Narrative: d. 2. O. viii. I.

The Maine Division of Vocational Rehabilitation (DVR) assists eligible individuals with disabilities to prepare for, achieve and retain employment in integrated community settings. DVR administers the General Vocational Rehabilitation program in Maine for the Rehabilitation Services Administration. A separate program is available to individuals who are blind or have visual impairments through the Maine Division for the Blind and Visually Impaired. This Comprehensive Statewide Needs Assessment focuses on the General Vocational Rehabilitation program and on the needs of individuals eligible for those services.

The assessment, conducted jointly with the State Rehabilitation Council (SRC), is designed to answer important questions about the population eligible for DVR services that live in Maine and their vocational rehabilitation needs. It serves to inform DVR’s strategic plan and goal development for the next three fiscal years, 2016 – 2018. In its compilation, we rely on a variety of publicly available sources, including survey information from the United States Census Bureau and data from the Rehabilitation Services Administration and the Social Security Administration. We gathered information from the Maine Departments of Labor, Education, and Health and Human Services, as well as numerous stakeholder groups, including people with disabilities, employers, and Vocational Rehabilitation counselors.

Maine is a large geographical state, which spans 30,843 square miles. The state is primarily rural in nature with a dispersed population of 1.3 million people and density of 43 people per square mile. Census data available in 2010 indicates that the population is primarily homogeneous with 95% of the residents being white and a median age of 43.1 years. At the time of this report, workforce conditions in Maine continue to improve, though there has been virtually no real economic growth for a decade. Underlying those seemingly contradictory statements is a rapidly advancing age structure of the population that is constraining growth and tightening the labor market at the same time. Through 2014, real gross domestic product has been little changed since 2004, after relatively steady growth in previous decades. Meanwhile, the number of jobs is up since the 2010 post–recession low, but still nearly 2% short of the 2008 peak level. In the middle of 2015 the state has about the same number of jobs as in 2004. This situation is in stark contrast to the nation, which began reaching new highs in GDP in 2012 and in nonfarm payroll jobs in 2014.

Though lagging from a net growth perspective, Maine is outperforming the nation in terms of employment and unemployment rates. As of September 2015, the 4.4% unemployment rate was back to pre–recession levels and below the 5.1 percent U.S. average and the employment to population ratio remained higher than the nation.

Since DVR’s last comprehensive statewide needs assessment in 2012, The Workforce Innovation and Opportunity Act (WIOA) of 2014 reauthorized the Rehabilitation Act of 1998. The purposes of WIOA include aligning the workforce development system with education, businesses, labor market information and trends, and increasing collaboration among state and federal agencies.

Maine’s legislature passed the Employment First Maine Act into law in June of 2013, establishing integrated community–based employment and customized employment as the “first and preferred service or support option” for people with disabilities. The passage of the law is a natural progression in Maine’s focus on competitive integrated employment as a valued outcome for the state’s citizens with disabilities. The state, like many that have passed Employment First laws, is now grappling with what it means to be fully compliant with the law.

Demand for community inclusion and access to employment by people with disabilities and their supporters continues to be strong across the country with consumer choice and opportunity for full participation being important for all. The advocacy and advice of the State Rehabilitation Council, Client Assistance Program, and Disability Rights Center, as well as groups such as Maine APSE and the Employment First Coalition, help to ensure that rights are being respected, laws are being followed, and practices are being improved to increase the successful employment of people with disabilities.

Maine’s Bureau of Rehabilitation Services, which includes the Division of Vocational Rehabilitation, is involved at all levels as the implementation of WIOA transforms existing systems into a more cohesive, effective and collaborative entity through participation in restructuring the One–Stop Career Center processes, Workforce Boards, training, employment and youth workforce activities. Achieving expectations posed by these two significant changes in practice, challenges Maine to push forward with more systems changes that prioritize and assure access to competitive integrated employment services and supports.

In June of 2015, Maine DVR contracted with an outside consultant to review its service delivery process. The agency maintains a goal of providing timely, quality and efficient services to consumers. Expectations of outcomes included the examination of our internal service delivery process, in order to identify efficiencies and best practices that can help improve our timeliness and efficiency while continuing to provide quality services. Changes to the Rehabilitation Act including, the requirement of “90 days to plan” and new pre–employment training services for transition youth will impact our service delivery and resource capacity. This review included process mapping and brainstorming in six local Maine DVR offices around the state. The process detailed, reviewed, evaluated, discussed, and critiqued. Performance related to time, effectiveness, and efficiencies were analyzed. Best practices emerged.

