1Department of Education

J. REHABILITATION SERVICES

Fiscal Year 2022 Budget Request

CONTENTS

Page

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

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

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

Summary of Changes ................................................................................................................ J-4

Authorizing Legislation............................................................................................................... J-5

Appropriations History................................................................................................................ J-6

Summary of Request ................................................................................................................. J-7

Activities:

Vocational rehabilitation State grants .................................................................................... J-9

Client assistance State grants ............................................................................................. J-23

Training................................................................................................................................ J-29

Demonstration and training programs ................................................................................. J-35

Protection and advocacy of individual rights ....................................................................... J-41

Supported employment State grants ................................................................................... J-45

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

Helen Keller National Center............................................................................................... J-56

State tables*

State tables reflecting final 2020 allocations and 2021 and 2022 estimates are posted on the 

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

Appropriations Language

REHABILITATION SERVICES

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

Helen Keller National Center Act, [$3,814,220,000] $3,894,820,000, of which [$3,675,021,000]

$3,719,121,000 shall be for grants for vocational rehabilitation services under title I of the 

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

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

the Rehabilitation Act for innovative activities aimed at increasing competitive integrated 

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

Provided further, That States may award subgrants for a portion of the funds to other public and 

private, nonprofit entities3: 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, [2022] 2023.4 (Department of Education 

Appropriations Act, 2021.)

NOTE

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

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

J-2

Analysis of Language Provisions and Changes

Language Provision Explanation

1 ...of which [$3,675,021,000] 

$3,719,121,000 shall be for grants for 

vocational rehabilitation services under title I 

of the Rehabilitation Act:

 

This language earmarks funds provided for 

Vocational Rehabilitation (VR) State Grants 

program.

2 Provided, That the Secretary may use 

amounts provided in this Act that remain 

available subsequent to the reallotment of 

funds to States pursuant to Section 110(b) of 

the Rehabilitation Act for innovative activities 

aimed at increasing competitive integrated 

employment as defined in section 7 of such 

Act for youth and other individuals with 

disabilities: 

This language allows the Secretary to use 

amounts that remain available subsequent to 

the reallotment of funds to States under the 

VR State Grants program for innovative 

activities aimed to increase competitive 

integrative employment for youth and other 

individuals with disabilities. The inclusion of 

this language ensures that unused funds 

remain available to improve the outcomes of 

individuals with disabilities, instead of being 

returned to the Treasury.

3 Provided further, That States may award 

subgrants for a portion of the funds to other 

public and private, nonprofit entities: 

This language permits States to use a portion 

of their project funds to make subgrants to 

other public and private, nonprofit entities for 

carrying out innovative activities aimed at 

increasing competitive integrated employment 

for youth and other individuals with 

disabilities.

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, [2022] 

2023.

This language permits the funds made 

available subsequent to reallotment of VR 

State Grant funds for activities aimed at 

increasing competitive integrated employment 

for youth and other individuals with disabilities 

to remain available for two years.
REHABILITATION SERVICES

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Appropriation, Adjustments, and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2020 2021 2022

Discretionary:

Discretionary: Appropriation............................................... $137,699 $139,199 $175,699

Total, discretionary appropriation ....... 137,699 139,199 175,699

Mandatory:

Mandatory: Appropriation............................................... 3,610,040 3,675,021 3,719,121

Mandatory Sequester (P.L. 112-25).............................. -212,992 -209,476 -211,990

Total, adjusted mandatory appropriation. 3,397,048 3,465,545 3,507,131

Total, discretionary and adjusted 

mandatory appropriation ......................... 3,534,747 3,604,744 3,682,830
J. REHABILITATION SERVICES

J-4

Summary of Changes

(dollars in thousands)

2021.............................................................................................. $3,814,2201

2022................................................................................................ 3,894,8202

Net change ................................................................ +80,600

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

(P.L. 112-25) that went into effect on October 1, 2020. The reduced level for 2021 subsequent to the 5.7 percent 

sequester is $3,604,744 thousand, a reduction of $209,476 thousand. 2 Excludes the 5.7 percent reduction of mandatory VR State Grant funds pursuant to the Budget Control Act of 2011 

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

sequester is $3,682,830 thousand, a reduction of $211,990 thousand.

Increases: 2021 base

Change 

from base

Built in

Increase in funding for Vocational rehabilitation (VR) State 

grants, consistent with the inflation increase specified in the 

authorizing statute. $3,675,021 +$44,100

Program:

Increase in funding for Demonstration and training programs to 

support new grants focused on competitive integrated 

employment and to provide additional support for the Parent 

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

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

Net change +80,600
REHABILITATION SERVICES

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J-5

Authorizing Legislation

(dollars in thousands)

Activity

2021

Authorized

footnote

2021

Estimate

footnote

2022

Authorized

footnote

2022

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B-110 and 111) $3,675,021 1 $3,414,8952 0 3 $3,667,318

VR Grants for Indians (RA-I-C) (1, 4) 50,6502 (3,4) 51,803

Client assistance State grants (RA-I-112) 14,098 5 13,000 0 6 13,000

Supported employment State grants (RA-VI) 32,363 5 22,548 0 6 22,548

Training (RA-III-302) 39,540 5 29,388 0 6 29,388

Demonstration and training programs (RA-III-303) 6,809 5 5,796 0 6 40,796

Services for older blind individuals (RA-VII-2) 39,141 5 33,317 0 6 33,317

Protection and advocacy of individual rights (RA-V-509) 20,735 5 18,150 0 6 18,150

Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) 0 7 17,000 0 7 18,500

Total definite authorization 3,827,707 0

Total discretionary appropriation 139,199 175,699

Total mandatory appropriation 3,675,021 3,719,121

Total appropriation 3,814,220 3,894,820

Portion of request not authorized 17,000 3,894,820

Total appropriation including required mandatory reduction 3,604,7442

_______________________________

1 Section 100(d) of the Rehabilitation Act and GEPA extend the authorization of appropriations for this program through fiscal year 2021. The authorizing 

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

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

(P.L. 112-25). 3 The Sec. 100(d) of the Rehabilitation Act and GEPA extensions expire September 30, 2021; continued funding is proposed for this program in fiscal year 2022 

through appropriations language. The authorizing legislation specifies that the amount to be appropriated for a fiscal year be at least the level of the prior fiscal 

year increased by the 12-month percentage change from October to October in the Consumer Price Index for all Urban Consumers (CPIU). 4 The Rehabilitation Act requires that 1.0 percent to 1.5 percent of the appropriation for Vocational Rehabilitation State grants be set aside for Grants to Indians. 5 The GEPA extension applies through September 30, 2021.

6 The GEPA extension expires September 30, 2021; continued funding is proposed for this program in fiscal year 2022 through appropriations language. 7 The GEPA extension expired September 30, 2004; continued funding is proposed for this program in fiscal year 2022 through appropriations language.
REHABILITATION SERVICES

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Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation

Foot2013 $3,517,710 $3,511,2811 $3,626,3801 $3,622,925

2014 3,655,577 N/A2 3,698,1743 3,680,497

2015 3,683,335 N/A2 3,722,8533 3,709,853

2016 3,532,109 3,529,6054 3,487,8644 3,529,605

2017 3,541,389 3,534,0275 3,536,3895 3,535,5895

2018 3,563,008 3,562,5826 3,562,4186 3,361,1436

2019 3,634,977 3,657,6897 3,656,1897 3,657,1897

2020 3,719,527 3,752,0768 3,745,2398 3,747,7398

2021 3,782,952 3,827,5009 3,805,5009 3,814,2209

2022 3,894,820

1 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.

2 The House allowance is shown as N/A because there was no Subcommittee action. 3 The level for the Senate allowance reflects Senate Subcommittee action only.

4 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. 5 The levels for House and Senate allowances reflect Committee action on the regular annual 2017 appropriations 

bill; the Appropriation reflects the Consolidated Appropriation Act, 2017. 6 The levels for the House reflect floor action on an Omnibus appropriation bill; Senate allowances reflect Committee 

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

level.

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

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

Education Appropriations Act, 2019 (P.L. 115-245). 8 The Senate allowance reflects the Chairman’s mark; the Appropriation reflects the Further Consolidated 

Appropriation Act, 2020 (P.L. 116-94). 9 The level for the House allowance reflects subcommittee action. The level for the Senate Allowance reflects the 

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

260).
K.

J-7

Summary of Request

Click here for accessible version
REHABILITATION SERVICES

J-8

Summary of Request

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

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

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

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

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

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

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

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

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

authorization for all programs within the Rehabilitation Services account for FY 2022 is 

requested through appropriations language.

The Administration’s 2022 request for the Rehabilitation Services account provides $3.9 billion

to support comprehensive and coordinated vocational rehabilitation for individuals with 

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

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

independently.

The $3.7 billion request for the Vocational Rehabilitation (VR) State Grants program includes an 

increase of $44.1 million over the fiscal year 2021 mandatory level, consistent with the inflation 

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

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

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

to promote a coordinated and streamlined system. As an integral partner in this system, the VR 

program is the primary Federal vehicle for assisting individuals with disabilities, particularly 

individuals with the most significant disabilities, to prepare for, obtain, retain, or advance in high 

quality employment.

The request includes an increase of $35 million over the fiscal year 2021 level for the 

Demonstration and training program to support model demonstration projects and related 

technical assistance focused on helping consumers transition from subminimum wage 

employment or education to competitive integrated employment, and to provide additional 

support through the Parent Information and Training program. 

The request also includes an increase of $1.5 million over the fiscal year 2021 level for the 

Helen Keller National Center for Deaf-Blind Youths and Adults to provide services to deaf-blind 

individuals and their families, as well as technical assistance to local service providers. 

