THE STATE
EDUCATION DEPARTMENT / THE UNIVERSITY
OF THE STATE OF NEW YORK / ALBANY, NY 12234
|
TO: |
EMSC – VESID Committee |
FROM: |
Rebecca H. Cort |
SUBJECT: |
Designing the Future of Vocational Rehabilitation |
DATE: |
December 16, 2005 |
STRATEGIC
GOAL: |
Goal 4 |
AUTHORIZATION(S): |
|
Do the Regents support VESID’s “Designing Our Future” recommendations for changes to the vocational rehabilitation service delivery system?
Policy discussion on the
recommendations put forward regarding the future design of the Vocational
Rehabilitation System. These
recommendations have significant implications for future programmatic design and
resource allocation.
This report follows an update from May 2005 regarding the status of the efforts to design the future service delivery system. We are now bringing the proposed recommendations for policy discussion. Following this input, we will return for discussion of the final recommendations and implementation plan in May 2006.
VESID reviewed the design of its vocational rehabilitation process and
functions to meet changing needs, respond to changes in the vocational
rehabilitation services system, and better use resources. The redesign process included an
examination of:
Desired Outcome
The Board of Regents will provide input on the recommendations identified in the attached document relating to the development of the VESID “Designing Our Future” Model and Implementation Plan. Additional background information and a full review of the issues explored and recommendations made by the design teams are reflected in Attachment 1.
Timetable for Implementation
The final VESID “Designing Our Future” Model and Implementation Plan will be presented to the Board in May 2006.
Attachments
DESIGNING THE FUTURE OF
VOCATIONAL REHABILITATION
In November 2003, VESID undertook began a comprehensive
review of the Vocational Rehabilitation (VR) service delivery system in order to
design the future of vocational rehabilitation in New York State. This Design initiative is intended to
address the challenges the Department is facing in its 83rd year of
VR program operation and to provide a blueprint for our future service
delivery.
This effort was undertaken in the context of
the many challenges and issues being faced by the Regents and the Department as
we examine the University of the State of New York’s (USNY) broad authority and
responsibility. These challenges include the gaps in school performance and
employment for individuals with disabilities, the State’s changing demographic
characteristics, the global competition for skilled workers, and the need to
maximize USNY’s collective assets while ensuring expanded community and business
partnerships.
This report acknowledges and embraces the fact that
vocational rehabilitation service delivery models must evolve to address the
changing needs of 21st century customers and to incorporate
21st century resources, especially in the area of technology. The recommendations reflect a close
alignment with the Department-wide efforts to shape SED of the Future as we
focus on the needs of our customers.
In VESID’s case, our primary customers are those individuals with
disabilities who are seeking employment, but we also recognize our obligation to
respond to the needs of employers as well as the many rehabilitation service
providers who serve as the bridge between VESID and job placement. In that context, the redesign process
included an examination of:
Most importantly, our recommendations recognize that
VESID alone will never have the capacity to close the employment gap. Our goals can only be achieved through
greatly expanded collaborations across USNY, including VR’s integration into the
work of school districts, institutions of higher education, and the Independent
Living Centers, as well as beyond USNY through our work with the statewide
workforce development systems, our State agency partners, and the broad range of
community-based rehabilitation service providers.
II. HOW DID VESID CONDUCT THIS REDESIGN
INITIATIVE?
Through focus groups,
surveys and benchmarking with other states, the design teams gathered
information on the effectiveness of VESID processes and systems requiring
change, as well as recommendations on how to change. Input was gathered via staff meetings in
each VR District Office; numerous community meetings at various locations
throughout the State with outside stakeholders, including consumers, family
members, advocates, State Rehabilitation Council (SRC) representatives, vendors,
State agency partners, and educators; and feedback from both an internal and
external website survey. This input was processed in two summit sessions
involving VESID VR Senior staff and the Design Our Future Steering Committee
members. The Design proposals
reflect almost two years of input and discussion.
The
attached document (Attachment 1) provides additional background information and
a full review of the issues explored and recommendations made by the design
teams. The final recommendations for action, which are summarized below, reflect
both dramatic changes and subtler restructuring of VESID VR processes. Taken in total, implementation of the
proposed design will result in a significant culture change for VESID and major
improvements in access and service delivery for its consumers. Successful implementation of this
proposed model would require a reallocation of certain resources as well as
substantive and sustained training for, and ongoing communication with, both
staff and partner agencies.
III. PROPOSALS FOR DESIGNING OUR
FUTURE
OVERARCHING
ISSUES
The key to the success of implementing the
following recommendations is the ability of the Department to support VESID’s
need to:
·
Expand access
to technology;
·
Implement a
staffing-ratio system to support the functions of the District
Office;
·
Restructure
the VR fiscal system; and
·
Develop a
marketing strategy that meets the needs of our diverse pool of
customers.
RECOMMENDATION #2: Develop an Incumbent Worker/Career
Development Track for Easy Consumer Re-Entry to VESID
Reflective of the job market of the future, where most workers will have multiple employers/careers in the course of their working lives, VESID needs to offer an open door to former consumers who still meet VR eligibility criteria, have disability related employment barriers, and are currently working and seeking to upgrade employment or need to rapidly re-enter employment. In previous years, Federal Rehabilitation Services Administration (RSA) directives focused state VR agencies in assisting individuals with disabilities in obtaining entry-level employment; thereby, “leveling the playing field” with their non-disabled peers. That focus has not expanded into assisting those same individuals with career development and advancement on their jobs. However, within the VESID culture, criteria for re-entry is often more strictly enforced than is the case for individuals seeking initial eligibility. VESID VR needs to refine its service provision to address the ongoing vocational needs of previously eligible consumers.
RECOMMENDATION
#4: Enhance Transition for Consumers Exiting School
Not all students in NYS
schools identified as having disabilities require adult vocational
rehabilitation services. However, a significant number of secondary students,
who would meet VR eligibility, fail to link to VR or other adult services. For these students, gaps in connecting to VESID often result in years of
chronic unemployment, lack of benefits, dependence on public assistance and
deterioration of skills gained in educational settings. In many cases, by the time the consumer
is linked with VESID, both costs and the difficulty of gaining employment have
skyrocketed. Limited VR staffing for
outreach and the autonomy of local school districts has made a systemic and
coherent response to this issue problematic. The Department is in a unique position
to bring resources and focus to this crucial juncture, both through mandated
school transition activities and closer coordination of VR and other Department
technical assistance activities focused on students with disabilities.
RECOMMENDATION #5: Utilize VR’s Unique Expertise to
Ensure NYS Partner Collaboration, Yielding the Best Employment Outcomes for
Shared Disabled Consumers
VESID’s New York State
partner agencies have expertise either in helping the general public find
employment or in helping consumers address the impact of a specific disabling
condition. People with varying
levels of disability clearly comprise a significant portion of the job seeking
public served by the NYS Department of Labor (DOL). Comprehensive responses to the needs of
a specific disability group, such as those offered by the NYS Offices of Mental
Health (OMH), Mental Retardation and Developmental Disabilities (OMRDD) and
Alcoholism and Substance Abuse Services (OASAS) often include addressing some
vocational issues. However, VESID is the primary agency where expertise in the
medical aspects of disabilities, current rehabilitation technology, and
rehabilitation counseling best practices come together with a fully developed
knowledge of career planning, employment preparation, job seeking and job
retention for individuals with disabilities. Because the mission of VESID
reflects this dual role of disability and employment service delivery, it has a
unique position bridging agencies addressing primarily one or the other focus
areas. Since no other agency has so
comprehensive a mission, VESID should take a leadership role in enhancing the
collaboration among all the key State partners involved in the employment needs
of individuals with disabilities.
RECOMMENDATION #6: VESID Needs to Envision Its Own
Operation as a Key Component of a Larger Workforce Development System through
One- Stop Partnering
VESID VR isolation from the larger workforce
system as defined in the federal Workforce Investment Act (WIA) is not a viable
option and disadvantages our
consumers. Services to all
individuals with disabilities within the State cannot and should not be provided
exclusively by VESID. Services at
the One-Stop training and employment centers, which are the core of the national
workforce program delivery system as defined by the Workforce Investment Act
(WIA), can assist some people with disabilities to achieve employment. Not all
disabled individuals require a rehabilitation-based employment plan or a case
management model for employment services.
Measurement of employment outcomes for individuals with disabilities
should be generated on a system-wide basis.
VESID will develop a statewide strategy for its
involvement in the WIA system. On the local level, District Offices will have a
professional staff member without full caseload responsibilities assigned to the
principle One-Stop sites (at least one per District Office). Specific role definition will be derived
from the structure and process at the particular One-Stop.
