[Notices]
[Page 34225-34233]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr23jn98-98]
[[Page 34225]]
_______________________________________________________________________
Part III
Department of Education
_______________________________________________________________________
National Institute on Disability and Rehabilitation Research;
Applications for New Rehabilitation Research and Training Centers for
Fiscal Year (FY) 1998; Notices
[[Page 34226]]
DEPARTMENT OF EDUCATION
National Institute on Disability and Rehabilitation Research
AGENCY: Department of Education.
ACTION: Notice of Final Funding Priorities for Fiscal Years 1998-1999
for Certain Centers and Projects.
-----------------------------------------------------------------------
SUMMARY: The Secretary announces final funding priorities for five
Rehabilitation Research and Training Centers (RRTCs) under the National
Institute on Disability and Rehabilitation Research (NIDRR) for fiscal
years 1998-1999. The Secretary takes this action to focus research
attention on areas of national need. These priorities are intended to
improve rehabilitation services and outcomes for individuals with
disabilities.
EFFECTIVE DATE: These priorities take effect on July 23, 1998.
FOR FURTHER INFORMATION CONTACT: Donna Nangle. Telephone: (202) 205-
5880. Individuals who use a telecommunications device for the deaf
(TDD) may call the TDD number at (202) 205-9136. Internet:
Donna__Nangle@ed.gov
Individuals with disabilities may obtain this document in an
alternate format (e.g., Braille, large print, audiotape, or computer
diskette) on request to the contact person listed in the preceding
paragraph.
SUPPLEMENTARY INFORMATION: This notice contains final priorities under
the Disability and Rehabilitation Research Projects and Centers Program
for five RRTCs related to disability and employment policy, State
service systems, community rehabilitation programs (CRPs), workplace
supports, and educational supports.
These final priorities support the National Education Goal that
calls for every adult American to possess the skills necessary to
compete in a global economy.
The authority for the Secretary to establish research priorities by
reserving funds to support particular research activities is contained
in sections 202(g) and 204 of the Rehabilitation Act of 1973, as
amended (29 U.S.C. 761a(g) and 762).
Note: This notice of final priorities does not solicit
applications. A notice inviting applications is published in this
issue of the Federal Register.
Analysis of Comments and Changes
On April 14, 1998, the Secretary published a notice of proposed
priorities in the Federal Register (62 FR 40422-40425). The Department
of Education received five letters commenting on the notice of proposed
priorities by the deadline date. Technical and other minor changes--and
suggested changes the Secretary is not legally authorized to make under
statutory authority--are not addressed.
General
Comment: NIDRR should identify a significant role for persons with
disabilities in the RRTCs both from an employment and an advisory
perspective.
Discussion: Involvement of individuals with disabilities is one of
the general requirements that apply to all RRTCs. All RRTCs must
``involve individuals with disabilities and, if appropriate, their
representatives, in planning and implementing its research, training,
and dissemination activities, and in evaluating the Center.
Applications for RRTCs are evaluated, in part, on the extent to which
the applicant encourages individuals with disabilities to apply for
employment.
Changes: None.
Comment: The priorities should place more emphasis on the
development of studies measuring change or developing strategies for
change.
Discussion: NIDRR provides applicants with the discretion to
propose studies and methodologies to measure the impact of new
strategies or interventions. An applicant could propose to place a
special emphasis on the development of studies measuring change or
developing strategies for change. The peer review process will evaluate
the merits of the proposal. However, NIDRR has no basis for requiring
all applicants to place a special emphasis on the development of
studies measuring change or developing strategies for change.
Change: None.
Comment: The role that culture plays in the development of
employment opportunities for persons with disabilities should be part
of the overall focus of the centers.
Discussion: NIDRR agrees that cultural variations may be an
important contributing variable related to employment outcomes for
persons with disabilities. An applicant for any of the centers could
propose to include cultural factors in one or more activities. The peer
review process will evaluate the merits of the proposal. However, NIDRR
has no basis for requiring all applicants to include cultural factors
in their investigations.
Changes: None.
Comment: The priorities do not include a sufficient focus on
training. This may inadvertently limit the transition from research to
practice.
Discussion: The minimum training requirements for an RRTC training
are stated in the RRTC program description and general RRTC
requirements section of the notice of final priorities. NIDRR believes
that these requirements are sufficient to ensure that the research
findings of the RRTC will be utilized by appropriate service providers.
Having met these requirements, an applicant could propose to carry out
additional training activities. The peer review process will evaluate
the merits of the additional training activities. However, NIDRR has no
basis for requiring all applicants to carry out additional training
activities.
Changes: None.
Comment: One commenter suggested a number of specific studies that
the RRTCs should carry out. These suggestions included investigating:
how industry could be solicited to manage supplemental housing for
employees with disabilities; modified voucher systems for parents or
guardians of individuals with disabilities to serve as negotiators for
service providers, job coaches, and transporters; enticing skilled
crafts people to serve as mentors in their trades and provide persons
with disabilities with opportunities to learn specific trade skills;
creating alternate vocational opportunities, as opposed to the lock
step endorsement placed on production and service type nonskilled work;
and standardizing curricula for vocational training and trainers in
community workshops and adult activity centers.
