the previous methodology. The higher Federal cost per RSA-supported graduate 

under the new methodology is in line with similar measures in other programs supporting 

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training at the Masters level. However, there remains wide variation across types of programs 

and projects. The Department believes that this variation accounted for the increased cost per 

graduate in 2013. Data for 2015 are expected to be available in fall 2016.

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REHABILITATION SERVICES

Demonstration and training programs

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

(dollars in thousands)

FY 2017 Authorization: $6,373

Budget Authority: 

2016 2017 Change

$5,796 $5,796 0

PROGRAM DESCRIPTION

Demonstration and Training programs are authorized to provide competitive grants to, or 

contracts with, eligible entities to expand and improve the provision of rehabilitation and other 

services authorized under the Rehabilitation Act (the Act) and “to further the purposes and 

policies of the Act”. These current-funded discretionary programs are also authorized to support 

activities that increase the provision, extent, availability, scope, and quality of rehabilitation 

services under the Act, including related research and evaluation activities. 

The majority of projects currently supported under Demonstration and Training programs are 

designed to increase employment opportunities for individuals with disabilities by expanding and 

improving the availability and provision of rehabilitation and other services. These projects are 

intended to increase employment outcomes for individuals for whom vocational rehabilitation 

services were previously unavailable or who previously did not take advantage of such services. 

Other activities authorized and currently funded under the Act include: 

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

methods of service delivery to individuals with disabilities, as well as activities such as technical 

assistance, systems change, special studies and evaluation, and dissemination and utilization of 

project findings. Eligible entities include State Vocational Rehabilitation (VR) agencies, 

community rehabilitation programs, Indian tribes or tribal organizations, other public or nonprofit 

agencies or organizations, and for-profit organizations. Competitions may be limited to one or 

more type of entity. 

Sections 303(c) and (d) of the Act authorize a parent information and training program and a 

Braille training program.

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Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)footnote

2012 ....................................................................$5,325

2013 ......................................................................5,046

2014 ......................................................................5,796

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

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

FY 2017 BUDGET REQUEST

The Administration requests $5.8 million for the Demonstration and Training programs in fiscal 

year 2017, the same as the fiscal year 2016 level. The request includes funds to support 

continuation costs for awards that began in previous fiscal years. There are no funds requested 

for new awards in fiscal year 2017. 

Fiscal year 2017 funds would be used to support the second year of a planned two-year 

contract to develop voluntary comprehensive model standards for initial and continuing training 

for employees under the Federal Randolph-Sheppard program. The Randolph-Sheppard 

program provides persons who are blind with remunerative employment and self-support 

through the operation of vending facilities on Federal and other property. Sites covered by the 

program include military mess halls, cafeterias, snack bars, miscellaneous shops, and facilities 

comprised of vending machines. Currently there are approximately 2,200 vendors participating 

in the Randolph-Sheppard program. State VR agencies, serving as the State licensing agency, 

recruit qualified individuals who are blind, train such individuals on the management and 

operation of small business enterprises, and license qualified blind vendors to operate the 

facilities. In addition, there are no standards for the training that is provided to potential vendors 

or for the training to improve the skills of current vendors. Standards are needed to ensure that 

employees under the Federal Randolph-Sheppard program receive training that will enable 

them to effectively acquire and operate a vending facility, maintain their skills, learn of best 

practices, and to keep employees knowledgeable about evolving technologies.

Also in fiscal year 2017, the Administration would support continuation costs for four 5-year 

career pathways model projects that were initially funded in fiscal year 2015. Career pathways 

projects are typically intended to help individuals with disabilities enter into competitive 

integrated employment. Career pathways projects offer an efficient and customer-centered way 

to promote competitive integrated employment, by successfully providing the necessary adult 

basic education, occupational training, postsecondary education, career and academic advising, 

and support services to enter and progress in a career. Career pathways generally refer to a 

series of connected education and training strategies and support services that enable 

individuals to secure industry relevant certification, obtain employment within an occupational 

area, and to advance to higher levels of future education and employment in that area.

The current cohort of career pathways projects are demonstrating a well-defined strategy to 

help youth and adults with disabilities acquire marketable skills and industry-recognized 

credentials through better alignment of education, training, employment, and human and social 

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services among public agencies and with employers. Grantees are State Vocational 

Rehabilitation (VR) agencies or a consortium of State VR agencies in partnership with other key 

entities, such as State and local educational agencies, community rehabilitation providers, 2-

year and 4-year postsecondary educational institutions (including vocational and technical 

schools), and employers.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output measures 2015 footnote

2016 footnote2017 footnote

Program funding:

Career Pathways, new awards $3,273 0 0

Career Pathways: Continuation awards 0 $3,301 $3,319

Technical assistance activities

TA: Continuation award 400 1400 1400 1

Braille training 

Braille: Continuation awards 328 328 328

Parent information and training

Par ent infor mation: Continuation awards 1,733 1,509 1,491

Randolph-Sheppard contract 0 200 200

Peer review of new award applications 4 0 0

Minority Outreach 58 58 58

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

Number of awards:

Number of Continuation awards 11 15 16

Number of New awards 4 1 0

Total, Number of awards 15 16 16 _________________________

1 These funds are used to jointly support the National Technical Assistance Center on Improving Transition to 

Postsecondary Education and Employment for Students with Disabilities which also receives funding from the Office 

of Special Education programs.

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PROGRAM PERFORMANCE INFORMATION

Efficiency Measure

Goal: To expand, improve or further the purposes of activities authorized under the Act.

Objective: Expand and improve the provision of rehabilitation services that lead to employment 

outcomes. 

The efficiency measure for this program is the percentage of projects that met their goals and 

objectives as established in their original applications, or as modified during the first year. This 

efficiency measure is designed to determine whether grantees under this program are 

accomplishing the objectives of the projects for which they received competitive funding. 

The Training and Demonstration programs supported a 5-year model project, Improving 

Outcomes of Individuals with Disabilities who are Social Security Disability Insurance (SSDI) 

Beneficiaries, that ended in fiscal year 2015, designed to demonstrate how State VR agencies 

can improve employment outcomes for Social Security Disability Insurance (SSDI) and Social 

Security Income recipients. Specific measures were developed for this model demonstration, to 

assess the effectiveness of the grantee’s performance. After the project has concluded, data 

from the grantee’s final performance report will be used to assess performance in the following 

areas:

• The degree to which the data collected from the project sites show that the intervention 

model results in improvement in employment outcomes, such as employment rate, wages at 

case closure, average hours worked, and the percentage of individuals earning an amount 

greater than substantial gainful activity, as determined by the Social Security Administration, 

at closure;

• The degree to which the project recommended strategies that could be used by other State 

VR agencies to implement the model;

• The degree to which the grantee has disseminated its findings to State VR agencies; and 

• The responsiveness of the grantee to recommendations made through the reviews 

conducted by the panel of experts.

