Acknowledgements

Special thanks to the following advisory groups and agencies:

Opportunities for Ohioans with Disabilities Council for advising the development of the Survey of Individuals with Disabilities and assistance with its distribution. 

2021 CSNA Research and Analysis Resources

Opportunities for Ohioans with Disabilities Staff

Steven Tribbie, Budget Manager, Division of Fiscal Management (CSNA Lead)

Kristen Ballinger, Deputy Director, Division of Employer and Innovation Services (Contributor)

Andrew Meador, Planner 3, Division of Employer and Innovation Services (Contributor)

Thomas Melfo, Assistant Deputy Director, Division of Disability Determination

Susan Pugh, Deputy Director, Bureau of Vocational Rehabilitation (VR Policy)

Maria Seaman, Chief Fiscal Officer, Division of Fiscal Management (Budget Trends)

Special thanks to the following staff for their assistance in developing the Survey for Individuals with Disabilities in American Sign Language (ASL):

Marlena Smith, ASL Interpreter, Division of Human Resources 

Jonathan Rollings, Technology-Based Training Coordinator, Division of Human Resources

Katie Scheetz, Rehabilitation Program Specialist, Bureau of Services for the Visually Impaired
 

Executive Summary

Opportunities for Ohioans with Disabilities (OOD), Division of Employer and Innovation Services (EIS), produced this 2021 Comprehensive Statewide Needs Assessment (CSNA) to assess the vocational rehabilitation (VR) service needs of Ohioans related to five primary disability categories. These categories include Blindness and Low Vision, Deaf and Hard of Hearing and Communicative, Physical Disabilities, Psychosocial Disabilities, and Cognitive Disabilities. Data was collected from various sources and used to illustrate OOD’s ability to meet the demand for VR services. This methodology focuses on the extent to which OOD was serving prospective job seekers with disabilities, and how balanced OOD was in serving the cross-section of individuals with disabilities who are seeking employment. 

Building on the information presented in the 2018 CSNA, OOD approached its 2021 CSNA with an increased focus on evaluating the diversity of individuals served by the VR program compared to the Ohio population and employment outcomes attained by those individuals.  OOD also conducted a survey of Ohioans with disabilities. The CSNA culminates in a series of recommendations designed to address gaps, enhance services, increase employer engagement, and guide program development and expansion over the next few years. A summary evaluation of the progress made on the 10 recommendations from the 2018 CSNA is also included. 

The 2021 CSNA again features web-based interactive maps that the public can use to understand OOD’s ability to serve prospective job seekers with disabilities and how balanced OOD was in serving individuals across all disability categories.
 

Data Collection Strategies

Projections of the number of individuals with disabilities in need of VR services by disability category and county of residence in Ohio were developed by the CSNA team. Similarly, service data from OOD’s VR case management system and employment statistics were utilized to develop estimates of the number of individuals likely to need VR services by disability category and by county. This provided a basis for developing estimates of the number of individuals actively participating in the labor force that need services to assist them in finding a job and who could benefit from OOD VR services. 

OOD developed an electronic survey to gather input from recent or current VR participants and potential VR participants to identify areas where OOD can better meet their needs. 

Need for Services

Review of Existing Data. According to the American Community Survey (ACS), in 2018 approximately 1.6 million (14.1 percent) Ohioans experienced disabilities. This ranks Ohio sixth among U.S. states and territories in the number of residents with disabilities and 16th in the percentage of individuals with disabilities out of the total population. For Ohioans ages 18 to 64, cognitive and ambulatory disabilities were the largest categories (approximately 26 percent of individuals with disabilities in each category), and self-care disabilities were the smallest (9.3 percent of individuals with disabilities). Approximately 31 percent of individuals with disabilities ages 18 to 64 were employed, and 29.5 percent of individuals with disabilities ages 21 to 64 were living in poverty.

According to the ACS, in 2018, it was estimated that 29.5 percent of Ohioans with disabilities ages 21 to 64 were living in poverty as compared to 10.6 percent of individuals without disabilities (a gap of nearly 19 percentage points). In 2018 the median annual earnings for Ohioans with disabilities who worked full-time and year-round was $39,000 compared to $48,600 for individuals without disabilities who worked full-time and year-round (a difference of $9,600).