Discussion: An applicant could propose to carry out these suggested
projects under the authority of one of the five employment RRTCs. The
peer review process will evaluate the merits of the proposal. However,
NIDRR prefers to provide applicants with the discretion to propose
specific investigations and has no basis to determine that all
applicants should be required to carry out these projects.
Changes: None.
Priority 1: Disability and Employment Policy
Comment: Civil rights issues are not well integrated into the
overall policy direction of this center.
Discussion: In part, the sixth activity requires the RRTC to
identify and analyze the effect of civil rights protections on
significantly promoting or depressing the employment status of persons
with disabilities. Applicants have the discretion to propose how this
required activity, or any required activity, is integrated with the
other activities of the RRTC.
Changes: None.
[[Page 34227]]
Comment: The RRTC should carry out the following projects:
investigate broad workforce trends with an emphasis on benefits,
worklife needs and issues, and the impact of national legislation such
as the Family Medical Leave Act on the workforce and particularly the
employee with a disability; investigate the relationship between health
benefits and the needs of SSI and SSI beneficiaries who are candidates
for returning to work; and coordinate the RRTC's data analysis
activities with the analysis carried out in the RRTC on Improving the
Effectiveness of State Service Systems, including data from State
employment and support agencies as part of the analysis.
Discussion: An applicant could propose to carry out these suggested
projects. The peer review process will evaluate the merits of the
proposal. However, NIDRR prefers to provide applicants with the
discretion to propose specific investigations and has no basis to
determine that all applicants should be required to carry out these
projects.
Changes: None.
Priority 2: State Service Systems
Comment: The definition of State systems should be revised to
include: mental retardation/developmental disabilities programs, mental
health programs, Workmen's Compensation programs, One Stop Career
Centers, community rehabilitation providers, and local schools.
Discussion: The priority does not prescribe the entities that could
be considered part of State service systems. An applicant could propose
to include the entities listed in the comment as part of the State
service system. The peer review process will evaluate the merits of the
proposal. However, NIDRR has no basis for requiring all applicants to
consider all of these entities as part of the State service system.
Changes: None.
Comment: The RRTC should carry out the following projects: analyze
emerging practices in reimbursement, including cash payments to
individuals, employers, and others; and study the use and impact of
natural and employer supports.
Discussion: An applicant could propose to carry out these suggested
projects. The peer review process will evaluate the merits of the
proposal. However, NIDRR prefers to provide applicants with the
discretion to propose specific investigations and has no basis to
determine that all applicants should be required to carry out these
projects.
Changes: None.
Priority 3: Community Rehabilitation Programs (CRPs)
Comment: The RRTC should carry out the following projects:
investigate the impact of consumer control on services and service
delivery in the CRP system; and investigate the impact of choice on CRP
system structurally, including the range of services offered and
consumer outcomes realized.
Discussion: An applicant could propose to carry out these suggested
projects. The peer review process will evaluate the merits of the
proposal. However, NIDRR prefers to provide applicants with the
discretion to propose specific investigations and has no basis to
determine that all applicants should be required to carry out these
projects.
Changes: None.
Priority 4: Workplace Supports
Comment: The RRTC should be required to address the relationship
between quality of life and employment for persons with disabilities.
Discussion: The fourth and fifth activities require the RRTC to
address quality of life issues related to employment. No further
requirements are necessary.
Changes: None.
Comment: The priority should be expanded to require the RRTC to
determine the extent to which workplace supports provided by human
service agencies, such as supported employment job coaches or personal
assistants, enhance or hinder employer productivity and the ability of
employers to provide workplace accommodations.
Discussion: The sixth activity of the priority addresses employer
perspectives and needs in order to facilitate the employment of persons
with disabilities. Under the authority of the sixth activity, an
applicant could propose to investigate the extent to which workplace
supports provided by human service agencies enhance or hinder employer
productivity and the ability of employers to provide workplace
accommodations. The peer review process will evaluate the merits of the
proposal. However, NIDRR has no basis for requiring all applicants to
investigate the extent to which workplace supports provided by human
service agencies enhance or hinder employer productivity and the
ability of employers to provide workplace accommodations.
Changes: None.
Priority 5: Educational Supports
Comment: The RRTC should address the needs of persons with
cognitive disabilities.
Discussion: Unless noted otherwise in a priority, any NIDRR-funded
project or center must address the needs of all persons with
disabilities, including those with cognitive disabilities.
Changes: None.
Comment: The RRTC should address the impact of culture on outcomes
of individuals entering or exiting postsecondary settings.
Discussion: NIDRR agrees that cultural variations may be an
important contributing variable related to the use of educational
supports and educational outcomes for persons with disabilities. An
applicant for any of the centers could propose to include cultural
factors in one or more activities. The peer review process will
evaluate the merits of the proposal. However, NIDRR has no basis for
requiring all applicants to include cultural factors in their
investigations.
Changes: None.