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REHABILITATION SERVICES

Protection and advocacy of individual rights

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

(dollars in thousands)

FY 2017 Authorization: $19,408

Budget Authority: 

2016 2017 Change

$17,650 $17,650 0

PROGRAM DESCRIPTION

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

to protect the legal and human rights of individuals with disabilities who are ineligible for 

protection and advocacy (P&A) services provided under Part C of the Developmental 

Disabilities Assistance and Bill of Rights Act, the Protection and Advocacy for Individuals with 

Mental Illness Act, or who need P&A services that are beyond the scope of the Client 

Assistance Program. The purpose of this program is to provide assistance and information to 

eligible individuals with disabilities and conduct advocacy to ensure the protection of their rights 

under Federal law. States may use these funds to plan and carry out P&A programs for eligible 

individuals with disabilities and to develop outreach strategies to inform individuals with 

disabilities of their rights. 

Funds must be set aside under this program for two activities before awarding grants to eligible 

States and outlying areas with the remaining appropriation. If the appropriation is equal to or 

exceeds $5.5 million, the Secretary must first set aside between 1.8 percent and 2.2 percent of 

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

under this program. In addition, the Rehabilitation Act of 1973 (the Act) requires that in any year 

in which the total appropriation exceeds $10.5 million, the Secretary must award $50,000 to the 

eligible system established under the Developmental Disabilities Assistance and Bill of Rights 

Act to serve the American Indian consortium. The Secretary distributes the remainder of the 

appropriation to the eligible systems within the States and outlying areas based on population 

estimates and after satisfying minimum allocations. The fiscal year 2015 State distributions were 

based on the July 1, 2013 estimates published in December 2013. The fiscal year 2016 State 

distributions are based on the July 1, 2014 estimates published in December 2014. The fiscal 

year 2017 State distributions will be based on the July 1, 2015 estimates published in December 

2015. 

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

areas by an amount not greater than the percentage increase in the total amount appropriated 

for this program for the previous fiscal year. The Act establishes a minimum allotment of 

$100,000 for States or one-third of 1 percent of funds remaining after the technical assistance 

set-side and grant for the American Indian consortium, whichever is greater. The outlying areas 

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receive a minimum allotment of $50,000. The program is current-funded but States and outlying 

areas may carry over unobligated Federal funds for an additional year. 

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

Fiscal Year (dollars in thousands)

2012 .......................................................... $18,031

2013 ............................................................ 17,088

2014 ............................................................ 17,650

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

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

FY 2017 BUDGET REQUEST

The Administration requests $17.6 million in fiscal year 2017 for the Protection and Advocacy of 

Individual Rights (PAIR) program, the same as the fiscal year 2016 level. The PAIR program 

supports State-wide systems that are designed to protect the legal and human rights of 

individuals with disabilities who are ineligible for protection and advocacy (P&A) services 

provided under Part C of the Developmental Disabilities Assistance and Bill of Rights Act, the 

Protection and Advocacy for Individuals with Mental Illness Act, or who need P&A services that 

are beyond the scope of the Client Assistance Program. The purpose of this program is to 

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

to ensure the protection of their rights under Federal Law. 

During fiscal year 2014, PAIR programs reported handling 12,904 cases and responded to 

43,196 requests for information or referral. Of the cases handled by PAIR programs in that 

year, the greatest number of specified issues involved government benefits/services (19 

percent), education (17 percent), employment (13 percent), health care (13 percent) and 

housing (12 percent). 

In addition to providing representation to individuals, PAIR programs address systemic issues 

faced by persons with disabilities through a variety of methods, including negotiations with 

public and private entities and class action litigation. In fiscal year 2014, 53 out of the 57 PAIR 

programs (93 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 2014 illustrate how PAIR 

programs assist individuals and, in some cases, bring about systemic change. Funds requested 

in fiscal year 2017 will support similar activities. 

• Disability Law Center of Massachusetts assisted a 15-year-old deaf student who recently 

immigrated to the United States. The school district placed him in a general education 

classroom with hearing students and a teacher who did not know American Sign Language 

(ASL). The school administrators provided general services under section 504 of the 

Rehabilitation Act (Nondiscrimination under Federal grants and programs), despite the fact 

that the student did not have any language skills. Several months later, after being 

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contacted by the parents of the student, the P&A agency coordinated a meeting with school 

representatives and an in-house expert from a neighboring children’s hospital to develop a 

more specialized Individualized Education Program (IEP). The P&A agency also advocated 

for a different educational placement that would allow the student to learn ASL. As a result 

of the P&A assistance provided, the student is currently enrolled at a new school that 

teaches ASL and is reported to be thriving socially in the new learning environment with 

other students in the classroom who are also deaf. 

• Disability Rights California provided assistance to a 20-year-old man with multiple 

disabilities, including an acquired brain injury that significantly limits his independence in 

activities of daily living. Because his brain injury manifested shortly after he turned 18, he 

was found ineligible for supported living and other services that are available through the 

State Medicaid program for persons with developmental disabilities. The P&A agency 

reviewed the case and discovered that the individual had spent the past decade in a series 

of inappropriate restrictive and sometimes abusive living situations, including a State 

hospital stay where he was restrained for almost three weeks. The P&A agency filed 

several Medicaid fair hearings with the State, and negotiated with the State’s health office 

on the individual’s behalf. As a result of these legal and advocacy efforts, the P&A agency 

secured a unique Medicaid waiver placement that allows the individual to live in his home 

near his family, with supportive services that he needs to maintain his highest possible level 

of independence. This one case of direct representation will have a systemic impact for 

others in similar situations in California. 

• The Arizona Disability Law Center assisted a 58-year-old woman with a visual impairment 

who requested accommodations for her computer after her State agency employer updated 

the computer system. Her requests for an accommodation were not fulfilled and she was 

not able to meet deadlines. She subsequently filed a complaint of discrimination with the 

U.S. Equal Employment Opportunity Commission and used the services of the P&A agency 

for legal representation during mediation, and to provide guidance about a settlement. 

Consequently, the parties reached an agreement that the employer provide the individual 

with effective assistive technology, training in its use, and ongoing work site evaluations. 

The State agency was also required to provide training on disability awareness to all 

personnel within the individual’s unit. 

