Source: http://docplayer.net/3178309-Federal-register-vol-80-no-73-thursday-april-16-2015-proposed-rules.html
Timestamp: 2017-09-26 08:11:39
Document Index: 769997802

Matched Legal Cases: ['arts 361', 'art 361', 'art 363', 'art 397', 'art 361', 'art 361', 'art 361', 'art 361', 'art 361', 'art 363', 'art 363', 'art 397', 'arts 361', 'art 397', 'art 361', 'art 361', 'art 361', 'art 361', 'art 361', 'art 200', 'art 361', 'art 361', 'art 363', 'art 363', 'art 361', 'art 397', 'art 397', 'art 397', 'arts 361', 'art 397', 'art 361', 'art 363', 'art 397', 'art 361', 'art 361', 'art 361', 'art 361', 'art 361', 'art 200', 'art 200', 'art 200', 'art 200', 'art 3474', 'art 200', 'art 200', 'art 371', 'art 363', 'art 363', 'art 371', 'art 361', 'art 363', 'art 363', 'art 363', 'art 361', 'art 361', 'art 361', 'art 361', 'art 397']

Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules - PDF
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Lora Irene Lamb
1 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules DEPARTMENT OF EDUCATION 34 CFR Parts 361, 363, and 397 RIN 1820 AB70 [Docket ID ED 2015 OSERS OOO1] State Vocational Rehabilitation Services Program; State Supported Employment Services Program; Limitations on Use of Subminimum Wage AGENCY: Office of Special Education and Rehabilitative Services, Department of Education. ACTION: Notice of proposed rulemaking. SUMMARY: The Secretary proposes to amend the regulations governing the State Vocational Rehabilitation Services program and the State Supported Employment Services program in order to implement changes to the Rehabilitation Act of 1973, as amended by the Workforce Innovation and Opportunity Act (WIOA) enacted on July 22, The Secretary also proposes to update, clarify, and improve the current regulations. Finally, the Secretary proposes to issue new regulations regarding limitations on the use of subminimum wages that are added by WIOA and under the purview of the Department. DATES: We must receive your comments on or before June 15, ADDRESSES: Submit your comments through the Federal erulemaking Portal or via postal mail, commercial delivery, or hand delivery. We will not accept comments submitted by fax or by or those submitted after the comment period. To ensure that we do not receive duplicate copies, please submit your comments only once. In addition, please include the Docket ID at the top of your comments. Federal erulemaking Portal: Go to to submit your comments electronically. Information on using Regulations.gov, including instructions for accessing agency documents, submitting comments, and viewing the docket, is available on the site under Are you new to the site? Postal Mail, Commercial Delivery, or Hand Delivery: If you mail or deliver your comments about these proposed regulations, address them to Janet LaBreck, U.S. Department of Education, 400 Maryland Avenue SW., Room 5086, Potomac Center Plaza (PCP), Washington, DC Privacy Note: The Department s policy is to make all comments received from members of the public available for public viewing in their entirety on the Federal erulemaking Portal at Therefore, commenters should be careful to include in their comments only information that they wish to make publicly available. FOR FURTHER INFORMATION CONTACT: Janet LaBreck, U.S. Department of Education, 400 Maryland Avenue SW., Room 5086, PCP, Washington, DC Telephone: (202) or by If you use a telecommunications device for the deaf (TDD) or a text telephone (TTY), call the Federal Relay Service (FRS), toll free, at SUPPLEMENTARY INFORMATION: Executive Summary Purpose of This Regulatory Action: The Secretary proposes to amend the regulations governing the State Vocational Rehabilitation Services program (VR program) (34 CFR part 361) and State Supported Employment Services program) (Supported Employment program) (34 CFR part 363), administered by the Rehabilitation Services Administration (RSA), to implement changes to the Act made by WIOA (P.L ), enacted on July 22, In so doing, the Secretary also proposes to update and clarify current regulations to improve program function. Finally, the Secretary proposes to promulgate regulations in 34 CFR part 397 that implement the limitations on the payment of subminimum wages to individuals with disabilities in section 511 of the Act that fall under the purview of the Secretary. For a more detailed description of the purpose of these proposed regulatory actions, see the Background section in this notice of proposed rulemaking (NPRM). Summary of the Major Provisions of This Regulatory Action: We summarize here those proposed regulatory changes needed to implement the amendments to the Act made by WIOA. Under the Proposed Changes section of this NPRM, we provide a more complete summary of these changes and a detailed description of the substantive proposed regulations for each part in the order it appears in the Code of Federal Regulations (CFR). We also describe in detail under the Proposed Changes section the amendments to each part to update, clarify, and improve the regulations. The Secretary proposes to implement the following changes to the VR program and Supported Employment program made by WIOA. VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 State Vocational Rehabilitation Services Program People with disabilities represent a vital and integral part of our society, and we are committed to ensuring that individuals with disabilities have opportunities to compete for and enjoy high quality employment in the 21st century global economy. Some individuals with disabilities face particular barriers to high quality employment. Giving workers with disabilities the supports and the opportunity to acquire the skills that they need to pursue 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 priority for individuals with disabilities, the Rehabilitation Act of 1973, as amended by WIOA, seeks to empower individuals with disabilities to maximize employment, economic self-sufficiency, independence, and inclusion and integration into society. The VR program is authorized by title I of the Act, as amended by WIOA (29 U.S.C. 720 et seq.), to provide support to each State to assist in operating a statewide comprehensive, coordinated, effective, efficient, and accountable State program as an integral part of a statewide workforce development system; and to assess, plan, and provide vocational rehabilitation (VR) services to individuals with disabilities so that those individuals may prepare for and engage in competitive integrated employment consistent with their unique strengths, priorities, concerns, abilities, capabilities, interests, and informed choice. The Department last published regulations for this program in part 361 on January 17, 2001 (66 FR 4382), to implement amendments made by the Workforce Investment Act of WIOA makes significant changes to title I of the Act that affect the VR program. First, WIOA strengthens the alignment of the VR program with other components of the workforce development system by imposing unified strategic planning requirements, common performance accountability measures, and requirements governing the one-stop delivery system. This alignment brings together entities responsible for administering separate workforce and employment, educational, and other human resource programs and funding streams to collaborate in the creation of a seamless custom-focused service delivery network that integrates service delivery across programs, enhances access to the program s services, and improves long-
2 21060 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules term employment outcomes for individuals receiving assistance. In so doing, WIOA places heightened emphasis on coordination and collaboration at the Federal, State, and local levels to ensure a streamlined and coordinated service delivery system for job-seekers, including those with disabilities, and employers. Therefore, the Departments of Education and Labor propose to issue a joint NPRM to implement jointly administered activities under title I of WIOA (e.g., those related to Unified or Combined State Plans, performance accountability, and the one-stop delivery system), applicable to the workforce development system s core programs (Adult, Dislocated Worker and Youth programs; Adult Education and Literacy programs; Wagner-Peyser Employment Service program and the Vocational Rehabilitation program). These joint proposed regulations are set forth in a separate NPRM published elsewhere in this issue of the Federal Register. WIOA also makes corresponding changes to title I of the Act. Consequently, we propose to make conforming changes throughout part 361 and align the VR program-specific regulations with the joint proposed regulations to ensure consistency among all core programs. Second, WIOA places heightened emphasis throughout the Act on the achievement of competitive integrated employment. The foundation of the VR program is the principle that individuals with disabilities, including those with the most significant disabilities, are capable of achieving high quality, competitive integrated employment when provided the necessary skills and supports. To increase the employment of individuals with disabilities in the competitive labor market, the workforce system must provide the opportunity for such individuals to participate in job-driven training and pursue high-quality employment outcomes. The amendments to the Act from the stated purpose of the Act, to the expansion of services designed to maximize the potential of individuals with disabilities, including those with the most significant disabilities, to achieve competitive integrated employment, and, finally, to the inclusion of limitations on the payment of subminimum wages to individuals with disabilities reinforce the congressional intent that individuals with disabilities, with appropriate supports and services, are able to achieve the same kinds of competitive integrated employment as non-disabled individuals. As a result, we propose to amend part 361 throughout to emphasize the key role that the VR program plays in employment outcomes and preparing individuals with disabilities to achieve competitive integrated employment in the community. We propose, among other things, to amend the definition of employment outcome to include only those outcomes in competitive integrated employment or supported employment, thereby eliminating uncompensated employment from the scope of employment outcomes for purposes of the VR program. We also propose to amend numerous other provisions throughout part 361 to address the expansion of available services, requirements related to the development of the individualized plan for employment, and order of selection for services, all of which are intended to maximize the potential for individuals with disabilities to prepare for, obtain, retain, and advance in the same highquality jobs, and high demand careers as persons without disabilities. Third, WIOA places heightened emphasis on the provision of services to students and youth with disabilities to ensure that they have meaningful opportunities to receive the training and other services they need to achieve employment outcomes in competitive integrated employment. The Act, as amended by WIOA, expands not only the population of students with disabilities who may receive services but also the kinds of services that the VR agencies may provide to youth and students with disabilities who are transitioning from school to postsecondary education and employment. Most notably, the Act, as amended by WIOA, requires States to reserve 15 percent of their VR allotment to provide pre-employment transition services to students with disabilities who are eligible or potentially eligible for VR services. These pre-employment transition services are designed to provide job exploration and other services, such as counseling and selfadvocacy training, in the early stages of the transition process. With the addition of these early preemployment transition services, the VR program can be characterized as providing a continuum of VR services, especially for students and youth with disabilities. To that end, we propose to amend numerous sections of part 361 to implement new definitions for the terms student with a disability and youth with a disability and new requirements related to pre-employment transition services and the provision of transition services to students and youth with VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 disabilities. All of the proposed changes demonstrate the continuum of services available to students and youth with disabilities under the VR program to maximize their potential to transition from school to postsecondary education and employment. Supported Employment Program WIOA makes several significant changes to title VI of the Act, which governs the Supported Employment program. All of the amendments to title VI are consistent with those made throughout the Act, namely to maximize the potential of individuals with disabilities, especially those with the most significant disabilities, to achieve competitive integrated employment and to expand services for youth with the most significant disabilities. First, WIOA amends the definition of supported employment to make clear that supported employment outcomes must be in competitive integrated employment or, if in an integrated setting that is not competitive integrated employment, then in an integrated setting in which the individual is working on a short-term basis toward competitive integrated employment. By adding a timeframe to this definition, Congress reinforces its intention that individuals with disabilities should not be allowed to languish in subminimum wage jobs under the Supported Employment program. Thus, the Secretary proposes to amend part 363 to implement the revised definition of supported employment. The Secretary proposes to define short-term basis in this context to mean no longer than six months. We believe this proposed change is consistent with the Act, as amended by WIOA, in its entirety as well as the stated congressional intent. Second, WIOA requires States to reserve at least 50 percent of their supported employment program allotment for the provision of supported employment services to youth with the most significant disabilities. With these reserved funds, States may provide extended services, for a period up to four years, to youth with the most significant disabilities. Prior to the enactment of WIOA, extended services were not permitted under either the VR program or the Supported Employment program. In addition, States must provide a non-federal share of 10 percent of the funds reserved for the provision of supported employment services to youth with the most significant disabilities. By requiring that States use half of their supported employment program funds and provide a match for these reserved funds,
3 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules Congress reinforces the heightened emphasis on the provision of services to youth with disabilities. Congress makes clear that youth with significant disabilities must be given every opportunity to receive the services necessary to ensure the maximum potential to achieve competitive integrated employment. Accordingly, the Secretary proposes to amend part 363 to implement new requirements regarding the reservation of funds, and the services to be provided with those funds, to youth with the most significant disabilities. Limitations on the Payment of Subminimum Wages Section 511 of the Act, as added by WIOA, imposes requirements on employers who hold special wage certificates under the Fair Labor Standards Act (FLSA) that must be satisfied before the employers may hire youth with disabilities at subminimum wage or continue to employ individuals with disabilities of any age at the subminimum wage level. Section 511 also establishes the roles and responsibilities of the designated State units (DSU) for the VR program and State and local educational agencies in assisting individuals with disabilities, including youth with disabilities, to maximize opportunities to achieve competitive integrated employment through services provided by VR and the local educational agencies. The addition of section 511 to the Act is consistent with all other amendments to the Act made by WIOA. Throughout the Act, Congress makes clear that individuals with disabilities, including those with the most significant disabilities, can achieve competitive integrated employment if provided the necessary supports and services. The limitations imposed by section 511 reinforce this belief by requiring individuals with disabilities, including youth with disabilities, to satisfy certain service-related requirements in order to start or maintain, as applicable, subminimum wage employment. To that end, the Secretary proposes to develop new regulations at part 397 that would implement requirements of section 511 that fall under the purview of the Department. Costs and Benefits: The potential costs associated with this regulatory action are those resulting from statutory requirements and those we have determined as necessary for administering the Department s programs and activities. Further information related to costs and benefits may be found in the Regulatory Impact Analysis section later in this NPRM. Invitation to Comment: We invite you to submit comments regarding these proposed regulations. To ensure that your comments have maximum effect in developing the final regulations, we urge you to identify clearly the specific section or sections of the proposed regulations that each of your comments addresses and to arrange your comments in the same order as the proposed regulations. We invite you to assist us in complying with the specific requirements of Executive Orders and and their overall requirement of reducing regulatory burden that might result from these proposed regulations. Please let us know of any further ways we could reduce potential costs or increase potential benefits while preserving the effective and efficient administration of the Department s programs and activities. During and after the comment period, you may inspect all public comments about these proposed regulations by accessing Regulations.gov. You may also inspect the comments in person in room 5093, Potomac Center