The consultants reviewed documentation and data about the Maine VR program, and employment of people with disabilities in Maine. The most salient circumstance encountered in Maine VR offices was large caseloads, and the amount of work required to provide quality services to all of these clients. Maine VR has less than half the average complement of support staff according to national standards. On the surface, Maine VR has an adequate supply of counselors, but the geographical distances counselors have to travel and the lack of available Community Rehabilitation Providers (CRPs) across the state, impact their effectiveness. More importantly, as many other VR programs in states are adding more business relations and in– house employment specialists, Maine VR is lacking positions available to provide direct job placement and work experiences for its clients. The lack of adequate levels of support staff requires VR Counselors to perform a large share of administrative support functions, taking time away from their counseling function with clients.

The State Rehabilitation Council surveyed current and former clients of Maine DVR to solicit feedback regarding DVR services and opportunities for changes or improvement. During FY14, the SRC conducted an online survey. During FY15, the SRC held a series of public forums soliciting feedback in Lewiston, Rockland, Augusta, and Bangor. Individuals who were unable to attend the forum were able to provide feedback directly to the forum organizers by phone or email. In addition, the SRC Communications Committee met regularly during FY15 to review public forum input in comparison with data and information provided by DVR. DVR clients report high levels of satisfaction with VR services. DVR staff is diligent, committed and skilled. The number of clients reporting problems with their counselor has increased slightly when compared to the previous satisfaction survey. Resolving problems with VR clients is an area for further improvement. Based on SRC forum feedback, self–employment appears to be an increasingly common goal among DVR clients. DVR is serving increasing numbers of transition–age youth, and this trend is likely to continue under the new WIOA requirements.

In terms of case service expenditures, job development and placement continues to be the largest single service group, representing over 29% percent of total DVR case costs each year. A number of service groups saw large decreases, including College or University training, on–the–job supports and diagnosis & treatment while large increases were noted in hearing aid costs, and occupational/vocational & other training.

In identifying the general population eligible for DVR services and estimating unmet needs of those with significant disabilities, this report used data available through the American Community Survey, the Social Security Administration, and the Maine Departments of Education and Health and Human Services:

At the end of FFY 2014, DVR had 6,531 individuals in an active case status. For that same year, the ACS estimated that there were approximately 73,000 working–age adults with a disability who were not employed.

The Maine Department of Education reported an anticipated need of employment services in 2015 for 9,178 special education students, ages 14 – 20, of which those with learning disabilities (37.1%) and physical impairments (24.4) were the largest disability populations. That noted, Maine, like the rest of the United States, is experiencing an increase in the numbers of individuals identified with Autism spectrum disorders.

It is appropriate to note here the impact that WIOA has on the requirements to service more in school youth with disabilities as they transition to adulthood and the world of work.

The Challenges and Opportunities under WIOA One of the core challenges of WIOA is the capacity of public VR from a resource perspective, to take on these additional responsibilities, particularly given the challenges that already exist for VR nationally in meeting the needs of job seekers with disabilities, with many states already in order of selection. If WIOA is to deliver on its promise in terms of improved transition outcomes for all students with disabilities, it will be critically important for VR systems to work in a highly cooperative fashion with state and local education agencies and school districts, as well as other public agencies and funders, to leverage resources. In addition, simply assuming that the details will be worked out at the local level between VR offices and local school districts in terms of delivery and funding of the transition services required under WIOA, will likely result in a lack of consistent implementation, to the detriment of students with disabilities. (Hoff, 2014)

Maine DVR continues in its efforts to fully and properly implement all of the components of this new legislation to work cooperatively with agencies that have the most impact on transition–age students and ensure optimal success for our consumers.

The Department of Health and Human Services (DHHS) continues to be a strong partner in the support and delivery of employment services for people with disabilities. – DHHS currently supports approximately 5,200 people with developmental disabilities, brain injuries or physical disabilities through four Centers for Medicaid and Medicare Services (CMS) 1915c Waivers. The waivers allow individuals who have been found eligible for the Maine Office of Aging and Disability Services (OADS) Services based on disability/eligibility to become prepared for employment through Community Supports Services that can assist the person to volunteer, increase work–readiness skills, and address issues of health and safety. New in 2014 was the addition of Career Planning Services using Discovering Personal Genius which is a tool that supports an individual to discover skills, abilities, capacities and three Vocational Themes. Approximately 150 people have accessed the service in the first year and been referred to Vocational Rehabilitation. Furthermore, OADS is providing on–the–job support through the waivers to about 1000 people who are working throughout Maine. These services can provide support to both the individual and the employer to maintain employment. At this time, approximately 3,000 working–age MaineCare waiver recipients are not working but are being asked about their interest and desire to move toward employment.

– In addition to providing ongoing employment support to more than 200 employed individuals with mental illness through contracts with CRP’s, the DHHS Office of Substance Abuse and Mental Health Services (SAMHS) has a number of initiatives currently underway to promote employment among the individuals they serve. SAMHS and OADS are coordinating the use of Balancing Incentive Program funds to increase system capacity to support individuals with disabilities on the path to employment. This initiative includes training for Work and Benefits Navigators, an Employment 101 curriculum, and training in Individual Placement and Support /Supported Employment.