RECOMMENDATION #8: Designate the Electronic Version
of VR Consumer Files as the Official Case Record (CaMS)
Our current record keeping system, CaMS, was
originally designed with the expectation that staff at all levels would access
the case record and enter data or perform casework in an electronic format, but
that the “official legal case record” would continue to be the paper file. There is now an increased reliance on
the use of CaMS, the electronic record, “to tell the story” rather than the hard
copy of the case file. The latest
fiscal control requirements for supervisory review and approval further
highlight the importance of including all necessary supporting documentation in
CaMS, so that the reviewer is able to determine the appropriateness of the
authorized services. However, many
supporting documents in the case record are not generated by VESID and are in
hard copy in the paper file. Future collaboration with other systems also
depends on a fully electronic case record
system.
RECOMMENDATION #9: Ensure that all VESID VR “Public Message” Materials are
Clear, Consistent and of High Quality
VR materials will use the “language of success and
inclusion” of persons with disabilities.
VESID’s public message materials will be responsive to the information
needs of various partners in the vocational rehabilitation process, including
disability groups, employers, advocates and school district personnel. Materials
developed for use by VESID for its public message will be available in various
formats, including print, DVD and on Internet Web sites.
RECOMMENDATION #10: Implement a Service Delivery Team
Model
The model of the future utilizes a team
concept for service delivery, with a Vocational Rehabilitation Counselor (VRC)
maintaining responsibility for the core rehabilitation functions of eligibility
certification, for goal planning, and for the development of the original
Individual Plan for Employment (IPE).
Routine details regarding additional services and case management, will
become the duty of a Vocational Rehabilitation Counselor Assistant (VRCA)
working under the instruction of a VRC.
Consumers will maintain the ability to access a VRC and receive
counseling supports to appropriately obtain a successful rehabilitation outcome,
but will also have other staff members to turn to for more routine needs. Senior VRCs will supervise units
comprised of both VRCs and VRCAs.
RECOMMENDATION
#11: Restructure the Responsibilities of VESID’s District Office and of the
VESID VR Functions within Central Office
VESID’s current VR configuration reflects 15
District Offices and 7 satellites.
While this design enables VR to be accessible to its consumer base and to
address linkage, vendor and service delivery needs locally, it also creates a
number of issues of concern and does not maximize staff resources. These issues can best be resolved
through the designation of a number of these offices as Regional Offices that
will serve as a source of support and supervision for up to three other District
Offices. This structure maintains the local knowledge and responsiveness that is
crucial for VESID VR operations, while achieving significant gains in
efficiency, cost-effectiveness and compliance with applicable rules and
regulations. It provides an economy of scale without creating potential
bottlenecks.
In a parallel manner, it is recommended that
the current District Office Operations structure in Central Office be realigned
to better support the current and future VR Service delivery system as a whole.
Finally, it is recommended that VR continue to explore a variety of
locations/office configurations to enhance partnerships, collaboration, and
accessible services for its consumers.
RECOMMENDATION #13: Maintain an Alumni Association of
Former VESID VR Consumers to Provide Ongoing Outreach, Mentoring, Job
Development and Other Supports to Current VR Consumers
Similar to a University
Alumni Association, successful VESID participants will have the opportunity to
play an active role in the VR program
and provide ongoing input to improve services for individuals with disabilities,
as well as promote better communication.
Members who have achieved milestones will be available to function as
resources to the program in a number of areas including: fostering opportunities
for job placement, developing an awareness of key issues in the community, and
acting as peer supports and mentors to current consumers.
RECOMMENDATION #14: Develop a Comprehensive Marketing
Plan to Provide Consistently High Quality Public Relations, Outreach, Community
Education, and Job Placement Services
The envisioned Marketing Plan will:
RECOMMENDATION #15: Create a Business
Service Model that Meets VR Needs, and Fosters Regulatory
Compliance/Monitoring
This recommendation includes adding a staff procurement expert, who must be part of the team defining business processes and building an improved fiscal management (procurement and payment) system.
The next steps of the Design include the
following:
In November 2003, VESID undertook a comprehensive
review of the Vocational Rehabilitation (VR) service delivery system in order to
design the future of vocational rehabilitation in New York State. This Design initiative is intended to
address the challenges the Department is facing in its 83rd year of
VR program operations and to provide a blueprint for our future service
delivery.
This effort was
undertaken in the context of the many challenges and issues faced by the Regents
and the Department as we examine the University of the State of New York’s
(USNY) broad authority and responsibility. These challenges include the gaps in
school performance and employment for individuals with disabilities, the State’s
changing demographic characteristics, the global competition for skilled
workers, and the need to maximize USNY’s collective assets while ensuring
expanded community and business partnerships. Within the Department, VESID’s direct
service delivery capacity puts VESID in a unique position to impact the numbers
of individuals with disabilities who participate in meaningful employment that
both enriches their lives and contributes significantly to the economic health of the individual and of New
York State.
This report acknowledges and embraces the fact that
vocational rehabilitation service delivery models must evolve to address the
changing needs of 21st century customers and to incorporate
21st century resources, especially in the area of technology. The recommendations reflect a close
alignment with the Department-wide efforts to shape the SED of the Future as we
put at the forefront a focus on the needs of our customers. In VESID’s case, our primary customers
are those individuals with disabilities who are seeking employment, but we also
recognize our obligation to respond to the needs of employers as well as the
many rehabilitation service providers who serve as the bridge between VESID and
job placement. In that context, the
redesign process included an examination of:
·
The barriers arising
from our current structure and the necessary levers for change in our management
systems;
·
The shifting knowledge
base and skills needed by our internal workforce;
·
The exploding potential
of technology; and
·
The importance of
internal and external accountability, including internal controls, monitoring
and enforcement, and results-based evaluations of
performance.
Most importantly, our recommendations
recognize that VESID will never have the capacity to close the employment gap
alone. Our goals can only be achieved through greatly expanded collaborations
across USNY, including VR’s integration into the work of school districts,
institutions of higher education, and the Independent Living Centers, as well as
beyond USNY through our work with the statewide workforce development systems,
our State agency partners, and the broad range of community-based rehabilitation
service providers.
To better understand the challenges we face, it
should be noted that VESID provides VR services to over 98,000 applicants
annually. To provide accessible
services, we operate in a number of locations in every county in the State,
often in “borrowed” partner space as well as the official 15 district offices
and 7 satellite locations. VR works
under federally mandated time frames and requirements. The scope of VR’s fiscal
operation is staggering, as each counselor is involved in numerous
individualized purchases in support of each consumer’s plan for employment. The
challenges of maintaining appropriate fiscal controls while achieving quick
customer linkage to key services and ensuring timely payment of vendors are
immense.
A.
Changing Service Provision
Environment:
The world of employment services has
dramatically expanded since the inception of the VESID VR services. VESID has
evolved over the years and is now included in a comprehensive partnership of all
federally funded vocational programs under the Workforce Investment Act (WIA)
umbrella. Other NYS agencies serving the disabled have also developed vocational
initiatives and the array of rehabilitation facilities, BOCES, and other
educational and training services has multiplied. USNY partnership has emerged as a
valuable resource. Service
modalities have evolved from a few sheltered workshops to full consumer
integration in community-based education and employment. VESID must position
itself to maximize the use of all available resources for its consumers, to
better address the potential for overlapping services, and to take a leadership
role in working with partners regarding the specialized employment requirements
of people with disabilities.
B.
Changing Fiscal And Staffing
Resources:
The ever-increasing cost of service
provision is another significant factor impacting VESID VR program
operations. This is coupled with
severe reductions in the non-VESID support services utilized by our consumers to
help them achieve and maintain employment. The overall reduction in the human
services support network in New York State shifts additional tasks to VESID VR
staff such as case management support for issues that impact on the consumer’s
ability to work. Simultaneously,
many experienced VESID VR staff members are reaching retirement age and exiting
the Department. Nearly 40% of VESID's VR counseling staff will be eligible to
retire within the next five years.
Although we are making good progress in our ability to replace staff,
many of the hirings are internal promotions, so residual unintended staffing
gaps remain. All of these factors
reduce VESID VR’s direct service capacity.
As Designing Our Future proceeds, it cannot
be assumed that substantial additional resources will be made available to VESID
to fulfill its mission. We must find ways to maximize our ability to reach and
serve all eligible applicants in order to avoid the federal Rehabilitation
Services Administration (RSA) imposing an Order of Selection (forced limitation
of services to only the most severely disabled). This status would, by
definition, dramatically reduce the number of individuals VESID VR could serve.
The design must address all these factors and determine those functions that are
central to VESID’s mission, those that are potentially available as services
from external supports, and those functions that might have to be reduced or
eliminated.
C. Technological
Evolution:
A potentially positive area of change is the
rapidly expanding array of technological supports that are available not only
for VESID consumer use, but which could be utilized much more extensively by
VESID VR in the performance of its mission. Given staffing levels, and the VR
mandate to provide accessible services in every community in the State, the need
to interact electronically with other partners and broaden VESID’s technological
supports is essential.