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

account at the 2021 appropriation level.
REHABILITATION SERVICES

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Vocational rehabilitation State grants

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

(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority: 

Program

2021

Appropriation

2022

Request footn

ote

Change from

2021 to 2022

State grants $3,624,371 $3,667,318 +$42,947

Set-aside for American Indian 

Vocational Rehabilitation Services

 50,650 51,803 1,153

Total 3,675,0212

3,719,1212+44,100

1 The Sec. 100(d) of the Rehabilitation Act and GEPA extensions expire September 30, 2021; continued funding is 

proposed for this program in fiscal year 2022 through appropriations language. The authorizing statute specifies that 

the amount to be appropriated for a fiscal year be at least the level of the prior fiscal year increased by the 12-month 

percentage change (from October to October) in the Consumer Price Index for all Urban Consumers (CPIU). The 

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

each fiscal year for VR State Grants be set aside for Grants for American Indian Vocational Rehabilitation Services.

2 The levels shown in the 2021 column are the mandatory amounts for the VR State Grants program and do not 

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

level for fiscal year 2021 subsequent to the 5.7 percent sequester that went into effect on October 1, 2020 is 

$3,465,544,803, a reduction of $209.5 million from the mandatory level. The reduced level for fiscal year 2022,

subsequent to the 5.7 percent sequester that went into effect on October 1, 2020 is $3,507,131,103, a reduction of 

$211.9 million from the mandatory level.

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

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

Consumer Price Index for Urban Consumers.

Workforce Development System

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

Innovation and Opportunity Act (WIOA), which supports a comprehensive, accessible, high-
REHABILITATION SERVICES

Vocational rehabilitation State grants

J-10

quality workforce development system that includes programs and investments in employment 

services, workforce development, adult education, and vocational rehabilitation and is aligned

with regional economic development strategies to meet the needs of local and regional 

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

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

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

their needs for qualified personnel. 

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

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

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

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

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

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

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

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

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

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

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

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

that results in a substantial impediment to employment and who require and can benefit from 

VR services to achieve and maximize employment and career goals. Program services are 

tailored to the specific needs of the individual through an individualized plan for employment 

(IPE). The VR program provides a variety of services, such as vocational evaluation, 

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

employment services, and treatment of mental or physical conditions, that may reasonably be 

expected to reduce or eliminate one or more barriers to employment. Priority is given to serving 

individuals with the most significant disabilities. Pre-employment transition services may be 

provided to students with disabilities who are in a secondary, postsecondary, or other 

recognized education program and are eligible or potentially eligible for VR services. 

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

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

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

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

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

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

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

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

(MOE) deficit from any previous fiscal year. 

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

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

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

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

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

Vocational rehabilitation State grants

J-11

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

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

Disability Innovation Fund

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

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

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

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

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

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

improve the education and employment outcomes of children receiving Supplemental Security 

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

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

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

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

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

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

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

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

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

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

fiscal year 2020. 

The Department plans to use the remaining fiscal year 2020 funds to provide $59,000 in 

supplemental awards to Transition Work-Based Learning DIF projects and approximately $110 

million in new awards through the Career Advancement Initiative Model Demonstration DIF 

competition. This competition will fund a multi-site model demonstration project designed to 

assist State VR agencies, in partnership with other entities, to develop career pathways that are 

aimed at helping individuals with disabilities advance in their careers or change to high-demand, 

high-quality careers. 

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

section of this request.

American Indian Vocational Rehabilitation Services 

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

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

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

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

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

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

on Federal and State reservations.
REHABILITATION SERVICES

Vocational rehabilitation State grants

J-12

Funding levels for the past 5 fiscal years for Vocational Rehabilitation State Grants were as 

follows:

Fiscal Year (dollars in thousands) footnote

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

2018........................................................................ 3,225,0381

2019........................................................................ 3,303,6271

2020........................................................................ 3,397,048 1

2021........................................................................ 3,465,545 1

1 The amounts shown for 2017 through 2021 reflect the sequester reduction for mandatory programs pursuant to the 

Budget Control Act of 2011 (P.L. 112-25). The mandatory appropriation was reduced by 6.9 percent in 2017, 6.6 

percent in 2018, 6.2 percent in 2019, 5.9 percent in 2020, and 5.7 percent in 2021.

FY 2022 BUDGET REQUEST

For fiscal year 2022, the Administration requests $3.7 billion for the VR State Grants programs, 

$44.1 million more than the fiscal year 2021 appropriation, to help States and Tribal 

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

year 2022 request reflects the current estimate of the mandatory amount required by the 

authorizing statute. Of the amount requested, $51.8 million, or 1.4% of the funds requested for 

the VR State Grants program, will be set aside to support grants under the AIVRS program.

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

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

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

2020 employment data from the U.S. Bureau of Labor Statistics show that of those aged 16-64 

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

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

without such disabilities (29.1 percent versus 70.0 percent, respectively). Of those people with 

disabilities who were employed, 29 percent usually worked part-time (less than 35 hours per 

week) compared to 16 percent of people without such disabilities.2

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

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

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

competitive integrated employment. Nationally, there are approximately 1.5 million 

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

vocational rehabilitation process, about three-quarters of whom received VR services under 

an individualized plan for employment (IPE) during fiscal year 2020. Approximately 

94 percent of these individuals were individuals with significant disabilities.

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

Vocational rehabilitation State grants

J-13

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

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

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

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

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

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

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

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

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

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

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

Disability Innovation Fund

The fiscal year 2021 appropriation provides the Department with authority to use amounts that 

remain available following the reallotment of funds to States under Section 110(b) of the 

Rehabilitation Act for innovative activities aimed at increasing competitive integrated 

employment for youth and other individuals with disabilities. If fiscal year 2021 funds remain 

available following reallotment, the Department may run an additional competition in fiscal year 

2022 under this authority. 

American Indian Vocational Rehabilitation Services

The request would provide $51.8 million for grants under the American Indian Vocational 

Rehabilitation Services (AIVRS) program, allowing the Department to continue to support 95

tribal VR projects. These funds enable Tribal governments to provide a program of VR services

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

reservations. The Department plans to reserve 2.0 percent of these funds to support training 

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

reservations.

In early spring 2020, the effects of the COVID-19 pandemic began to be felt in the United 

States. American Indian reservations experienced a high rate of COVID-19 infections and had 

limited medical resources to treat those who were infected. Many AIVRS grantees took actions 

to limit the spread of COVID-19 by requiring their nonessential personnel to work from home. As 

a result, many potential AIVRS applicants expressed concern about their ability to access 

information needed to apply for a grant. To ensure that there would be sufficient competition for 

new AIVRS grants and to avoid any potential discontinuity that would result from the transition 

to new grantees, the Department extended the AIVRS projects that were in their fifth year of 

operation, as well the AIVRS Training and Technical Assistance Center, for one additional year, 

through fiscal year 2021. The Department will hold a competition for new awards under the 

AIVRS program and a new AIVRS Training and Technical Assistance Center in fiscal year 

2021.
REHABILITATION SERVICES

Vocational rehabilitation State grants

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PROGRAM OUTPUT MEASURES

Vocational rehabilitation State grants

Output Measures 2020 20211 20221

Individuals receiving VR services under an IPE 844,426 840,000 850,000

Individuals with significant disabilities as a percent of 

all individuals receiving services 94% 94% 94%

Eligible individuals whose case files were closed 400,000 400,000 425,000

Individuals whose cases were closed and received 

VR services 300,000 300,000 325,000

Individuals achieving an employment outcome 116,524 115,000 120,000

Individuals with significant disabilities as a percent of 

individuals achieving employment outcomes 94% 94% 94%

American Indian vocational rehabilitation services

(dollars in thousands)

Output Measures 2020 2021 footnote2022 Footnote

Project funding:

Project funding: New awards 0 $27,086 0

Project funding: Continuation awards $44,345 22,515 $50,790

Project funding: Technical assistancefunds 905 1,013 1,013

Project funding: Peer review of new awards’ applications 0 36 0

Total 45,250 50,650 51,803

Number of AIVRS projects:

Number of New projects – AIVRS 0 52 0

Number of Continuation projects – AIVRS 87 44 96

Total projects 87 96 96

1The 2021 and 2022 output measures data for Vocational rehabilitation State grants are estimates. 
REHABILITATION SERVICES

J-15

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures, and performance targets and data. Achievement of program 

results is based on the cumulative effect of the resources provided in previous years, and those 

requested in fiscal year 2022 and future years, as well as the resources and efforts invested by 

those served by this program. The Department will be reviewing GPRA program performance 

goals, objectives, and measures for Vocational rehabilitation State grants for possible revision in 

future years to ensure alignment with Administration policy.

VR State Grants 

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

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

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

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

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

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

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

and reported interim measures that were aligned with the WIOA performance indicators as 

State VR agencies continued to collect and report WIOA data. 

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

performance indicators. Program year 2020 data on the new measures will be reported in the 

fiscal year 2023 Congressional Justification.

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

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

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

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

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

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

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

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

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

Fiscal year 2020 is the last year the Department will report on the interim VR performance 

measures. 

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

program will achieve high quality employment. 

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

Rehabilitation State Grant program achieve competitive integrated employment consistent with 

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

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

employment. 

Year Target Actual

2017 50% 48%

2018 50 47

2019 50 46

2020 50 44

Additional Information: State performance varies considerably on this measure, ranging from 

a low of 24.5 percent to a high of 62.5 percent in fiscal year 2020. Among those individuals who 

exited the VR program in FY 2020 with an employment outcome, 100 percent obtained 

competitive integrated employment.

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

competitive integrated employment outcome. 

Year Target Actual

2017 $325 $320

2018 330 325

2019 335 338

2020 340 360

Additional Information: Median weekly earnings at exit ranged from $238 to $600 in fiscal 

year 2020, as compared with $218 to $680 in fiscal year 2019.

