Vocational Rehabilitation Program (Combined or General)

A. Support innovation and expansion activities

The Innovation and Expansion authority is utilized to support the Indiana State Independent Living Council (INSILC), as well as new and innovative initiatives that open the door for new employment opportunities for individuals with disabilities and/or increase opportunities for those with the most significant disabilities. This includes continued investment in VR’s Business and Community Engagement Team to lead business outreach efforts for the VR program and serve as an initial point of contact for businesses, facilitating necessary connections with resources and partners. The team also provides technical assistance to local VR field offices on effectively working with businesses, including supporting enhanced opportunities for on-the-job training or other work-based learning for VR participants. Partnership and strong collaboration with community stakeholders and employers continues to result in networking events that facilitate the connection of employers directly to VR participants who are seeking employment.

B. Overcome barriers to accessing VR and supported employment services

BRS continues to partner with the Arc of Indiana and Self-Advocates of Indiana to provide career counseling and information and referral services (CCIR) to individuals employed at subminimum wage.  CCIR services were originally provided largely in a group setting format, however as of July 2023, CCIR services have shifted to a one-to-one approach. Individual CCIR provides opportunity to tailor services to individuals. Attendees receive information about local resources regarding employment services and other-related information; discuss potential competitive, integrated employment opportunities and ways to learn more about a new career field (i.e., informational interviewing or job-shadowing); and discuss the importance of seeking assistance and guidance from a support network, such as family members or friends.  Attendees receive a certificate of participation documenting completion of the CCIR activities.  

VR recognized individuals with mental health disabilities as an underserved population as outlined in both the 2019 and 2022 CSNAs in terms of the effectiveness of services and achievement of employment outcomes. A dedicated workgroup was established in 2019 comprised of representatives from VR, DMHA, CMHCs, NAMI, Key Consumer Organization, the Indiana Mental Health Council, and individuals with lived experience. DMHA and VR collectively sought and received an opportunity for training and technical assistance through ODEP, securing two rounds of training and TA. The project is focused on capacity building to improve competitive, integrated employment outcomes for individuals with mental health disabilities, including supporting two early adopter Individual Placement and Support (IPS) sites since late 2021 with plans for expansion in early 2024.

The reduced capacity of VR employment service providers has led to new challenges with access to employment services, including supported employment services. Many providers have implemented wait lists for services which has delayed service provision and may have impacted customer engagement. BRS has implemented several strategies to mitigate this challenge, including a rate increase in April 2022 and implementation of performance incentive payments in July 2023. VR has also initiated a virtual job club, led by VR staff, to better engage participants and provide options for guided, self-directed career exploration. VR also contracted with nine Navigators to support VR participants in accessing services from other workforce programs, as services through local Work One offices have historically been underutilized by VR participants but may offer great value, particularly in light of provider capacity challenges.

C. Improve and expand VR services for students with disabilities, including the coordination of services designed to facilitate the transition of such students from school to postsecondary life (including the receipt of VR services, post-secondary education, employment, and pre-employment transition services)

Youth VR Counselors have developed relationships with businesses at their local level to improve services for transition aged youth by increasing the number of work-based learning experiences available to pre-ETS students and other youth. BRS has a dedicated youth services director, a youth services associate director, and 10 youth counselors located throughout the state, who have worked to expand and improve relationships with key transition stakeholders. The director facilitates the VR Transition Advisory Council, engaging in one-on-one conversations, and presenting and educating various stakeholder groups about VR and pre-employment transition services, including having youth counselors present at each advisory council meeting on pre-ETS and other transition related initiatives in their regions. The Transition Advisory Council has been instrumental in increasing outreach and education related to transition aged youth.  Specifically, collaboration with representatives from PCG, DOE, and DWD on the council has aided in outreach to school systems, training of educators on transition, VR, and Pre-ETS, and services available to transition-aged youth through DWD and other sources.  

Furthermore, the 10 VR youth counselors have completed and continue to update maintenance and expansion plans with local schools, providers, and VR offices to identify best practices and gaps in services, have helped to facilitate improved relationships at the local level between VR and schools, and have worked with VR’s Director of Youth Services to outline recommended best practices and improved strategies for VR transition efforts. These staff are discussed in greater detail throughout the VR section of the state plan.

D. Improve the performance of the VR and Supported Employment programs in assisting individuals with disabilities to achieve quality employment outcomes. List and number each goal/priority, noting the basis, and under each goal/priority, list, and number the strategies to achieve the goal/priority.