Comparing 2020 to 2017:

•    OOD received $17,725,261 in General Revenue Funding, which was an 11.9 percent increase;
•    4,959 OOD participants achieved a successful employment outcome, which was a 17.1 percent decrease; and
•    12,873 VR service plans were written, which was a 4.5 percent decrease.
 

Race and Ethnicity.  ACS 2018 data indicate that the estimated prevalence of disability for working-age Ohioans (ages 16 to 64) was:

•    11.3 percent among Whites, estimated 670,700 individuals
•    15.0 percent among Black or African Americans, estimated 136,900 individuals
•    4.9 percent among Asians, estimated 9,700 individuals
•    36.4 percent among Native Americans or Alaskan Natives, estimated 7,400 individuals
•    14.3 percent among Other Races, estimated 35,500 individuals

In 2020, OOD served [1]  29,396 individuals, 6,597 (22.4 percent) of whom were Black or African American. The total number of working-age Black or African American individuals with disabilities in Ohio is estimated to be 189,489. The Bureau of Labor Statistics reported in 2019 that 69.1 percent of working-age individuals with disabilities were not working, and that 7.9 percent of these individuals were actively seeking employment at any given time.  This means that approximately 10,344 working-age Black or African American individuals with disabilities in Ohio were seeking employment.  OOD provided services to 6,597 of these individuals, resulting in a service rate: need ratio of 63.8 percent.  (Bureau of Labor Statistics, 2019). More than eight out of 10 working-age Black or African American individuals with disabilities (83.5 percent) reside in the following eight Ohio counties: Cuyahoga, Franklin, Hamilton, Montgomery, Lucas, Summit, Mahoning, and Butler. (U.S. Census – ACS, 2019) (OOD – AWARE)

In 2020, Ohio’s working-age population of Hispanic or Latino/a ethnicity was estimated to be 289,079.  The prevalence of disability for the working-age Hispanic or Latino/a population is 11.6 percent. (Cornell University, http://disabilitystatistics.org) The total number of working-age Hispanic or Latino/a individuals with disabilities in Ohio is estimated to be 33,533, of whom 1,171 are seeking employment.  In 2020, OOD served 580 Hispanic or Latino/a individuals with disabilities, resulting in a service rate: need ratio of 49.6 percent.  More than six out of 10 (63.9 percent) of working-age Hispanic or Latino/a individuals with disabilities reside in the following eight counties: Franklin, Cuyahoga, Lucas, Lorain, Hamilton, Butler, Montgomery, and Mahoning. (U.S. Census – ACS, 2019) (OOD – AWARE)

[1]  - A served individual is one who has been determined eligible for VR services and has signed an Individualized Plan for Employment.

Disability Categories

OOD VR Service Rate: Need Ratios in Ohio Counties.  Maps and tables in Section V of this report indicate “VR service rate: need ratios” in 2020 for the five major OOD disability categories for all 88 counties in Ohio. A VR service rate: need ratio represents the number of working-age Ohioans with disabilities who receive OOD VR services out of the total number of Ohioans with disabilities who want to work that could be served.  OOD’s service rate: need ratio for the Blind and Low Vision category is the lowest among all disability categories with 87 out of 88 Ohio counties having ratios less than or equal to 20 percent; the remaining county, Union, has a ratio of 24.1 percent.  Low service rate: need ratios are also prevalent in the Physical category (77 counties less than or equal to 20 percent) and the Deaf and Hard of Hearing and Communicative category (74 counties less than or equal to 20 percent).

Service rate: need ratios were also calculated for each race group.  It is notable that 45 counties have a service rate: need ratio higher than 50 percent for Black or African American individuals, and only 15 counties have a ratio less than or equal to 20 percent.  In contrast, 45 counties have a service rate: need ratio less than or equal to 20 percent for White individuals and no county has a ratio greater than 50 percent.

Among age groups, OOD has attained a high service rate: need ratios for individuals ages 15 to 24.  74 counties have a ratio higher than 50 percent and no counties are below 20.1 percent.  This is attributed to a relatively low percentage of the population in this age group who are seeking employment in contrast to the high percentage of OOD’s caseload included in this age group.  These ratios decrease as the age group increases, culminating in 86 counties with ratios between 0 and 10 percent for individuals ages 65 or older.

Additional details related to service rate: need ratios are included in Section V of this report.
 