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

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

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

seven specified training services. 

Year Target Actual

2017 35% 32%

2018 35 16

2019 35 15

2020 35 11

Additional Information: For the purpose of this measure, youth participants are youth with a 

disability between the ages of 14 and 24 at the time of application to the VR program. Training 

services, for the purpose of this measure, include: (1) graduate college or university training; (2) 

4-year college or university training; (3) junior or community college training; (4) occupational or 

vocational training; (5) apprenticeship training; (6) basic academic remedial or literacy training; 

or (7) miscellaneous training.

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

performance ranged from a high of about 65.8 percent to a low of about 1.5 percent in fiscal 

year 2020. Of the seven training services, the most frequently received was miscellaneous 

training followed by four-year college training. The Department notes the downward trend in the 

receipt of these services, which is likely the result of States providing more pre-employment 

transition services to more students with disabilities. 

New VR Performance Measures

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

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

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

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

or achieving employment. 

Measure: The percentage of VR program participants who achieved measurable skill gains, in 

accordance with WIOA, during the program year.

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

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

they received. 

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

quarter after exit from the program. 

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

quarter after exit from the program. 
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American Indian Vocational Rehabilitation Services

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

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

efficiency measures for this program.

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

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

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

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

continue to show a downward trend in fiscal years 2020, 2021, and 2022. 

The fiscal year 2019 data do not include data from two grantees that were unable to submit their 

data in a timely manner. In both situations, the Tribes did not receive new grant awards in the 

fiscal year 2019 competition; while both Tribes received a one-year no-cost extension, they

released all of their AIVRS project staff from employment. As a result, the RSA Program Officer

worked with the Tribal administrative staff to submit the fiscal year project data and performance 

reports. The Department will update the fiscal year 2019 data to include these grantees in the 

fiscal year 2023 Congressional Justification. 

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 an employment outcome, after 

receiving services under an individualized plan for employment.

Year Target Actual

2017 67% 68%

2018 67 68

2019 67 58

2020 68

2021 68

2022 68

Additional information: Data for fiscal year 2019 show that 2,067, or 58.4 percent, of the 

3,539 individuals with disabilities who exited the program after receiving services in that year 

achieved an employment outcome. Fiscal year 2020 data will be available in summer 2021.

Efficiency Measures

The Department established two efficiency measures to ensure that AIVRS projects 

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

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

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

outcome of no more than $35,000.

Year Target Actual

2017 76% 77%

2018 76 84

2019 76 59

2020 76

2021 76

2022 76

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

ranging from $7,167 to $192,294.

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

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

Year Target Actual

2017 80% 74%

2018 80 73

2019 75 66

2020 75

2021 75

2022 75

Additional information: The median annual cost per participant for the 86 projects reporting 

data was $6,472 in fiscal year 2019, $683 more than the median cost in fiscal year 2018 of 

$5,789, while the mean annual cost per participant in fiscal year 2019 was $7,301 due to a 

small number of project outliers. Targets beginning in fiscal year 2019 are lower than prior years 

to reflect increased costs in serving American Indians with disabilities. 

Disability Innovation Fund 

Promoting Readiness of Minors in Social Security Income 

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

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

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

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

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

States developed partnerships and implemented interventions designed to improve the 

provision and coordination of services and supports for children who received SSI and their 
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families, and achieve outcomes leading to increased economic self-sufficiency and a reduction

in their dependence on SSI payments. 

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

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

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

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

unobligated fiscal year 2014 VR funds.

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

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

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

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

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

technical assistance center’s website.1

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

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

impacts of the six PROMISE programs on outcomes related to service receipt, education, 

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

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

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

PROMISE evaluation. This report and others are available on SSA’s website.2 Key findings, in 

addition to the report, are provided on Mathematica Policy Research’s website.3 Specifically, the 

interim services and impact report found:

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

employment, and family member receipt of support services.

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

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

VR services. 

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

credentials. 

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

SSA payments. 

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

parents’ education and job-related training. 

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

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

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

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

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

https://www.ssa.gov/disabilityresearch/promise.htm. 3 These reports will be available at https://www.mathematica-mpr.com/our-publications-andfindings/projects/evaluate-the-promoting-readiness-of-minors-in-supplemental-security-income-promise-grants.
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Insights About the Transition System for SSI Youth from the National Evaluation of Promoting 

Readiness of Minors in SSI1 and the Family Service Use and Its Relationship with Youth 

Outcomes.2

Automated Personalization Computing Project 

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

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

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

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

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

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

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

technology infrastructure on which Internet-capable computers automatically run assistive 

technology solutions customized for individual users with disabilities according to their 

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

Independent Living, and Rehabilitation Research which is administered by the Administration for 

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

Board, among others, in overseeing this initiative.

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

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

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

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

community college to job settings.

The COVID-19 pandemic disrupted the grantee’s plans to implement many final year activities

in fiscal year 2020, such as testing and disseminating its software. Section 153 of the 

Continuing Appropriations Act, 2021 and Other Extensions Act extended the availability of funds 

for APCP through September 30, 2021, and the grantee is expected to complete accessibility 

testing on multiple computer platforms and conduct disability sector outreach and dissemination

during fiscal year 2021. 

Transition Work-Based Learning Demonstrations 

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

enrollment rates, and higher unemployment rates than peers without disabilities.3 To help 

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

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

1 https://www.mathematica.org/our-publications-and-findings/publications/insights-about-the-transition-system-for-ssiyouth-from-the-national-evaluation-of-promoting 2 https://www.mathematica.org/our-publications-and-findings/publications/promoting-readiness-of-minors-insupplemental-security-income-family-service-use 3 Luecking, D.M., & Luecking, R.G. (2015, May). Translating Research Into a Seamless Transition Model. Career 

Development and Transition for Exceptional Individuals, 38(1), 4-13.
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States are required to reserve 15 percent of their VR allotment to provide pre-employment 

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

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

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

enrollment in comprehensive transition or postsecondary educational programs at institutions of 

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

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

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

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

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

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

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

supported by research and are rigorously evaluated.

A brief description of the five projects is provided below.

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

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

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

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

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

randomized control design implemented across eight diverse school districts. 

(https://www.way2workmd.net)

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

Rehabilitation to evaluate two innovative interventions using a progressive employment 

model. The project plans to expand employer relationships and align its dual customer 
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community-based strategy with enhanced JMG programs for students with disabilities. The 

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

grants. 

Career Advancement Initiative Model Demonstration Project

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

year grants to fund a multi-site model demonstration project designed to assist State VR 

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

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

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

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

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

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

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

employment who re-enter the VR program, to:

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

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

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

apprenticeship programs;

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

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

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

(TANF), and State or local benefits). 

Client assistance State grants

(Rehabilitation Act of 1973, Title I, Section 112)
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(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority: 

2021

Appropriation

2022

Request 

Change from

2021 to 2022

$13,000 $13,000 0

1 The GEPA extension expires September 30, 2021; continued funding is proposed for this program in fiscal year 

2022 through appropriations language.

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

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

contact the CAP. 

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

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

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

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

the CAP to an agency that does not provide services under the Act. Currently 42 CAPs are 

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

agencies, and 7 are operated by the State VR agency. 

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

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

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

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

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

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

program for two activities before awarding grants to eligible States and outlying areas with the 
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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 rises to at least $14 million, the Department must set aside between 1.8 percent 

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

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

CAPs through the Rehabilitation Training program.

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

Fiscal Year (dollars in thousands)

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

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

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

2020............................................................................13,000

2021............................................................................13,000

FY 2022 BUDGET REQUEST

For fiscal year 2022, the Administration requests $13 million for CAP, level with the fiscal year 

2021 appropriation. CAPs promote understanding of the rehabilitation services and benefits 

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

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

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

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

other appropriate remedies needed to protect their rights.

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

2020 from the most recently available RSA Annual Client Assistance Program Report (RSA227) show that, nationwide, CAPs responded to 18,681 requests for information and referral 

(I&R). While the average number of I&R requests that States responded to was 328, the median 

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

CAPs. Approximately 35 percent of all I&R requests were for information regarding the VR 

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

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

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

client, to 3,533 individuals in fiscal year 2020. Approximately 94 percent of the cases in which 

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

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

services. Of the 2,840 cases closed in fiscal year 2020, 1,194 cases (or 42 percent) were 

resolved by explaining the controlling policies to the individual; 547 cases (19 percent) resulted 

in the development or implementation of an individualized plan for employment (IPE); and 431

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

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

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

in evaluation, assigning a new counselor or office to the individual, identifying alternative 
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resources for the individual, or filing a complaint. Of the cases closed, 79 percent were resolved 

in the individual’s favor.

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

would support similar activities. 

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

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

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

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

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

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

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

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

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

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

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

impairment. The client contacted CAP and reported experiencing significant difficulties 

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

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

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

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

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

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

assessment to determine technological communication needs and sponsor the client to 

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

search services after she completed computer training.

PROGRAM OUTPUT MEASURES

Output Measures 2020 1 2021 2022 

Information inquiries/referrals 18,681 30,200 30,200

Individuals provided case services 3,533 4,300 4,300

_______________________________

NOTE: Data for fiscal years 2021 and 2022 are projected from actual final data reported for fiscal years 2016 through 

2020 on requests for information and the provision of extensive service through the RSA Annual Client Assistance 

Program Report (RSA-227). 

