Vocational Rehabilitation Program (Combined or General)

Evaluation and Reports of Progress: VR

Goal 1: Improve the quality of services and outcomes

Priority 1.1:  Implement new innovative training strategies for VR Counselors and other VR staff, such as increased use of itinerant (working lead) VR Counselors as regional trainers, enhancements to web-based modules including development of content for VR Case Coordinators, or other strategies. Provide training to staff on post-secondary services, transition responsibilities, extended services to youth with a most significant disability, and training on strengths-based service provision to specific populations such as individuals with mental health conditions and individuals transitioning from subminimum wage employment to competitive, integrated employment. At least two new training focus areas will be identified annually with training provided to applicable staff during PY20-PY21. This goal is extended into PY22-PY23.

Outcome 1.1: Achieved. All training goals outlined above were achieved, along with provision of additional training including inclusive service delivery, cultural competencies, and training on serving individuals with substance use disorder. Significant training priorities during PY20-21 included serving individuals with mental health conditions and diversity, equity, inclusion and accessibility. An additional focus during PY22-23 was training around career pathways and postsecondary services. VR shifted approximately 20 current VR Counselor positions to focus on postsecondary services, and then subsequently created a postsecondary VR Counselor lead in each of the five VR regions. Intensive training was provided to these staff to improve consistency in the delivery of postsecondary training services and funding determinations. Postsecondary Counselor leads also perform quality assurance review of postsecondary Counselors in their regions and provide technical assistance. During the state plan period, VR also provided additional training to support individuals in the transition from subminimum wage to competitive integrated employment. VR has been in the planning year for the Disability Innovation Fund (DIF), Subminimum Wage to Competitive, Integrated Employment (SWTCIE) grant and has begun to roll out training in preparation for implementation of a model demonstration project in October 2023. New VR Counselors have been hired and have received initial training.

Priority 1.2: Identify and implement at least two new strategies during PY22-PY23 for effective training to VR employment service providers, including opportunities for hands-on training to build skills, training focused on strengths-based service provision to individuals with high support needs, opportunities for joint training with VR staff, and other needed topics. Identify additional strategies to build capacity within providers to serve VR participants, such as facilitating supervisor circles and obtaining recommendations from the Discovery cohort on needed revisions to Discovery service practices.

Outcome 1.2: Achieved. Supervisor circles have been well attended by management staff from providers across the state, to share best practices and learn about effective strategies and helpful resources. As part of the SWTCIE grant, 4 pilot provider organizations have received training to support improvement in the delivery of supported employment services. These pilot organizations also completed a baseline fidelity review to evaluate their level of fidelity and identify specific training needs to support areas of improvement in an effort to work toward high fidelity. The SWTCIE grant will support additional training, along with technical assistance, to help support those areas of improvement. The Discovery cohort presented written recommendations for the improvement of Discovery services, and some recommendations have begun to be implemented including issuing several helpful guidance documents to share best practices and provide helpful tools to VR and provider staff. Joint training was provided to VR and providers to share updates to benefits/work incentives counseling.

Priority 1.3:  Continue to engage appropriate stakeholders, including VR, Division of Mental Health and Addiction (DMHA), Community Mental Health Centers, NAMI, Key Consumer Organization, individuals with lived experience, and others through a statewide taskforce during PY22-PY23. The taskforce will continue its efforts to improve services and outcomes for VR participants with mental health conditions as well as serve as the advisory board for the early adopter IPS sites. In collaboration with DMHA, VR will evaluate outcomes of early adopter IPS sites such as employment rate, average wages and hours worked, length of time to placement, and other relevant data elements. Project evaluation will be conducted during the PY22-23 state plan period.

Outcome 1.3: Achieved. The taskforce has continued to meet quarterly. VR and DMHA meet biweekly to jointly support IPS implementation. A funding guidance document was jointly developed, which outlines approaches for braiding and sequencing VR and Medicaid dollars to support individuals receiving IPS and pursuing employment. The two early adopter IPS sites have been in place for two years. Data from year one was reviewed and compiled as of the submission of this state plan, reflecting a total of 89 participants served in year one. At the end of year one, 22 participants achieved employment, with the remaining either still pursuing employment or having exited the program. Additionally, VR and DMHA entered into an interagency written agreement in PY22 to formalize collaboration and facilitate information sharing.

