New York Public Sector Vocational

New York Public Sector Vocational Rehabilitation Agencies The purpose of this paper is to present an overview of the New York State Public Sector Vocational Rehabilitation Agenices, the Commission for the Blind and the Visually Handicapped (CBVH) and Vocational and Educational Services for Individuals with Disabilities (VESID). The function and stages in the process of these agencies is reviewed and comparisions are made.

Information from eight sources were referenced and help to show that although both agencies help people rehabilitate, they have their own ways of running their programs and their own goals to establish further progress for the future. New York Public Sector Vocational Rehabilitation Agencies Vocational rehabilitation (VR) is a set of services offered to individuals with mental or physical disabilities. These services are designed for all different kinds of participants, enabling them to attain skills that will help them in the workforce.

The state of New York has two main Vocational Rehabilitation Agencies: The Commission for the Blind and the Visually Handicapped (CBVH) and Vocational and Educational Services for Individuals with Disabilities (VESID). While they both help people rehabilitate, one seeks to help those with visual impairment and the other encompasses a vast variety of other disabilities. In this paper I will look at the function of vocational rehabilitation and the stages found in the process.

The interrelationship between the job placement efforts involved in both State VR processes and the testing, eligibility and training for each participant will be discussed. Similarities, differences and comparisons will be mapped out to seek improvement across both systems, showing that maintaining jobs involves more than training. In 1920, the state/federal partnership in vocational rehabilitation was created under the National Vocational Rehabilitation Act. This law created a system of state VR agencies and established federal funding of VR services.

In addition, the law allows for separation of state VR agencies into those that serve individuals who are legally blind and those that provide services to all other disabled groups (CBVH, ¶ 3). CBVH and VESID are both included in this law, and in 1998 the Rehabilitation Act was incorporated in its entirety at Title IV of the Workforce Investment Act. CBVH was established by law in 1913 to maintain a 'census of the blind' in New York State to help individuals who are legally blind find suitable employment.

CBVH was also charged with researching the causes of blindness and advancing blindness prevention. Their mission statement says its goal is to enhance employability, to maximize independence and to assist in the development of the capacities and strengths of people who are legally blind. In contrast, VESID concentrates on disabilities in all forms and offers access to a full range of services that may be needed by persons with disabilities through their lives. The agency assists those with physical or mental impairments who want to go to work.

The first stage for both agencies is the process of eligibility to establish if the participant meets the set parameters. In order to determine which people may need special assistance because of their visual disabilities, various governmental jurisdictions have formulated more complex definitions referred to as legal blindness. In North America, legal blindness is defined as visual acuity (vision) of 20/200 (6/60) or less in the better eye with best correction possible or a restricted field of vision of 20 degrees or less in the better or stronger eye (Belote, 2006).

CBVH has the prospective participant complete an application and submit it to the district office. An initial interview will then be scheduled with a CBVH Counselor or representative. People can also be referred by a school, doctor, private agency for the blind or other community, health, or social service organizations. While the application is fairly simple for the CBVH, additional background information, such as medical reports, school records or work history may be needed to determine eligibility.

Recent medical reports that verify the disability can be useful and may be requested. If these are not available, CBVH will assist in obtaining this information. If a person is severely visually impaired but not legally blind, they may qualify for job save services that will help retain employment and adapt to the impairment (CBVH, ¶ 8). Once eligibility is met, a CBVH counselor will work with the individual to develop an Individual Service Plan (ISP) or an Individualized Plan for Employment (IPE).

These plans will help define personal goals and outline a course of action to achieve it. Fulfillment of the individual plan may require training, adaptive equipment, coursework, and counseling. Eligibility for VESID requires five factors be met: The person applying has a medically diagnosed physical or mental impairment; the impairment creates an impediment to employment; person can benefit from VR services to achieve employment; person requires VR services to achieve employment; person intends to work. Once found eligible, the agency helps create an Individualized Plan for Employment.

This plan outlines the work goal, the steps to achieve it and the necessary services. VESID starts with the presumption that all persons with disabilities can benefit from vocational rehabilitation services and should have opportunities to work in jobs integrated within their communities. VESID counselors guide individuals through service programs they need to reach their employment goals. The two agencies differ in their approach and in the programs they offer.