1The number of inquiries and referrals dropped significantly from 28,709 in 2019 to 18,681 in 2020 due to the COVID19 pandemic. Similarly, the number of individuals provided case services declined from 4,359 in 2019 to 3,533 in 

2020 due to the COVID-19 pandemic. Despite these declines, the Department expects the number of inquiries and 

referrals, and individuals provided case services, to return to more typical levels in coming years.
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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. Achievement of program 

results is based on the cumulative effect of the resources provided in previous years, and those 

requested in fiscal year 2022 and future years, as well as the resources and efforts invested by 

those served by this program. The Department will be reviewing GPRA program performance 

goals, objectives, and measures for Client assistance State grants for possible revision in future 

years to ensure alignment with Administration policy.

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

2017 74% 63%

2018 72 72

2019 68 65

2020 68

2021 68

2022 73

Additional information: While performance on this measure was trending downward from 

fiscal year 2014 through 2017, the Department learned that some CAPs were using a higher 

reporting standard than necessary. The Department has provided technical assistance to 

grantees to ensure that the reporting standards are being implemented consistently across 

CAPs. As a result of the technical assistance and an increased focus on relationship-building 

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

improve over time. 
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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 

2017 98% 98%

2018 98 98

2019 98 98

2020 98

2021 98

2022 98

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

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

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

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

litigation.
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Training

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

(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority: 

2021

Appropriation 

2022

Request 

Change from

2021 to 2022 

$29,388 $29,388 0

1 The GEPA extension expires September 30, 2021; continued funding is proposed for this program in fiscal year 

2022 through appropriations language.

PROGRAM DESCRIPTION

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

the rehabilitation needs of individuals with disabilities assisted through other vocational 

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

activities designed to increase the number of qualified personnel providing rehabilitation 

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

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

conducting training programs. 

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

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

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

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

The rehabilitation long-term training program supports academic training grants that must direct 

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

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

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

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

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

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

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

psychological rehabilitation programs, supported employment programs, independent living 

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

or national scope. In contrast, the innovative rehabilitation training program supports grants that 

develop new types of training programs or new and improved methods of training for 

rehabilitation personnel, and demonstrate the effectiveness of such training programs. This 

program supports time-limited pilot projects through which new types of rehabilitation workers 
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may be trained or through which innovative methods of training rehabilitation personnel may be 

demonstrated. 

The training of interpreters program supports interpreter training programs and provides 

financial assistance to establish interpreter training programs or for ongoing interpreter 

programs to train a sufficient number of qualified interpreters throughout the country in order to 

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

who are deaf-blind. The program focuses on training interpreters to effectively interpret and 

transliterate between spoken language and sign language and to transliterate between spoken 

language and oral or tactile modes of communication, as well as maintaining and improving the 

skills of qualified interpreters. 

Awards may also be made for technical assistance centers. These awards are made to pay part 

of the costs of projects that provide State VR agency personnel with training and technical 

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

personnel, including rehabilitation counselors. The National Clearinghouse of Rehabilitation 

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

resource availability for individuals with disabilities.

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

Fiscal Year (dollars in thousands)

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

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

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

2020.....................................................................29,388

2021.....................................................................29,388

FY 2022 BUDGET REQUEST

For fiscal year 2022, the Administration requests $29.4 million for the Training program, level 

with the fiscal year 2021 appropriation. In fiscal year 2022, approximately $28.1 million would be 

used to support continuation awards, approximately $1.0 million would be used to support

contracts, and $294,000 would be used for the Traditionally underserved populations program 

under section 21 of the Rehabilitation Act. 

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

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

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

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

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

believes that the LTT program, in concert with the Innovative Training program, which is 

designed to develop new types of training programs and new and improved methods of training 

rehabilitation personnel, are the best mechanisms for recruiting new graduates into the 

rehabilitation field and ensuring they have access to the most effective training. 
REHABILITATION SERVICES

Training

J-31

The Department plans to award approximately $15.5 million in continuation LTT grants, $3.4

million in continuation Innovative Training grants, and $442,000 in new contracts to support this 

work in fiscal year 2022.

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

under the Training, Demonstration and training, Supported employment, and Independent living 

services for older blind individuals programs for the Traditionally underserved populations

program (section 21 of the Rehabilitation Act). The request includes $294,000 to meet this 

requirement. These funds will be used to support continuation costs for a Capacity Building 

Center focused on improving the delivery of vocational rehabilitation (VR) services to, and the 

employment outcomes of, individuals of color with disabilities by providing cultural competency 

training to VR leadership and staff, collecting and analyzing relevant data, and disseminating 

evidence-based practices.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2020

footnote

2021

foot

note

2022

foot

note

Program Funding:

Long-Term Training:

Long-Term Training: New awards $5,617 1 0 $442

Long-Term Training: Continuation awards 9,258 $15,624 15,502

Long-Term Training: Subtotal 14,875 15,624 15,944

Technical Assistance:

Technical Assistance: New awards 6,000 0 0

Technical Assistance: Continuation awards 0 6,000 6,000

Technical Assistance: Subtotal 6,000 6,000 6,000

Short-Term Training:

Short-Term Training: New awards 0 347 0

Short-Term Training: Continuation awards 200 0 308

Short-Term Training: Subtotal 200 347 308

1 An additional $744 thousand of traditionally underserved populations (section 21 of the Rehabilitation Act) funding 

was also used toward new LTT awards, for a total of $6,361 thousand used for new LTT awards in FY 2020. 
REHABILITATION SERVICES

Training

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Output Measures 2020

footnote

2021

footn

ote

2022

Training for Interpreters for Individuals who are 

Deaf and Deaf-Blind:

Training for Interpreters: New awards 0 3,300 0

Training for Interpreters: Continuation awards 2,400 0 2,850

Training for Interpreters Subtotal 2,400 3,300 2,850

Innovative Rehabilitation Training:

Innovative Rehabilitation Training: New awards 720 0 0

Innovative Rehabilitation Training: Continuation awards 4,409 3,049 3,392

Innovative Rehabilitation Training: Subtotal 5,129 3,049 3,392

National Clearinghouse of Rehabilitation Training 

Materials:

National Clearinghouse of Rehabilitation Training Materials: New awards 0 761 0

National Clearinghouse of Rehabilitation Training Materials: Continuation awards 454 0 600

National Clearinghouse of Rehabilitation Training Materials: Subtotal 454 761 600

Other Activities:

Other Activities: Peer review of new award applications $37 $13 0

Other Activities: Traditionally underserved populations 293 294 $294

Other Activities Subtotal 330 307 294

Program Totals:

Total: New awards 12,337 4,408 442

Total: Continuation awards 16,721 24,673 28,652

Total: Other Activities 330 307 294

Total 29,388 29,388 29,388

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures, and performance targets and data. Achievement of program 

results is based on the cumulative effect of the resources provided in previous years, and those 

requested in fiscal year 2022 and future years, as well as the resources and efforts invested by 

those served by this program. The Department will be reviewing GPRA program performance 

goals, objectives, and measures for Training for possible revision in future years to ensure 

alignment with Administration policy.
REHABILITATION SERVICES

Training

33

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

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

requirements through employment in State vocational rehabilitation agencies.

Year Target Actual

2017 45% 29%

2018 45 36

2019 40 35

2020 40 39

2021 40

2022 40

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

requirements through qualifying employment.

Year Target Actual

2017 85% 71%

2018 85 88

2019 85 94

2020 85 88

2021 85

2022 85

Additional Information: Qualifying employment includes employment in a State vocational 

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

Efficiency Measures

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

graduate.

Year Target Actual

2017 $24,000 $48,823

2018 24,000 ---

2019 24,000 $36,771

2020 24,000 $41,780

2021 24,000

2022 24,000

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

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

Training

34

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

those grants with at least 90 percent of the scholars in a Master’s program are included. One 

grant with only five completers closed in fiscal year 2017, leading to the high Federal cost per 

RSA-supported graduate in fiscal year 2017. No grants closed in fiscal year 2018 so no data are 

available for fiscal year 2018. The fiscal year 2019 data includes 47 closed grants with 1,101 

completers. The fiscal year 2020 data includes 45 closed grants with 993 completers. 
REHABILITATION SERVICES

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Demonstration and training programs

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

(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority: 

2021

Appropriation 

2022

Request 

Change from

2021 to 2022 

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

1 The GEPA extension expires September 30, 2021; continued funding is proposed for this program in fiscal year 

2022 through appropriations language.

PROGRAM DESCRIPTION

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

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

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

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

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

and evaluation activities.

Specific activities include: 

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

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

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

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

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

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

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

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

other authorized representatives to participate more effectively with professionals in 

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

disabilities.

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

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

educational services to youth and adults who are blind.
REHABILITATION SERVICES

Demonstration and training programs

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Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

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

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

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

2020 ....................................................................... 5,796

2021 ....................................................................... 5,796

FY 2022 BUDGET REQUEST

The Administration requests $40.8 million for the Demonstration and Training programs, $35.0

million more than the fiscal year 2021 appropriation to support new model demonstration 

projects and related technical assistance, and to provide supplemental funding for the Parent 

Information and Training program. 

Approximately $31.3 million of the funding increase would be used to support model 

demonstration projects and technical assistance focused on supporting consumers to transition 

from subminimum wage employment and education to competitive integrated employment 

(CIE). Section 14(c) of the Fair Labor Standards Act, which allows for subminimum wage 

certificates for employers, was written prior to modern disability rights, civil rights, and workforce 

laws. Disability rights laws such as the Americans with Disabilities Act prohibit discrimination 

against individuals with disabilities and promote full participation in employment and community 

life.1 The Rehabilitation Act of 1973 and the Workforce Innovation and Opportunity Act (WIOA) 

include provisions focused on employment in integrated settings and competitive wages for 

individuals with disabilities.2 The United States Civil Rights Commission Report, Subminimum 

Wages: Impacts on the Civil Rights of People with Disabilities, strongly supports transitioning 

individuals with disabilities from subminimum wage employment to CIE, and recommends 

increased funding to help facilitate a smooth transition and to reduce barriers.3 In alignment with 

these findings, this funding will support opportunities for individuals with disabilities to achieve 

CIE and address barriers to serving all individuals with disabilities in the program. 