Rehabilitation Research and Training Centers
Authority for the RRTC program of NIDRR is contained in section
204(b)(2) of the Rehabilitation Act of 1973, as amended (29 U.S.C. 760-
762). Under this program the Secretary makes awards to public and
private organizations, including institutions of higher education and
Indian tribes or tribal organizations for coordinated research and
training activities. These entities must be of sufficient size, scope,
and quality to effectively carry out the activities of the Center in an
efficient manner consistent with appropriate State and Federal laws.
They must demonstrate the ability to carry out the training activities
either directly or through another entity that can provide that
training.
The Secretary may make awards for up to 60 months through grants or
cooperative agreements. The purpose of the awards is for planning and
conducting research, training, demonstrations, and related activities
leading to the development of methods, procedures, and devices that
will benefit individuals with disabilities, especially those with the
most severe disabilities.
Description of Rehabilitation Research and Training Centers
RRTCs are operated in collaboration with institutions of higher
education or providers of rehabilitation services or other appropriate
services. RRTCs serve
[[Page 34228]]
as centers of national excellence and national or regional resources
for providers and individuals with disabilities and the parents, family
members, guardians, advocates or authorized representatives of the
individuals.
RRTCs conduct coordinated, integrated, and advanced programs of
research in rehabilitation targeted toward the production of new
knowledge to improve rehabilitation methodology and service delivery
systems, to alleviate or stabilize disabling conditions, and to promote
maximum social and economic independence of individuals with
disabilities.
RRTCs provide training, including graduate, pre-service, and in-
service training, to assist individuals to more effectively provide
rehabilitation services. They also provide training including graduate,
pre-service, and in-service training, for rehabilitation research
personnel and other rehabilitation personnel.
RRTCs serve as informational and technical assistance resources to
providers, individuals with disabilities, and the parents, family
members, guardians, advocates, or authorized representatives of these
individuals through conferences, workshops, public education programs,
in-service training programs and similar activities.
RRTCs disseminate materials in alternate formats to ensure that
they are accessible to individuals with a range of disabling
conditions.
NIDRR encourages all Centers to involve individuals with
disabilities and individuals from minority backgrounds as recipients of
research training, as well as clinical training.
The Department is particularly interested in ensuring that the
expenditure of public funds is justified by the execution of intended
activities and the advancement of knowledge and, thus, has built this
accountability into the selection criteria. Not later than three years
after the establishment of any RRTC, NIDRR will conduct one or more
reviews of the activities and achievements of the Center. In accordance
with the provisions of 34 CFR 75.253(a), continued funding depends at
all times on satisfactory performance and accomplishment.
General Requirements
The following requirements apply to these RRTCs pursuant to these
absolute priorities unless noted otherwise. An applicant's proposal to
fulfill these proposed requirements will be assessed using applicable
selection criteria in the peer review process.
The RRTC must provide: (1) training on research methodology and
applied research experience; and (2) training on knowledge gained from
the Center's research activities to persons with disabilities and their
families, service providers, and other appropriate parties.
The RRTC must develop and disseminate informational materials based
on knowledge gained from the Center's research activities, and
disseminate the materials to persons with disabilities, their
representatives, service providers, and other interested parties.
The RRTC must involve individuals with disabilities and, if
appropriate, their representatives, in planning and implementing its
research, training, and dissemination activities, and in evaluating the
Center.
The RRTC must conduct a state-of-the-science conference and publish
a comprehensive report on the final outcomes of the conference. The
report must be published in the fourth year of the grant.
Priorities
Under 34 CFR 75.105(c)(3), the Secretary gives an absolute
preference to applications that meet the following priorities. The
Secretary will fund under this competition only applications that meet
one of these absolute priorities.
Research Priorities in Employment of Persons with Disabilities
Issues in the Employment of Persons With Disabilities
Unemployment and underemployment among working-age Americans with
disabilities are ongoing problems. Data from the U.S. Census Bureau on
the labor force status of persons ages 16 to 64 in fiscal year 1996
highlight the magnitude of this problem (see Table 1). While four-
fifths of working-age Americans were in the labor force and over three-
fourths were working, less than one-third of persons with disabilities
were in the labor force, and only one-quarter of them were working.
Fully two-thirds of working-age persons with disabilities were not in
the labor force, a statistic suggesting that many who may want to work
have given up looking for a job. Finally, among those in the labor
force, the unemployment rate for persons with disabilities is more than
double that of nondisabled workers (12.6 percent versus 5.7 percent).
Table 1.--Labor Force Participation of Working-Age Adults With Disabilities
----------------------------------------------------------------------------------------------------------------
Employed
In labor -------------------------- Not in
Working-age Americans force Total Full time labor force
(percent) (percent (percent) (percent)
----------------------------------------------------------------------------------------------------------------
All working-age persons..................................... 81.3 76.7 62.6 18.7
Working-age persons with disabilities....................... 31.8 27.8 17.7 68.2
----------------------------------------------------------------------------------------------------------------
Recent analyses of data from the Survey of Income and Program
Participation (SIPP) (McNeil, J., Americans with Disabilities: 1994-99,
Current Population Reports, P70-61, U.S. Census Bureau, 1997) describe
earnings discrepancies among working adults based on disability status.
