1Department of Education

REHABILITATION SERVICES

Fiscal Year 2018 Budget Request

CONTENTS

Page

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

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

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

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

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

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

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

Activities:

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

Client assistance State grants ........................................................................................I-31

Training ..........................................................................................................................I-37

Demonstration and training programs.............................................................................I-43

Protection and advocacy of individual rights...................................................................I-48

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

Independent living services for older blind individuals ....................................................I-59

Helen Keller National Center..........................................................................................I-64

State tables1

 

1 State tables reflecting final 2016 allocations and 2017 and 2018 estimates are posted on the 

Department’s webpage at: https://www2.ed.gov/about/overview/budget/statetables/index.html
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Appropriations Language

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

Helen Keller National Center Act, $3,563,008,000, of which $3,452,931,000 shall be for grants 

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

1

 Provided, That the 

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

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

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

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

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

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

and self-sufficiency:2 Provided further, That States may award subgrants for a portion of the 

funds to other public and private, non-profit entities:3 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, 2019:

4

NOTE:

A full-year 2017 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Further Continuing Appropriations Act, 2017 (P.L. 114–254). 

The amounts included for 2017 reflect the annualized level provided by the continuing resolution.

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

Provisions and Changes document which follows the appropriation language.
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Analysis of Language Provisions and Changes

Language Provision Explanation

1 ...of which $3,452,931,000 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 further, That the Secretary may 

use amounts provided in this Act that remain 

available subsequent to the reallotment of 

funds to States pursuant to section 110(b) of 

the Rehabilitation Act for innovative activities 

aimed at improving the outcomes of 

individuals with disabilities as defined in 

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

including activities aimed at improving the 

education and post-school outcomes of 

children receiving Supplemental Security 

Income (SSI) and their families that may 

result in long-term improvement in the SSI 

child recipient's economic status and selfsufficiency:

This language would allow the Secretary to 

use amounts that remain available 

subsequent to the reallotment of funds to 

States under the VR State Grants program for 

innovative activities designed to improve the 

outcomes of individuals with disabilities, 

including, if needed, activities to improve the 

outcomes of children receiving SSI and their 

families under the PROMISE pilot program. 

The inclusion of this language would ensure 

that all unused funds would remain available 

to improve the outcomes of individuals with 

disabilities, instead of being returned to the 

Treasury.

3 Provided further, That States may award 

subgrants for a portion of the funds to other 

public and private, non-profit entities:

This language would permit States to use a 

portion of their project funds to make 

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

activities aimed at improving the outcomes of 

individuals with disabilities.

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 30,2019:

This language would permit the funds made 

available subsequent to reallotment of VR 

State Grant funds for activities aimed at 

improving the outcomes of individuals with 

disabilities to remain available for 2 years. 
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Appropriation, Adjustments and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2016

2017

Annualized CR 2018

Footnotes

Discretionary:

Discretionar y: Appropriation....................................... $137,835 $137,573 $110,077

Mandatory:

Mandator y: Appropriation....................................... 3,391,770 3,398,554 3,452,931

Mandator y Sequester (P.L. 112-25)...................... -230,640 -234,500 0

 Total, adjusted mandatory 

appropriation ......................................... 3,161,130 3,164,054 3,452,931

 Total, discretionary and adjusted 

mandatory appropriation........................ 3,298,965 3,301,627 3,563,008
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Summary of Changes

(dollars in thousands)

2017 Annualized CR ................................................................... $3,536,1271

2018............................................................................................... 3,563,008

Net change................................................................ +26,881

1 Excludes 6.9 percent sequester reduction of mandatory VR State Grant funds pursuant to the Budget Control Act 

(P.L. 112-25)

Increases:

2017 

Annualized 

CR base

Change 

from base

Built in

Increase in funding for Vocational Rehabilitation (VR) State 

grants, consistent with the inflation increase specified in the 

authorizing statute. $3,398,554 +$54,377

Decreases: 2017 base

Change 

from base

Program:

No funds are requested for Supported Employment State grants. 27,496 -27,496

Net change +26,881
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I-5

Authorizing Legislation

(dollars in thousands)

Activity

2017

Authorized

footnote

2017

Annualized CR

footnote

2018

Authorized

footnote

2018

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B-110 and 111) $3,398,554 1 $3,121,0542$3,452,9313 $3,452,931

VR Grants for Indians (RA-I-C) (1, 4) 43,000 (3,4) 43,000

Client assistance State grants (RA-I-112) 13,195 12,975 13,488 12,975

Supported employment State grants (RA-VI) 30,292 27,496 30,963 0

Training (RA-III-302) 37,009 30,131 37,830 30,131

Demonstration and training programs (RA-III-303) 6,373 5,785 6,515 5,785

Services for older blind individuals (RA-VII-2) 36,635 33,254 36,635 33,254

Protection and advocacy of individual rights (RA-V-509) 19,408 17,616 19,838 17,616

Helen Keller National Center for Deaf-Blind Youths and Adults 

(HKNCA) 0 5 10,316 05 10,316

Total definite authorization 0 0

Total discretionary appropriation 137,573 110,077

Total mandatory appropriation 3,398,554 3,452,931

Total appropriation 3,536,127 3,563,008

Portion of request not authorized 10,316

Total appropriation including required mandatory reduction 3,301,6272

_______________________________

1 The authorizing legislation specifies that the amount to be appropriated for VR State grants for a fiscal year be at least at the level of the prior fiscal year 

increased by the 12-month percentage change from October to October in the Consumer Price Index for all Urban Consumers (CPIU). In FY 2017, this amount 

was $3,398,554 thousand. 2 The amount reflects the 6.9 percent reduction of mandatory programs that went into effect on October 1, 2016, pursuant to the Budget Control Act of 2011 

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

percentage change from October to October in the CPIU. In FY 2018, this amount is $3,452,931 thousand. 4 The Rehabilitation Act requires that 1.0 percent to 1.5 percent of the appropriation for Vocational Rehabilitation State grants be set aside for Grants to Indians. 5 The GEPA extension expired September 30, 2004; the program is authorized in FY 2017 through appropriations language. Continued funding is proposed for 

this program in FY 2018 under appropriations language.
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Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation

Foot2009 3,218,264 3,387,4431 3,379,1091 3,387,762

Recovery Act Supplemental 

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

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

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

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

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

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

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

2016 3,532,109 3,529,6059 3,487,8649 3,529,605

2017 3,541,389 3,534,02710 3,536,38910

1

0 3,535,58910

2018 3,563,008

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

proceeded in the 110th Congress only through the House Subcommittee and the Senate Committee. 2 The levels for the Senate allowance reflects Committee action only. 3 The levels for the House allowance reflects the House-passed full-year continuing resolution. 4 The level for appropriation reflects the Department of Defense and Full-Year Continuing Appropriations Act, 2011 

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

Committee action only.

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

proceeded in the 112th Congress only through the House Subcommittee and the Senate Committee.

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

9 The levels for House and Senate allowances reflect action on the regular annual 2016 appropriations bill, which 

proceeded in the 114th Congress only through the House Committee and Senate Committee. 10 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.
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Click here for accessible version

Summary of Request
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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. 

A full-year 2017 appropriation was not enacted at the time the FY 2018 Budget was prepared; 

therefore, the Budget assumes the Department is operating under the Further Continuing 

Appropriations Act, 2017 (P.L 114–254). The amounts included for 2017 reflect the annualized 

level provided by the continuing resolution. The Department of Education Appropriations Act, 

2017 provided $3.536 billion, an increase of $5.984 million, or 0.17 percent, more than the 2016 

appropriated level for programs in this account.

The Administration’s 2018 Request for the Rehabilitation Services account provides 

$3.563 billion to support comprehensive and coordinated vocational rehabilitation for individuals 

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

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

independently. The Rehabilitation Act was reauthorized by Title IV of the Workforce Innovation 

and Opportunity Act (WIOA), enacted in July of 2014. WIOA supports the Nation’s workforce 

development system through programs and investments in employment services, workforce 

development, adult education, and vocational rehabilitation.

The $3.453 billion request for the Vocational Rehabilitation (VR) State Grants program includes 

an increase of $54.377 million over the fiscal year 2017 mandatory level, consistent with the 

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

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

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

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

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

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

retain, or advance in high quality employment. In implementing the changes to Titles I and IV of 

WIOA, the Department’s Office of Special Education and Rehabilitative Services is working with 

its partners in the Federal workforce development system to improve employment outcomes for 

individuals with disabilities, particularly individuals with significant disabilities and youth with 

disabilities.

As in previous years, the 2018 Request includes appropriations language that would allow the 

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

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

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

available for Federal obligation until September 30, 2019.

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

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

individuals with the most significant disabilities to obtain competitive employment in integrated 
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settings. However, the Administration believes that a separate supplemental grant program is 

not necessary for the provision of supported employment services and the proposed elimination 

would reduce unnecessary administrative burden and streamline program administration at the 

Federal and State levels.

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

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

the activities in these programs.
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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 2018 Authorization: $3,452,9311

Budget Authority: 

Program

2017

Annualized CR footnote

2017

Appropriation 2018 footnote

Change from

Annualized CR

State grants $3,355,554 $3,355,554 $3,409,931 +$54,377

Indian set-aside 43,000 43,000 43,000 +0

Total 3,398,554 2 3,398,5542

3,452,931 +54,377

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

Innovation and Opportunities Act of 2014. The authorizing statute specifies that the amount to be 

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

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

fiscal year 2018 this amount is $3,452,931 thousand. The authorizing statute also requires that not less 

than 1.0 percent, and not more than 1.5 percent, of the appropriation for each fiscal year for VR State 

Grants be set aside for Grants for American Indians.

2 The total amount shown in the 2017 column is the mandatory amount for the VR State Grants program 

and does not include the sequester reduction for mandatory programs pursuant to the Budget Control Act 

of 2011. The reduced level for the VR State Grants program in 2017 subsequent to the 6.9 percent 

sequester is $3,164,053,774, a reduction of $234.5 million.

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

legislation requires the program to be funded at no less than the prior year level, increased by 

the percentage change in the Consumer Price Index for Urban Consumers.

Workforce Development System

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

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

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

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

education, and economic development programs with regional economic development 
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strategies to meet the needs of local and regional employers, and to provide services through a 

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

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

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

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

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

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

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

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

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

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

both the Secretaries of Labor and Education.

Performance Accountability 

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

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

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

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

primary performance indicators set forth in section 116 of WIOA. 

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

are in unsubsidized employment during the second quarter after exit; 

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

in unsubsidized employment during the fourth quarter after exit; 

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

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

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

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

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

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

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

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

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

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

credential or employment; and

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

workforce needs of the business community are being piloting, including retention with the 

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

pilot, States must select two of the three approaches.
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Implementing Regulations

On August 19, 2016, the Departments of Education and Labor concurrently published five 

Notices of Final Rulemaking (NFRs), one of which covers jointly administered activities (e.g., 

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

other NFRs implement the remaining provisions of Title I and Title III of WIOA, administered by 

the Department of Labor (DOL); and Titles II and IV of WIOA, administered by the Department 

of Education. The rules implementing the Rehabilitation Act (Title IV of WIOA) are presented in 

two separate NFRs due to the number of programs affected. The larger of these NFRs

implements the State VR and Supported Employment (SE) programs and rules on the use of 

subminimum wages under section 511 of the Rehabilitation Act (Title V of WIOA).

VR Grants to States

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

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

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

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

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

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

services, such as vocational evaluation, counseling, education, vocational training, job 

placement, rehabilitation technology, supported employment services, and treatment of mental 

or physical conditions that may reasonably be expected to reduce or eliminate an impediment to 

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

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

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

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

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

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

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

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

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

the fiscal year 2 years earlier. Amendments made by WIOA to section 111 of the Rehabilitation 

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

(MOE) deficit from any previous fiscal year. Previously, only the subsequent fiscal year’s grant 

could be reduced and the Department was required to recover penalties that were discovered 

after the subsequent fiscal year through an audit disallowance. 

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

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

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

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

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

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

in section 101(a)(18).
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The fiscal year 2016 State distributions were based on the July 1, 2014 estimates published on 

December 30, 2014. The fiscal year 2017 State distributions are based on the July 1, 2015

estimates published in December 2015. The fiscal year 2018 State distributions are based on 

the July 1, 2016 estimates published in December 2016. Per capita income averages for fiscal 

years 2016 and 2017 are based on Bureau of Economic Analysis revised estimates for calendar 

years 2011, 2012, and 2013 as reported by the Department of Commerce on September 30, 

2014. Per capita income averages for fiscal year 2018 are based on Bureau of Economic 

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

Department of Commerce on September 28, 2016.

American Indian VR Services (AIVRS)

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

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

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

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

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

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

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

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

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

Fiscal Year (dollars in thousands) footnote

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

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

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

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

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

1 The amounts shown for 2014, 2015, 2016, and 2017 reflect the sequester reduction for mandatory programs 

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

in 2014, 7.3 percent in 2015, 6.8 percent in 2016, and 6.9 percent in 2017.

FY 2018 BUDGET REQUEST

The Administration requests $3.5 billion, $54.4 million over the fiscal year 2017 mandatory level 

to help States and Tribal governments increase the participation of individuals with disabilities in 

the workforce. Of the amount requested, $43.0 million would be set aside to support grants 

under the American Indian Vocational Rehabilitation Services (AIVRS) program. The Request 

reflects the economic adjustment specified in the authorizing statute based on the Consumer 

Price Index for all Urban Consumers (1.6 percent for fiscal year 2018).