Approximately $3.3 million of the funding increase would be used to supplement funding for the

National Parent Training and Information Center (National PTI), as well as its eight Regional 

Parent Training and Information Centers (Regional PTIs). Prior to fiscal year 2020, 10 States 

received services through RSA’s PTI funding. Beginning in fiscal year 2020, RSA shifted to a

regional model to provide services in all states. Based on the existing funding level, each of 

these centers receives approximately $300,000 annually, for a total of $2.7 million invested 

annually in the National Center and regional centers. This increase would provide the National 

PTI with approximately $400,000 in supplemental funding to provide much needed guidance, 

support, and coordination to the Regional PTIs, including critical support needed as a result of

1 42 U.S.C. 12101(b)

2 Section 7(5) of the Rehabilitation Act of 1973, as amended (29 U.S.C. § 705(5)) and 29 U.S.C. § 701(b)(2)

3 https://www.usccr.gov/files/2020-09-17-Subminimum-Wages-Report.pdf
REHABILITATION SERVICES

Demonstration and training programs

J-37

the COVID-19 pandemic. This increase would also provide the Regional PTIs with 

approximately $2.9 million in supplemental funding to substantially increase collaboration 

among the Regional PTIs, develop new materials, and provide significantly more support to 

consumers in their regions, including those who were impacted by the COVID-19 pandemic.

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

under the Training, Demonstration and training, Supported employment, and Independent living 

services for older blind individuals programs for the Traditionally underserved populations 

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

would be used to cover the related increase to meet this requirement, for a total contribution of 

$408,000 from the Demonstration and training programs.

Approximately $3.5 million of funding would be used for continuation awards for the Braille 

Training program and the National Technical Assistance Center on Transition, and supporting 

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

individuals with disabilities.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output measures 2020 Footnote

2021 Footnote2022 footnote

Program funding:

Model demonstrations

Demonstrations: New awards 0 0 $31,329

Demonstrations: Continuation awards 0 0 0

Technical assistance

TA: New awards $2,689 1 0 0

TA: Continuation awards 0 $2,689 2,689

Braille training 

Braille: New awards 0 0 0

Braille: Continuation awards 342 342 342

Parent information and training

Parent information: New awards 2,700 0 0

information: Continuation awards 0 2,707 2,707

information: Supplemental awards 0 0 3,300

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

programs.
REHABILITATION SERVICES

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Output measures 2020 Footnote

2021 Footnote2022 footnote

Peer review of new award applications 7 0 21

Traditionally underserved populations 58 58 408

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

Number of awards:

Number of New awards 12 0 10

Number of Continuation awards 3 15 15

Total, Number of awards 15 15 25

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures, and performance targets and data. Achievement of program 

results is based on the cumulative effect of the resources provided in previous years, and those 

requested in fiscal year 2022 and future years, as well as the resources and efforts invested by 

those served by this program. The Department will be reviewing GPRA program performance 

goals, objectives, and measures for Demonstration and training programs for possible revision 

in future years to ensure alignment with Administration policy.

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

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

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

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

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

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

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

the Department will report on the current performance measures. Beginning with fiscal year 

2021, the Department will report on the new performance measures.

Vocational Rehabilitation Career Pathways for Individuals with Disabilities (CPID) 

Demonstration Projects

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

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

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

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

occupations.

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

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

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

Demonstration and training programs

J-39

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

Year Target Actual 

2017 72 78

2018 114 103

2019 121 107

2020 131 111

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

employment through CPID-accessed or created career pathways.

Year Target Actual 

2017 50 70

2018 150 201

2019 200 277

2020 250 292

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

competitive integrated employment.

Year Target Actual 

2017 $600 $543

2018 600 650

2019 630 680

2020 680 685

Other VR-CPID Measures

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

integrated employment and employer-provided benefits obtained by CPID participants 

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

weekly earnings of CPID participants who obtained competitive integrated employment 

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

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

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

New Performance Measures

National Technical Assistance Center on Transition

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

needed to prepare them for competitive integrated employment. 
REHABILITATION SERVICES

Demonstration and training programs

J-40

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

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

competitive integrated employment.

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

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

receiving pre-employment transition services. 

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

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

become VR program participants. 

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

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

students with disabilities who receive VR services. 

Parent Information and Training Programs

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

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

other rehabilitation needs. 

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

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

services.

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

services who report enhanced knowledge and understanding of VR services.

Objective: Improve the quality of parent training and information products and services.

Measure: The percentage of all products and services developed to improve VR service 

utilization deemed to be useful by individuals with disabilities and their families receiving PTI 

services. 
REHABILITATION SERVICES

J-41

Protection and advocacy of individual rights

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

(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority: 

2021

Appropriation

2022 

Request

Change from

2021 to 2022 

$18,150 $18,150 0

1 The GEPA extension expires September 30, 2021; continued funding is proposed for this program in fiscal year 

2022 through appropriations language.

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

U.S. Census Bureau).

The Rehabilitation Act establishes a minimum allotment of $100,000 for States, or one-third of 1 

percent of funds remaining after the technical assistance set-side and grant for the American 

Indian consortium, whichever is greater. The outlying areas receive a minimum allotment of 

$50,000. The program is current-funded, but States and outlying areas may carry over 

unobligated Federal funds for an additional year.
REHABILITATION SERVICES

Protection and advocacy of individual rights

J-42

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

Fiscal Year (dollars in thousands)

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

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

2019 ......................................................................................17,650

2020 ......................................................................................17,650

2021 ......................................................................................18,150

FY 2022 BUDGET REQUEST

For fiscal year 2022, the Administration requests $18.2 million for the PAIR program, level with 

the fiscal year 2021 appropriation, to help provide information and P&A services to over 39,000 

individuals with disabilities in fiscal year 2022. The Department plans to reserve 1.8 percent of 

the funds requested ($326,700) to provide training and technical assistance to eligible statewide 

systems established under this program, as required by the authorizing statute.

During fiscal year 2020, PAIR programs nationwide reported handling 9,428 cases and 

responded to 24,665 requests for information or referral. Of the individual cases handled by 

PAIR programs in that year, most were related to housing (17 percent), employment 

(16 percent), and education (15 percent). The most frequent primary disability categories 

(i.e., the ones directly related to the issues/complaints raised) reported for such individuals were 

orthopedic impairments (24 percent), neurological impairments (15 percent), and other 

disabilities (11 percent).

In addition to providing representation to individuals, PAIR programs address systemic issues 

faced by persons with disabilities through a variety of methods, including negotiations with 

public and private entities and class action litigation. In fiscal year 2020, 42 out of the 57 PAIR 

programs (74 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 2020 illustrate how PAIR 

programs assist individuals and, in some cases, bring about systemic change. Funds requested 

in fiscal year 2022 would support similar activities.

• Disability Law Colorado (DLC) received multiple reports of Supplemental Nutrition 

Assistance Program (SNAP) recipients with disabilities who were unable to get groceries 

delivered during the COVID-19 pandemic. Adults with disabilities are three times more likely 

than adults without disabilities to have heart disease, diabetes, cancer, or a stroke, placing 

them at greater risk once they contract COVID-19. They may also experience mobility 

issues, making it more difficult for them to physically distance themselves from others. 

Through some research and discussions with the state, DLC learned that Colorado was not 

approved for grocery delivery under the SNAP. DLC and its partners then successfully 

advocated for the admission of Colorado to participate in the SNAP Online Purchasing Pilot, 

which permits the use of SNAP benefits on grocery delivery.
REHABILITATION SERVICES

Protection and advocacy of individual rights

J-43

• The Minnesota Disability Law Center (MDLC) represented four clients who are deaf in a 

discrimination lawsuit against the Minnesota Department of Corrections (DOC), which 

addressed several different communication barriers in Minnesota prisons. A fifth plaintiff was 

represented by a private attorney who was co-counsel with MDLC on the case. Four of the 

plaintiffs were prisoners held in Minnesota prisons. The other plaintiff, who is deaf, is 

partnered with one of the prisoners and was not able to effectively communicate with her 

partner while he was in prison.

The plaintiffs encountered several communication barriers in the prisons, including unequal 

and ineffective access to the following programs and services provided by the DOC to 

prisoners who are hearing: telephone service (No Videophone and malfunctioning TTY); 

confidential communication with attorneys; educational and therapeutic programs (frequent 

lack of interpreters); educational and recreational programming on tablets made available to 

prisoners (no captioning for the programs); and prison announcements (made using the PA 

system—pagers were ineffective because guards did not make announcements on the 

pagers).

The DOC agreed to settle the client’s complaint after extensive pre-trial discovery. The 

settlement agreement requires the Department to take appropriate actions to remedy the 

situation and provide equal access to programs and services the DOC provides for 

prisoners who are hearing. The DOC also paid statutory attorney’s fees to the MDLC. The 

settlement of this case will benefit all current and future prisoners who are deaf in the 

Minnesota prison system.

PROGRAM OUTPUT MEASURES

Output Measures 2020 2021 2022 

Information inquiries/referrals 24,665 29,500 29,500

Individuals provided case services 9,428 9,500 9,500

NOTE: Output data for 2022 are projected from actual data reported by PAIRs for fiscal years 2018, 2019, and 2020 

on the number of requests for information and provision of case services to individuals with disabilities.

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures, and performance targets and data. Achievement of program 

results is based on the cumulative effect of the resources provided in previous years, and those 

requested in fiscal year 2022 and future years, as well as the resources and efforts invested by 

those served by this program. The Department will be reviewing GPRA program performance 
REHABILITATION SERVICES

Protection and advocacy of individual rights

J-44

goals, objectives, and measures for the PAIR program for possible revision in future years to 

ensure alignment with Administration policy.