Balance Ratios. Section VI includes maps and tables addressing balance ratios of service delivery statewide according to the five disability categories.  The distribution of balance ratios by disability category suggests that OOD has continued to serve individuals with cognitive disabilities at a high rate.  Balance ratios for individuals with psychosocial disabilities are normally distributed, with lower counts of counties at the ends of the range groups and higher counts in the three middle range groups.  A significant number of counties have negative balance ratios in the other three disability categories, most notably physical disabilities. These positive balance ratios could be attributed to OOD’s participant referral relationship with local service delivery systems across Ohio, such as county board of developmental disabilities and county behavioral health authorities.  

Survey of Individuals with Disabilities

Section VII of this CSNA includes an analysis of the results from OOD’s survey of individuals with disabilities.  OOD created an electronic survey to gather information from individuals with disabilities about the effectiveness of VR services. The survey was also available in American Sign Language for respondents who use that as their preferred language. To reach recent VR participants, the survey was distributed via e-mail to more than 20,000 participants whose cases were closed from October 1, 2018, through September 30, 2020. OOD was also interested in gathering information from potential VR participants – individuals with disabilities who had not received VR services. The survey was distributed to them through various social media channels and through the support of OOD’s providers, community partners, and OOD Council members. It was also hosted on the main landing page of OOD’s website.

OOD received 1,205 responses to the survey.  Most respondents who had received VR services indicated that the services helped them find, keep, or get a better job.   There were similarities in the services received by current or recent VR participants and the services needed by potential VR participants, with both groups identifying job placement services and on-the-job supports.  Both groups cited employer attitudes toward people with disabilities as the greatest challenge to finding employment.   Both groups indicated the need for OOD to develop more service providers to overcome challenges to helping individuals with disabilities obtain employment.

Service Patterns and Case Outcomes by Race

An analysis was conducted to identify disparities in patterns of service among Black or African American and White participant groups. This included services delivered in closed cases, and the outcomes of those cases, broken out by race.

There were 33,924 cases closed in FFY 2019 and FFY 2020, combined.  Of these, 23,071 were White participant cases and 8,761 were Black/African American participant cases. A review of case closures revealed a ten percentage point difference in closures between the groups, indicating that White participant cases close with an employment outcome more frequently than Black or African American participant cases (33.6 percent v. 23.5 percent). 

To identify possible causes of this disparity, a variety of factors were analyzed, including disability type, employment status at plan, level of education achieved, case progression benchmarks, quality of employment outcomes, and reasons for case closure.  
    
The most significant findings from this analysis are as follows:

•  A six percentage point margin in education level at application, indicating White participants are more likely to have completed high school than Black/African American participants. 
•  A 45-day difference in the median number of days from Application to Closure for cases that close with an          employment outcome, indicating it takes longer for Black/African American participants to obtain employment than White participants.
• Difference in reasons for case closure without an employment outcome, such as: the top reason for White participant cases was “No longer interested in services,” which involves an indication by the participant that they no longer wish to continue with services. The top reason for Black or African American participant cases was “Disengaged,” which involves a lack of response from the participant.  
   

Trends and Other Considerations

Social Security Disability Insurance (SSDI). The Social Security Administration (SSA) groups SSDI beneficiaries into three classifications: Workers, Adult Children, and Spouses. When comparing the number of beneficiaries in 2017 to the number in 2019, Spouses experienced the largest percentage change of the three classifications, reducing in count by 11.6 percent over those three years. At the same time, payments to Workers increased by 1.1 percent while payments to Spouses and Adult Children decreased by 5.9 percent and 5.8 percent, respectively. In total, the number of beneficiaries in Ohio has decreased by 4.7 percent to 395,907 beneficiaries, while the value of payments received slightly increased by 0.8 percent to approximately $430.1 million in 2019. This is an overall continuation of the trend observed over the last nine years. (Social Security Administration, 2021)

Labor Force Participation. In 2020, the U.S. unemployment rate for working-age (16 - 64) individuals with disabilities was 11.5 percent, an increase of 2.8 percentage points from 2018. Over the same period, the labor force participation rate for these individuals decreased from 33.3 percent to 33.2 percent, reflecting a slight decrease in the number of individuals with disabilities who were working and/or actively seeking work. (Bureau of Labor Statistics, 2021) The discrepancy between the employment rate for individuals with and without disabilities in the U.S. is mirrored at the state level in Ohio. According to the ACS, in 2018, 38.3 percent of individuals with disabilities ages 16 to 64 in Ohio were employed compared to 77.3 percent of individuals without disabilities.  This data reveals an employment gap of 39.0 percentage points between the two groups. Furthermore, only 24.0 percent of the total population of individuals with disabilities ages 21 to 64 were employed full-time and year-round, whereas 62.7 percent of the population without disabilities ages 21 to 64 were employed full-time and year-round in Ohio. This represents a gap of 38.7 percentage points.

