National Council on Disability
Recommendations Workforce Investment Act Reauthorization
National Council on Disability
1331 F Street, NW, Suite 850
Washington, DC 20004
202-272-2004 Voice
202-272-2074 TTY
202-272-2022 Fax
Publication date: March 17, 2005
Background
In 1998, Congress passed the Workforce Investment Act (WIA), creating
authority for the Workforce Development System, a federal employment
services program, which provides assistance through One-Stop
Centers across the nation. This system replaced a number of smaller
federally supported employment programs, consolidating the funds
into what was intended to be a more user-friendly, universally
accessible system of employment services. The Rehabilitation
Act was included as a separate program with separate funding
under the new Act. Title IV of WIA now carries the authority
for the Rehabilitation Act in its entirety and throughout the
Act creates a number of opportunities for interaction between
the State Vocational Rehabilitation (VR) system and the One-Stop
Centers. For example, the State VR program is identified as one
of several "partners" in the One-Stop system. The Act
also makes clear that One-Stop Centers are to be available and
accessible to individuals with disabilities and includes non-discrimination
language that specifically references disability.
Originally slated for reauthorization in 2003, WIA now appears
to be on track in both the House and Senate to move forward in
2005. With so much of importance to the disability community in
the Act, the National Council on Disability (NCD) offered to the
108th Congress detailed recommendations. NCD observations and input
are included in the following recommendations, which are offered
as a guide to disability-related issues for the current reauthorization
process.
Accessibility and Non-Discrimination
Despite the provisions in Section 188 of WIA, which contains the
anti-discrimination requirements for the One-Stop Centers and
other entities operating under the Act, there continues to be
sufficient evidence to give rise to concerns regarding physical
and/or programmatic accessibility of the Centers for individuals
with disabilities.
(1) In 2004, the Government Accountability Office (GAO) reported
on significant variance in implementation of access strategies
for individuals with disabilities (GAO-05-54).
(2) The Urban Institute and Johns Hopkins University reported
similar findings of One-Stop accessibility problems for individuals
with disabilities in research conducted for the Ticket to Work
and Work Incentive Advisory Panel (Holcomb, P. & Barnow,
B., Serving People with Disabilities through the Workforce Investment
Act's One-Stop Career Centers, TWWIAP, November 2004).
(3) Analysis of Workforce Investment Act Standardized Record Data
(WIASRD) shows dramatic reductions over the last three years in
percentages of persons served who indicated they had a disability.
The percentage of people exiting from Adult Services who indicated
having a disability shrank from 8.7 percent to 5.8 percent from
2001 to 2003.
The Department of Labor (DOL) has taken steps to address these
issues. NCD commends DOL for issuing a Section 188 checklist designed
to assist program operators in identifying their nondiscrimination
obligations, assessing their performance, increasing accessibility,
and identifying resources that can be of assistance. However, concerns
remain as to whether this is sufficient to address the physical,
information-technology and programmatic accessibility issues facing
individuals with disabilities in the system. If One-Stop Centers
lack the resources and/or the communications technology to implement
accessibility, it will remain difficult for the checklist and associated
technical assistance to solve the problem.
NCD Recommendations
NCD recommends DOL continue strengthening its monitoring and enforcement
of compliance of the One-Stop Centers with the accessibility
provisions of WIA. This is one key means for ensuring full participation
in the workforce and employment development system by all job
seekers, irrespective of disability. Various means of maintaining
strengthened enforcement are recommended for DOL's consideration.
NCD recommends that DOL: establish and publicize a complaint
procedure for use by individuals who have been denied access
or are not able to access all available resources; incorporate
accessibility guarantees in requirements for state workforce
development plans; and insist on inclusion of representatives
of people with disabilities (or at least of state VR agencies)
on state and local Workforce Investment Boards (WIBs). NCD recommends
that DOL, through its Office of Disability Employment Policy
(ODEP) or through its Office of Inspector-General (OIG), jointly
develop with the Department of Justice (DOJ) a plan for proactive
enforcement of the nondiscrimination and accessibility requirements
of the law bearing on the ability and willingness of One-Stop
Centers to serve customers with disabilities.