• Disability Rights New Jersey assisted a 48-year-old man with traumatic brain injury living in 

a nursing facility. The individual’s mother alleged that the facility provided deficient care for 

her son and would not recognize her as the legal health care agent so that she could make 

improvements to his quality of care. The P&A agency investigated and filed a complaint 

with the State health agency, which found that there was a deficient practice. As a result, 

the nursing facility will continue to be monitored until it can demonstrate compliance with 

State guidelines on standards of care. Also, the individual successfully transferred to a 

community brain injury rehabilitation home, and both he and his mother are pleased with the 

quality of care being provided by the new facility.

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Protection and advocacy of individual rights

PROGRAM OUTPUT MEASURES 

Output Measures 2015 2016 2017 

Information inquiries/referrals 43,000 43,000 43,000

Individuals provided case services 12,800 12,800 12,800

________________

NOTE: Data are projected from actual data collected for fiscal year 2014. Actual data for fiscal year 

2015 will be available in April 2016.

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

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

2017 and future years, and the resources and efforts invested by those served by this program.

Goal: To provide assistance and information to individuals with disabilities eligible for 

the Protection and Advocacy of Individual Rights program and conduct advocacy to 

ensure the protection of their rights under Federal law. 

Objective: Identify problem areas requiring systemic change and engage in systemic activities 

to address those problems.

Measure: The percentage of PAIR programs that reported that their systemic advocacy 

resulted in a change in policy or practice. 

Year Target Actual 

2012 91% 96%

2013 91 91

2014 91 93

2015 92

2016 92

2017 92

Additional information: Because PAIR programs cannot address all issues facing individuals 

with disabilities solely through individual advocacy, they seek to change public and private 

policies and practices that present barriers to the rights of individuals with disabilities, utilizing 

negotiations and class action litigation. Successful performance under this measure is 

calculated by the number of PAIR programs reporting a change in policy or practice that results 

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Protection and advocacy of individual rights

from their intervention. The target was met in fiscal year 2014 with 53 out of the 57 (93 percent) 

PAIR programs reporting success.

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REHABILITATION SERVICES

Supported employment State grants

(Rehabilitation Act of 1973, Title VI)

(dollars in thousands)

FY 2017 Authorization: $30,292

Budget Authority: 

2016 2017 Change

$27,548 $30,548 +$3,000

PROGRAM DESCRIPTION

The purpose of the Supported Employment (SE) State Grants program is to assist States in 

developing collaborative programs with appropriate public and private nonprofit organizations to 

provide supported employment services for individuals with the most significant disabilities. 

Supported employment enables individuals with the most significant disabilities who, because of 

the nature and severity of their disability, need ongoing support. Such support may include 

intensive supported employment services followed by extended services after the individual’s

ability to perform the job with support has stabilized, in order to maintain competitive integrated 

employment. 

Under this formula grant program, State vocational rehabilitation (VR) agencies receive 

supplemental funds to assist VR consumers with the most significant disabilities in achieving the 

employment outcome of supported employment. The term “supported employment” includes 

both competitive integrated employment and working on a short-term basis toward competitive 

integrated employment. An individual's potential for supported employment must be considered 

as part of the assessment to determine eligibility for the Title I Vocational Rehabilitation State 

Grants program. The requirements pertaining to individuals with an employment goal of 

supported employment are the same in both the VR State Grants program and the SE State 

Grants program. A State VR agency may support an individual’s supported employment 

services solely with VR State Grant funds, or it may fund the cost of SE services in whole or in 

part with funds under the SE State Grants program. 

States are permitted to provide SE services to eligible individuals for up to 24 months. 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. However, they may use 

SE funds to provide extended services for up to 4 years to eligible youth with the most 

significant disabilities.

Beginning with fiscal year 2015, States are required to use half of their SE allotment to provide 

SE and extended services to youth with the most significant disabilities and to provide a match 

of 10 percent for the SE allotment portion used to serve such youth. Supported employment 

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funds are distributed on the basis of population with no State receiving less than $300,000, or 

one-third of 1 percent of the sums appropriated, whichever is greater. The minimum allotment 

for Territories remains one-eighth of 1 percent of the sums appropriated. The fiscal year 2015

State allotments were based on the July 1, 2013 estimates published in December 2013. The 

fiscal year 2016 allotments are based on the July 1, 2014 estimates published in December 

2014. The fiscal year 2017 allotments will be based on the July 1, 2015 estimates published in 

December 2015.

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

Fiscal Year (dollars in thousands)

2012 .....................................................................$29,068

2013 .......................................................................27,548

2014 .......................................................................27,548

2015 .......................................................................27,548

2016 .......................................................................27,548

FY 2017 BUDGET REQUEST

The Administration requests $30.5 million for Supported Employment (SE) State Grants 

program, an increase of $3 million from the 2017 level. Supported employment is recognized as 

an effective strategy in assisting individuals with the most significant disabilities to obtain 

competitive employment in integrated settings. The amendments Congress made to this 

program under Workforce Innovation and Opportunity Act (WIOA) reflect supported 

employment’s important role in increasing competitive employment opportunities for such 

individuals, particularly youth with the most significant disabilities.

WIOA made a number of significant changes to the SE State Grants program that will have a 

major impact on the provision of supported employment services under both the Vocational 

Rehabilitation (VR) and SE State Grant programs. These changes include:

• Permitting States to provide SE services for up to 24 months, rather than the 18 months

previously authorized; 

• Requiring States to use half of their SE allotment to provide SE services to youth with 

the most significant disabilities and to provide a match of at least 10 percent for the SE 

allotment portion used to serve such youth; and

• Permitting the use of SE funds and VR funds to provide extended services for up to 

4 years to eligible youth with the most significant disabilities.

Of these changes, the most significant is the new authority permitting the use of SE and VR 

funds to pay for extended services for eligible youth with the most significant disabilities. Before 

enactment of WIOA, State VR agencies provided short-term supported employment services 

(up to 18 months) until the individual was stabilized in the job. State VR agencies were 

prohibited from using the Federal funds received under the VR and SE programs for extended 

services and other State and local agencies and private nonprofit organizations were expected 

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to support the cost of these services. Under WIOA, State VR agencies may now provide 

extended services for up to 4 years to eligible youth with the most significant disabilities.

While in the long-term we expect the benefit of providing additional services for a longer period 

of time to outweigh the costs; in the short-term, this change will likely increase the average cost 

of an individual served in supported employment. Without additional resources, fewer 

individuals may be served by State VR agencies. In addition, the new requirement that a State 

use half of its SE allotment to provide services to eligible youth with the most significant 

disabilities will likely change who receives SE services from the State VR agency. While the 

new 10 percent match required of the funds reserved for youth with the most significant 

disabilities is intended to help increase resources for such services, it may not be sufficient to 

offset the demand for and cost of services. The requested $3 million increase would help State 

agencies offset the increased costs associated with meeting the new challenges and 

opportunities resulting from WIOA. 