As shown in Table 2, median monthly earnings of working males without a
disability ($2,190) are nearly $1,000 higher than those of workers with
a severe disability ($1,262). Working females without a disability earn
$500 more in median monthly earnings than do females with a severe
disability ($1,470 versus $1,000).
Recent trends in the nation's labor market exacerbate the
difficulties experienced by persons with disabilities in their attempts
to gain employment and even in their motivation to seek employment.
Downsizing, for example, has led to a reduction in the percentage of
individuals in the labor force with stable, long-term jobs that offer
employee benefits. There has been an increase in the use of contingent
labor as business and industry move to other configurations that fill
labor needs without requiring a long-term commitment to workers. This
contingent workforce takes many forms, including on-call workers,
temporary help agency workers, workers provided by contract firms, and
independent contractors paid wages or salaries directly from the
company (Uchitelle, L., ``More Downsized Workers Are
[[Page 34229]]
Returning as Rentals, New York Times, December 8, 1996; Clark, R.,
``Planning for the Future Environmental Scanning Forum: Final Report,''
Office of Special Education and Rehabilitative Services (OSERS),
Washington, DC, 1997). Many of these types of jobs lack the security
and benefits, particularly health insurance, that most persons with
disabilities require in order to participate in the labor force.
Further, some individuals believe that the nation's political climate
is such that government supports for underemployed persons are likely
to decline in the future (Clark, R., ibid.; Conlan, T., Planning for
the Future Environmental Scanning Forum: Final Report, OSERS,
Washington, DC, 1997).
Table 2.--Monthly Earnings of Nondisabled and Disabled Working Adults,
1994-95
------------------------------------------------------------------------
Median monthly earnings
--------------------------------------
Gender No Nonsevere Severe
disability disability disability
------------------------------------------------------------------------
Male............................. $2,190 $1,857 $1,262
Female........................... 1,470 1,200 1,000
------------------------------------------------------------------------
In addition, while many of the nation's business and education
communities point to the need for highly educated, highly skilled
workers if the nation is to succeed in the increasingly competitive
global economy, the reality is more complex. On the one hand,
availability of high-skilled jobs combined with rapid advances in
technology may in fact improve the employment prospects of persons with
disabilities as well as other workers, through such work arrangements
as telecommuting and expanding the market for self-employment or small
business. On the other hand, a sizable segment of the labor market
includes low-skilled, low-paying jobs, in which persons with
disabilities are disproportionally represented (Hayward, B., and
Tashjian, M., ``A Longitudinal Study of the Vocational Rehabilitation
Service Program: Second Interim Report, ``Characteristics and
Perspectives of Vocational Rehabilitation Consumers,'' Research
Triangle Institute, 1996).
Researchers have suspected a relationship between changes in the
configuration of the nation's labor market and growth in the number of
persons with disabilities who are recipients of disability benefits,
but such a relationship is hard to demonstrate empirically (Rupp, K.
and Stapleton, D., ``Economic and Noneconomic Determinants of the
Growth in the Social Security Administration's (SSA's) Disability
Programs--Overview of Theories and Evidence,'' Social Security
Bulletin, 58(4), pgs. 43-70, 1995). In the past ten years, the number
of persons who receive cash benefits through Social Security Disability
Insurance (SSDI) and Supplemental Security Income (SSI) has increased
by two-thirds, with SSA paying out approximately $72 billion annually
to eight million recipients. Including Medicare and Medicaid benefits,
the annual Federal expenditure exceeds $110 billion, and policymakers
expect the costs of cash benefits alone will exceed $110 billion
annually by the end of the current administration (Coelho, T.,
``Keynote Speech: Employment Post the Americans with Disabilities
Act,'' Conference sponsored by the SSA, Washington, DC, 1997).
In addition to the changing macroeconomic work world, there are
important changes in the conceptualization of disability. In this
``new'' disability paradigm, there is increased emphasis on the
environment's role in creating barriers to an individual's with
disability participation in society. NIDRR will support research that
focuses on how the individual interacts with society. In terms of
employment, this interaction may focus on environmental barriers to
employment, including transportation, accommodations, attitudes, or
programmatic barriers such as health insurance.
Recent investigations into the explosive growth of the disability
benefit rolls and the inability of the existing service delivery system
to return greater numbers of beneficiaries to employment have
identified a wide variety of issues that merit further research. For
example, data available from the Longitudinal Study of the Title I
Vocational Rehabilitation Program indicate that the current structure
of SSA benefits and work incentives is not adequate to address consumer
concerns about income security (Hayward, B. and Tashjian, M., op.
cit.). As shown in Table 3, when asked to identify reasons for not
working, a substantially higher percentage of beneficiaries identified
concern about a loss of total income or medical coverage than did
nonbeneficiaries.