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

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

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

still very high. For example, in the “Persons with a Disability: Labor Force Characteristics” 
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report released in June 2016 (2015 data), the U.S. Bureau of Labor Statistics released results 

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

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

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

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

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

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

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

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

(6.3 percent)1

.

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

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

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

assist individuals with employment barriers, such as individuals with disabilities and youth, to 

succeed in the competitive labor market. The VR State Grants program is a critical 

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

vehicle for assisting individuals with disabilities, particularly individuals with the most 

significant disabilities, to obtain competitive integrated employment. Nationally, there are 

about 1 million individuals with disabilities in various phases of the vocational rehabilitation 

process within the VR system, about 94 percent of whom are individuals with significant 

disabilities. If a State VR agency cannot serve all eligible persons, it must first serve those 

individuals with the most significant disabilities under an “order of selection.” For program 

year 2016 (July 1, 2016 – June 30, 2017), the State Plans of 35 of the 80 State VR 

agencies documented that the agency had established an order of selection. This total 

includes 57.1 percent of the general and combined State VR agencies and 12.5 percent of 

the State VR agencies serving blind individuals. 

WIOA recognizes that local businesses are best positioned to inform the workforce 

development system. Within this system, local economies drive alignment between

programmatic services and industry needs, thereby increasing opportunities for job-seekers. 

To take advantage of these opportunities, individuals with disabilities must acquire the skills 

needed to compete for, obtain, and advance in the same type of high quality jobs and high 

demand careers as persons without disabilities. Amendments to the VR State Grants program

made by WIOA emphasize the importance of fostering working relationships between VR 

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

provide to employers for the benefit of individuals with disabilities in achieving competitive

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

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

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

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

heightens the importance of the relationships between VR agencies and employers. The 

cooperative working relationships that VR agencies foster with employers will be especially 

 

1 https://www.bls.gov/news.release/disabl.htm
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critical for the development of work-based learning experiences for students with disabilities 

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

In FY 2016, RSA initiated a process of working with employers at the Federal level through a

series of Business Roundtable discussions. RSA hosted employers from a number of sectors, 

including federal contracting, healthcare, banking/finance, and information and technology. 

Through these roundtables, RSA has encouraged State VR agencies to implement similar events

to initiate a dialogue with local, State, and regional employers. RSA also encourages State VR

agencies to meet employer needs by continuing to work with human resource firms and other

organizations that focus on workplace diversity and talent acquisition.

WIOA includes new unified State planning requirements intended to build positive 

cooperative working relationships between VR agencies and employers. Requiring VR 

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

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

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

In an effort to improve the ability of State VR agencies to work with employers and training 

providers, RSA awarded a grant in 2014 under the Rehabilitation Training program to 

establish a Job-Driven Vocational Rehabilitation Technical Assistance Center. In addition 

to providing intensive training and technical assistance to States, the Center has 

developed a number of resources for States, including job-driven toolkits that provide 

resources on promising and emerging job-driven strategies from the field. The toolkits 

help embed and sustain job-driven VR practices that lead to improved employment or 

training outcomes for people with disabilities. Major focus areas of the toolkit include

business engagement, labor market information, and employer supports1.

State VR agencies are implementing a number of initiatives to build better working 

relationships and increase coordination with employers and workforce partners to improve 

opportunities for individuals with disabilities to engage in employment in the competitive labor 

market. Some examples include:

• Coordination with employers using utilizing labor market information (California)

• Partnering with workforce agencies to align with regional employment sectors (Illinois)

• Optimizing on-the-job training (Ohio)

• Connecting with business via talent networks (New Jersey)

• Employer engagement panel (Georgia)

• Incorporating rapid engagement strategies (Nebraska)

 

1 http://www.explorevr.org/ 
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WIOA Implementation and Capacity Building

The final regulations published in August 2016 will assist States in implementing the new WIOA 

provisions. In addition to issuing final rules, the Department, in conjunction with DOL, has 

developed and issued guidance and technical assistance, held webinars and trainings, and 

presented at meetings and conferences on a number of key WIOA topics. For example, DOL 

and the Department have issued joint guidance and technical on major topics such as unified 

State plans, performance accountability, and one-stop infrastructure costs. Some of these 

efforts have been targeted to the wider workforce partnership and some have been specifically

designed for VR State agencies. In addition, the Department has provided technical assistance 

and guidance to assist State VR agencies and its partners that play a role in the success of 

individuals with disabilities in obtaining and maintaining employment, including youth with 

disabilities transitioning from high school to postsecondary education and careers. This 

information can be found on the Department’s website1

.

The Department is also directing available discretionary resources to assist State VR agencies 

in implementing new WIOA requirements and building their capacity to meet the employment 

needs of individuals with disabilities and their prospective employers. In fiscal years 2014 and 

2015, RSA awarded cooperative agreements under the Rehabilitation Training and the 

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

and training centers and four model projects demonstrating promising practices in the use of 

career pathways to improve employment outcomes for individuals with disabilities. In addition, 

the Department awarded 5-year grants to 5 State VR agencies under the Disability Innovation 

Fund in fiscal year 2016 to identify and demonstrate work-based learning interventions for 

students with disabilities that could be used to assist State VR agencies to improve the 

provision of transition services, including pre-employment transition services. (See further 

discussion under “Disability Innovation Fund” below.) 

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

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

significant implementation challenges, particularly where such changes are likely to increase 

program costs and the demand for services. Without additional resources, increased costs 

coupled with new set-asides and workforce infrastructure supports will strain resources for 

providing direct services to VR consumers. The requested increase, although subject to the 

sequestration mandatory program under Budget Control Act of 2011, will provide some 

assistance to States in addressing these resource challenges. 

Disability Innovation Fund 

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

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

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

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

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

 

1 https://www2.ed.gov/about/offices/list/osers/rsa/wioa-reauthorization.html 
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but not utilized by a State to carry out the VR program, if they will be able to use such additional 

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

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

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

reobligation. However, beginning in 2009, fewer States requested additional funds during 

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

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

many States are unable to match the Federal funds.

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

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

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

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

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

obligation.

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

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

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

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

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

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

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

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

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

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

partnerships and are implementing interventions designed to improve the provision and 

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

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

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

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

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

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

provided recommendations for evaluation-related technical assistance.

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

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

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

awarded in fiscal year 2014. By the end of the recruitment period in April 2016, all six projects 

met their project recruitment goals, with a total of 13,378 participants enrolled across the six 

projects. Approximately half of the children and families enrolled will be placed in the treatment 

group and receive project services. Program participants in the intervention group are receiving 

services that include paid competitive employment opportunities. For example, in the summer 

of 2016, approximately 500 youth in the Arkansas PROMISE project were engaged in paid 

summer employment and over 600 youth had completed individualized employment plans. As 
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of August 2016, 108 Maryland PROMISE participants have secured paid employment 

experiences for the summer and 72 participants have engaged in financial education. In 

addition, over 500 family members and over 350 youth from Wisconsin PROMISE have 

participated in paid community employment experiences. Additional information can be found 

on the PROMISE technical assistance center’s website1

.

Automatic Personalization Computing Project (FY 2014 VR Funds)

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

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

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

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

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

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

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

Computing Project (APCP) ($20 million) that will help to advance equal access to web-based 

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

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

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

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

long as there is web access. This initiative will build upon past research supported by the 

National Institute on Disability, Independent Living, and Rehabilitation Research (NIDILRR) on 

accessible computing, including its work with the World Wide Web Consortium’s Web 

Accessibility Initiative, which sets international standards for Internet accessibility.

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

outcomes for individuals with disabilities by developing an information technology (IT) 

infrastructure on which Internet-capable computers automatically run AT solutions customized 

for individual users with disabilities according to their preferences. Examples of such 

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

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

to another, and volume levels of audio features. In addition to piloting and testing the reliability 

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

personalization to ensure it can follow a person across multiple sites and multiple devices, and 

the scalability and sustainability of the model(s).

During fiscal year 2017, the APCP begins its second year of activities working closely with the 

pilot team to coordinate planning and carry out pre-pilot testing at the selected American Job 

Centers. Results of pre-pilot testing will provide guidance for refining the user experience, 

support materials, and methods to be used in the pilot implementations scheduled to begin in 

the third year of the APCP, which begins in fiscal year 2018. The Department is partnering with 

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

 

1 http://www.promisetacenter.org/.
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Institute of Standards and Technology, and the Access Board, among others, in overseeing this 

initiative.

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

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

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

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

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

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

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

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

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

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

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

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

development and leadership, connecting activities, and family involvement and support2

.

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

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

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

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

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

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

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

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

opportunities for enrollment in comprehensive transition or postsecondary educational programs 

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

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

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

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

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

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

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

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

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

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

effectiveness in providing work-based learning experiences are needed. 

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

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

2 http://www.ncwd-youth.info/guideposts
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Through the Disability Innovation Fund, the Department awarded 5-year demonstration projects 

to five State VR agencies in FY 2016 to identify and demonstrate work-based learning 

interventions for students with disabilities that are supported by research and rigorously 

evaluated. Information gained from these projects will be translated for use by State VR 

agencies in collaboration with their local partners to improve postsecondary and career 

outcomes for youth with disabilities. As with other DIF initiatives, the Department sought input 

in the early planning of this initiative from colleagues with related expertise in the Department, 

such as IES, and our Federal partners from the Departments of Labor, Health and Human 

Services, and the Social Security Administration. 

DIF - Fiscal Year 2017 and 2018 Funds

There were no unobligated VR State Grant funds remaining at the end of fiscal year 2016 and 

there were more funds requested by States in reallottment then there were available for the 

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

VR funds that are not reallotted to States by September 30th of that fiscal year had been 

gradually declining. In general, this trend suggests that States continue to recover from the 

earlier economic downturn and are stabilizing their spending patterns. In addition, the 

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

agencies would have otherwise received thorough the allotment formula and have been 

required to match. 

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

awarded either because they were unable to provide the required match or meet their 

maintenance of effort (MOE). A total of 12 States returned some of their 2016 grant funds, 

while 24 States requested additional funds in reallotment. Five of the 12 States accounted for 

77 percent of the returned funds. In addition, 10 States had their fiscal year 2016 allotment 

reduced because they did not meet their fiscal year 2015 MOE requirement. Four of the 10

States with MOE penalty reductions also returned a portion of their 2016 grant funds and 4

requested additional funds in reallotment.

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

year 2017 and future VR allocations to decline, while the number of States requesting an 

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

increase. Thus, the Department expects to be able to reallocate all returned grant funds to other 

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

meet their maintenance of effort requirement will decline, it also anticipates that there will 

continue to be unobligated funds resulting from MOE penalties in fiscal years 2017 and 2018,

which the Department may or may not be able to redistribute based on the demand for 

additional funds. Based on this assumption, the Administration is requesting appropriations 

language for fiscal year 2018 to continue the authority to use such funds to support innovative 

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

If available, the Administration would use unobligated fiscal year 2017 and 2018 VR funds to 

help support demonstrations to provide early intervention services to populations at risk of 

dependence on SSDI/SSI. People with chronic conditions and disabilities, even when those 

conditions cause significant functional impairments, can often remain at work as their condition 
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worsens, provided they have affordable access to the right types of accommodations, supports, 

health care, and job training or retraining at the right time. Additionally, Section 412(a)(3) of 

WIOA amends the VR State plan to include a new provision that permits a State to elect to 

serve eligible individuals (whether or not receiving vocational rehabilitation services) who 

require specific services or equipment to maintain employment. This DIF proposal would 

support that provision by helping State VR agencies to identify and implement effective 

strategies to help individuals maintain employment. If funds become available, the Department 

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

demonstrations to provide early intervention services to populations at risk of dependence on 

SSDI/SSI.

American Indian Vocational Rehabilitation Services

In fiscal year 2018, the Department would set aside $43.0 million for grants under the American 

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

Department to provide support for the continuation of about 88 tribal VR projects that were 

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

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

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

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

bodies of Indian tribes located on Federal and State reservations.

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

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

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

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

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

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

AIVRS projects in the following priority areas:

• applicable laws and regulations governing the AIVRS program;

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

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

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

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

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

and access to AT;

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

and management; 

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

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

and

• evaluating program performance, including data collection, data analysis, and reporting.
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PROGRAM OUTPUT MEASURES

Vocational rehabilitation State grants

Output Measures 2016 2017 2018

Individuals receiving services 1 961,350 962,000 964,000

Individuals with significant disabilities as a percent of 

all individuals receiving services 94% 94% 94%

Total number of cases closed who received services 469,820 470,100 470,450

Individuals whose cases were closed and received 

VR services 328,415 328,800 329,250

Individuals achieving an employment outcome 2 186,715 187,000 187,350

Individuals with significant disabilities as a percent of 

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

_________________

Note: Data for fiscal years 2016 through 2017 are projections based on actual data for fiscal years 2014 and 2015

and preliminary 2016 data from the RSA Quarterly Cumulative Caseload Report (RSA-113).

1 Includes all eligible individuals who received VR services during the fiscal year.

2 Represents the number of individuals who exited the program after receiving services and achieved an employment 

outcome.