Plaza, th Street SW., Washington, DC, between 8:30 a.m. and 4:00 p.m., Washington, DC time, Monday through Friday of each week except Federal holidays. Please contact the person listed under FOR FURTHER INFORMATION CONTACT. Assistance to Individuals with Disabilities in Reviewing the Rulemaking Record: On request we will provide an appropriate accommodation or auxiliary aid to an individual with a disability who needs assistance to review the comments or other documents in the public rulemaking record for these proposed regulations. If you want to schedule an appointment for this type of accommodation or auxiliary aid, please contact the person listed under FOR FURTHER INFORMATION CONTACT. Background The Workforce Innovation and Opportunity Act (WIOA) (Pub L ), enacted July 22, 2014, made significant changes to the Rehabilitation Act of 1973 (hereafter referred to as the Act). As a result, the Secretary proposes to amend parts 361 and 363 of title 34 of the CFR. These parts, respectively, implement the: State Vocational Rehabilitation (VR) Services program; and State Supported Employment Services program. In addition, WIOA added section 511 to title V of the Act. Section 511 limits the payment of subminimum wages to individuals with disabilities by employers holding special wage VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 certificates under the FLSA. Although the Department of Labor administers the FLSA, some requirements of section 511 fall under the purview of the Secretary. Therefore, the Secretary proposes to add a new part 397 to title 34 of the CFR to implement those particular provisions. These proposed changes are further described under the Summary of Proposed Changes and Significant Proposed Regulations sections of this NPRM. WIOA also makes changes to other programs authorized under title I of the Act, including the Client Assistance Program and the American Indian Vocational Rehabilitation Services (AIVRS) program, as well as discretionary grant programs authorized under title III, the Protection and Advocacy of Individual Rights program under title V, and the Independent Living Services for Older Individuals Who are Blind program under title VII. The Secretary proposes regulatory changes to implement the amendments to these programs and projects made by WIOA through a separate, but related, NPRM published elsewhere in this issue of the Federal Register. Summary of Proposed Changes The Secretary proposes to implement the following changes to the VR program and Supported Employment program made by WIOA. State Vocational Rehabilitation Services Program The VR program is authorized by title I of the Act, as amended by WIOA (29 U.S.C. 720 through 731, and 733), to provide support to each State to assist in operating a statewide comprehensive, coordinated, effective, efficient, and accountable State VR program as an integral part of a statewide workforce development system; and to assess, plan, and provide VR services to individuals with disabilities so that those individuals may prepare for and engage in competitive integrated employment consistent with their unique strengths, priorities, concerns, abilities, capabilities, interests, and informed choice. The Department last published regulations for this program in part 361 on January 17, 2001 (66 FR 4382), to implement amendments made by the Workforce Investment Act of 1998 (WIA). In implementing the amendments to the VR program made by WIOA, the numerous proposed regulatory changes to part 361 improve employment outcomes for individuals with disabilities by: (1) Strengthening the alignment of the VR program with other components of the workforce
4 21062 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules development system through unified strategic planning requirements, common performance accountability measures, and requirements governing the one-stop delivery system; (2) emphasizing the achievement of competitive integrated employment by individuals with disabilities, including individuals with the most significant disabilities; and (3) expanding services to support the transition of students and youth with disabilities to postsecondary education and employment. To implement jointly administered activities under title I of WIOA (e.g., those related to Unified or Combined State Plans, performance accountability and the one-stop delivery system), the U.S. Departments of Labor and Education are proposing a set of joint regulations applicable to the workforce development system s core programs, including the VR program. Through these proposed joint regulations, we lay the foundation for establishing a comprehensive, accessible, and high quality workforce development system that serves all individuals in need of employment services, including individuals with disabilities, and employers in a manner that is customerfocused and that supports an integrated service design and delivery model. These joint proposed regulations are in a separate NPRM published elsewhere in this issue of the Federal Register. WIOA makes corresponding changes to title I of the Act regarding the submission, approval, and disapproval of the VR services portion of the Unified or Combined State Plan; the standards and indicators used to assess VR program performance; and the involvement of the VR program in the one-stop delivery system. Consequently, we propose to amend current to require that all assurance and descriptive information previously submitted through the VR State plan and supported employment supplement be submitted through the VR services State Plan under sections 102 and 103 of the Act, respectively, of WIOA. We also propose to implement changes specific to the content of the VR services State Plan by amending current (a) to require that the comprehensive statewide needs assessment include the results of the needs of students and youth with disabilities for VR services, including pre-employment transition services. Additionally, we propose to clarify in current that States will report to the Secretary updates to the statewide needs assessment and goals and priorities, estimates of the numbers of individuals with disabilities served through the VR program and the costs of serving them, and reports of progress on goals and priorities at such time and in such manner determined by the Secretary, thereby resolving inconsistencies in reporting requirements within section 101(a) of the Act. Finally, we clarify in proposed when designated State agencies must conduct public hearings to obtain comment on substantive changes to policies and procedures governing the VR program. We propose to implement the changes to section 106 of the Act made by WIOA through proposed , by replacing the current standards and indicators used to assess the performance of the VR program under current through with a cross-reference to the joint regulations for the common performance accountability measures for the core programs of the workforce development system. Similarly, we propose to provide a cross-reference in current , regarding the roles and responsibilities of the VR program in the one-stop delivery system, to the joint regulations implementing requirements for the one-stop delivery system. WIOA makes extensive changes to title I of the Act to improve the VR services provided to, and the employment outcomes achieved by, individuals with disabilities, including those with the most significant disabilities. Embedded throughout the provisions of WIOA and the amendments to the Act is the principle that individuals with disabilities, including those with the most significant disabilities, are capable of achieving competitive integrated employment when provided the necessary skills and supports. As a result, we propose to adopt a definition of competitive integrated employment in 361.5(c)(9) that combines, clarifies, and enhances the two separate definitions of competitive employment and integrated setting for the purpose of employment in current 361.5(b)(11) and (b)(33)(ii). We propose to incorporate this principle throughout part 361, from the statement of program purpose in proposed 361.1, to a requirement in proposed (a) that the individualized plan for employment include a specific employment goal consistent with the general goal of competitive integrated employment. This principle is most evident in the definition of employment outcome in proposed 361.5(c)(15), which specifically identifies customized employment as an employment outcome under the VR program, and requires that VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 all employment outcomes achieved through the VR program be in competitive integrated employment or supported employment, thereby eliminating uncompensated outcomes, such as homemakers and unpaid family workers, from the scope of the definition for purposes of the VR program. We will provide guidance and technical assistance to VR agencies to assist them in implementing this proposed change. We propose additional regulatory changes to ensure that individuals with disabilities are provided a full opportunity through the VR program to participate in job-driven training and pursue high-quality employment outcomes. Proposed (a)(1)(iii) would clarify that an applicant meeting all other eligibility criteria may be determined eligible if he or she requires services to advance in employment, not just obtain or maintain employment. We also propose to clarify in proposed (b)(6)and , that VR services are available to assist individuals with disabilities to obtain graduate level education needed for this purpose. We clarify in proposed (c)(1) the prohibition against a duration of residency requirement and in (c)(2) those factors that cannot be considered when determining the eligibility of VR program applicants. We propose removing the option to use extended evaluations, as a limited exception to trial work experiences, to explore an individual s abilities, capabilities, and capacity to perform in work situations by deleting paragraph (f) from current To enable individuals with disabilities, including students and youth with disabilities, to receive VR services in a timely manner, proposed (e) would require the individualized plan for employment of each individual to be developed within 90 days following the determination of eligibility. Finally, if a State VR agency is operating under an order of selection for services, it would have the option under proposed to indicate in its State Plan that it will serve eligible individuals with disabilities outside that order who have an immediate need for equipment or services to maintain employment. WIOA enhances the VR agency s focus on coordination and collaboration with other entities by emphasizing coordination with employers, noneducational agencies working with youth, AIVRS programs, and other agencies and programs providing services to individuals with disabilities to support the achievement of competitive integrated employment.
5 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules Proposed reflects the enhancements. The collaboration with employers is essential to the success of VR program participants and proposed would describe the training and technical assistance services that can be provided to employers hiring, or interested in hiring, individuals with disabilities. We propose to implement the emphasis on serving students and youth with disabilities contained in the amendments to the Act made by WIOA in many regulatory changes to part 361. We propose new definitions of student with a disability and youth with a disability in 361.5(c)(51) and (c)(59), respectively. These definitions would assist VR agencies to determine the appropriate transition and other services that may be provided to each group. We propose in (a) to implement the requirements of new sections 110(d) and 113 of the Act requiring VR agencies to reserve at least 15 percent of the Federal allotment, to provide and arrange, in coordination with local educational agencies, for the provision of preemployment transition services to students with disabilities. We propose in to clarify the technical assistance VR agencies can provide to educational agencies and to permit the provision of transition services for the benefit of groups of students and youth with disabilities. To enable VR agencies and local educational agencies to better determine their respective responsibilities for the provision of transition services, including preemployment transition services, through greater interagency collaboration, we propose in (c) to clarify that nothing in this part is to be construed as reducing the responsibility of the local educational agencies or any other agencies under the Individuals with Disabilities Education Act to provide or pay for transition services that are also considered to be special education or related services necessary for the provision of a free appropriate public education to students with disabilities. So that VR agencies can recruit the qualified personnel needed to provide the services and engage in the activities summarized here, we propose in changes to the requirements for a comprehensive system of personnel development. The proposed regulations would establish minimum educational requirements and experience and eliminate the requirement to retrain staff not meeting the VR agency s personnel standard for qualified staff. Finally, we propose changes to part 361 to improve the fiscal administration of the VR program. Proposed 361.5(b) would make applicable to the VR program the definitions contained in 2 CFR part 200, Uniform Administrative Requirements, Cost Principles, and Audit Requirements. We also propose to make numerous conforming changes to align with 2 CFR 200 to ensure consistency. We propose three changes to current regarding the allotment of VR program funds. First, we propose adding a new paragraph (a)(3) to that would require the State to reserve not less than 15 percent of its allotment for the provision of pre-employment transition services described in proposed (a). Second, we propose to amend current (b)(2) to clarify that reallotment occurs in the fiscal year the funds were appropriated; however, the funds may be obligated or expended during the period of performance, provided that matching requirements are met. Finally, we propose to add a new paragraph (b)(3) to that would describe the Secretary s authority to determine the criteria to be used to reallot funds when the amount requested exceeds the amount of funds relinquished. We provide a full discussion of these and other changes to part 361 in the Significant Proposed Regulations section of this notice. State Supported Employment Services Program Under the Supported Employment program authorized under title VI of the Act (29 U.S.C. 795g et seq.), the Secretary provides grants to assist States in developing and implementing collaborative programs with appropriate entities to provide supported employment services for individuals with the most significant disabilities, including youth with the most significant disabilities, to enable them to achieve supported employment outcomes in competitive integrated employment. Grants made under the Supported Employment program supplement grants issued to States under the VR program (34 CFR part 361). The regulations in 34 CFR part 363, governing the Supported Employment program, were last updated February 18, 1993 (59 FR 8331). Therefore, the changes proposed in part 363 would incorporate statutory changes made by WIOA, as well as update the regulations to improve the program and ensure consistency with changes proposed for part 361 governing the VR program. The changes made to the Supported Employment program by WIOA are intended to ensure that individuals with the most significant disabilities, especially youth with the most VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 significant disabilities, are afforded a full opportunity to prepare for, obtain, maintain, advance in, or re-enter competitive integrated employment, including supported or customized employment. Proposed would require that supported employment be in competitive integrated employment or, if not, in an integrated setting in which the individual is working toward competitive integrated employment on a short-term basis not to exceed six months. Proposed (b)(1) would extend the time from 18 months to 24 months for the provision of supported employment services. Proposed would require a reservation of 50 percent of a State s allotment under this part for the provision of supported employment services, including extended services, to youth with the most significant disabilities. Proposed would require not less than a 10 percent match for the amount of funds reserved to serve youth with the most significant disabilities. Proposed would reduce the amount of funds that may be spent on administrative costs. Limitation on Use of Subminimum Wages The Secretary proposes to promulgate new regulations in part 397 to implement new requirements for designated State units (DSUs) and educational agencies under the purview of the Department that are imposed by section 511 of the Act, which was added by WIOA. Section 511 imposes limitations on employers who hold special wage certificates, commonly known as 14(c) certificates, under the FLSA (29 U.S.C. 214(c)) that must be satisfied before the employers may hire youth with disabilities at subminimum wage or continue to employ individuals with disabilities of any age at the subminimum wage level. The proposed regulations in part 397 focus exclusively on the related roles and responsibilities of educational agencies and DSUs for the VR program. The proposed regulations in part 397 are consistent with the changes proposed for parts 361 and 363, which govern the VR program and Supported Employment program, respectively. Through amendments to the Act, WIOA prioritizes, and places heightened emphasis upon, the provision of services that maximize opportunities for competitive integrated employment for individuals with disabilities, including those with the most significant disabilities, consistent with their unique strengths, resources, priorities, concerns, abilities, capabilities, interests, and informed