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 

2017 91% 89%

2018 89 77

2019 89 95

2020 89 74

2021 89

2022 89

Additional information: Because PAIR programs cannot address all issues facing individuals 

with disabilities solely through individual advocacy, they seek to change public and private 

policies and practices that present barriers to the rights of individuals with disabilities, utilizing 

negotiations and class action litigation. Based on a review of past data and other program 

information, RSA has reduced the targets in fiscal year 2018 and beyond to 89 percent (51 of 57 

PAIR programs).
REHABILITATION SERVICES

J-45

Supported employment State grants

(Rehabilitation Act of 1973, Title VI)

(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority:

2021

Appropriation 

2022

Request 

Change from

2021 to 2022 

$22,548 $22,548 0

1 The GEPA extension expires September 30, 2021; continued funding is proposed for this program in fiscal year 

2022 through appropriations language.

PROGRAM DESCRIPTION

The Supported Employment (SE) State Grants program assists States in developing 

collaborative programs with appropriate public and private non-profit organizations to provide 

supported employment services for individuals with the most significant disabilities. More 

specifically, the program provides formula-based supplemental funding to State vocational 

rehabilitation (VR) agencies to assist VR consumers with the most significant disabilities in 

achieving the employment outcome of supported employment. 

Supported employment uses a “place-train” model in which individuals with the most significant 

disabilities are placed in a job and provided intensive services and supports. These services are 

typically provided by a job coach in conjunction with supports provided by the employer to train 

the individual on the job site, followed by extended services after the individual’s ability to 

perform the job with support has stabilized. These services and supports enable individuals with 

the most significant disabilities who, because of the nature and severity of their disability, need 

ongoing support to engage in and maintain competitive integrated employment.

An individual’s potential for supported employment must be considered as part of the 

assessment to determine if an individual is eligible for the Title I VR State Grants program. VR 

funds are used to pay the costs associated with assessment and the determination of eligibility, 

as well as other needed VR services prior to placement in supported employment. Ongoing 

services are provided by the VR agency, using funds under the SE State Grants program and/or 

the VR State Grants program, from the time of job placement until the transition to extended 

services, and thereafter by one or more extended services providers. A State VR agency may 

support an individual’s supported employment services solely with VR State grant funds, or it 

may support these services in whole or in part with funds under the SE State Grants program.
REHABILITATION SERVICES

Supported employment State grants

J-46

In addition, States are required to use one-half of their SE program funding allotment to provide 

supported employment and extended services to youth with the most significant disabilities and 

to provide a state dollar match of 10 percent for the SE allotment portion used to serve such 

youth.

Supported employment funds are distributed on the basis of population, using the most recent 

estimates from the U.S. Census Bureau, with no State receiving less than $300,000, or onethird of 1 percent of the amount appropriated, whichever is greater. The minimum allotment for 

territories remains one-eighth of 1 percent of the appropriation.

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

Fiscal Year (dollars in thousands)

2017...................................................................... $27,548

2018........................................................................ 22,548

2019........................................................................ 22,548

2020........................................................................ 22,548

2021........................................................................ 22,548

FY 2022 BUDGET REQUEST

For fiscal year 2022, the Administration requests $22.5 million for SE State Grants, level with 

the fiscal year 2021 appropriation, to continue to provide a dedicated source of funding for 

supported employment services, including additional support for services to youth with 

disabilities. 

When the SE State Grants program was first authorized in 1986, supported employment was a 

new promising practice in employing individuals who traditionally would not have achieved 

employment in the integrated labor market, and the program provided a critical incentive for 

State VR agencies to adopt this practice. State VR agencies now recognize supported 

employment as a viable employment option for individuals with the most significant disabilities, 

and an individual’s potential for supported employment must be considered as part of the 

assessment to determine if an individual is eligible for the Title I VR State Grants program. 

One issue of concern is that States have struggled to meet the requirement to use one-half of 

their SE allocations—along with a 10 percent state dollar match—to provide supported 

employment and extended services to youth with the most significant disabilities, as required by 

the amendments to Title VI of the Rehabilitation Act made by WIOA.

The challenges of meeting these requirements are demonstrated by recent SE State grant 

expenditure patterns. In fiscal year 2020, 23 grantees did not provide any matching funds for 

their SE grant awards, and 14 grantees had failed to spend any of their fiscal year 2020 SE 

funds as of May 5, 2021. Additionally, States relinquished more than $1.2 million in SE funds 

during the fiscal year 2020 reallotment period. Furthermore, these data do not include agencies 

that may have only partially matched their award, agencies that may have already spent funds 

they provided no match for, or any SE State grant funds that should have been relinquished 
REHABILITATION SERVICES

Supported employment State grants

J-47

based on the State’s plans to not use the funds. Funds that are not expended or relinquished for 

reallotment are lost to the program and return to the Treasury. 

For these reasons, the Department will be exploring, in consultation with Congress, potential 

reforms to the program to address these challenges while ensuring that States continue to 

provide this critical option for services for individuals and youth with the most significant 

disabilities. 

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

under the Training, Demonstration and training, Supported employment, and Independent living 

services for older blind individuals programs for the Traditionally underserved populations 

program (section 21 of the Rehabilitation Act). The request includes $225,000 to meet this 

requirement. These funds will be used to support continuation costs for a Capacity Building 

Center focused on improving the delivery of vocational rehabilitation (VR) services to, and the 

employment outcomes of, individuals of color with disabilities by providing cultural competency 

training to VR leadership and staff, collecting and analyzing relevant data, and disseminating 

evidence-based practices.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2020 footnote2021 footnote2022 footnote

Individuals with a supported 

employment Individualized Plan for

Employment goal when they exited 

the program

43,262 40,000 40,000

Employment outcomes: 19,275 1 18,000 1 18,000 1

Supported employment outcomes 12,940 2 12,000 2 12,000 2

Employment without supports in an 

integrated setting 6,290 3 5,950 3 5,950 3

Other employment outcomes 454 504 504

Traditionally underserved populations $225 $225 $225

1 Includes employment outcomes for all VR consumers funded with both VR and SE State Grants who had a 

supported employment goal at exit.

2 Of the individuals who had a supported employment goal at exit, the number who were employed in an integrated 

setting and receiving ongoing support services.

3 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program but who were not receiving ongoing support services at exit.

4 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program who were either self-employed or employed in a Business Enterprise 

Program.
REHABILITATION SERVICES

Supported employment State grants

J-48

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures, and performance targets and data. Achievement of program 

results is based on the cumulative effect of the resources provided for the program and the VR 

State grants program in previous years, and those requested in fiscal year 2022 and future 

years, as well as the resources and efforts invested by those served by this program. The 

Department will be reviewing GPRA program performance goals, objectives, and measures for 

Supported employment State grants for possible revision in future years to ensure alignment 

with Administration policy.

Data reported for these measures include outcomes for individuals who received supported 

employment services and exited the VR program with a supported employment outcome in 

competitive integrated employment, whether such services were paid for with VR State Grants 

or SE State Grants. Consequently, the measures do not permit independent assessment of the 

performance of the SE State Grants program. 

The Department has established three new performance measures, including two measures 

that mirror the WIOA performance indicators, to replace the current performance measures. The 

new measures are designed to more effectively assess the role of supported employment 

services in the outcomes that participants with the most significant disabilities achieve. 

Performance data beginning in 2018 are based on data collected under the RSA-911 by

program years (i.e., 2018 is based on data from July 1, 2018 to June 30, 2019). 

Goal: Individuals with significant disabilities with a goal of supported employment will 

achieve high quality employment.

Objective: Ensure that individuals with significant disabilities with a supported employment goal 

achieve high quality employment.

Measure: Of those individuals with most significant disabilities who had a supported 

employment goal and achieved an employment outcome, the percentage who exited with 
REHABILITATION SERVICES

Supported employment State grants

J-49

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

2017 95.0% 97.3%

2018 96.0 99.8

2019 96.0 99.6

2020 99.0 99.9

2021 99.0

2022

Additional information: The Department has not established targets for program year 2022 

because program year 2021 is the last year that the Department will report data on this 

measure.

Measure: Average weekly earnings for individuals with most significant disabilities who 

achieved a supported employment outcome.

Year Target Actual

2017 $210 $226

2018 215 230

2019 215 222

2020 222 244

2021 222

2022

Additional information: The data reported for this measure include data on all individuals who 

obtained a supported employment outcome with earnings. The average weekly earnings

calculation does not include data for Guam, the Commonwealth of the Northern Mariana 

Islands, or the Virgin Islands. The Department has not established targets for program year 

2022 because program year 2021 is the last year that the Department will report data on this 

measure.

New Performance Measures

Program year 2020 results for all three measures will be available at the beginning of fiscal year

2022. The Department will report baseline data for program years 2020 and 2021 under the new 

measures in fiscal years 2022 and 2023.

Goal: Individuals with the most significant disabilities who receive supported 

employment services will achieve high-quality employment outcomes and continue to 

work following their exit from the program.

Objective: Ensure that individuals with the most significant disabilities, who exit the VR program 

with supported employment outcomes in competitive integrated employment, will be capable of 
REHABILITATION SERVICES

Supported employment State grants

J-50

maintaining employment as a result of the supported employment services they received and 

that, consistent with their informed choice, they will have opportunities to maximize the number 

of hours they work each week. 

Measure: Of those individuals who received supported employment services, the median hours 

worked per week at the time they exit from the program with supported employment outcomes 

in competitive integrated employment. 

Measure: Of those individuals who received supported employment services, the percentage 

who were employed during the second quarter after exit from the program. 

