Department of Education

REHABILITATION SERVICES

Fiscal Year 2025 Budget Request

CONTENTS

Page

Appropriations Language.............................................................................................................. 1

Analysis of Language Provisions and Changes............................................................................ 3

Appropriation, Adjustments, and Transfers................................................................................... 5

Summary of Changes ................................................................................................................... 6

Authorizing Legislation.................................................................................................................. 7

Appropriations History................................................................................................................... 8

Significant Items in FY 2024 Appropriations Reports ................................................................... 9

Summary of Request ..................................................................................................................10

Activities: 

Vocational rehabilitation State grants.....................................................................................11

Client assistance State grants................................................................................................30

Training ..................................................................................................................................35

Demonstration and training programs ....................................................................................42

Protection and advocacy of individual rights ..........................................................................49

Supported employment State grants......................................................................................53

Independent living services for older blind individuals ...........................................................60

Helen Keller National Center..................................................................................................65

Account Summary Table.............................................................................................................71

State Tables*

*State tables reflecting actual fiscal year 2023 allocations and fiscal years 2024 and 2025 

estimates are posted on the Department’s webpage at: 

https://www2.ed.gov/about/overview/budget/statetables/index.html

.
REHABILITATION SERVICES

1 

Appropriations Language

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

Helen Keller National Center Act, $4,397,033,000, of which $4,253,834,000 shall be for grants 

for vocational rehabilitation services under title I of the Rehabilitation Act

1: Provided, That, 

notwithstanding sections 100(b)(1) and 100(c)(2) of the Rehabilitation Act, each State shall be 

entitled to an allotment equal to the amount such State received pursuant to section 110(a) of 

the Rehabilitation Act for the fiscal year ending September 30, 2024, prior to any additions or 

reductions under section 110(b) or section 111(a)(2)(B)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 increasing competitive integrated employment as defined in section 7 of such Act for 

youth and other individuals with disabilities, including related Federal administrative expenses, 

for improving monitoring and oversight of grants for vocational rehabilitation services under title I 

of the Rehabilitation Act, for activities under section 14 of the Rehabilitation Act, and for 

information technology needs under section 15 and titles I, III, VI, and VII of the Rehabilitation 

Act

3: Provided further, That up to 15 percent of the amounts available subsequent to reallotment 

for the activities described in the second proviso from funds provided under this paragraph in 

this Act, may be used for evaluation and technical assistance related to such activities4: 

Provided further, That any funds made available subsequent to reallotment for the purposes 

described in the second proviso may be provided to States and other public, private and 

nonprofit entities, including Indian tribes and institutions of higher education, for carrying out 

such activities5: Provided further, That States and other public, private and nonprofit entities, 

including Indian tribes and institutions of higher education, may award subgrants for a portion of 

the funds to other eligible entities6: Provided further, That any funds provided in this Act and 
REHABILITATION SERVICES

Appropriations Language—continued

2 

made available subsequent to reallotment for the purposes described in the second proviso 

shall remain available until September 30, 2026.

7

NOTES 

A full-year 2024 appropriation for this account was not enacted at the time the Budget was prepared; therefore, 

the Budget assumes this account is operating under the Continuing Appropriations Act, 2024 and Other Extensions 

Act (Division A of Public Law 118-15, as amended). The amounts included for 2024 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 appropriations language.
REHABILITATION SERVICES

3 

Analysis of Language Provisions and Changes

Language Provision Explanation

1 ... of which $4,253,834,000 shall be for 

grants for vocational rehabilitation services 

under title I of the Rehabilitation Act:

This language earmarks funds provided for the 

Vocational Rehabilitation (VR) State Grants 

program. 

2 Provided, That, notwithstanding sections 

100(b)(1) and 100(c)(2) of the Rehabilitation 

Act, each State shall be entitled to an 

allotment equal to the amount such State 

received pursuant to section 110(a) of the 

Rehabilitation Act for the fiscal year ending 

September 30, 2024, prior to any additions or 

reductions under section 110(b) or section 

111(a)(2)(B): 

This language ensures that no State receives 

less funding through the formula allotment in 

fiscal year 2025 than it receives in fiscal year 

2024, prior to reductions for maintenance of 

effort penalties or changes due to reallotment.

3 Provided further, That the Secretary may 

use amounts provided in this Act that remain 

available subsequent to the reallotment of 

funds to States pursuant to section 110(b) of 

the Rehabilitation Act for innovative activities 

aimed at increasing competitive integrated 

employment as defined in section 7 of such

Act for youth and other individuals with 

disabilities, including related Federal 

administrative expenses, for improving 

monitoring and oversight of grants for 

vocational rehabilitation services under title I 

of the Rehabilitation Act, for activities under

section 14 of the Rehabilitation Act, and for 

information technology needs under section 

15 and titles I, III, VI, and VII of the 

Rehabilitation Act: 

This language allows the Secretary to use 

amounts that remain available subsequent to 

the reallotment of funds to States under the 

VR State Grants program for innovative 

activities aimed to increase competitive 

integrative employment for youth and other 

individuals with disabilities and for related 

administrative expenses, such as salaries or 

training costs for the Federal staff overseeing 

the use of these funds. This language also 

allows funds to be used for activities that will 

improve the effectiveness of monitoring and 

oversight of the VR State Grants program. 

This language also allows funds to be used for

evaluation activities under section 14 of the 

Rehabilitation Act, such as studying the 

implementation and effectiveness of services 

provided under the Rehabilitation Act. In 

addition, this language allows funds to be 

used for RSA’s information technology needs, 

such as supporting the online portals used by 

States and grantees to submit required data to 

RSA. The inclusion of this language ensures 

that unused funds remain available to improve 

the outcomes of individuals with disabilities, 

instead of being returned to the Treasury.
REHABILITATION SERVICES

Analysis of Language Provisions and Changes—continued

4 

4 Provided further, That up to 15 percent of 

the amounts available subsequent to 

reallotment for the activities described in 

the second proviso from funds provided 

under this paragraph in this Act, may be used 

for evaluation and technical assistance 

related to such activities: 

This language allows the Secretary to use up 

to 15 percent of the amounts that remain 

available subsequent to the reallotment of 

funds to States under the VR State Grants 

program to be used to evaluate the impact and 

effectiveness of the project activities aimed at 

increasing competitive integrated employment 

for youth and other individuals with disabilities, 

and to provide technical assistance to support 

grantees in this work.

5Provided further, That any funds made 

available subsequent to reallotment for the 

purposes described in the second proviso 

may be provided to States and other public, 

private and nonprofit entities, including Indian 

tribes and institutions of higher education, for 

carrying out such activities:

This language permits States and other public, 

private and nonprofit entities, including Indian 

tribes and institutions of higher education, to 

be eligible entities to receive funds for carrying 

out innovative activities aimed at increasing 

competitive integrated employment for youth

and other individuals with disabilities. 

6 Provided further, That States and other 

public, private and nonprofit entities, including 

Indian tribes and institutions of higher 

education, may award subgrants for a portion 

of the funds to other eligible entities: 

This language permits States and other public, 

private and nonprofit entities, including Indian 

tribes and institutions of higher education, to 

use a portion of their project funds to make 

subgrants to other eligible entities for carrying 

out innovative activities aimed at increasing 

competitive integrated employment for youth 

and other individuals with disabilities.

7 Provided further, That any funds provided in 

this Act and made available subsequent to 

reallotment for the purposes described in 

the second proviso shall remain available 

until September 30, 2026. 

This language permits the funds made 

available subsequent to reallotment of VR 

State Grant funds to remain available for two 

years.
REHABILITATION SERVICES

5 

Appropriation, Adjustments, and Transfers 

(dollars in thousands)

Appropriation/Adjustments/Transfers 2023 2024 2025 

Discretionary:

Discretionary:Appropriation $143,199 $143,199 $143,1990F

1

Total, discretionary appropriation 143,199 143,199 143,199

Mandatory:

Mandatory:Appropriation 3,949,707 4,253,8341F

2 4,253,8342F3

Mandatory Sequester (P.L. 112-25) -225,133 -242,469 -242,469

Total, adjusted mandatory appropriation 3,724,574 4,011,365 4,011,365

Total, discretionary and adjusted 

mandatory appropriation 3,867,773 4,154,564 4,154,564

1 The Department of Education discretionary total is reduced by a discretionary change in a mandatory program 

(CHIMP) of $128,364 thousand.

2 The authorizing legislation specifies that the amount to be appropriated for a fiscal year be at least the level of the 

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

for all Urban Consumers (CPIU). The VR State Grants program is a mandatory appropriated entitlement; therefore, 

under a fiscal year 2024 annualized continuing resolution (CR), the program is entitled to all statutory adjustments 

provided for in section 110(a) for the Rehabilitation Act, including the statutory CPIU increase.

3 The fiscal year 2025 request includes a CHIMP, resulting in a request equivalent to the fiscal year 2024 mandatory 

funding level.
J.REHABILITATION SERVICES

6 

Summary of Changes

(dollars in thousands)

2024 $4,397,0333F

1 

2025 4,397,0334F

2

Net change 0

Increases: 2024 base

Change 

from base

Program:

Increase in Demonstration and training programs to provide 

greater flexibility in meeting the technical assistance needs of 

State VR agencies and their consumers. $5,796 +$6,000

Subtotal, increases +6,000

Decreases: 2024 base

Change 

from base

Program:

Decrease in Training to shift funds to Demonstration and training 

programs to provide greater flexibility in meeting the technical 

assistance needs of State VR agencies and their consumers. 29,388 -6,000

Subtotal, decreases -6,000

Net change 0

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

(P.L. 112-25) that went into effect on October 1, 2023. The reduced level for fiscal year 2024 subsequent to the 

5.7 percent sequester is $4,011,365 thousand, a reduction of $242,469 thousand. 2 Excludes the 5.7 percent reduction of mandatory VR State Grant funds pursuant to the Budget Control Act of 2011 

(P.L. 112-25) that goes into effect on October 1, 2024. Based on the authorizing statute, the fiscal year 2025 

mandatory pre-sequester amount would be $4,389,957; however, the Administration is requesting to exclude the 

mandatory CPIU increase from the fiscal year 2025 request, which reduces the pre-sequester amount to the fiscal 

year 2024 mandatory pre-sequester amount, or $4,253,834 thousand. The reduced level for 2025 subsequent to the 

5.7 percent sequester is $4,011,365 thousand, a reduction of $242,469 thousand.
REHABILITATION SERVICES

7 

Authorizing Legislation

(dollars in thousands)

Activity

2024

Authorized

footnote

2024 

Annualized CR

footnote

2025

Authorized

footnote

2025

Request

Vocational rehabilitation (VR) State grants:

VR Grants to States (RA-I A, B (110, 111 and 113), and C) 0 1 $3,960,807 2 To be determined 1 $3,960,807

VR Grants for Indians (RA-I-C) (1,3) 53,6152 (1,3) 53,615

Client assistance State grants (RA-I-112) 0 4 13,000 To be determined 4 13,000

Supported employment State grants (RA-VI) 0 4 22,548 To be determined 4 22,548

Training (RA-III-302) 0 4 29,388 To be determined 4 23,388

Demonstration and training programs (RA-III-303) 0 4 5,796 To be determined 4 11,796

Services for older blind individuals (RA-VII-2) 0 4 33,317 To be determined 4 33,317

Protection and advocacy of individual rights (RA-V-509) 0 4 20,150 To be determined 4 20,150

Helen Keller National Center for Deaf-Blind Youths and Adults 

(HKNCA) 0 5 19,000 To be determined 5 19,000

Total definite authorization 0 0

Total discretionary appropriation 143,199 143,199

Total mandatory appropriation 4,253,834 4,253,834

Total appropriation 4,397,033 4,397,033

Portion of request not authorized 4,397,033 4,397,033

Total appropriation including required mandatory reduction 4,154,5642

_______________________________ 

1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through appropriations action. The authorizing legislation 

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

October to October in the Consumer Price Index for all Urban Consumers (CPIU). 

2 The amount reflects the 5.7 percent reduction of mandatory programs that went into effect on October 1, 2023, pursuant to the Budget Control Act of 2011 

(P.L. 112-25). 3 The Rehabilitation Act requires that 1.0 percent to 1.5 percent of the appropriation for Vocational Rehabilitation State grants be set aside for Grants to Indians. 4 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through appropriations action. 5 The GEPA extension expired September 30, 2004. Reauthorization for fiscal year 2025 is expected through appropriations action.
REHABILITATION SERVICES

8 

Appropriations History

(dollars in thousands)

Year

Budget 

Estimate 

to Congress

House 

Allowance Footnote

Senate 

Allowance Footnote Appropriation

Foot20165F

1 $3,532,109 $3,529,605 $3,487,864 $3,529,605

20176F

2 3,541,389 3,534,027 3,536,389 3,535,589

20187F

3 3,563,008 3,562,582 3,562,418 3,361,143

20198F

4 3,634,977 3,657,689 3,656,189 3,657,189

20209F

5 3,719,527 3,752,076 3,745,239 3,747,739

202110F

6 3,782,952 3,827,500 3,805,500 3,814,220

202211F

7 3,894,820 3,896,820 3,874,145 3,858,320

202312F

8 4,125,906 4,104,906 4,093,406 4,092,906

202413F

9 4,405,533 4,397,033 4,397,033 4,397,033

2025 4,397,033

1 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.

2 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.

3 The level for the House allowance reflects floor action on the Omnibus appropriations bill; the Senate allowance 

reflects Committee action on the regular annual 2018 appropriations bill; the Appropriation reflects the Consolidated 

Appropriations Act, 2018 (P.L. 115-141). 4 The levels for the House and Senate allowances reflect Committee action on the regular annual 2019 

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

Services, and Education Appropriations Act, 2019 (P.L. 115-245). 5 The Senate allowance reflects the Chairman’s mark; the Appropriation reflects the Further Consolidated 

Appropriation Act, 2020 (P.L. 116-94). 6 The level for the House allowance reflects subcommittee action. The level for the Senate Allowance reflects the 

Chairman’s mark; the Appropriation reflects Division H of the fiscal year 2021 Consolidated Appropriations Act (P.L. 