Vocational rehabilitation services to minorities with disabilities in Maine have always been a challenge to DVR because of the state’s homogeneous population and low ethnic diversity. A vast majority (96%) of the VR population, a slight variation from Maine’s general population (95%), is White and only 4% identify themselves as being members of a racial or ethnic minority. In a state that has little statistical diversity of minority populations, Native Americans represent a historically recognizable group and Maine has nearly 18,500 tribal members who are located both on reservations and defined land, as well as scattered across the state. Tribal members are primarily located in Penobscot, Washington and Aroostook counties. Unemployment figures among Micmac and Maliseet tribes range from 55% to 76%. DVR continues to work collaboratively with the Houlton Band of Maliseets, which was awarded a five year Section 121 grant in FY 2008 which was extended again through 2017.

While Maine’s minority population is small, two areas of Maine have seen significant increases in the numbers of non–English speakers due to refugee resettlement programs. According to the 2014 American Community Survey, approximately 65,000 Maine residents speak a language other than English at home. Targeted culturally appropriate outreach may be needed to ensure that information concerning VR resources is available to individuals who belong to potentially underserved minority populations.

In addition to the unserved and underserved populations identified above, this assessment also gathered data and provided information on the anticipated vocational needs of incarcerated individuals with disabilities, older workers, veterans, those receiving Temporary Assistance for Needy Families (TANF), and individuals who are deaf or hard of hearing.

Co–location in Maine’s network of Department of Labor (MDOL) One–Stop CareerCenters has provided DVR the opportunity to work in partnership with a number of other programs that are components of the statewide workforce investment system and can support the employment of people with disabilities. In October of 2010, DVR assisted MDOL’s Bureau of Employment Services in obtaining a Disability Employment Initiative Grant to continue work successfully started under Maine’s Disability Program Navigator Grant. In October 2013, the state was awarded another three–year round of DEI funding but its focus is on a different area of the state. Designed to improve CareerCenter services and programs for people with disabilities in targeted regions of the state, Maine’s DEI grant work includes operating a statewide workforce employment network providing Ticket to Work services to SSI and SSDI beneficiaries. The DEI grant is collecting limited data on individuals served by the grant. One objective of the grant is to conduct Integrated Resource Team (IRT) meetings on individuals with unmet needs that are impacting employment. To motivate CareerCenter counselors and case managers to enroll people with disabilities in employment and training programs, particularly WIOA–supported services, the grant offers training and supportive services funds to WIOA–enrolled people with disabilities. These funds supplement existing dollars and are designed to help CareerCenters maximize the likelihood of a successful employment outcome. The funds, which are known as the Flexible Employment Fund (FEF), require an IRT to convene, thus encouraging an integrated, or unified, approach to employment services.

The CareerCenters also provide a number of other employment programs that serve people with disabilities. The Maine Job Bank is an online accessible CareerCenter tool to allow job seekers from around the state to be matched with real–time available open positions. The Job Bank currently has 22,248 active job bank registrants of whom 1,634 are self–disclosed job seekers with disabilities. This represents 7.3% of total Job Bank registrants. Data reported on the ETA 9002 for Program Year 2014 showed that under the Wagner–Peyser Act, Maine served 2,627 individuals who disclosed a disability. This represents only 3.4% of all individuals served – and a significant decrease from the 4,525 individuals served in 2008. In Program Year 2014 (July 1, 2014–June 30, 2015), Maine’s Workforce Investment Act (WIA) data indicate that 172 individuals with self–disclosed disabilities were enrolled in WIA services. Among those that exited services, the entered employment rate was 77.1% compared to 73.2% for public assistance recipients and 69.6% for veterans. Average earnings data reveal that individuals with disabilities earned only $10,749 compared to $11,762 for public assistance recipients and $12,366 for veterans.

In conclusion, DVR has seen some improvement in the length of time that it takes individuals to move into a plan for services along with the overall time spent in the VR program as a whole. DVR’s concerted efforts to improve employment outcomes for people with disabilities have resulted in increases in the rehabilitation rate and successful employment outcomes each of the last several years. As was noted, however, DVR struggles with a higher than average staff turnover and large case load sizes in some areas of the state which have resulted in concerns about responding to consumers in a timely manner. While the new Workforce Innovation and Opportunity Act (WIOA) brings with it many opportunities that support building upon and improving DVR’s partnerships with other state agencies and councils and commissions, it also provides DVR with some challenges regarding how to provide more services to in school youth, for example, while not adding any additional financial or staff resources. DVR will be undertaking a project to review all of the recommendations that were provided in the Process Mapping exercise this past fall. As DVR reviews processes and how current staff and financial resources are used, we plan to develop some specific time and financial savings methodologies that will assist in providing more efficient services while maintaining overall quality and consistency of these services across the state. In addition, once the new rules for WIOA are available, DVR will be adjusting our services and procedures accordingly.