D. Implementation of
Fiscal Controls:
The Design process must ensure that the VR
system of the future has the capacity to perform the unique consumer specific
spending that is critical to vocational rehabilitation service delivery.
However, the structure must enable VESID to do so in a manner that is in full
compliance with NYS finance law and other fiscal requirements. More stringent
monitoring, control processes and purchasing protocols must be implemented
without creating a barrier to timely, effective consumer services.
E. Changing Patterns
of Employment:
As vocational specialists, VESID VR must
ensure its design is complementary to the emerging employment patterns of the
coming century. Job seekers are now
much less likely to move into a single, permanent job, work for the same
employer, or remain in the same field for their entire careers. Entry and re-entry into VESID services
must accommodate this reality. Shifting demographics will create shortages
within the nation’s worker population, and create a new level of employment
opportunity for individuals with disabilities.
However, selection of the right fields and
the development of essential skill sets are more crucial than ever. VR staff need the time, training,
structural support and the labor market information to assist our consumers in
these decisions.
PART
TWO: HOW DID VESID CONDUCT
THIS
REDESIGN
INITIATIVE?
The Design proposals reflect almost two
years of input and discussion. Through focus groups, surveys and bench-marking
with other states, the design team gathered information on the effectiveness of
current VESID processes and systems requiring change, as well as recommendations
on how to change. Input was
gathered via staff meetings in each VR District Office; numerous community
meetings at various locations throughout the State with outside stakeholders,
including consumers, family members, advocates, State Rehabilitation Council
(SRC) representatives, vendors, State agency partners, and educators; and
feedback from both an internal and external website survey. This input was
processed in two summit sessions involving all VESID VR senior staff and
Designing Our Future Steering Committee members.
The Designing Our Future recommendations
reflect a system that is bold, broad and inclusive. The recommendations are
intended to clearly articulate VESID’s mission, ensure easy access to services
for consumers, align staff to best carry out their responsibilities, improve
outcomes, ensure accountability on all levels, and allow for productive
partnerships with stakeholders. The
following recommendations are a result of this complex
process.
A preliminary implementation plan has been
developed identifying the activities, timelines and sequence needed to bring the
design to life. A number of pilot projects are already underway to provide more
detailed implementation guidance where this is needed. An “Evaluation Team” is responsible for
establishing a process to assess the effectiveness of the design, and to define
quality assurance standards that will ensure the integrity of the entire
process. More detailed
recommendations are also being developed relative to the Central Office and
District Office structures that will be needed to support the design. The
implementation phase for this major systems change will be a gradual process
over the next few years, with some areas moving quickly into place. Other
efforts will require infrastructure development or the participation of numerous
outside partners, and thus will come on line more slowly. Ultimately, if we have done our work
correctly, the system will continue to evolve, so that in some ways we will
never be done but rather will be working on our next
improvements.
WHAT
ARE THE OVERARCHING ISSUES?
Commissioner Mills charged the Steering
Committee to bring VR forward to meet current needs effectively and to design
the underpinnings of an agency that would be viable into the foreseeable
future. In order to move the design
proposal from theoretical ideas to reality and achieve that long-term vision, a
set of over-arching requirements were identified. These are the aspects of the design that
must have substantive support in order to proceed further with any
implementation plans. Without
agreement on these items, the design proposals outlined in the following
document will not be able to be carried out or would need to be significantly
restructured.
Ability to Utilize All Technology Applicable to
VESID’s Unique Vocational Rehabilitation Mission:
The Department developed technology guidelines to meet the varied
requirements of the USNY participants, including specifications and limitations
on types of equipment, software, and modes of computer access. Due to its provision of direct consumer
services and its requirement to be available in multiple settings, VESID’s VR
technology needs are distinct from those of other Department offices in certain
respects.
VESID needs proactive leadership in the implementation of the technology
of its future. Managing technology for the department is an immense task, and
the Department’s Information Technology Services (ITS) Unit currently
acknowledges it is stretched beyond capacity. Prioritization/limitations on
technology initiatives are underway, and additional resources are clearly not
anticipated. However, as detailed
in the recommendations, VESID has numerous technology needs that will require
new and distinct capacities. These
include web-enabling the Case Management System (CaMS) record keeping system to
make it truly portable as well as the ability to gather electronic signatures
and scan external information into our files. VESID will also need to continue to
examine emerging technology for tools that will enhance its service delivery
capacity.
VESID must work in tandem with the Department’s ITS leadership and staff
so that VR will comply with all technology mandates that are applicable to VR’s
technology needs. However, these
collaborative efforts must also ensure that VESID VR has the additional
technological capacity to perform our mission while protecting the Department’s
operating systems. By drawing on its federal funding, VR has the financial
capacity needed to underwrite crucial technology supports above and beyond those
currently available. Without the needed flexibility in this area, the design as
a whole is significantly compromised.
Maintenance of Core Staffing for
VR Functions:
The provision of VR counseling is a one-on-one process of identifying the
unique vocational capacities, interests and disability related abilities of each
consumer. The development of each person’s employment plan brings to bear the VR
counselor’s knowledge of the labor market, rehabilitation technology and
available services. Multiple vendors to provide equipment as well as educational
and training services may be necessary to actualize the plan. Various clerical
and fiscal support functions are then needed to translate that plan into the
purchasing and documentation processes that ultimately result in achievement of
a consumer’s employment goal. Staff
capacity to carry out a broad array of functions in a timely manner is crucial
for consumer success.
The service delivery structure for VESID VR services has not changed
substantially since the revision of the Federal Rehabilitation Act in 1973. Many
staff members have reached retirement age and VESID VR is currently dealing with
an anticipated 40% staff turnover in the next five years. It has not been
possible to replace departing staff members on a one-for-one basis, and staffing
gaps may occur based on individual retirement decisions. We have sought out best
practices, analyzed our own service delivery experience, and developed
recommendations as to both the minimum number and type of VR staffing needed for
the provision of individualized service to over 98,000 consumers annually. These
staffing recommendations will enable us to comply with all federal and State
requirements, which include specifications of key services that must be
directly provided by VR staff and cannot be purchased from external
providers. The recommended design
will enable us to meet fiscal guidelines, and most importantly, will provide
sufficient vocational rehabilitation counseling capacity to meet the unique
employment needs of each of our consumers.
There is also acknowledgment that we must contract with external
providers to perform a broader usage of functions. We have looked at what
portions of the operation might be more indirectly supported via the appropriate
utilization of non-VESID partners. The proposed model presumes that, where
permitted by federal and State requirements, VESID will purchase additional
kinds of services. Many of the
design items address creative approaches to providing consumers with requisite
services in a more timely manner through the use of partnering, vendorization,
or service reconfiguration. Traditional spending patterns will change, with
Federal case service dollars being utilized to underwrite new consumer specific
service purchases around intake and generation of materials for
eligibility.
The design model assumes that the core staffing patterns included in the
proposal will serve as a tool in helping VESID manage its workforce over the
next few years. Significant
variance from the model would ultimately reduce the number of individuals served
by VESID, since by federal definition, core rehabilitation functions must be
provided by VESID VR employees.
Restructuring of VESID VR’s Fiscal
Processes:
Audit findings within the last few years
make evident that the management of over $120 million dollars in purchases, for
almost 100,000 individuals with disabilities annually, cannot continue to be the
primary task of staff whose skills are rehabilitation counseling. Current fiscal
processes are inadequate to support the increasingly complex contractual
arrangements and State finance law requirements. Expansion of the vendor pool
directly benefits consumers, but VESID’s inability to generate timely payments,
and the complexity of its payment documentation requirements, discourage vendor
participation. The entire fiscal structure of the VR program must be realigned
and strengthened to enable the system to support the work of VR counselors on
behalf of consumers, ensure regulatory compliance and support internal
controls. Implementation of a new
fiscal management system is critical to the viability of the VR Program in
VESID.
Capacity to Diverge from SED Media/Publication
Standards and Utilize External Marketing Resources:
In a manner directly paralleling VR’s unique needs in the field of
technology, a similar situation exists in relation to marketing and public
message activities. VESID VR is
charged with a public education role, in combating the misconceptions about the
limitations of disability on employment capacity. VESID is also charged with
outreach to unserved and underserved portions of the disabled population, so
that they may become aware of, and benefit from, VESID services. Materials
relative to specific disabilities and to life situations, such as the transition
from secondary education or the entry into the workers compensation system must
be available. Another crucial
component is marketing work VESID does with the employer community to create
employment opportunities for consumers.
VESID products must be of a professional quality, provide maximum impact
for the dollars invested in their creation, and be available in various formats
and in a timely manner.