Addressing the issue of medical coverage is especially critical,
since less than half (43.7 percent) of all persons aged 22 to 64 years
old with a severe disability have private health insurance (McNeil, J.,
op. cit.). Under the current benefit structure, availability of medical
benefits is tied to eligibility for cash benefits. Loss of medical
coverage associated with a return to work is the major concern for many
beneficiaries contemplating employment. As the data also suggest, many
beneficiaries, who have little to no work history, are concerned that
the income they might receive from available employment will not match
the combined value of cash benefits and medical coverage they receive
through SSA.
A number of public and private initiatives target employment for
persons with disabilities. These include the State-Federal Vocational
Rehabilitation Program, community rehabilitation program services,
school-to-work programs, and employer sponsored programs primarily
targeted at individuals already in the work force. For the past 75
years, the chief avenue of publicly
[[Page 34230]]
Table 3.--Self-Reported Reasons for Not Working
------------------------------------------------------------------------
Nonbeneficiaries
Issues preventing consumers from SSI/DI with severe
obtaining employment or working beneficiaries disabilities
regularly (percent) (percent)
------------------------------------------------------------------------
I am afraid I would lose my medical
insurance............................. 48.3 26.5
I am afraid I could not get back on
benefits if I lost the job............ 50.8 26.1
I do not think I could earn as much
working as I get from my benefits..... 42.1 19.8
------------------------------------------------------------------------
funded employment-related services to improve the employment status of
persons with disabilities has been the State-Federal Vocational
Rehabilitation Program, currently authorized under the Rehabilitation
Act of 1973, as amended. Funded at $2.3 billion in Federal funds for
fiscal year 1998 and a 22 percent State match for a total of an
estimated $3 billion annually, the State-Federal Vocational
Rehabilitation Program is designed to assist States in providing state-
of-the-art, comprehensive and coordinated vocational rehabilitation
services. State Vocational Rehabilitation agency staff assist persons
with disabilities to establish vocational goals that are consistent
with their strengths, resources, priorities, concerns, abilities, and
capabilities in order that they may prepare for and engage in gainful
employment. The program is authorized to provide an array of services
that are intended to facilitate the employment of persons with
disabilities, such as assessment, counseling and guidance, vocational
or other training, physical and mental restoration, maintenance, and
other necessary services and supports.
Reform of the current rehabilitation service delivery system is
underway, and the possible effects of changes in the system require
investigation. The State-Federal Vocational Rehabilitation Program is
increasing consumers' control and expanding their role in policy
development, implementing program performance standards, and
streamlining the vocational rehabilitation process. In addition to
these and other changes in the State-Federal Vocational Rehabilitation
Program, a host of other ongoing reforms in the broader service
delivery environment are occurring. In particular, the recent growth in
the number of SSI/SSDI beneficiaries has sparked considerable
Congressional interest in reforming the system of employment services
that target persons with disabilities. Congressional interest includes
revising existing SSA work incentives and expanding consumer choice in
the selection of a vocational rehabilitation service provider through
return-to-work tickets or vouchers for some or all recipients of
disability benefits. Implementation of a return-to-work ticket program
may have significant implications for current and future SSI/SSDI
beneficiaries, including the level of control they will have over
decisions about whether to participate in such a program, the selection
of an employment goal and specific rehabilitation services, and changes
in service providers or employers over time.
There are nearly 7,000 CRPs serving approximately 800,000
individuals with disabilities each day with funding from State
vocational rehabilitation agencies, Job Training Partnership Act (JTPA)
programs, Workman's Compensation, Medicaid, private insurance, and
other sources (Menz, F., ``Vocational Rehabilitation Research in the
United States of America,'' Vocational Rehabilitation in Europe, p.
107, 1997). The role of CRPs in the overall service delivery
environment may increase even further if Federal employment programs
devolve to States and communities. CRPs may need to be prepared to
offer a full range of vocational-related services, or highly
specialized services to an increasingly heterogeneous consumer
population. If return-to-work programs in which provider payments are
based on successful consumer outcomes are among the new service
delivery models implemented, new relationships between service
providers and funding sources may emerge over the next few years. These
new relationships are likely to require CRPs to adapt their current
structure and operations in significant ways.
A number of questions about how these changes may potentially
influence and affect CRPs remain unanswered. For instance, more needs
to be known about the impact of consumer choice on different service
delivery models and the efficacy of different models to maximize
competitive employment outcomes for persons with severe disabilities or
with specific types of disabilities. Finally, whether new funding
mechanisms will promote increased competition and innovation in service
delivery by CRPs is a major question. Knowledge about these and related
areas is essential to validating assumptions around which pending
reforms are predicated and to help shape the future direction of
initiatives designed to increase the numbers of persons with severe
disabilities who obtain and retain meaningful employment.
Workplace supports are programs or interventions provided in the
workplace to enable persons with disabilities to be successful in
securing and maintaining employment. Some workplace supports may be
provided through formal mechanisms established by vocational
rehabilitation programs, such as supported employment. Supported
employment programs usually provide onsite assistance, provided by a
job coach who works with the person with the disability as well as with
co-workers and supervisors to ease the transition to the competitive
employment setting (``Evaluating the Effectiveness and Efficiency of
Supported Employment Programs,'' Policy Research Brief, Volume 5, No.