Goal 1: Improve VR participant engagement and participation

Priority 1.1: Rapid and quality engagement of individuals

Basis: Data from the VR-Technical Assistance Center for Quality Management, funded by RSA, indicates that a shorter turnaround time from application to eligibility and IPE, leads to a higher rate of rehabilitation. Additionally, there has been little improvement in reducing the percent of eligible individuals exiting the VR program prior to IPE or after IPE without employment. In PY22 quarter 4, of all exits from VR, 17% exited after eligible and before IPE, and 43.6% exited after IPE but prior to obtaining an employment outcome (data source: RSA dashboard reports). This attrition rate negatively impacts the overall employment outcomes for the VR program. Furthermore, while many positive comments are received  through customer satisfaction surveys, one concerning theme has been dissatisfaction with the length of time it takes to receive services for some individuals.

• Strategy 1.1a: Decrease time from application to eligibility. Average days from application to eligibility will average 30 days or less by the end of the state plan period.  (PY22 baseline: 36.02; data source: Aware and Tableau dashboards).
• Strategy 1.1b: Review processes to identify opportunities to streamline or modernize, such as provision of specific services including hearing aid devices, and opportunities for increased efficiency with information technology systems.  Implement at least 2 strategies each year during state plan period.

• Strategy 1.1c: Explore opportunities for streamlining application or eligibility determination processes with other agencies, including Bureau of Disability Services (BDS) and Division of Mental Health and Addiction (DMHA). Identify and implement at least two strategies during the state plan period.
• Strategy 1.1d: Continue to focus training efforts to VR Counselors on the importance of quality interactions with participants. Training or technical assistance related to this topic area will be provided at least twice per year during the state plan project period, such as technical assistance provided in regional staff meetings, Friday field chats, or statewide training opportunities.

Priority 1.2: Serve all eligible individuals

Basis: BRS has been operating under an order of selection since August 2017 and has retained a goal of opening all service categories and ending the order of selection. This goal remains a priority so that all eligible individuals can receive services. This will not only benefit eligible individuals in need of VR services, but may also contribute to improved trends in the number of individuals receiving services and exiting with employment.

• Strategy 1.2a: Continue quarterly order of selection waitlist releases until all eligible individuals on the wait list are offered services. All service priority categories will be open by December 2024.

Priority 1.3: Increase participation of students and youth in the VR program

Basis: There has been a decline in the percent of VR participants served who are students and youth (age 24 and younger) with disabilities from 48% in the fourth quarter of PY20 to 39% in the fourth quarter of PY22 (data source: RSA dashboard report). This could have been impacted by the growth in the number of students served in pre-ets from PY 20 to PY22, but remains an area of needed improvement. Additionally, only 9% of students receiving pre-ets are applying for VR services as of the end of PY22 (data source: RSA dashboard report). RSA has indicated that this is below average compared to other state VR agencies.

• Strategy 1.3a: Provide training to pre-ets providers on the VR referral process and the role they can play in facilitating referrals of students with disabilities. Training will be conducted annually, resulting in a 10% increase in the portion of pre-ets students who apply for VR services each year (PY22 baseline: 9%; data source: RSA dashboard report).
• Strategy 1.3b: Review referral practices with schools and local VR offices and address areas of improvement as needed to support an increase of student applications to VR. The number of students entering VR or pre-ets will represent at least 30% of students age 14-22 receiving services through an IEP or 504 plan reported by DOE annually (current performance for PY22: 16,545 or 26% of students reported on RSA PY22 dashboard report, of 15,100 students age 14-22 with 504 plan and 38,169 students 14-24 on IEP as reported by DOE December 2022).
• Strategy 1.3c: Youth VR counselors will support efforts to increase the number of potentially eligible pre-ETS students who apply to VR, through a comprehensive review of pre-ets cases annually.  Youth VRCs will identify students who need referral to VR, including those nearing exit from school and will facilitate the referral process as needed. This review will be conducted by December of each academic year.
• Strategy 1.3d: Identify promising practices in the delivery of required Pre-ETS and transition activities, such as Seamless Transition projects in partnership with BDS, the use of peer mentors for students with disabilities, increased student involvement in the development of Pre-ETS curricula at the local level, and coordination with Indiana Career Explorer on transition related initiatives. At least one promising practice will be implemented annually during this state plan period.

Overall measure: VR participant attrition will decrease by at least 10% during the state plan period (PY22 Q4 RSA Dashboard baseline: Of all exits for that quarter, 60.7% exited VR services after eligibility and prior to signed IPE or after IPE without an employment outcome).  

Goal 2: Improve quality and quantity of outcomes

Priority 2.1: Build VR service delivery capacity, including increased capacity of vendors to provide timely and quality services

Basis: Many VR employment service providers have implemented wait lists or waiting periods for new referrals from VR. For example, in the Indianapolis area, the largest metropolitan region in the state, VR field managers have reported that all providers serving the area except for two, have had a wait list over the last year. This accounts for at least 90% of providers serving the Indianapolis and surrounding area. Providers report experiencing significant turnover of staff and this was validated through a quarterly provider capacity survey VR conducted during 2022. 76.7% of respondents indicated they experienced 1-2 vacancies each quarter during 2022. This is significant when considering that most providers, well over two-thirds, have 7 or less staff with half of those employing 3 or less staff. The survey results indicate that the vacancy rate accounts for 50-100% turnover for teams of 4 or less, and 14-40% turnover for teams of 5-7.