In order to have the tools needed to perform the public message/marketing
portions of VESID’s mission, a number of media approaches are needed, from
creation of brochures, to development of content in a number of languages, to
the production of video and audio versions of materials. SED publication
limitations and time frames do not allow VR to function at the level required to
successfully perform some of its core activities. VR must have the capacity to
draw on external consultants for public message and marketing activities, and to
utilize external publishing resources.
As a direct service provider, VESID VR must be able to reach all of its
many diverse stakeholders and provide them with clear and compelling messages or
its risks reductions in positive outcomes for the program and its participants.
The
proposals that follow represent both dramatic changes and more subtle
restructuring of current VESID VR process.
Taken in total, implementation of the proposed design will result in a
significant culture change for VESID and major improvements in access and
service delivery for its consumers.
Successful implementation of this proposed model would require
substantive and sustained training for, and ongoing communication with, both
staff and partner agencies.
PART
THREE: PROPOSALS FOR DESIGNING OUR FUTURE
In order to address every aspect of the VESID VR
process, the Design team divided into sub-groups to explore options with respect
to key service areas: Intake, Service Delivery and Placement Outcomes. An
additional group has been charged with looking at the evaluation and quality
assurance measures needed for the new structure. The teams were charged with designing a
service delivery system that would enable VESID to continue to provide quality,
effective services to consumers. The groups were advised that there would be no
additional dollars and the overall number of staff would remain constant;
however, it would be possible to reconfigure the existing staff, to identify
other ways to spend saved dollars and to consider ways to leverage funds with
other agencies. For the purposes of
this document, details of those recommendations that fall within the purview of
routine district office operations have not been included in this summary
material. The following recommendations are organized around the major themes
that emerged from our work.
IMPROVING
ACCESS
Of the 98,000 people served yearly by VESID
VR, each has an initial, pre-eligibility experience with VESID that can be the
most in-depth period of time the person spends with the VR counselor and the VR
system. This early stage of activity is the period when potential applicants,
their families, referral sources, advocates and other entities form an opinion
about VESID that will very likely stay with and influence them for the rest of
their VESID experience. If this
initial entry period is not successful, the person may not advance to
employment.
The Team proposed the development of facilitated
entry tracks for all individuals who are requesting VESID services including
incumbent workers, previous consumers, consumers transitioning from secondary
education programs, and those requesting only placement services. All of the
recommendations address a key finding identified in the focus groups with
consumers, vendors and advocates indicating a direct correlation between
timeliness of service and consumer satisfaction.
How It Will
Work: At initial contact with VESID, and in
our public messages, consumers would be offered the Placement Express
option. If this matches with their
needs, they can self identify as placement ready and in need of a limited number
of shorter-term services, primarily placement. Consumers are then offered a
brief screening/assessment to ensure work readiness. For those for whom this is found to be a
reasonable plan, rapid access to plan development and direct placement is
provided in an expedited manner.
RECOMMENDATION #2: Develop an Incumbent Worker/Career
Development Track for Easy Consumer Re-Entry to VESID
Reflective of the job
market of the future, where most workers
will have multiple employers/careers over the course of their working lives, VESID needs to offer an open door to
former consumers who still meet VR eligibility criteria, have disability related
employment barriers, and are currently working and seeking to upgrade employment
or need to rapidly re-enter employment. In previous years, federal
Rehabilitation Services Administration (RSA) directives focused state VR
agencies on a strategy of “leveling the playing field” by enabling individuals
with disabilities to get an equal start with their non-disabled peers. RSA has
evolved the goal of helping individuals who still have disability related
employment barriers through the multiple phases of their career
development. However, within the
VESID culture, criteria for re-entry are often more strictly enforced than is
the case for individuals seeking initial eligibility. VESID VR needs to refine
its service provision to address the ongoing vocational needs of previously
eligible consumers.
How It
Will Work: VR
public messages, especially closure letters/activities, would include definition
of circumstances under which consumers can return for additional services. Consumers with disability related
employment barriers would know they are welcome to return and how to do so. Some may come back via Placement Express
as in Recommendation #1 above, others may be served under the Post Employment
Services category, and others whose needs now fall outside VESID’s domain may be
linked to One-Stop services. Some
interventions would be in the category of “job saves” (when an anticipated
termination of employment can be averted), while others would focus on new
career development.
Positive
Impact on VESID: This method would reduce the dissonance
between future vocational needs of consumers and the pressure on the system to
measure successful achievement of 90 days of employment, in accordance with
Federal outcome measures. Case
closure, with recognition that an employment goal had been reached, would not be
seen as the end point for potential VR support for additional future vocational
milestones. This approach
acknowledges and addresses the need for career development for individuals with
disabilities. It also enables VESID
VR to demonstrate concern for consumer careers, not just entry jobs. This method
addresses both unemployment and under-employment issues for individuals with
disabilities.
How It Will Work: Current
VESID service contracting options have created an opportunity for purchase of
these services, which can be tailored to the individual needs of District
Offices. The potential exists to gather a wider variety of information for
eligibility/planning purposes, such as functional assessment and interest
inventories. The focus of this recommendation is on the purchase of a package
that will expedite completion of eligibility certification. It presupposes that the second stage of
the Design process will focus on implementation guidelines, including
credentials of staff that would perform the “Fast Track” functions, and quality
assurance measures that would be applied to the products of a “Fast Track”
process.
Positive Impact on VESID: VESID professional staff will be able to focus on
core vocational rehabilitation interventions (Eligibility Certification and Plan
Development activities) without hindering consumer access to the system. This
approach also helps reduce the current heavy clerical duties on counselors that
negatively impact available time to meet with consumers. Consumers will have the potential to
receive more extensive case management support at the time of intake, and in a
timelier manner, than is possible with current VESID staffing. By purchasing this service in a number
of areas, geographic access for consumers will be enhanced, and services will be
available in more convenient locations.
This method has the potential to
directly increase consumer satisfaction, and to increase successful
rehabilitation closures due to more counselor time given to vocational
counseling and guidance. This approach also addresses the concern voiced by
focus group participants that certain consumers due to the limitations imposed
by their disabilities cannot access VESID successfully without significant
support from the provider community. This methodology would facilitate
participation in projects with large numbers of potential referrals from such
sources as school districts and pilot projects with partners that we otherwise
could not accommodate.
VESID’S
LEADERSHIP ROLE IN NEW YORK STATE SERVICES TO INDIVIDUALS WITH
DISABILITIES:
ENHANCING
UTILIZATION
OF THE UNIVERSITY OF THE STATE OF NEW YORK (USNY)
PARTNERSHIP
VESID VR is the New York State (NYS) agency officially charged with
provision of employment services to individuals with severe disabilities (people
who meet the Federal RSA definitions regarding severity/need). However people
with all degrees of disability interact with a variety of human services
systems. There are numerous other state and local programs that either share
VESID’s service population, or work with disabled individuals who are not
involved with VESID services.
Beyond their direct service role with the severely disabled, VESID staff
are uniquely qualified by both experience and training to provide vocational
rehabilitation expertise within SED/USNY and across other NYS
agencies/services. As experts in the field of
vocational rehabilitation, we are able to serve as a catalyst for systemic
improvements. It is consistent with
our mission to ensure that issues pertaining to the employment of individuals
with disabilities are addressed in a manner that:
·
Guarantees consumer
access to the most appropriate level of service;
·
Is cost effective and
coordinated to maximize consumer success;
·
Enables VESID and its
partners to better measure and account for the full range of employment related
outcomes for individuals with disabilities; and
·
Replicates best
practices and enhances efforts across and among system
partners.
RECOMMENDATION #4: Enhance Transition for Consumers
Exiting School
Not all students in NYS
schools identified as having disabilities require adult vocational
rehabilitation services. However, a significant number of secondary students,
who meet VR eligibility, fail to link to VR or other adult services. For these students, gaps in connecting to VESID often result in years of
chronic unemployment, lack of benefits, dependence on public assistance and
deterioration of skills gained in educational settings. In many cases, by the time the consumer
is linked with VESID, both costs and the difficulty of gaining employment have
skyrocketed. Limited VR staffing for
outreach and the autonomy of local school districts have made a systemic and
coherent response to this issue problematic. The Department is in a
unique position to bring resource and focus to this crucial juncture, both
through mandated school transition activities and closer coordination of VR and
other Department technical assistance activities focused on students with
disabilities.
How It Will Work:
Annually by letter the Department will directly inform parents/guardians
of students with disabilities about the availability of the adult Vocational
Rehabilitation system and how to contact them for information and
assistance.
