Evaluation of the Professional Development Provided by VR State Agencies

The U.S. Department of Education (ED), Office of Special Education and Rehabilitation Research (OSERS), National Institute on Disability and Rehabilitation Research (NIDRR), anticipates the release of the subject solicitation on or about July 27, 2012. It is determined that these services are commercial as defined in FAR 2.101. This procurement will be competed in accordance with Federal Acquisition Regulations (FAR) Part 15 (Contracting by Negotiation). A 12-month firm fixed price contract, with one 12-month option period, is planned. Once the solicitation is released, all responsible sources may submit a proposal which shall be considered by the agency. This contract will examine how State VR agencies address the professional development needs of State VR staff. A major area of concern in supporting professional development of State VR counselors is retention of qualified rehabilitation counselors and ensuring that these counselor are prepared to meet the needs of VR customers. State Vocational Rehabilitation Agencies (SVRAs) employ nearly 10,000 rehabilitation counselors . The Rehabilitation Act of 1973 as amended (Rehabilitation Act) includes a provision to promote an adequate supply of qualified rehabilitation personnel, including rehabilitation counselors. The State VR Services program, authorized under title I of the Rehabilitation Act and administered by the Rehabilitation Services Administration (RSA), provides formula grants to States to help individuals with disabilities prepare for and engage in gainful employment consistent with their strengths, resources, priorities, concerns, abilities, capabilities, interests, and informed choice. Eligible individuals are those who have a physical or mental impairment that results in a substantial impediment to employment, who can benefit from VR services for employment and who require VR services. If a State cannot serve all eligible individuals, priority must be given to serving individuals with the most significant disabilities. Grant funds are administered by VR agencies designated by each State. There are currently a total of 80 State VR agencies. Thirty-two (32) States operate a "combined" agency serving all disability categories. Twenty-four (24) States operate a separate agency for individuals who are blind or visually impaired and a "general" agency for all other disability categories. In FY 2010, State VR Agencies employed 23,085 staff, of whom 9,820 (42.5%) were rehabilitation counselors and 9,419 (40.8%) were staff supporting counselors. In FY 2001, State VR agencies employed 25,276 staff, of whom 11,165 (42.5%) were rehabilitation counselors and 10,142 (38.6%) were staff supporting counselors (source: RSA-2 data). These data show that there has been a decline in the numbers of staff overall, with a commensurate decline in the number of rehabilitation counselor staff. Data on the rehabilitation counselors collected by RSA program staff in FY 2011 indicates that across all agencies, more than 85% of counselors meet required CSPD standards. The Rehabilitation Act of 1973, as amended (Rehabilitation Act) includes a provision to promote an adequate supply of qualified rehabilitation personnel, including rehabilitation counselors. Section 101(a)(7)(B) (i) of the Rehabilitation Act of 1973, as amended , requires that State VR agencies establish personnel standards that are consistent with "any national or State approved or recognized certificate, licensing, [or] registration...requirements that apply to the area in which such personnel are providing vocational rehabilitation services" (emphasis added) (see also 34 CFR 361.18(c)(1)). Therefore with regard to State VR counselors, the State VR agency has the option of basing its Comprehensive System of Personnel Development (CSPD) on either the national Certified Rehabilitation Counselor (CRC) standard or a State-approved certificate, licensing, or registration standard applicable to State VR counselors. Currently, the national standard is a master's degree in rehabilitation counseling or related field. The Rehabilitation Services Administration (RSA) has several training grant programs. One program, the Long Term Training Program, awards training grants to support preparation and development of rehabilitation personnel through pre-service, college level training. Some long term training grants are specifically designed to assist state VR agencies in training existing VR counselors to degree standards consistent with the state's CSPD as described above. Such grants are expected to develop innovative approaches (e.g., distance learning and competency-based programs) to maximize participation in, and the effectiveness of, project training. Only currently employed state VR agency personnel are eligible for scholarship assistance under these grants. At the present time, RSA supports 11 such grants. Another RSA training grant program is referred to as the In-service Training Grant Program. Under this program, at least 15 percent of the sums appropriated under the larger Rehabilitation Training Program shall be allocated to state agencies to be used, directly or indirectly, for projects for in-service training for rehabilitation personnel, consistent with the needs identified through the CSPD requirement in section 101(a)(7), including projects designed to address the recruitment and retention of qualified rehabilitation professionals; to provide for succession planning; and to provide for leadership development and capacity building. The in-service training program is administered through grants to State VR Agencies for training their personnel in program areas essential to the effective management of the VR program and in skill areas that improve the ability of State VR Agency personnel to provide effective VR services. (refer to Section 302(5)(g)(3)(A)(B) of the Rehabilitation Act of 1973, as amended). Despite the enactment of legislation and the implementation of a variety of policy and program efforts at the Federal and State levels to improve employment outcomes for individuals with disabilities, the employment rate for individuals with disabilities remains substantially lower than the rate for those without disabilities. The economic downturn in recent years has resulted in still greater workforce disparities. In December 2011, 17.9 percent of persons with a disability age 16 years and older were employed, compared to 63.7 percent of persons without a disability (U.S. Department of Labor, 2012). Among persons 25 to 54 years of age during the recent recession, the unemployment rate of persons with a disability ranged from 2.0 to 2.3 times that of persons without a disability (Fogg, Harrington, McMahon, 2010). These differences in employment and unemployment rates exist across all socio-demographic groups. Additionally, the median earnings for persons with a disability who are employed are $19,500 per year as compared to $29,997 per year earned by persons without a disability (U.S. Census Bureau, 2011). Furthermore, the length of time that individuals with disabilities remained unemployed during this period was 25 percent longer than the duration for individuals without disabilities (Fogg, Harrington & McMahon, 2010, 2011). There has also been a decrease in successful outcomes for consumers who received services through the VR program. In 2007, 205,447 (34.2 percent) of VR participants exited the program with employment. These figures declined to 171,904 (26 percent) of VR participants by 2010 (Rehabilitation Services Administration, 2012). Employers' decisions to hire and retain workers are rooted in economic conditions and trends. VR counselors must have the skills to deal with changing employers needs in the face of economic downturns and changing workplace needs. VR professionals must have the professional tools required to understand the dynamic economic context in which individuals with disabilities and employers exist. For example, labor market variables such as unemployment rates and per-capita income have a significant influence on employment outcomes for individuals with disabilities (Government Accountability Office, 2007). VR professionals need to skills to analyze factors such as which sectors of the economy are growing and which sectors are downsizing. State VR directors are also facing challenges related to changing technology and characteristics of both new staff and clients. For instance, many State agencies report that younger staff and clients want to use telecommunications as a means of intake, job placement, skills development, and other facets of the VR process. While this raises many questions about confidentiality and standards of practice, it also challenges the States in terms of how to provide the professional tools that counselors may need to perform their jobs. Another concern of State VR directors is staff development across a multi-generational workforce. Expectations and incentives vary across these generations and are posing challenges to State agencies as reported in recent meetings of State directors. Description of Services/Products This requirement will support: - Examining the efficiency and effectiveness of State VR agency efforts to support professional development of VR agency staff and provide RSA's technical assistance and continuing education efforts and to provide recommendations of effective practices to help States improve their support of VR staff development.. - Provide an evaluation of the methods used by State VR agencies to support professional development of VR staff. - Provide recommendations to RSA regarding its programs and investments to support State efforts to improve the professional development of State VR staff.