In addition to vocational rehabilitation, the New York State Commission for the Blind and Visually Handicapped provides assistance in learning skills such as Braille, various methods of meal preparation, home management activities and other daily living tasks. They offer counseling, guidance, vocational assessment, interpreter services and reader services. One of CBVH's primary objectives is to assist consumers in achieving economic self-sufficiency and full integration into society. CBVH offers these services from seven district offices across the state.

Services offered by the Vocational and Educational Services for Individuals with Disabilities are more geared toward the workforce specifically. They initially assess skills, abilities, interests, and possible job goals. If necessary, a physical and/or psychological examination to help understand how the disability affects the ability to work is performed. They administer special education, driver education and training, career counseling and guidance, and training at a vocational school.

They provide books, tools and equipment you may need for training or employment, as well as assist with cost of home or work site modifications needed for employment. They help develop the skills needed to develop a resume and handle job interviews successfully, and help with job placement and job retention. VESID services end when the individual enters and maintains competitive employment for at least 90 days. Sometimes, for a variety of reasons, VESID "closes" services if it seems that the employment goal is not going to be reached.

Sometimes people "drop out" of services and the individual program with the agency is closed. VESID stresses that a person who chooses to participate in their services has to be serious about going to work, whether it be part-time or full-time (VESID: Basic Guide, 2010). CBVH is unique among other state programs in its relationship with the private sector. There are approximately 20 agencies that are not-for-profit private agencies in New York State.

Not-for-profit private agencies for the blind, some founded before the establishment of CBVH, provide services to consumers through contracts with CBVH. These agencies provide on-the-job training, placement services, assistive technology and other services (Martin and Browning, 2007). CBVH maintains program monitoring and oversees responsibilities for the supported employment services provided to CBVH consumers. Service providers regularly provide CBVH with individual consumer reports, and CBVH staff meet regularly with providers and consumers. There are approximately 20 agencies that are not-for-profit private agencies in New York State.

Both agencies use different electronic databases to manage the vast amount of data they keep on file. As recently as 2008, CBVH has implemented a new electronic case management system, called the CBVH Consumer Information System (CBVH-CIS). The new system allows supervisory staff to monitor and review consumer cases more easily than when cases were in paper format. The system operates on existing NYS Office for Technology (OFT) servers, which are shared by other applications from other State agencies.

This results in periodic slowdowns on the CBVH-CIS across the system which limits the ability of CBVH district office staff to effectively complete consumer applications, authorizations, and other consumer-related service documentation, potentially delaying services to legally blind consumers (NYSCBVH, 2009). VESID uses the recently implemented electronic database CaMS, which differs from CIS because of its additional financial elements. CaMS is a computer program that manages informational numbers, and since the upgrade of the current family living allowance implemented by VESID in April 2008, it allows the numbers to be automatically recalculated.

These agencies work together frequently. There are times that CBVH needs to reach out to VESID based on the additional disabilities of the consumer. This is achieved through access to a limited number of "VESID slots" or the purchase of intensive services on a fee-for-service basis. CBVH and VESID then work together so that the limited supported employment funds are utilized in the most effective manner to meet consumer needs.

CBVH then continues to work with VESID to assess performance on an ongoing basis, participate in on-site reviews, and provide technical assistance or recommend adjustments to contracts as needed. In the near century that these agencies have been in place, they have worked together in their efforts to assist those with disabilities to find employment. The current supported employment delivery system has allowed all eligible individuals with the most significant disabilities who are interested in supported employment to obtain services.

A joint policy statement between the CBVH, the State Education Department, and VESID was initiated in 1985. At this time, the two State agencies agreed that only by working together could they address the needs of individuals who are deaf and blind. Through the memorandum of the agreement in 1999, CBVH and VESID reaffirmed their commitment to joint efforts to better serve this unique group of individuals. While there are proportionately few individuals who are both deaf and blind, their needs are complex and are exacerbated, not resolved, by fragmented service delivery.

Mutual experience shows that where the expertise of both CBVH and VESID programs are delivered collaboratively, individuals who are deaf/blind experience significantly improved access to services and have much greater opportunities for success. The major purpose in this agreement is to assure that the quality of services is high, and that appropriate resources and expertise are available throughout the State. Of course the overall goal is for the employment program to enable individuals with the most significant disabilities to achieve and maintain competitive employment in their communities.