Priority 1.4:  Identify and implement strategies to improve employment outcomes, such as exploration of the need for Establishment projects to further improve service provision by community rehabilitation programs, analysis of the impact of discovery activities on employment outcomes, increased utilization of supported employment services, sharing emerging best practices, or other strategies. The number of VR participants achieving employment will increase by 10% (pre-pandemic baseline 2160) and average hourly wages will increase by at least 5% (PY20 baseline $12.31).

Outcome 1.4: Partially Achieved. These targets were significantly impacted by the COVID-19 pandemic, however VR has continued to implement strategies to improve outcomes post-pandemic, including increasing the number of individuals released from the order of selection wait list; implementing online job clubs hosted by VR staff to help with participant engagement; implementing provider performance incentive payments to incentivize outcomes achieving living wages, full-time status, and employer offered health benefits; and training staff on strategies to support rapid eligibility determination.

Notable progress has been made in reducing the time between application and eligibility, and between eligibility and development of the Individual Plan for Employment (IPE). Since program year 2020 the average number of days between applicant and  eligibility has decreased by seven days.  Since program year 2020, the average number of days between eligibility and IPE has decreased by six days.

While average wages have increased by 22% between PY20 and PY22, the total number of participants exiting with employment has decreased. The table below outlines the average weekly work hours, average hourly wage, and total employment exits. Employment exits increased from PY20 to PY21 by 31% but then decreased between PY21 and PY22 by 7%. Weekly work hours remained largely stable, while average wages increased from $12.31 in PY20 to $15.10 in PY22.  

GOAL 2:  Improve capacity to serve VR eligible individuals

Priority 2.1:  Identify and implement strategies to improve staff capacity to serve eligible individuals, including improved recruitment through use of interns in VR field offices, outreach to colleges and universities, or other strategies; and improved retention through implementation of strategies to improve VR staff job satisfaction such as improved communication and training to staff, and increased opportunities for staff to participate in special projects and workgroups in areas that match their interests. At least one recruitment and retention strategy will be implemented annually during PY20-23.

Outcome 2.1: Achieved. Staff retention has increased substantially over the last few years, with only 4.5% of VR Counselor positions vacant as of July 2023 (2.5% vacant as of November 2023). During the first two years of the state plan period, VR initiated the Discovery Cohort, a project involving numerous VR staff who are evaluating the current discovery services and expectations, identifying best practices as well as areas of improvement, and conducting small pilots in their local areas. Additionally, VR created a new VR Counselor specialty position with a focus on serving VR participants in postsecondary training. Indiana VR was selected to present at a national conference to share staff recruitment/retention and satisfaction strategies due to the significant strides accomplished with Indiana VR staffing. In PY22, VR staff compensation increases were implemented, reflecting approximately a 38% increase in starting salary for a VR Counselor position.

Priority 2.2: Spending patterns have changed during the pandemic due to reduced applicants and vendors pausing services, resulting in increased carryover funding. VR will strategically invest increased carryover to fill service gaps and expand services to more eligible individuals. VR aims to release at least 1,000 individuals from the order of selection waiting list annually during PY22-23, while sustaining our improved staff capacity, and implement at least two innovative strategies to address service gaps such as enhanced benefits and work incentives counseling. 

Outcome 2.2: Achieved. VR has released over 3000 individuals from the order of selection waitlist since January 2021, and opened priority category 2 in July 2023 after reducing the waitlist for that priority category to zero. Enhancements to benefits counseling services were implemented in PY21, which included implementation of supplemental benefits and work incentives counseling services to enhance the current benefits information network. Employment service provide rate increases were also implemented in PY21. Additionally, VR has added 13 new VR Counselor positions to support sustained VR staffing capacity.

Priority 2.3: Continue streamlining efforts such as ongoing system modernization including enhancements to the VR Claims Payment System, exploration of a streamlined referral process with core WIOA programs, and review of VR rules and processes to identify opportunities for reduced administrative burden. At least one streamlining effort will be implemented annually during PY20-PY23.