116-260). 7 The House allowance reflects floor action; the Senate allowance reflects the Chairman’s mark; and the 

Appropriation reflects Division H of the Consolidated Appropriations Act, 2022 (P.L. 117-103). 8 The House allowance reflects the regular annual fiscal year 2023 appropriation, which was introduced on the floor; 

the Senate allowance reflects the Chairman’s mark; and the Appropriation reflects the Consolidated Appropriations 

Act, 2023 (P.L. 117-328). 9 The House allowance reflects Subcommittee action and the Senate allowance reflects Committee action on the 

regular annual 2024 appropriations bill; the Appropriation reflects the annualized continuing resolution level, which is 

assumed to include authorization to apply the statutory CPIU increase for the mandatory appropriation. 
REHABILITATION SERVICES

9 

Significant Items in FY 2024 Appropriations Reports

Vocational rehabilitation State grants

Senate: The Committee directs the Department to use a portion of DIF funds for 

competitive grants, to be awarded in coordination with the Office of Disability 

Employment Policy, to eligible entities in partnership with State Vocational 

Rehabilitation (VR) agencies for innovative strategies that significantly increase 

competitive integrated employment of youth and adults with disabilities. The 

Committee expects this will focus on expanding the capacity and the State 

network of eligible entities providing employment supports in States, prioritizing 

States that have returned funds to RSA or States from the two lowest quintiles of 

labor force participation rates for people with disabilities.

Response: Subject to the availability of fiscal year 2024 Disability Innovation Funds (DIF) for 

obligation through fiscal year 2025, the Department will comply with this directive.

Senate: The Committee directs the Department to continue to brief the Committees on 

Appropriations; the Committee on Health, Education, Labor, and Pensions of the 

Senate; the Committee on Education and Labor of the House of Representatives; 

the Committee on Ways and Means of the House of Representatives at least 

every 6 months with updates on activities funded within DIF.

Response: The Department will comply with this directive. 
REHABILITATION SERVICES

10

Summary of Request

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

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

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

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

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

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

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

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

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

authorization for all programs within the Rehabilitation Services account for fiscal year 2025 is 

requested through appropriations language.

The Administration’s 2025 request for the Rehabilitation Services account provides $4.4 billion 

in mandatory and discretionary funding to support comprehensive and coordinated vocational 

rehabilitation for individuals with disabilities through direct services, training and technical 

assistance, and model demonstrations, as well as direct services to help older individuals who 

are blind live more independently. 

The $4.3 billion mandatory request for the Vocational rehabilitation (VR) State grants

program is level with a fiscal year 2024 annualized CR, to assist States and Tribal governments 

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

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

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

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

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

retain, or advance in high quality employment. Since many States have struggled to expend 

their full awards for several years, the fiscal year 2025 request excludes the Consumer Price 

Index increase specified in the authorizing statute, resulting in a post-sequester savings, or 

discretionary change in mandatory program (CHIMP), of $128.4 million. The Administration’s 

request includes a “hold harmless” provision to ensure that no State receives fewer funds 

through the formula allotment than it received in fiscal year 2024. As in previous years, States 

that are able to spend down their full awards will have the opportunity to obtain additional VR 

State Grant funding, if funds are available, through the annual reallotment process. The 

Department is also providing technical assistance to VR agencies to support the effective and 

timely expenditure of their awards. 

The request includes an increase of $6.0 million for the Demonstration and training program

to provide greater flexibility in meeting the technical assistance needs of State VR agencies and 

their consumers. The request includes a corresponding decrease of $6.0 million for Training. 

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

account at the 2024 annualized CR level based on the fiscal year 2023 appropriation.
REHABILITATION SERVICES

11

Vocational rehabilitation State grants

(Rehabilitation Act of 1973, Title I, Parts A, B (Sections 110, 111 and 113), and C)

(dollars in thousands)

FY 2025 Authorization: To be determined14F

1

Budget Authority: 

2024 Annualized CR 2025 Request Change

State grants:

Pre-sequester $4,200,219 $4,200,219 0

Post-sequester 3,960,807 3,960,807 0

Set-aside for American Indian 

Vocational Rehabilitation Services 53,61515F

2 53,615 0

Total pre-sequester 4,253,834 4,253,83416F

3 0

Total post-sequester17F

4 4,011,365 4,011,365 0

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through 

appropriations action. The authorizing statute specifies that the amount to be appropriated for a fiscal year be at least 

the level of the prior fiscal year increased by the 12-month percentage change (from October to October) in the 

Consumer Price Index for All Urban Consumers (CPIU). In fiscal year 2024 this amount is $4,253,834 thousand. The 

VR State Grants program is a mandatory appropriated entitlement; therefore, under a fiscal year 2024 annualized 

continuing resolution (CR), the program is entitled to all statutory adjustments provided for in section 110(a) of the 

Rehabilitation Act, including the statutory CPIU increase. The authorizing statute also requires that not less than 

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

for Grants for American Indian Vocational Rehabilitation Services.

2 The fiscal year 2024 President’s Budget proposed to reserve $51,155 thousand for the AIVRS program. However, 

in order to maintain level funding in fiscal years 2024 and 2025, the Department anticipates setting aside $53,615

thousand.

3 Based on the authorizing statute, the fiscal year 2025 mandatory pre-sequester amount would be $4,389,957; 

however, the Administration is requesting a change in mandatory programs (CHIMP), resulting in a request 

equivalent to the fiscal year 2024 mandatory funding level. 4 The post-sequester amounts reflect the 5.7 percent sequester reduction for mandatory programs that took effect on 

October 1, 2023 for the fiscal year 2024 appropriation and will go into effect on October 1, 2024 for the fiscal year 

2025 appropriation, pursuant to the Budget Control Act of 2011.
REHABILITATION SERVICES

Vocational rehabilitation State grants

12

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

Consumer Price Index for All Urban Consumers.

Workforce Development System

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

Innovation and Opportunity Act (WIOA), which supports a comprehensive, accessible, highquality workforce development system that includes programs and investments in employment 

services, workforce development, adult education, and vocational rehabilitation. The workforce 

development system is aligned with regional economic development strategies to meet the 

needs of local and regional employers. WIOA’s one-stop system, established under 

Section 121(e) of WIOA, operates through a network of centers in each State; the goal of the 

one-stop system is to provide a variety of services to assist both individuals in meeting their 

employment and training needs, as well as employers in recruiting a qualified workforce.

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

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

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

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

Education and Family Literacy Act program (Title II of WIOA); the Wagner-Peyser Employment 

Service program (Title III of WIOA); and the VR program (Title IV of WIOA)), the Governor must 

submit a unified State plan including the VR plan. After approval of the VR portion of the plan by 

the Commissioner of the Rehabilitation Services Administration (RSA), the unified State plan is 

subject to the approval of both the Secretaries of Labor and Education.

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

prepare for and engage in competitive integrated employment. In supporting individuals in 

achieving their career goals, VR agencies are encouraged to support the pursuit of 

postsecondary education and vocational training leading to recognized credentials to enable 

individuals with disabilities to advance in high-demand, high quality careers and maximize their 

self-sufficiency and independence. Individuals who are eligible for assistance include those with 

a physical or mental impairment that results in a substantial impediment to employment and 

who require and can benefit from VR services to achieve and maximize employment and career 

goals. Program services are tailored to the specific needs of the individual through an 

individualized plan for employment (IPE). The VR program provides a variety of services, such 

as vocational evaluation, counseling, education, vocational training, job placement, rehabilitation 

technology, supported employment services, and treatment for physical disabilities or mental 

health support, that may reasonably be expected to reduce or eliminate one or more barriers to 

employment. Priority is given to serving individuals with the most significant disabilities. Preemployment transition services may be provided to students with disabilities who are in a 

secondary, postsecondary, or other recognized education program and are eligible or potentially 

eligible for VR services.

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

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

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

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

Vocational rehabilitation State grants

13

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

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

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

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

(MOE) deficit from any previous fiscal year.

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

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

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

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

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

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

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

Disability Innovation Fund

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

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

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

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

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

obligation. In addition, the Consolidated Appropriations Act, 2022, authorized the Department to 

use up to 15 percent of fiscal year 2021 and fiscal year 2022 DIF funds for evaluation of, and 

technical assistance for, DIF activities. The Consolidated Appropriations Act, 2023, provided the 

same evaluation and technical assistance authority, while also allowing the Department to use 

DIF funds for Federal administrative expenses related to DIF, and for improving monitoring and 

oversight of grants for vocational rehabilitation services under title I of the Rehabilitation Act, 

including information technology modernization.

American Indian Vocational Rehabilitation Services

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

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

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

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

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

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

on Federal and State reservations. 
REHABILITATION SERVICES

Vocational rehabilitation State grants

14

Funding levels for the past 5 fiscal years were:

Fiscal Year

Pre-Sequester

(dollars in thousands)

Post-Sequester 

(dollars in thousands)

1

2020 $3,610,040 $3,397,048

2021 3,675,021 3,465,545

2022 3,719,121 3,507,131

2023 3,949,707 3,724,574

2024 Annualized CR 4,253,834 4,011,365

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $4.3 billion for the VR State Grants programs, 

level with a fiscal year 2024 annualized CR, to help States and Tribal governments increase the 

participation of individuals with disabilities in the workforce. The request excludes the Consumer 

Price Index increase specified in the authorizing statute, which if included, would increase the 

fiscal year 2025 mandatory amount to $4,390 million, as specified in Section 100(b) of the 

Rehabilitation Act. The requested amount results in a mandatory post-sequester savings, or 

discretionary change in mandatory program (CHIMP), of approximately $128.4 million. Since 

fiscal year 2020, many States have been unable to spend down their full allotments, 

relinquishing significant portions of their awards back to the Department. The Administration 

believes there is an urgent need for VR agencies to expend their full resources to close 

persistent gaps in employment among individuals with disabilities as detailed in the following 

paragraph. The Department has offered support to VR agencies to effectively spend down their 

awards through its monitoring, guidance and technical assistance as detailed further below. 

However, given the sustained and significant amount of returned funds from VR agencies, the 

Administration is not requesting an increase for the program. The Administration’s request 

includes a “hold harmless” provision to ensure that no State receives fewer funds through the 

formula allotment than it received in fiscal year 2024. As in previous years, States that are able 

to spend down their full awards will have the opportunity to obtain additional VR State Grant 

funding, if funds are available, through the annual reallotment process. Of the amount 

requested, approximately $53.6 million, or 1.3 percent, of the funds for the VR State Grants 

program will be set aside to support grants under the AIVRS program.

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

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

retain jobs, the overall unemployment rate for people with disabilities is very high compared to 

individuals without disabilities. For example, 2022 employment data from the U.S. Bureau of 

Labor Statistics show that of those aged 16-64 (i.e., U.S. working age population), people with 

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

without such disabilities (34.8 percent versus 74.4 percent, respectively). Of those people with 

disabilities who were employed, 30 percent usually worked part-time (less than 35 hours per 

1 The post-sequester amounts 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 5.9 percent in 2020 and 5.7 percent in 2021

through 2023. 
REHABILITATION SERVICES

Vocational rehabilitation State grants

15

week) compared to 16 percent of people without such disabilities.19F

1 VR program data 

demonstrate that receipt of VR services can significantly improve employment outcomes for 

individuals with disabilities. In 2023, over half of all VR participants were employed in 

competitively integrated settings a year after exiting the program.

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

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

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

competitive integrated employment. Nationally, there are approximately 1.5 million 

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

vocational rehabilitation process, about 57 percent of whom received VR services under an 

IPE during fiscal year 2023. Approximately 95 percent of these individuals were individuals 

with significant disabilities.

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

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

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

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

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

those related to Invest in America investments that include infrastructure, clean energy, 

advanced manufacturing, semiconductors, and biotechnology. 

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

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

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

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

training, assistive technology services and devices, job accommodations, postsecondary 

education transition, tuition support, job coaching, job restructuring, and/or post-employment 

services, as necessary. 

Supporting States to Fully Use Their VR State Grant Funds

For multiple years, a large number of States have relinquished a significant amount of funds 

during the reallotment process or have had a large balance of unused funds at the end of the 

program period in both the VR State grants program and the Supported Employment (SE) State 

grants program. In order to respond to the substantial amount of unused funds in both the VR 

State Grants program and the SE State grants program, the Department has updated its 

Monitoring and Technical Assistance Guide20F

2 (MTAG) in collaboration with six VR agency 

directors and leaders representing the Council of State Administrators of Vocational 

Rehabilitation (CSAVR) and the National Council of State Agencies for the Blind (NCSAB). The 

MTAG explains the process through which the Department will conduct on-site monitoring and 

off-site reviews of, provide technical assistance to, and review the progress of, VR agencies in 

1) maximizing the expenditure and use of Federal funds to improve the quality of services for, 

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

2 https://rsa.ed.gov/sites/default/files/programs/vr/FFY%202023%20MTAG%20Final%20(06.15.2023%20update).pdf
REHABILITATION SERVICES

Vocational rehabilitation State grants

16

and employment outcomes achieved by, individuals with disabilities, and 2) complying with 

requirements under the Rehabilitation Act.

In fiscal year 2023, the Department monitored 12 VR agencies, which included 7 on-site 

monitoring visits. In accordance with the Department’s accountability model scoring, these 

agencies include Arkansas General, Florida Blind, Georgia Combined, Indiana Combined, 

Louisiana Combined, Nevada Combined, North Carolina General, Ohio Combined, Oklahoma 

Combined, Tennessee Combined, Texas Combined, and Puerto Rico Combined. The 

Department’s monitoring teams and management staff are in the process of drafting the 

monitoring reports corresponding to these engagements, which will be posted to the VR 

Monitoring and Technical Assistance website21F

1 as they are finalized. In fiscal year 2024, the 

Department will conduct on-site monitoring visits to 8 VR agencies in accordance with the 

Department’s accountability model scoring, including Arizona Combined, Colorado Combined, 

Florida General, Illinois Combined, Michigan General, New Jersey General, New York General, 

and Utah Combined. Fewer agencies will be monitored in 2024 to allow Department staff time to 

conduct WIOA State plan reviews, including related cross-agency collaboration and technical 

assistance to State agencies.