Recommendations

The data summarized above and in more detail in the following report suggested several formal recommendations. Recommendations were developed as a prelude to and support for formal planning activities. The recommendations are provided below:

1. Explore opportunities to expand engagement with individuals who are blind or have low vision, including the development of service providers with expertise in meeting their needs. OOD has attained the lowest service rate: need ratio for individuals who are blind or have low vision. 87 out of 88 counties in Ohio have a ratio of less than or equal to 20 percent and statewide, the Balance Ratio for this disability category is negative 5.1, indicating that OOD serves fewer individuals who are blind or have low vision than the estimated percentage of the population who could benefit. In addition, 41.9 percent of survey respondents who are blind or have low vision indicated OOD should develop more service providers to help overcome challenges to obtaining employment. 
   Sources:
   Section V. Prevalence and Service Rate: Need Ratio Projections of Unmet Need
   Section VI. Balance Ratios: Comparison of Needs to Service Provision
   Section VII. Survey of Individuals with Disabilities
    
2. Provide a dedicated resource to support VR staff, partners, and providers to increase outreach and improve services for individuals who are deaf or hard of hearing. 74 out of 88 counties in Ohio have a service rate: need ratio for individuals who are deaf or hard of hearing or have a communicative disability of less than or equal to 20 percent and statewide, the Balance Ratio for this disability category is negative 2.7, indicating that OOD serves fewer individuals who are deaf or hard of hearing or have a communicative disability than the estimated percentage of the population who could benefit.
   Sources:
   Section V. Prevalence and Service Rate: Need Ratio Projections of Unmet Need
   Section VI. Balance Ratios: Comparison of Needs to Service Provision
    
3. Conduct an examination of the service needs of individuals with physical disabilities to determine if OOD’s current service options address those needs. 71 Ohio counties experience a service balance ratio less than negative 5.0 points for individuals with physical disabilities.  This indicates that the distribution of OOD services to this disability group does not align with the relative proportion of individuals with physical disabilities in the Ohio population.  If significant service need trends emerge, OOD should consider adjusting the service delivery model and/or service options available to individuals with physical disabilities in order to more efficiently deploy services or assistive devices to those individuals.
   Source:
   Section VI. Balance Ratios: Comparison of Needs to Service Provision
    
4. Explore opportunities to engage with employers and participants to dispel common myths about disability and employer perceptions. 41.6 percent of survey respondents indicated they had experienced some form of employment discrimination. Disability discrimination was the most frequent type of employment discrimination cited by recent or current VR participants. In addition, 42.7 percent of respondents indicated employer attitudes toward people with disabilities as the greatest challenge to finding employment. 
   Source:
   Section VII. Survey of Individuals with Disabilities
    
5. Explore opportunities to improve outcomes for individuals with disabilities from minority groups through engagement with partners to increase employment outcomes and educational attainment. Black or African American participant cases close with an outcome of employment 10 percentage points less frequently than White participants cases and these closures take a median of 45 days longer to reach. When considering level of education attained by participants, Black or African American participants have completed high school education less frequently than White participants.   
   Source:
   Section VIII: Service Patterns and Outcomes by Race
    
6. Conduct targeted VR case reviews to explore discrepancies in case closure reasons for cases closed without an employment outcome. The top reason for case closure for Black or African American participant cases was disengaged, indicating a lack of response from a participant. The top reason for White participant cases is no longer interested in services, which involves some type of indication from the participant that they no longer wish to continue with the VR process.
   Source:
   Section VIII: Service Patterns and Outcomes by Race

Section I. Introduction

This report provides Opportunities for Ohioans with Disabilities (OOD) with findings and recommendations related to the vocational rehabilitation (VR) needs of Ohioans with disabilities.