2, Center on Residential Services and Community Living, College of
Education, University of Minnesota, 1993).
In addition, employers have developed a number of support
mechanisms in the form of return-to-work programs and related
disability management programs. These programs use case management
strategies to ensure communication among medical providers,
supervisors, and employees to prevent disability; or, when accidents or
disease occur, to foster early return-to-work. Particularly important
to these programs is the establishment of a framework that sends a
clear message that the employer wants the employee to continue working
or to return to work as quickly as appropriate. Workplace supports also
include employer willingness to implement accommodations and to
encourage supervisors to work to integrate the person with disability
back into the workforce. Often the reintegration process requires that
treatment personnel understand job requirements
[[Page 34231]]
and essential job functions in order to assess the ability of the
employee to perform the job adequately. Finally, incentives embedded in
employee benefit plans must be used to encourage the worker to maintain
employment.
In addition to workplace supports, employees are protected under
Title I of the Americans with Disabilities Act (ADA) which prohibits
discrimination on the basis of disability in employment. This law
requires that employers with 15 or more employees provide qualified
persons with disabilities an equal opportunity to benefit from the full
range of employment-related opportunities available to others. The ADA
prohibits employers from discriminating against workers with
disabilities and applies to individuals with disabilities who are
seeking employment, as well as to those who are employed. Employers
must provide reasonable accommodations to workers to overcome
disability-related barriers to performing essential job functions. In
addition, various government programs have experimented with strategies
to improve employer receptivity to workers with disabilities, including
tax credits and partial support of health benefits to encourage
employers to hire persons with disabilities. Given the role that
workplace supports can play in assisting employers to expand and
improve employment opportunities for persons with disabilities,
investigation of issues related to the development and implementation
of innovative workplace supports is essential.
Over the past 20 years, changes in the nation's labor market have
increased the importance of post-high school education in terms of
employment success. Gingerich reported unemployment rates of persons
with disabilities by level of education as follows: 12 percent among
individuals with less than a high school diploma, 6.3 percent among
those with a diploma, 4.2 percent among persons with some postsecondary
education, and 2.5 percent among persons with at least four years of
college. In 1992, earnings of college graduates were 50 percent higher
than those of persons with only a high school diploma (Gingerich, J.,
``Vast Spaces and Stone Walls: Overcoming Barriers to Postsecondary
Education for Rural Students with Disabilities,'' American Council on
Rural Special Education Conference, 1996).
Concurrently, the percentage of postsecondary students reporting a
disability has tripled, from less than 3 percent in 1978 to over 9
percent (about 140,000) in 1994. The largest growth has been students
reporting a learning disability, representing about one-third of all
postsecondary students reporting a disability, double the 1988 figure
of 15 percent (Henderson, C., ``College Freshmen with Disabilities: A
Statistical Profile,'' American Council on Education, Washington, DC,
1995). Ongoing research sponsored by the Office of Special Education
Programs (OSEP), U.S. Department of Education, is testing a methodology
to determine the types of services youth exiting secondary school can
be expected to require in their transition to adulthood (``Services
Anticipated to Be Needed by Exiting Students with Disabilities: Results
of the Second PASS Field Test,'' OSEP, 1996). While case management is
the most frequently needed service (up to 80 percent of exiting youth
require this service), over half will reportedly require services to
support their participation in postsecondary education, including two-
and four-year colleges and various forms of adult literacy programs
(e.g., General Equivalency Diploma preparation, adult high schools, and
adult basic education) (OSEP, ibid.).
Most of the nation's 3,000 postsecondary institutions offer support
services to students with disabilities. Such services vary widely and
may include: (1) individual academic accommodations (e.g., note taking,
library and typing assistance, alternative testing arrangements, books
on tape, readers, interpreters, tutors, and waivers of course
requirements); (2) adaptive equipment (portable wheelchair-accessible
desks, voice-activated computers, speech synthesizer-equipped
computers); (3) case management and coordination (liaison with
vocational rehabilitation, independent living, and other community
resources); (4) advocacy; and (5) personal counseling, academic and
career advising.
Given that such disability-related services are a relatively new
addition to the postsecondary environment, a number of issues
associated with their provision merit investigation, including: (1)
whether the requirement that a person disclose his disability in order
to obtain services is a deterrent to postsecondary enrollment and
completion; (2) accessibility of vocational rehabilitation or other
funding sources of funds for services not covered under ADA or Section
504 of the Rehabilitation Act of 1973, as amended, but necessary for a
student's continued enrollment; (3) the impact of such services on
students' completion of postsecondary education; and (4) the extent to
which the institution provides transitional support to graduates as
they attempt to enter the labor force.
To accommodate the changing nature of the nation's employment
environment, along with anticipated policy changes that will affect all
segments of the employment and training delivery system, NIDRR intends
to apply new approaches and rigorous methods to research about the
employment of persons with disabilities. Fundamental to these
approaches and methods is NIDRR's intent to support research that is
outcome based and has a high likelihood of making significant
contributions to the advancement of knowledge and improved service
delivery. NIDRR proposes a research agenda that emphasizes
collaborative, interdisciplinary studies that contribute to knowledge
about problems and issues related to the employment of persons with
disabilities.