• Strategy 2.1a: Evaluate the impact of Employment Service Provider performance outcome payments implemented in July 2023. Evaluation will be completed before the end of the state plan period, including identification of applicable revisions. 
• Strategy 2.1b: Pursue opportunities for enhanced training and technical assistance to VR Employment Service providers with the goal of improving provider performance and outcomes, such as through the Establishment authority, disability innovation funds, or other allowable sources of funds. Training and technical assistance will begin during the state plan period. The most recent CSNA (Section B) has been updated to reflect specific strategies for improvement and expansion of CRPs through Establishment projects, including access to employment specialist training that meets ACRE competencies, targeted technical assistance for the improvement of the CRP, and supports for potential growth or expansion in order to increase capacity to serve more VR participants and improve the timeliness and quality of services.

Priority 2.2: Increase VR participant access to multiple pathways to employment

Basis: Given the service provider capacity challenges described above, as well as the need to support a more diverse population as BRS prepares to open all service priority categories, additional paths to employment will be necessary to more adequately meet the needs of VR participants.

• Strategy 2.2a: Enhance existing or develop new pathways for service delivery so that VR participants have access to a variety of pathways to pursue employment services.  This may include enhancement of VR led virtual job clubs, expansion of the vendor recruiter role, expanding employment services in CMHCs in partnership with DMHA including expansion of Individual Placement and Support, enhancing the role of the WIOA Navigators, and exploring provider requirements to identify opportunities to expand the network of service providers. At least three pathways will be enhanced for greater access, or a new pathway developed, during the state plan period.

Priority 2.3: Increase participation in work-based learning opportunities and attainment of measurable skills gains or credentials

Basis: While BRS exceeded the negotiated measures for measurable skill gains and credential attainment rate for PY22, only 13% of VR participants were enrolled in a training program or activity that leads to a measurable skill gain or credential (data source: RSA dashboard report PY22 Q4). Additionally, individuals who participate in work-based learning are more likely to achieve employment, and therefore increasing these opportunities is an important strategy in improving employment outcomes.

• Strategy 2.3a: Increase work-based learning opportunities for VR participants, which may include opportunities for increasing On-the-job training (OJT) services, increased partnerships with businesses to host participants, creating internship or apprenticeship opportunities with VR partners, or other work-based learning activities such as through pre-employment transition services or the supported employment plus (SE+) project. At least three new work-based learning strategies will be implemented during the state plan project period.
• Strategy 2.3b: Increase enrollment of VR participants in postsecondary training. Identify and implement strategies to increase enrollment such as continued targeted training to VR postsecondary Counselors, revisiting postsecondary education funding determination procedures, increasing outreach to students, and increasing provision of counseling on postsecondary opportunities through pre-ets. The number of VR participants enrolled in postsecondary education will increase by 10% each year during the state plan period (PY22 baseline: 671 participants with a postsecondary education goal; Data source: Aware and Tableau).

Overall measure: Total number of participants exiting with employment will increase by at least 25% by the end of the state plan period (PY22 baseline: 1,454; data source: RSA Dashboard report), with average hourly wages increasing by at least 15% by end of the state plan period (PY22 baseline: $15.10; data source: RSA Dashboard report).

Supported Employment Goal

Priority 2.4: Increase the quality of outcomes for individuals receiving supported employment services.

Basis: The average wages for those who received supported employment services and exited VR with an employment outcome are significantly lower than overall average wages for all employment outcomes.  ($11.71 compared to $15.10; data source: Aware and Tableau dashboard). Additionally, the average weekly work hours for those receiving supported employment services has remained steady at approximately 20 hours per week, (date source: Aware and Tableau dashboard) with limited or no growth from year to year.  

• Strategy 2.4a: BRS will identify and implement strategies to improve the quality of employment outcomes for individuals receiving supported employment services, such as identifying opportunities for enhanced counseling on benefits and work incentives, continued collaboration with the Bureau of Disabilities services to promote competitive integrated employment for individuals with developmental and intellectual disabilities, expansion of Individual Placement and Support in collaboration with the Division of Mental Health and Addiction, and evaluating the Supported Employment plus (SE+) Disability Innovation Fund project to identify emerging best practices. At least three strategies will be implemented during the state plan project period.
• Strategy 2.4b. Priorities and strategies 2.1-2.3 under goal 2 outlined above, are applicable to supported employment services. BRS is targeting a 15% increase in average wages for individuals exiting VR after receiving supported employment services by the end of the state plan period. (PY22 baseline average wages for individuals receiving supported employment services: $11.71; data source: Aware and Tableau dashboard.)