Recent Trends in Funding and Past and Current Needs Assessments

The current needs assessment builds upon the findings and recommendations from the 2018 CSNA by evaluating OOD’s ability to meet the demand for Vocational Rehabilitation (VR) services and OOD’s balance in serving the cross-section of Ohioans with disabilities who are projected to be seeking employment. This data was considered critical to develop policy and resource allocation recommendations responsive to future needs. Procedures and specific data were collected in response to recent changes in funding trends. Responses to recommendations from the 2018 CSNA are highlighted, as well as financial and service trend data in sections of the CSNA.

Purpose of the Comprehensive Statewide Needs Assessment

The primary purpose of OOD’s VR CSNA is to provide a basis for allocating resources to support individuals with a variety of disabilities in Ohio. The CSNA provides information to OOD about disability prevalence in each of Ohio’s 88 counties, which can be useful to inform policy decisions about the optimal distribution of resources.  Prevalence is defined as the total number of estimated cases present in a specific population and location at a particular point in time (Green & Kreuter, 1991). Prevalence rate is calculated by dividing the number of individuals reporting a disability by the total number of individuals in the population (Erickson, Lee, & von Schrader, 2016). Individuals served by OOD’s VR program are divided into one of the following categories: Blindness and Low Vision disabilities, Deaf and Hard of Hearing and Communicative disabilities, Physical disabilities, Psychosocial disabilities, or Cognitive disabilities.

Estimates of the prevalence of disabilities are provided using the classification system for disabilities used by OOD and defined by the Rehabilitation Services Administration (RSA). Although not identical, this classification is similar to the categories used by the U.S. Census Bureau.  Although definitions of a specific category of disability may not precisely match definitions used by OOD or definitions that facilitate clinical practice, the prevalence estimates used in the CSNA and corresponding definitions were the most appropriate for estimating the prevalence of disabilities consistent with the classification system used by OOD and RSA.

All prevalence figures and other projections cited in the CSNA are estimates and are intended to represent the magnitude of prevalence of specific disabilities in specific counties in Ohio. It is appropriate to 
use such figures and comparisons across counties and categories of disabilities in conjunction with other information to support planning and policy development. However, prevalence and other projections are not representative of the precise number of individuals with specific disabilities.
 

Needs Assessment Questions

The 2021 CSNA reflects OOD’s focus on those priorities established by WIOA.  Special focus is given to a comparison of service delivery and outcome patterns between the majority White population of Ohioans with disabilities and minority groups, including Ohioans who are African American or Black and those who identify as Hispanic or Latino/a. This CSNA also included a survey of individuals with disabilities to gain insight into how well VR services did or did not meet their needs and expectations; or for individuals who has not previously received VR services, what services they needed. 

The CSNA addresses the following questions:

1.    What is the projected number of individuals that will experience each category of disability in Ohio?
2.    How many individuals with disabilities are projected to be seeking employment, who currently are not working?
3.    How do prevalence estimates differ for individuals by race/ethnicity and age groups?
4.    How many individuals with disabilities received services from OOD?
5.    What are the gaps in serving disability populations and how should gaps be prioritized?

Questions specific to minority groups with disabilities:

6.    Are there any differences in patterns of service when comparing White VR participants with minority VR participants?

7.    Are there any differences in the outcomes attained when comparing White VR participants with minority VR participants?  If so, are there any correlating variables that may contribute to the disparity in outcomes?

Questions specific to the survey of individuals with disabilities:

8.    For individuals served by VR, how well did the services provided or coordinated by OOD meet their needs and expectations?
9.    For individuals not served by VR, what services are most needed to assist in the pursuit of employment and independence?

Focus Areas and Data Collection Strategies

The 2021 CSNA focuses on seven critical tasks:

1. Evaluation of the recommendations made in the 2018 OOD CSNA; 
2. Utilization of federal, state, and local data resources;
3. Analyzing service delivery needs for individuals with disabilities based on disability categories and geographic locations;
4. Identifying proportionately underserved and un-served populations;
5. Analysis of service patterns and outcomes comparing White VR participants with participants from racial or ethnic minority groups;
6. Analysis of participant experiences with VR or the service needs of individuals with disabilities who have not been served by VR;    
7.  Development of data-informed recommendations for improvement to help individuals with disabilities achieve competitive employment outcomes.