Priority 1: Disability and Employment Policy
Background
The effect of macroeconomic trends on the employment of persons
with disabilities and public policy responses to these trends merit
increased investigation. A coordinated research effort must examine
issues, (e.g., the changing structure of the workforce, economic
trends, labor market changes, new skill requirements, incentives and
disincentives to work, devolution of responsibility for employment
training to State and local levels, and new service delivery patterns
that necessitate changes in Vocational Rehabilitation Program
configurations) to improve employment and economic self-sufficiency for
persons with disabilities. Of particular interest are implications of
cross-agency and multiple agency developments and initiatives,
including welfare reform, workforce development, changes in Social
Security benefits and disability determination policies, Medicare and
Medicaid changes, and the U.S. Department of Education--U.S. Department
of Labor school-to-work program. Investigative studies that are
national in scope and test alternative models for financing services,
and infrastructure changes that may yield increased opportunities for
persons with disabilities are essential.
Priority 1
The Secretary will establish an RRTC on disability and employment
policy for the purpose of improving our understanding of public policy
and its relationship to improving employment
[[Page 34232]]
outcomes for persons with disabilities. The RRTC shall:
(1) Develop predictive models for national macroeconomic trends
affecting employment of persons with disabilities;
(2) Identify and analyze the relationship between select Federal
and State policies including, but not limited to, welfare reform and
innovations in Social Security programs affecting persons with
disabilities, the Executive order on ``Increasing Employment for Adults
with Disabilities'', and issues of contingent workforce and
accompanying changes (e.g., part-time benefits and demands for new and
flexible skills), upon the employment of persons with disabilities;
(3) Using existing data, conduct a comprehensive analysis of the
employment status of persons with disabilities, identifying gaps in
current data availability and collection methodologies;
(4) Identify and analyze the factors, such as pre- and post-
disability earnings, education, type of job, personal assistance
service, and benefit design, that predict return-to-work;
(5) Analyze the policy implications of outcome-based reimbursement
on the delivery of employment and rehabilitation services to persons
with disabilities;
(6) Identify and analyze the effect of civil rights protections and
environmental factors (e.g., barriers to transportation and employer
attitudes) on significantly promoting or depressing the employment
status of persons with disabilities; and
(7) Identify and analyze policies and resource availability issues
that foster or impede the participation of transitioning students in
rehabilitation training or employment services programs.
Priority 2: State Service Systems
Background
The public vocational rehabilitation service system is in the midst
of major reform. The 1992 amendments to the Rehabilitation Act
mandated: (1) expanded consumer choice in the selection of goals,
services, and providers; (2) implementation of program performance
standards for State vocational rehabilitation agencies; and (3) an
expanded consumer role in policy developed through the Rehabilitation
Advisory Councils. The influence of these and other changes, such as a
streamlined vocational rehabilitation process, on employment outcomes
for persons with disabilities is unknown. Moreover, the current and
future impact of recent reforms in the broader service delivery system,
such as workforce development consolidation and return-to-work programs
employing vouchers or ``tickets,'' merit investigation.
Priority 2
The Secretary will establish an RRTC for the purpose of improving
the effectiveness of State service systems on promoting employment
outcomes for persons with disabilities. The RRTC shall:
(1) Describe the State systems that deliver employment services to
persons with disabilities, including transitioning students. Identify
how and to what extent the different components of the system, such as
State vocational rehabilitation agencies, disability determination
services, JTPA's Private Industry Councils, one-stop shops, and
schools, coordinate their efforts;
(2) Analyze existing State and Federal data sets, including client
and service provider characteristics, to determine different employment
outcomes for persons with disabilities;
(3) Describe how State vocational rehabilitation agencies and other
agencies within the State service delivery system overcome
environmental barriers (e.g., using assistive technology, jobsite
modifications, and personal assistance services) in order to improve
employment outcomes;
(4) Evaluate the success of State service system efforts to address
the unique employment-related needs of SSDI and SSI beneficiaries and
identify State systems that have implemented demonstrably effective
employment programs in assisting recipients of disability benefits to
achieve a successful return-to-work; and
(5) Describe the progress of State and Federal initiatives to
consolidate workforce development programs and identify policies and
procedures that have been successful in ensuring the availability and
provision of services to persons with the most severe disabilities.
Priority 3: Community Rehabilitation Programs
Background
Proposed restructuring of the financing of employment-related
services for persons with disabilities assumes a major role for CRPs.
The capacity and potential contributions of an estimated 7,000 CRPs
across the nation require thorough investigation. Further, the
potential of this system to assume greater responsibility for service
delivery under contractual or other agreements (e.g., return-to-work
``ticket'' systems for SSDI and SSI recipients) merits study.
Priority 3
The Secretary will establish an RRTC on CRPs to improve their role
in promoting employment outcomes for persons with disabilities. The
RRTC shall:
(1) Describe the CRPs service delivery system, including the
characteristics of providers, funding sources, nature and extent of the
services provided, and individuals served, and identify the relative
contributions of the programs to providing rehabilitation and
employment services.