Closer coordination of VESID VR and other
Department staff will result in more effective education of school districts as
to their role in career preparation and transition planning. Monitoring of the
school performance in this area will be stepped up and included clearly in
Report Card data. Suggested
activities include strengthening the review and enforcement activities of
Special Education Quality Assurance (SEQA) to focus on Level I, II, III
assessments and career development activities required under IDEA. The
compliance standards will be broadened to look for hands-on community-based
vocational experiences including the measurement of linkages to adult
services/job placement as a School Report Card item. When feasible, local VESID offices will
be involved in the review of remediation plans for low performing schools around
these transition-related requirements. Other Department initiatives involving
disabled students will be shared with VR, both for input and coordination
activities. Local VR offices will routinely be provided with local area
numerical data on exiting students with IEPs or 504 plans as well as disabled
children at risk of dropping out to ensure appropriate referrals are being made
from school districts. A unifying
standardized activity and document would be completed between local VESID
and school staff addressing relevant transition-related
agreements.
Positive Impact on VESID:
Students with disabilities
will receive coordinated transition services that will give them access to
needed adult services. Department focus on this area will help instill in school
staff the connection between academic programming and the real life
planning/career development/employment needs of disabled students. This coordination will also enhance the
sense of VESID VR and special education staff being a team working on this issue
together and having joint forums to share information, experiences, and
opportunities.
RECOMMENDATION #5: Utilize VR’s Unique Expertise to
Ensure NYS Partner Collaboration, Yielding the Best Employment Outcomes for
Shared Disabled Consumers
VESID’s New York State partner agencies have
expertise either in helping the general public find employment, or in helping
consumers address the impact of a specific disabling condition. People with varying levels of disability
clearly comprise a significant portion of the job seeking public served by NYS
Department of Labor (DOL).
Comprehensive responses to the needs of a specific disability group, such
as those offered by the NYS Offices of Mental Health (OMH), Mental Retardation
and Developmental Disabilities (OMRDD) and Alcoholism and Substance Abuse
Services (OASAS) often include addressing some vocational issues. However, VESID
is the primary agency where expertise in the medical aspects of disabilities,
current rehabilitation technology, and rehabilitation counseling best practices
comes together with a fully developed knowledge of career planning, employment
preparation, job seeking and job retention for individuals with disabilities.
Because the mission of VESID reflects this dual role of disability and
employment service delivery, it has a unique position bridging agencies
addressing primarily one or the other focus areas.
Similarly, other state entities have a focus
on a specific target population.
For example, VESID VR’s sister agency, the Commission for the Blind and
Visually Handicapped (CBVH) plays a similar role to VR, but is limited to
serving individuals who are legally blind. VESID VR is charged with serving
individuals with all types of disabilities giving us the broadest systems
perspective on the needs of the disabled community as a whole. Since no other
agency has such a comprehensive mission, VESID should take a leadership role in
enhancing the collaboration among all the key State partners involved in the
employment needs of individuals with disabilities.
How It Will Work: VESID VR will lead a state level consortium to
ensure closer collaboration with other NYS disability service agencies in
planning, delivery and measurement of employment outcomes for individuals with
disabilities. Although efforts have
been made to ensure ongoing collaboration with other NYS disability service
partner agencies, many major vocational initiatives and significant funding
alterations impacting on vocational services to our shared consumers have
occurred without needed coordination, resulting in duplication and repetition of
services. This recommendation seeks to establish a body similar to the previous
Interagency Coordinating Council as the loss of this high level Council has had
a negative impact on maximizing New York State funded vocational services to its
disabled residents. A strong
coordinating group, supported by knowledgeable staff, will have the potential to
best help disabled New Yorkers become employed, with the least cost to State
government. This group will also
serve as a consultant body for initiatives with business and unions. Regional
workgroups may also be formed as needs are identified.
VESID must establish itself as a valuable consultant
on vocational rehabilitation issues for other state partners, and express a
willingness to provide a funding contribution for jointly developed approaches.
In most instances, we are already involved in case services expenditures but
have not used this to leverage coordination/cooperation. Re-establishment of a
State MOU level, working interagency coordination council is needed to set the
tone and provide guidance on specific projects that reinforce VESID’s role in a
range of vocational initiatives. This would yield system level planning and
coordination that encourages specific projects and joint ventures at the local
level. Proposed local initiatives
will then be brought up to council level for support and possible replication as
best practices. A key initial
activity will be achieving agreement on alignment of key performance indicators,
funding responsibility and policy coordination so that mutual work is
enhanced. This group should be
extended to include: Workers Compensation, DOL/WIA and OASAS, Office of Children
and Family Services and Office of Temporary Disability Assistance (OTDA) in
addition to OMRDD and OMH. MOUs need to be updated on a more frequent basis to
reflect impact of legislative, funding, and other relevant
changes.
RECOMMENDATION #6: VESID Needs to Envision Its Own
Operation as a Key Component of a Larger Workforce Development System through
One-Stop Partnering
VESID VR isolation from the larger Workforce
Investment system as defined in the federal WIA is not a viable option and
disadvantages our consumers.
Services to all individuals with disabilities within the State cannot and
should not be provided exclusively by VESID. Services at the One-Stop training
and employment centers, which are the core of the national workforce program
delivery system as defined by the WIA, can assist some people with disabilities
to achieve employment. Not all
disabled individuals require a rehabilitation-based employment plan, or a case
management model for employment services.
Measurement of employment outcomes for individuals with disabilities
should be generated on a system-wide basis.
How It Will
Work: VESID will develop a
statewide strategy for its involvement in the WIA system. On the local level,
District Offices will have a professional staff member without full caseload
responsibilities assigned to the principle One-Stop sites (at least one per
District Office). Specific role definition will be derived from the structure
and process at the particular One-Stop. Suggested activities include: orientation, intake, coordination with
Disability Navigators in accessing support services, help with consumer
application for WIA Individual Training Accounts (ITAs), coordination of
employer incentives for hiring of individuals with disabilities, and links to
the treatment community.
Other
appropriate activities that would contribute to helping persons with
disabilities go to work include: One-Stop resource room and workshop
involvement, coordination with Business Services Unit/VESID Integrated
Employment Specialists (IES), providing assessment and consultation on specific
One-Stop/DOL cases where disabilities are uncovered and the service need is
unclear, advocating for VESID consumers’ utilization of One-Stop resources, and
ensuring accurate One-Stop Operating System (OSOS) registration occurs for
disabled job seekers at the appropriate junctures.
Positive Impact on VESID:
Successful partnering with the One-Stop system will yield the most cost
effective approach to disabled consumers receiving employment and more consumer
satisfaction with results. VESID VR will be seen as a key component of the
larger workforce system, the value of specialized VR expertise/services will be
recognized, other system partners’ usage will be maximized, and the true picture
of employment outcomes for disabled individuals will be captured. VESID VR will have the capacity to
identify people close to employment who can benefit from DOL and other job
availability information and can share these cases with the One-Stop to help
ensure their compliance with federal WIA standards. VESID VR presence at the One-Stop will
allow us to access all partner resources, especially special projects
initiatives, and to capitalize on system-wide grant opportunities that will
benefit our consumers.
USING
TECHNOLOGY
The
ideal VESID front-end system has available an array of options which maximize
the value of technology for entry into, and decision-making within, the VESID
structure. Technological supports will provide the capacity to: complete an entire application packet on
line; perform various consumer self-assessment/interest inventories; utilize
tools helping to delineate transferable skills; and access all other web or
on-line tools of value to the VR process.
We envision a front-end system that utilizes technology to broaden
consumer entry options by offering a web-based orientation and application
process. Consumers would have the
option to attend orientation sessions, complete applications, or to view
information about VESID services and expectations over the Internet. The public message of VESID will be
available via CD to community organizations and assists in keeping providers and
the community informed about the role and services of VESID. Coordination with public broadcasting
resources will enable VESID to utilize television and radio to better serve
consumers.
How It Will Work: Web-based Consumer Applications: The potential
applicants view an on-line orientation that provides an agency overview and
information on specific areas of service related to employment. If individuals retain an interest in VR
services after viewing the orientation, they could make an application for
service on-line and download applicable medical forms with instructions to
expedite the application process. After providing VESID with demographic data
(information from previous case files could be used for re-applications) and
medical information sufficient to make an eligibility decision, consumers will
be provided a password along with suggested (based on decision making
technology) on-line assessments to complete in advance of their initial meeting
with a Vocational Rehabilitation Counselor (VRC). These on-line assessments
would include tests that VRCs are eligible to administer. Assessments may include academic
screening, interest inventories, and transferability of skills based on prior
employment histories. The on-line assessment tools will be scored electronically
and returned to the VESID District Office for insertion into the case file.
These materials will be available prior to the initial meeting between the VRC
and consumer and will enhance the vocational planning
process.