6 21064 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules choice. WIOA also places heightened emphasis on the provision of services necessary to assist youth with disabilities to achieve competitive integrated employment in the community, including supported or customized employment. To that end, amendments to the Act require DSUs to reserve specified percentages of their VR or supported employment allotments for the provision of services to students or youth with disabilities, as applicable. These amendments, along with the addition of section 511, demonstrate the intent that individuals with disabilities, especially youth with disabilities, must be afforded a full opportunity to prepare for, obtain, maintain, advance in, or reenter competitive integrated employment. Section 511 places limitations on the payment of subminimum wages by entities (e.g., employers) holding special wage certificates under the FLSA. In particular, such employers are prohibited from hiring youth with disabilities at a subminimum wage level unless the youth are afforded meaningful opportunities to access services, including transition services under the Act or IDEA, so they may achieve competitive integrated employment in the community. For the purposes of these requirements, a youth with a disability is anyone who is 24 years or younger. This age range is consistent with the definition of a youth with a disability in section 7(42) of the Act. Additionally, employers are prohibited from continuing to employ individuals with disabilities, regardless of age, at the subminimum wage level unless other requirements are satisfied. Specifically, the individual with a disability, or the individual s parent or guardian if applicable, must receive certain information and career counselingrelated services from the DSU every six months during the first year of such employment and annually thereafter for as long as the individual receives compensation at the subminimum wage level. In addition to the requirements imposed on employers holding special wage certificates, section 511 of the Act requires DSUs to provide certain career counseling services. Further, educational agencies and the DSUs must develop a process, or use an existing process, for the timely provision of documentation necessary to demonstrate completion of required activities, as appropriate, to youth seeking employment, at a subminimum wage level. Finally, DSUs must provide documentation of the provision of career counseling and information and referral services to individuals with disabilities, regardless of age, who are currently employed at a subminimum wage level. The proposed regulations in this part focus exclusively on those requirements under the purview of the Department of Education. To that end, we propose in part 397: (1) Documentation requirements that local educational agencies and DSUs would be required to satisfy; and (2) information and career counseling-related services DSUs would be required to provide. Requirements imposed on employers are under the purview of the Department of Labor, which administers the FLSA. Significant Proposed Regulations The Secretary proposes to amend the implementing regulations for the VR program (part 361) and the Supported Employment program (part 363). The Secretary also proposes to issue new regulations in part 397 to implement limitations on the payment of subminimum wages to individuals with disabilities. We discuss substantive issues within each subpart, by section or subject. Generally, we do not address proposed changes that are technical or otherwise minor in effect, such as changes to the authority cited in the Act. Part 361 State Vocational Rehabilitation Services Program Organizational Changes Although the proposed regulations maintain the current structure of subparts A, B, and C, we propose organizational changes to other subparts within this part. First, we propose to reserve subparts within part 361 where we plan to incorporate the three subparts we are proposing in a separate, but related, NPRM (the joint regulations proposed by the Departments of Education and Labor implementing changes to title I of WIOA) published elsewhere in this issue of the Federal Register. Please see that NPRM for more information about how these subparts will be incorporated into part 361. Second, we propose to remove through , since the VR-specific standards and indicators are no longer applicable given amendments made by WIOA. Finally, we propose to eliminate Appendix A to current part 361 Questions and Responses. We will consider issuing guidance after the publication of the final regulations. Purpose ( 361.1) Statute: Section 100(a)(1)(C) of the Act, as amended by WIOA (29 U.S.C. 720(a)(1)(C)), highlights competitive integrated employment as the type of employment that individuals with disabilities, including individuals with the most significant disabilities, are capable of achieving if appropriate supports and services are provided. This section, as revised, also incorporates economic self-sufficiency as a criterion to consider when providing VR services to an individual. The focus on competitive integrated employment is also reflected in changes made to section 100(a)(3)(B) of the Act. Current Regulations: Current 361.1(b) refers only to gainful employment, not competitive integrated employment. It also does not include economic self-sufficiency as a criterion to consider when providing VR services. amend current 361.1(b) by: (1) Replacing the term gainful employment with competitive integrated employment ; and (2) incorporating economic selfsufficiency as a new criterion that must be considered to ensure that the VR services provided are consistent with the individual s unique circumstances. Reasons: The regulatory changes are necessary to implement statutory amendments to section 100 of the Act that emphasize the ability of individuals with disabilities, including individuals with the most significant disabilities, to achieve competitive integrated employment, not gainful employment, the term previously used under the Act, as amended by WIA. We believe this change is significant given that section 7(5) of the Act, as amended by WIOA, includes a new term, competitive integrated employment, that includes mandatory criteria related to, among other things, compensation, advancement, and the integrated nature of the workplace. We also believe it is significant that Congress added economic self-sufficiency to the list of areas that must be considered when providing VR services to an individual because it reinforces a key element of competitive integrated employment, namely requirements related to compensation and benefits. See the discussion of the term competitive integrated employment in this Significant Proposed Regulations section of the notice for a full explanation of this term for purposes of the VR program. Applicable Definitions ( 361.5) Definitions in 34 CFR 77.1 Statute: None. VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6
7 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules Current Regulations: Current regulations highlight only a few terms contained in 34 CFR Proposed Regulations: In paragraph (a) of 361.5, we propose to incorporate by reference all definitions contained in 34 CFR Reasons: This change is necessary to clarify that all definitions in 34 CFR 77.1 are applicable to part 361. Adoption of 2 CFR Part 200 Statute: None. Current Regulations: Current 361.5, which contains definitions relevant to the VR program and was last updated in 2001, does not include definitions from 2 CFR part 200 since those regulations were promulgated in Proposed Regulations: We propose redesignating current paragraph (b) as paragraph (c) and adding a new paragraph (b) that incorporates by reference all definitions in 2 CFR part 200, subpart A (Uniform Administrative Requirements, Cost Principles, and Audit Requirements). Proposed substantive changes to paragraph (c) will be discussed throughout this NPRM in conjunction with the relevant topical discussion. Reasons: OMB issued the Uniform Administrative Requirements, Cost Principles, and Audit Requirements for Federal Awards on January 1, The new regulations supersede and streamline requirements from OMB Circulars A 21, A 87, A 89, A 102, A 110, A 122, and A 133, as well as the guidance in Circular A 50 on Single Audit Act follow-up. These regulations, codified in 2 CFR part 200, have been adopted by the Secretary in 2 CFR part 3474, which took effect on December 26, Consequently, terms and definitions that previously were not used in the VR program, such as subaward (2 CFR ), will be applicable given the Department s adoption of 2 CFR part 200. Administrative Cost Statute: Section 7(1) of the Act, which defines administrative costs, remains unchanged by WIOA. Current Regulations: The current definition in 361.5(b)(2) mirrors the statute and defines administrative costs as including, among other things, the costs of operating and maintaining DSU facilities, equipment, and grounds. amend 361.5(c)(2)(viii), as redesignated by other changes made in this part, by clarifying that operating and maintenance expenses, for purposes of the definition of administrative costs for the VR program, do not include capital expenditures, as defined in 2 CFR Reasons: The proposed change is necessary to clarify the scope of administrative costs, with regard to operating and maintenance expenditures, thereby ensuring consistency with 2 CFR part 200. There has been confusion among VR grantees as to whether operating or maintenance expenses, in the context of administrative costs, include capital expenditures. Operating or maintenance expenses in the context of administrative costs under the VR program are those costs incurred to maintain facilities, equipment, and grounds in good working order; whereas, capital expenditures, as defined in 2 CFR , are those expenditures that materially increase their value or useful life. We want to make clear that capital expenditures are permitted under the VR program in accordance with 2 CFR , but not as an administrative cost. Assessment for Determining Eligibility and Vocational Rehabilitation Needs Statute: Section 7(2)(B)(v) of the Act, as amended by WIOA (29 U.S.C. 705(2)), adds a new requirement that VR agencies must, to the maximum extent possible, rely on information from the individual s experiences obtained in an integrated employment setting in the community or in other integrated community settings when using existing information or conducting a comprehensive assessment for determining eligibility and the need for VR services for an individual with a disability. Current Regulations: Current 361.5(b)(6) defines assessment for determining eligibility and vocational rehabilitation needs, but does not include the requirement related to reliance on information about the individual s experiences in integrated settings because this is a new statutory requirement. amend the current regulations to conform to the statute in section 7(2)(B) of the Act by adding language to the definition of assessment for determining eligibility and vocational rehabilitation needs in proposed 361.5(c)(5)(ii)(E) that would make clear that a comprehensive assessment, to the maximum extent possible, relies on information obtained from the eligible individual s experiences in integrated employment settings in the community and other integrated settings in the community. Reasons: WIOA places a heightened emphasis on the achievement of VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 competitive integrated employment by individuals with disabilities. To that end, amendments made by WIOA require that assessments for determining eligibility and VR needs of individuals with disabilities must rely on information about the individual s experiences in integrated employment and in other integrated community settings. The Act clearly places an emphasis on integrated settings by requiring that VR agencies rely on information learned from the individual s experiences in these settings, to the maximum extent possible, when conducting an assessment. Nonetheless a DSU is not precluded from determining an individual s eligibility for VR services based on other information obtained through the assessment process when the individual cannot participate in integrated community-based work experiences. Assistive Technology Terms Statute: Section 7(3) of the Act, as amended by WIOA (29 U.S.C. 705(3)), adds a new definition of assistive technology and combines the previous definitions of assistive technology device and assistive technology service under the heading assistive technology terms. Current Regulations: Current 361.5(b)(7) defines assistive technology device and current 361.5(b)(8) defines assistive technology service. There is no definition for assistive technology since this is a new statutory term. add the heading assistive technology terms in proposed 361.5(c)(6), under which we would incorporate definitions for the new term assistive technology and for the existing terms assistive technology device and assistive technology service. We also propose to delete current 361.5(b)(7) and (b)(8), as these separate definitions would no longer be necessary. Reasons: The proposed changes are necessary to implement the new statutory definition in section 7(3) of the Act, as amended by WIOA. The proposed definition streamlines the definitions of the various terms by referencing the Assistive Technology Act of Competitive Integrated Employment Statute: WIOA adds a new term, competitive integrated employment, in section 7(5) of the Act (29 U.S.C. 705(5)). Although this is a new statutory term, the term and its definition generally represent a consolidation of two separate definitions and their terms
8 21066 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules in current regulations competitive employment and integrated setting. In addition, the new statutory definition incorporates a criterion related to advancement in employment that is not included in either of the two current regulatory definitions. Current Regulations: Current 361.5(b)(11) defines competitive employment and current 361.5(b)(33) defines integrated setting. Current regulations do not define competitive integrated employment since this is a new statutory term. replace the term competitive employment in current 361.5(b)(11) with the new term competitive integrated employment in proposed 361.5(c)(9). The proposed definition of competitive integrated employment would mirror the statutory definition in section 7(5) of the Act, as amended by WIOA, as well as provide two clarifications with respect to the criteria for integrated work locations. First, proposed 361.5(c)(9)(ii)(A) would clarify that the employment location must be in a setting typically found in the community. Second, proposed 361.5(c)(9)(ii)(B) would clarify that the employee with a disability s interaction with other employees and others, as appropriate (e.g., customers and vendors), who are not persons with disabilities (other than supervisors and service providers) must be to the same extent that employees without disabilities in similar positions interact with these same persons. This interaction must occur as part of the individual s performance of work duties and must occur both in the particular work unit and the entire work site, as applicable. We further propose to amend the definition of integrated setting in proposed 361.5(c)(32)(ii) to conform to the clarifications provided in the proposed definition of competitive integrated employment in proposed 361.5(c)(9)(ii) to ensure consistency between the two terms. Finally, we propose to replace the terms competitive employment and employment in an integrated setting, as appropriate, with competitive integrated employment throughout this part. Reasons: These proposed changes are necessary to implement and to clarify statutory amendments made by WIOA. Because the proposed definition of competitive integrated employment reflects, for the most part, a consolidation of two existing regulatory definitions, the substance of this proposed definition is familiar to DSUs and does not represent a divergence from current regulations, long-standing Department policy, practice, and the heightened emphasis on competitive integrated employment throughout the Act, as amended by WIOA. In implementing these proposed regulations and determining whether an individual with a disability has achieved an employment outcome in competitive integrated employment, a DSU must consider, on a case-by casebasis, each of the criteria described in the proposed definition of competitive integrated employment. While most of the criteria are familiar and selfexplanatory, we believe additional guidance is warranted here to explain those few new criteria contained in the statutory and proposed regulatory definitions, especially with regard to the criteria for an integrated employment setting. As a result, we further explain these criteria, highlighting those aspects that historically have raised the most questions from DSUs. Competitive Earnings: The compensation criteria of the proposed definition of competitive integrated employment, which mirror the statutory definition, are consistent with those found in the current regulatory definition of competitive employment in 361.5(b)(11). Proposed 361.5(c)(9)(i)(A) would continue to require that, to be considered competitive integrated employment, the individual must perform full- or part-time work in which he or she earns at least the higher of the minimum wage rate established by Federal or applicable State law. Because several jurisdictions have established minimum wage rates substantially higher than those provided for under Federal or State law, the statutory definition and proposed 361.5(c)(9)(i)(A) would require that the individual s earnings be at least equal to the legally established local minimum wage rate if that rate is higher than both the Federal and State rates. Also, as has been the case under the current definition of competitive employment, section 7(5) of the Act requires and proposed 361.5(c)(9)(i)(D) would require that the individual with the disability must be eligible for the same level of benefits provided to employees without disabilities in similar positions. In implementing the statute, the proposed definition would establish additional criteria with respect to competitive earnings. First, proposed 361.5(c)(9)(i)(B) would require that the DSU take into account