American Indian vocational rehabilitation services

(dollars in thousands)

Output Measures 2016 footnote2017 footnote2018 Footnote

Project funding:

Project fundi ng: New AIVRS project funds $10,557 10 0

Project fundi ng: Continuation AIVRS project funds 31,665 $42,226 2

$42,226 2

Project fundi ng: Technical assistancefunds 774 774 774

Project fundi ng: Peer review of new awards applications 4 0 0

 

1 The total amount for new awards shown in the 2016 column of the table includes $2,540 thousand that was used to 

pay a portion of the 2017 continuation costs of 11 of the 13 AIVRS projects awarded in 2016.

2 The total amount for continuations shown in the 2017 and 2018 columns of the table include about $1 million that 

will be used to pay a portion of the 2018 and 2019 continuation costs.
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Output Measures 2016 footnote2017 footnote2018 Footnote

Number of AIVRS projects:

Number of New projects – AIVRS 13 0 0

Number of Continuation projects - AIVRS 75 88 88

Total projects 88 88 88

_________________

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

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

year 2018 and future years, as well as the resources and efforts invested by those served by 

this program.

VR State Grants

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

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

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

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

requirements in section 116 of WIOA. In particular, section 116 of WIOA requires States that 

operate core programs to submit common performance data to demonstrate that specified 

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

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

employment. (A list of the primary performance indicators set forth in section 116 of WIOA is 

included in the ‘Program Description’ on page I-11.) Additionally, State VR agencies will 

continue to report program-specific data through the revised Case Service Report (RSA-911-

16). 

Consistent with its WIOA partners, the Department plans to collect program and performance 

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

current fiscal year cycle from October to September. Agencies are expected to begin to collect 

data to support the joint performance measures during program year 2016, and the 

Departments of Education and Labor expect all agencies to fully collect and report quarterly 

performance and other data for program year 2017. While fiscal year 2015 performance is 

reported for the previous GPRA measures, the Budget Request does not include 2016 through 

2018 performance targets for these measures.

The Department has developed interim GPRA measures that are more aligned with the WIOA 

joint primary indicators until State performance data on those indicators are available. The 
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interim GPRA measures would use available data from the current Case Service Report (RSA911-14) which States will continue to use through June 30, 2017 to assess program 

performance. Fiscal year 2015 performance data for these measures is presented below. 

Because these measures will only be used for fiscal years 2015 and 2016, no targets will be

established. 

Interim VR Measures

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

program will achieve high quality employment.

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

Rehabilitation State Grant program achieve competitive integrated employment consistent with 

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

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

employment.

In fiscal year 2015, 54.3 percent of the 328,220 participants who exited the VR program

obtained competitive integrated employment. State performance varied considerably with 

performance ranging from a low of 37 percent to a high of 71 percent. 

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

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

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

is closed. Competitive integrated employment is work in the competitive labor market that is 

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

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

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

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

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

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

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

competitive integrated employment outcome.

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

integrated employment outcome in fiscal year 2015 were $303. Median weekly earnings at exit 

ranged from $225 to $481. Median weekly earnings are based on RSA 911-14 State reported 

data for all 52 states as defined in program regulations and the outlying areas. 

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

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

integrated employment.

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

seven specified training services. 
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Of those youth participants who exited the VR program in fiscal year 2015, 47.7% received at 

least one of seven specified training services. Of the seven training services, the most 

frequently received was occupational or vocational training followed closely by four-year college 

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

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

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

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

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

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

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

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

this measure, include graduate college or university training, four-year college or university 

training, junior or community college training, occupational or vocational training, apprenticeship 

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

Performance on Previous VR GPRA 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 employment consistent with their particular 

strengths, resources, abilities, capabilities, and interests.

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

55.8 percent of individuals receiving services to achieve employment.

Year Target Actual

2013 57% 64%

2014 59 79

2015 60 66 
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Measure: Percentage of State VR agencies for the blind that assist at least 68.9 percent of 

individuals receiving services to achieve employment.

Year Target Actual 

2013 62% 62%

2014 62 62

2015 64 63

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

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

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

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

for the blind must achieve a rate of 68.9 percent. 

In fiscal year 2015, the target set for the group of general and combined State VR agencies was 

exceeded, with 37 of 56 agencies (66.1 percent) meeting the 55.8 percent performance criteria. 

However, performance on this measure was significantly lower than the previous year. 

Performance in fiscal year 2014 was unusually high compared to previous years and thus, given 

2015 performance, raises questions as to its reliability. While performance increased for the 

group of State VR agencies serving individuals who are blind, the target for 2015 was not met. 

However, the performance of many State agencies continues to vary, particularly in terms of the 

number and percentage of employment outcomes.

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

85 percent of individuals with employment outcomes to achieve competitive integrated 

employment.

Year Target Actual

2013 95% 96%

2014 95 95

2015 96 96

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

individuals with employment outcomes to achieve competitive integrated employment.

Year Target Actual

2013 90% 88%

2014 92 88

2015 92 88

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

employment outcomes who achieve competitive employment. For the purpose of this measure 

competitive employment is defined as work in the competitive labor market that is performed on 

a full-time or part-time basis in an integrated setting, and for which an individual is compensated 
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at or above the minimum wage, but not less than the customary wage and level of benefits paid 

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

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

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

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

competitive employment. In fiscal year 2015, the performance of the general and combined 

agencies on this measure returned to the 2013 level and the target was met. In fiscal year 

2015, only 2 of the 56 general and combined agencies did not meet the performance criterion. 

In 2015, performance for the group of agencies for the blind was the same as in 2013 and 2014, 

with three agencies not performing at the 65 percent criterion, so the target was not met.

Efficiency Measure

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

State Grant program resources.

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

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

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

Year Target Actual

2013 70% 64%

2014 66 61

2015 64 59

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

participant of no more than $8,000.

Year Target Actual

2013 63% 58%

2014 63 58

2015 63 58

Additional information: At the national aggregate level, the cost per participant is calculated 

by dividing the final grant award by the total number of eligible individuals who received VR 

services. The sources of data for this measure are State agency data from the RSA-113 

Caseload Report and RSA final State agency allocation tables.

In fiscal year 2015, the performance of the general and combined agencies on this measure

was slightly lower than the previous year, with 33 of the 56 (58.9 percent) agencies 

demonstrating an average cost per participant within the established performance range 

(between $1,200 and $3,300), a decrease of one agency. In 2015, performance on this 

measure for agencies for the blind was the same as the previous year, with 14 of 24 agencies 

(58.3 percent) demonstrating an average cost per participant of no more than $8,000. It should 
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be noted the cost ranges for this measure were established more than 10 years ago based on 

2005 and 2006 data. Given inflation and the increasing costs of the program, these ranges are 

no longer valid. A new efficiency measure will be developed for future years.

For fiscal year 2015, the average annual cost per participant for general and combined State 

vocational rehabilitation agencies was $3,014 with a range (excluding the outlying areas) of 

$1,438 to $8,017. For agencies for the blind, the average annual cost per participant was 

$7,235 with a range from $4,541 to $13,359. In comparison, the fiscal year 2014 average 

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

was $3,015, while for agencies for the blind it was $7,065. 

American Indian Vocational Rehabilitation Services

Performance Measures

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

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

Objective: Ensure that eligible American Indians with disabilities receive vocational 

rehabilitation services and achieve employment outcomes consistent with their particular 

strengths, resources, abilities, capabilities, and interests.

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

after receiving services under an individualized plan for employment.

Year Target Actual

2013 65% 69%

2014 65 67

2015 66 68

2016 66

2017 67

2018 67

Additional information: Data for fiscal year 2015 show that 68 percent of the 2,692 individuals 

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

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

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

employment outcome by individual AIVRS projects. In fiscal year 2015, the 84 projects

operating in that fiscal year (projects funded with fiscal year 2014 appropriations and 3 projects 

operating under a no cost extension) reported that they assisted a total of 1,835 American 

Indians with disabilities to achieve an employment outcome. Fiscal year 2015 was the first 

project year for more than half of the projects operating in that year and the fifth and final project 

year for 28 of the grantee. One of the new projects was unable to begin providing services in 

the first year of its grant and is not included in the analysis for this measure nor the two 

efficiency measures. They will use their FY 2014 grant funds to provide services in fiscal year 

2016. Fiscal year 2016 data will be available in May 2017.
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-29

Efficiency Measures

The Department established two efficiency measures to ensure that AIVRS projects 

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

cost per participant. 

Objective: Ensure that AIVRS projects demonstrate effective fiscal management. 

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

employment outcome of no more than $35,000.

Year Target Actual

2013 72% 76%

2014 72 80

2015 76 68

2016 76

2017 76

2018

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

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

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

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

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

outcome. In fiscal year 2015, the 84 projects assisted a total of 1,835 individuals to obtain 

employment outcomes, 266 fewer than in fiscal year 2014. As a result, the annual cost per 

employment outcome increased, and only 68 percent of the projects demonstrated an average 

annual cost per employment outcome of no more than $35,000. The median cost per 

employment outcome for the 84 projects reporting data rose from $20,294 in fiscal year 2014 to 

approximately $25,000 in fiscal year 2015. However, the cost per employment outcome varied 

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

improve in fiscal year 2016 because the new projects awarded in fiscal year 2014 will be in their 

second project period.
REHABILITATION SERVICES

Vocational rehabilitation State grants

I-30

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

participant of no more than $10,000.

Year Target Actual

2013 85% 88%

2014 86 83

2015 86 71

2016 86

2017 86

2018 86

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

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

the total number of individuals who received services under an IPE. In fiscal year 2015, 84

AIVRS projects reported serving a total of 6,634 American Indians with disabilities, significantly 

less than the number served in 2014, so the percentage of AIVRS projects that met the average 

annual cost per participant of no more $10,000 dropped to 71 percent, and the target was not 

met. The median annual cost per participant for the 84 projects reporting data rose from 

approximately $5,834 to $7,223.
REHABILITATION SERVICES

I-31

Client assistance State grants

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

(dollars in thousands)

FY 2018 Authorization: $13,488

Budget Authority: 

2017

Annualized CR

2017

Appropriation 2018

Change from

Annualized CR 

$12,975 $13,000 $12,975 0

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

in order to receive VR State grant funds.

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

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

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

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

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

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

provide services under the Act. 

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

follows:

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

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

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

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

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

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

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

Client assistance State grants

I-32

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

appropriation. 

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

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

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

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

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

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

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

CAPs established under this program. The fiscal year 2016 allotments were based on the 

July 1, 2014 population estimates published in December 2014. The fiscal year 2017 State 

distributions are based on the July 1, 2015 Census data released in December 2015. The fiscal 

year 2018 State distributions are based on the July 1, 2016 Census data released in December 

2016.

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

Fiscal Year (dollars in thousands)

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

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

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

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

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

FY 2018 BUDGET REQUEST

The Administration requests $12.975 million in fiscal year 2018 for the Client Assistance 

Program, the same as the fiscal year 2017 annualized Continuing Resolution (CR) level. The 

Department of Education Appropriations Act, 2017, provided $13.0 million for this program. This 

request will help ensure that individuals with disabilities who are applying for or receiving 

services funded under the Rehabilitation Act will receive appropriate services and have access 

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

Data collected by the Rehabilitation Services Administration for fiscal year 2015 show that, 

nationwide, CAPs responded to 35,609 requests for information and referral (I&R). While the 

average number of I&R requests that States responded to was 614, the median number was 87. 

The most frequent I&R requests were for information regarding the VR program (40 percent) 

and information regarding CAP (32 percent). However, it should be noted that data reported by 

the one CAP for a large State accounted for 40 percent of the total I&R requests, and in 

particular, it accounted for 63 percent of the total requests for information regarding the CAP. 

Preliminary data for fiscal year 2016 show that the high number of I&R requests for this 

particular CAP dropped significantly in 2016. 

In addition, CAPs provided extensive services to 5,397 individuals. Approximately 94 percent of 

such cases involved applicants for, or recipients of, services from the VR program. These data 

also demonstrate that in 41 percent of the cases closed, CAPs enabled individuals to advocate 
REHABILITATION SERVICES

Client assistance State grants

I-33

for themselves through the explanation of policies; 18 percent resulted in the development or 

implementation of an Individualized Plan for Employment (IPE); and 15 percent resulted in the 

re-establishment of communication between the individuals and other parties. In addition, 70 

percent of the cases requiring action by the CAP on behalf of the individual were resolved in the 

individual’s favor.

The following activities provided in fiscal year 2015 are examples of CAP activities. Fiscal year 

2018 funds may support similar activities.

• In California, a consumer with a learning disability and ADHD contacted the VR agency 

expressing an interest in becoming an attorney. The VR agency agreed to assist him in 

obtaining his Bachelor’s Degree as a prerequisite for becoming a lawyer. The consumer’s 

initial Individualized Plan for Employment (IPE) was developed with the understanding that 

once he completed his undergraduate studies, VR would fund his law school training. 

Before he graduated, the consumer’s rehabilitation counselor left the agency and the new 

counselor refused to acknowledge the agreement made with the previous counselor. 

Although the consumer was accepted and entered into law school, the VR agency continued 

to deny his multiple requests for an IPE amendment. CAP filed for administrative hearing on 

the consumer’s behalf, and the judge ordered VR to reimburse the consumer for the first two 

years of law school and related expenses. The consumer has since successfully completed 

law school and taken the California State Bar Exam.