Web Based Provider – Assisted
Applications: VESID will partner
with service providers throughout NYS that have routine interactions with
persons with disabilities and who can assist potential applicants in accessing
VR services. These include secondary and postsecondary schools, various State
Agencies, community-based rehabilitation programs, drug and alcohol
rehabilitation programs, placement providers, WIA One-Stops and Social Service
Departments. These providers all
have the knowledge and capacity to refer consumers with whom they are working
for VESID employment related services.
Many of them could build application packets during their service to
persons with disabilities and submit them only when it is timely, and there is a
need for VR service(s).
Positive Impact on VESID:
Providing a web-based application option has the strong potential to
reduce waiting times at the front end of service delivery by expediting the
process. This will greatly enhance
consumer satisfaction, and allow people with Internet access to proceed at their
own pace in the application process. It will enable providers to better assist
consumers in pursuing a VESID application. Timely linkages to VR services will
result in lower per case service costs and reduce the length of services needed
to achieve employment.
Implementing this recommendation will also
move VESID toward developing standards around emerging technologies used
elsewhere in State government. It
will connect VR with new opportunities for electronic information exchange in a
web-based environment that is a key component to future inter-agency
collaboration. The recommendation works toward eliminating the redundancy of
data entry and may reduce staff hours required to bring a consumer to the point
of an eligibility decision. It
provides a benefit to the individual consumer as well as community programs and
service providers. The components of the on-line orientation program will
additionally fulfill a need for ongoing education of community agency staff
regarding VESID services. Finally,
using a web-based application will enable the cost effective use of closed
captioning, interpreter services, alternative formats, and various alternative
languages
RECOMMENDATION #8: Designate the Electronic Version
of VR Consumer Files as the Official Case Record (CaMS)
Our current record keeping system, CaMS, was
originally designed with the expectation that staff at all levels would access
the case record and enter data or perform casework in an electronic format, but
that the “official legal case record” would continue to be the paper file. There
is now an increased reliance on the use of CaMS, the electronic record, “to tell
the story” rather than the hard copy of the case file. The latest fiscal control requirements
for supervisory review and approval further highlight the importance of
including all necessary supporting documentation in CaMS, so that the reviewer
is able to determine the appropriateness of the authorized services. However, many supporting documents in
the case record are not generated by VESID and are in hard copy in the paper
file. Future collaboration with other systems also depends on a fully electronic
case record system.
How It Will Work: Similar
to what has been done in the Worker’s Compensation system, VR needs to move to a
system where the official case record is the electronic case record. This would
require technology upgrades for scanning correspondence, medical records and
other documentation into the electronic case file. It will also require that all
VR staff in all areas of the state have the necessary equipment and technology
support to fully utilize an electronic record.
As a public agency, VESID needs to provide accurate,
understandable and useful information to its various constituencies. We must
provide materials that address the unique needs of potential applicants,
consumers’ families/significant others, transitioning students, interested
employers and system partners. Such
materials must be of a high quality and reflect the professionalism of our
services. Our obligation includes
making our materials accessible in a number of formats/languages and in
utilizing as many forms of technology as possible to convey information to the
public.
RECOMMENDATION #9: Ensure that All VESID VR Public Message Materials are
Clear, Consistent and Of High Quality
VR materials will use the “language of success and
inclusion” of persons with disabilities. VESID’s “public message” materials will
be responsive to the information needs of various partners in the vocational
rehabilitation process, including disability groups, employers, advocates and
school district personnel. Materials developed for use by VESID for its public
message will be available in various formats, including print, DVD and on
Internet Web sites.
How It
Will Work:
All materials will use the
language of success and inclusion.
Photographs will reflect the broad diversity of persons with disabilities
assisted by VESID. Public message materials will appear on VESID’s various web
sites, including those used by district offices. VESID will use professional
resources, under contract, to create and maintain print, DVD and web-based
materials. Print and DVD materials
will be available in alternate formats and languages, as will the web-based
materials.
Collaboration with USNY partners, such as libraries
and the Public Broadcasting System (PBS) will be further developed to bring
information in new ways to both employers and individuals who may seek VR
services. For example, initial conversations are underway between VESID and PBS
staff regarding: creating public service announcements and making them available
for distribution to private stations; working with VESID around special projects
such as National Disability Employment Awareness Month events; and most
importantly, using PBS TV and radio
stations to educate the public about people with disabilities--their hopes,
dreams, successes and how they contribute to society.
Positive Impact On VESID: People receiving VESID’s public message materials
will understand that VESID is about employment. Referral sources will make more
appropriate linkages, thereby reducing VESID’s staff time in screening
referrals. Employers will see the professional nature of our services and be
more open to hiring our consumers. By using professional resources to create and
maintain public message materials, VESID’s staff time is available for other
critical functions. Most importantly, outreach to individuals who are
appropriate for VESID services is significantly enhanced.
ENHANCING
THE SERVICE DELIVERY STRUCTURE
The core mission of VESID VR is its services to VESID consumers. The Service Delivery Team proposal
creates a model that would increase the efficiency of service planning, while
achieving other key components of our charge including:
·
incorporation of
the principles of informed
choice;
·
incorporation of
employment factors, as defined in federal RSA legislation;
·
application of
cost-effective strategies; and
·
compliance with SED and
NYS fiscal controls and business practices.
The proposed Service Delivery team model
redefines the traditional role of VRCs who currently have the responsibility to
develop, coordinate and deliver all services to consumers assigned to their
caseloads. There are multiple demands for the counselor to manage every aspect
of the vocational rehabilitation process: referral, eligibility, counseling,
plan development, procurement, identification of required services, coordination
of the activities of service providers, amendments for additional services
required beyond the original plan, ongoing counseling and monitoring of case
progress, case documentation, job development/placement services, employment and
follow-up, and case closure. The
current structure, by definition, places responsibility for all forward movement
for every case on the counselor.
The present VR service delivery design constricts service flow to what a
shrinking counseling staff can accomplish with an ever-growing
caseload.
The Service Delivery Team model is
predicated on improving the counselor’s ability to manage their caseload. As a result of current staffing and
resource issues that exist in VESID, consumers are encountering delays at all
points in the rehabilitation process.
Utilization of the team approach will provide the supports to more
efficiently and productively manage individual consumer expectations and
requirements for service (case management). All team members will jointly hold
the caseload responsibility for organizing, structuring, and planning for
services. Another aspect of our
service delivery role is the multiple sub-activities related to payment,
documentation and quality assurance that must occur, and the support areas that
must be in place for the actual service delivery process to go forward. This section also addresses some of the
structural needs of VESID VR, relative to the support structure of the VR
system, including Central Office functions and District office
configuration.
RECOMMENDATION #10: Implement a Service Delivery Team
Model
The model of the future utilizes a team
concept for service delivery, with a VRC maintaining responsibility for the core
rehabilitation functions of eligibility certification, for goal planning, and
for the development of the original IPE. Routine details regarding additional
services and case management will become the duty of the Vocational
Rehabilitation Counselor Assistant (VRCA) working under the instruction of the
VRC. Consumers will maintain the
ability to access the VRC and receive counseling supports to appropriately
obtain a successful rehabilitation outcome but will also have other staff
members to turn to for more routine needs.
How It Will Work: The new model redefines the role of the VRC in that
the essential functions of eligibility certifications, goal planning and
development of the original IPE become the VRCs’ primary tasks. Activities
outside of these core functions will be provided by VRCAs, or through other
purchased service, under the direction and guidance of the VRC. Supervision of the team as a whole will
reside with the Senior Counselors.
The VRC will remain available to consumers throughout their involvement
with VESID and will be the designated resource at critical decision points that
could impact on achievement of the employment goal. There will be many
instances, such as an exacerbation of disability, adjustment issues during
training, poor academic performance, and difficulties securing or maintaining
employment, where the VRC will re-engage with the consumer, as needed, to guide
and direct the rehabilitation process.
Positive Impact on VESID:
Restructuring the VESID counselor’s duties to concentrate on these core
activities will result in a timely, more efficient opportunity to engage the
consumer early in the vocational rehabilitation process. Counselors will begin an intensive,
focused assessment of the consumer’s employment factors (skills, abilities,
resources, concerns, interests, etc.), which contribute to the development of
the employment goal and the services necessary to achieve that objective. Counselors will continue to utilize
other rehabilitation providers as needed for formal diagnostic vocational
evaluations, work readiness, or community-based assessments. VRCs will also be
able to explore vocational interests and define transferable skills through
their direct counseling activities with the consumer. This model will best
utilize the skills and expertise of the VRC who is trained in vocational
exploration and career development; is knowledgeable about the psychological and
medical aspects of disability; is aware of labor market trends and the
expectations of the business community; and who, as a result, is able to
analyze, integrate and communicate this information in the context of a
counseling relationship. This is the optimal rehabilitation process, designed to
produce a realistic, mutually agreed upon, criterion-based IPE.