According to the American Foundation for the Blind's "Statistics and Sources for Professionals," under the current contract, a total of 52 providers have the capacity to serve a total of 144 individuals who are legally blind, with a goal to place, train and stabilize 105 individuals who are legally blind. In 2009, 132 individuals received supported employment services. Twenty-four of these individuals obtained and have maintained integrated employment in the community. Statistically, VESID and CBVH have made great strides in their efforts.

The New York State Disability and Employment Status Report issued by the Employment and Disability Institute, Industrial Labor Relation School of Cornell University, provides statistics regarding persons in New York State with disabilities. Based on the most recent study, the findings provide an overall context for the vocational rehabilitation program to consider the potential needs of individuals with disabilities in New York State. The employment and earnings gap between New Yorkers with disabilities and those without, like the rest of the U.S., continues to grow exponentially.

According to the 2007 Status Report, there are over 1.4 million working-age adults with disabilities in New York State. The employment rate of working-age people with disabilities (ages 21-64) is 33% as compared to 72% for people without disabilities, a gap of 39% (Cornell University, 2009). In addition, one in five working-age adults with disabilities in New York are recipients of SSI (279,000 individuals). These findings draw a clear link between the experiences of poverty and disability.

New findings from the Center for Economic Policy Research (CEPR) show that the share of people experiencing income poverty who have physical or mental health impairments and/or learning disabilities is far larger than conventionally understood. Based on estimates from the 2008 American Community Survey (ACS), 49,300 individuals with disabilities between the ages of 21 and 64 are not working but are actively looking for work.

The ACS disability definitions are not the equivalent of the eligibility criteria for vocational rehabilitation (VR) services, so it is not valid to infer that all of these individuals would necessarily be VR eligible. VESID's open caseload (Status 02-24) at the end of FFY 2009 was 68,000 individuals, which exceeds the measure of job seekers with disabilities, based on the ACS definition. The education system continues to struggle to adquately prepare students with disabilities for employment and financial independence.

Even with recent growth in the performance outcomes for students with disabilities, the gaps in performance remain significant with only approximately 43% of New York's students with disabilities graduating with a regular high school diploma. Opportunities to participate in higher education are limited. Many institutions of higher education have not put in place the level of supports needed by individuals with disabilities to succeed. Only 16% of working-age individuals with disabilities in New York hold a Bachelor's degree as compared to 36% of non-disabled individuals (Cornell, 2009).

Both VESID and CBVH are dedicated to the education system. According to the CBVH 2011 State Plan, a standardized process has been implemented for school district referrals. VESID and CBVH collaborate with school districts and other State agencies to facilitate a coordinated approach to the provision of transition services and to eliminate the duplication of assessment, services and reporting. The agreement specifically states that every student with a disability will receive comprehensive, coordinated educational services to prepare for employment, post-secondary education or community living when they leave school (p. 2).

The Department of Education provides more than $2.5 billion annually to the states for a federal-state vocational rehabilitation (VR) program to help individuals with disabilities become employed, consistent with the Rehabilitation Act of 1973 (Better measures, p. 6). In fiscal year 2003, these state programs provided services to more than 1 million individuals with disabilities. Although Education provides more than three-quarters of the program's funding, states have significant latitude in how they administer their VR programs. While hoping to keep disabled persons in school, CBVH is a partner in a demonstration called Project WORKS.

Funded by the Social Security Administration, this youth initiative is designed to support the successful transition of youth with disabilities from school to post-secondary education and employment and maximize their economic self-sufficiency (State Plan, 3). The project focuses on developing services and service-delivery systems that will improve educational and employment outcomes for youth with disabilities. It is designed to increase coordination among public agencies and private organizations that have resources, funding and a mandate to provide transition services. New York State is one of six states participating in this project.

CBVH is also involved in the "Partnerships for Youth" projects funded through the New York State Developmental Disabilities Planning Council (DDPC). The five projects bring together school-based programs with the One Stop service centers, employers, vocational rehabilitation and community-based service providers to create a seamless transition process. Both rehabilitation agencies (CBVH and VESID) have traditionally played a major role in facilitating work experience, mentoring, work-study and competitive employment. The work readiness and "soft skills" training provided by systems partners have been essential to facilitating successful work transition.

The projects have demonstrated the necessity and importance of coordinated intervention services before the student leaves the educational system (p. 4). The involvement in education is in place with hopes that it will assist disabled youth to go from school to adult opportunities. The Individuals with Disabilities Education Act requires that transition planning begin when the student is 14 and that services be coordinated between the school and the vocational rehabilitation agency. Transition planning encompasses how each student will be living, learning, and working in his community.