Community Involvement
In ensuring accessibility to the One-Stop Centers, it is important
to involve the community partners, such as employers, training
entities, referral sources, schools, employer associations, and
others with which One-Stop Centers and WIBs work and with which
they have referral and planning relationships. As important as
it is for One-Stop Centers to be accessible, that accessibility
may in the end do little good if the employers, training programs
and other referral sources are inaccessible. While One-Stop Centers
lack legal authority to enforce consistently high accessibility
standards in the communities, there are a number of strategies
that One-Stop Centers can use to strongly support reasonable
accommodation, accessibility, and success.
NCD Recommendations
NCD recommends that DOL survey One-Stop Centers and people with
disabilities who have received referral services through them
to determine the measures the One-Stop Centers have used to monitor
the treatment that people with disabilities receive from community
partners, and the means the One-Stop Centers have developed for
sharing accessibility expertise and resources with such providers.
The results of this survey should be published and made available
to all stakeholders in the One-Stop system, including potential
community partners, as a means of improving areas with problems
and difficulties.
One Stop Infrastructure Funding
GAO (GAO-03-884T) reports that One-Stops across the country are
hampered by the lack of sufficient One-Stop infrastructure funds.
WIA reauthorizing legislation not completed in the 108th Congress
addressed this issue with provisions in the House and Senate
versions requiring Workforce Development partners to contribute
from their own appropriated administrative funds to One-Stop
administration in their states. NCD is concerned with this solution,
especially the impact it will have on the ability of an already
fiscally strapped VR system to provide needed services to people
with significant and most significant disabilities. Data has
consistently reflected that each year the state VR systems are
unable to serve a majority of individuals eligible for services.
As a result, Order of Selection within VR means that many individuals
with disabilities are unable to receive much needed services
to become competitively employed. Loss of additional funds to
the One-Stops may create additional problems and exacerbate the
issue of persons with disabilities waiting for services.
NCD Recommendations
NCD recommends that the funding challenge be addressed with dedicated
funding for the One-Stop infrastructure in WIA. If sufficient
dedicated funding is not available, a cap on the percentage of
administrative dollars from the WIA partners should be phased
in over a number of years to lessen the immediate impact on people
waiting for services. There should be accountability to the WIA
partners as to how any administrative funds are used to fund
the One-Stops.
Outcome and Performance Measures
The need for One-Stops to meet current performance measures is
often the driving factor in deciding who receives WIA services
(GAO-05-54, GAO-03-884T). As a result, in order to meet current
performance measurements, One-Stop staff members are reluctant
to serve clients who may be less likely to find employment or
experience an increase in earnings. Accordingly, some clients
are denied services. The need to meet specific performance measures
creates a disincentive to provide services to harder-to-serve
populations. NCD believes that the effect of the current system
significantly impacts the ability of individuals with disabilities
to receive appropriate training and employment services. NCD
remains concerned that measures emphasizing per capita cost or
per-employment-outcome cost discourage One-Stop Centers from
working with people who need extensive or individualized services,
including persons with disabilities. Such performance measures
have the unintended consequence of discriminating against the
individuals for whom the non-discriminatory and universal access
standards were designed in the Act. It is important to note that
individuals with disabilities would be particularly impacted
if all One-Stop partners were required to apply the Office of
Management and Budget's proposed measure of efficiency - a formula
that divides the annual appropriation by the number of participants
serviced. It is inaccurate and an unfair representation to consider
the additional costs of working with job applicants with disabilities
while failing to acknowledge the potentially more-than-offsetting
savings resulting from the successful employment as taxpayers
of such applicants and the reduced need for other services.
NCD Recommendations
To reflect the effectiveness of the One-Stop program, performance
measures should take into account the individualized needs of
participants, especially participants with disabilities. To ensure
equal treatment for individuals with disabilities, NCD strongly
recommends that WIA require the development of alternative outcome
measures, which account for the characteristics of the population
served, the intensity of the services provided, resulting savings
from competitive employment and the diminished need for services.
Thus, NCD recommends DOL develop outcome measures that take into
account all the relevant variables involved in working with job
seekers with disabilities, including not only the potential costs
of working with this population within a mainstream setting,
but also the benefits to the taxpayers of commitment and success
in such work.