Data collection requirements resulting from WIOA will require additional changes to the RSA911 data collection, including data collected on individuals receiving supported employment 

services under both the VR State Grants and SE State Grants programs. The redesigned postWIOA data collection will provide quarterly data on individuals who are receiving services as 

opposed to the current annual data collection that only provides information on individuals 

whose case service records were closed in that year. The Department anticipates that this 

additional information will be collected beginning in 2017. The enhanced data on individuals 

receiving supported employment services will enable RSA to better monitor the services, 

service costs, and the outcomes achieved by such individuals under the VR and SE State Grant 

program and help to identify those agencies that need technical assistance. Because the WIOA 

amendments only recently went into effect, we do not expect significant changes in the 2015 

program output estimates as compared to 2014. The Department anticipates that the WIOA 

amendments will begin to have an impact on the fiscal year 2016 and 2017 output measures. 

However, the Department does not have the information necessary on which to base estimates 

for 2016 and 2017 at this time and is, therefore, showing outputs for 2016 and 2017 at the same 

level as estimated for 2015. 

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PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2015 footnote2016 footnote2017 footnote

Individuals with a supported 

employment IPE goal when they 

exited the program 35,000 35,000 35,000

Employment outcomes: 21,080

1

21,080

1

21,080

1

Supported employment outcomes 16,0002 16,0002 16,0002

Employment without supports in an 

integrated setting 5,0003 5,0003 5,0003

Other employment outcomes 804 804 804

Minority outreach $275 $275 $305

____________________

NOTE: Estimates are based on actual 2014 closure data from the RSA-911 Case Service Report for all VR 

consumers with a supported employment goal identified on their IPE (including consumers who received SE services 

with funds provided under the VR State Grants and/or under the Supported Employment State Grants programs). 

However, fiscal year 2014 is the first year that State VR agencies reported information under the revised data 

collection that went into effect on October 1, 2013, and the data may be less reliable than in previous fiscal years.

1 Includes employment outcomes for all VR consumers who had a supported employment goal. 2 Of the individuals who had a supported employment goal, the number who were employed in an integrated 

setting and receiving ongoing support services. 3 Of the individuals who had a supported employment goal, the number who met the employment outcome 

criteria for the VR State Grants program but who were not receiving ongoing support services. 4 Of the individuals who had a supported employment goal, the number who met the employment outcome 

criteria for the VR State Grants program who were either self-employed, employed in a Business Enterprise Program, 

a family worker, or a homemaker. 

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

cumulative effect of the resources provided for this program and the VR State Grants program 

in previous years, and those requested in fiscal year 2017 and future years, as well as the 

resources and efforts invested by those served by these programs. 

Goal: Individuals with significant disabilities with a goal of supported employment will 

achieve high quality employment.

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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

2012 94% 94%

2013 94 95

2014 94 95

2015 95

2016 95

2017 96

Additional information: Individuals with a supported employment goal who achieve an 

employment outcome may be working in competitive integrated employment (employment at 

least at the minimum wage in an integrated setting) or may be working in an integrated setting 

toward competitive employment at or above the minimum wage. 

Fiscal year 2014 RSA 911 Case Service Report data show that 22,000 individuals who had a 

goal of supported employment on their IPE at the time their case service record was closed, 

including both consumers who received SE services from funds provided under the VR State

Grants and under the SE State Grants programs, achieved an employment outcome. Of those

who achieved an employment outcome, about 95 percent achieved a competitive employment 

outcome and the performance target was met. In addition, 95 percent of the 14,620 individuals 

with a supported employment goal who obtained a supported employment outcome 

(employment in an integrated setting and receiving ongoing supports) achieved a competitive 

employment outcome. Data for fiscal year 2015 are expected to be available in May 2016.

Measure: Average weekly earnings for individuals with significant disabilities who achieved a 

supported employment outcome.

Year Target Actual

2012 $203 $211

2013 205 207

2014 208 200

2015 208

2016 208

2017 208

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Supported employment State grants

Additional information: Performance data for this measure are calculated by dividing the 

average weekly earnings for all individuals who obtained a supported employment outcome with 

earnings by the total number of individuals who obtained a supported employment outcome with 

earnings. The performance data do not include individuals served by State VR agencies for the 

blind. 

For the performance group, fiscal year 2014 data show that the average weekly earnings of 

individuals with significant disabilities who achieved a supported employment outcome was 

$200, a decrease from 2012 and 2013 levels; and the performance target was not met. While 

average weekly earnings remained the same as the prior year, there was only a slight reduction 

in the average hours worked per week (from 22.8 to 22.3) at the time the service record was 

closed. It should be noted that the average weekly earnings calculation does not include data 

from the New Jersey VR general agency, which may also have an impact on overall 

performance on this measure. In prior years, the New Jersey VR general agency has typically 

reported average weekly earnings of about $280 for this group. Performance on this measure 

will be recalculated after New Jersey submits the needed data.

Efficiency Measure

Objective: Ensure that State VR agencies effectively use Supported Employment Grant funds 

to achieve supported employment outcomes.

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

30 supported employment outcomes per $100,000 received in SE Grant funds.

Year Target Actual

2012 75% 75%

2013 75 75

2014 75 65

2015 75

2016 75

2017 75

Additional information: The efficiency measure developed for the Supported Employment 

State Grants program examines the percentage of State VR agencies for which the number of 

supported employment outcomes per $100,000 received in SE Grants funds is within a 

specified range. For the purpose of this measure, the number of supported employment 

outcomes per $100,000 is calculated by dividing the reported number of individuals that 

achieved a supported employment outcome by the amount of a State agency’s SE allocation 

and multiplying the result by 100,000. The performance group does not include State VR 

agencies for the Blind or the four territories because they receive less than $100,000 in SE 

Grants funds. In 2014, there were five fewer State VR agencies that demonstrated at least 

30 supported employment outcomes per $100,000 as compared to the prior year and the 

performance target was not met. The median number of supported employment outcomes per 

$100,000 received in SE Grant funds for the 52 State agencies dropped from 55.3 in 2013 to 

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Supported employment State grants

47.3 in 2014. However, it should be noted that there is significant variation among agencies in 

the performance group, with the supported employment outcomes per $100,000 in fiscal year 

2014 ranging from 1.3 (Alaska) to 258.8 (New York). 