Measure: Of those individuals who received supported employment services, the percentage 

who were employed during the fourth quarter after exit from the program. 
REHABILITATION SERVICES

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Independent living services for older blind individuals

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority:

2021

Appropriation 

2022

Request 

Change from

2021 to 2022 

$33,317 $33,317 0

1 The GEPA extension expires September 30, 2021; continued funding is proposed for this program in fiscal year 

2022 through appropriations language.

PROGRAM DESCRIPTION

The Independent Living Services for Older Individuals Who Are Blind (ILOIB) program assists

individuals aged 55 or older who have severe visual impairment making competitive 

employment extremely difficult to obtain, but for whom independent living goals are feasible.

Funds are used to provide independent living services, improve or expand services for these 

individuals, and improve public understanding of the challenges they face. ILOIB services are 

designed to help eligible persons adjust to their blindness by increasing their ability to care for 

their individual needs. Services under this program are not typically covered under private 

insurance or Medicaid.

Grantees are State Vocational Rehabilitation (VR) agencies for persons who are blind and 

visually impaired or, in States with no separate agency for persons who are blind, State 

combined VR agencies. States participating in the ILOIB program must match 10 percent of 

their grant with non-Federal cash or in-kind resources in the year for which the Federal funds 

are appropriated. Awards are distributed to States according to a formula based on the 

population of individuals who are 55 years of age or older (using the most recent estimates from 

the U.S. Census Bureau). The minimum allotment for each of the 50 States, D.C., and Puerto 

Rico is $225,000, with each of the territories receiving a minimum allotment of $40,000.

Independent living services are typically provided through contracts with local providers 

administered by State VR agencies. The services most frequently provided to program 

participants in fiscal year 2020 were technical aids and devices (provided to 54 percent of 

participants), daily living skills (52 percent) and low vision assessments (31 percent), with some 

participants receiving more than one service. These services allow older individuals who are 

blind or severely visually impaired to be more independent at home and in the community.

Service providers are knowledgeable about blindness and other visual impairments, as well as 

the needs of older individuals with such impairments, including adaptive strategies that can 

assist these individuals to adjust to their impairments and increase their ability to function more 

independently.
REHABILITATION SERVICES

Independent living for older blind individuals

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The Department also reserves 1.8 percent of the funds appropriated to the ILOIB program, 

consistent with the requirements of WIOA, to provide training and technical assistance to

Designated State Agencies or other providers of ILOIB services.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2017..........................................................................$33,317

2018............................................................................33,317

2019............................................................................33,317

2020............................................................................33,317

2021............................................................................33,317

FY 2022 BUDGET REQUEST

For fiscal year 2022, the Administration requests $33.3 million for the ILOIB program, level with 

the fiscal year 2021 appropriation. These funds will assist States in meeting the need for 

independent living services by older individuals who are blind or severely visually impaired. The 

Department would use nearly $600,000 to provide training and technical assistance to ILOIB 

grantees and service providers.

In fiscal year 2020, 47,764 individuals received services under the ILOIB program, 49 percent of 

whom were over 80 years of age and about 81 percent of whom were still living in a private 

residence. Approximately 54 percent of these individuals were either legally blind or totally blind, 

and 20 percent also had some degree of hearing impairment. Macular degeneration continues 

to be the most commonly reported eye condition, followed by glaucoma and diabetic 

retinopathy.

The prevalence of disability increases with age, and the occurrence of a sensory disability is 

greater among older adults than working-age people. Persons age 55 or older, the target 

population of this program, are projected to comprise a larger share of the population over the 

next decade and beyond as nearly 75 million Americans who make up the baby-boomer 

generation continue to age. According to the U.S. Census Bureau’s 2019 American Community 

Survey (1-Year Estimates), 6.0 percent of individuals 65 and older (about 3.2 million people) 

have a vision-related disability. In addition, the percentage of individuals who have a disability 

that affects their independent living status (including vision-related disabilities) increases with 

age, with a dramatic increase for individuals in the 75 years and over category, where 

23.1 percent report having a disability that affects their independent living status.

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

under the Training, Demonstration and training, Supported employment, and Independent living 

services for older blind individuals programs for the Traditionally underserved populations 

program (section 21 of the Rehabilitation Act). The request includes $333,000 to meet this 

requirement. These funds will be used to support continuation costs for a Capacity Building 

Center focused on improving the delivery of VR services to, and the employment outcomes of, 
REHABILITATION SERVICES

Independent living for older blind individuals

J-53

individuals of color with disabilities by providing cultural competency training to VR leadership 

and staff, collecting and analyzing relevant data, and disseminating evidence-based practices.

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures: 2020 2021 2022

Minimum State award $225 $225 $225

Number of States at minimum 17 17 17

Average State award $620 $620 $620

Traditionally underserved populations $333 $333 $333

Training and technical assistance $600 $600 $600

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

goals, objectives, measures, and performance targets and data. Achievement of program 

results is based on the cumulative effect of the resources provided in previous years, and those 

requested in fiscal year 2022 and future years, as well as the resources and efforts invested by 

those served by this program. The Department will be reviewing GPRA program performance 

goals, objectives, and measures for Independent living for older blind individuals for possible 

revision in future years to ensure alignment with Administration policy.

Goal: To promote and support a philosophy of independent living (IL)—including a 

philosophy of consumer control, peer support, self-help, self-determination, equal 

access, and individual and system advocacy—in order to maximize the leadership, 

empowerment, independence, and productivity of individuals with disabilities, and the 

integration and full inclusion of individuals with disabilities into the mainstream of 

American society.

Objective: Through the provision of services (either directly or through contracts), increase the 

percentage of consumers receiving services funded through the Older Blind program who report 

having access to services needed to improve their ability to live more independently and 

participate fully in their communities.
REHABILITATION SERVICES

Independent living for older blind individuals

J-54

Measure: The percentage of Independent Living Older Blind program consumers who have 

access to previously unavailable assistive technology aids and devices.

Year Target Actual

2017 57% 58%

2018 57 58

2019 58 57

2020 58

2021

2022

Additional information: Data for 2020 are expected by summer of 2021. The Department has 

not established targets for fiscal years 2021 and 2022 because fiscal year 2020 is the last year 

that the Department will collect data on this measure. 

Measure: The percentage of Independent Living Older Blind program consumers who report an 

improvement in daily living skills.

Year Target Actual

2017 61% 60% 

2018 61 65

2019 61 55

2020 61

2021

2022

Additional information: Daily living skills include activities such as bathing, moving around the 

home, getting out of bed or a chair, and eating a meal. Data for 2020 are expected by summer 

of 2021. The Department has not established targets for fiscal years 2021 and 2022 because 

fiscal year 2020 is the last year that the Department will collect data on this measure. 

New Performance Measures

Due to concerns about the precision of the current performance measures, the Department 

established five new performance measures designed to more accurately measure the

performance of the ILOIB program. Grantees will report baseline data under the new measures 

beginning in fiscal year 2021 (using the revised RSA-7-OB data collection). 

Objective: To restore, improve, or maintain the independence of older individuals whose 

functional capabilities have been lost or diminished as a result of vision loss or blindness. 

Measure: The percentage of individuals receiving assistive technology devices and services 

who demonstrated improvement in one or more functional capabilities during the reported 

federal fiscal year consistent with the objectives for receiving such devices and services.
REHABILITATION SERVICES

Independent living for older blind individuals

J-55

Measure: The percentage of individuals receiving one or more independent living and 

adjustment training services who demonstrated improvement in functional capabilities during the 

reported federal fiscal year.

Measure: The percentage of individuals completing a plan of services who reported feeling that 

they are more confident in their ability to maintain their current living situation. 

Measure: The percentage of individuals completing a plan of services who reported an 

increased ability to engage in their customary daily life activities in the home and community. 

Objective: To provide cost effective supports and services to increase the independence of 

older individuals who are blind so that they may remain in the community and to prevent or 

delay the need for an increasing level of care, particularly for those individuals who are at risk of

entering institutions. 

Measure: The average annual cost per individual served through the program during the 

reported federal fiscal year.
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Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2022 Authorization: 01

Budget Authority: 

2021

Appropriation

2022

Request

Change from

2021 to 2022

$17,000 $18,500 +$1,500

1 The GEPA extension expired September 30, 2004; continued funding is proposed for this program in fiscal year 2022 through 

appropriations language.

PROGRAM DESCRIPTION

The Helen Keller National Center for Deaf-Blind Youths and Adults (HKNC) was created by Congress in 

1967 and operates under the auspices of Helen Keller Services. The HKNC provides services on a 

national basis to youth and adults who are deaf-blind, their families, and service providers through onand off-campus services, professional learning, and information on combined vision and hearing loss. 

HKNC’s mission is to enable each person who is deaf-blind to live, work, and thrive in their community of 

choice. This includes having access to local resources for community living and employment 

opportunities.

HKNC provides direct services through a residential training facility at its national headquarters center 

(Center) located in Sands Point, New York, where deaf-blind individuals receive intensive specialized 

services. The Center provides comprehensive services for individuals with deaf-blindness to enhance 

their potential for employment and help them live independently in their home communities. The Center’s 

residential programs provide consumers with an array of services, and supports, including adaptive skills 

training to help them achieve their vocational and independent living goals. The Center’s programs 

emphasize a number of areas such as enhanced mobility; improved and accessible communication 

(including the use of adaptive technology); constructive participation in home and community settings; 

leadership and advocacy training through mentoring, ongoing social and professional opportunities, and 

employment.

HKNC also provides services through a network of 10 regional field offices staffed by 10 regional 

representatives and eight deaf blind specialists. Through this network, HKNC provides assistance to 

deaf-blind individuals and their families as well as technical assistance to local service providers. The 

regional network offices provide counseling, information, transition assistance, and referral services for 

individuals who are deaf-blind and their families to assist them to achieve successful participation in their 

community and employment.