Specific to the focus areas addressed during the fiscal year 2023 and 2024 on-site monitoring 

and off-site reviews, each VR agency under review will develop and implement a strategic 

action plan (SAP) to demonstrate how it will reverse the return of unused funds and maximize 

the use and expenditure of Federal funds to improve performance and increase employment 

outcomes for individuals with disabilities, including those with the most significant disabilities. 

The SAP should:

• identify causes for unused Federal funds and strategies and activities the VR agency will 

undertake to increase and maximize its ability to effectively and efficiently expend Federal 

VR and Supported Employment program grant funds;

• provide a written workable plan for taking action, which contains a timeline for 

implementation that demonstrates results within a reasonable specified time;

• be supported by documentation (e.g., fiscal reports, data, policies) showing implementation 

of the actions and results achieved; and

• demonstrate a roadmap and commitment for continuous improvement.

The Department will also continue to analyze expenditure patterns, provide technical 

assistance, continue monitoring and work with all grantees to better understand their challenges 

with providing the state dollar match and using VR funds, in order to ensure States are 

developing successful solutions to provide critical vocational rehabilitation services consistent 

with the intent of the authorizing statute. 

1 https://rsa.ed.gov/about/programs/vocational-rehabilitation-state-grants/monitoring-of-vocational-rehabilitationprogram/2023
REHABILITATION SERVICES

Vocational rehabilitation State grants

17

Disability Innovation Fund

The Administration continues to request authority to use funds that remain available following 

reallotment for innovative activities aimed at improving outcomes for individuals with disabilities, 

including related administrative expenses, and for improving monitoring and oversight of grants 

for vocational rehabilitation services under title I of the Rehabilitation Act. In addition, the 

Administration continues to request authority to reserve up to 15 percent of DIF funds for 

evaluation of, and technical assistance for, DIF projects.

The Administration is requesting appropriations language that would expand the types of 

entities eligible to receive and subgrant DIF funds from just State entities to include States and 

other public, private, and nonprofit entities including Indian tribes and institutions of higher 

education. By expanding the pool of entities eligible to receive DIF funds and to subgrant a 

portion of the DIF funds, the Department will be able to broaden the impact of the funds and 

implement more innovative approaches toward increasing competitive integrated employment in 

high-demand employment sectors including those related to the Invest in America industries 

including infrastructure, clean energy, advanced manufacturing and biotechnology that require 

the collaboration of the education and workforce sectors to prepare the U.S. workforce for the 

incoming supply of new jobs. Cross-sector collaboration can develop and implement new and 

integrated innovative approaches to interventions such as work-based learning, college and 

career advising, dual enrollment and early college programs, and credential attainment.

Under the authority initially authorized in fiscal year 2023, which permits the Department to 

transfer DIF funds to the Institute of Education Sciences (IES), the Department is assessing the 

feasibility of conducting an evaluation of student outcomes using DIF funds. In fiscal year 2025, 

the Administration is requesting authority to use DIF funds for evaluation activities under 

Section 14 of the Rehabilitation Act, which would enable the Department to study the 

implementation and effectiveness of services provided under the Rehabilitation Act, including to 

adults and students. As an example, under this authority, the Department could further explore 

and evaluate implementation of the WIOA requirements, including but not limited to, 

implementation quality leading to expenditure challenges within the VR and Supported 

Employment programs. These types of evaluations would further support the Department’s 

efforts to provide technical assistance to State VR agencies to improve the quality of services 

for, and employment outcomes achieved by, individuals with disabilities. Under the requested 

authority, RSA would still have the option to provide DIF funds to IES to conduct these 

evaluations.

The Administration is also requesting appropriations language that would provide RSA with 

authority to use DIF funds for RSA’s ongoing information technology (IT) needs, in addition to its 

IT modernization needs. Subject to the availability of DIF funds in fiscal year 2025, this authority 

would allow RSA to fund approximately $1.8 million of critical IT needs. These IT investments, 

detailed below, facilitate the reporting and sharing of data required by the Rehabilitation Act in a 

streamlined manner, provide grantees and the public with access to key resources and 

information, and enable RSA to analyze State data and provide the resultant analysis to States 

to support the effective and efficient use of formula funds provided under the Rehabilitation Act.
REHABILITATION SERVICES

Vocational rehabilitation State grants

18

Over recent years, the costs for RSA’s IT systems have increased significantly as a result of 

changes to cybersecurity requirements, as well as an increased reliance on electronic 

submission, and the need for greater data analysis and digital access to information. RSA has 

met the need for increased funding through a combination of Program Administration salaries 

and expenses (S&E) funds, program funds, and other Department administrative funds; 

however, drawing from these funding sources is unsustainable given rising IT costs and the 

need to use these funds for their primary purpose. For example, as further explained below, 

using VR Training funds on IT costs reduced the Department’s ability to support the training of 

VR staff at a time when many VR agencies are experiencing significant shortages of qualified 

personnel (see the VR Training section of the Congressional Justification for additional 

information).

At the start of the COVID pandemic, RSA shifted approximately $90,000 of S&E funds, primarily 

from its travel budget, to cover increased IT needs for the Rehabilitation Services Administration 

Management Information System (RSAMIS)22F

1 and the State Wage Interchange System23F2

(SWIS). Now that travel has resumed for monitoring and technical assistance, it is critical that 

RSA identify an alternate source of funding for the RSAMIS and SWIS. Therefore, under the 

proposed appropriations language approximately $90,000 of DIF funds would be used to fund 

the RSAMIS and SWIS.

Under the proposed appropriations language, approximately $700,000 of fiscal year 2025 DIF 

funds would be used in fiscal year 2026 for the Personnel Development Program Data 

Collection System (PDPDCS)24F

3 contract, which supports the payback requirements related to 

the Long-Term Training grants. These funds are currently taken from the Rehabilitation Training 

program and are used predominantly for IT needs. Unfortunately, as the costs for this contract 

have increased due to changes in cybersecurity requirements, it has caused the amount of 

funds available for Rehabilitation Training grants to decrease. This portion of the request would 

1 The RSAMIS serves as the IT system wherein RSA grantees report performance data, fiscal data, and other 

information. The RSAMIS collects data for OMB-approved information collections, including the Case Service Report 

(RSA-911), WIOA Annual Report (ETA-9169), Resolution of Applicant/Client Appeals (RSA-722), Vocational 

Rehabilitation Financial Report (RSA-17), Independent Living Services for Older Individuals who are Blind (RSA-7-

OB), Annual Client Assistance Program Report (RSA-227), Protection and Advocacy of Individual Rights Report 

(RSA-509), Report of the Randolph-Sheppard Vending Facility Program (RSA-15), Grant Reallotment (RSA-692): 

Federal Formula Awards, and Federal Financial Report (SF-425): Federal Formula Awards. 2 The SWIS allows States to exchange Wage Data on an interstate basis with other States needing the Wage Data 

for WIOA performance reporting, as well as for other permitted purposes specified in the SWIS Data Sharing 

Agreement. State VR agencies are permitted to access Wage Data, through the SWIS, for approved uses, including 

performance accountability provisions outlined in section 116 of WIOA. RSA transfers funds to the U.S. Department 

of Labor’s Employment and Training Administration (ETA) to administer the SWIS through a contract. 3 The PDPDCS provides for the collection of data from grantees, scholars, and their employers to track the 

enrollment, eligible employment of scholars, and service obligation fulfillment of scholars who have received program 

funds, until their service obligations are fulfilled, or they are referred to the Accounts Receivable and Bank 

Management Division for repayment of part or all of the funds received. The PDPDCS also provides technical 

assistance to all users and generates performance data for reporting annually on program results. The PDPDCS 

serves RSA along with the Office of Special Education Programs the Office of Indian Education. A component of the 

PDPDCS, the Payback Information Management System (PIMS) collects and analyzes data on scholars funded by 

Rehabilitation Long-Term Training (RLTT) program grants to track the service obligation of scholars and for use in 

reporting program performance measures. The PIMS tracks the eligible employment of scholars who have been 

awarded scholarships from RLTT grants until their service obligations are fulfilled or they are referred to the Secretary 

for repayment of part or all of the funding received.
REHABILITATION SERVICES

Vocational rehabilitation State grants

19

free up program funds so that additional Rehabilitation Training grants, which are needed to 

ensure a sufficient number of qualified VR professionals, may be awarded.

While Department administrative funds have been used to pay for RSA’s share of the WIOA 

State Plan Portal25F

1 in recent years, RSA’s share of the cost to maintain this portal is expected to 

increase from approximately $185,000 in fiscal year 2023 to around $250,000 beginning in fiscal 

year 2024. Therefore, in fiscal year 2026, approximately $250,000 of fiscal year 2025 DIF funds 

would be used to support the WIOA State Plan Portal under the proposed appropriations 

language.

RSA’s existing Grants Management Database was initially built to run the formula allocations 

and very basic data analysis. However, fiscal challenges in RSA’s programs exposed the need 

for a database that will allow for faster and more complex tracking, reporting, and analysis of 

fiscal data, thereby allowing RSA to provide more timely technical assistance to State agencies 

to address unfavorable trends in their fiscal data. Using the fiscal year 2023 authority to use DIF 

funds for IT modernization, RSA has begun to develop a new SQL fiscal database for all RSA 

formula grant programs and will continue to develop the database in fiscal year 2024. The cost 

for maintaining the database is expected to drop down to approximately $150,000 per year 

beginning in fiscal year 2025.

Under the proposed appropriations language, approximately $599,000 of DIF funds would be 

used to support the National Clearinghouse of Rehabilitation Training Materials (NCRTM), 

which does not currently receive an appropriation. The NCRTM contract provides a central 

clearinghouse for information and resource availability for individuals with disabilities pursuant to 

Section 15 of the Rehabilitation Act. RSA currently uses funds from the Rehabilitation Training 

program to support limited NCRTM activities, with the majority of these funds in most years 

going toward IT needs. This portion of the request would free up these program funds so that 

additional Training grants, which are needed to ensure a sufficient number of qualified VR 

professionals, may be awarded. 

Disability Innovation Fund Implementation

In fiscal year 2021, $298.8 million was relinquished by States, and $121.4 million was 

redistributed through the reallotment process, leaving $177.4 million available for DIF projects 

through fiscal year 2022. The Department used most of the fiscal year 2021 funds for new 

awards through the Subminimum Wage to Competitive Integrated Employment Innovative 

Model Demonstration Project DIF competition. This competition funded multiple innovative 

model demonstration projects designed to assist individuals with disabilities currently employed 

in, or contemplating, subminimum wage employment to engage with State VR agencies so they 

may obtain competitive integrated employment. The competition encouraged projects that 

support employment models in economic sectors, including essential workers, the green 

1 The Department of Labor (DOL) and the Department of Education (ED) collaborate to administer the joint State Plan 

Requirements Information Collection Request (OMB No. 1205-0522). As outlined in the joint information collection, 

the WIOA State Plan Portal is the approved method by which States submit and modify their Unified or Combined 

State Plans. DOL and ED use the Portal to collaboratively review, provide feedback, and approve State Plans. The 

Portal also serves as the database for each State Plan and modification under WIOA. It is available to the public 

while State and Federal users are granted accounts to manage the process.
REHABILITATION SERVICES

Vocational rehabilitation State grants

20

economy, home and community-based services, the arts and related fields, and transportation 

and related industries, but also allowed for field-initiated topics. The Department used 

$167.3 million to fully fund 13 awards and partially fund a 14th award under this competition. In 

addition, the Department awarded a five-year, $10 million contract for an independent 

evaluation of the DIF projects funded in fiscal year 2022.

In fiscal year 2022, approximately $338.3 million was relinquished by States and $13.1 million 

was made available due to maintenance of effort (MOE) penalties, resulting in $351.4 million 

available for redistribution through the reallotment process. Approximately $87.1 million was 

requested through reallotment, leaving $264.3 million available for DIF projects through fiscal 

year 2023. Of the funds that were relinquished, $4.5 million was reallotted to different State 

agencies within the same States that relinquished the funds. The Department reprogrammed

approximately $10 million to fully fund the 14th award from the Subminimum Wage to 

Competitive Integrated Employment Innovative Model Demonstration Project DIF competition 

run in fiscal year 2022, leaving $254.3 million available for use through fiscal year 2023.

The Department used most of the fiscal year 2022 funds for new awards through the Pathways 

to Partnerships Innovative Model Demonstration Project competition. The Pathways to 

Partnerships Innovative Model Demonstration Project is focused on the creation of systemic 

approaches to transition services for children and youth with disabilities. The Department used 

$199.0 million to fully fund 20 new awards. The Department also awarded almost $20 million 

toward a five-year evaluation of the Pathways to Partnerships Innovative Model Demonstration 

Project. In addition, the Department reprogrammed another $14.3 million to support DIF 

programs awarded in prior years. Of this amount, the Department used $5.5 million to extend 

the period of data collection and reporting for both the Career Advancement Initiative Model 

Demonstration Project grants and the Subminimum Wage to Competitive Integrated 

Employment Project grants. The Department also made $8.8 million in supplemental awards to 

the Wisconsin Department of Workforce Development and to the Massachusetts Rehabilitation 

Commission to support the expansion of services under their Career Advancement Initiative 

Model Demonstration Project awards, and to Georgia Vocational Rehabilitation Agency to 

expand services under its Subminimum Wage to Competitive Integrated Employment Project 

award. 