Other Performance Information

On an aggregate level, VR consumers who had a goal of supported employment represented 

about 11 percent of the total individuals whose cases were closed after receiving VR services in 

fiscal year 2014. Data from the FY 2014 Case Service Report (RSA-911) show that nearly

35,000 individuals receiving services had a goal of supported employment on their 

individualized plan for employment (IPE) at the time their case service record was closed in 

fiscal year 2014. These numbers do not include those individuals who were still receiving 

supported employment services at the close of the fiscal year. While this number is lower than 

the number reported in the prior year, the difference may largely be due to limitations in the 

comparability of the 2014 data to previous years a result of changes in the RSA-911 data 

collection, including changes to the SE-related data elements. Some of the decrease may also 

reflect the overall reduction (about 5 percent) in the total number of individuals receiving VR 

services whose cases were closed in 2014 as compared to the previous year. 

In particular, the 2014 data reported here excludes individuals whose IPE was amended during 

the VR process to change the individual’s goal from supported employment to another 

employment outcome prior to closure of the case service record. Under the previous data 

collection, agencies reported the number of individuals receiving services for whom supported 

employment was established as an employment goal at any time during the VR process. The 

reported data did not allow the Department to distinguish between the outcomes of individuals 

who initially had a supported employment goal that was later abandoned during the VR process 

from those individuals whose IPE continued to have a SE goal, or whose IPE goal was later 

changed to SE prior to exiting the VR program. Revisions in the 2014 data collection allow the 

Department and State agencies to better to review and evaluate the outcomes of these different 

groups and the SE program. Although State agencies were made aware of these changes well 

in advance of their implementation in fiscal year 2014, a few State agencies had challenges in 

reporting the revised elements. The Department expects the reliability in the reporting of the 

revised SE data elements to improve in the fiscal year 2015 data collection. 

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REHABILITATION SERVICES

Independent living services for older blind individuals

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2017 Authorization: $36,635

Budget Authority: 

2016 2017 Change

$33,317 $35,317 +$2,000

PROGRAM DESCRIPTION

The purpose of independent living services are to maximize the leadership, empowerment, 

independence, and productivity of individuals with disabilities, and to help integrate these 

individuals into the mainstream of American society. The Independent Living Services for Older 

Individuals Who Are Blind (OIB) program supports services to assist individuals aged 55 or 

older whose recent severe visual impairment makes competitive employment extremely difficult 

to obtain, but for whom independent living goals are feasible. Funds are used to provide 

independent living services, conduct activities that will improve or expand services for these 

individuals, and conduct activities to improve public understanding of the problems of these 

individuals. Services are designed to help persons served under this program to adjust to their 

blindness by increasing their ability to care for their individual needs. Services provided under 

this program are typically not covered under private insurance or Medicaid.

The Workforce Innovation and Opportunities Act amended the OIB program in section 751A of 

the Rehabilitation Act to require that not less than 1.8 percent and not more than 2 percent of 

the funds appropriated to the OIB program be used to provide training and technical assistance 

to Designated State Agencies or other providers of OIB services that receive OIB program 

funds. As a result, the amount of funds available for allocation to States has decreased as 

compared to fiscal year 2014.

Grantees are State vocational rehabilitation agencies for persons who are blind and visually 

impaired or, in States with no separate agency for persons who are blind, State combined 

vocational rehabilitation agencies. States participating in the Services for Older Individuals Who 

Are Blind program must match 10 percent of their grant with non-Federal cash or in kind 

resources in the year for which the Federal funds are appropriated. When appropriations for 

this program exceed $13 million—as they have since fiscal year 2000—awards are distributed 

to States according to a formula based on the population of individuals who are 55 years of age 

or older. The minimum allotment for each of the 50 States, D.C., and Puerto Rico is $225,000, 

with each of the outlying areas receiving a minimum allotment of $40,000.

The fiscal year 2015 allotments were based on the July 1, 2013 estimates of the population of 

individuals age 55 and older published by the Census Bureau in December 2013. The fiscal 

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year 2016 State allotments are based on the July 1, 2014 population estimates released in June 

2015. The fiscal year 2017 allotments are based on July 1, 2014 population estimates, and will 

be updated based on July 1, 2015 population estimates by age group when they become 

available (estimated to be June 2016). 

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2012 ................................................................. $34,018

2013 ................................................................... 32,239

2014 ................................................................... 33,317

2015 ................................................................... 33,317

2016 ................................................................... 33,317

FY 2017 BUDGET REQUEST

The Administration requests $35.3 million for the Independent Living Services for Older 

Individuals who are Blind program for fiscal year 2017, a $2.0 million (6 percent) increase over 

the 2016 level, to assist States in meeting an anticipated increase in the demand for program 

services. Of this amount, the Department plans to reserve 1.8 percent of the funds requested to 

provide training and technical assistance to Designated State Agencies or other providers of 

OIB services that receive OIB program funds. The requested increase will also help to offset 

the reduction in funds for State awards resulting from this reservation. 

Independent living services for these individuals, including the provision of assistive technology 

and aids, orientation and mobility training, and daily living skills, are predominately provided 

through contracts administered by State vocational rehabilitation agencies, not centers for 

independent living, and many of the needs of this older population are different from those of the 

consumers that would be served under the Grants for Independent Living program, now 

administered by the Department of Health and Human Services.

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 2014

American Community Survey, 6.3 percent of individuals 65 and older (about 2.8 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 

20.3 percent report having a disability that affects their independent living status. 

In 2014, 59,892 individuals received services under the Independent Living Services for Older 

Individuals who are Blind program, over half of whom were over 80 years of age. Additionally, 

approximately 35,400 of those individuals were either legally blind or totally blind; nearly one 

fourth of individuals receiving services under this program also suffered from some degree of 

hearing impairment. Approximately 83 percent were still living in a private residence.

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In the Notice of Proposed Rulemaking implementing changes to the Vocational Rehabilitation 

(VR) State Grants program (published in the Federal Register on April 16, 2015), the

Department proposed to eliminate uncompensated outcomes, including homemaker and unpaid 

family worker outcomes, from the definition of the term “employment outcome.” While the 

national percentage of homemaker outcomes compared to all employment outcomes is small

(about 3 percent), some State VR agencies have a greater percentage of homemaker outcomes 

than others, particularly those serving only individuals who are blind and visually impaired. 

To offset the impact of this change, the Department has proposed a transition period following 

the effective date of the final regulations that would allow sufficient time for current VR 

consumers to receive needed services. In addition, State VR agencies will be responsible for 

referring individuals to programs and services that can more appropriately meet their 

individualized needs. Through monitoring of the VR program, the Department has reviewed the 

case service records of individuals with homemaker outcomes and found that VR agencies 

sometimes assist individuals to exit the program as homemakers to provide an alternate 

resource for the provision of independent living services.