The HKNC Community Services Program (CSP), a model collaboration between the Center and the New 

York State Commission for the Blind (NYSCB), provides comprehensive rehabilitation, vocational, and 

support services to eligible persons who are deaf-blind in their homes, worksites, and communities. CSP 

is staffed by credentialed professionals in the fields of blindness and deafness, including orientation and 
J-57

mobility specialists, low vision specialists, vision rehabilitation teachers, and vocational specialists. All 

CSP staff are proficient in American Sign Language and other alternative modes of communication.

In addition, HKNC has developed a Deaf-Blind National Community of Practice (NCOP), a 69-member 

collaborative of professional organizations working together to improve the quality of services to 

individuals who are deaf-blind through shared learning, research, and practice. These organizations 

consist of three national organizations, vocational rehabilitation agencies for both deaf and hard of 

hearing and blind consumers, many State deaf-blind projects, two schools for the deaf and blind, and 

agencies that provide support services (such as Support Service Provider (SSP) and interpreting 

services) to deaf-blind individuals.

HKNC also offers a program called the Deaf-Blind Immersion Experience (DBIE), now in its fourth year, 

which provides consumers who are deaf-blind with intellectual disabilities, and their support teams, a 5-

day training experience that includes participation in work experiences that match their interests, gifts, 

and abilities.

HKNC also provides professional development, training and technical assistance, and consultation to 

other organizations, programs, and providers serving individuals who are deaf-blind.

Transformation during the COVID-19 Pandemic

Due to COVID-19, HKNC transformed the in-person vocational rehabilitation program into a virtual 

program approximately halfway through fiscal year 2020. Four-week virtual assessments were offered to 

match each consumer’s schedule and goals. Remote training programs were designed on a part-time 

and full-time basis and focused on goals that would have an impact on a person’s current life situation or 

would help to develop a foundation upon which to build, especially when in-person services resume. The 

HKNC field staff joined with the Center staff to support consumers with obtaining and setting up the 

necessary equipment and technology needed to access Zoom and Google Docs training sessions, 

support groups, and peer learning opportunities. Staff utilized a transdisciplinary approach and partnered 

with consumers and vocational rehabilitation counselors to provide services remotely. In total, 27 

consumers participated in virtual assessments and training.

Revenue and Expenses

For fiscal year 2020, HKNC reported total public support and revenues of $20.2 million. Funds from the 

Federal government ($16 million) made up 79 percent of its total revenue. Funding from State grants and 

contracts amounted to $3 million (15 percent). HKNC received approximately $560,000 in donations and 

public support (3 percent) and reported an approximately $770,000 increase in HKNC operations and 

investment income (3 percent). While the Center has sought to increase other sources of funding, the 

Federal appropriation remains its primary source of support.

For fiscal year 2020, HKNC incurred total operating expenses of $18.5 million. Because most of the 

specialized services required by this population are provided by HKNC staff, salaries and fringe benefits 

(approximately $14.3 million) account for most expenses (77 percent). Other expenses include: building, 

utilities, and rent (approximately $1.2 million, or 7 percent); professional services (approximately 

$1.1 million, or 6 percent); client related services (approximately $760,000, or 4 percent); and other 

operating expenses (approximately $1.2 million, or 6 percent).
J-58

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2017 ................................................................. $10,336

2018 ................................................................... 12,500

2019 ................................................................... 13,500

2020 ................................................................... 16,000

2021 ................................................................... 17,000

FY 2022 BUDGET REQUEST

For fiscal year 2022, the Administration requests $18.5 million for HKNC, $1.5 million more than the fiscal 

year 2021 appropriation, to expand regional office support for an estimated 2,200 individual consumers, 

700 families, and 1,600 agencies and organizations, while also strengthening direct intensive services to 

approximately 85 consumers at HKNC’s residential training and rehabilitation program.

While most of the request would support core activities at HKNC headquarters, approximately 30 percent 

of the funds requested would provide support to the HKNC for field services, community education, and 

professional development programs, including the activities of HKNC’s 10 regional offices and the 

Information, Research, and Professional Development (IRPD) department. These programs help reach 

consumers in their home communities and assist personnel at State agencies and other organizations to 

serve or develop the capacity to serve individuals who are deaf-blind through training, community 

education, and technical assistance. These relative levels of support remain largely unchanged from 

fiscal year 2020.

PROGRAM OUTPUT MEASURES

Output measures 2020 2021 2022

Number of individuals served at headquarters:

Number of Adult training program clients 85 85 85

Number receiving Specialized training services:

Specialized training services: Number of Transition for high school students 20 20 20

Specialized training services: Number of Senior citizens 10 10 10

Specialized training services: Number of Individuals with intellectual disabilities 36 36 36

Specialized training services: Number receiving Targeted skills training 10 10 10

Specialized training services: Number receiving Community Services Program 120 120 155

Number of individuals served through regional 

representatives and deaf-blind specialists:

Number of Consumersserved through regional representatives 1,660 1,660 2,200

Number of Familiesserved through regional representatives 650 650 700

Number of Agencies/organizationsserved through regional representatives 1,500 1,500 1,600

f HKNC FTE staff 184 184 190
J-59

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

objectives, measures, and performance targets and data. Achievement of program results is based on 

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

2022 and future years, as well as the resources and efforts invested by those served by this program. 

The Department will be reviewing GPRA program performance goals, objectives, and measures for the 

HKNC for possible revision in future years to ensure alignment with Administration policy.

Goal: Individuals who are deaf-blind will become independent and function as full and productive 

members of their local community.

Objective: Individuals who are deaf-blind receive the specialized services and training they need to 

become as independent and self-sufficient as possible.

Measure: The percentage of: (1) training goals set and achieved by adult consumers (both on and off 

campus); (2) adult consumers seeking employment who are placed in employment (both on and off 

campus); and (3) adult consumers seeking to maintain their ability to live independently or move to less 

restrictive settings who achieve their goals.

Year

Target

# of Adult 

Consumers

Actual

# of Adult 

Consumers

Target

% of 

Training 

goals met

Actual

% of 

Training 

goals met

Target

% Placed 

in Employment

Actual

% Placed 

in Employment

Target

% in Less 

Restrictive 

Settings

Actual

% in Less 

Restrictive 

Settings

2017 75 60/36 95% 89% 48% 47/78% 86% 87%

2018 75 76/40 95 90 48 50/71 86 91

2019 80 59/38 95 89 48 63/67 86 87

2020 80 86/92 95 87 60 33/50 86 93

2021 80 95 60 86

2022 80 95 60 86

Additional information: In fiscal year 2020, HKNC served 86 consumers in the on-campus 

rehabilitation training programs and 92 additional off-campus consumers through its Community Services 

Program. HKNC points out that the number of consumers served may fluctuate from year to year due to 

multiple factors beyond the control of the Center. For example, the length of time an individual 

participates in training may vary anywhere from two weeks to beyond one year due to varying levels of 

training intensity and differing individual needs.

The Center evaluates the progress of consumers in achieving the goals stated in their individualized 

training plans (ITPs). This measure represents the percent of adult consumers served by the HKNC who 

successfully achieved identified training goals during the program year.

In fiscal year 2020, 33 percent of consumers in on-campus programs and 50 percent of off-campus 

consumers participating in the N.Y. Community Services Program with an employment goal were placed 

in employment.

The “less restrictive settings” measure refers to consumers who move from settings such as living with 

parents or guardians, assisted living settings, and nursing homes to more independent living 

arrangements such as their own home or apartment or group homes.
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Objective: Increase the capacity of deaf-blind consumers to function more independently in the home 

community.

Measure: The number of individuals (or families on behalf of individuals) referred to State or local 

agencies or service providers by HKNC‘s regional offices.

Year Target Actual

2017 500 472

2018 600 573

2019 600 505

2020 600 372

2021 600

2022 600

Additional information: These referrals help deaf-blind consumers access resources within their home 

community that improve their ability to function independently.

Measure: The percentage of consumers who participated in services or programs (other than HKNC) as 

a result of receiving a referral from HKNC’s regional offices.

Year Target Actual

2017 66% 94%

2018 75 74

2019 75 68

2020 75 75

2021 75

2022 75

Additional information: This measure provides information on the activities of the field services 

programs, including the 10 regional representatives and 8 deployed deaf-blind specialists. The referrals 

provided by regional representatives often are the gateway to finding appropriate and individualized 

supports from various agencies and organizations.
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Objective: HKNC will assist State vocational rehabilitation (VR) and employment programs in increasing 

employment outcomes for individuals who are deaf-blind.

Measure: The number of referrals by HKNC’s regional offices to VR or related employment programs.

Year Target Actual

2017 65 33

2018 65 71

2019 65 55

2020 65 79

2021 65

2022 65

Additional information: HKNC field staff frequently facilitate interactions between consumers and VR 

agencies, including assistance for consumers who are returning to their State’s VR system after 

attending intensive training at HKNC headquarters. The number of referrals to VR agencies fluctuates 

depending on whether the consumers served by HKNC field staff have vocational goals.

Measure: The percentage of individuals who achieved successful employment outcomes in which 

HKNC’s regional offices played a collaborative role contributing training, advocacy and/or support to the 

consumer or job training agency.

Year Target Actual 

2017 40% 39%

2018 45 41

2019 45 47

2020 45 35

2021 45

2022 45

Additional information: The numerator is the number of clients served by HKNC regional 

representatives who achieved employment outcomes in which HKNC’s regional offices played a 

collaborative role providing training, advocacy and/or support to the consumer or job training agency. The 

denominator is the total number of consumers served by HKNC regional representatives who achieved 

employment outcomes.