Addressing these questions required the CSNA team to utilize several data collection strategies. Projections of the number of individuals with disabilities by category and county of residence in Ohio were developed for 2022. Similarly, service data from OOD’s VR case management system and employment statistics were utilized to develop estimates of the number of individuals likely to need VR services by disability category and by county. This provided a basis for developing estimates of the number of individuals actively participating in the labor force that need services to assist them in finding a job and who could benefit from VR services. 

Projections were made in the number of Ohioans with disabilities in need of VR services by category of disability and by county of residence in Ohio using American Community Survey (ACS) population projections and Bureau of Labor Statistics labor force participation and employment statistics. Similarly, service data from Ohio’s VR case management system and employment statistics were utilized to develop estimates of the number of individuals likely to need VR services. 

Content of the Needs Assessment Report

The remainder of this report is divided into several sections corresponding to data collection strategies and other phases of the needs assessment project. Section II summarizes background information (secondary data) and other contextual factors. Information summarizing VR services provided by OOD and annual funding for OOD are summarized in this section. This information is viewed as a critical foundation for the needs assessment data summarized in this report. Section III provides a progress report on OOD’s efforts to address recommendations made in the 2018 CSNA. Section IV reviews race, ethnicity, age, and disabilities in Ohio. Sections V and VI provide information related to the amount of service provided in Ohio counties. Section VII provides information about service and outcome patterns comparing White VR participants with participants from racial or ethnic minority groups. Section VIII provides results from the survey of Ohioans with disabilities. Section IX presents formal recommendations. Section X includes a Bibliography and Section XI provides a list of the tables, charts, and maps contained in the CSNA.

Section II. Background Information and Methodology

Current System for Delivering Vocational Rehabilitation Services in Ohio

Opportunities for Ohioans with Disabilities (OOD) is the state agency that empowers Ohioans with disabilities through employment, disability determinations, and independence.  This is accomplished through its Bureau of Vocational Rehabilitation (BVR), Bureau of Services for the Visually Impaired (BSVI) and Division of Disability Determination (DDD).  A fourth area is the Division of Employer and Innovation Services (EIS), which is responsible for establishing and maintaining partnerships with employers.

Approximately 300 OOD counselors deliver VR services via 13 field offices located across Ohio, as well as from embedded locations, such as schools, colleges, and universities, and OhioMeansJobs (OMJ) Centers. OOD also provides VR services through established case management and service delivery contracts with local and state agencies. In addition to employment and independent living support programs, OOD is responsible for making disability determinations for the Social Security Disability Insurance (SSDI) and Supplemental Security Income (SSI) programs in Ohio.

OOD receives funding from the Rehabilitation Services Administration (RSA) for the following programs: Vocational Rehabilitation (through BVR and BSVI), independent living initiatives for older individuals who are blind (ILOB), and statewide independent living programs. VR services include activities designed to assist individuals with disabilities to engage in competitive employment capitalizing on their strengths, resources, and abilities.

Business as a Customer. OOD places a priority on engaging businesses in Ohio to form employer partnerships, creating employment opportunities for individuals with disabilities served by VR. The Business Relations Unit within the Division of Employer and Innovation Services is led by two Employer Services Managers and includes a Vocational Apprentice Program Manager, two Career Development Specialists, a Worksite Accessibility Specialist, two Employer Services Liaisons, and five regional Business Relations Specialists (BRSs). From 2018 to 2020, the number of Employer Partners engaged by the Business Relations Unit increased by 81 percent from 260 businesses to 470 businesses.

Workforce Innovation and Opportunity Act. In 2014, the federal Workforce Innovation and Opportunity Act (WIOA) became law. WIOA was the first legislative reform of the public workforce development system in more than 15 years and replaced the Workforce Investment Act of 1998 (WIA). WIOA, which authorizes funding for the state VR program, establishes VR as a core workforce development program and imposes regulations that require combined strategic planning and common performance measures among all state workforce development agencies, including workforce programs run by the Ohio Department of Job and Family Services, the Ohio Department of Higher Education, and ASPIRE (Ohio’s adult basic literacy and education program, formerly ABLE). Other areas of priority include heightened emphasis that employment outcomes achieved by the VR program meet the definition of competitive integrated employment and funding requirements on the provision of services, including pre-employment transition services, to students with disabilities.