The main functions of the two agencies differ in that VESID continues to have primary responsibility for supported employment programs and other integrated employment opportunities for individuals with disabilities in New York State (p. 24). CBVH is not responsible for hiring staff who work in school systems -- that is the responsibility of VESID, the New York state agency that administers both the vocational rehabilitation program for individuals with disabilities other than legal blindness, as well as special education programs for school-age children.

CBVH maintains case management, program monitoring and oversight responsibilities for the supported employment services provided to CBVH consumers. Service providers regularly provide CBVH with individual consumer reports, and CBVH staff meets regularly with providers and consumers. Information on services to CBVH consumers is also available through data provided by contractors to the New York Integrated Supported Employment Reporting System (NYISERS). CBVH continues to work with VESID to assess performance on an ongoing basis, participate in on-site reviews, and provide technical assistance or recommend adjustments to contracts as needed (p. 14).

Quality assurance is a matter of ongoing concern. Providers receive Guidelines for Supported Employment that is updated as needed and convey the expectations for quality services. VESID quality assurance staff, with input from CBVH and other partners, established new case review form protocols to gather information that can be used to monitor and improve services. CBVH district office staffs are invited to participate in reviews of agencies in their catchment area; however, they typically participate only in reviews of agencies that are serving consumers who are blind (p. 25).

Improvements in these agencies are an ongoing process. Currently, Goodwill of New York and New Jersey currently operates the only blindness specific supported employment program in New York City. The program is currently only serving 27 consumers, seven over its contracted number, and has 11 individuals waiting for service, with additional referrals expected. CBVH sub-allocates its Supported Employment allotment to NY State Education Department's VESID, which administers all Supported Employment contracts. The current allocation of funds to serve CBVH consumers is insufficient.

It is expected that by providing funds to support ten additional individuals in supported employment, Goodwill will be able to meet the needs of additional consumers referred by CBVH. As stated in the 2011 New York State Plan, the goal is to continue to meet the ARRA guideline and increase and expand services to underserved individuals with most significant disabilities (p. 12).

The employment gap is an issue of vital concern to the public-private vocational rehabilitation system, but should also be a concern to the entire workforce investment system and all partners under the Workforce Investment Act. The employment rate for individuals with disabilities is suppressed by factors such as access to housing, transportation, health care (including treatment for mental illness, substance abuse and chronic disabilities), childcare, and opportunities for asset accumulation.

All of these factors impact the employment rate for individuals with disabilities and closing the employment gap will require a much broader public policy approach across federal, state and local economic initiatives and programs. Improvements such as more employers allowing job placement of persons with disabilities is a continued aspiration. One would think that a job such as mechanical tech support, where the employee could be on the phone with consumers and be familiar with the specific mechanism like a washer and dryer, would be ideal.

If those with disabilities could touch or feel a product and learn its inner workings, they may be helpful in troubleshooting phone calls from the consumer. Another improvement that could be discussed is the problem of transportation to and from these job facilities. Many of those with disabilities cannot drive a vehicle or travel alone (on a bus or subway).

If there were something in place to assist disabled people in consistently getting to and from their jobs, besides the reliance on their own family or friends, it would prove beneficial in the ongoing goal of rehabilitation. Family support is very important in the full spectrum of rehabilitation. Not only would the ideal situation be that those closest to the disabled person be involved and supportive, but they would then help to continue to encourage the person to fulfill the goals set in the Individual Service Plan.

Disabled persons may need additional help in the daycare fields. Those who cannot rely on inside sources (such as family) for help with their children would find it beneficial if in addition to job placement, the agencies also offered a program to aid in the caring of their children while they're at work. One would think it is hard to find reliable people to watch over a child when you already have a very limited budget and are only making minimum wage.

Perhaps the agencies can form a daycare at an established site, and transportation can be provided for disabled persons to and from their place of employment. Another prospective problem is keeping disabled people enrolled in the programs. More than 217,000 individuals with disabilities exited the state VR programs with employment in fiscal year 2003 after receiving customized services. This group represents one-third of the 650,543 individuals who left the program nationwide in fiscal year 2003 after submitting an application for services.

The most common reasons that the remaining two-thirds of the individuals left the program without a job were that the individual refused services, failed.