Outcome 2.3: Achieved. VR implemented additional improvements to both the VR case management system (Aware) and the VR Claims Payment System (CPS), streamlining administrative processes for both VR staff and vendors. One example is the implementation of DocuSign to allow for better ease of capturing signatures from participants. The process for conducting quarterly follow up activities was also significantly streamlined through full implementation of the SWIS agreement with DWD, enabling VR to meet federal requirements with reduced burden on field staff. Enhancements to the Pre-ETS portal were also implemented to improve program monitoring and internal controls. VR also implemented an online application and is targeting its outreach on this mode of application to transition aged youth and stakeholders. Since the release of the online application VR receives on average 50 applications a month. A new Learning Management System was implemented which improved access to web-based learning modules for staff who use screen readers or other assistive technology. VR modernized the provider directory by using Salesforce. Participants can access the provider directory to assist in informed choice in selecting an employment service provider. Additional BRS programs, including Deaf and Hard of Hearing Services and the Business Enterprise Program, also achieved modernization in information technology, including an online interpreter scheduling platform for DHHS and a new BEP licensed manger portal for the BEP program.

GOAL 3:  Enhance collaboration with a variety of partners to ensure that job seekers with disabilities have access to a variety of pathways to employment

Priority 3.1: Continue collaboration with core WIOA partners through strategies such as implementation of a combined state plan, maintaining and enhancing written partnership agreements, implementing Indiana’s SWIS agreement, joint participation in special projects such as Department of Labor training and technical assistance projects to promote increase employment for individuals with mental health conditions, and other efforts. At least one new or enhanced collaboration effort will be achieved annually in PY20-PY23.

Outcome 3.1: Achieved. In addition to collaboration on development of the combined state plan, VR partnered at the local level with several workforce regions to implement a shared scheduling software to streamline the referral process across VR and other workforce programs. Annual agreements for infrastructure funding also continued and the JAG agreement was significant enhanced to target services to a larger population of students with disabilities. The percent of students served through JAG who have a disability has increased from 5% to 20%.  VR has continued to partner with DMHA as mentioned above on an IPS early adopter project, and has developed an interagency agreement.

Priority 3.2:  Continue to build capacity for business engagement through implementation of new and innovative strategies and partnerships. Strategies may include distribution of a toolkit for businesses with helpful resources for hiring job seekers with disabilities, ongoing and continued education to workforce development boards on improving opportunities for employment for individuals with disabilities, enhancing resources such as a dedicated VR webpage for businesses, providing training to stakeholders including employment service providers, coordinating with the Governor’s Council for Persons with Disabilities to amplify their awareness campaigns  and education events during National Disability Awareness Month and National Disability Employment Awareness Month (NDEAM), and increasing partnerships at the local, state, and national level. At least one new or enhanced strategy will be implemented annually PY20-PY23.

Outcome 3.2: Achieved. The Business & Community Engagement team supports employers by providing resources around the employment of persons with disabilities and creating an inclusive workplace. This is accomplished through the provision of resources and information via a dedicated webpage (FSSA: DDRS: Business and Community Engagement), on social media (Twitter and Facebook), and in person.  The team attends networking events and resource fairs around the state; shares information with internal staff about employer partners and employment/work experience/internship opportunities and provides training as requested. Opportunities to present to large groups of employers via sponsored events by local human resources professional groups like SHRM (Society for Human Resource Management) and local business networking groups like area chambers of commerce have proven to be quality outreach activities that can lead to long-term employer connections. The engagement team also participates in monthly coalition meetings in communities around the state that bring employers and jobseekers together to facilitate connections between those employers and job seekers. Connecting with and engaging employers who are actively seeking to hire individuals with disabilities is a key priority of these coalitions and it has proven to be successful. 

Priority 3.3:  Identify best practices in the delivery of required Pre-ETS activities such as incorporation of the LifeCourse Framework, and identify areas of growth such as increased focus on career and technical education for students with disabilities and collaboration with Department of Education on a new student portfolio and graduation pathway requirements, and increased access to paid work experiences. Enhance Pre-ETS coordinating activities through increased transition efforts of VR staff including dedicated VR Youth Counselors. Enhance the Memorandum of Understanding with DWD to increase participation of students with disabilities in the Jobs for America’s Graduates (JAG) program.  Ensure that 15% of VR federal funds are earmarked for Pre-ETS each federal fiscal year and increase the number of students receiving Pre-ETS annually. Increase the number of students receiving Pre-ETS who apply for VR services in PY22-23.