• In Louisiana, CAP represented a student with a disability receiving Supplemental Security 

Income (SSI) benefits during his junior year of high school. The student has a physical 

disability and uses a power wheelchair. Early in his junior year, the student expressed a 

desire to work and volunteer at Walgreens a couple of hours per week. CAP assisted the 

student to request pre–employment transition services, which was approved by the VR 

agency, while remaining a student in high school. 

To pursue this opportunity, the student needed assistance obtaining reliable transportation 

to the job site. To address his transportation issue, CAP advocated for modifications on a 

van purchased by his family. In order to develop a successful Plan for Achieving SelfSupport, CAP worked in conjunction with the State’s Work Incentives Planning and 

Assistance program, the student’s mother, personnel from the Social Security 

Administration, and the VR agency, for approximately nine months. As a result, the student 

was able to obtain the necessary funding for his van modifications and was able to get to 

school and his volunteer job. Within two months, the student secured paid employment at a 

large grocery store.

• In New Jersey, CAP intervened on behalf of a 42–year–old consumer with dyslexia, a 

speech disorder (apraxia), and a central auditory processing disorder. The consumer 

receives SSI and Medicaid. She had worked as a day care assistant for many years and 

recently resigned because the work was too physically demanding. She also experienced 

allergy–related asthma attacks, and her medication was causing her to become dizzy and 

sleepy around the children. She contacted the VR agency, seeking help to become an 

administrative assistant at a non–profit organization. A psychological assessment 

conducted through the VR agency indicated that the consumer may have new disabilities 
REHABILITATION SERVICES

Client assistance State grants

I-34

that would require her to pursue a job outside of the day care field, but that an office setting 

would be difficult for her. The VR agency stated that the consumer should return to a day 

care assistant position because she had no other skills. 

Despite this report, the consumer wanted to pursue administrative assistant work and 

requested a new counselor. CAP assisted the consumer in obtaining a new VR counselor 

and advocated for the amendment of her IPE. The VR agency agreed to provide career 

assessments, a volunteer position in an office setting and computer training necessary to 

become an administrative assistant. The consumer is now pursuing her chosen vocational 

goal.

PROGRAM OUTPUT MEASURES

Output Measures 2016 2017 2018

Information inquiries/referrals 28,600 30,000 30,000

Individuals provided case services 5,115 5,250 5,250

_______________________________

NOTE: Data for fiscal years 2016 through 2018 are projected from actual data reported for fiscal year 2015 and 

preliminary 2016 data on requests for information and the provision of extensive services. Final data for fiscal year 

2016 will be available in June of 2017. 

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

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

2018 and future years, as well as the resources and efforts invested by those served by this 

program. 

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

the benefits available under the Vocational Rehabilitation State Grants program and 

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

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

systemic activity to improve services under the Rehabilitation Act.
REHABILITATION SERVICES

Client assistance State grants

I-35

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

changes in policy or practice.

Year Target Actual 

2013 70% 73%

2014 72 78

2015 74 70

2016 74

2017 74

2018 74

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

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

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

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

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

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

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

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

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

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

the accuracy of the information entered into the data fields. Data presented below are based on 

data from 56 State designated CAPs and do include data from the American Indian Consortium 

CAP authorized in the amendments to the Rehabilitation Act under Title IV of WIOA.

While performance on this measure increased from 73 percent in fiscal year 2013 to 78 percent 

in fiscal year 2014 (an increase of 4 agencies), performance dropped to 70 percent (39 of 56 

agencies) in fiscal year 2015 and the target was not met. As noted above, performance on this 

measure fluctuates from year to year. However, CAP performance on this measure has 

increased over time, as the baseline established in 1999 was 43 percent (24 of 56 agencies).

Performance data for fiscal year 2016 will be available in June 2017.

Objective: Resolve cases at lowest possible level. 

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

(ADR).

Year Target Actual 

2013 98% 98%

2014 98 99

2015 98 98

2016 98

2017 98

2018 98
REHABILITATION SERVICES

Client assistance State grants

I-36

Additional information: For fiscal year 2015, 98 percent of the 4,040 cases closed were 

resolved through the use of ADR. Since fiscal year 2007, the percentage of cases being 

resolved through the use of ADR has ranged from about 97 to 99 percent and the program has 

consistently met the performance targets established for this measure. Performance data for 

fiscal year 2016 will be available in June 2017.
REHABILITATION SERVICES

I-37

Training

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

(dollars in thousands)

FY 2018 Authorization: $37,830

Budget Authority: 

2017

Annualized CR

2017

Appropriation 2018

Change from 

Annualized CR

$30,131 $29,388 $30,131 0

PROGRAM DESCRIPTION

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

the rehabilitation needs of individuals with disabilities assisted through vocational rehabilitation 

(VR), supported employment, and independent living programs. The program supports training 

and related activities designed to increase the number of qualified personnel providing 

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

agencies and organizations, including institutions of higher education (IHEs), to pay all or part of 

the cost of conducting training programs. 

Awards may be made in any of 31 long-term training fields, in addition to awards for continuing 

education, short-term training, experimental and innovative training, and training interpreters for 

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

programs vary in terms of content, methodology, and type of trainee. For example, the LongTerm Training program supports academic training grants that must direct 75 percent of the 

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

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

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

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

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

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

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

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

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

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

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

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

of the statewide workforce system. 
REHABILITATION SERVICES

Training

I-38

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

Fiscal Year (dollars in thousands)

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

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

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

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

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

FY 2018 BUDGET REQUEST

The Administration requests $30.1 million for the Training program in fiscal year 2018, the same 

as the fiscal year 2017 annualized continuing resolution (CR) level. The Department of 

Education Appropriations Act, 2017, provided $29.4 million for this program. In fiscal year 2018, 

100 percent of the funds requested would be used to support continuation costs.

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

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

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

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

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

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

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

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

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

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

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

address this issue, the Department has focused a considerable amount of Training program 

resources on long-term training, and has sought to further target funds to address those areas 

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

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

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

recruiting new graduates into the rehabilitation field. 

In fiscal year 2018, the Department would also continue support for technical assistance to 

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

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

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

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

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

specific set of issues. The majority of funds requested for fiscal year 2018 would be used to 

support ongoing work through these centers and those in the Long-Term Training program.
REHABILITATION SERVICES

Training

I-39

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2016

footnote

2017

Annualized CR

foot

note

2018

foot

note

Program Funding:

Long-Term Training:

Continuations $18,932 $19,277 19,331

Subtotal 18,932 19,277 19,331

Technical Assistance:

Continuations 7,520 7,353 7,499

Subtotal 7,520 7,353 7,499

Short-Term Training:

Continuations 200 200 200

Subtotal 200 200 200

Training for Interpreters for Individuals 

who are Deaf and Deaf-Blind:

New 2,400 0 0

Continuations 0 2,400 2,400

Subtotal 2,400 2,400 2,400

Other Activities:

New 400 0 0

Continuations 434 600 400

Subtotal 834 600 400

Program Totals:

New 3,200 0 0

Continuations 26,680 29,830 29,830

Peer review of new award 

applications 6 0 0

Minority Outreach 1 302 301 301

Total 30,188 30,131 30,131

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

funds appropriated under this account for minority outreach activities.
REHABILITATION SERVICES

Training

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PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

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

year 2018 and future years, and the resources and efforts invested by those served by this 

program. 

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

and to maintain and upgrade the skills of current staff.

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

help individuals with disabilities achieve their goals.

Annual Performance Measures

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

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

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

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

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

of the program and its expenditures. 

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

requirements through employment in State Vocational Rehabilitation agencies.

Year Target Actual

2013 55% 34%

2014 45 32

2015 47 30

2016 47

2017 45

2018 45

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

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

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

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

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

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

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

the current and future shortages outlined above

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

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

Training

I-41

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

Of all graduates, 73 percent were fulfilling their service obligation in some form of acceptable 

employment in 2014, with roughly 60 percent of the employed graduates opting to work in 

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

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

meeting the service obligations outlined in statute, State hiring freezes, and the salary and 

working conditions in State VR agencies relative to those in other acceptable employment 

settings. When combined with the lower salary offered by State VR agencies compared to 

private firms, it may be that more program graduates are opting to seek employment elsewhere, 

while still meeting the terms of their service obligation. 

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

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

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

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

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

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

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

requirements through acceptable employment.

Year Target Actual

2013 87% 82%

2014 85 78

2015 80 74

2016 83

2017 85

2018 85

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

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

their payback requirements through acceptable employment. This measure captures all 

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

individuals maintaining acceptable employment in all acceptable agencies, not just State VR 

agencies. The Act requires that all program graduates maintain acceptable employment for at 

least 2 years for every year they received assistance from an RSA-supported grant. However, 

only four in five scholars are currently doing so. Among all program graduates, including those 

receiving undergraduate and graduate degrees and certificates, 73 percent were fulfilling their 

payback requirements through acceptable employment in 2015. It is possible that some portion 

of program graduates are receiving waivers of their payback requirements for various reasons, 

including exceptions and deferrals provided in accordance with 34 CFR 386.41, such as 

permanent disability or full-time enrollment in an institution of higher education. It is also 

possible that some subset of individuals who received scholarship support opt to obtain 

employment in for-profit rehabilitation agencies and simply repay their initial scholarship as if it 

were a loan. Without further information, the Department cannot determine the extent to which 

these explanations hold, but RSA has revised the Payback Reporting Form to be used by 
REHABILITATION SERVICES

Training

I-42

grantees in order to significantly improve the quality and accuracy of the data RSA receives 

about scholars.

Efficiency Measures

Measure: The Federal cost per RSA supported rehabilitation counseling graduate at the 

masters level.

Year Target Actual

2013 $24,000 $28,351

2014 24,000 20,596

2015 24,000

2016 24,000

2017 24,000

2018 24,000

Additional Information: The measure is calculated by dividing the total funds spent on longterm training during a fiscal year by the number of graduates supported under that program 

during the same fiscal year. The Department calculates this measure for individual cohorts of 

grantees by dividing the sum of all project costs supported with Federal funds (across all years 

of each individual scholar’s training) by the number of degree recipients who successfully 

completed funded training programs closing in that year. The Federal cost per RSA-supported 

graduate is in line with similar measures in other programs supporting training at the Masters 

level. However, there remains wide variation across types of programs and projects. The 

Department believes that this variation accounted for the higher cost per graduate in 2013. 

Data for 2015 are expected in summer 2017.
REHABILITATION SERVICES

I-43

Demonstration and training programs

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

(dollars in thousands)

FY 2018 Authorization: $6,515

Budget Authority: 

2017

Annualized CR

2017

Appropriation 2018

Change from 

Annualized CR

$5,785 $5,796 $5,785 0

PROGRAM DESCRIPTION

Demonstration and Training programs support activities to expand and improve the provision of 

rehabilitation and other services authorized under the Rehabilitation Act (the Act) and “to further 

the purposes and policies of the Act”. Eligible entities receive support through competitive 

grants and contracts. These current-funded discretionary programs are also authorized to 

support activities that increase the provision, extent, availability, scope, and quality of 

rehabilitation services under the Act, including related research and evaluation activities. 

The majority of projects currently supported under Demonstration and Training programs are 

designed to increase employment opportunities for individuals with disabilities by expanding and 

improving the availability and provision of rehabilitation and other services. These projects are 

intended to increase employment outcomes for individuals for whom vocational rehabilitation 

services were previously unavailable or who previously did not take advantage of such services.

Other activities authorized and currently funded under the Act include: 

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

methods of service delivery to individuals with disabilities, as well as activities such as technical 

assistance, systems change, special studies and evaluation, and dissemination and utilization of 

project findings. Eligible entities include State Vocational Rehabilitation (VR) agencies, 

community rehabilitation programs, Indian tribes or tribal organizations, other public or nonprofit 

agencies or organizations, and for-profit organizations. Competitions may be limited to one or 

more type of entity. 

Sections 303(c) and (d) of the Act authorize a parent information and training program and a 

Braille training program.

.
REHABILITATION SERVICES AND DISABILITY RESEARCH

Demonstration and training programs

I-44

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)footnote

2013 ....................................................................$5,046

2014 ......................................................................5,796

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

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

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

FY 2018 BUDGET REQUEST

The Administration requests $5.785 million for the Demonstration and Training programs in 

fiscal year 2018, the same as the fiscal year 2017 annualized continuing resolution (CR) level. 

The Department of Education Appropriations Act, 2017, provided $5.796 million for this 

program. The request would support continuation costs for awards that began in previous fiscal 

years. No new awards are planned for fiscal year 2018. 

In fiscal year 2018, the Administration would support continuation costs for the fourth year of the 

four 5-year career pathways model projects that were initially funded in fiscal year 2015. Career 

pathways generally refer to a series of connected education and training strategies and support 

services that enable individuals to secure industry relevant certification, obtain employment 

within an occupational area, and advance to higher levels of future education and employment 

in that area. The career pathways model projects are demonstrating a well-defined strategy to 

help youth and adults with disabilities acquire marketable skills and industry-recognized 

credentials through better alignment of education, training, employment, and human and social 

services among public agencies and with employers. Grantees are State VR agencies or a 

consortium of State VR agencies in partnership with other key entities, such as State and local 

educational agencies, community rehabilitation providers, 2-year and 4-year postsecondary 

educational institutions (including vocational and technical schools), and employers.