Demonstration Programs: Navigator Program and Customized Employment
Navigator Program: The workforce development system established
under WIA, while centrally focusing on the One-Stop Centers as
a single entry point for access to information and services,
ultimately depends for its effectiveness on the coordination,
cooperation, and capacity of a variety of community partners,
including "mandatory partners" under the law. For individuals
with disabilities this can be a very confusing and complex system,
unless the staff members at One-Stop Centers are well versed
in the range of specialized resources and services available
to these individuals. A closely related problem involves collaboration
among different elements in the workforce development system,
including DOL, SSA's recently established area work incentive
coordinators (AWICs), and SSA's work incentive initiatives. In
an effort to improve this coordination and maximize the sharing
of information and resources, DOL and SSA established the Disability
Navigator Program, a pilot program focused on ensuring that the
needed expertise will be available and accessible to the staff
and service users of One-Stop Centers. The Navigator Program
places in One-Stop Centers staff members who are knowledgeable
about the range of specialized services available to assist job
seekers with disabilities. With the Navigator Program, and other
strategies such as co-location of VR in One-Stop Centers facilities,
NCD is hopeful that the highest possible degree of seamlessness
will be attained.
Customized Employment: WIA recognizes the obligation of the One-Stop
Centers to work with hard-to-serve individuals who may need specialized
or individualized services. In fulfillment of that recognition,
NCD commends DOL for the demonstration customized employment grants
it has made. Preliminary figures indicating achievement of gainful
employment by 595 of the first 1,292 persons served suggest that
such programs have a role to play even within a system as large
as that created under WIA.
NCD Recommendations
NCD recommends that WIA include the Navigator and Customized Employment
programs in the authorization for the One-Stop systems, guaranteeing
that both will be supported and strengthened as a means of facilitating
service coordination and participation of individuals with disabilities
using the Navigator System and ensuring necessary supports for
individuals with significant disabilities through Customized
Employment.
Title IV—Rehabilitation Act
Cost of Living Adjustments
Under the current system of funding VR, the overall national program
receives a mandatory cost of living adjustment (COLA) based on
the Consumer Price Index (CPI). This COLA is then distributed to
the states using a formula based largely on overall population
growth and the average wage in each state. This formula has resulted
in well over 20 states receiving less than the mandated COLA in
any given year. Further, it seems this formula does not take into
account the population growth of persons with disabilities of working
age needing VR services to obtain competitive employment.
NCD Recommendations
While NCD understands the difficulty in changing the entire formula
for distributing the COLA funds to the states, we must work toward
each state receiving at least the minimum mandated COLA based
on the CPI. Currently, Reallotment Funds, funds returned by states
that do not match their entire federal allotment, are sometimes
used to begin to address this formula problem by helping to insure
that no state actually receives fewer dollar than the prior year.
The additional amount needed to bring all states up to the minimum
COLA has been estimated in past years to be approximately $20
million dollars per year. A combination of any available Reallotment
Funds and increases phased in over a number of years would insure
all states reach the mandated COLA without adversely impacting
any states that currently receive greater than the COLA due to
the distribution formula.
Dedicated Funding
The Rehabilitation Act includes a number of smaller, specialized
programs designed to address specific service needs of individuals
with disabilities, creating a balance between Title I of the
Act and the specialized programs designed to support the VR infrastructure.
NCD recognizes the importance of the Supported Employment State
Grant program, Projects with Industries, Migrant and Seasonal
Farmworkers, and Recreation Projects in the VR system.
In addition to the specialized programs noted, the VR program
is clearly the only employment program currently focused on serving
persons with significant and most significant disabilities with
the outcome of competitive employment in the community. NCD recognizes
and supports the need for VR to remain a separate program with
separate funding to accomplish this goal.
NCD Recommendations
NCD commends the House and Senate for their continued support of
the Supported Employment State Grant, Projects with Industry,
Migrant and Seasonal Farmworkers, and Recreation Projects programs
through the appropriations process of the past three years. These
programs provide a carefully structured balance in the Rehabilitation
system that could not be achieved with limited Title I funds.
NCD recommends that these programs continue to be authorized
in the Act as separate and distinct programs to maintain the
balance they create in the system.
Further, as was recognized by the original crafters of WIA in
1998, NCD strongly recommends that VR remain a separate Title with
separate funding under WIA. This will continue the focus on persons
with significant and most significant disabilities obtaining competitive
jobs in their communities. |