RECOMMENDATION
#11: Restructure the Responsibilities of VESID’s District Office and of the
VESID VR Functions within Central Office
VESID VR’s current configuration reflects 15
District Offices and 7 satellites. While this design enables VR to be accessible
to its consumer base and to address linkage, vendor and service delivery needs
locally, it also creates a number of issues and does not maximize staffing
resources. These concerns can best
be resolved through the designation of a number of these offices as Regional
Offices that will serve as a source of support and supervision for up to three
other District Offices. This structure maintains the local knowledge and
responsiveness that is crucial for VESID VR operations, while achieving
significant gains in efficiency, cost-effectiveness and compliance with
applicable rules and regulations. It provides an economy of scale without
creating potential bottlenecks.
In a parallel manner, it is recommended that
the current District Office Operations structure in Central Office be realigned
to better support the current and future VR Service delivery system as a
whole. Finally, it is recommended
that VR continue to explore a variety of locations/office configurations to
enhance partnerships, collaboration, and accessible services for its
consumers.
How It Will Work: A
Regional Office, in addition to service delivery and support services for its
assigned geographic area, will provide technical and support services to local
District Offices. The local office will be connected to the larger regional
office for supervision, and other identified functions such as IT support and
marketing for the larger region. Under this concept, up to three current
District Offices will be connected to one Regional Office. Community resources
would determine the locations of specific regional and local offices, including
consideration of the availability of skilled workforce, partner networks and
VESID staffing patterns.
Currently, VR is structured so that each
district office is responsible for all service delivery functions for its
assigned area, regardless of the complexity or frequency of the
process/activity. The end result is that VESID District Office staff may not all
have the experience, skills, in-depth knowledge, or time to complete various
complex service delivery processes most effectively. Some of the most complex
purchasing, from both the perspective of State Finance Law and technical
expertise requirements are in the areas of Vehicle Modifications, Home
Modifications, and Self-Employment. These services occur with limited frequency
within the District Offices, but are our highest risk areas relative to
appropriate expenditure of funds, compliance with OMS directives and correctly
addressing consumer needs. Delivery of such services will be much more
effectively managed by the designation of some current District Offices as
Regional Offices “hubs.” This design will allow for a limited number of staff
members to develop needed expertise to assist other counselors with high-risk
cases of this type. This cadre of
experts will draw on purchased consultation services from specialists as needed
(such as the recently established Vehicle Modification
consultant).
VR staff roles are already somewhat
structured around a Regional concept with Regional Coordinators providing
supervision to District managers, and the Statewide Associate Manager for VR’s
Rehabilitation Management Services (RMS) providing a centralized oversight for
local counselors statewide who are involved in this project. Information Technology Specialist 2
staff provide support to IT staff in a cluster of District Offices, and
Marketing staff have a senior level representative (Integrated Employment
Specialist II) in some offices but have no specific regional charge. Other areas of expertise are shared on a
more informal basis with experienced Business Managers providing information at
the request of newer staff in that role. This loosely defined regionalism needs
to be taken to the next level by establishing clearly defined roles and
responsibilities that will provide maximum support for the offices as a whole.
One of the key activities of the Regional
Offices will be the oversight, management and support of the financial
operations in the regional and local offices, through the supervisory support of
the regional Business Manager. All specialized/complex procurement activities
will be channeled to the Central Office level--(See Recommendation #15). The local offices will manage routine
financial transactions, payments up to a specific limit, and certain prescribed
waivers. The Regional Office will have IT and Marketing staff who will supervise
and support IT and Marketing staff in the local offices. Regional offices will
ensure consistency of approach and assist in the development of needed services
within a region, and coordinate the implementation of best practices. This
recommendation will require minor changes in job descriptions and staffing
patterns for implementation.
In addition to VESID VR staff located in the
Regional Office, a potential future approach would be to consider locating more
VESID Special Education Quality Assurance (SEQA) regional office staff in or
adjacent to the Regional Offices. This would facilitate the coordination of
transition services at the secondary school level, allow VESID counselors to
fulfill their consultant role to schools and support the provision of pre-VESID
vocational transition services at schools in the region.
Under the Regional Office concept, with
lower level operation issues addressed at the Regional level, the role of VESID
Central Office will be restructured to address those areas which impact on VR on
a statewide basis. These areas include:
Policy and Procedure Development, Staff Training and Development,
Programmatic/Fiscal Monitoring, Interagency Coordination and Community
Partnerships, Quality Assurance and Service Review, Research and Data Analysis,
Procurement, and Legislative Coordination.
Positive Impact on VESID: The
major benefit to this design is that supervisory support tailored to regional
needs is readily available. Responsibilities for complex services are
specialized in a limited number of locations close enough to District Offices to
be responsive to local conditions and requirements. Regional offices will have staff skilled
and experienced in the processes required to deliver the intended services in
the most efficient and cost effective manner. This structure then frees Central
Office operations staff to address the major system wide roles and challenges.
Focusing of Central office activities in the designated areas will maximize the
supports offered to the VESID VR system.
“The ultimate product of successful VR services is
employment for individuals with disabilities.” This is the mantra that has driven the
federal VR system since its inception.
Last year, the VESID VR system assisted 13,292 (FFY 04-05) individuals to
find real work in real jobs. In looking at outcome issues, the Design team felt
it was crucial to identify how to make placement efforts even more effective,
and how to better partner with employers. The Placement Express Model in
Recommendation #1 is a direct result of this work, and a number of the following
recommendations also reflect this focus. Recommendation #13 below, regarding
Alumni support, also reflects a creative approach to helping people get and stay
employed.
The group also saw the need to move beyond
the federally defined “status 26-ninety days in employment,” which serves as the
primary measure in evaluating our products and outcomes. While employment is our
core mission, it is also necessary to focus on the value added to our consumers’
vocational development by VESID VR through such activities as technical
assistance, linkage to other systems, and partnering with other
agencies.
As a member of a larger Workforce Investment
system, it is important that VESID VR have data that reflects its consumers’
achievement of other milestones recognized within that system, such as
attainment of degrees and credentials.
Other RSA measures also need to be acknowledged, such as wages and
employee benefits attained.
Finally, broadening the items that we measure and focus on can be a
powerful tool in helping our counseling staff value the performance of these key
activities on the path to consumer employment. Such measurement also provides us with a
mechanism to recognize and reward those staff members who excel in helping
consumers achieve these developmental measures on the path to
employment.
How It Will
Work:
VESID VR staff will track each of the milestones that consumers achieve and input them
into the case service record. Potential milestones include: current RSA case
status measures: completed
application, completed eligibility determination, developed a vocational goal,
began a vocational program, completed a vocational program, obtained employment,
completed 30 days of employment, completed 60 days of employment and completed
90 days of employment.
The work group also
recognized that many people with disabilities benefit from the educational,
information sharing, and referral services that are provided by VESID, and
appropriate milestone measures are needed for these services. Additionally, the
Workforce Development system is in the process of defining a new set of “common
measures” to which all of the WIA partners must be able to respond. VESID VR
will be able to demonstrate its WIA systems contributions much more concretely
when it is using the same outcome measures as its partner agencies. As part of
the planning process for implementation of the new design, VESID will finalize
specific measures that best fit VESID VR such as obtaining educational/training goals,
achieving employment related goals, obtaining/mastering adaptive equipment,
developing skills in accessing services, and networking with other service
providers, consumers, and employers.
Positive Impact on
VESID: In most
service delivery systems, the success of the respective program is considered as
a function of performance milestones that are attained. In an attempt to stress
the value of its employment outcomes, VESID VR has done itself a disservice in
not quantifying and sharing the many other positive results of VESID VR
services. VR staff understands the developmental nature of vocational success,
especially for individuals with disabilities. Yet they have not received
positive reinforcement for the many interventions they successfully provide to a
consumer who is not yet ready/able to achieve the ultimate 90-day employment
milestone. Broadening our measures
will enable us to reflect the numerous complex interventions which we do
provide, leading to better understanding of our contributions by partner
agencies, and better supervisory and recognition opportunities within VESID VR
itself.
RECOMMENDATION #13: Create/Actively Maintain an
Alumni Association of Former VESID
VR Consumers to Provide Ongoing Outreach, Mentoring, Job Development and Other
Supports to Current VR Consumers
Similar to a University
Alumni Association, successful VESID participants will have the opportunity to
play an active role in the VR program
and provide ongoing input to improve services for individuals with disabilities,
as well as promote better communication.
Members who have achieved milestones will be available to function as
resources to the program in a number of areas including: fostering opportunities for job
placement, developing an awareness of key issues in the community, and acting as
peer supports, and mentors to current consumers.