The Rehabilitation Services Administration (RSA) also supports a number of investments to 

improve transition of students and youth with disabilities. For example, through a jointly funded 

grant with the Office of Special Education Programs, funds available under this program are 

used to support the National Technical Assistance Center on Transition (NTACT)1

. NTACT 

helps State Education Agencies, Local Education Agencies, State VR agencies, and VR service 

providers implement evidence-based and promising practices ensuring students with 

disabilities, including those with significant disabilities, graduate prepared for success in 

postsecondary education and employment.

The request would also provide funds to support the final year of continuation funding for three 

Braille Training projects and seven Parent Training and Information (PTI) centers, including the 

National PTI center, that were awarded in fiscal year 2014.

 1 http://www.transitionta.org/
REHABILITATION SERVICES AND DISABILITY RESEARCH

Demonstration and training programs

I-45

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output measures 2016

footnote

2017

Annualized CR

footnot

e

2018

footn

ote

Program funding:

Career Pathways, 

Career Pathways: Continuation awards $3,682 $3,508 $3,508

Technical assistance activities

TA: Continuation award 1,000 1,2

400 1400 1

Braille training 

Braille: Continuation awards 328 328 328

Parent information and training

Par ent infor mation: Continuation awards 728 3

1,491 1,491

Peer review of new award applications 4 0 0

Minority Outreach 58 58 58

Minority Outreach: Total, Program funding 5,796 5,785 5,785

Number of awards:

Number of Continuation awards 15 15 15

Number of New awards 0 0 0

Total, Number of awards 15 15 15 _________________________

1 These funds are used to jointly support the National Technical Assistance Center on Improving Transition to 

Postsecondary Education and Employment for Students with Disabilities which also receives funding from the Office 

of Special Education programs.

2 About $600 thousand of FY16 funds were used to support a supplement contributing to this TA Center. 3 About $310 thousand of FY15 funds were used to support project continuation costs for FY2016. 

PROGRAM PERFORMANCE INFORMATION

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

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

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

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

year 2018 and future years, and the resources and efforts invested by those served by this 

program.
REHABILITATION SERVICES AND DISABILITY RESEARCH

Demonstration and training programs

I-46

Efficiency Measure

Goal: To expand, improve or further the purposes of activities authorized under the Act.

Objective: Expand and improve the provision of rehabilitation services that lead to employment 

outcomes. 

The efficiency measure for this program is the percentage of projects that met their goals and 

objectives as established in their original applications, or as modified during the first year. This 

efficiency measure is designed to determine whether grantees under this program are 

accomplishing the objectives of the projects for which they received competitive funding. 

In fiscal year 2016, RSA extended support, through a no cost extension, for the Improving 

Outcomes of Individuals with Disabilities who are Social Security Disability Insurance (SSDI) 

Beneficiaries model demonstration project. Funded under the Demonstration and Training 

programs, through its Special Demonstrations program, this project is designed to demonstrate 

how State VR agencies can improve employment outcomes for SSDI and Social Security 

Income recipients. 

The no-cost extension was provided in order to complete demonstration activities with two 

States and facilitate the sustainability of the model. Both States have contributed significant 

State resources to this effort and are making plans to sustain the intervention beyond the end of 

this extension year. Since State resources to continue project activities will not become 

available until October 1, 2017, the no-cost extension will allow the project to continue to fill in 

the gap between the original end date and September 30, 2017.

Specific measures were developed for the model demonstration to assess the effectiveness of 

the grantee’s performance. After the project has concluded, data from the grantee’s final 

performance report will be used to assess performance in the following areas:

• the degree to which the data collected from the project sites show that the intervention 

model results in improvement in the rate of participation in VR services of SSDI recipients; 

• the degree to which the data collected from the project sites show that the intervention 

model results in improvement in employment outcomes, such as employment rate, wages at 

case closure, average hours worked, and the percentage of individuals earning an amount 

greater than substantial gainful activity, as determined by the Social Security Administration, 

at closure;

• the degree to which the project recommended strategies that could be used by other State 

VR agencies to implement the model or sustain the model in States that participated in the 

project; and

• the degree to which the grantee has disseminated its findings to State VR agencies.
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RSA has received preliminary project reports that are promising with regard to increased VR 

participation of SSDI recipients who are being served under the model demonstration. Outcome 

data will be available following the review of the grantee’s final report scheduled for submission 

to RSA in late 2017. 
REHABILITATION SERVICES

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Protection and advocacy of individual rights

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

(dollars in thousands)

FY 2018 Authorization: $19,838

Budget Authority: 

2017

Annualized CR

2017

Appropriation 2018

Change from 

Annualized CR

$17,616 $17,650 $17,616 0

PROGRAM DESCRIPTION

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

to protect the legal and human rights of individuals with disabilities who are ineligible for 

protection and advocacy (P&A) services provided under Part C of the Developmental 

Disabilities Assistance and Bill of Rights Act, the Protection and Advocacy for Individuals with 

Mental Illness Act, or who need P&A services that are beyond the scope of the Client 

Assistance Program. The purpose of this program is to provide assistance and information to 

eligible individuals with disabilities and conduct advocacy to ensure the protection of their rights 

under Federal law. States may use these funds to plan and carry out P&A programs for eligible 

individuals with disabilities and to develop outreach strategies to inform individuals with 

disabilities of their rights. 

Funds must be set aside under this program for two activities before awarding grants to eligible 

States and outlying areas with the remaining appropriation. If the appropriation is equal to or 

exceeds $5.5 million, the Secretary must first set aside between 1.8 percent and 2.2 percent of 

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

under this program. In addition, the Rehabilitation Act of 1973 (the Act) requires that in any year 

in which the total appropriation exceeds $10.5 million, the Secretary must award $50,000 to the 

eligible system established under the Developmental Disabilities Assistance and Bill of Rights 

Act to serve the American Indian consortium. The Secretary distributes the remainder of the 

appropriation to the eligible systems within the States and outlying areas based on population 

estimates and after satisfying minimum allocations. The fiscal year 2016 State distributions were 

based on the July 1, 2014 estimates published in December 2014. The fiscal year 2017 State 

distributions are based on the July 1, 2015 estimates published in December 2015. The fiscal 

year 2018 State distributions will be based on the July 1, 2016 estimates published in December 

2016. 

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

areas by an amount not greater than the percentage increase in the total amount appropriated 

for this program for the previous fiscal year. The Act establishes a minimum allotment of 

$100,000 for States, or one-third of 1 percent of funds remaining after the technical assistance 

set-side and grant for the American Indian consortium, whichever is greater. The outlying areas 
REHABILITATION SERVICES AND DISABILITY RESEARCH

Protection and advocacy of individual rights

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receive a minimum allotment of $50,000. The program is current-funded, but States and 

outlying areas may carry over unobligated Federal funds for an additional year. 

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

Fiscal Year (dollars in thousands)

2013 .......................................................... $17,088

2014 ............................................................ 17,650

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

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

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

FY 2018 BUDGET REQUEST

The Administration requests $17.616 million in fiscal year 2018 for the PAIR program, the same 

as the fiscal year 2017 annualized continuing resolution (CR) level. The Department of 

Education Appropriations Act, 2017, provided $17.650 million for this program. The request will 

assist PAIR programs to provide information and P&A services to over 50,000 individuals with 

disabilities in fiscal year 2018.

During fiscal year 2015, PAIR programs nationwide reported handling 12,418 cases and 

responded to 37,973 requests for information or referral. Of the cases handled by PAIR 

programs in that year, the greatest number of issues were primarily in the areas of government 

benefits/services and education (both reported at 14 percent), employment and health care 

(both reported at 12 percent), and housing (at 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 2015, 53 out of the 57 PAIR 

programs (93 percent) reported that these activities resulted in changes in policies and practices 

benefiting individuals with disabilities.

The following examples of case services provided in fiscal year 2015 illustrate how PAIR 

programs assist individuals and, in some cases, bring about systemic change. Funds requested 

in fiscal year 2018 will support similar activities. 

• Ohio Disability Rights Law and Policy Center (DRO) assisted a military veteran who worked 

and received services at a Veterans Administration medical center. The medical center 

banned the veteran’s service dog from the premises due to a leash policy. The veteran 

contacted DRO for assistance in helping her to find a solution so that she could return to 

work and resume therapy services.

After informal negotiations failed to resolve the matter, DRO filed a complaint with the U.S. 

District Court, Southern District of Ohio. The VA medical center settled the dispute by 

allowing the veteran to return to the facility with her dog, awarding her back pay for her time 

away from work and the cost of additional training for the dog. In addition, the VA medical 

center changed its policy to allow service animals in the facility.
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• disAbility Law Center of Virginia (dLCV) assisted a client with a local Amtrak station that was 

inaccessible to him and other deaf or other hard of hearing individuals. The client travels to 

the Philadelphia area roundtrip at least six times a year. The station lacked TTY telephones, 

and captioned televisions or station announcements. In addition, the client reported that the 

train cars lacked captioned announcements, requiring him to read every train station sign at 

each stop. In response to the client’s inquiry, dLCV staff surveyed the Staples Mill Station 

and filed a complaint with the Federal Department of Transportation (DOT). DOT 

investigated and issued a findings letter requiring the Staples Mill Amtrak Station to provide 

captions on its TV displays, add an improved Public Information Display System, address 

the TTY deficiency, ensure accessibility of its announcements, and expand training and 

education for its service personnel to assist individuals with vision and hearing disabilities 

appropriately. Amtrak is creating onboard information displays on intercity rail cars as well.

• Utah Disability Law Center (DLC) received a report that a local branch of a bank chain in 

Bountiful, UT was physically inaccessible. In response, DLC conducted surveys of the

Bountiful location, as well as a sampling of four other locations in Utah, to determine if the 

local bank chain’s inaccessibility was a more prevalent issue. DLC sent an Americans With 

Disabilities Act Accessibility Guidelines violation notice and recommendations letter to each 

branch manager as well as the national corporation headquarters. In-house counsel for the 

bank’s headquarters agreed that the bank chain would bring those facilities into compliance. 

As of the end of FY 2015, four of the five branch banks had begun working with contractors 

to complete the necessary upgrades to ensure the buildings are accessible and the fifth 

branch ensured the necessary upgrades would be made as soon as possible.

PROGRAM OUTPUT MEASURES 

Output Measures 2016 2017 2018

Information inquiries/referrals 39,300 39,500 39,500

Individuals provided case services 11,630 11,700 11,700

________________

NOTE: Data are projected from actual data reported by PAIRs for fiscal year 2015 and preliminary 

data for 2016 on the number of requests for information and provision of case services to individuals with 

disabilities. Final data for fiscal year 2016 will be available in June 2017.

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

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

2018 and future years, and the resources and efforts invested by those served by this program.
REHABILITATION SERVICES AND DISABILITY RESEARCH

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Goal: To provide assistance and information to individuals with disabilities eligible for 

the Protection and Advocacy of Individual Rights program and conduct advocacy to 

ensure the protection of their rights under Federal law. 

Objective: Identify problem areas requiring systemic change and engage in systemic activities 

to address those problems.

Measure: The percentage of PAIR programs that reported that their systemic advocacy 

resulted in a change in policy or practice. 

Year Target Actual 

2013 91% 91%

2014 91 93

2015 91 86

2016 91

2017 91

2018 88

Additional information: Because PAIR programs cannot address all issues facing individuals 

with disabilities solely through individual advocacy, they seek to change public and private 

policies and practices that present barriers to the rights of individuals with disabilities, utilizing 

negotiations and class action litigation. Successful performance under this measure is 

calculated by the number of PAIR programs reporting a change in policy or practice that results 

from their intervention. The performance target for this performance measure (91 percent or 52 

of 57 PAIR programs) was met in fiscal years 2013 and 2014. However, fiscal year 2015 

performance dropped to 86 percent with 49 of the 57 PAIR programs reporting that their 

systemic advocacy resulted in a change in policy or practice in that year, a decrease of 3 

programs. Based on a review of these data, preliminary 2016 data, and other program 

information, RSA has reduced the target for fiscal year 2018 to 88 percent (50 of 57 PAIR 

programs. Final 2016 data will be available in June 2017.
REHABILITATION SERVICES

I-52

Supported employment State grants

(Rehabilitation Act of 1973, Title VI)

(dollars in thousands)

FY 2018 Authorization: $30,963

Budget Authority: 

2017

Annualized CR

2017

Appropriation 2018

Change from 

Annualized CR

$27,496 $27,548 0 -$27,496

PROGRAM DESCRIPTION

The purpose of the Supported Employment (SE) State Grants program is to assist States in 

developing collaborative programs with appropriate public and private non-profit organizations 

to provide supported employment services for individuals with the most significant disabilities. 

Under this formula grant program, State vocational rehabilitation (VR) agencies receive 

supplemental funds to assist VR consumers with the most significant disabilities in achieving the 

employment outcome of supported employment. Section 7(38) of the Rehabilitation Act defines 

“supported employment” as competitive integrated employment, including customized 

employment, or employment in an integrated work setting in which an individual with a most 

significant disability, including a youth with a most significant disability, is working on a shortterm basis toward competitive integrated employment; and that is individualized and 

customized, consistent with the individual’s unique strengths, abilities, interests, and informed 

choice, including with ongoing support services for individuals with the most significant 

disabilities.