The Department anticipates that many of these individuals would be referred for services under 

the OIB program. For example, in fiscal year 2014, data from RSA’s VR Case Service Report

(RSA-911) show that 34 percent (1,033) of the total homemaker closures reported by State VR 

agencies were individuals who were blind or visually impaired that were age 55 or older. The 

requested increase would help States to meet the increased demand for independent living 

services for these older blind individuals. The additional funds requested would also help to 

offset the decrease in allocations to States due to the new requirement to reserve 1.8 percent of 

the total amount appropriated for training and technical assistance. For States not receiving the 

statutory minimum award, the average grant award decreased from $811,773 in fiscal year 

2014 to $795,115 in fiscal years 2015 and 2016.

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Measures: 2015 2016 2017

Number of Grantees 56 56 56

Minimum State award $225 $225 $225

Number of States at minimum 17 17 17

Average State award $620 $620 $657

Minority outreach $333 $333 $353

Training and technical assistance $600 $600 $636

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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, including funding provided 

under the Recovery Act, and those requested in fiscal year 2017 and future years, as well as 

the resources and efforts invested by those served by the program. 

Goal: To promote and support a philosophy of independent living (IL)—including a 

philosophy of consumer control, peer support, self-help, self-determination, equal 

access, and individual and system advocacy—in order to maximize the leadership, 

empowerment, independence, and productivity of individuals with disabilities, and the 

integration and full inclusion of individuals with disabilities into the mainstream of 

American society.

Objective: Through the provision of services (either directly or through contracts), increase the 

percentage of consumers receiving services funded through the Older Blind program who report 

having access to services needed to improve their ability to live more independently and 

participate fully in their communities.

Measure: The percentage of Independent Living Older Blind program consumers who have 

access to previously unavailable assistive technology aids and devices.

Year Target Actual

2012 58% 50%

2013 58 55

2014 58 54

2015 56

2016 56

2017 56

Additional information: The percentage of consumers reporting access to previously 

unavailable assistive technology in 2014 decreased slightly from the prior year and performance 

was below the target level for the third consecutive year. Assistive technology is one of the 

most frequently requested and expensive forms of assistance offered by this program, and 

consequently some States may have difficulty meeting consumer demand. This measure is 

calculated by dividing the number of consumers who received assistive technology by the total 

number of Older Blind program consumers (32,090/59,892 = 54%). Data for 2015 are expected 

by fall 2016. 

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Measure: The percentage of Independent Living Older Blind program consumers who report an 

improvement in daily living skills.

Year Target Actual

2012 59% 55%

2013 60 62

2014 60 62

2015 62

2016 62

2017 62

Additional information: The percentage of consumers reporting improvement in their daily 

living skills for 2014 was the same as in the prior year and the target level was met. This 

measure is calculated by dividing the number of Older Blind program consumers who reported 

improvement in daily living skills by the total number of Older Blind program consumers who 

received daily living skills training (11,921/19,598 = 62%). 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 2015 are 

expected by fall 2016.

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REHABILITATION SERVICES

Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2017 Authorization: 0 1

Budget Authority: 

2016 2017 Change

$10,336 $10,336 0

_________________ 

1 The GEPA extension expired September 30, 2004; reauthorizing legislation is sought for FY 2017.

PROGRAM DESCRIPTION

The Helen Keller National Center for Deaf-Blind Youths and Adults (HKNC) was created by 

Congress in 1969, and operates under the auspices of Helen Keller Services for the Blind, Inc. 

The HKNC provides services on a national basis to youths and adults who are deaf-blind, their 

families, and service providers through three programs: a national headquarters center (Center) 

located in Sands Point, New York, with a residential training and rehabilitation facility where 

deaf-blind individuals receive intensive specialized services; a network of 10 regional field 

offices (Regional Network) that provide referral, counseling, advocacy, and transition assistance 

to deaf-blind individuals and technical assistance to service providers; and an Information, 

Research and Professional Development (IRPD) component. 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.

• The Center provides comprehensive vocational rehabilitation (VR) services for individuals 

with deaf-blindness in order to enhance their potential for employment and to live 

independently in their home communities. Center programs provide clients with an array of 

services, supports, and adaptive skills training, with an emphasis on 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, increased employability, 

and other improvements to their personal development and quality of life. The Center also 

offers training and consultation to other programs serving individuals who are deaf-blind. 

• The IRPD, in collaboration with universities, personnel preparation programs, and research 

projects throughout the country, identifies effective practices for working with youths and 

adults who are deaf-blind and disseminates these best practices nationally via professional 

training initiatives in collaboration with HKNC Direct Services and Field Service staff. In 

collaboration with HKNC, the IRPD offers on-campus workshops and seminars in a myriad 

of disciplines such as Train-the-Trainer seminars for Adaptive Technology Instructors 

working to support the National Deaf-Blind Equipment Distribution Program, training for sign 

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Helen Keller National Center

language interpreters working with individuals who are deaf-blind, Support Service Providers 

(SSP) services, and training for VR Counselors. The IRPD has increased the number of 

qualified professionals working with individuals who are deaf-blind by utilizing technology 

and distance learning opportunities such as instructional videos, webinars, and online 

courses. Through these means, HKNC provides technical knowledge, expertise, training, 

and services to its partners across the United States. 

• The Regional Network employs 11 regional representatives, who provide a wide variety of 

services to individuals who are deaf-blind in their home communities, including: training for 

State and local service agency staff, general technical assistance, program assessment, 

community advocacy, and assistance to vocational rehabilitation counselors, mental health 

workers, special education personnel, and deaf-blind consumers with developing 

individualized service plans. In addition, the Regional Network offices provide counseling, 

information, and referral services for individuals who are deaf-blind and their families to 

assist them to live and work independently. Regional representatives also assist clients who 

have received training at headquarters with making the transition back to their home 

community. 

• Regional representatives collaborate with States to increase local capacity in the areas of 

implementing SSP programs, professional development training for VR and blind/visually 

impaired counselors, developing VR case sharing models, identifying deaf-blind leaders for 

representation on task forces/advisory councils and program planning/training, development 

of online and webinar training, and expanding the vocational access service provider model. 