Using the new flexibilities provided in the Consolidated Appropriations Act, 2023, the 

Department used approximately $140,000 of DIF funding for DIF-related administrative 

expenses and improving monitoring and oversight for vocational rehabilitation services. As an 

example, these funds allowed RSA to increase the number of fiscal year 2023 on-site 

monitoring visits from four to seven and begin developing a fiscal database that interfaces with 

the RSA-911 database.

Finally, the Department reprogrammed DIF funds to other programs authorized under the 

Rehabilitation Act, including $2.0 million to the Client Assistance Program, $2.8 million to 

Rehabilitation Training, and $5.3 million to Demonstration and Training. Details for specific 

activities are shown in the Output Tables.

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

section of this request. 
REHABILITATION SERVICES

Vocational rehabilitation State grants

21

American Indian Vocational Rehabilitation Services

The request would provide $53.6 million for continuation awards under the American Indian 

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

95 tribal VR projects and one training and technical assistance center. These funds enable 

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

American Indians with disabilities residing on or near reservations. The Department plans to 

reserve 2.0 percent of these funds to support training and technical assistance to governing 

bodies of Indian tribes located on Federal and State reservations. 

PROGRAM OUTPUT MEASURES

Vocational rehabilitation State grants

Output Measures26F

1 2023 2024 2025

Individuals receiving VR services under an IPE 832,160 845,000 845,000

Individuals with significant disabilities as a percent of 

all individuals receiving services 95% 95% 95%

Eligible individuals whose case files were closed 327,746 350,000 350,000

Individuals whose cases were closed and received 

VR services 253,583 275,000 275,000

Individuals achieving an employment outcome 115,336 120,000 120,000

Individuals with significant disabilities as a percent of 

individuals achieving employment outcomes 93% 94% 94%

1 The output measures data for 2024 and 2025 Vocational rehabilitation State grants are estimates based on prior 

year data.
REHABILITATION SERVICES

Vocational rehabilitation State grants

22

Disability Innovation Fund Reprogramming

(dollars in thousands)

Output Measures27F

1 2023 Reprogramming

Client assistance State grants (CAP) $2,000

Training

Training: : VR Technical Assistance Center for 

Quality Management 1,200

Training: VR Technical Assistance Center for 

Quality Employment 1,200

Training CAP Technical Assistance Center 330

Training: Traditionally Underserved Populations28F

2 81

Training Subtotal 2,811

1 The output measures show funds reprogrammed from fiscal year 2022 DIF funds that remained available until 

September 30, 2023, to supplement existing grants and contracts in CAP, Training, Demonstration and training, and 

previously awarded DIF programs.

2 One percent of the funds reprogrammed to Training were used to supplement the Traditionally Underserved 

Populations program, per the requirement in The Rehabilitation Act that requires the Department to fund the 

Traditionally Underserved Populations program (section 21 of the Rehabilitation Act) through a reservation of 1 

percent of the funds appropriated under the Training, Demonstration and Training, Supported Employment, and 

Independent Living Services for Older Blind Individuals programs.
REHABILITATION SERVICES

Vocational rehabilitation State grants

23

Output Measures27F

1 2023 Reprogramming

Demonstration and training programs29F

1

Demos/training: Parent Training and Information Centers 960

Demos/training: National Deaf Center on Postsecondary 

Outcomes30F

2 2,400

Demos/training: National Center for Information and 

Technical Support for Postsecondary 

Students with Disabilities31F

3 396

Demos/training: National Technical Assistance Center on 

Transition 800

Demos/training: Advanced Integrated Education Training 

Design Camp32F

4 720

Demos/training: Subtotal 5,276

Disability Innovation Fund33F

5

Career Advancement Project34F

6 9,801

Subminimum Wage to Competitive 

Integrated Employment35F

7 14,516

Subtotal 24,317

Total 34,404

1 Funds reprogrammed to Demonstration and training supported activities and projects consistent with Section 303 of 

the Rehabilitation Act and administered by the Office of Special Education Programs (OSEP), the Office of 

Postsecondary Education (OPE), and the Office of Career, Technical, and Adult Education (OCTAE). All 

supplemental funds in support of these activities are administered in partnership RSA.

2 A grant project administered by OSEP.

3 A grant project administered by OPE.

4 A contract administered by OCTAE.

5 Funds reprogrammed to support activities in DIF programs from prior years.

6 Includes $6,119 thousand for a supplemental award to the Wisconsin Department of Workforce Development; 

$1,426 thousand for a supplemental award to the Massachusetts Rehabilitation Commission; and $2,256 thousand to 

extend the period of data collection and reporting for all Career Advancement Project grantees.

7 Includes $10,061 thousand to fully fund the 14th award from the Subminimum Wage to Competitive Integrated 

Employment competition run in fiscal year 2022; $1,296 thousand for a supplemental award to the Georgia 

Vocational Rehabilitation Agency; and $3,220 thousand to extend the period of data collection and reporting for all 

Subminimum Wage to Competitive Integrated Employment Project grantees.
REHABILITATION SERVICES

Vocational rehabilitation State grants

24

American Indian vocational rehabilitation services

(dollars in thousands)

Output Measures 2023 2024 footnote2025 Footnote

Project funding:

Project funding: New awards 0 $31,655 36F

1 0

Project funding: Continuation awards $49,637 37F

2 $20,915 $52,543

Project funding: Technical assistancefunds $1,013 $1,013 $1,072

Project funding: Peer review of new awards’ applications 0 $32 0

Total $50,650 $53,615 $53,615

Number of AIVRS projects:

Number of New projects – AIVRS 0 46 0

Number of Continuation projects – AIVRS 94 50 96

Total projects 94 96 96

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

program 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 Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program.

VR State Grants

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

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

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

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

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

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

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

interim measures that were aligned with the WIOA performance indicators as State VR 

agencies continued to collect and report WIOA data.

1 Includes $3,152 thousand in frontloading awards in order to cover anticipated continuation costs in fiscal year 2025.

2 Includes $5,915 thousand in frontloading awards.
REHABILITATION SERVICES

Vocational rehabilitation State grants

25

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

performance indicators and will report baseline data for 2021, 2022 and 2023 before 

establishing targets. Performance data reported in 2021 are based on data collected under the 

RSA-911 from July 1, 2020 to June 30, 2021. Performance data reported in 2022 are based on 

data collected under the RSA-911 from July 1, 2021 to June 30, 2022. Performance data 

reported in 2023 are based on data collected under the RSA-911 from July 1, 2022 to June 30, 

2023.

These performance measures do not include data for Guam, American Samoa, the 

Commonwealth of the Northern Mariana Islands, or the Virgin Islands because the territories are 

not a part of the performance accountability system set forth in section 116 of WIOA.

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

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

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

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

or achieving employment.

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

accordance with WIOA, during the program year.

Year Target Actual

2021 Baseline 43.3%

2022 Baseline 43.0

2023 Baseline 48.7

2024 50.0% —

2025 50.5 —

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

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

they received.
REHABILITATION SERVICES

Vocational rehabilitation State grants

26

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

quarter after exit from the program.

Year Target Actual

2021 Baseline 48.6%

2022 Baseline 52.5

2023 Baseline 56.2

2024 56.5% —

2025 57.0 —

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

quarter after exit from the program.

Year Target Actual

2021 Baseline 44.0%

2022 Baseline 48.0

2023 Baseline 52.8

2024 53.0% —

2025 53.5 —

American Indian Vocational Rehabilitation Services

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

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

efficiency measures for this program.

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

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

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

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

continue to show a downward trend in fiscal years 2021, 2022 and 2023.

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.
REHABILITATION SERVICES

Vocational rehabilitation State grants

27

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

after receiving services under an individualized plan for employment.

Year Target Actual

2020 68% 57%

2021 68 68

2022 68 55

2023 68 —

2024 68 —

2025 68 —

Additional information: Data for fiscal year 2022 show that 1,416, or 55.0 percent, of the 

2,552 American Indians with disabilities who exited the program after receiving services in that 

year achieved an employment outcome. Fiscal year 2023 performance data is expected to be 

available in April 2024 and will be included in the fiscal year 2026 Congressional Justification. 

Efficiency Measures

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

2020 76% 60%

2021 76 53

2022 76 38

2023 76 —

2024 76 —

2025 76 —

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

ranging from $7,222 to $564,977. The median annual cost per employment outcome for the 87 

projects was $39,929 in fiscal year 2022, while the mean annual cost per employment outcome 

was $91,231 due to a small number of project outliers. Fiscal year 2023 performance data is 

expected to be available in April 2024 and will be included in the fiscal year 2026 Congressional 

Justification. 
REHABILITATION SERVICES

Vocational rehabilitation State grants

28

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

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

Year Target Actual

2020 75% 64%

2021 75 42

2022 75 47

2023 75 —

2024 75 —

2025 75 —

Additional information: The cost per participant varied significantly across projects, ranging 

from $3,064 to $451,896. The median annual cost per participant for the 87 projects was 

$10,094 in fiscal year 2022, while the mean annual cost per participant was $27,345 due to a 

small number of project outliers. Fiscal year 2023 performance data is expected to be available 

in April 2024 and will be included in the fiscal year 2026 Congressional Justification. 

Disability Innovation Fund

Career Advancement Initiative Model Demonstration Project

In fiscal year 2021, VR funds remaining from the 2020 appropriation were used to award fiveyear grants to eight multi-site model demonstration projects designed to assist State VR 

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

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

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

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

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

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

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

employment who re-enter the VR program, to:

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

and math (STEM) fields, including computer science;

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

apprenticeship programs;

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

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

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

(TANF), and State or local benefits). 
REHABILITATION SERVICES

Vocational rehabilitation State grants

29

Subminimum Wage to Competitive Integrated Employment Innovative Model Demonstration 

Project 

In fiscal year 2022, the Department awarded five-year grants to 14 State VR agencies using 

unobligated fiscal year 2021 and fiscal year 2022 VR funds. The goal of these projects is to 

assist individuals with disabilities currently employed in, or contemplating, subminimum wage 

employment to engage with State VR agencies so they may obtain competitive integrated 

employment. Throughout the first year of project implementation, grantees developed plans for 

enrollment and service provision, identified implementation locations, established necessary 

partnerships, created evaluation and training plans, and hired and trained staff needed for 

administering and implementing the projects. All projects established workgroups and advisory 

councils to inform project activities.

In addition, the Department contracted for a five-year independent evaluation of the DIF 

demonstration projects awarded in fiscal year 2022. Additional information on the interim and 

final results of the evaluation will be shared as information becomes available. 

Pathways to Partnerships Innovative Model Demonstration Project

In fiscal year 2023, the Department awarded five-year grants to 20 State VR agencies and State 

education agencies using unobligated fiscal year 2022 VR funds. These projects are focused on 

the creation of systemic approaches to transition services for children and youth with disabilities. 

In addition, the Department contracted for a five-year independent evaluation of the Pathways to 

Partnerships projects awarded in fiscal year 2023. Additional information on the interim and final 

results of the evaluation will be shared as information becomes available. 

 
REHABILITATION SERVICES

30

Client assistance State grants

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

(dollars in thousands)

FY 2025 Authorization: To be determined38F

1

Budget Authority: 

2024 Annualized CR 2025 Request Change

$13,000 $13,000 0

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

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

contact the CAP. 

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

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

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

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

the CAP to an agency that does not provide services under the Act. Currently 45 CAPs are 

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

agencies, and 4 are operated by the State VR agency. 

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

Census Bureau), with a minimum allotment in fiscal year 2023 of $152,206 to each of the 50 

States, D.C., and Puerto Rico and $68,625 to each of the outlying areas.39F

2 When the 

appropriation increases, the Act also requires the Department to increase the minimum 

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

in the appropriation. 

1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through 

appropriations action. 2 The minimum allotments in fiscal year 2023 reflect a reprogramming of $2,000 thousand from the Disability 

Innovation Fund (DIF) to CAP.
REHABILITATION SERVICES

Client assistance State grants

31

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 rises to at least $14 million, the Department is permitted to set aside between 

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

CAPs established under this program. The Department currently provides such technical 

assistance to CAPs through the Rehabilitation Training program.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2020 $13,000

2021 13,000

2022 13,000

2023 15,00040F

1

2024 Annualized CR 13,000

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $13.0 million for CAP, level with a fiscal year 

2024 annualized CR based on the fiscal year 2023 appropriation. CAPs promote understanding 

of the rehabilitation services and benefits available under the Rehabilitation Act and advise 

applicants and individuals who have been determined eligible for such services of their rights 

and responsibilities. In fiscal year 2023, CAPs responded to 13,416 requests for information 

inquiries and referrals (I&R) and provided 3,301 individual case services. 

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

2023 from the most recently available RSA Annual Client Assistance Program Report (RSA227) show that approximately 35 percent of all I&R requests were for information regarding the 

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

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

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

client, to 3,301 individuals in fiscal year 2023. Approximately 85 percent of the individual case 

services in which extensive services were provided by the CAP involved applicants for, or 

recipients of, services from the VR program who needed assistance related to the VR process 

or delivery of VR services. Of the 2,529 cases closed in fiscal year 2023, 922 cases (or 

36 percent) were resolved by explaining the controlling policies to the individual; 474 cases 

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

employment (IPE); and 416 cases (16 percent) resulted in the reestablishment of 

communication between the individuals and other parties. The remaining closed cases focused 

on outcomes such as completing an application for services, expediting an eligibility 

determination, helping the individual participate in evaluation, assigning a new counselor or 

1 Reflects a reprogramming of $2,000 thousand from the DIF to CAP in fiscal year 2023.
REHABILITATION SERVICES

Client assistance State grants

32

office to the individual, identifying alternative resources for the individual, or filing a complaint. 

Of the cases closed, 76 percent were resolved in the individual’s favor. 

Specific examples of CAP activities are described below. Funds requested in fiscal year 2025 

would support similar activities. 

• In Virginia, a VR participant with severe anxiety and orthopedic disabilities who had 

difficulty maintaining employment due to anxiety sought help to change their 

employment goal on their individualized plan for employment. Their initial request for a 

vocational evaluation (VE) and a change in the IPE goal was denied by a VR office; 

however, after an intervention by the CAP, an informal administrative review was 

conducted. The Director of Field Rehabilitation Services reversed the decision, 

approving an extensive VE and agreeing to reconsider the employment goal postevaluation. The VR participant felt heard and was grateful to the CAP for their support 

and for making the evaluation possible.

• In Oregon, a VR participant with physical disabilities from a stroke sought CAP 

assistance for career transition within their VR program. Initially aiming to shift from 

construction management to cybersecurity or IT, the participant faced resistance from 

their original VR counselor, who recommended staying in the current field. After CAP’s 

intervention, which included advocating to the VR office’s branch manager, the 

participant was reassigned to a new VR counselor. This new counselor assisted in 

securing financial resources for necessary education and training in cybersecurity and 

IT, aligning with the participant’s career aspirations in their revised individualized 

employment plan.

• In New York, the VR program initially denied a client financial sponsorship for medical 

school, suggesting employment based on his current education instead. This decision 

overlooked VR's obligation to help individuals with disabilities advance in careers, 

including in law and medicine. To address this, the CAP, aided with self-advocacy tools, 

sought an informal review of the denial. Consequently, VR reversed its decision and 

updated the VR participant's individualized employment plan to include the goal of 

becoming a physician.

PROGRAM OUTPUT MEASURES

Output Measures41F

1 2023 2024 2025

Information inquiries/referrals 13,416 14,758 16,234

Individuals provided case services 3,301 3,601 3,961

1 Data for fiscal years 2024 and 2025 are projected from actual final data reported for fiscal years 2017 through 2023. 
REHABILITATION SERVICES

Client assistance State grants

33

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

program 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 Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program. 

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

the benefits available under the Vocational Rehabilitation State Grants program and 

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

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

systemic activity to improve services under the Rehabilitation Act.

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

changes in policy or practice. 

Year Target Actual

2020 68% 67%

2021 68 65

2022 73 72

2023 73 63

2024 73 —

2025 73 —

Additional information: The Department continues to support technical assistance and training 

to increase the capacity of CAP professionals to provide systemic advocacy. As a result of this 

technical assistance and training, and an increased focus on relationship-building and outreach 

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

time. Fiscal year 2022 data has been updated to include data from Iowa that was unavailable for 

the fiscal year 2024 Congressional Justification.
REHABILITATION SERVICES

Client assistance State grants

34

Objective: Resolve cases at lowest possible level. 

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

(ADR). 

Year Target Actual 

2020 98% 97%

2021 98 98

2022 98 99

2023 98 99

2024 98 —

2025 98 —

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

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

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

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

litigation. Fiscal year 2022 data has been updated to include data from Iowa that was 

unavailable for the fiscal year 2024 Congressional Justification.
REHABILITATION SERVICES

35

Training

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

(dollars in thousands)

FY 2025 Authorization: To be determined42F

1

Budget Authority:

Period of fund availability: 

2024 Annualized CR 2025 Request Change

$29,388 $23,388 -$6,000

PROGRAM DESCRIPTION

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

the rehabilitation needs of individuals with disabilities assisted through other vocational 

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

activities designed to increase the number of qualified personnel providing rehabilitation 

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

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

conducting training programs.

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

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

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

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

The rehabilitation long-term training (LTT) program supports academic training grants that must 

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

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

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

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

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

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

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

psychological rehabilitation programs, supported employment programs, independent living 

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

or national scope.

The innovative rehabilitation training program supports grants that develop new types of training 

programs or new and improved methods of training for rehabilitation personnel, including standalone modules and instructional materials to be incorporated into an existing degree program or 

short-term training, and demonstrate the effectiveness of such training programs.

1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through 

appropriations action.
REHABILITATION SERVICES

Training

36

The training of interpreters program supports programing throughout the country in order to 

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

who are deaf-blind. This includes providing financial assistance to establish interpreter training 

programs where they are needed and supporting established interpreter programs to train a 

sufficient number of qualified interpreters. The program focuses on training interpreters to 

effectively interpret and transliterate between spoken language and sign language, and oral or 

tactile modes of communication, as well as maintaining and improving the skills of qualified 

interpreters.

Awards may also be made for technical assistance centers, such as the VR Technical 

Assistance Center on Quality Employment. These awards are made to pay part of the costs of 

projects that provide State VR agency personnel with training and technical assistance 

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

including rehabilitation counselors. In addition, the National Clearinghouse of Rehabilitation 

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

resource availability for individuals with disabilities. 

Traditionally Underserved Populations

The Rehabilitation Act requires the Department to fund the Traditionally Underserved 

Populations program (section 21 of the Rehabilitation Act) through a reservation of 1 percent of 

the funds appropriated under the Training, Demonstration and Training, Supported 

Employment, and Independent Living Services for Older Blind Individuals programs. In fiscal 

year 2023, this provision made $910,490 available for the Traditionally Underserved 

Populations program, which is designed to improve the quality, access, delivery of services, and 

outcomes of those services under the Rehabilitation Act, especially services provided to 

individuals with disabilities from minority backgrounds. It also increases the capacity for minority 

entities and Indian Tribes to participate in activities funded under the Rehabilitation Act. The 

Department ran a new competition, Activities for Underserved Populations, and made one new 

award in the form of a cooperative agreement in fiscal year 2023.

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

Fiscal Year (dollars in thousands) 

2020 $29,388

2021 29,388

2022 29,388

2023 32,199 43F

1

2024 Annualized CR 29,388

1 Reflects a reprogramming of $2,811 thousand from the Disability Innovation Fund (DIF) to the Training program in 

fiscal year 2023.
REHABILITATION SERVICES

Training

37

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $23.4 million for the Training program, 

$6.0 million less than a fiscal year 2024 annualized CR based on the fiscal year 2023 

appropriation. The Administration is requesting a corresponding $6.0 million increase to the 

Demonstration and Training program, where funds can better meet the technical assistance 

needs of State VR agencies and their consumers, as detailed further below and in the 

Demonstration and Training justification. Of the requested amount for Training, approximately 

$18.7 million would be used to support new awards; $4.3 million would be used to support 

continuation awards; $234,000 would be used for the Traditionally Underserved Populations 

program; and $152,000 would be used for peer review.

Technical assistance and evaluation activities under Training are statutorily required to focus on 

VR personnel. Two investments currently operating under the Training program–the Vocational 

Rehabilitation Technical Assistance Center for Quality Employment (VRTAC-QE) and 

Vocational Rehabilitation Technical Assistance Center for Quality Management (VRTAC-QM)–

will receive their final year of grant funding in fiscal year 2024. The request proposes to move 

the funding currently dedicated to the VRTACs to the Demonstration and Training program, 

which would enable the Department to fund technical assistance and evaluation on a broader 

range of issues and outcomes, including participant outcomes and implementation of the VR 

system as a whole, to better meet the needs of State VR agencies.

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

qualifications of existing staff. In response to dramatic turnover at State VR agencies created by 

the retirement of a large number of qualified counselors, the Department has targeted funding 

for LTT programs on training new counselors. Similar shortages, though not as severe, have 

also been affecting other VR providers. The Department believes that the LTT program, in 

concert with the Innovative Training program, which supports the development of new types of 

training programs and new and improved methods of training rehabilitation personnel, are 

effective mechanisms for recruiting new graduates into the rehabilitation field and ensuring they 

have access to high-quality training. The request includes approximately $19.2 million to 

support these activities through new grant awards and ongoing contracts.

In the fiscal year 2024 Request, the Administration requested appropriations language that 

would provide RSA with the authority to use Disability Innovation Funds for RSA’s information 

technology needs. If this authority is provided, up to an additional $1.1 million would be 

available for new awards under the Training program in fiscal year 2025. (See the associated 

footnote below and the VR State grants program section of this request for additional 

information about the related fiscal year 2025 Request, which impacts fiscal year 2026 outputs.)
REHABILITATION SERVICES

Training

38

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2023

F

o

ot

n

ot

e

2024

foot

note

202544F

1

Program Funding:

Long-Term Training:

Long-Term Training: New awards 0 0 $15,209

Long-Term Training:Continuation awards $14,580 $16,057 $500

Long-Term Training: Subtotal $14,580 $16,057 $15,709

Technical Assistance:

Technical Assistance: New awards 0 0 0

Technical Assistance: Continuation awards $5,739 $6,000 0

Technical Assistance: DIF Supplemental awards45F

2 $2,400 0 0

Technical Assistance: Subtotal $8,139 $6,000 0

Short-Term Training:

Short-Term Training: New awards 0 0 0

Short-Term Training: Continuation awards $308 $308 $308

Short-Term Training: DIF Supplemental awards2 $330 0 0

Short-Term Training: Subtotal $638 $308 $308

Training for Interpreters for Individuals who are Deaf 

and Deaf-Blind:

Training for Interpreters: New awards 0 0 0

Training for Interpreters: Continuation awards $3,71846F

3 $2,935 $2,936

Training for Interpreters Subtotal $3,718 $2,935 $2,936

Innovative Rehabilitation Training:

Innovative Rehabilitation Training: New awards 0 0 $3,450

Innovative Rehabilitation Training: Continuation awards $3,363 $3,150 0

Innovative Rehabilitation Training: Subtotal $3,363 $3,150 $3,450

National Clearinghouse of Rehabilitation Training 

Materials:

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

National Clearinghouse of Rehabilitation Training Materials: Continuation awards $770 $644 $599

National Clearinghouse of Rehabilitation Training Materials: Subtotal $770 $644 $599

1 If the Administration’s fiscal year 2024 request for the authority to use DIF for information technology needs is 

provided, $500 thousand under Long-Term Training (for the Personnel Development Program Data Collection 

System contract) and $599 thousand under the National Clearinghouse of Rehabilitation Training Materials will 

become available to support new awards under the Training program. 2 Reflects the reprogramming of $2,811 thousand from the DIF to the Training program in fiscal year 2023. This 

amount includes $2,730 thousand in supplemental awards under the Training program and $81 thousand to 

Traditionally Underserved Populations.

3 Includes $783 thousand in supplements to existing grantees.
REHABILITATION SERVICES

Training

39

Output Measures 2023

F

o

ot

n

ot

e

2024

foot

note

202547F

1

Other Activities:

Other Activities: Peer review of new award applications 0 0 $152

Other Activities: Traditionally Underserved Populations Setaside $99148F

2 $294 $234

Other Activities Subtotal $991 $294 $386

Program Totals:

Total: New awards 0 0 $18,659

Total: Continuation awards $28,478 $29,094 $4,343

Total: DIF Supplemental awards2 $2,730 0 0

Total: Other Activities $9912 $294 $386

Total $32,199 $29,388 $23,388

1 If the Administration’s fiscal year 2024 request for the authority to use DIF for information technology needs is 

provided, $500 thousand under Long-Term Training (for the Personnel Development Program Data Collection 

System contract) and $599 thousand under the National Clearinghouse of Rehabilitation Training Materials will 

become available to support new awards under the Training program. 2 Reflects the reprogramming of $2,811 thousand from the DIF to the Training program in fiscal year 2023. This 

amount includes $2,730 thousand in supplemental awards under the Training program and $81 thousand to 

Traditionally Underserved Populations.
REHABILITATION SERVICES

Training

40

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

program 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 Federal resources provided for the program as well as the 

resources and efforts invested by those served by the 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

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

requirements through employment in State vocational rehabilitation agencies. 

Year Target Actual

2020 40% 39%

2021 40 39

2022 40 33

2023 40 37

2024 40 —

2025 40 —

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

requirements through qualifying employment. 

Year Target Actual

2020 85% 88%

2021 85 84

2022 85 72

2023 85 73

2024 85 —

2025 85 —

Additional information: Qualifying employment includes employment in a State vocational 

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

The decline in the percentage of graduates fulfilling their payback requirements through 

qualifying employment in fiscal years 2022 and 2023 is likely because these cohorts graduated 

in fiscal years 2019 and 2020, respectively, and may have been seeking eligible employment 

during the height of the COVID pandemic. We anticipate that the fiscal year 2024 cohort may 

also be negatively impacted by the COVID pandemic.
REHABILITATION SERVICES

Training

41

Efficiency Measures

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

graduate. 

Year Target Actual

2020 $24,000 $41,780

2021 24,000 45,831

2022 24,000 N/A

2023 24,000 N/A

2024 24,000 —

2025 — —

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

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

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

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

fiscal year 2019 data includes 47 closed grants with 1,101 completers. The fiscal year 2020 

data includes 45 closed grants with 993 completers. The fiscal year 2021 data includes 3 closed 

grants with 65 completers. No grants closed in fiscal year 2022 or fiscal year 2023, so no data 

are available for these years.

The Department is currently reviewing options to revise the targets for this measure. During the 

process of analyzing data to identify appropriate targets, we identified potential concerns about 

whether the current methodology reflects the best approach to measure the cost efficiency of 

the LTT program. We are analyzing the impact of administrative costs and scholarship size on 

program outcomes to determine whether we should revise the current methodology. We will 

then determine if adjustments are needed to the targets or the performance measure. The 

Department intends to establish revised targets, and a revised methodology if appropriate, 

beginning with fiscal year 2025. However, the analysis to inform this decision is not yet 

complete, and a target will be included in the fiscal year 2026 request.
REHABILITATION SERVICES

42

Demonstration and training programs

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

(dollars in thousands)

FY 2025 Authorization: To be determined49F

1

Budget Authority:

Demonstration and training programs

Demonstration and training programs

Period of fund availability: 

2024 Annualized CR 2025 Request Change

$5,796 $11,796 +$6,000

PROGRAM DESCRIPTION

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

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

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

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

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

and evaluation activities.

Specific activities include:

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

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

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

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

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

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

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

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

other authorized representatives to participate more effectively with professionals in 

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

disabilities.

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

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

educational services to youth and adults who are blind.

1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through 

appropriations action.
REHABILITATION SERVICES

Demonstration and training programs

43

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2020 $5,796

2021 5,796

2022 5,796

2023 11,07250F

1

2024 Annualized CR 5,796

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $11.8 million for the Demonstration and 

Training programs, $6.0 million more than a fiscal year 2024 annualized CR based on the fiscal 

year 2023 appropriation. The Administration is requesting a corresponding $6.0 million 

decrease to the Training program. Additional details are provided further below and in the 

Training justification. Of the requested amount, approximately $11.4 million of funding would be 

used for 14 new awards under Technical Assistance and Parent Information and Training. 

Remaining funding would be used to fund the Braille Training continuation awards and the 

Section 21 set-aside.

Technical assistance and evaluation activities under Training are statutorily required to focus on 

VR personnel. Two investments currently operating under the Training program–the Vocational 

Rehabilitation Technical Assistance Center for Quality Employment (VRTAC-QE) and 

Vocational Rehabilitation Technical Assistance Center for Quality Management (VRTAC-QM)–

will receive their final year of grant funding in fiscal year 2024. The request proposes to move 

the funding currently dedicated to the VRTACs to the Demonstration and Training program, 

which would enable the Department to fund technical assistance and evaluation on a broader 

range of issues and outcomes, including participant outcomes and implementation of the VR 

system as a whole, to better meet the needs of State VR agencies.

1 Reflects a reprogramming of $5,276 thousand from the DIF to Demonstration and Training programs in fiscal year 

2023.
REHABILITATION SERVICES

Demonstration and training programs

44

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2023 2024 2025

Program funding:

Technical assistance

TA: New awards 0 0 $8,689

TA: Continuation awards51F

1 $2,689 $2,689 0

TA: DIF Supplemental awards52F

2 $800 0 0

Braille training

Braille: New awards 0 $342 0

Braille: Continuation awards $342 0 $342

Parent information and training

information: New awards 0 0 $2,700

information: Continuation awards $2,700 $2,700 0

information: Supplemental awards $65 $4 0

information: DIF Supplemental awards1 $960 0 0

Other DIF Supplemental awards1 $3,516 0 0

Peer review of new award applications 0 $3 $7

Traditionally Underserved Populations Set-aside53F

3 0 $58 $58

Minority Outreach: Total, Program funding $11,072 $5,796 $11,796

Number of awards:

Number of New awards 0 3 14

Number of Continuation awards 15 12 3

Number of DIF Supplemental awards 12 0 0

Total, Number of awards 27 15 17

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

programs.

2 Reflects the reprogramming of $5,276 thousand from the DIF to Demonstration and Training programs in fiscal year 

2023. This amount includes $1,760 thousand to support activities under the Demonstration and Training programs 

portfolio and $3,516 thousand to support activities under other portfolios for activities aligned with the authorities 

outlined under section 303 of the Rehabilitation Act. 3 In fiscal year 2023, the Department met the requirement for Traditionally Underserved Populations fully out of 

Training funds, so all Demonstration and Training funds were allotted to other statutorily approved activities.
REHABILITATION SERVICES

Demonstration and training programs

45

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

program 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 Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program.

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

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

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

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

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

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

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

the Department will report on the Vocational Rehabilitation Career Pathways for Individuals with 

Disabilities (CPID) Demonstration Projects and its associated measures. Performance 

information for the VR-CPID measures will be removed from the fiscal year 2026 request. The 

Department will set targets for all new performance measures based on the average of

baselines established in fiscal years 2021, 2022, and 2023. 

VR-CPID Measures

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

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

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

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

occupations.

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

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

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

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

Year Target Actual

2018 114 103

2019 121 107

2020 131 111
REHABILITATION SERVICES

Demonstration and training programs

46

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

employment through CPID-accessed or created career pathways.

Year Target Actual

2018 150 201

2019 200 277

2020 250 292

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

competitive integrated employment.

Year Target Actual

2018 $600 $650

2019 630 680

2020 680 685

Other VR-CPID Measures

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

integrated employment and employer-provided benefits obtained by CPID participants 

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

weekly earnings of CPID participants who obtained competitive integrated employment 

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

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

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

New Performance Measures

National Technical Assistance Center on Transition

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

needed to prepare them for competitive integrated employment.

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

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

competitive integrated employment.
REHABILITATION SERVICES

Demonstration and training programs

47

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

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

receiving pre-employment transition services.

Year Target Actual

2021 Baseline 60%

2022 Baseline 50

2023 Baseline —

2024 TBD —

2025 TBD —

Additional information: Fiscal year 2023 performance data is expected to be available in late 

February 2024 and will be included in the fiscal year 2026 Congressional Justification but was 

not available at the time of publication for this budget.

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

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

who become VR program participants.

Year Target Actual

2021 Baseline 80%

2022 Baseline 83

2023 Baseline —

2024 TBD —

2025 TBD —

Additional information: Fiscal year 2023 performance data is expected to be available in late 

February 2024 and will be included in the fiscal year 2026 Congressional Justification but was 

not available at the time of publication for this budget.

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

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

students with disabilities who receive VR services.

Year Target Actual

2021 Baseline 20%

2022 Baseline 17

2023 Baseline —

2024 TBD —

2025 TBD —

Additional information: Fiscal year 2023 performance data is expected to be available in late 

February 2024 and will be included in the fiscal year 2026 Congressional Justification but was 

not available at the time of publication for this budget.
REHABILITATION SERVICES

Demonstration and training programs

48

Parent Information and Training Programs

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

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

other rehabilitation needs.

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

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

services.

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

services who report enhanced knowledge and understanding of VR services.

Year Target Actual

2021 Baseline 91%

2022 Baseline 89

2023 Baseline 89

2024 90 —

2025 90 —

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

Measure: The percentage vocational rehabilitation or employment/employment products and 

services deemed useful, quality, and relevant.

Year Target Actual

2021 Baseline 91%

2022 Baseline 89

2023 Baseline 89

2024 90 —

2025 90 —
REHABILITATION SERVICES

49

Protection and advocacy of individual rights

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

(dollars in thousands)

FY 2025 Authorization: To be determined54F

1

Budget Authority: 

Period of fund availability: 

2024 Annualized CR 2025 Request Change

$20,150 $20,150 0

PROGRAM DESCRIPTION

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

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

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

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

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

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

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

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

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

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

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

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

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

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

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

U.S. Census Bureau).

The Rehabilitation Act establishes a minimum allotment of $100,000 for States, or one-third 

of 1 percent of funds remaining after the technical assistance set-side and grant for the 

American Indian consortium, whichever is greater. The Outlying Areas receive a minimum 

allotment of $50,000. The program is current-funded, but States and Outlying Areas may carry 

over unobligated Federal funds for an additional year.

1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through 

appropriations action.
REHABILITATION SERVICES

Protection and advocacy of individual rights

50

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands) 

2020 $17,650

2021 18,150

2022 19,150

2023 20,150

2024 Annualized CR 20,150

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $20.2 million for the PAIR program, level with 

a fiscal year 2024 annualized CR based on the fiscal year 2023 appropriation, to help provide 

information and P&A services to individuals with disabilities. The Department plans to reserve 

1.8 percent of the funds requested ($362,700) to provide training and technical assistance to 

eligible statewide systems established under this program, as required by the authorizing 

statute.

During fiscal year 2022, PAIR programs nationwide reported handling 9,022 cases and 

responded to 22,625 requests for information or referral. Of the individual cases handled by 

PAIR programs in that year, most were related to education (18 percent), housing (17 percent), 

and employment (17 percent). The most frequent primary disability categories (i.e., the ones 

directly related to the issues/complaints raised) reported for such individuals were orthopedic 

impairments (25 percent), neurological impairments (15 percent), and other disabilities 

(13 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 2022, 55 out of the 57 PAIR 

programs (96 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 2022 illustrate how PAIR 

programs assist individuals and can bring about systemic change. Funds requested in fiscal 

year 2025 would support similar activities.

• In December 2021, Disability Rights Maryland (DRM), in partnership with the Maryland 

Suspension Representation Project (MSRP), successfully reserved a zero-tolerance 

discipline policy in a large Maryland school district. It appeared that the school district was 

using a zero-tolerance discipline approach and was automatically referring students for 

extended suspension or expulsion for certain offense types. DRM, through its representation 

of the student referred for expulsion, found evidence of this zero-tolerance approach in an 

illegal behavior contract used in the student’s expulsion. MSRP, with DRM taking the lead, 

informed the district of its concerns regarding the district’s zero-tolerance approach to 

discipline and use of the illegal behavior contract. MSRP included client summaries in the 

letter to illustrate its concerns and demanded that the school district make certain reforms. 

As a result, the school district agreed to, among other things: conduct trainings for all staff 

where staff will be informed that behavior contracts are not to be used and reminded that 
REHABILITATION SERVICES

Protection and advocacy of individual rights

51

Zero Tolerance is not practiced in the school district; send a memorandum to all staff 

reminding them that disciplinary decisions must be made on an individualized, fact specific 

basis; and add MSRP and DRM to the Community Resources List that is provided to 

students who are suspended.

• Disability Rights Pennsylvania (DRP) participates in the Amtrak Disability 

Services/Accessibility Workgroup, a national workgroup organized by Amtrak to monitor its 

ADA accessibility improvements to its stations, rail cars, and equipment. Amtrak provides 

updated information to the workgroup about its efforts to come into compliance with the 

ADA. To date, 103 of 387 train stations have been made fully accessible and an additional 

69 have been made accessible except for the platforms. In addition to this work done in 

2022, the Workgroup voiced its concerns about the narrow aisle design of the Intercity train 

cars that Amtrak planned to purchase. This led Amtrak to make a number of adjustments to 

the design, including increasing the number of accessible seats on each trainset.

PROGRAM OUTPUT MEASURES

Output Measures 2023 2024 2025

Information inquiries/referrals 23,900 24,000 24,000

Individuals provided case services 9,000 9,400 9,400

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

program 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 Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program.

Goal: To provide assistance and information to individuals with disabilities eligible for 

the Protection and Advocacy of Individual Rights program and conduct advocacy to 

ensure the protection of their rights under Federal law.

Objective: Identify problem areas requiring systemic change and engage in systemic activities 

to address those problems.
REHABILITATION SERVICES

Protection and advocacy of individual rights

52

Measure: The percentage of PAIR programs that reported that their systemic advocacy 

resulted in a change in policy or practice.

Year Target Actual 

2020 89% 74%

2021 89 96

2022 89 96

2023 89 —

2024 89 —

2025 89 —

Additional information: Because PAIR programs cannot address all issues facing individuals 

with disabilities solely through individual advocacy, they seek to change public and private 

policies and practices that present barriers to the rights of individuals with disabilities, utilizing 

negotiations and class action litigation.

Fiscal year 2023 performance data is expected to be available and processed by late February 

2024 and will be included in the fiscal year 2026 Congressional Justification but was not 

available at the time of publication for this budget.
REHABILITATION SERVICES

53

Supported employment State grants

(Rehabilitation Act of 1973, Title VI)

(dollars in thousands)

FY 2025 Authorization: To be determined55F

1

Budget Authority: 

Supported employment State grants

2024 Annualized CR 2025 Request Change

$22,548 $22,548 0

PROGRAM DESCRIPTION

The Supported Employment (SE) State Grants program assists States in developing 

collaborative programs with appropriate public and private non-profit organizations to provide 

supported employment services for individuals with the most significant disabilities. The 

program provides formula-based supplemental funding to State vocational rehabilitation (VR) 

agencies to assist VR consumers with the most significant disabilities in achieving the 

employment outcome of supported employment. 

Supported employment uses a “place-train” model in which individuals with the most significant 

disabilities are placed in a job and provided intensive services and supports. These services are 

typically provided by a job coach in conjunction with supports provided by the employer to train 

the individual on the job site, followed by extended services after the individual’s ability to 

perform the job with support has stabilized. These services and supports enable individuals with 

the most significant disabilities to engage in and maintain competitive integrated employment.

An individual’s potential for supported employment must be considered as part of the 

assessment to determine if an individual is eligible for the Title I VR State Grants program. VR 

funds are used to pay the costs associated with assessment and the determination of eligibility, 

as well as other needed VR services prior to placement in supported employment. Ongoing 

services are provided by the VR agency, using funds under the SE State Grants program and/or 

the VR State Grants program, from the time of job placement until the transition to extended 

services, and thereafter by one or more extended services providers. A State VR agency may 

support an individual’s supported employment services solely with VR State grant funds, or it 

may support these services in whole or in part with funds under the SE State Grants program.

In addition, States are required, under the amendments to Title VI of the Rehabilitation Act 

made by WIOA, to use one-half of their SE program funding allotment to provide supported 

employment and extended services to youth with the most significant disabilities and to provide 

a State dollar match of 10 percent for the SE allotment portion used to serve such youth.

Supported employment funds are distributed based on population, using the most recent 

estimates from the U.S. Census Bureau, with no State receiving less than $300,000, or one1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through 

appropriations action.
REHABILITATION SERVICES

Supported employment State grants

54

third of 1 percent of the amount appropriated, whichever is greater. The minimum allotment for 

territories remains one-eighth of 1 percent of the appropriation. 

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2020 $22,548

2021 22,548

2022 22,548

2023 22,548

2024 Annualized CR 22,548

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $22.5 million for SE State Grants, level with a 

fiscal year 2024 annualized CR based on the fiscal year 2023 appropriation, to continue to 

provide a dedicated source of funding for supported employment services, including significant 

support for services to youth with the most significant disabilities.

When the SE State Grants program was first authorized in 1986, supported employment was a 

new promising practice in employing individuals who traditionally would not have achieved 

employment in the integrated labor market, and the program provided a critical incentive for 

State VR agencies to adopt this practice. State VR agencies now recognize supported 

employment as a viable employment option for individuals with the most significant disabilities, 

and an individual’s potential for supported employment must be considered as part of the 

assessment to determine if an individual is eligible for the Title I VR State Grants program. 

Even though states have demonstrated a need for funding, one issue of concern is that States 

have struggled to meet the requirement to use one-half of their SE allocations—along with a 

10 percent State dollar match—to provide supported employment and extended services to 

youth with the most significant disabilities. Some of the challenges reported by States include 

limited vendor capacity due to the pandemic; restrictions around use of SE funds, including a 

requirement that funds be spent on individuals once they are employed, which limits the number 

of youth clients who qualify for services; availability of VR State Grant funding to support SE 

services, which has less complicated administrative requirements; and the need for additional 

staff training, policies and procedures related to utilizing SE funds.

The challenge of meeting these requirements is demonstrated by recent SE State Grant 

expenditure patterns. Grantees did not use more than $3.7 million of fiscal year 2021 SE funds, 

the most recent cohort for which final data is available. As a result, more than 16 percent of the 

entire fiscal year 2021 SE appropriation, less set-asides, was returned to the Treasury. The 

amount of funds from the fiscal year 2021 SE appropriation that reverted to the Treasury is

more than $1.0 million greater than the amount of funds from the fiscal year 2019 SE 

appropriation that reverted to the Treasury. 
REHABILITATION SERVICES

Supported employment State grants

55

In order to respond to the substantial amount of unused funds in both the VR State Grants 

program and the SE State grants program, the Department has updated its Monitoring and 

Technical Assistance Guide56F

1 (MTAG) in collaboration with six VR agency directors and leaders 

representing the Council of State Administrators of Vocational Rehabilitation (CSAVR) and the 

National Council of State Agencies for the Blind (NCSAB). The MTAG explains the process 

through which the Department will conduct on-site monitoring and off-site reviews of, provide 

technical assistance to, and review the progress of, VR agencies in 1) maximizing the 

expenditure and use of Federal funds to improve the quality of services for, and employment 

outcomes achieved by, individuals with disabilities, and 2) complying with requirements under 

the Rehabilitation Act. 

In fiscal year 2023, the Department monitored 12 VR agencies, which included 7 on-site 

reviews. In accordance with the Department’s accountability model scoring, these agencies 

include Arkansas General, Florida Blind, Georgia Combined, Indiana Combined, Louisiana 

Combined, Nevada Combined, North Carolina General, Ohio Combined, Oklahoma Combined, 

Tennessee Combined, Texas Combined, and Puerto Rico Combined. The Department’s 

monitoring teams and management staff are in the process of drafting the monitoring reports 

corresponding to these engagements, which will be posted to the VR Monitoring and Technical 

Assistance website57F

2 as they are finalized. In fiscal year 2024, the Department will conduct onsite monitoring visits to 8 VR agencies in accordance with the Department’s accountability 

model scoring, including Arizona Combined, Colorado Combined, Florida General, Illinois 

Combined, Michigan General, New Jersey General, New York General, and Utah Combined. 

Fewer agencies will be monitored in 2024 to allow Department staff time to conduct WIOA State 

plan reviews, including related cross-agency collaboration and technical assistance to State 

agencies.

Specific to the focus areas addressed during the fiscal year 2023 and 2024 on-site monitoring 

and off-site reviews, each VR agency under review will develop and implement a strategic 

action plan (SAP) to demonstrate how it will reverse the return of unused funds and maximize 

the use and expenditure of Federal funds to improve performance and increase employment 

outcomes for individuals with disabilities, including those with the most significant disabilities. 

The SAP should: 

• identify causes for unused Federal funds and strategies and activities the VR agency will 

undertake to increase and maximize its ability to expend Federal VR and Supported 

Employment program grant funds;

• provide a written workable plan for taking action, which contains a timeline for 

implementation that demonstrates results within a reasonable specified time;

1 https://rsa.ed.gov/sites/default/files/programs/vr/FFY%202023%20MTAG%20Final%20(01.20.2023%20update).pdf

2 https://rsa.ed.gov/about/programs/vocational-rehabilitation-state-grants/monitoring-of-vocational-rehabilitationprogram/2023
REHABILITATION SERVICES

Supported employment State grants

56

• be supported by documentation (e.g., fiscal reports, data, policies) showing implementation 

of the actions and results achieved; and

• demonstrate a roadmap and commitment for continuous improvement.

The Department will also continue to analyze expenditure patterns, provide technical 

assistance, continue monitoring and work with all grantees to better understand their challenges 

with providing the state dollar match and using SE funds, in order to ensure States are 

developing successful solutions to provide critical supported employment and extended services 

for youth with the most significant disabilities, consistent with the intent of the authorizing 

statute. 

Beginning in fiscal year 2018, the Department made changes to the implementation of the SE

State Grant program in order to separate SE funds into two awards – one for SE services for 

youth with the most significant disabilities and one for SE services to non-youth. These changes 

allow the Department to better track expenditures and compliance with non-Federal match 

requirements; however, in order to give grantees time to adjust to the changes, the Department 

did not enforce the matching requirements immediately. After reviewing enforcement policies 

related to the VR State Grants program, the Department determined that it would implement 

enforcement of SE matching requirements in a similar manner to enforcement of VR preemployment transition services requirements. As with the VR State Grants, the Department is 

using the transition authority of WIOA to delay enforcement of noncompliant expenditures 

through the end of the period of performance for fiscal year 2020 awards. The Department is 

making progress in identifying agencies who failed to satisfy the SE match requirements for the 

fiscal year 2021 award. In 2024, the Department will issue annual review letters for those 

agencies requiring them to develop a corrective action plan for bringing themselves into 

compliance. 

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

under the Training, Demonstration and Training, Supported Employment, and Independent 

Living Services for Older Blind Individuals programs for the Traditionally Underserved 

Populations program (section 21 of the Rehabilitation Act). The fiscal year 2025 request 

includes $225,000 to meet this requirement. 
REHABILITATION SERVICES

Supported employment State grants

57

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures58F

1 2023 2024 2025

Individuals with the most significant disabilities 

who exited with SE outcomes in competitive 

integrated employment 15,300 15,300 15,300

Individuals with the most significant disabilities 

who received SE services 47,000 47,050 47,100

Youth59F

2 with the most significant disabilities who 

received SE services 23,350 23,400 23,450

Traditionally Underserved Populations Set-aside60F

3 0 $225 $225

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

program 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 Federal resources provided for the program and the VR State 

grants program as well as the resources and efforts invested by those served by the program. 

Data reported for these measures include outcomes for individuals who received supported 

employment services and exited the VR program with a supported employment outcome in 

competitive integrated employment, whether such services were paid for with VR State Grants 

or SE State Grants. Consequently, the measures do not permit independent assessment of the 

performance of the SE State Grants program. 

The Department has established three new performance measures, including two measures 

that mirror the WIOA performance indicators, to replace the previous performance measures, 

which were reported until fiscal year 2021. The new measures are designed to more effectively 

assess the role of supported employment services in the outcomes that participants with the 

most significant disabilities achieve.

Performance data reported in 2021 are based on data collected under the RSA-911 from July 1, 

2020 to June 30, 2021. Performance data reported in 2022 are based on data collected under 

the RSA-911 from July 1, 2021 to June 30, 2022. Performance data reported in 2023 are based 

1 The output measures data for Supported Employment State Grants are estimates based on program year 2022 

data.

2 “Youth” is defined as individuals 14 to 24 years old.

3 In fiscal year 2023, the Department met the requirement for Traditionally Underserved Populations fully out of 

Training funds, so all SE funds were allotted to States.
REHABILITATION SERVICES

Supported employment State grants

58

on data collected under the RSA-911 for program year (PY) 2022 from July 1, 2022 to June 30, 

2023. The Department has reported baseline data for PYs 2020 and 2021 under the new 

measures for 2021 and 2022. 

Goal: Individuals with the most significant disabilities who receive supported 

employment services will achieve high-quality employment outcomes and continue to 

work following their exit from the program.

Objective: Ensure that individuals with the most significant disabilities, who exit the VR program 

with supported employment outcomes in competitive integrated employment, will be capable of 

maintaining employment as a result of the supported employment services they received and 

that, consistent with their informed choice, they will have opportunities to maximize the number 

of hours they work each week. 

Measure: Of those individuals who received supported employment services, the median hours 

worked per week at the time they exit from the program with supported employment outcomes 

in competitive integrated employment. 

Year Target Actual

2021 Baseline 20

2022 Baseline 20

2023 20 20

2024 21 —

2025 21 —

Measure: Of those individuals who received supported employment services, the percentage 

who were employed during the second quarter after exit from the program. 

Year Target Actual

2021 Baseline 61.3%

2022 Baseline 65.3

2023 65.3% 66.6

2024 66.0 —

2025 66.5 —
REHABILITATION SERVICES

Supported employment State grants

59

Measure: Of those individuals who received supported employment services, the percentage 

who were employed during the fourth quarter after exit from the program. 

Year Target Actual

2021 Baseline 53.8%

2022 Baseline 55.7

2023 55.7% 55.0

2024 56.0 —

2025 56.5 —
REHABILITATION SERVICES

60

Independent living services for older blind individuals

(Rehabilitation Act of 1973, Title VII, Chapter 2)

(dollars in thousands)

FY 2025 Authorization: To be determined61F

1

Budget Authority: 

Period of fund availability: 

Period of fund availability: 

2024 Annualized CR 2025 Request Change

$33,317 $33,317 0

PROGRAM DESCRIPTION

The Independent Living Services for Older Individuals Who Are Blind (ILOIB) program assists 

individuals aged 55 or older who have severe visual impairment making competitive 

employment extremely difficult to obtain, but for whom independent living goals are feasible. 

Funds are used to provide independent living services, improve or expand services for these 

individuals, and improve public understanding of the challenges they face. ILOIB services are 

designed to help eligible persons adjust to their blindness by increasing their ability to care for 

their individual needs. Services under this program are not typically covered under private 

insurance, Medicaid or Medicare. 

Grantees are State Vocational Rehabilitation (VR) agencies for persons who are blind and 

visually impaired or, in States with no separate agency for persons who are blind, State 

combined VR agencies. States participating in the ILOIB program must match 10 percent of 

their grant with non-Federal cash or in-kind resources in the year for which the Federal funds 

are appropriated. Awards are distributed to States according to a formula based on the 

population of individuals who are 55 years of age or older (using the most recent estimates from 

the U.S. Census Bureau). The minimum allotment for each of the 50 States, D.C., and Puerto 

Rico is $225,000, with each of the territories receiving a minimum allotment of $40,000.

Independent living services are typically provided through contracts with local providers 

administered by State VR agencies. The services most frequently provided to program

participants in fiscal year 2023 were assistive technology devices and services (provided to 

73.3 percent of participants), daily living skills training (58.8 percent), and information and 

referral services (55.0 percent), with some participants receiving more than one service. These 

services allow older individuals who are blind or severely visually impaired to be more 

independent at home and in the community. Service providers are knowledgeable about 

blindness and other visual impairments, as well as the needs of older individuals with such 

impairments, including adaptive strategies that can assist these individuals to adjust to their 

impairments and increase their ability to function more independently. 

1 The GEPA extension expired September 30, 2021. Reauthorization for fiscal year 2025 is expected through 

appropriations action.
REHABILITATION SERVICES

Independent living for older blind individuals

61

The Department also reserves 1.8 percent of the funds appropriated to the ILOIB program, 

consistent with the requirements of WIOA, to provide training and technical assistance to

Designated State Agencies or other providers of ILOIB services.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands)

2020 $33,317

2021 33,317

2022 33,317

2023 33,317

2024 Annualized CR 33,317

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $33.3 million for the ILOIB program, level with 

a fiscal year 2024 annualized CR based on the fiscal year 2023 appropriation. Of the request, 

approximately $600 thousand would be used for a competition for one new award to provide 

training and technical assistance to ILOIB grantees and service providers. 

In fiscal year 2023, 53,389 individuals received services under the ILOIB program, 61.4 percent 

of whom were over 75 years of age and about 82.7 percent of whom were still living in a private 

residence. Approximately 52.0 percent of these individuals were either legally blind or totally 

blind, and 18.0 percent also had some degree of hearing impairment. Macular degeneration 

continues to be the most commonly reported eye condition, followed by other causes of 

visual impairments, glaucoma and diabetic retinopathy. 

The prevalence of disability increases with age, and the occurrence of a sensory disability is 

greater among older adults than working-aged people. Persons aged 55 or older, the target 

population of this program, are projected to comprise a larger share of the population over the 

next decade and beyond as nearly 75 million Americans who make up the baby-boomer 

generation (born from 1946 to 1964) continue to age. According to the U.S. Census Bureau’s 

2022 American Community Survey (1-Year Estimates), 5.9 percent of individuals 65 and older 

(about 3.3 million people) have a vision-related disability. In addition, the percentage of 

individuals who have a disability that affects their independent living status (including visionrelated disabilities) increases with age, with a dramatic increase for individuals in the 75 years 

and over category, where 21.9 percent report having a disability that affects their independent 

living status. 

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

under the Training, Demonstration and Training, Supported Employment, and Independent 

Living Services for Older Blind Individuals programs for the Traditionally Underserved 

Populations program (section 21 of the Rehabilitation Act). The fiscal year 2025 request 

includes $333,170 to meet this requirement. 
REHABILITATION SERVICES

Independent living for older blind individuals

62

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures: 2023 2024 2025

Minimum State award $225 $225 $225

Number of States at minimum 17 17 17

Average State award $626 $620 $620

Traditionally Underserved Populations Set-aside62F

1 0 $333 $333

Training and technical assistance $600 $600 $600

PROGRAM PERFORMANCE INFORMATION

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

program 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 Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program. 

Performance Measures

The Department established five new performance measures designed to measure the 

performance of the ILOIB program more accurately than the prior performance measures which 

were last reported for fiscal year 2020. The Department reported baseline data under the new 

measures for fiscal years 2021 and 2022 after which targets were set. 

Objective: To restore, improve, or maintain the independence of older individuals whose 

functional capabilities have been lost or diminished as a result of vision loss or blindness. 

1 In fiscal year 2023, the Department fully met the requirement for Traditionally Underserved Populations through the 

use of funds appropriated under the Training program, so all ILOIB funds were allotted to States or reserved for 

training and technical assistance.
REHABILITATION SERVICES

Independent living for older blind individuals

63

Measure: The percentage of individuals receiving assistive technology devices and services 

who demonstrated improvement in one or more functional capabilities during the reported 

federal fiscal year consistent with the objectives for receiving such devices and services. 

Year Target Actual

2021 Baseline 79%

2022 Baseline 84

2023 85% 85

2024 85 —

2025 85 —

Measure: The percentage of individuals receiving one or more independent living and 

adjustment training services who demonstrated improvement in functional capabilities during the 

reported federal fiscal year.

Year Target Actual

2021 Baseline 78%

2022 Baseline 83

2023 84% 84

2024 84 —

2025 84 —

Measure: The percentage of individuals completing a plan of services who reported feeling that 

they are more confident in their ability to maintain their current living situation. 

Year Target Actual

2021 Baseline 87%

2022 Baseline 90

2023 92% 93

2024 92 —

2025 92 —

Measure: The percentage of individuals completing a plan of services who reported an 

increased ability to engage in their customary daily life activities in the home and community. 

Year Target Actual

2021 Baseline 77%

2022 Baseline 90

2023 90% 85

2024 90 —

2025 90 —
REHABILITATION SERVICES

Independent living for older blind individuals

64

Objective: To ensure that State OIB programs demonstrate an efficient and effective use of 

funds to serve older individuals who are blind.

Measure: The average annual cost per individual served through the program during the 

reported federal fiscal year.

Year Target Actual

2021 Baseline $942

2022 Baseline 933

2023 $945 978

2024 945 —

2025 945 —
REHABILITATION SERVICES

65

Helen Keller National Center

(Helen Keller National Center Act)

(dollars in thousands)

FY 2025 Authorization: To be determined63F

1

Budget Authority: 

Helen Keller National Center

Period of fund availability: 

2024 Annualized CR 2025 Request Change

$19,000 $19,000 0

PROGRAM DESCRIPTION

The Helen Keller National Center for Deaf-Blind Youths and Adults (HKNC) was created by 

Congress in 1967 and operates under the auspices of Helen Keller Services. 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 their community of choice. This includes having access to local 

resources for community living and employment opportunities.

HKNC provides direct services through a residential training facility at its national headquarters 

center (Center) located in Sands Point, New York, where deaf-blind individuals receive intensive 

specialized services. The Center provides comprehensive services for individuals with deafblindness to enhance their potential for employment and help them live independently in their 

home communities. The Center’s residential programs provide consumers with an array of 

services, and supports, including adaptive skills training to help them achieve their vocational 

and independent living goals. The Center’s programs emphasize several 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 12 deaf-blind specialists. Through this network, HKNC assists

deaf-blind individuals and their families and provides technical assistance to local service 

providers. The regional network offices provide counseling, information, transition assistance, 

and referral services for individuals who are deaf-blind and their families to assist them to 

achieve successful participation in their community and employment.

The HKNC Community Services Program (CSP), operated by HKNC in collaboration with the 

New York State Commission for the Blind and the California Department of Rehabilitation 

Services, provides comprehensive rehabilitation, vocational, and support services to eligible 

1 The GEPA extension expired September 30, 2004. Reauthorization for fiscal year 2025 is expected through 

appropriations action.
REHABILITATION SERVICES

Helen Keller National Center

66

persons who are deaf-blind in their homes, worksites, and communities. CSP is staffed by 

credentialed professionals in the fields of blindness and deafness, including orientation and 

mobility specialists, low vision specialists, vision rehabilitation teachers, and vocational 

specialists. All CSP staff are proficient in American Sign Language and other alternative modes 

of communication.

In addition, HKNC has developed a Deaf-Blind National Community of Practice, a 71-member 

collaborative of professional organizations working together to improve the quality of services to 

individuals who are deaf-blind through shared learning, research, and practice. These 

organizations consist of three national organizations, vocational rehabilitation agencies for both 

deaf and hard of hearing and blind consumers, many State deaf-blind projects, two schools for 

the deaf and blind, and agencies that provide support services (such as Support Service 

Provider and interpreting services) to deaf-blind individuals.

HKNC offers a program called the Deaf-Blind Immersion Experience, which provides consumers 

who are deaf-blind with intellectual disabilities, and their support teams, a 5-day training 

experience that includes participation in work experiences that match their interests, gifts, and 

abilities.

HKNC also provides professional development, training and technical assistance, and 

consultation to other organizations, programs, and providers serving individuals who are deafblind.

Funding levels for the past 5 fiscal years were:

Fiscal Year (dollars in thousands) 

2020 $16,000

2021 17,000

2022 18,000

2023 19,000

2024 Annualized CR 19,000

FY 2025 BUDGET REQUEST

For fiscal year 2025, the Administration requests $19.0 million for HKNC, level with a fiscal year 

2024 annualized CR based on the fiscal year 2023 appropriation, to sustain regional office 

support for an estimated 1,900 individual consumers, 650 families, and 1,650 agencies and 

organizations, while also strengthening direct intensive services to approximately 90 consumers 

at HKNC’s residential training and rehabilitation program.

While most of the request would support core activities at HKNC headquarters, approximately 

30 percent of the funds requested would provide support to HKNC for field services, community 

education, and professional development programs, including the activities of HKNC’s 

10 regional offices and the Information, Research, and Professional Development 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.
REHABILITATION SERVICES

Helen Keller National Center

67

PROGRAM OUTPUT MEASURES

Output Measures 2023 2024 2025

Number of individuals served at headquarters:

Number of Adult training program clients 90 90 90

Number receiving Specialized training services:

Specialized training services: Number of Transition for high school students 15 15 15

Specialized training services: Number of Senior citizens 30 30 30

Specialized training services: Number of Individuals with intellectual disabilities 15 15 15

Specialized training services: Number receiving Targeted skills training 15 15 15

Specialized training services: Number receiving Community Services Program 165 165 165

Number of individuals served through regional 

representatives and deaf-blind specialists:

Number of Consumersserved through regional representatives 1,900 1,900 1,900

Number of Familiesserved through regional representatives 650 650 650

Number of Agencies/organizationsserved through regional representatives 1,650 1,650 1,650

HKNC FTE staff 175 175 175

PROGRAM PERFORMANCE INFORMATION

Performance Measures

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

program 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 Federal resources provided for the program as well as the 

resources and efforts invested by those served by the program.

Due to the impacts of the COVID-19 pandemic and the unique health and developmental needs 

of the communities served by HKNC, several of the performance outcomes outlined below 

indicate notable shifts from past performance. These shifts are typically decreases and are 

found in performance measures designed to capture outcomes in spaces where service 

recipients are typically required to either live at HKNC headquarters or have extensive in-person 

contact with HKNC-affiliated staff. HKNC expects outcomes on these performance indicators to 

move back toward normality.
REHABILITATION SERVICES

Helen Keller National Center

68

Goal: Individuals who are deaf-blind will become independent and function as full and 

productive members of their local community.

Objective: Individuals who are deaf-blind receive the specialized services and training they 

need to become as independent and self-sufficient as possible.

Measure: The percentage of: (1) training goals set and achieved by adult consumers (both on 

and off campus); (2) adult consumers seeking employment who are placed in employment (both 

on and off campus); and (3) adult consumers seeking to maintain their ability to live 

independently or move to less restrictive settings who achieve their goals.

Year

Target

# of Adult 

Consumers

Actual

# of Adult 

Consumers 

(on/off)

Target

% of 

Training 

goals met

Actual

% of 

Training 

goals met

Target

% Placed 

in Employment

Actual

% Placed 

in Employment

(on/off)

Target

% in Less 

Restrictive 

Settings

Actual

% in Less 

Restrictive 

Settings

2020 80 86/92 95% 87% 60% 33/50% 86% 93%

2021 80 82/95 95 88 60 10/41 86 12

2022 80 70/91 95 93 60 26/67 86 78

2023 80 62/80 95 97 60 28/55 86 97

2024 80 — 95 — 60 — 86 —

2025 80 — 95 — 60 — 86 —

Additional information: In fiscal year 2023, HKNC served 62 consumers through its virtual 

training and on campus programs sponsored by HKNC headquarters and 80 additional offcampus consumers through its NY Community Services Program. HKNC points out that the 

number of consumers served may fluctuate from year to year due to multiple factors beyond the 

control of HKNC. 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.

HKNC evaluates the progress of consumers in achieving the goals stated in their individualized 

training plans (ITPs). This measure represents the percent of adult consumers served by the 

HKNC who successfully achieved identified training goals during the program year.

In fiscal year 2023, 28 percent of consumers served by HKNC headquarters and 55 percent of 

regional consumers participating in the Community Services Program with an employment goal 

were placed in employment.

The “less restrictive settings” measure refers to consumers who move from settings such as 

living with parents or guardians, assisted living settings, and nursing homes to more 

independent living arrangements such as their own home or apartment or group homes.
REHABILITATION SERVICES

Helen Keller National Center

69

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

2020 600 372

2021 600 384

2022 600 258

2023 600 365

2024 600 —

2025 600 —

Additional information: These referrals help deaf-blind consumers access resources within 

their home community that improve their ability to function independently.

Measure: The percentage of consumers who participated in services or programs (other than 

HKNC) as a result of receiving a referral from HKNC’s regional offices.

Year Target Actual

2020 75% 75%

2021 75 75

2022 75 74

2023 75 61

2024 — —

2025 — —

Additional information: This measure provides information on the activities of the field 

services programs, including the regional representatives and deployed deaf-blind specialists. 

The referrals provided by regional representatives often are the gateway to finding appropriate 

and individualized supports from various agencies and organizations. In fiscal year 2023, two 

regional representative positions were unstaffed for at least part of the year, lowering the 

referral rate.
REHABILITATION SERVICES

Helen Keller National Center

70

Objective: HKNC will assist State vocational rehabilitation (VR) and employment programs in 

increasing employment outcomes for individuals who are deaf-blind.

Measure: The number of referrals by HKNC’s regional offices to VR or related employment 

programs.

Year Target Actual

2020 65 79

2021 65 47

2022 65 54

2023 65 56

2024 65 —

2025 65 —

Additional information: HKNC field staff frequently facilitate interactions between consumers 

and VR agencies, including assistance for consumers who are returning to their State’s VR 

system after attending intensive training at HKNC headquarters. The number of referrals to VR 

agencies fluctuates depending on whether the consumers served by HKNC field staff have 

vocational goals.

Measure: The percentage of individuals who achieved successful employment outcomes in 

which HKNC’s regional offices played a collaborative role contributing training, advocacy and/or 

support to the consumer or job training agency.

Year Target Actual 

2020 45% 35%

2021 45 35

2022 45 53

2023 45 62

2024 45 —

2025 45 —

Additional information: The numerator is the number of clients served by HKNC regional 

representatives who achieved employment outcomes in which HKNC’s regional offices played a 

collaborative role providing training, advocacy and/or support to the consumer or job training 

agency. The denominator is the total number of consumers served by HKNC regional 

representatives who achieved employment outcomes.
REHABILITATION SERVICES

71

Account Summary Table

Select here for the online version.

DEPARTMENT OF EDUCATION FISCAL YEAR 2025 PRESIDENT'S BUDGET

(in thousands of dollars)

Cat 

Code

2023

Appropriation

2024

Annualized CR 2025 Request

FY 2025 Request 

Compared to FY 2024 

Annualized CR: Amount

FY 2025 Request 

Compared to FY 2024 

Annualized CR: Percent

Rehabilitation Services

1. Vocational rehabilitation State grants:

(a) Grants to States (RA Title I-A, sections 110 and 111)1 M 3,899,057 4,200,219 4,200,219 0 0.00%

(b) Grants to Indians (RA Title I-C) M 50,650 53,615 53,615 0 0.00%

Subtotal, Pre-Sequestration2 M 3,949,707 4,253,834 4,253,834 0 0.00%

Subtotal, Post-Sequestration3 M 3,724,574 4,011,365 4,011,365 0 0.00%

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

3. Training (RA section 302) D 29,388 29,388 23,388 (6,000) -20.42%

4. Demonstration and training programs (RA section 303) D 5,796 5,796 11,796 6,000 103.52%

5. Protection and advocacy of individual rights (RA section 509) D 20,150 20,150 20,150 0 0.00%

6. Supported employment State grants (RA VI) D 22,548 22,548 22,548 0 0.00%

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

8. Helen Keller National Center for Deaf-Blind Youths and Adults (HKNCA) D 19,000 19,000 19,000 0 0.00%

Subtotal 143,199 143,199 143,199 0 0.00%

Total 4,092,906 4,397,033 4,397,033 0 0.00%

Discretionary D 143,199 143,199 143,199 0 0.00%

Mandatory M 3,949,707 4,253,834 4,253,834 0 0.00%

1 This amount is pre-sequestration.

2 The Vocational Rehabilitation State Grants program is a mandatory appropriated entitlement; therefore, under an FY 2024 annualized CR, the program is entitled to all statutory adjustments provided for in section 

110(a) of the Rehabilitation Act, including the statutory Consumer Price Index increase. The 2025 Request excludes the statutory Consumer Price Index increase of $136,123 thousand.

3 The 2025 Request includes the CHIMP of -$128,364 thousand, which equals the statutory Consumer Price Index increase reduced by sequestration (5.7%). 

NOTES:

1) D = discretionary program; M = mandatory programs

2) Pursuant to the Budget Control Act of 2011 (P.L. 112-25), for most mandatory programs, with the exception of Pell Grants, Credit Liquidating, and Credit Reestimates, the levels shown in 

the 2023 and 2024 Appropriation columns reflect the 5.7 percent reduction that went into effect on October 1, 2022 and October 1, 2023, respectively.

3) Detail may not add to totals due to rounding.