Supported employment uses a “place-train” model in which individuals with the most significant 

disabilities are placed in a job and provided intensive services and supports. These services 

are typically provided by a job coach in conjunction with supports provided by the employer to 

train the individual on the job site, followed by extended services after the individual’s ability to 

perform the job with support has stabilized. These services and support enable individuals with 

the most significant disabilities who, because of the nature and severity of their disability, need 

ongoing support to engage in and maintain competitive integrated employment. .

An individual's potential for supported employment must be considered as part of the 

assessment to determine eligibility for the Title I VR State Grants program. VR funds are used 

to the pay the costs associated with assessment and the determination of eligibility, as well as 

other needed VR services prior to placement in supported employment. Ongoing services are 

furnished by the VR agency, using funds under the Supported Employment program and/or the 

VR program, from the time of job placement until the transition to extended services, and 

thereafter by one or more extended services providers. A State VR agency may support an 

individual’s supported employment services solely with VR State Grant funds, or it may support 

these services in whole or in part with funds under the SE State Grants program.
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Recent amendments to Title VI of the Rehabilitation Act made by the Workforce Innovation and 

Opportunities Act of 2014 (WIOA) significantly change the provision of supported employment 

services. Such changes include, for example, extending the time frame for the provision of 

supported employment services from 18 months to 24 months. However, the most significant of 

these changes focus on the provision of services to youth with the most significant disabilities.

Consistent with the previous authority, State VR agencies must still demonstrate evidence of 

their efforts to identify and make arrangements with other public or nonprofit agencies or 

organizations within the State, employers, natural supports, and other entities with respect to 

the provision of extended services. However, under the new law State VR agencies must now 

make extended services available to youth with the most significant disabilities with funds 

available under the SE program, based upon the individual needs of the youth for a period not 

to exceed 4 years. Furthermore, section 604(b)(2) under the SE program permits VR agencies 

to use VR program funds to pay for extended services to youth with the most significant 

disabilities who have received supported employment services. Extended services are those 

services provided to individuals with the most significant disabilities by a State agency, a private 

non-profit organization, employer, or any other appropriate resource once an individual has 

concluded services from the State VR agency. State VR agencies were previously prohibited 

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

State VR agencies are still prohibited from providing extended services to individuals with the 

most significant disabilities who are not youth with significant disabilities using SE or VR 

program funds.

In addition, States are now required to use half of their SE program funding allotment to provide 

supported employment and extended services to youth with the most significant disabilities and 

to provide a match of 10 percent for the SE allotment portion used to serve such youth.

Supported employment funds are distributed on the basis of population, with no State receiving 

less than $300,000, or one-third of 1 percent of the sums appropriated, whichever is greater. 

The minimum allotment for Territories remains one-eighth of 1 percent of the sums 

appropriated. The fiscal year 2016 State allotments were based on the July 1, 2014 estimates 

published in December 2014. The fiscal year 2017 allotments are based on the July 1, 2015 

estimates published in December 2015.
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Funding levels for the past 5 fiscal years were as follows:

Fiscal Year (dollars in thousands)

2013 .....................................................................$27,548

2014 .......................................................................27,548

2015 .......................................................................27,548

2016 .......................................................................27,548

2017 .......................................................................27,548

FY 2018 BUDGET REQUEST

No funds are requested for FY 2018 for the SE State Grants program. The Department of 

Education Appropriations Act, 2017, provided $27.5 million for this program. The Administration 

recognizes that supported employment can be an effective strategy in assisting individuals with 

the most significant disabilities to obtain competitive employment in integrated settings. 

However, because supported employment is now an integral part of the VR State Grants 

program, the Administration believes that there is no longer a need for a separate funding 

stream to ensure the provision of such services. A separate supplemental grant program is not 

necessary for the provision of supported employment services, and the proposed elimination 

would reduce unnecessary administrative burden and streamline program administration at the 

Federal and State levels. The Department expects that State VR agencies will continue to 

provide supported employment services in fiscal year 2018 to approximately the same number 

of individuals as they did under the two separate authorities. However, maintaining these levels 

will require State VR agencies to use an increased portion of their Title I VR funds to provide 

supported employment services or seek additional support from State and local resources. 

In carrying out its review and monitoring responsibilities under section 107(a)(4) of the 

Rehabilitation Act Title I of the Rehabilitation Act, the Department will continue to examine the 

provision of supported employment services to ensure that State agencies invest appropriate 

levels of their resources in supported employment and to provide technical assistance where 

needed.

The SE State Grants program was first authorized under the Rehabilitation Act Amendments of 

1986 to provide supplemental grants to assist States in developing collaborative programs with 

public agencies and private nonprofit organizations for training and time-limited postemployment services for individuals with the most severe handicaps. At that time, supported 

employment was a new promising practice in employing individuals who traditionally would not 

have achieved employment in the integrated labor market. Initially, many rehabilitation 

professionals were skeptical about its feasibility and concerned about the potential costs. As a 

supplemental source of dedicated funds, the SE State grant program was designed to provide 

an incentive for State VR agencies to provide supported employment services. State VR 

agencies now recognize supported employment as a viable employment option for individuals 

with the most significant disabilities and no longer require such an incentive.

Over the last several years, State VR agencies have been spending a significant amount of VR 

State Grant funds (including State matching funds) to provide supported employment services 
REHABILITATION SERVICES AND DISABILITY RESEARCH

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for those individuals who require such services to participate in the integrated labor market. For 

example, in FY 2015 State agencies spent a total of $210.2 million to provide purchased 

services for individuals with a goal of supported employment, including $183.0 million from 

Title I VR funds and $27.1 million from Title VI SE funds. The cost of purchased services is in 

addition to the costs of services provided directly by VR agency staff for individuals. 

Finally, while well intentioned, the changes to the SE State Grants program made by the WIOA 

amendments have significantly increased the Federal and State cost and burden of 

administering the program. Thus, the Administration’s proposal would reduce unnecessary 

administrative burden and streamline program administration at the Federal and State levels. 

Further, lowering the cap on amount of administrative costs that can be paid for with funds 

under the SE program (5 percent of State’s SE annual allotment to 2.5 percent of State’s SE 

annual allotment) has shifted the higher administrative costs to the VR State Grants program. 

The increase requested for the VR State Grants program would reduce the impact of the loss of 

these supplemental funds.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2016 footnote2017 footnote2018 footnote

Individuals with a supported 

employment IPE goal when they 

exited the program 46,850 46,850 46,850

Employment outcomes: 26,620

1

26,620

1

26,620

1

Supported employment outcomes 19,1102 19,1102 19,1102

Employment without supports in an 

integrated setting 7,4103 7,4103 7,4103

Other employment outcomes 1004 1004 1004

Minority outreach $275 $275 0

____________________

NOTE: Estimates are based on actual 2015 closure data and preliminary 2016 data from the RSA-911 Case 

Service Report for all VR consumers with a supported employment goal identified on their individualized plan for 

employment (IPE), including consumers who received SE services with funds provided under the VR State Grants 

and/or under the Supported Employment State Grants programs. 1 Includes employment outcomes for all VR consumers who had a supported employment goal at exit. 2 Of the individuals who had a supported employment goal at exit, the number who were employed in an 

integrated setting and receiving ongoing support services. 3 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program but who were not receiving ongoing support services at exit. 4 Of the individuals who had a supported employment goal at exit, the number who met the employment outcome 

criteria for the VR State Grants program who were either self-employed, employed in a Business Enterprise Program, 

a family worker, or a homemaker. 
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PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

cumulative effect of the resources provided for this program and the VR State Grants program 

in previous years, as well as the resources and efforts invested by those served by these 

programs. 

Goal: Individuals with significant disabilities with a goal of supported employment will 

achieve high quality employment.

Objective: Ensure that individuals with significant disabilities with a supported employment 

goal achieve high quality employment.

Measure: Of those individuals with significant disabilities who had a supported employment 

goal and achieved an employment outcome, the percentage who obtained competitive 

employment, including individuals who receive supported employment services funded under 

the VR State Grants program and/or the SE State Grants program.

Year Target Actual

2013 94% 95%

2014 94 95

2015 95 95

2016 95

2017 96

2018 96

Additional information: Individuals with a supported employment goal who achieve an 

employment outcome may be working in competitive integrated employment (employment at 

least at the minimum wage in an integrated setting) or may be working in an integrated setting 

toward competitive employment at or above the minimum wage. 

Fiscal year 2015 RSA 911 Case Service Report data show that 22,950 individuals who had a 

goal of supported employment on their IPE at the time their case service record was closed, 

including both consumers who received SE services from funds provided under the VR State 

Grants and under the SE State Grants programs, achieved an employment outcome. Of those 

who achieved an employment outcome, 95 percent achieved a competitive employment 

outcome and the performance target was met. Data for fiscal year 2016 are expected to be 

available in June 2017.
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Measure: Average weekly earnings for individuals with significant disabilities who achieved a 

supported employment outcome.

Year Target Actual

2013 $205 $207

2014 208 200

2015 208 215

2016 208

2017 210

2018 214

Additional information: Performance data for this measure are calculated by dividing the 

average weekly earnings for all individuals who obtained a supported employment outcome with 

earnings by the total number of individuals who obtained a supported employment outcome with 

earnings. The performance data do not include individuals served by State VR agencies for the 

blind. 

For the performance group, fiscal year 2015 data show that the average weekly earnings of 

individuals with significant disabilities who achieved a supported employment outcome was 

$214.56, a significant increase from 2014, and the performance target was surpassed. Average 

hourly earnings increased from $8.70 to $9.12, with only a very slight increase in the average 

hours worked per week (from 22.3 to 22.7) at the time the service record was closed. It should 

be noted that the average weekly earnings calculation for 2015 does not include data for five 

States. However, preliminary 2016 data, which includes data for these five States, show a 

continuing increase in average weekly earnings for these individuals. Data for fiscal year 2016

are expected to be available in May 2017.

Efficiency Measure

Objective: Ensure that State VR agencies effectively use Supported Employment Grant funds 

to achieve supported employment outcomes.

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

30 supported employment outcomes per $100,000 received in SE Grant funds.

Year Target Actual

2013 75% 75%

2014 75 65

2015 75 65

2016 75

2017 75

2018

Additional information: The efficiency measure developed for the Supported Employment 

State Grants program examines the percentage of State VR agencies for which the number of 
REHABILITATION SERVICES AND DISABILITY RESEARCH

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supported employment outcomes per $100,000 received in SE Grants funds is within a 

specified range. For the purpose of this measure, the number of supported employment 

outcomes per $100,000 is calculated by dividing the reported number of individuals that

achieved a supported employment outcome by the amount of a State agency’s SE allocation 

and multiplying the result by 100,000. The performance group does not include State VR 

agencies for the Blind or the four territories because they receive less than $100,000 in SE 

Grants funds. In 2015, 34 of the 52 State VR agencies demonstrated at least 30 supported 

employment outcomes per $100,000, the same as 2014 and the performance target was not 

met. This percentage includes 3 agencies that did not report any outcomes for individuals with 

an SE goal and 2 agencies that only reported employment without supports for such individuals. 

The median number of supported employment outcomes per $100,000 received in SE Grant 

funds for the 52 State agencies increased from 47.3 in 2014 to 63.1 in 2015. However, it should 

be noted that there is significant variation among agencies in the performance group, with the 

supported employment outcomes per $100,000 in fiscal year 2015 ranging from 0 (Alaska) to 

286 (Missouri). The Department is reevaluating this measure given the potential impact of the 

WIOA amendments on performance. 

Other Performance Information

On an aggregate level, VR consumers who had a goal of supported employment represented 

nearly 13 percent of the total individuals whose cases were closed after receiving VR services in 

fiscal year 2015. Data from the FY 2015 Case Service Report (RSA-911) show that 

approximately 41,740 individuals receiving services had a goal of supported employment on 

their IPE at the time their case service record was closed in fiscal year 2015. These numbers 

do not include those individuals who were still receiving supported employment services at the 

close of the fiscal year. While the number of individuals receiving services that had a goal of 

supported employment at the time their case service record was closed in fiscal year 2015 is 

higher than the number reported in recent years, the difference may largely be due to the fact 

that SE-related data elements changed in the revised RSA-911 data implemented in FY 2014 

and there may be due to the reporting of these data items.

Data collection requirements resulting from WIOA have required additional changes to the RSA911 Case Service data collection. State VR agencies are required to implement the new data 

collection beginning in July 2017. The redesigned post-WIOA data collection will provide 

quarterly data on individuals who are receiving services under the VR program, including data 

collected on individuals receiving supported employment services. The enhanced data on 

individuals receiving supported employment services will enable RSA to better monitor the 

services, service costs, and the outcomes achieved by such individuals and help to identify 

those agencies that need technical assistance.
REHABILITATION SERVICES

I-59

Independent living services for older blind individuals

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2018 Authorization: $37,448

Budget Authority: 

2017

Annualized CR

2017

Appropriation 2018

Change from 

Annualized CR

$33,254 $33,317 $33,254 0

PROGRAM DESCRIPTION

The Independent Living Services for Older Individuals Who Are Blind (ILOIB) program supports 

services to assist individuals aged 55 or older who have severe visual impairment making

competitive employment extremely difficult to obtain, but for whom independent living goals are 

feasible. Funds are used to provide independent living services, conduct activities that will 

improve or expand services for these individuals, and conduct activities to improve public 

understanding of the problems of these individuals. ILOIB services are designed to help eligible 

persons adjust to their blindness by increasing their ability to care for their individual needs. 

The Workforce Innovation and Opportunities Act (WIOA) amended the ILOIB program in section 

751A of the Rehabilitation Act to require that not less than 1.8 percent and not more than 2 

percent of the funds appropriated to the ILOIB program be used to provide training and 

technical assistance to Designated State Agencies or other providers of ILOIB services that 

receive ILOIB program funds. As a result, the amount of funds available for allocation to States

has decreased as compared to fiscal year 2014.

Grantees are State vocational rehabilitation agencies for persons who are blind and visually 

impaired or, in States with no separate agency for persons who are blind, State combined 

vocational rehabilitation agencies. States participating in the Services for Older Individuals Who 

Are Blind program must match 10 percent of their grant with non-Federal cash or in kind 

resources in the year for which the Federal funds are appropriated. When appropriations for 

this program exceed $13 million—as they have since fiscal year 2000—awards are distributed 

to States according to a formula based on the population of individuals who are 55 years of age 

or older. The minimum allotment for each of the 50 States, D.C., and Puerto Rico is $225,000, 

with each of the outlying areas receiving a minimum allotment of $40,000.

The fiscal year 2016 allotments were based on the July 1, 2014 estimates of the population of 

individuals age 55 and older published by the Census Bureau in June 2015. The fiscal year 

2017 allotments are based on July 1, 2015 estimates of the population of individuals age 55 and 

older published by the Census Bureau in June 2016. The fiscal year 2018 allotments are based 

on July 1, 2015 population estimates and will be updated based on July 1, 2016 by age group 

when they become available in June 2017.
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Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2013 .....................................................................$32,239

2014 .......................................................................33,317

2015 .......................................................................33,317

2016 .......................................................................33,317

2017 .......................................................................33,317

FY 2018 BUDGET REQUEST

The Administration requests $33.254 million for the ILOIB program for fiscal year 2018, the 

same as the fiscal year 2017 annualized continuing resolution (CR) level, to assist States in 

meeting the demand for program services. The Department of Education Appropriations Act, 

2017, provided $33.317 million for this program. Of the amount requested, the Department 

plans to reserve 1.8 percent of the funds requested to provide training and technical assistance 

to the ILOIB program and its service providers.

Independent living services are typically provided through contracts with local providers 

administered by State vocational rehabilitation (VR) agencies. Services provided under the 

ILOB program, which most frequently include technology aids and devices (57 percent), daily 

living skills (44 percent) and low vision assessments (37 percent), allow older individuals who 

are blind or severely visually impaired to be more independent at home and in the community. 

Many of the needs of this older population are different from those of the consumers that are

served under the Centers for Independent Living, now administered by the Department of 

Health and Human Services. In 2015, 60,435 individuals received services under the ILOIB 

program, over half of whom were over 80 years of age and about 82 percent were still living in a 

private residence. Approximately 55 percent of the individuals served in FY 2015 were either 

legally blind or totally blind and nearly one fourth also suffered from some degree of hearing 

impairment. Macular degeneration continues to be the most commonly reported eye condition, 

followed by glaucoma and diabetic retinopathy. 

Trained program personnel are knowledgeable about blindness and other visual impairments,

as well as the needs of older individuals with such impairment, including adaptive strategies that 

can assist these individuals to adjust to their impairments and increase their ability to function 

more independently. However, most of the specialized services provided by the program for 

these older individuals are not covered by other public and private payers, such as private 

insurance, Medicaid, or Medicare.

The prevalence of disability increases with age and the occurrence of a sensory disability is 

more than six times greater among older adults than working-age people. Persons age 55 or 

older, the target population of this program, are projected to comprise a larger share of the 

population over the next decade and beyond. According to the U.S. Census Bureau’s 2015 

American Community Survey (1-Year Estimates), 6.5 percent of individuals 65 and older (about 

3.0 million people) have a vision-related disability. In addition, the percentage of individuals 
REHABILITATION SERVICES AND DISABILITY RESEARCH

Independent living for older blind individuals

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who have a disability that affects their independent living status (including vision-related 

disabilities) increases with age, with a dramatic increase for individuals in the 75 years and over 

category, where 25.2 percent report having a disability that affects their independent living 

status. Since advancing age is associated with higher prevalence of vision loss, the ILOIB 

program will likely face an increasing demand for services.

In addition, the final regulations implementing changes to the VR State Grants program, 

published in the Federal Register on August 19, 2016, eliminate uncompensated outcomes (i.e., 

homemaker and unpaid family worker outcomes), from the definition of the term “employment 

outcome.” While the national percentage of individuals with such outcomes served by the VR 

program has been very small (about 3 percent), many of these individuals were 55 years of age 

or older and had severe visual impairments. To offset the impact of this change, the VR 

regulations allow VR agencies to continue to serve such individuals who were receiving services 

prior to the effective date of the regulations (September 19, 2016) until June 30, 2017. The 

Department anticipates that VR agencies will refer many of the individuals affected by the rule 

change to the ILOIB program to obtain the services they need.

In fiscal year 2018, the Department will reserve approximately $600,000 (1.8 percent of the 

funds appropriated for the ILOIB program) to support training and technical assistance, as 

required by the authoring statute. In fiscal year 2015, the National Research and Training 

Center on Blindness and Low Vision (NRTC) at Mississippi State University was awarded the 

training and technical Assistance grant for older individuals who are blind that was established 

under the Rehabilitation Act through amendments to Title IV of WIOA1

. The training and 

technical assistance activities provided by this 5-year grant are designed to improve program 

and consumer outcomes and to enhance service providers' knowledge and skills in the areas of 

best practice, community outreach, budget management, and data collection.

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures: 2016 2017 2018

Number of Grantees 56 56 56

Minimum State award $225 $225 $225

Number of States at minimum 17 17 17

Average State award $620 $620 $619

Minority outreach $333 $333 $333

Training and technical assistance $600 $600 599

 

1 http://www.blind.msstate.edu/research/current-research/oib.php
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PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

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

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

the cumulative effect of the resources provided in previous years, including funding provided 

under the Recovery Act, and those requested in fiscal year 2018 and future years, as well as 

the resources and efforts invested by those served by the program. 

Goal: To promote and support a philosophy of independent living (IL)—including a 

philosophy of consumer control, peer support, self-help, self-determination, equal 

access, and individual and system advocacy—in order to maximize the leadership, 

empowerment, independence, and productivity of individuals with disabilities, and the 

integration and full inclusion of individuals with disabilities into the mainstream of 

American society.

Objective: Through the provision of services (either directly or through contracts), increase the 

percentage of consumers receiving services funded through the Older Blind program who report 

having access to services needed to improve their ability to live more independently and 

participate fully in their communities.

Measure: The percentage of Independent Living Older Blind program consumers who have 

access to previously unavailable assistive technology aids and devices.

Year Target Actual

2013 58% 55%

2014 58 54

2015 56 57

2016 56

2017 57

2018 57

Additional information: The percentage of consumers reporting access to previously 

unavailable assistive technology in 2015 increased from the prior year and the performance 

target was below the target level for the third consecutive year. Assistive technology is one of 

the most frequently requested and expensive forms of assistance offered by this program, and 

consequently some States may have difficulty meeting consumer demand. For fiscal year 2015, 

performance on this measure was calculated by dividing the number of consumers who 

received assistive technology (34,177) by the total number of Older Blind program consumers 

(60,435). Data for 2016 are expected by summer of 2017. 
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Measure: The percentage of Independent Living Older Blind program consumers who report an 

improvement in daily living skills.

Year Target Actual

2013 60% 62%

2014 60 61

2015 62 60

2016 62

2017 62

2018 62

Additional information: The percentage of consumers reporting improvement in their daily 

living skills for 2015 was slightly lower than in the prior year, and the target was not met. For 

fiscal year 2015, performance on this measure was calculated by dividing the number of Older 

Blind program consumers who reported improvement in daily living skills (18,930) by the total 

number of Older Blind program consumers who received daily living skills training (31,600). 

Daily living skills include activities such as bathing, moving around the home, getting out of bed 

or a chair, and eating a meal. State agencies collect and provide this data in their annual 

program reports. Data for 2016 are expected by summer 2017. Because of concerns about the 

subjectivity of this measure and the difficulty in isolating improvement on the basis of one of a 

number of services that may be received, the Department is considering alternative methods for 

assessing the functional improvement of consumers receiving services under the ILOB that will 

not increase the overall data collection burden for grantees.
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Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2018 Authorization: 0 1

Budget Authority: 

2017

Annualized CR

2017

Appropriation 2018

Change from

Annualized CR

$10,316 $10,336 $10,316 0

_________________ 

1 The GEPA extension expired September 30, 2004; continued funding is proposed for this program in FY 2018 

through appropriations language.

PROGRAM DESCRIPTION

The Helen Keller National Center for Deaf-Blind Youths and Adults (HKNC) was created by 

Congress in 1969 and operates under the auspices of Helen Keller Services for the Blind, Inc. 

Unlike the other programs administered by the Department’s Rehabilitation Services 

Administration (RSA), the Helen Keller National Center Act was not reauthorized by WIOA 

amendments in July of 2014. The HKNC provides services on a national basis to youth and 

adults who are deaf-blind, their families, and service providers through on- and off-campus 

services, professional learning, and information on combined vision and hearing loss. HKNC’s 

mission is to enable each person who is deaf-blind to live, work, and thrive in his or her 

community of choice. This includes having access to local resources for community living and 

employment opportunities.

HKNC provides direct services through a residential training facility at its national headquarters 

center (Center) located in Sands Point, New York, where deaf-blind individuals receive intensive 

specialized services. The Center provides comprehensive services for individuals with deafblindness to enhance their potential for employment and live independently in their home 

communities. The Center’s residential programs provide consumers with an array of services, 

supports, and adaptive skills training, to help them meet their vocational and independent living 

goals. The Center’s programs emphasize a number of areas such as enhanced mobility;

improved and accessible communication (including the use of adaptive technology);

constructive participation in home and community settings; leadership and advocacy training 

through mentoring, ongoing social and professional opportunities; and employment.

HKNC also provides services through a network of 10 regional field offices staffed by 11 

regional representatives and one associate regional representative. Through this network, 

HKNC provides assistance to deaf-blind individuals and their families, as well as technical 

assistance to local service providers. The regional network offices provide counseling, 

information, transition assistance, and referral services for individuals who are deaf-blind and 

their families to assist them to live and work independently. Regional representatives provide a 
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wide variety of services to individuals who are deaf-blind in their home communities, including: 

training for State and local service agency staff, general technical assistance, program 

assessment, community advocacy, and assistance to vocational rehabilitation counselors, 

mental health workers, special education personnel, and deaf-blind consumers with developing 

individualized service plans. Regional representatives also assist clients who have received 

training at the Center with making the transition back to their home community. 

Regional representatives collaborate with States to increase local capacity in the areas of 

implementing support service provider (SSP) programs, professional development training for 

VR and blind/visually impaired counselors, developing vocational rehabilitation case sharing 

models, identifying deaf-blind leaders for representation on task forces/advisory councils and 

program planning/training, developing online and webinar training, and expanding the vocational 

access service provider model.

The HKNC Community Services Program (CSP), a model collaboration between the Center and 

the New York State Commission for the Blind (NYSCB), provides comprehensive rehabilitation, 

vocational, and support services to eligible persons who are deaf-blind in their homes, worksites 

and communities. CSP is staffed by credentialed professionals in the fields of blindness and 

deafness including orientation and mobility specialists, certified interpreters, low vision 

specialists, vision rehabilitation teachers, and vocational specialists. All CSP staff are proficient 

in American Sign Language and other alternative modes of communication. 

HKNC also provides professional development, training and technical assistance, and 

consultation to other organizations, programs, and providers serving individuals who are deafblind. Through its Information, Research and Professional Development (IRPD) department, 

HKNC provides technical knowledge, expertise, training, and services to its partners across the 

United States. The IRPD department offers on-campus workshops and seminars in a myriad of 

disciplines such as train-the-trainer seminars for adaptive technology instructors working to 

support the National Deaf-Blind Equipment Distribution Program, training for sign language 

interpreters working with individuals who are deaf-blind, SSP services, and training for 

vocational rehabilitation counselors. In collaboration with personnel preparation programs, and 

research projects located at universities throughout the country, IRPD staff work to identify

effective practices for working with youths and adults who are deaf-blind and disseminates 

these best practices nationally via professional training initiatives in collaboration with HKNC 

direct services and field service staff.

In fiscal year 2016, the Center offered three summer programs that focused on the needs and 

goals of transitioning youth who are deaf-blind. At the end of these programs, 

recommendations are provided to the student’s school in order to continue vocational planning 

and support the development of individualized plan for employment goals, as appropriate. Brief 

descriptions of these programs are provided below.

• Summer Youth Vocational Program – This 6-week program offers young adults their first 

paid work experience with an exploration into how strategies for communication, 

independent living, and mobility can foster their independence at work. 

• Young Adult Summer Program (YASP) – This 2-week program offers youth who are

deaf-blind and completing their high school education the opportunity to learn about future 
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options related to college, work, and apartment living, how to advocate, and to experience 

adult life in the residence and community.

• Comprehensive Summer Youth Assessment – The 8-week comprehensive assessment for 

transitioned aged youth focuses on identifying goals for the remaining years of high school 

and college, including exploring vocational interests and identifying specific 

accommodations needed in college environments.