How It Will Work: VESID
will work closely with consumer-focused organizations to
develop an Alumni Association, that can be coordinated by outside resources. The VESID closure
letter will invite “Members” to participate in a number of possible roles. Member input will be incorporated into
internal improvement work. VESID VR will work with potential funding sources to
explore piloting these initiatives, investigate various federal RSA categories
intended to fund “services to groups” of eligible consumers, and discuss joint
ventures with existing advocacy groups within other state disability operations
such NYS OMH.
Positive Impact on VESID:
Although VESID VR consumers are our best “experts” on what it means to be
a customer of the agency, and how we might improve our services, we have no
organized method for tapping this resource. Similarly, successful consumers are
potentially very powerful role models and supports for current VESID VR
participants. Through creation of an organized Alumni Association, the benefits
of our “graduates” input can be brought to bear on many facets of our
operations.
RECOMMENDATION #14: Develop a Comprehensive Marketing
Plan to Provide Consistently High Quality Public Relations, Outreach, Community
Education, and Job Placement Services
The envisioned Marketing Plan will:
·
Emphasize the use of work incentives in our marketing
and placement efforts;
·
Utilize
staff members who have been specifically designated to perform placement
functions such as coordination of placement vendors, and provision of
employer supports;
·
Ensure access to an
accurate and updated employer database to use in marketing and job
development/placement efforts;
and
·
Facilitate
career opportunities for individuals with disabilities by developing contacts
with large-scale employers within local areas for careers that are consistent
with current and projected local opportunities.
How It Will Work: VESID VR staff, placement providers, and employers
will be trained in the use of work incentives. VR staff will have available
appropriate marketing tools to assist in training efforts. In addition, a more effective tracking
of placement services is required to develop meaningful data that can be used in
future planning. An enhanced CaMS database will be created to incorporate
employer contact information, since employers who have hired from VESID in the
past are more likely to hire again in the future. All employment data will be
accessible by standard industry classification (SIC) codes or Dictionary of
Occupational Titles (DOT) codes. Online applications and an enhanced CaMS
database will create a job matching system of job ready consumers and
employers/job openings arranged according to industry. A resource room for job
ready consumers involved in Placement Unit services will be available to help
them receive placement “core services” including: self-directed job search;
placement assistance; information on job vacancies and skill requirements;
initial skills and needs assessment; job hunt club; and after-placement
follow-up services. Additional placement services will also
be available for consumers at vendor agencies in the community, with oversight
from VESID staff.
Demand
occupations as specified by the Workforce Investment Board and DOL will be
utilized in order to identify potential VESID consumers to perform these jobs
and/or participate in employer driven training programs. The IES staff in each District Office
will identify regional large-scale employers with in-demand career
opportunities. The Marketing/IES staff will utilize financial incentives to
promote the hiring of job seekers with disabilities. They will develop employer
driven training models as needed by utilizing VESID employer reimbursement
programs. These employer incentives will be marketed along with the tax credits
(Work Opportunity Tax Credit (WOTC) & Workers with Disabilities Employment
Tax Credit (WETC), Empowerment Zone, etc.) available to attract larger-scale
employers. Internships, often widely used in large corporations for college
graduates and high school students, can also be utilized as another point of
transitioning into competitive positions.
Positive
Impact on VESID: This
broad strategy brings together all the potential tools for successful consumer
placement, and enhances both their content and utilization. For example, VESID
VR has no electronic methodology to gather information about employers who hire
our consumers. Construction of such an employer database will provide a valuable
marketing and placement tool. Similarly, employer tax incentives and employee
training dollars available from VESID are very useful means of opening up new
employment opportunities. However, better marketing materials and wider staff
training on the details of these incentives is needed to maximize their impact.
Finally, VESID VR needs to package its employer incentives, and using local
hiring/needs information, develop strategies with local employers to create an
entry track for our consumers. These creative approaches will broaden the number
of employers working with us, and ultimately expand the array of jobs available
for our consumers
VESID spends
about $200 million annually on case services for consumers. VRCs have primary responsibility for the
procurement of those goods and services.
District office business managers assist with certain procurements, such
as vehicle modifications. Over 300
VESID staff members’ duties include procurement, but none are trained
procurement agents and only a few have had any procurement training
whatsoever. As a result, VESID has
been cited for non-compliance with the State finance law and other procurement
requirements, internal controls have been insufficient, and procurement
irregularities have been identified.
In addition, VR counselors spend a significant portion of their workday
performing activities far from the core counselor functions, performing tasks
for which they do not have the proper expertise.
As a result of
recent internal audit work and analysis of VR District Office business
functions, the Department, with assistance from an outside vendor(s), intends to
define VESID’s business processes and build the fiscal management system (both
procurement and payment functions) to support those functions. The procurement function will be housed
in VESID’s Central Office, specifically within a procurement unit under the
management of a procurement expert. No such unit or positions exist in VESID,
but initial steps in the development of the computerized fiscal management
structure are now taking place, and many internal controls measures have already
been adopted.
RECOMMENATION #15: Create a Business
Services Model that Meets VR Needs and Fosters Regulatory
Compliance/Monitoring
This recommendation includes adding a procurement expert, who must be
part of a team defining business processes and building an improved fiscal
management (procurement and payment) system. During the time needed to define
appropriate business practices and build an improved procurement and payment
system, the VESID procurement expert will be responsible
for:
·
Developing expertise in
procurement areas central to VESID’s programs;
·
Providing technical
assistance to district office staff members, who currently have procurement
responsibilities;
·
Centralizing the most
complicated procurements (such as vehicle and home modifications) as soon as
possible;
·
Determining the resource
needs, both staffing and non-personal service, for a fully centralized VR
procurement unit (to be formed prior to full centralization);
and
·
Developing policies and
procedures for the centralized procurement unit.
Once the system is developed, the third step of the recommendation
involves testing the system and:
·
Ensuring an orderly
transition of the procurement function from a fully decentralized function to a
centralized function;
·
Selecting vendors and
reviewing vendor performance; and
·
Ensuring the procurement
of all VR goods and services is in compliance with the State finance law,
Department policies and practices.
How It
Will Work: Through the centralization of the
procurement function in VESID's Central Office within a small procurement unit,
the counselors and District Offices will be relieved of many but not all
procurement functions. Counselors will retain the professional responsibility of
determining the proper services, and in many cases, recommending and selecting
vendors within the parameters of established policies and procedures and
established contracts. For example,
counselors will identify, select, and procure the services from supported
employment and Unified Contract Services vendors.
The
centralized procurement unit will be responsible for ensuring all VR procurement
is done in accordance with State finance law, Department practices, VESID policy
and in the best interest of our consumers. The unit will be responsible for all
competitive bidding, obtaining quotes, ensuring vendors meet established
requirements, working with other VESID Central Office units to ensure
appropriate contracts are in place, and becoming experts in the
services and goods needed by VESID consumers. The centralized procurement unit would
not question the professional judgment of the counselor as to the appropriate
goods and services needed by the consumer, but would make sure that goods and
services are appropriately obtained.
Positive
Impact on VESID: Over time, the re-engineered business
management system will eliminate the use of the archaic voucher system and our
current requirement for a signed voucher. This requirement will be replaced with
a requirement for an invoice and record of receipt of goods or services. All documentation related to the
procurement and payment functions will be electronically scanned into the
system, which will improve internal controls, enhance oversight and audit ease,
and contribute to a better records retention system. The re-engineered business
management system will allow vendors to apply on-line, verify the status of
their contracts and payments on-line, report goods and services provided
on-line, and electronically submit invoices and other records. In addition, the
re-engineered business management system will allow for better monitoring of
vendor performance. The system will be technology rich, allowing for electronic
transfer of records between regional/district offices and Central Office. Procurement in the Central Office will
speed up the procurement process.
The re-engineered business management system will also include a seamless
payment system, originating at the district office level, but allowing for easy
oversight by both the Central Office and Office of Management Services (OMS)
offices, as appropriate. The proposed system will enable counselors to be
counselors, not procurement agents; allow business office staff and district
office management to concentrate on supporting and managing the district offices
without being bogged down by procurement activities; and put experts in charge
of procurement.
The Evaluation work group has focused on the development of quality
measurements to ensure that the Designing Our Future initiative enhances the
consumer’s successful movement through the VESID system. While there is work
still to be done on the design of the evaluation measures, the goal is to ensure
that the recommendations meet the needs of VESID’s many customers and lead to
quality employment outcomes.
Examples of the areas to be reviewed would include but are not limited
to: a reduction in the time
consumers spend in pre-IPE development statuses, an increase in the number of
consumers successfully completing training, an increase in successful placement
outcomes, an increase in the salary-base of consumers entering employment, and
an overall increase in satisfaction with VESID services.
The design of the evaluation plan is one of the key next steps for the
“Design Our Future” initiative.
The next steps of the Design include the
following: