Employment and disability: issues and solutions for the 1990s.

Employment and Disability: Issues and Solutions for the 1990s

The 14th Mary Switzer Memorial Seminar was held in Washington, May 7-9, 1990, and was hosted by the National Rehabilitation Hospital (NRH). The topic of the seminar was "Employment and Disability: Trends and Issues for the 1990s."

Welcomes were provided by Edward A. Eckenhoff, President, NRH, Richard Materson, MD, V.P. for Medical Affairs and Medical Director, NRH, and Vanida Y. Hamilton, R.N., M.S.N., Director of Nursing Education and Research, NRH. The Honorable Nell C. Carney, U.S. Commissioner of the Rehabilitation Services Administration provided the opening remarks to launch the 14th Switzer Seminar.

The Switzer Planning Committee, in listing the objectives of this Seminar provided the subtopics to serve as a foundation for the three days of discussion concerning the current trends and prospects for employment of persons with disabilities. Five papers were written especially for the seminar and served as the basis for the three-day program. These papers and their author/scholars were as follows:

* Employment and Disability: Emerging Issues for the 1990s by Reed Greenwood. This served as the overview paper.

* Employment and Disability: A Corporate View by Tom O'Bryant.

* A Strategy for Small Enterprise Development by Individuals with Disabilities by Neal W. Nathanson

* Employment and Disability: A Point of View from the Labor Unions by Charles E. Bradford.

* The Role of Rehabilitation and the Issues of Employment in the 1990s by John J Benshoff.

The papers addressed a myriad of challenges and opportunitues as we enter the new decade of the 1990s. Items explored, for example, included the changing nature of work (as the U.S. moves from a manufacturing economy to a service-oriented economy), the changing workforce as America is seeing the emergence of more older workers, and changes in the nature of disability itself as a result of the techno-medical revolution over the past twenty years.

The seminar brought together the views of industry, labor, consumers and rehabilitation professionals. To provide a flavor of the seminar the following sampling of comments are noted as they related to the papers written for the seminar:

The window of opportunity for disabled workers in the United States is open, but they must be prepared to read, write and count. The American education system, state and local government, businesses, labor unions and disability organizations must join together to place an immediate emphasis on quality education, directed toward creating literacy, math, and logical reasoning skills in our youth who are in the education system today. Social promotions and cram courses must be replaced with demanding and thought provoking courses that will, as our author has pointed out, create a workforce that can interpret advanced mathematics, read complex engineering blueprints, and perform sophisticated tasks on the factory floor. Failure to implement such an education program will create an "underclass" of new job seekers who will wind up competing for a dwindling number of low-skilled jobs, while higher-skilled jobs go begging for want of qualified workers. The above thought comes from a "Business Week Special Report" of September 19, 1988 entitled "Human Capital, the Decline of America's Work Force".

Rehabilitation will need to become stronger in technical assistance programs through training and education. Colleges and universities need to take an active role in development and strategies for training of new rehabilitation practitioners. Institutions of higher learning should stress the issues of the impact that minorities and women will make on the work force.

In addition, personnel will need to become more aware of the needs of the disabled. Both the private and public sectors job placement professionals will need further training to be able to help access the work place.

Because most new jobs are found in companies employing less than 100 persons, there is a limit to the extent to which the Fortune 500 can assist small business in accommodating people with disabilities. The specific examples these giants provide prove that inclusion of this population is no big deal. But services, subsidization of accommodations, and coaching staff need to be programmed so as to supplement overtaxed supervisorial personnel when specific help for disabled individuals is needed if they are to enter or to advance in jobs. Informational materials should be expanded that will express the availability of assistance in ways that a small entrepreneur can understand. In addition, it may be necessary to enact laws which will protect disabled persons against discrimination by lending authorities when otherwise valuable business loans should be funded. Certainly, a person with a disability who is capable of starting their own business ought to be able to built into their business plans, the costs of their own reasonable accommodations. Watchdog authority should assure that requests for loans are not rejected for any other than sound business practices.

Minimally, employment offices must become accessible to people with a variety of disabilities, including mobility limitations. To make a work site accessible to a disabled person who requires it should be regarded as an accommodation, if reasonable. More importantly, under the Americans with Disabilities Act, areas of public accommodation must become accessible and thus not only potential employees can be accommodated but so could potential disabled customers who have money to spend in these accessible establishments.

While many persons with disabilities have the skills and talents to meet the needs of employers today and into the future, we have made progress over the last decade. Public Law 94-142, the Carl Perkins Vocational Education Act, JTPA, Title 5 of the Rehabilitation Act have all had a positive impact on improving the gap between the educational level and skill level of persons with disabilities and non-disabled persons. More must be done. We must take a close look at the programs and actions which these laws have instituted. We must see that they are fully implemented and that adequate dollars are available to provide quality programs. Funding of programs will need to become the responsibility of the private sector as well as federal, state and local government. Adequate funds and full implementation of the laws is only half the story. We must do a better job in the pre-service and in-service training of all professionals who will provide service to persons with disabilities. This includes educators at both the secondary and post-secondary levels.

Further we must do a better job of educating the business community on how to best utilize this country's human resources including persons with disabilities. Programs must be undertaken by labor unions and the business community to expand union steward training and business degree training which will train individuals responsible for job settings, hiring and promotion to cooperate and facilitate the hiring and upward mobility of individuals with disabilities.

Partnering will be the buzz word of the '90s in business. Partnering means all functions in business will work together; human resources, research and development, manufacturing, and marketing to meet the challenges ahead.

Partnering will also be the key to employment of people with disabilities in the '90s. Because of the downsizing of corporate staffs, business no longer has the ability to work with a multitude of agencies representing people with disabilities. Business needs "one stop shopping". We need to be able to depend on one agency which will become familiar with our buisness needs and match those needs with the qualifications and abilities of people with disabilities. One approach that I have seen work is the Project with Industry (PWI) model. This PWI model emphasizes partnering of business, rehabilitation, education, and government in meeting the needs of business and providing meaningful employment for people with disabilities. Whether this partnering takes place through a PWI model, through active Governor's Committee Programs, or other innovative approaches, it will be the key to meeting all of our objectives in employing people with disabilities. Business needs and wants to be involved.

If young persons with disabilities are not sufficiently challenged within the educational system, they will be entering the workforce lacking vital academic skills and daily living skills. The educational service delivery in the academic environment would be greatly enhanced by the addition of qualified Rehabilitation Counselors within the school system to help vocationally and emotionally prepare the individual for his or her post-academic pursuits.

Additionally, we cannot overlook the vital role the family of a disabled person plays in helping that individual in developing independence, self-esteem, and problem-solving skills, or (as I have more often seen) in hindering the development of same.

Further, there is clearly a need for additional research in the area of career development for persons with disabilities, particularly in the area of career advancement. I believe this is a topic which warrants the attention of the 1990 Switzer scholars.

The role of the vocational rehabilitation counselor varies as determined by types of work settings (private, public, private-for-profit and private non-profit) and geographical locations of work settings (urban/rural). Indeed, variations may also exist from one Vocational Rehabilitation State Agency to another. Yet, emerging issues in rehabilitation as addressed in this paper, transcend types of work settings and are reflective of skills and knowledge necessary for the rehabilitation counselor, with the degree of application perhaps determined by the work setting.

Rehabilitation Education must continue to develop competencies for rehabilitation counselors. Yet, it is evident that a clear delineation must be made between those competencies that can be addressed by pre-service programs and those that can be developed in post-employment continuing education programs.

The message of what unions have done and can do especially needs to be heard by companies whose work forces are unionized, rehabilitation professionals, and consumers with disabilities, as well as by other labor unions who may not yet be fully committed to this effort so that they will be encouraged to get on board. National and local meetings concerning the employment of persons with disabilities need to assure that unions are represented on the agenda to share their successes and concerns.

Rehabilitation professionals have a special need for a working knowledge of labor unions and may benefit from internship and practical experiences at these sites. Curricula may need to be re-examined to make this possible. In addition, networking among rehabilitation professionals employed by labor unions with their colleagues in industry and at rehabilitation facilities would promote understanding and mutual cooperation.

Implications for Action

After the deliberations of the three-day seminar the Scholars developed a list of critical recommendations and implications for action. These were categorized in areas such as program and service delivery, research, policy and program development, training and legislation. For the sake of brevity only a sampling of the recommendations are noted and the final report will provide the complete list. Some of these recommendations were as follows:

Corporate/Business Sector

* There should be coordination, at the White House level, of all policy, programs, procedures, and efforts relative to employment and disability.

* A national coalition of persons with disabilities and their advocates should be created to address all aspects of disability and employment issues through one powerful and unified voice.

* All employers and insurers should adopt "disability management" programs to minimize the impact of disability on employers and employees.

* Employers should ensure that all health care plans provide adequate and appropriate psychiatric and substance abuse coverage.

* Employers should ensure accessibility to the workplace (e.g., physical access to the employment office, necessary assistance to applicants and employees with visual and hearing impairments).

* Employers should hold all companysponsored functions in accessible locations and provide, when necessary, support services (e.g., interpreters for the hearing-impaired, handouts in accessible format).

* Public and private employers should establish "intern" programs to facilitate a better understanding of the issues surrounding employment of persons with disabilities. Intern programs should be developed for educators, human resource professionals and students, labor representatives, and rehabilitation professionals and students.

* Employers should clearly state to vocational rehabilitation counselors their expectations of them (i.e., visitation of the worksite, an understanding of the work environment and the job qualifications to ensure a good job match and follow-up). It is then incumbent on counselors to meet these expectations.

* Employers should utilize, as much as possible, nontraditional concepts to control costs associated with disabilities (e.g., home-based employment, early return-to-work, light duty, job modifications/restructuring, etc.).

* Persons with disabilities should have every right to expect an individual assessment of their employability and capabilities, and not be subjected to arbitrary, non job-related policies and practices which screen-out qualified persons with disabilities.

Small Business Concerns

* Attempts should be made by rehabilitators to secure placements for persons with disabilities within small businesses (those with 200 or less employees) by: (1) including Chamber of Commerce representatives on advisory committees of public and private agencies; (2) developing working relationships with trade and other professional organizations; and (3) working closely with civic organizations such as Lions, Elks, Moose, Rotary, Kiwanis Clubs, etc.

* A better understanding of small business concepts and practices by rehabilitation administrators, supervisors, and practitioners be accomplished by utilizing all available pre-service and in-service training options. Links between college/university programs of business administration and rehabilitation counselor education programs be forged to establish a better understanding and awareness of business practices.

* Ten percent of JTPA funds must be used for people with disabilities, unless there are not sufficient qualified applicants, including training in small business settings.

* Banks be required to consider all income sources, such as Social Security and workers' compensation or disability insurance benefits, when determining loan eligibility.

* More creativity should be applied in utilizing all available fund-sources in addition to case service funds, for the purchase of services and equipment for job placement or self-employment in small businesses, such as the Job Training Partnership Act, Program for Achieving Self-Support and Impairment Related Work Expense of the Social Security Administration, Minority Enterprise Small business Trust Corporation, private insurance benefits, etc.

* The state/federal rehabilitation programs establish advisory committees which include representatives of the small business community to: (1) promote self-employment in a small business enterprise as a viable vocational option; (2) to review individual self-employment plans; and (3) to serve as advisors/coaches in facilitating self-employment plans.

Union Concerns

* Use existing union structure to assist new employees with disabilities, as well as current workers returning to work. This would include shop stewards (to act as mentor or to revive the "buddy" system), health and safety and community services committees (in providing accommodations and/or other special services to people with disabilities).

* Solicit active union involvement in advisory committees which plan training and employment programs for persons with disabilities.

* Encourage AFL-CIO to spearhead an effort to reach persons with disabilities for apprenticeship programs, as well as union and non-union jobs.

* Suggest model contract language to include employment, retention, and advancement of persons with disabilities.

* Utilize the Labor Committee of the President's Committee on Employment of People with Disabilities to communicate and disseminate these efforts to other unions.

* Within university rehabilitation training programs, educate faculty and students as to how to work more effectively with labor unions (e.g., faculty externships in labor unions, student internship and practical experiences).

* Encourages intra- and inter-union transfer of knowledge concerning establishment of successful programs (e.g., how to establish successful programs, include model contract language).

* Develop case studies of successful union programs (e.g., IAM-Boeing) and document changes in attitudes among coworkers, impact on productivity and turnover, etc.

* Disseminate successful case studies through special monographs or articles on the role of unions in employing persons with disabilities (including model programs and contract language) to education and rehabilitation administrators and practitioners.

* Conduct a national conference of trade unionists on the Americans with Disabilities Act.

Vocational Rehabilitation

Concerns

* Strategies need to be developed for utilizing the Supported Employment model for individuals with disabilities who are not developmentally disabled.

* There is the need for the Office of Special Education and Rehabilitative Services and the Department of Labor (i.e., Job Training Partnership Act) to provide more grants for job-seeking skills training.

* We must re-establish early intervention in the schools by providing rehabilitation counselors to augment and assist special educators, high school counselors, and vocational educators in providing traditional services to students with disabilities.

* The Rehabilitation Services Administration (RSA) must upgrade the technical assistance program offered to universities, agencies and others. Funding must once again be made available so that RSA can provide specialists in a wide range of rehabilitation issues to provide technical assistance and support services to the universities, state vocational rehabilitation agencies and to rehabilitation facilities.

* Computer technology must become a part of all state/federal rehabilitation programs. We must bring rehabilitation into the 20th century. Work smarter not harder.

* There is a need for more pre-service and post-service training in AIDS, chemical dependency and new emerging disabilities (i.e., Traumatic Brain Injury, older workers).

* There is a need for research in the area of how to work with small business. We need to identify the needs of this sector of the business community and how to integrate persons with disabilities into their workforce.

* Research needs to be undertaken to develop strategies to more effectively utilize supported employment in industrial centers.

* The Targeted Jobs Tax Credit (TJTC) should be made permanent and a similar program be instituted at the state level.

* Public Law 94-142, The Education for all Handicapped Children's Act, and the Vocational Education Act should be amended to call for the services of rehabilitation counselors on Individual Educational Plan (IEP) teams and in vocational planning for students with disabilities.

Conclusions

Over ten months of effort have gone into the development of the 14th Switzer Memorial Seminar and its recommendations. The Switzer Memorial Committee is deeply appreciative of all persons involved in this process, e.g., the Switzer Planning Committee for the 14th Memorial Seminar, the sponsors of the Seminar, including the Dole foundation for Employment of People with Disabilities and the President's Committee on Employment of People with Disabilities, the National Rehabilitation Hospital, Washington, D.C., the staff at the National Rehabilitation Association and, of course, the 20 Switzer Scholars for their excellent performance in making the Seminar a meaningful one and a tribute to the late Mary Switzer.

As Switzer Scholar Tom O'Bryant aptly noted, "we must continue to advocate and educate employers to the many advantages of employing and advancing in employment qualified people with disabilities -- this nation's untapped resource. People with disabilities can play a major role in helping us solve the labor shortage problems and the skills deficiencies that face and threaten our nation as we prepare to compete in a global economy and move into the 21st century."