the training, experience, and level of skills possessed by the employees without disabilities in similar positions. Second, the proposed definition recognizes that individuals, with or without disabilities, in selfemployment may not receive an income VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 from the business equal to or exceeding applicable minimum wage rates, particularly in the early stages of operation. Hence, proposed 361.5(c)(9)(i)(C) would clarify that selfemployed individuals with disabilities can be considered to be receiving competitive compensation if their income is comparable to that of individuals without disabilities in similar occupations or performing similar tasks who possess the same level of training, experience, and skills. Finally, to ensure consistency with the American Indian Vocational Rehabilitation Services program under part 371, we interpret subsistence employment as a form of selfemployment common to cultures of many American Indian tribes. Integrated Location: While the integrated setting criteria of the proposed definition of competitive integrated employment are consistent with the statutory definition in section 7(5)(B) of the Act, as amended by WIOA, and the current definition of integrated setting in 361.5(b)(33)(ii), the proposed definition would provide important clarifications that are necessary to ensure consistency with expressed congressional intent and current Departmental guidance. First, we propose to require that the work location be in a setting typically found in the community as required by current 361.5(b)(33)(ii), meaning that an integrated setting must be one that is typically found in the competitive labor market. This particular criterion is included in the current definition of integrated setting and, thus, its incorporation in the proposed definition of competitive integrated employment would ensure consistency between the two terms. Furthermore, this longstanding Department interpretation is consistent with the expressed congressional intent throughout the Act, as well as with past legislative history. Specifically, integrated setting... is intended to mean a work setting in a typical labor market site where people with disabilities engage in typical daily work patterns with co-workers who do not have disabilities; and where workers with disabilities are not congregated... (Senate Report , page 10, March 2, 1998). Therefore, we continue to maintain the long-standing Department policy that settings established by community rehabilitation programs specifically for the purpose of employing individuals with disabilities (e.g., sheltered workshops) do not constitute integrated settings because these settings are not typically found in the competitive labor market. We believe this criterion of the integrated
9 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules setting component of the proposed definition of competitive integrated employment is the first of two thresholds that must be satisfied. Second, once the first threshold is met, we believe it is essential, consistent with the current definition of integrated setting, that individuals with disabilities have the opportunity to interact with non-disabled co-workers during the course of performing their work duties to the same extent that their non-disabled co-workers have to interact with each other when performing the same work. To that end, proposed 361.5(c)(9)(ii)(B) would clarify that other persons as used in the statutory definition means other employees without disabilities with whom the employee with the disability works within the specific work unit and from across the entire work site. We want to make clear that this proposed clarification is contained, more generally, in the current definition of integrated setting. Furthermore, we believe this clarification is consistent with congressional intent, past legislative history, current Departmental guidance, and current regulations. Historically, this element regarding integrated settings has raised many questions; therefore, we provide specific clarity with regard to certain job settings in which employees primarily interact with persons from outside the work unit, such as vendors and customers, rather than each other, while performing their job duties. We believe the focus of whether the setting is integrated should be on the interaction between employees with and without disabilities, and not solely on the interaction of employees with disabilities with people outside of the work unit. For example, the interaction of individuals with disabilities employed in a customer service center with other persons over the telephone, regardless of whether these persons have disabilities, would be insufficient by itself to satisfy the definition. Instead, the interaction of primary consideration should be that between the employee with the disability and his or her colleagues without disabilities in similar positions. Nonetheless, we recognize that individuals who are self-employed or who telecommute may interact more frequently with persons such as vendors and customers than with other employees. Since these persons often work alone from their own homes rather than together in a single location, and may have little contact with fellow employees, we have long maintained that self-employment and telecommuting are considered to meet the criteria for an integrated location, so long as the employee with the disability interacts with employees in similar positions and other persons without disabilities to the same extent that these persons without disabilities interact with others, though this interaction need not be face-to-face. The proposed definition of competitive integrated employment would further clarify, consistent with the general principles contained in the current definition of integrated setting, that the DSU is to consider the interaction between employees with disabilities and those without disabilities that is specific to the performance of the employee s job duties, and not the casual, conversational, and social interaction that takes place in the workplace. As a result, it would not be pertinent to its determination of an integrated setting for a DSU to consider interactions in the lunchrooms and other common areas of the work site in which employees with disabilities and those without disabilities are not engaged in performing work responsibilities. This determination, particularly with regard to the level of interaction, would be applicable regardless of whether the individual with a disability is an employee of the work site or a community rehabilitation program hires the individual with a disability under a service contract for that work site. Specifically, individuals with disabilities hired by community rehabilitation programs to perform work under service contracts, either alone or in groups (e.g., landscaping or janitorial crews), whose interaction with persons without disabilities (other than their supervisors and service providers) is with persons working in or visiting the work locations (and not with employees of the community rehabilitation programs without disabilities in similar positions) would not be performing work in an integrated setting. In summary, the DSU must determine, on a case-by-case basis, that a work location is in an integrated setting if it both is typically found in the community, and is one in which the employee with the disability interacts with employees and other persons, as appropriate to the position, who do not have disabilities to the same extent that employees without disabilities interact with these persons. Finally, the DSU is to consider the interaction between the employee with the disabilities and these other persons that takes place for the purpose of performing his or her job duties, not mere casual and social interaction. VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 Opportunities for Advancement: To ensure that the employment of persons with disabilities is equivalent in all respects to that of persons without disabilities, section 7(5) of the Act, as amended by WIOA, establishes a new criterion not contained in current regulations. Proposed 361.5(c)(9)(iii) mirrors the language in section 7(5) of the Act and would require that the employee with the disability have the same opportunities for advancement as employees without disabilities in similar positions. We believe this new criterion is consistent with current definitions of competitive employment and integrated settings and should pose no hardship on DSUs to implement. As explained here, the definition of competitive integrated employment in section 7(5) of the Act, as amended by WIOA, and as proposed in 361.5(c)(9) establishes three essential criteria of employment income (earnings and benefits), integration, and advancement thereby ensuring that individuals with disabilities are provided through the VR program the full opportunity to participate in the same jobs available to persons without disabilities in the public. Again, we want to make clear that two of the criteria those related to compensation and the integrated nature of the worksite are similar, if not identical, to criteria contained in the current definitions of competitive employment and integrated setting. Thus, the substance of this definition is familiar to the DSUs and should pose no hardship to implement. Customized Employment Statute: Section 7(7) of the Act, as amended by WIOA (29 U.S.C. 705 (7)), adds and defines the term customized employment, which means, in general, competitive integrated employment designed to meet both the specific abilities of the individual with a significant disability and the business needs of an employer. Current Regulations: None. add 361.5(c)(11), to define customized employment to mirror the statute. Reasons: The proposed regulation is necessary to implement the new statutory term and definition because the Act, as amended by WIOA, uses the term in a variety of contexts, including incorporating it into definitions of employment outcome and supported employment, and incorporating it into the list of individualized services permissible under the VR program. Customized employment provides
10 21068 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules flexibility in developing individualized and customized strategies that are specific to an individual with a significant disability s unique needs, interests, and capabilities, through the use of flexible strategies that meet the needs of both the individual and the employer. Employment Outcome Statute: Section 7(11) of the Act, as amended by WIOA, revises the definition of employment outcome to include customized employment within its scope. Current Regulations: Current 361.5(b)(16) defines employment outcome, but does not include customized employment since this is a new statutory requirement. amend the definition of employment outcome in 361.5(c)(15), as redesignated by other changes made in this part, to specifically identify customized employment as an employment outcome under the VR program. We also propose to amend the definition to require that all employment outcomes achieved through the VR program be in competitive integrated employment or supported employment, thereby eliminating uncompensated outcomes from the scope of the definition for purposes of the VR program. Furthermore, we propose to amend current (b) to expand the scope of those circumstances when the DSU must provide referrals to other programs and service providers for individuals who choose not to pursue an employment outcome under the VR program. Similarly, we propose to amend current (d) to expand the requirement for the referral of individuals found ineligible for VR services or determined ineligible subsequent to the receipt of services to also include appropriate State, Federal, and local programs, and community service providers better suited to meet their needs. Reasons: The proposed changes are necessary, in part, to implement statutory changes to the definition of employment outcome that include reference to customized employment. See the discussion of customized employment earlier in this preamble for further information regarding this type of employment outcome. The proposed change that would limit the scope of employment outcomes under the VR program to competitive integrated employment or supported employment is necessary to implement the heightened emphasis of the Act on the achievement of competitive integrated employment. The Act, as amended by WIOA, makes clear from the stated purpose of the Act, the addition of new requirements governing the development of individualized plans for employment and the transition of students and youth from school to post-school activities, and new limitations on the payment of subminimum wages that individuals with disabilities, particularly those with significant disabilities, are able to achieve the same high-quality jobs in the competitive integrated labor market as persons without disabilities if they are provided appropriate services and supports. The amendments made by WIOA are consistent with and further other changes made over the past four decades, with each reauthorization, that have placed increasing emphasis on the achievement of competitive employment in an integrated setting through the VR program. See the discussion regarding competitive integrated employment earlier in this preamble. It is in this context that we propose to amend the definition of employment outcome, for purposes of the VR program, to include only those outcomes that meet the requirements of competitive integrated employment (including customized employment, self-employment, telecommuting or business ownership), or supported employment, thereby eliminating from the scope of the definition, under the VR program, uncompensated outcomes, such as homemakers and unpaid family workers. We believe this proposed change is consistent with the statutory definition of employment outcome in section 7(11) of the Act, as well as the pervasive emphasis in the Act on the achievement of competitive integrated employment by individuals with disabilities, including those with the most significant disabilities. Given this emphasis, we believe the proposed change, not to include, within the scope of employment outcomes, uncompensated outcomes, such as homemakers and unpaid family workers, is consistent with the provisions of the Act. We believe the proposed changes to the definition, while essential to fulfilling the expectation in the Act that individuals with disabilities, particularly individuals with significant disabilities, are capable of pursuing competitive integrated employment, should not cause significant difficulty for most State VR units in their administration of the VR program. Nationally, only a relatively small number of individuals currently exit the VR program as homemakers or unpaid VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 family workers. Over the past 35 years the percentage of such outcomes has steadily and significantly decreased. For example, in FY 1980 homemaker outcomes as a percentage of all employment outcomes reported nationally to the Department by VR agencies through the VR program Case Service Report for the years FY 1980 through FY 2013 approximated 15 percent. This percentage dropped to 5.2 percent in FY 1999, and to 3.4 percent in FY By FY 2013, the most recent year for which data is available, this percentage had declined to 1.9 percent. There has been a similar decline in reported unpaid family workers. According to data reported by VR agencies through the VR program Case Service Report, in FY 2000, 642 individuals were reported in the category of unpaid family worker. By FY 2013, the most recent year for which we have data, only 135 individuals were reported to have obtained an unpaid family worker outcome. National data indicates that approximately 0.2 percent or less of all the outcomes reported annually by DSUs are unpaid family worker outcomes. While we recognize that some VR agencies have a greater percentage of homemaker and unpaid family worker outcomes than others, particularly those agencies serving individuals who are blind and visually impaired, it is also evident that the majority of DSUs have been placing increased importance and emphasis on competitive employment outcomes, in their policies and procedures, as the optimal employment outcome and deemphasizing uncompensated outcomes. This shift in practice has been the product of the DSUs responding to the intent of the Act and translating that intent into their administration of the VR program. Nevertheless, we recognize that this proposed change could represent a significant shift in practice for a few VR agencies, particularly those with high percentages of individuals achieving employment outcomes as homemakers or unpaid family workers. These agencies may be providing services to assist individuals to obtain homemaker and unpaid family worker outcomes at the time the final regulations become effective. To allow these agencies to complete the VR process for these individuals, we are considering a transition period of six months following the effective date of the final regulations for the implementation of this proposed change. We are interested in receiving comments about providing such a transition period. Since FY 2004, through monitoring of the VR program, we have reviewed the
11 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules attainment of homemaker outcomes and have found that VR agencies sometimes assist individuals to exit the program as homemakers to provide an alternate resource for the provision of independent living services that are otherwise available from the State Independent Living Services, Centers for Independent Living, and Independent Living Services for Older Individuals Who Are Blind programs. To ensure that individuals who choose to pursue homemaker and unpaid family worker outcomes, or who are determined ineligible for VR services either at the time of application or following the provision of services, are able to access independent living and other rehabilitation services, we propose to expand the scope of (b) and (d) so that these circumstances would be among those when DSUs must refer these individuals to public and private agencies better suited to meet their needs. These current regulatory provisions are limited to those individuals who choose to pursue extended employment, which does not constitute an employment outcome under the VR program. As proposed, (b) and (d) would be more broad, thus encompassing those individuals who choose to pursue uncompensated employment, such as homemakers and unpaid family workers, as well as those who choose to pursue extended employment. The resources available through the independent living programs have expanded exponentially since FY Specifically, the number of Part C- funded centers for independent living has tripled since FY 1993, from 120 to 356 presently, including 20 new centers for independent living established in FY 2010 through funding under the American Recovery and Reinvestment Act of In addition, funding for the Independent Living Services for Older Individuals Who Are Blind program has increased since FY 1992, from $6,500,000 to approximately $33,000,000 in FY While we recognize that this proposed change would place the responsibility for making these referrals on DSUs, we believe that any burden associated with these requirements is outweighed by the benefit that individuals with disabilities would gain by having access to programs and services that can more appropriately meet their individualized needs. Extended Services Statute: Section 604(b) of the Act, as amended by WIOA, permits the expenditure of supported employment funds authorized under title VI, and the VR funds authorized under title I, on the provision of extended services to youth with the most significant disabilities for a period not to exceed four years. Current Regulation: Current 361.5(b)(20) defines extended services, but does not mention that these services may be provided to youth with the most significant disabilities since this is a new statutory requirement. amend the definition in 361.5(c)(19), as redesignated by other changes made in this part, to make clear that extended services may be provided to youth with the most significant disabilities for a period not to exceed four years. The changes proposed herein are consistent with those proposed for the Supported Employment program in part 363. Reasons: The revisions are necessary to implement statutory changes to the Supported Employment program made by WIOA that also relate to the VR program since VR funds may be used to pay for allowable supported employment services. These proposed changes are consistent with those proposed in part 363 and discussed in more detail later in this NPRM. Indian; American Indian; Indian American and Indian Tribe Statute: Section 7(19) of the Act, as amended by WIOA, revises the definition of Indian, American Indian, Indian American, and Indian tribe to further clarify those terms. Current Regulations: Current 361.5(b)(3) defines American Indian to mean an individual who is a member of an Indian tribe. Current 361.5(b)(26) defines Indian tribe to mean any Federal or State Indian tribe, band, rancheria, pueblo, colony, or community, including any Alaskan native village or regional village corporation (as defined in or established pursuant to the Alaska Native Claims Settlement Act). combine the definitions of American Indian and Indian tribe currently in 361.5(b)(3) and (b)(26), respectively, to be consistent with the definition in section 7(19) of the Act, as amended by WIOA. To that end, the proposed definition in 361.5(c)(25) would make clear that the term American Indian includes a Native and a descendant of a Native, as defined in the Alaska Native Claims Settlement Act (43 U.S.C. 1602), and expands the term Indian tribe to include a tribal organization, as defined in the Indian Self-Determination and Education Assistance Act (25 U.S.C. 450(b)(1)). VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 Reasons: These changes are necessary to implement the revised statutory definition in section 7(19) of the Act. These changes also are necessary to ensure consistency with changes proposed to part 371, implementing the American Indian Vocational Rehabilitation Services program, contained in a separate, but related, NPRM published elsewhere in this issue of the Federal Register. Local Workforce Development Board and Other Workforce Development Terms Statute: Sections 7(25), 7(35), and 7(36) of the Act, as amended by WIOA, define the terms Local workforce development board, State workforce development board, and Statewide workforce development system, respectively. Current Regulations: Current 361.5(b)(34), (b)(49), and (b)(50) define Local workforce investment board, State workforce investment board, and Statewide workforce investment system, respectively. amend part 361 throughout, including the definitions for Local workforce development board in 361.5(c)(33), State workforce development board in 361.5(c)(49), and Statewide workforce development system in 361.5(c)(50), to substitute the word development for investment wherever those terms appear. Reasons: These changes are necessary to implement revised terms used throughout WIOA. The amendments are technical in nature and do not represent a substantive change to the definitions themselves. Supported Employment Statute: Section 7(38) of the Act, as amended by WIOA, revises the definition of supported employment to, among other things, reference competitive integrated employment and customized employment, and requires that an individual who is employed in an integrated setting, but not in competitive integrated employment, must be working toward such an outcome on a short-term basis for such work to qualify as supported employment. Current Regulation: Current 361.5(b)(53) defines supported employment as the term was defined prior to the enactment of WIOA. There is no reference to competitive integrated employment or customized employment since these are new statutory requirements. Proposed Regulation: We propose to amend the definition in 361.5(c)(53),
12 21070 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules as redesignated by other changes made in this part, to require that supported employment means competitive integrated employment, including customized employment, or employment in an integrated setting in which the individual is working on a short-term basis toward competitive integrated employment. We also propose, in this context, that an individual be considered to be working on a short-term basis toward competitive integrated employment if the individual reasonably expects achieving a competitive integrated employment outcome within six months of achieving an employment outcome of supported employment. These proposed changes are consistent with those proposed in part 363 for the Supported Employment program, discussed later in this NPRM. Reasons: The revisions are necessary to implement the new statutory definition in section 7(38) of the Act, as amended by WIOA, which reflects the heightened emphasis on the achievement of competitive integrated employment. We also propose to include a definition of short-term basis, in the context of supported employment, to give meaning to the phrase and ensure congressional intent. By limiting the timeframe, we ensure that individuals do not remain in subminimum wage employment for the purpose of achieving supported employment outcomes. The proposed changes also ensure consistency with the amendments proposed in part 363, implementing the Supported Employment program, discussed later in this NPRM. Supported Employment Services Statute: Section 7(39) of the Act, as amended by WIOA, revises the definition of supported employment services to extend the allowable timeframe for the provision of these services from 18 months to 24 months. The statute also makes other technical changes to the definition. Current Regulation: Current 361.5(b)(54) defines supported employment services to include a timeframe of 18 months. revise the definition in 361.5(c)(54), as redesignated due to other changes made in this part, to extend the allowable timeframe for the delivery of these services from 18 months to 24 months. We also propose to make changes that clarify the individualized and customized nature of supported employment services. Reasons: The revisions are necessary to implement the new definition of supported employment services in section 7(39) of the Act, as amended by WIOA. Most importantly, the proposed definition extends the allowable timeframe for the provision of supported employment services from 18 to 24 months. The proposed changes also ensure consistency with revisions proposed in part 363, implementing the Supported Employment program, discussed later in this NPRM. Submission, Approval, and Disapproval of the State Plan ( ) Statute: Section 101(a)(1) of the Act, as amended by WIOA, requires that, a vocational rehabilitation services portion be included in a State s Unified State Plan in accordance with section 102, or a Combined State Plan in accordance with section 103, of WIOA. The vocational rehabilitation services portion must contain all State plan requirements under section 101(a) of the Act. Section 101(b) of the Act, as amended by WIOA, makes conforming changes with regard to the submission, approval, and modification process for the VR services portion of the Unified or Combined State Plan. Current Regulations: Current includes requirements for the submission and approval process for the VR State plan. Although current (c) permits States to submit the VR State plan as part of the Unified State Plan, there is no requirement to do so. Proposed Regulations: First, we propose to amend current (a) to require the State to submit a VR services portion of a Unified or Combined State Plan in accordance with sections 102 or 103, respectively, of WIOA to be eligible to receive its VR allotment. Second, we propose to clarify that the VR services portion of the Unified or Combined State Plan includes all information required under section 101(a) of the Act. Third, we propose to amend (d) by providing a crossreference to subpart D of part 361, which is reserved for the joint regulations implementing requirements for the Unified and Combined State Plan proposed jointly by the Departments of Education and Labor. The proposed joint regulations that would implement jointly-administered activities under title I of WIOA are published elsewhere in this issue of the Federal Register. We also propose to remove current paragraph (e) and redesignate current paragraph (f)(3) as paragraph (e), and we propose to remove the remainder of VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 current paragraph (f) and current paragraph (g). We propose to redesignate current paragraph (h) as paragraph (f) and rename it Due Process. Finally, we propose to make other conforming changes throughout Reasons: The proposed revisions to are necessary to: (1) Implement the VR-specific amendments to sections 101(a)(1) and (b) of the Act made by WIOA; and (2) align VR-specific requirements with those contained in the joint regulations, developed by the Departments of Education and Labor, regarding the submission, approval, and modification of Unified or Combined State Plans. Taken together, these statutory amendments and proposed regulatory changes recognize that the VR services portion of the Unified or Combined State Plan is to be an integral part of the Unified or Combined State Plan, and provide the foundation for the seamless, effective, and efficient delivery of services through the collaboration and combined funding, to the extent allowable under relevant program requirements, of the workforce development system that will enable individuals with disabilities to obtain the skills necessary to participate in the high-demand jobs of today s economy. To further the integrated nature of the VR services portion of the Unified or Combined State Plan, we request that comments to proposed revisions to be limited to VR-specific requirements and that more general comments about the Unified or Combined State Plan be submitted in response to the proposed joint regulations published elsewhere in this issue of this Federal Register. Requirements for a State Rehabilitation Council ( ) Statute: Section 105(b)(1) of the Act, as amended by WIOA, makes a technical amendment to the composition requirement of the State Rehabilitation Council (SRC) related to section 121 projects. WIOA also amends section 105(b)(6) by requiring the SRC to include programs authorized under the Assistive Technology Act of 1998 among those agencies and organizations with which it must coordinate. Current Regulations: Current (b)(1)(ix) requires that, in a State with projects carried out under section 121 of the Act, a representative of the directors of these projects must serve on the SRC, but it does not use the new statutory term funded in place of carried out. Current (h)(6) requires the SRC to collaborate with various other entities, but does not
13 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules include programs authorized under the Assistive Technology Act of 1998 since this is a new statutory requirement. Current (h)(3) also requires the SRC to partner with the VR agency in establishing State goals and priorities and to assist in the preparation of the State plan. amend current (b)(1)(ix) to substitute funded for carried out in the State to mirror the statute. Additionally, we propose to amend current (h)(6) to include programs established under the Assistive Technology Act of 1998 in the list of entities with which the SRC must coordinate its activities. Finally, we propose to clarify in (h)(3) that the SRC is only required to assist in the preparation of the VR services portion of the Unified or Combined State Plan, not the entire Unified or Combined State Plan. Reasons: The proposed changes are necessary to implement statutory amendments to section 105 of the Act made by WIOA. We believe the proposed change in (b)(1)(ix) is more technical than substantive in the context of the American Indian Vocational Rehabilitation Services program. Unlike most programs in which funds are awarded to a State or an entity in a State, the Department awards section 121 grant funds to tribes, whose reservations may cross State lines. In that context, the distinctions between funded, as used in WIOA, and carried out, as had been used previously, provides no substantive differences in practical meaning. For that reason, we believe this proposed change is primarily technical in nature. The proposed inclusion in (h)(6) of the programs authorized under the Assistive Technology Act of 1998 among the entities with which the SRC must coordinate its activities would underscore the integral role that assistive technology plays in the ability of individuals with disabilities to obtain and maintain employment. Through the coordination of SRC and assistive technology program activities, SRC members would be better informed of the resources and services available in the State for the provision of assistive technology devices and training, enabling the members to more effectively advise the DSU in the State. Finally, as discussed in proposed , title I of WIOA requires the VR program in each State to participate in a Unified or Combined State Plan with the other core programs or partner programs within the workforce development system. By replacing the term State plan with the vocational rehabilitation services portion of the Unified or Combined State Plan, we believe that members of the SRC would be responsible only for participating in the development of the goals and strategies contained in, and providing input on, the VR services portion of the Unified or Combined State Plan in accordance with the mandated activities of the SRC as set forth in proposed (h). Comprehensive System of Personnel Development ( ) Statute: Section 101(a)(7) of the Act, as amended by WIOA, makes several changes to the comprehensive system of personnel development (CSPD) that each DSU must establish to ensure its personnel are adequately trained. In particular, the amendments add specific educational and experiential criteria that must be met by VR personnel. The statute also makes other technical changes throughout this section. Current Regulations: Current requires a DSU to establish a CSPD that is based on either a national or State licensing or certification standard. Current regulations do not specify specific educational or experiential criteria since these are new statutory requirements. revise (c)(1)(ii) to mirror the statute with regard to education and experience requirements for VR personnel. Accordingly, we would ensure that personnel have a 21stcentury understanding of the evolving labor force and needs of individuals with disabilities. In addition, we propose to add a new (c)(2)(ii) in which we would describe what we mean by personnel having a 21stcentury understanding of the evolving labor force and needs of individuals with disabilities. We would provide examples of the skills that would demonstrate that personnel hired are appropriately qualified. Further, we propose to amend (d)(1)(i) to require that the CSPD include training implemented in coordination with entities carrying out State programs under section 4 of the Assistive Technology Act of Finally, we propose to delete those provisions that are no longer applicable given statutory changes, such as those related to steps the State will take when personnel do not meet the highest standard in a State. Reasons: The proposed changes are necessary to implement statutory changes made by WIOA. The changes we propose in (c)(1)(ii) would ensure that DSU staff are well-qualified VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 to assist individuals with disabilities to achieve competitive integrated employment in today s demanding labor market. The proposed regulations would describe education and experience, as applicable, requirements at the bachelor s, master s, and doctoral level, in fields related to rehabilitation that prepare the individual to work with individuals with disabilities and employers. For individuals hired at the bachelor s level, there also would be a requirement for at least one year of paid or unpaid experience. These proposed CSPD requirements would further the heightened emphasis throughout the Act on employer engagement and affording individuals with disabilities every opportunity to achieve competitive integrated employment. In order to further clarify what types of skills we intend for personnel to demonstrate, we propose some illustrative examples in (c)(2)(ii), which are by no means all-inclusive but which are typically required of rehabilitation professionals hired by the DSU. Finally, in proposing to amend current (d)(1)(i) to require that the CSPD include training implemented in coordination with entities carrying out State programs under section 4 of the Assistive Technology Act of 1998, we are reflecting a new statutory requirement that is consistent with the emphasis on coordination throughout the Act. Public Participation Requirements ( ) Statute: Section 101(a)(16)(A) of the Act requires that the State plan provide that the designated State agency, prior to the adoption or amendment of any policies or procedures governing the provision of VR services under the State plan, must conduct public meetings throughout the State to provide the public, including individuals with disabilities, an opportunity to comment on the policies or procedures, and actively consult with agencies and organizations involved in the vocational rehabilitation of individuals with disabilities. This requirement remains unchanged by WIOA. Current Regulations: Current implements section 101(a)(16)(A) of the Act. clarify that the public participation requirements under current pertain to the VR services portion of the Unified or Combined State Plan. We also propose to add paragraphs (a)(1) and (a)(2) to clarify through descriptive examples the distinction between substantive changes that would require the designated State agency to conduct
14 21072 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules a public hearing, and administrative changes for which a public hearing need not be conducted. All other requirements for public participation as described in current (b) through (e), to the extent they are consistent with public participation requirements proposed in the joint regulations, remain unchanged in the proposed regulations, except for technical modifications to the language required by WIOA. Public participation requirements related to Unified or Combined State Plans generally are addressed through the NPRM jointly published by the Departments of Labor and Education elsewhere in this issue of the Federal Register. Reasons: These proposed changes to current are necessary to reflect statutory changes that require what previously was a stand-alone VR State plan to be submitted as a VR services State Plan under WIOA. Additionally, by clarifying what is meant by a substantive change that is, a change that would have a direct impact on the nature and scope of the VR services provided to individuals with disabilities or the manner in which these individuals interact with the State VR program, as opposed to a change that is purely administrative or technical in nature State VR agencies would better understand when they must conduct a public hearing, specific to the VR program. The ability to provide comments and input at public hearings is an important mechanism for strengthening the voice of community stakeholders and ensuring that any changes to the implementation of the VR services portion of the Unified or Combined State Plan reflect concerns and interests of those whom the program serves. Requirements Related to the Statewide Workforce Development System ( ) Statute: Section 121(b)(1)(B)(iv) of WIOA includes the VR program as a core partner of the workforce development system. Current Regulations: Current outlines a VR program s roles and responsibilities in the workforce investment system, as required under WIA. amend current (a) by crossreferencing to subpart F of part 361. We also propose to remove the remainder of this section because the substance of these requirements is contained in joint regulations developed by the Departments of Education and Labor. Reasons: The changes are necessary to implement amendments to title I of WIOA and ensure consistency with joint regulations proposed by the Departments of Education and Labor, which are published elsewhere in this issue of the Federal Register. We ask that you submit any comments regarding the VR program s role in the one-stop delivery system in conjunction with related provisions contained in the joint proposed regulations, rather than in connection with this particular section of the proposed VR programspecific regulations. Cooperation and Coordination With Other Entities ( ) Statute: WIOA amends section 101(a)(11) of the Act by expanding the scope of entities with which the DSU must collaborate and coordinate its activities under the VR program. The new entities include, among others, employers, non-educational agencies serving out-of-school youth, programs authorized under the Assistive Technology Act of 1998, the State agency administering the State Medicaid plan, the agency responsible for serving individuals with intellectual and/or developmental disabilities, agencies responsible for providing mental health services, and other agencies serving as employment networks under the Ticket to Work and Self-Sufficiency program. Current Regulations: Current requires that the State plan include assurances and descriptions, as applicable, of the DSU s interagency cooperation with various entities, but does not include the new entities required by the WIOA amendments since these are new statutory requirements. amend to include the additional agencies and entities with which the DSU must coordinate its activities under the VR program, as required by section 101(a)(11) of the Act, as amended by WIOA. Reasons: The proposed changes are necessary to implement new statutory requirements regarding the DSU s coordination with other entities. The changes are designed to ensure DSU collaboration and coordination with employers and State and Federal agencies to increase access by individuals with disabilities, especially youth and individuals with the most significant disabilities, to services and supports to assist them in achieving competitive integrated employment. VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 Third-Party Cooperative Arrangement Requirements ( ) Statute: None. Current Regulations: Current includes requirements related to thirdparty cooperative arrangements, a mechanism by which a DSU may work with another public agency to provide VR services. amend (a) by removing the words administering and furnishing and providing more accurate descriptions of the cooperating agency s responsibilities. Proposed (a) also would clarify that the non-federal share provided by the cooperating agency must be consistent with the requirements in proposed (c). Proposed (a)(4) and (b) change references to cooperative programs and cooperative agreements to cooperative arrangements to make the language consistent throughout this section. We propose to insert a new paragraph (c) to clarify the manner in which other public agencies may contribute toward the non-federal share under a third-party cooperative arrangement. Reasons: With the exception of (c), the changes to this section are editorial and the minor clarifications would ensure consistent language and interpretation. Proposed (c) would list the manner in which a State agency or a local public agency could provide part or all of the non-federal share under a third-party cooperative arrangement. Under the proposed (c) the DSU could utilize cash transfers or certified personnel expenditures for the time cooperating agency staff spent providing direct VR services pursuant to a third-party cooperative arrangement to meet part or all of the non-federal share. Given the prohibition in (b)(2) against using third-party in-kind contributions for match purposes under the VR program, we have not included certified expenditures for equipment and supplies as an allowable source of match under the VR program. In so doing, we avoid potential third-party inkind contributions that could arise with such certified expenditures. Statewide Assessment; Estimates; State Goals and Priorities; Strategies; and Progress Reports ( ) Statute: Section 101(a)(15) of the Act, as amended by WIOA, makes several technical and conforming changes, as well as expands the scope of estimates that the DSUs must report and the areas of focus the States must consider in
15 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules conducting their triennial needs assessment. Section 101(a)(23) requires DSUs to assure that the State will submit to the Secretary reports required by section 101(a)(15) at such time and in such manner as the Secretary may determine to be appropriate. This statutory requirement remains unchanged by WIOA. Current Regulations: Current implements the requirements of section 101(a)(15) of the Act, but does not include the new statutory requirements. The current regulations also require that the State submit reports regarding goals, strategies, and estimates annually. amend current by requiring that reports and updates related to assessment, estimates, goals and priorities, and reports of progress, be submitted to the Secretary, in such time and such manner as determined by the Secretary, rather than annually. We also propose to amend the regulations to require DSUs to report estimates of the number of individuals not receiving services because of the implementation of an order of selection. We also propose to make several technical and conforming changes throughout. See related discussion of this section in the context of transition services later in this NPRM, for proposed changes related to students and youth in transition. Reasons: The proposed changes are necessary, in part, to implement the statutory amendments to section 101(a)(15) of the Act made by WIOA. The proposed changes also would ensure consistency in the reporting requirements imposed throughout section 101(a) of the Act, as well as in title I of WIOA since the VR State plan will be incorporated into the State s Unified or Combined State Plan as a portion of that plan. To date, we have collected the required information through the annual submission of the VR State plan (now known as the VR services portion of the Unified or Combined State Plan), rather than through the submission of separate reports. Because the VR services portion will be submitted with all other components of the Unified or Combined State Plan every four years with modifications submitted every two years, there would be no vehicle for the submission of these annual reports without imposing additional reporting requirements on the State separate from the State plan. By permitting the submission of the required information at a time and in a manner determined by the Secretary, rather than annually, the Secretary exercises the statutory flexibility to establish reporting requirements consistent with those for the VR services State Plan under section 101(a)(1) of the Act, as amended by WIOA, and section 102(c) of WIOA, and avoid any additional burden that would be imposed on DSUs through the submission of separate reports. Provision of Training and Services for Employers ( ) Statute: Section 109 of the Act, as amended by WIOA, expands the types of training, technical assistance, and other services DSUs may provide under the VR program, to employers, who have hired or are interested in hiring individuals with disabilities. In addition, WIOA repealed the Projects with Industry program, previously authorized at title VI, part A of the Act. Current Regulations: Current implements requirements regarding coordination between the VR program and the Projects with Industry program. There are no current regulations that implement section 109 of the Act. amend in its entirety by eliminating all requirements related to the Projects with Industry program since those requirements are no longer applicable. In its place, we propose to implement requirements regarding the types of activities DSUs may engage in with employers, pursuant to section 109 of the Act. Reasons: The changes are necessary to implement new statutory requirements in section 109 of the Act, as amended by WIOA, as well as remove requirements that are no longer applicable to the VR program due to the repeal of the Projects with Industry program. Section 109 of the Act, as amended by WIOA, authorizes the DSU to expend VR funds for training and services for employers who are interested in hiring individuals with disabilities, thereby assisting those individuals in achieving competitive integrated employment. This training could assist employers in providing opportunities for work-based learning experiences; training employees who are individuals with disabilities; and promoting awareness of disabilityrelated obstacles to continued employment. The amendments made throughout WIOA place heightened emphasis on the collaboration between DSUs and employers to improve and maximize opportunities for individuals with disabilities, including those with the most significant disabilities, to achieve competitive integrated employment. VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 Innovation and Expansion Activities ( ) Statute: Section 101(a)(18) of the Act sets forth requirements regarding innovation and expansion activities for DSUs. This statutory provision remains unchanged by WIOA. Current Regulations: Current requires the State plan to assure that the State will reserve and use a portion of its VR funds to support, among other things, the resource plans for the State Rehabilitation Council and the Statewide Independent Living Council. Proposed Regulations: Proposed would clarify that the State must reserve a portion of its VR program funds to support the resource plan for the Statewide Independent Living Council, but it may choose not to use these funds if the Statewide Independent Living Council and the State decide to use other available resources to fund the resource plan for the Statewide Independent Living Council. Reasons: This proposed change is consistent with the Department s longstanding interpretation of section 101(a)(18) of the Act and current In the case of the State Rehabilitation Council, there is no other funding source available under the Act to support its resource plan. The funds for the State Rehabilitation Council must come from this section. On the other hand, the Statewide Independent Living Council has multiple funding sources that may be used to support the resource plan, including independent living funds under title VII, part B, of the Act; State-appropriated independent living funds; and other public and private sources, to the extent allowable by those sources. Therefore, our interpretation of the requirement has been that the State and the Statewide Independent Living Council may decide in the resource plan of the Statewide Independent Living Council to use funds under this section, but do not have to use these funds. They can use other sources of available funding to fund the Statewide Independent Living Council resource plan. This interpretation would have minimal impact on States since not all States use innovation and expansion funds to support the resource plan of the Statewide Independent Living Council. Ability To Serve All Eligible Individuals; Order of Selection for Services ( ) Statute: Section 101(a)(5) of the Act, as amended by WIOA, permits DSUs to serve eligible individuals who require specific services or equipment to maintain employment, regardless of
16 21074 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules whether they are currently receiving VR services. The DSUs may serve these individuals regardless of any order of selection the State has established. Current Regulations: Although current (a)(3) sets forth criteria a State must follow in establishing an order of selection, there is no mention of this particular discretionary exemption because this is a new statutory requirement. amend current (a)(3) by adding a new paragraph (v) that would require DSUs implementing an order of selection to indicate in the VR services State Plan if they have elected to serve eligible individuals in need of specific services or equipment for the purpose of maintaining employment, regardless of their assignment to a priority category in the State s order of selection. Reasons: This change is necessary to implement the amendments to the Act. Prior to the enactment of WIOA, DSUs who were on an order of selection were not permitted to serve eligible individuals who did not meet the criteria of that order, which was designed to ensure that individuals with the most significant disabilities received a priority for services when resources were limited. Section 101(a)(5) of the Act, as amended by WIOA, allows greater flexibility by permitting DSUs to serve eligible individuals, regardless of any order of selection that has been established by the State, if those individuals require specific services or equipment to maintain employment (e.g., because the individual s disability has progressed or the individual s job duties have changed). This statutory change, as well as the proposed regulatory change, is significant because, in effect, it creates an exemption from order of selection for eligible individuals who need a specific service or equipment in order to maintain employment. Prior to the passage of WIOA, these individuals would have been placed in the order, depending on the severity of their disability, which could have resulted in a placement on a waiting list. With the proposed regulatory change, DSUs may, at their discretion, elect to serve these individuals outside of the order of selection criteria that are otherwise in place in order to serve these individuals who could be at risk of losing employment if such services or equipment is not received. In this way, DSUs could assist these individuals, including those with significant disabilities, to maintain economic selfsufficiency, thereby reducing their potential need for publicly-funded services or benefits. We want to make four points clear. First, proposed (a)(3)(v) is discretionary. DSUs would have the ability to serve these individuals outside of the established order and should consider doing so if financial and staff resources are sufficient. Second, if a DSU elects to do so, it must, in accordance with proposed (a)(3)(v), its plans in the VR services portion of the Unified or Combined State Plan before implementing this authority. Third, the services and equipment provided under this authority must be consistent with an individual s individualized plan for employment, in the same manner as any other service or equipment provided under the VR program. Finally, proposed (a)(3)(v) would apply to those specific services or equipment that the individual needs to maintain employment, not to other services the individual may need for other purposes. Reports; Evaluation Standards and Performance Indicators ( ) Statute: Section 101(a)(10)(C) of the Act, as amended by WIOA, expands the data that DSUs must report to include data about: Students with disabilities who are receiving pre-employment transition services; individuals with open service records and the types of services they are receiving; individuals referred to the VR program by one-stop operators; and individuals referred to these one-stop operators by DSUs. In addition, section 106 of the Act, as amended by WIOA, requires the VR program to be subject to the common performance accountability measures, established in section 116 of WIOA, applicable to core programs of the workforce development system. Current Regulations: Current addresses the data that a DSU must report, but does not include the new data elements since these are new statutory requirements. Current through implement current evaluation standards and performance indicators applicable to the VR program. These standards and indicators do not incorporate the common performance measures since these are new statutory requirements. reorganize current into two paragraphs. Proposed paragraph (a) would retain all existing provisions in current , as well as incorporate requirements regarding new VR-specific data related to individuals with open service records and the types of services they are receiving; students with disabilities receiving pre-employment VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 transition services; and individuals referred to the State VR program by onestop operators and those referred to these one-stop operators by the State VR program. In proposed paragraph (b), we provide a cross-reference to subpart E of this part, which will include the joint regulations implementing common performance measures. In so doing, we also propose to remove current through , as the current standards and indicators are no longer applicable to the VR program. Reasons: The proposed changes to current are necessary to implement amendments to the Act made by WIOA. Specifically, we include VR-specific data regarding, among others, individuals with open service records and the types of services they are receiving, as well as students with disabilities who are receiving preemployment transition services, to ensure that the Secretary has the information needed to assess the performance of the VR program. It is significant to note that the VR program will no longer be subject to its own set of performance standards and indicators established by the Department. Section 106 of the Act requires that the VR program comply with the common performance accountability measures established under section 116 of WIOA, which apply to all core programs of the workforce development system. To that end, the Departments of Labor and Education have developed proposed joint regulations to implement these requirements. The proposed joint regulations regarding the performance accountability system, which will be incorporated in subpart E of this part, will be presented in a separate NPRM published elsewhere in this issue of the Federal Register. Given this significant statutory change in section 106 of the Act, we have determined that most of the provisions we had in current through are no longer applicable and, therefore, we propose to remove them. We ask that you provide only comments specific to the VR program with respect to this section. Any comments regarding the common performance measures or data requirement, applicable to all core programs, should be provided in connection with the relevant provisions of the joint proposed regulations. Assessment for Determining Eligibility and Priority for Services ( ) Eligibility Criteria Statute: Section 102(a)(1) of the Act, as amended by WIOA, makes clear that
17 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules an individual with a disability, whose physical or mental impairment constitutes a substantial impediment to employment, may be determined eligible for VR services if he or she requires services to advance in employment. Current Regulations: Current (a)(1)(iii) specifies that the applicant may be determined eligible if he or she meets all other eligibility criteria and requires VR services to prepare for, secure, retain, or regain employment. Current regulations do not reference advancing in employment since this is a new statutory requirement. amend current (a)(1)(iii) to clarify that an applicant, who meets all other eligibility criteria, may be determined eligible if he or she requires VR services to advance in employment. We also propose to clarify in current (c)(2) that a DSU must not consider an applicant s employment history, current employment status, level of education or educational credentials when determining eligibility for services. Reasons: The proposed changes are necessary, in part, to implement statutory amendments to section 102(a)(1) of the Act made by WIOA. The proposed changes also would ensure that individuals with disabilities are able to obtain through the VR program the skills necessary to engage in the high demand jobs available in today s economy. It has been the Department s long-standing policy that the VR program is not intended solely to place individuals with disabilities in entrylevel jobs, but rather to assist them to obtain employment that is appropriate given their unique strengths, resources, priorities, concerns, abilities, capabilities, and informed choice. The extent to which DSUs should assist eligible individuals to advance in their careers through the provision of VR services depends upon whether the individual has achieved employment that is consistent with this standard. Furthermore, the proposed additional factors that a DSU must not consider when determining an applicant s eligibility for VR services in proposed (c)(2) would be consistent with longstanding policy. By specifically proposing the additional factors related to employment and education history in the regulation, we reinforce the requirement in section 102(a)(1)(iii) of the Act and proposed (a)(1)(iii). Residency Statute: Section 101(a)(12) of the Act requires that the State plan will include an assurance that the State will not impose a residence requirement that excludes from services provided under the plan any individual who is present in the State. This provision remains unchanged by WIOA. Current Regulations: Current (c)(1) requires that the State plan must assure that the State unit will not impose, as part of determining an applicant s eligibility for VR services, a duration of residence requirement that excludes from services any applicant who is present in the State. amend current (c)(1) to clarify that a DSU must not require the applicant to demonstrate a presence in the State by the production of documentation that would, under State or local law, or practical circumstances, result in a duration of residency. Reasons: The proposed clarification in (c)(1) is consistent with our long-standing interpretation of this statutory requirement, as expressed in monitoring reports and other guidance. Many State VR agencies require individuals applying for VR services to provide documents that substantiate that the individual is present in the State and, hence, available to participate in the eligibility determination process and to receive VR services. Some forms of documentation, however, such as a driver s license or voter registration card, may require a significant amount of time to obtain. Moreover, States or local jurisdictions may impose durational requirements prior to the issuance of some forms of documentation or identification. By proposing these changes, we would clarify that the requirement of such forms of documentation to demonstrate presence in the State constitutes a de facto duration requirement, which is prohibited by the Act. Although documents that take time to obtain may be accepted as proof of an applicant s presence in the State if available at the time of application, the DSU must permit the use of other documentation that includes sufficient information to demonstrate presence in the State, such as documentation that includes a residential address in the State. Extended Evaluation Statute: WIOA amends section 102(a)(2)(B) of the Act by removing the limited exception to trial work experiences, whereby VR agencies made extended evaluations available to applicants, prior to determining that an individual is unable to benefit from VR services due to the severity of the individual s disability and, thus, is ineligible for VR services. Although the VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 term extended evaluation was not referenced in the Act, this is the term used in current regulation to describe the process by which the DSUs assess an individual s ability to benefit from VR services due to the severity of disability, when the individual, under limited circumstances, is unable to participate in trial work experiences. Current Regulations: Current (f) permits, in limited circumstances, the provision of extended evaluations to individuals with disabilities who cannot take advantage of trial work experiences, or for whom trial work experiences have been exhausted. Current (b)(1)(ii) permits the exploration of an individual s abilities, capabilities, and capacity to perform in work situations in accordance with (e) or, if appropriate, an extended evaluation in accordance with (f). remove paragraph (f) from current and redesignate (g) as (f). Proposed (b)(1)(ii) would remove reference to extended evaluation and only permit an exploration of the individual s abilities, capabilities, and capacity to perform in work situations carried out in accordance with current (e). Reasons: These changes are necessary to implement the amendments to section 102(a)(2)(B) of the Act made by WIOA. The proposed changes also would ensure that before a DSU make an ineligibility determination, it must conduct a full assessment of the capacity of the applicant to perform in realistic work settings, without the exception of extended evaluations. Development of the Individualized Plan for Employment ( ) Timeframe for Completing the Individualized Plan for Employment Statute: Section 102(b)(3)(F) of the Act, as amended by WIOA, mandates that the individualized plan for employment be developed as soon as possible but no later than 90 days after the date of determination of eligibility, unless the DSU and the eligible individual agree to an extension of that timeframe. Current Regulations: Current (e) requires the DSU to establish and implement standards for the prompt development of individualized plans for employment for eligible individuals; however, the 90-day timeframe is not included because this is a new statutory requirement. amend current (e) to require
18 21076 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules that the DSU develop the individualized plan for employment for each eligible individual as soon as possible, but no later than 90 days following determination of eligibility, unless the DSU and the individual agree to a specific extension of that timeframe. Reasons: This change is necessary to implement the statutory requirement made by WIOA that VR agencies develop the individualized plan for employment within 90 days following determination of eligibility. The intent is to move all eligible individuals through the VR process with minimal delay in order to efficiently and effectively serve these individuals, resulting in the achievement of employment outcomes in competitive integrated employment. While the majority of DSUs have already adopted the 90-day timeframe, some DSUs have adopted extended timeframes that impede the efficient and effective movement of individuals through the VR process, therefore, resulting in the delay of services, and ultimately delaying the achievement of employment outcomes. Additionally, some DSUs have established interim steps or plans prior to the development of the individualized plan for employment or have adopted longer timeframes for transition-age youth or other specific populations. The establishment of a 90-day timeframe by WIOA ensures consistency across the VR program nationally and sets the expectation that all eligible individuals receive timely services through an effective and efficient VR program with an outcome of improved VR agency performance and resulting in employment outcomes for individuals with disabilities. Options for Developing the Individualized Plan for Employment Statute: WIOA amends section 102(b)(1)(A) of the Act by clarifying that the DSU must provide eligible individuals with information regarding the availability of assistance in developing all or part of the individualized plan for employment from disability advocacy organizations. In addition, WIOA amends section 102(b) to require a DSU to provide to eligible individuals entitled to Social Security benefits under titles II or XVI of the Social Security Act, general information on additional supports, such as assistance with benefits planning. Current Regulations: Current (c)(1) requires that the DSU provide eligible individuals information regarding the options for developing the individualized plan for employment, but does not reference disability advocacy organizations since this is a new statutory requirement. Current (c)(2) requires the DSU to provide additional information to eligible individuals relevant to the development of the individualized plan for employment, but does not mention benefits planning or other information specific to Social Security beneficiaries with disabilities since this is a new statutory requirement. amend current (c)(1) by requiring a DSU to provide eligible individuals information about the option of requesting assistance from a disability advocacy organization when developing the individualized plan for employment. We also propose to amend current (c)(2) by adding a new paragraph (v) that would require a DSU to provide eligible individuals entitled to Social Security benefits under titles II or XVI of the Social Security Act information on assistance and supports available to individuals desiring to enter the workforce, including benefits planning. Reasons: The proposed changes are necessary to implement the amendments to section 102(b) of the Act made by WIOA. The inclusion of disability advocacy groups as a specific source of assistance, as appropriate, for eligible individuals in the development of the individualized plan for employment supports, and acknowledges the important role that these groups may play in mentoring an eligible individual through the VR process and in designing the plan of services that will successfully lead to an employment outcome. In coordination with the expertise of the qualified rehabilitation counselor, the experience of advocacy groups may lend a perspective and understanding of the disability-related needs, responsibilities, and services that are required to achieve the individual s employment goal. The inclusion of advocacy groups as a resource also recognizes and emphasizes the importance of selfdetermination, empowerment, and selfadvocacy as cornerstones in rehabilitation. By requiring that a DSU provide eligible individuals entitled to Social Security benefits under titles II or XVI of the Social Security Act with information on benefits planning, we intend that the individuals understand the implications of employment for continued receipt of their benefits so that they can make a fully informed choice of an employment goal. VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 Content of the Individualized Plan for Employment ( ) Statute: WIOA amends section 102(b)(4) of the Act to require that the description of the specific employment goal chosen by the eligible individual, required as a mandatory component of the individualized plan for employment, be consistent with the general goal of competitive integrated employment. Current Regulations: Current (a)(1) establishes the content requirements for the individualized plan for employment and requires that the plan include a specific employment goal based upon the unique strengths, resources, priorities, concerns, abilities, capabilities, interests, and informed choice of the eligible individual. The regulation does not contain the new statutory requirement. amend current (a)(1) to require that the vocational goal selected by the individual in accordance with this section be consistent with the general goal of competitive integrated employment. Reasons: The proposed revision to current (a)(1) is necessary to implement the statutory requirements under WIOA, and is consistent with the purpose of the VR program, which is to assist individuals with disabilities, including those with significant disabilities, to prepare for and engage in competitive integrated employment. Transition of Students and Youth With Disabilities The Act, as amended by WIOA, places heightened emphasis on the provision of services to students and youth with disabilities to ensure that they have meaningful opportunities to receive the training and other services they need to achieve employment outcomes in competitive integrated employment. To that end, the Act expands not only the population of students with disabilities who may receive services but also the kinds of services that the VR agencies may provide to youth and students with disabilities who are transitioning from secondary school to postsecondary education and employment. Most notably, section 110(d) of the Act, as amended by WIOA, requires States to reserve 15 percent of their VR allotment to provide pre-employment transition services to students with disabilities who are eligible or potentially eligible for VR services. Section 113 of the Act, as added by WIOA, outlines the services that must be provided with these reserved funds. These services are designed to be an early start at job exploration.
19 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules With the addition of these preemployment transition services, and expansion of services to youth, the VR program can be characterized as providing a continuum of VR services, especially for students and youth with disabilities. Specifically, it can provide pre-employment transition services to any student with a disability who needs these services, regardless of whether the student has applied for or been determined eligible for VR services. In addition, section 103(b) of the Act permits the VR agency to provide transition services to groups of youth with disabilities, regardless of whether they have applied for or been determined eligible for services. If either a student or youth with a disability requires more intensive services, he or she would apply for VR services. Once determined eligible, an individualized plan for employment would be developed, which would outline the specific services that he or she may need in order to achieve an employment outcome. In sum, the VR program provides a range of services, from most basic to the most individualized and intensive service, thereby meeting the evolving needs of a student or a youth with a disability who is transitioning from school to post-school life. This portion of the NPRM will describe the key regulatory changes we propose to implement statutory amendments related to transition services. The major substantive changes relate to certain key definitions and the provision of pre-employment transition services and transition services to groups of youth with disabilities. Throughout this section of the NPRM, we will provide additional guidance for those areas that we expect will generate significant comments. The proposed changes are presented by relevant section of the regulations. Transition-Related Definitions ( 361.5(c)) Statute: Section 7 of the Act includes several new definitions related to transition services. In particular, section 7 adds new definitions for the terms: pre-employment transition services in section 7(30); student with a disability in section 7(37); and youth with a disability in section 7(42). WIOA also deleted the term, transition services, which had been defined previously in section 7(37). Current Regulations: Current 361.5(b) contains definitions for terms relevant to the VR program, but does not define pre-employment transition services, student with a disability, or youth with a disability since these are new statutory terms. add new definitions to current 361.5(c), as redesignated elsewhere in this NPRM, for pre-employment transition services in proposed 361.5(c)(42); student with a disability in proposed 361.5(c)(51); and youth with a disability in proposed 361.5(c)(59). We also propose to retain the current definition for transition services in 361.5(c)(55), despite its removal from the statute as a defined term, since it is still used throughout the Act and the regulations in part 361. In retaining this definition, we propose to clarify that this particular service is available to both students and youth with disabilities. Reasons: These changes are necessary to implement the amendments to the Act. Given the heightened emphasis throughout the Act on students and youth with disabilities, especially with regard to the provision of preemployment transition services and other transition-related services, it is essential that stakeholders understand the definitions for these terms and how they can be distinguished from other terms commonly used. For example, pre-employment transition services are those specific services specified in section 113 of the Act and implemented in proposed (a). These services, paid for with a percentage of funds reserved from the State s VR allotment, are available only to those individuals who meet the definition of a student with a disability. On the other hand, other transition-related services, including those that could be similar to preemployment transition services, may be provided to students or youth with disabilities and do not require a specific reservation of funds (e.g., either as an individualized VR service pursuant to section 103(a) or as a service to groups pursuant to section 103(b) of the Act). It also is important to distinguish between the terms student with a disability and youth with a disability because, as just described, different services are available for different populations. A student with a disability is an individual with a disability in school who is (1) 16 years old, or younger, if determined appropriate under the Individuals with Disabilities Education Act (IDEA), unless the State elects to provide preemployment transition services at a younger age, and no older than 21, unless the State provides transition services under IDEA at an older age; and (2) receiving transition services pursuant to IDEA, or is a student who is an individual with a disability for the VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 purposes of section 504 of the Act (29 U.S.C. 794). However, it is important to note that we have interpreted a student with a disability, given the plain meaning of the statutory definition, as not including an individual with a disability in postsecondary education. A youth with a disability, on the other hand, is anyone who has a disability as defined in section 7(20) of the Act and is aged 14 to 24, regardless of whether they are in school. The terms student with a disability and youth with a disability do not affect coverage under section 504. All individuals with disabilities regardless of whether they meet the definition of student with a disability and youth with a disability continue to be covered under section 504. Therefore, all students with disabilities would meet the definition of a youth with a disability, but not all youth with disabilities would satisfy the definition of a student with a disability. For example, an 18-year-old individual with a disability who is in secondary school and receiving services under IDEA meets both the definition of a student with a disability as well as the definition of a youth with a disability. However, an 18-year-old with a disability who is not in school would meet only the definition of a youth with a disability. The distinctions between these two terms are critical for purposes of the various authorities for providing transition-related services. For example, pre-employment transition services provided under proposed (a) are only available to students with disabilities; whereas transition services provided for the benefit of a group of individuals may be provided to both students and youth with disabilities under proposed (a). Despite the removal of the definition of transition services from the Act, we believe it is important to retain this definition in part 361 given that the term continues to be used throughout the Act and these regulations. Therefore, we propose to retain the definition of transition services. However, we propose to clarify that this service is available to both students and youth with disabilities in order to be consistent with proposed regulations in (b) and (a) governing the provision of transition services. Specific guidance about these terms and how they relate to various transition-related services will be provided in this NPRM in conjunction with the relevant proposed regulation.
20 21078 Federal Register / Vol. 80, No. 73 / Thursday, April 16, 2015 / Proposed Rules Coordination With Education Officials ( ) Statute: Section 101(a)(11)(D) of the Act, as amended by WIOA, clarifies two points: (1) Interagency coordination between the DSUs and educational agencies must include coordination regarding the provision of preemployment transition services; and (2) DSUs may provide consultation and technical assistance to education officials through alternative means, such as conference calls and video conferences. This section also includes other technical changes. In addition, WIOA adds a new section 101(c) to the Act that makes clear that nothing in the Act is to be construed as reducing the responsibility of the local educational agencies or any other agencies under IDEA to provide or pay for any transition services that are also considered to be special education or related services necessary for providing a free appropriate public education to students with disabilities. Finally, section 511 of the Act, as amended by WIOA, imposes several requirements, particularly related to documentation of services for DSUs and State and local educational agencies with regard to youth with disabilities seeking subminimum wage employment. Unlike the rest of the Act, which took effect upon enactment, section 511 does not take effect until July 22, Current Regulations: Current requires VR agencies to develop policies and procedures for coordinating with education officials to facilitate the transition of students with disabilities from education services to the provision of VR services. However, current regulations do not reference preemployment transition services or the option of providing consultation services through alternative means since these are new statutory requirements. Current regulations also do not reference the statutory construction clause or the statutory requirements contained in section 511, as these are new statutory requirements. amend current (a) to incorporate reference to pre-employment transition services as an area that must be included during inter-agency coordination of transition services. We propose to amend current (b)(1) to clarify that VR agencies may use alternative means, such as video conferences and conference calls, for providing consultation and technical assistance to education officials. We also propose to amend current (b) by adding new clauses (5) and (6) to incorporate, by reference, certain requirements from section 511 into the formal interagency agreement between the DSU and the State educational agency. Finally, we propose to add a new paragraph (c) under to incorporate the construction clause in section 101(c) of the Act. We also propose other technical or conforming changes throughout this section. Reasons: The proposed changes to current are necessary to implement the amendments to the Act made by WIOA. While most of the proposed changes are self-explanatory, we believe additional guidance is necessary to clarify a few of the proposed provisions. First, section 511 of the Act, as added by WIOA, imposes certain requirements on DSUs and State and local educational agencies with regard to youth with disabilities seeking subminimum wage employment. Specifically, DSUs and local educational agencies must provide these youth with disabilities documentation demonstrating that the youth completed certain activities, such as receipt of transition services under IDEA and preemployment transition services under the VR program, as applicable. Section 511 also requires the DSU, in consultation with the State educational agency, to develop a process, or utilize an existing process, to document completion by youth with disabilities of the required activities, as applicable, under section 511. We believe the formal interagency agreement that is required by section 101(a)(11)(D) of the Act, and current (b) is the appropriate mechanism for ensuring the consultation necessary to develop and implement the documentation process required by section 511 and 34 CFR Second, section 511(b)(2) of the Act prohibits a State or local educational agency from entering into a contract or other arrangement with an entity for purposes of operating a program in which youth with disabilities are employed at subminimum wage. Again, we believe the formal interagency agreement, required by section 101(a)(11)(D) of the Act, and current (b), between the State educational agency and the DSU, is the appropriate mechanism whereby State and local educational agencies will assure that they will comply with the prohibition imposed by section 511(b)(2) of the Act and proposed 34 CFR We believe that incorporating both of these requirements from section 511, and VerDate Sep<11> :53 Apr 15, 2015 Jkt PO Frm Fmt 4701 Sfmt 4702 E:\FR\FM\16APP6.SGM 16APP6 proposed part 397, into an existing formal interagency agreement will reduce burden on the States so new mechanisms for requirements are unnecessary. Third, we want to provide additional clarification regarding proposed (c) given questions that have arisen over the years as to which entity, the local educational agency or DSU, is responsible for providing transition services to students with disabilities (who are also VR consumers) when such services fall under the purview of both entities. The following examples illustrate the types of scenarios that have been at the heart of questions posed by DSUs in the past: 1. A VR-eligible student who is blind is participating in a work-experience placement after school hours as part of her individualized education program. Because that activity takes place in a location outside of school, the student needs travel training in order to travel independently from school to work and then home. 2. A VR-eligible student is enrolled in an apprenticeship program in construction trades as part of his individualized education program under IDEA. The program requires the student to have special gloves, clothing, equipment, and footwear to attend the program. 3. A VR-eligible student is participating in a work experience activity during school hours as part of her individualized education program. The school has arranged for several IDEA-eligible students to participate in this same work activity and is providing a school bus to transport the IDEAeligible students to and from the worksite. The VR-eligible student needs transportation to the worksite and a uniform. While neither the Act nor IDEA is explicit as to which entity, the VR agency or the local education agency, is financially responsible for providing transition services, which are not considered solely special education or related services under IDEA, both proposed (c) and current 34 CFR (c)(2)) make clear that neither the local educational agency nor the VR agency may shift the burden for providing a service, for which it otherwise would be responsible, to the other entity. We want to make clear that the Act and IDEA, along with their implementing regulations in proposed (c) and 34 CFR (c)(2), are to be read in concert. Therefore, we believe decisions related to which entity will be responsible for providing transition or pre-employment transition services that