(2) Identify how services delivered by CRPs to State vocational
rehabilitation agency consumers differ in quality, timeliness,
quantity, costs, or outcomes from those delivered to consumers through
other payor sources;
(3) Investigate the extent to which CRPs provide consumers with
choices in the selection of employment goals and specific
rehabilitation services;
(4) Analyze the impact of Federal and State policies on the
structure and operation of CRPs, including management approaches,
staffing configurations and staff training, outreach to underserved
populations, and emerging service configurations; and
(5) Evaluate the nature and success of employment outcomes of
persons who obtain services from CRPs.
Priority 4: Workplace Supports
Background
The work environment for persons with disabilities, including both
the physical environment (as represented by job requirements, job site
accommodations, and technological aids), and the roles of employers,
supervisors, and co-workers, has received insufficient attention in
past research. An improved understanding of the work environment and
employer needs and preferences is necessary to improve employment
outcomes. Employer disability management and return-to-work programs
are one potential source of information on effective employer
accommodation strategies for employees with disabilities. NIDRR will
support research that investigates employer roles, collaboration
between education and rehabilitation professionals and employers,
strategies to improve employer receptivity to workers with
disabilities, and the impact of incentives, such as tax credits and
[[Page 34233]]
partial support of health benefits, to encourage employers to hire
persons with disabilities. In addition, this research will examine the
viability of new work structures, including telecommuting, flexible
work hours and self-employment, for persons with disabilities.
Priority 4
The Secretary will establish an RRTC on workplace supports for the
purpose of identifying and evaluating effective workplace supports that
improve employment outcomes for persons with disabilities. The RRTC
shall:
(1) Analyze the potential of existing or new employer incentives,
such as tax credits or Medicare buydowns to improve labor force
participation of persons with disabilities;
(2) Develop and test financial analysis methodologies, such as
return on investment or economic value added to measure effectiveness
of employer workplace supports and their contribution to employer
profitability;
(3) Identify and evaluate effective employer disability management,
return-to-work, or other strategies that affect hiring, retention, and
advancement of workers with disabilities;
(4) Evaluate the impact of workplace support on changes in the
employment status of persons with disabilities in terms of job types,
career advancement, and other outcomes important to meaningful
employment of persons with disabilities;
(5) Conduct research to determine how changes in work structure
will affect hiring, retention, advancement, and job satisfaction for
persons with disability; and
(6) Examine perspectives of employers to determine their needs
(e.g., for information, training, and resources) that will facilitate
the employment of individuals with disabilities with necessary work
support.
Priority 5: Educational Supports
Background
The U.S. Department of Education Strategic Plan, 1998-2002,
describes postsecondary education as ``America's traditional gateway to
the professions, more challenging jobs, and higher wages.''
Insufficient information exists about the use and impact of educational
supports for persons with disabilities in postsecondary environments.
Of particular interest are the types of educational and transition
assistance that postsecondary institutions make available to improve
the educational and subsequent labor market success of students with
disabilities. Systemic and environmental barriers to full participation
in postsecondary programs by individuals with disabilities must be
studied as well. In addition, promising postsecondary educational
practices important to the career mobility and success of individuals
with disabilities must be investigated, at a minimum, to determine
whether educational supports are available as needed, and whether they
are effective in improving the educational performance of individuals
with disabilities.
Priority 5
The Secretary will establish an RRTC on educational supports to
increase access and improve outcomes for individuals with disabilities
in postsecondary education programs. The RRTC shall:
(1) Identify the nature and range of educational supports that are
available to students with disabilities in postsecondary educational
programs by type of program (e.g., colleges, vocational and technical
institutes, adult educational programs) and type of disability;
(2) Examine the contributions of technological advances to the
effectiveness of student support systems at the postsecondary level;
(3) Investigate the effectiveness of educational supports in terms
of educational outcomes and labor force participation; and
(4) Investigate the extent to which institutional supports extend
to the employment environment, with particular emphasis on the special
needs of persons with severe disabilities.
Electronic Access to This Document
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Education documents published in the Federal Register, in text or
portable document format (pdf) on the World Wide Web at either of the
following sites:
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To use the pdf you must have the Adobe Acrobat Reader Program with
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Printing Office toll free at 1-888-293-6498.
Anyone may also view these documents in text copy only on an
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or, toll free, 1-800-222-4922. The documents are located under Option
G--Files/Announcements, Bulletins and Press Releases.
Note: The official version of this document is the document
published in the Federal Register.
Applicable Program Regulations: 34 CFR Part 350.
Program Authority: 29 U.S.C. 760-762.
(Catalog of Federal Domestic Assistance Number 84.133B,
Rehabilitation Research and Training Centers)
Dated: June 17, 1998.
Judith E. Heumann,
Assistant Secretary for Special Education and Rehabilitative Services.
[FR Doc. 98-16593 Filed 6-22-98; 8:45 am]
BILLING CODE 4000-01-P