HKNC also operates a number of special projects related to deaf-blindness and partners with 

other national organizations. These include service projects for elderly and transition-age deafblind individuals. HKNC provides financial support to the National Family Association for DeafBlind, CHARGE Foundation and DeafBlind Citizens in Action. HKNC has participated in 

research conducted by Mississippi State University, the National Institute of Health, Virginia 

Commonwealth University, and in collaboration with VR in the States of Georgia, Missouri, 

Arizona, and Oregon. Over time, HKNC’s research portfolio has expanded to include several 

focus areas, such as assistive technology, Congenital Rubella Syndrome, Ushers Syndrome, 

Services for Senior Citizens, SSP services, and statewide needs of individuals who are deafblind. In addition, the HKNC operates an internship program for undergraduate and graduate 

students studying and practicing in a variety of disciplines such as orientation and mobility, art 

therapy, rehabilitation counseling, and interpreting in the field of deaf-blindness. 

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Helen Keller National Center

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2012..................................................................$9,145

2013....................................................................8,667

2014....................................................................9,127

2015....................................................................9,127

2016..................................................................10,336

FY 2017 BUDGET REQUEST

The Department requests $10.3 million in fiscal year 2017 for the Helen Keller National Center 

(HKNC), the same as the fiscal year 2016 level. The requested funds would provide direct 

services for approximately 85 clients at the Center’s residential training and rehabilitation 

program and would serve an estimated 1,700 consumers, 450 families, and 860 agencies and 

organizations through its regional offices. 

The funds requested in fiscal year 2017 would support the Center’s educational and vocational 

rehabilitation training programs that expand independent living and employment opportunities 

for individuals who are deaf-blind. Currently, most of the Center’s budget supports operations 

and programs associated with serving clients in the HKNC headquarters, however, HKNC 

recognizes the need to expand its field services and restore the national affiliate network. 

HKNC has created Memorandums of Understandings (MOUs) with an array of organizations 

across the country and has surveyed 57 agencies receiving an overwhelming positive response 

to re-invent the affiliate network. The HKNC national affiliated network will become a National 

Community of Practice of professionals working in the field of vocational rehabilitation with 

individuals who are deaf-blind, by supporting them to achieve their vocational, social, 

independent living, and rehabilitative goals and aspirations. HKNC recognizes the need to 

expand its field operations to include deaf-blind specialists working in partnership with HKNC 

regional representatives, direct service teams and affiliate organizations. 

In 2015, the Center served 55 clients in the intensive training program, 30 clients through its 

Community Services Program. Four consumers participated in paid three month internships 

through its Professional Learning and Leadership Institute. HKNC served 1,710 consumers 

through its regional offices. In addition, the Center provided training to 706 professions working 

in the field of deaf-blindness and hosted 18 interns who are currently completing 

college/university level studies in various fields serving the deaf-blind. 

At the requested level, the Center estimates that it would serve approximately 85 adult clients 

with deaf-blindness at the HKNC headquarters intensive training program and provide 

specialized short-term training for approximately 10 high school students, 4 senior citizens, and 

4 individuals who need training in the use of technology or other targeted skills. In addition 

HKNC will expand its Summer Youth Vocational Program by providing summer job opportunities 

to 6-8 transition age youth. The comprehensive vocational rehabilitation program is an active 

adult learning community whereby promising and best practices emerge and the co-construction 

of knowledge is the result of collaboration among members of the deaf-blind community. 

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HKNC’s current focus is on participatory leadership among individuals in the deaf-blind 

community with anticipated outcomes of deaf-blind community members playing a pivotal role in 

the design and implementation of services and organizational strategy. 

HKNC would devote approximately 30 percent of the amount requested to its field services, 

community education and professional development programs, including the activities of 

HKNC’s 10 regional offices and the Professional Learning 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. HKNC helps to address a critical 

shortage of professionals qualified to meet the unique needs of individuals who are deaf-blind 

by training personnel such as teachers and vocational rehabilitation counselors, rehabilitation 

teachers, orientation and mobility specialists, adaptive technology instructors and interpreters. 

Other Sources of Funding: In fiscal year 2017, in addition to the funds appropriated to HKNC 

through the Rehabilitation Services and Disability Research account, the Center expects to 

receive funding from a variety of State, private, and other Federal sources. In fiscal year 2015, 

as a member on the National Consortium on Deaf-Blindness, HKNC received $641,000 in fiscal 

year 2015 through a grant from the Department’s Office of Special Education Programs to 

provide technical assistance to State and local educational agencies. In recent years, the 

Center has also received a number of non-Federal grants. HKNC received $1,101,000 for year 

2 of a 5-year grant from the New York State Office for People with Developmental Disabilities to 

operate housing and provide supported employment services for individuals who are deaf-blind 

with intellectual disabilities who were former participants in HKNC’s training program.

HKNC also has a contract with the New York State Commission for the Blind and Visually 

Impaired to operate a Community Services Program that provides rehabilitation training, 

orientation and mobility, case work, and job placement to deaf-blind individuals in the New York 

metropolitan area who do not require the comprehensive services offered at the headquarters 

training program. 

HKNC has been identified by the Federal Communication Commission as the certified entity in 

the States of New York, Iowa, and Hawaii responsible for administering the Deaf-Blind 

Equipment Distribution Program in these three states. The annual allocation in fiscal year 2015 

is $470,000 (NY), $116,000 (IA), and $80,000 (HI) to provide telecommunications equipment, 

assessment, and training and to residents who are deaf-blind in New York, Iowa and Hawaii. 

The following charts show HKNC’s revenues and expenses for fiscal year 2015. The Center 

reported total public support and revenues of $16,409,000 and incurred total operating 

expenses of $19,034,000 resulting in a net loss of $2,625,000. While the Center has sought to 

increase other sources of funding, the Federal appropriation remains its primary source of 

support. Salaries and fringe benefits account for most of the Center’s expenses, 91 percent of 

which are to support staff that are responsible for providing program services. 

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Helen Keller National Center

FY 2015 Expenses ($19.034 million) 

(all funds) (dollars in thousands)

Other 

Operating 

Expenses

$1,102 

6%

Salaries & 

Fringe Benefits

$14,296 

75%

Building, 

Utilities & Rent

$1,452 

8%

Consumer 

Related 

Expenses

$841 

4%

Professional 

Services

$1,433 

7%

Federal 

Appropriations

55%

Training Fees

9%

State Grant & 

Contracts

8%

Other Federal 

Funding Direct & 

Indirect

9%

Other Revenue

2%

Donations and 

Public Support

17%

FY 2015 Sources of Funds ($16.41 million)

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PROGRAM OUTPUT MEASURES

Output measures 2015 2016 2017

Number of individuals served at headquarters: 

Number of Adult training program clients 65 55 55

Number recei vi ng Specialized training services:

Specialized tr aini ng ser vices: Number of Transition for high school students 11 10 10

Specialized tr aini ng ser vices: Number of Senior citizens 3 4 4

Specialized tr aini ng ser vices: N umber recei vi ng Targeted skills training 2 4 4

Specialized tr aini ng ser vices: N umber recei vi ng Community Services Program 2 30 30

Number of individuals served through regional 

representatives: 

Number of Consumersserved through r egional r epr esentati ves 1,500 1,710 1,710

Number of Familiesser ved thr oug h regional representati ves 350 443 443

Number of Agencies/organizationsserved thr ough r egional repr esentati ves 800 861 861

f HKNC FTE staff 144 146 146

PROGRAM PERFORMANCE INFORMATION

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

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

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

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

year 2017 and future years, as well as the resources and efforts invested by those served by 

this program.