HKNC also offered a new program in 2016 called the Deaf-Blind Immersion Seminar (DBIS), 

which provides consumers who are deaf-blind with intellectual disabilities, and their support 

team, a 5-day training experience that includes the consumer’s participation in work 

experiences that match their interests, gifts, and abilities.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2013..................................................................$8,667

2014....................................................................9,127

2015....................................................................9,127

2016..................................................................10,336

2017..................................................................10,336

FY 2018 BUDGET REQUEST

The Administration requests $10.316 million in fiscal year 2018 for the HKNC, the same as the 

fiscal year 2017 annualized continuing resolution (CR) level. The Department of Education 

Appropriations Act, 2017, provided $10.336 million for this program. The funds requested in 

fiscal year 2018 would expand independent living and employment opportunities for individuals 

who are deaf-blind by supporting the Center’s comprehensive residential training and 

assessment programs and HKNC’s regional network of field service representatives, along with 

professional development and training for individuals and organizations who work with deafblind individuals.

The request would support services through its regional offices to an estimated 

1,600 consumers, 4 75 families, and 985 agencies and organizations. The request would also 

support the provision of direct intensive services to approximately 93 consumers, including an 

estimated 65 consumers at HKNC’s residential training and rehabilitation program and an 

estimated 30 consumers through the CSP. 

Approximately 30 percent of the funds requested would provide support to the HKNC for field 

services, community education, and professional development programs, including the activities 

of HKNC’s 10 regional offices and the IRPD department. These programs help reach 

consumers in their home communities and assist personnel at State agencies and other 

organizations to serve or develop the capacity to serve individuals who are deaf-blind through 

training, community education, and technical assistance.
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In FY 2016, the Center served 92 consumers, most of whom were participants in the intensive 

specialized vocational and independent living programs (63) and the CSP (29). In FY 2016, 

HKNC provided a number of specialized residential programs, including a confident living 

program for seniors and programs designed to serve transitioning youth and individuals who 

are deaf-blind and have intellectual disabilities. The Center also provided specialized services 

to other deaf-blind individuals in need of comprehensive assessment and training services. In 

fiscal 2016, HKNC provided opportunities for individuals with vocational goals to participate in 

one or more short-term work experiences (66 work experiences in total) with 22 different 

employers.

Professional Development

The fiscal year 2018 request would continue to support HKNC activities that promote best 

practices and provide quality information and training to individuals who are deaf-blind, their 

families, and professionals. To address the critical shortage of professionals qualified to meet 

the unique needs of individuals who are deaf-blind, HKNC provides training for personnel such 

as teachers and vocational rehabilitation counselors, rehabilitation teachers, orientation and 

mobility specialists, adaptive technology instructors and interpreters. One of the IRPD 

department’s main objectives is to support training for professionals in conjunction with HKNC 

headquarters staff members, regional representatives and consultants across the country. For 

example, in fiscal year 2016, the IRPD department provided 15 professional development 

opportunities in a number of areas, such as touch signals training, current techniques in working 

with consumers in group home settings, creating successful employment options for deaf-blind 

workers, and orientation and mobility training. Information and training materials are 

disseminated through customized responses to requests for information, short term and onsite 

individualized training, topical seminars, and small scale, customized training at locations 

throughout the United States.

HKNC has also helped to increase the number of qualified professionals working with 

individuals who are deaf-blind by utilizing technology and distance learning opportunities, such 

as instructional videos, webinars, and online courses. For example, HKNC recently produced 

online courses and short training videos focused on professional development. The online

courses offer Certified Rehabilitation Counseling credits and Academy for the Certification of 

Vision Rehabilitation and Education Professionals continuing education units upon successful 

completion. The coursework includes topics such as: Working with Individuals who are 

DeafBlind - A Course for Vocational Rehabilitation Counselors and Other Professionals and 

Confident Living - A Guide to Working with Senior Adults with Combined Vision and Hearing 

Loss. In addition, HKNC partnered with the Perkins School for the Blind to develop short 

training videos which assist in the transition of deaf-blind and blind consumers with intellectual 

disabilities to adult services by providing ease of access support for para-professionals and 

family members in respectful interactions and communication systems. Three short training 

videos were completed and are available free of charge. HKNC’s IRPD goal is to become a 

national information clearinghouse on deaf-blindness.

Sources of HKNC Revenue

In fiscal year 2016, funds appropriated directly to HKNC through the Department’s 

Rehabilitation Services account ($10,336,000) made up 66 percent of its total revenue, and 
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direct and indirect funds from other Federal sources made up 10 percent of its total revenue. 

Funds from a variety of other sources compromised 24 percent of its total revenue, including 

State grants and contracts (9 percent), other public support and donations (2 percent), and 

other revenue generated by HKNC operations and investment income (4 percent). The figure

below provides information on the sources of revenue and dollar amounts in thousands.
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For fiscal year 2016, HKNC reported total public support and revenues of $15,726,000 and incurred 

total operating expenses of $19,941,000, resulting in a net loss of $4,215,000. While the Center has 

sought to increase other sources of funding, the Federal appropriation remains its primary source of 

support. Because most of the specialized services required by this population are provided by 

HKNC staff, salaries and fringe benefits account for most of their expenses (78 percent).

Federal 

Appropriations

$10,336 

66%

Training Fees

$1,370 

9%

State Grant & 

Contracts

$1,400 

9%

OtherFederal 

Funding Direct & 

Indirect

$1,654 

10%

Other Revenue

$626 

4%

Donations and 

Public Support

$340 

2%

FY 2016 Sources of Funds - $15,726 thousand

(All dollars in thousands)
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FY 2016 Expenses - $19,941 thousand

(All dollars in thousands)

Professional 

Services

$1,299 

7%

Consumer 

Related 

Expenses

$490 

2%

Building, Utilities 

& Rent

$1,406 

7%

Salaries & Fringe 

Benefits

$15,580 

78%

Other Operating 

Expenses

$1,165 

6%
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PROGRAM OUTPUT MEASURES

Output measures 2016

2017

Annualized CR 2018

Number of individuals served at headquarters: 

Number of Adult training program clients 63 65 65

Number recei vi ng Specialized training services:

Specialized tr aini ng ser vices: Number of Transition for high school students 19 20 20

Specialized tr aini ng ser vices: Number of Senior citizens 5 5 5

Specialized tr aini ng ser vices: N umber recei vi ng Targeted skills training 2 3 3

Specialized tr aini ng ser vices: N umber recei vi ng Community Services Program 29 30 30

Number of individuals served through regional 

representatives: 

Number of Consumersserved through r egional r epr esentati ves 1,582 1,600 1,600

Number of Familiesser ved thr oug h regional representati ves 447 475 475

Number of Agencies/organizationsserved thr ough r egional repr esentati ves 985 985 985

f HKNC FTE staff 144 145 145

PROGRAM PERFORMANCE INFORMATION

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

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

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

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

2018 and future years, as well as the resources and efforts invested by those served by this 

program.

Goal: Individuals who are deaf-blind will become independent and function as full and productive 

members of their local community.

Objective: Individuals who are deaf-blind receive the specialized services and training they need to 

become as independent and self-sufficient as possible.
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Measure: The percentage of: (1) training goals set and achieved by adult consumers (both on and 

off campus); (2) adult consumers seeking employment who are placed in employment both on and 

off campus);and (3) adult consumers seeking to maintain their ability to live independently or move 

to less restrictive settings who achieve their goals.

Year

Target

# of Adult 

Consumers

Actual

# of Adult 

Consumers

Target

% in Less 

Restrictive 

Settings

Actual

% in Less 

Restrictive 

Settings

Target

% of 

Training 

goals met

Actual

% of 

Training 

goals met

Target

% Placed in 

Employment

Actual

% Placed in 

Employment

2013 68 52/52 85% 83% 95% 96% 46% 36/67%

2014 70 57/38 86 83 95 91 47 42/88

2015 71 55/30 87 82 95 93 48 41/56

2016 75 63/29 86 86 95 91 48 53/50

2017 75 86 95 48

2018 75 86 95 48

Additional information: In fiscal year 2016, HKNC served 63 consumers in the on-campus 

rehabilitation training programs and 29 additional off-campus consumers through its Community 

Services Program. HKNC points out that the number of consumers served may fluctuate from year 

to year due to factors beyond the control of the Center. For example, the length of time an individual 

participates in training may vary anywhere from two weeks to beyond one year due to varying levels 

of training intensity and differing individual needs.

The less restrictive settings measure refers to consumers who move from settings such as living with 

parents or guardians, assisted living settings, and nursing homes to more independent living 

arrangements such as their own home or apartment or group homes. In addition, this measure 

includes participants who achieved a less restrictive living environment by successfully acquiring 

skills in two or more core areas resulting in the ability to maintain a home and more fully participate 

in community life. In 2016, 86 percent of consumers moved into, or remained in, less restrictive 

settings, and the target set for the fiscal year was met.

The Center evaluates the progress of consumers in achieving the goals stated in their individualized 

training plans (ITPs). This measure represents the percent of adult consumers served by the HKNC 

who successfully achieved identified training goals during the program year. The consumers and 

their instructors mutually develop these instructional objectives. To ensure that the measure is an 

accurate reflection of the Center’s performance, the Department and HKNC have agreed that it 

should only include the outcomes for adult consumers enrolled in the long-term formal program and 

the targeted skills training program. Consumers in the short-term programs for high school students 

are not included in the calculation. In 2016, 91 percent of adult consumers achieved their training 

goals; however, the target (95 percent) was not met.

In fiscal year 2016, 53 percent of consumers in on-campus programs and 50 percent of off-campus 

consumers with an employment goal were placed in employment, and the target was met.

Objective: Increase the capacity of deaf-blind consumers to function more independently in the 

home community.

Measure: The number of individuals (or families on behalf of individuals) referred to State or local 

agencies or service providers by HKNC‘s regional offices.

Year Target Actual 
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Year Target Actual 

2013 245 898

2014 265 575

2015 265 551

2016 300 626

2017 500

2018 600

Additional information: In fiscal year 2016, HKNC’s regional offices referred 626 individuals to 

State or local agencies or service providers, significant exceeding the target for 2016. Based on 

performance in 2015 and prior years, the performance target for fiscal year 2017 was significantly 

increased. The performance target has also been adjusted upward for 2018. 

Measure: The percentage of consumers who participated in services programs (other than HKNC) 

as a result of receiving a referral from HKNC’s regional offices. 

Year Target Actual 

2013 66% 66%

2014 67 95

2015 68 66

2016 66 75

2017 66

2018 75

Additional information: This measure provides information on the activities of the field services 

programs, including the 11 regional representatives and the national training team, which consume a 

significant portion of the Center’s resources. Regional representatives serve individuals with deafblindness in their home communities, which often lack other service providers that are trained and 

equipped to meet the unique and multi-faceted needs of these consumers. The referrals provided 

by regional representatives often are the gateway to finding appropriate and individualized supports 

from various agencies and organizations. The intensity of consumers’ interactions with HKNC field 

staff varies significantly. Some consumers interact with staff only once over the phone, while others 

benefit from repeated in-person visits for a variety of services, such as skills assessments, 

counseling, and advocacy.

Fiscal year 2016 performance exceeded that of the previous year and the target for the fiscal year. 

The year-to-year variation in performance on this measure in recent years makes it difficult to set an 

appropriate annual target. Based on the data trend, a target of 75 percent has been set for fiscal 

year 2018. However, this target may be adjusted based on 2017 performance.

Objective: HKNC will assist State vocational rehabilitation and employment programs in increasing 

employment outcomes for individuals who are deaf-blind.

Measure: The number of referrals by HKNC’s regional offices to vocational rehabilitation or related 

employment programs.

Year Target Actual 

2013 84 62
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Year Target Actual 

2014 88 65

2015 92 65

2016 65 41

2017 65

2018 65

Additional information: HKNC plays an important role in connecting individuals who are deaf-blind 

to vocational rehabilitation (VR) agencies. Many VR agencies lack sufficient numbers of personnel 

trained in providing services to consumers who are deaf-blind. HKNC field staff frequently facilitate 

interactions between consumers and VR agencies, train VR agency staff about the specialized 

needs of these clients, and assist consumers who are returning to their State’s VR system after 

attending intensive training at HKNC headquarters. The lower number of referrals in 2016 is 

attributed to the retirement of three regional representatives, which resulted in staff vacancies that 

extended from four to six months. In addition, the number of referrals to VR agencies can also 

fluctuate depending on whether the consumers served by HKNC field staff have vocational goals. 

The target of 65 referrals that was established for fiscal years 2016 and 2017 has been retained for 

fiscal year 2018. 

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 

2013 28% 32%

2014 30 55

2015 32 46

2016 40 45

2017 40

2018 45

Additional information: For the measure on the percentage of individuals who achieved 

employment outcomes, the numerator is the number of clients served by HKNC regional 

representatives who achieved employment outcomes in which HKNC’s regional offices played a 

collaborative role providing training, advocacy and/or support to the consumer or job training agency. 

The denominator is the total number of clients served by HKNC regional representatives who 

achieved employment outcomes. In fiscal year 2016, 45 percent of individuals achieved successful 

employment outcomes in which HKNC’s regional offices played a collaborative role in providing 

training, advocacy and/or support to the consumer or job training agency. The target for fiscal year 

2018 has been raised to 45 percent based on performance in fiscal years 2014 through 2016.