Outcome 3.3: Achieved. VR met the 15% reserve requirement for both FFY 2021 and 2022. This was due to a number of strategies including increased availability of stipends to support paid work experiences for students with disabilities, our continued JAG partnership, increased summer programming for students, and an authorized activity contract that supports FEAT (Family Employment Awareness Training) among other items. JAG continues to successfully serve students with disabilities through pre-ETS funding. Prior to access to Pre-ETS funding, 4% of students participating in JAG had an IEP or 504 plan. As of this writing, 20% of JAG Indiana students have an IEP or 504. Additionally, the overall 2022 graduation rate for students with disabilities was 76.41%, while those students with disabilities enrolled in JAG had a graduation rate of 93%. A series of training modules has been developed and are now available to Pre-ETS career coaches that cover topics such as effective community-based instruction, effective partnerships with schools, improving access to underserved populations and other topics. In addition, VR partnered with Public Consulting Group (PCG), in creating a Pre-ETS toolkit to assist career coaches in accessing resources and developing quality activities including improving collaboration with schools, lesson plans and skill-building exercises and other online resources. The percent of students receiving Pre-ETS who apply for VR services was 9% as of the end of PY22, compared to 5% at the beginning of PY21, which represents some growth but continued growth is needed in this area. 

Priority 3.4: Continue collaboration with other state agencies, such as participation in key advisory groups for BDS especially as it pertains to competitive integrated employment, co-leading the IPS early adopter project with DMHA, and collaboration with other state agencies in the implementation of Employment First philosophy in Indiana in alignment with the Employment First Act. Increase opportunities for targeted local partnership such as enhanced collaboration with 14c facilities, local workforce programs, community mental health centers, local schools, and others. Increased collaboration may improve education and awareness across organizations, create opportunities for shared participants or shared service costs, and increase referrals to VR. At least one new collaborative partnership will be achieved annually in PY20-PY23.

Outcome 3.4: Achieved. VR further enhanced collaboration with DMHA throughout the state plan period, culminating in implementation of IPS early adopter sites. This collaboration has been expanded to include representation from the Office of Medicaid Policy and Planning, which has been crucial in developing guidance on braided and sequenced funding to fiscally support IPS services. BRS Leadership participation in a Supported Employment Leadership Network (SELN) assessment with the Division of Disability and Rehabilitation Services and Bureau of Disabilities services, to identify areas of strength and areas of improvement. BRS and BDS are also working on strategies for streamlined application and eligibility processes across both programs to better serve mutual participants. VR and the state’s Adult Education program provided cross-training to staff, revealing opportunities to braid services to better support participants across both programs.  

Evaluation and Reports of Progress: Supported Employment

Goal 1: VR Supported Employment providers will increase knowledge and skills on the provision of supported employment services, including greater understanding and focus on development of natural supports, job readiness training techniques, customized employment, and strategies for achieving stabilization on the job. BRS will invest in training for supported employment providers including classroom-based, web-based, and hands-on workshops that focus on job coaching and job readiness training techniques. BRS will examine strategies for improvement of community rehabilitation providers to ensure capacity to carry out increased expectations under the new model, such as provision of funding for Establishment projects. At least one new training strategy will be implemented annually, such as micro-training or innovative hands-on training opportunities.

Outcome: Achieved. Provider training was enhanced with the addition of mentoring/coaching to supplement classroom-based training. Additionally, BRS continued to support establishment projects through the end of the 4-year project period. During the final year of the establishment project period, 2398 individuals received supported employment services, compared to a baseline 774 individuals receiving supported employment prior to project start. Lunch and learns have been provided throughout the last two years to provide short, but impactful training on a variety of topics including serving individuals with multiple disabilities.

Goal 2: BRS will implement strategies to increase the quality of outcomes for individuals receiving supported employment services. There will be a 10% increase in average wages for individuals exiting VR after receiving supported employment services by the end of the state plan period. Baseline PY20 average wages for individuals receiving supported employment services was $10.10.

Outcome: Achieved. Average wages for individuals receiving supported employment services increased by 16% from PY20 to PY22. The table below outlines average weekly work hours and average wages for VR participants who received supported employment services, as well as total number and percent of employment outcomes that were participants who received supported employment services. Average weekly work hours have remained relatively stable, while average hourly wages have increased each year. The percentage of individuals exiting VR with employment who received employment services was 40% in PY20 and 41% in PY21 and PY22.