Goal: Individuals who are deaf-blind will become independent and function as full and 

productive members of their local community.

Objective: Individuals who are deaf-blind receive the specialized services and training they 

need to become as independent and self-sufficient as possible.

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Measure: The percentage of training goals set and achieved by adult consumers (both on and 

off campus starting in 2013), of adult consumers seeking employment who are placed in 

employment both on and off campus starting in 2013), and of adult consumers seeking to 

maintain their ability to live independently or move to less restrictive settings who achieve their 

goals.

Year

Target

# of Adult 

Consumers

Actual

# of Adult 

Consumers

Target

% in Less 

Restrictive 

Settings

Actual

% in Less 

Restrictive 

Settings

Target

% of 

Training 

goals 

met

Actual

% of 

Training 

goals 

met

Target

% Placed

in

Employment

Actual

% Placed

in

Employment

2012 90 52 75% 89% 90% 89% 45% 38%

2013 68 52/52 85 83 95 96 46 36/67

2014 70 57/38 86 83 95 91 47 42/88

2015 71 55/30 87 82 95 93 48 41/56

2016 75 86 95 48

2017 75 86 95 48

Additional information: The number of adult clients attending the HKNC on-campus 

rehabilitation training center in fiscal year 2015 was 55, which was below the target of 71. 

However, the HKNC also served 30 additional off-campus consumers. 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 varying levels of training intensity and 

differing individual needs. 

The Center evaluates the progress of consumers in achieving the goals stated in their 

individualized training plans (ITPs). This measure represents the percent of adult consumers 

served by the HKNC who successfully achieved identified training goals during the program 

year. The consumers and their instructors mutually develop these instructional objectives. To 

ensure that the measure is an accurate reflection of the Center’s performance, the Department 

and HKNC have agreed that it should only include the outcomes for adult consumers enrolled in 

the long-term formal program and the targeted skills training program. Consumers in the shortterm programs for high school students are not included in the calculation. In 2015, 93 percent 

of adult consumers achieved their training goals.

The less restrictive settings measure refers to clients who move from settings such as living with 

parents or guardians, assisted living settings, and nursing homes to more independent living 

arrangements such as their own home or apartment or group homes. In addition, this measure 

includes participants who achieved a less restrictive living environment by successfully 

acquiring skills in two or more core areas resulting in the ability to maintain a home and more 

fully participate in community life. In 2015, 82 percent of clients moved into, or remained in, less 

restrictive settings, which was slightly below the target set for this measure.

Objective: Increase the capacity of deaf-blind consumers to function more independently in the 

home community.

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Measure: The number of individuals (or families on behalf of individuals) referred to State or 

local agencies or service providers by HKNC‘s regional offices.

Year Target Actual 

2012 300

2013 245 898

2014 265 575

2015 265 551

2016 300

2017 285

Additional information: In fiscal year 2015, HKNC’s regional offices referred 551 individuals 

to State or local agencies or service providers. In recent years, regional offices have 

significantly increased the number of individuals referred to other entities for assistance due to 

the regional representatives’ involvement in four State-wide needs assessments and services 

rendered as part of the National Deaf-Blind Equipment Distribution Program (NDBEDP). 

Measure: The percentage of consumers who participated in services of programs (other than 

HKNC) as a result of receiving a referral from HKNC’s regional offices. 

Year Target Actual 

2012 74%

2013 66% 66

2014 67 95

2015 68 66

2016 66

2017 66

Additional information: This measure provides information on the activities of the field 

services programs, including the 11 regional representatives and the national training team, 

which consume a significant portion of the Center’s resources. Regional representatives serve 

individuals with deaf-blindness in their home communities, which often lack other service 

providers that are trained and equipped to 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 over the phone, while others benefit from repeated in-person visits for a 

variety of services, such as skills assessments, counseling, and advocacy. 

Fiscal year 2015 data reflects a return to actual data prior to fiscal year 2014, which showed a 

significant increase in the percentage of consumers participating in service programs (other 

than HKNC programs) as a result of a regional office referral. RSA is reviewing the data 

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reported for fiscal years 2014 and 2015, and will work with HKNC to assess whether fiscal year 

2014 performance represents a one-time anomaly. 

Objective: HKNC will assist State vocational rehabilitation and employment programs in 

increasing employment outcomes for individuals who are deaf-blind.

Measure: The number of referrals by HKNC’s regional offices to vocational rehabilitation or 

related employment programs.

Year Target Actual 

2012 57

2013 84 62

2014 88 65

2015 92 65

2016 65

2017 65

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 

2012 45%

2013 28% 32

2014 30 55

2015 32 46

2016 40

2017 40

Additional information: HKNC plays an important role in connecting individuals who are deafblind to vocational rehabilitation agencies. Many vocational rehabilitation (VR) agencies lack 

sufficient numbers of personnel trained in providing services to consumers who are deaf-blind. 

HKNC field staff frequently facilitate interactions between consumers and VR agencies, train VR 

agency staff about the specialized needs of these clients, and assist consumers who are 

returning to their State’s VR system after attending intensive training at HKNC headquarters. 

However, the number of referrals to VR agencies is somewhat limited by the fact that not all 

consumers served by HKNC field staff have vocational goals. 

For the measure on the percentage of individuals who achieved employment outcomes, the 

numerator is the number of clients served by HKNC regional representatives who achieved 

employment outcomes in which HKNC’s regional offices played a collaborative role providing 

training, advocacy and/or support to the consumer or job training agency. The denominator is 

the total number of clients served by HKNC regional representatives who achieved employment 

outcomes. In fiscal year 2015, 46 percent of individuals achieved successful employment 

outcomes in which HKNC’s regional offices played a collaborative role providing training, 

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advocacy and/or support to the consumer or job training agency, and exceeded the target for 

his measure.

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REHABILITATION SERVICES

State Tables

State Tables

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