Needs Assessment Methods

Needs assessment is defined as a systematic and ongoing process of providing usable and useful information about the needs of a target population in order to make judgments about policy and programs (Shell, 2009) (Steinmetz, 2006). OOD is committed to using the data from the current needs assessment to inform future state plans and policy. As with any service delivered to a population in need, OOD acknowledges that there are gaps between the current reality of the VR system in Ohio and ideal conditions. The goal of current needs assessment activities is to assess the progress made since 2018 and continue to strategically identify gaps through the use of data and, ultimately, expand services to unserved and underserved populations in Ohio. Many of the projection statistics referenced in this report are estimates of existing and/or future conditions.

The Needs Assessment Process. This needs assessment utilizes each of the strategies identified in the most current available VR Needs Assessment Guide (Shell, 2009) and the innovative methods designed in the 2015 CSNA that further meets the unique needs of Ohioans that could benefit from OOD VR services. The six basic steps described by Shell (2009) guided project activities:

Step 1: Defining and Establishing CSNA Goals

Step 2: Developing CSNA Plan for Information and Dissemination

Step 3: Gathering the information

Step 4: Analyzing the Results and Developing Findings

Step 5: Develop the Conclusions: Potential Action Strategies

Step 6: Informing Ohio’s Combined State Workforce Plan, Goals, Priorities, and Strategies

The strategies for gathering and analyzing information and data in steps 3 and 4 included: 1) using existing disability population statistics; 2) creating disability population estimates from available data; 3) creating population projections; 4) Utilizing federal and state labor force statistics; 5) utilizing existing VR data; 6) incorporating state and county level statistics; and 7) soliciting feedback from individuals with disabilities, both recent VR participants and potential VR participants. 
 

Environmental Scan

Environmental scanning refers to the use of information related to demographic characteristics and other conditions in the external environment to assist management in planning and policy development (Choo, 2001).  The information in this section provides the foundation for the needs assessment activities described in this report. American Community Survey (ACS) data were used from the U.S. Census Bureau, as well as the Institute on Disability’s 2021 Disability Statistics Compendium and Cornell University’s Disability Statistics website (disabilitystatistics.org). Data sources also include the Bureau of Labor Statistics and other administrative records of government programs (such as Social Security Disability Insurance, Supplemental Security Income and federal/state vocational rehabilitation programs).

Population of Ohio Counties. The 2019 five-year population projection estimates suggest Ohio’s total population is 11,655,397 (U.S. Census – American Community Survey). Sixty-one of Ohio’s 88 counties have total populations of less than 100,000 residents. Vinton County in the southeast part of Ohio, with 13,083 residents, has the smallest total population. Eighteen counties have populations between 100,000 and 230,000 residents and the remaining nine counties all have populations that exceed 300,000.

As shown in Table 1 below, the nine counties with populations exceeding 300,000 residents are: Franklin, Cuyahoga, Hamilton, Summit, Montgomery, Lucas, Butler, Stark, and Lorain. Franklin is Ohio’s most populous county with 1,290,360 residents. Together, these counties account for nearly 51 percent of the state’s total population.
 

Prevalence of Disabilities. The following data represent disability prevalence statistics reported in the American Community Survey (ACS) (Institute on Disability). The ACS is conducted by the U.S. Census Bureau and provides annual community profiles. The information is collected through a questionnaire mailed to a random sample of addresses. The data specific to disability are based on six questions. If individuals answer “yes” to any one of these six questions they are classified as having a disability. The disability categories identified in the ACS are ambulatory, cognitive, hearing, independent living, self-care, and vision.

Definitions and descriptions of methodology are available at http://www.factfinder.census.gov.

According to the ACS, in 2018 Ohio had the sixth largest population of individuals with disabilities in the United States. Approximately 14.1 percent of the total population in the state was identified as having a disability (1,605,634). Table 2 illustrates the prevalence of disability by age group.
 

Table 3 provides the percent of Ohioans experiencing specific categories of disability as a percent of the total population.

(Bureau of Labor Statistics, 2021; https://www.bls.gov/bls/news-release/empsit.htm#2020)

(Bureau of Labor Statistics, 2021; https://www.bls.gov/news.release/disabl.t05.htm)

Ohio's Labor Force Participation and Employment. The discrepancy between the employment rate for individuals with and without disabilities in the U.S. is mirrored at the state level in Ohio. According to the ACS, in 2018 38.3 percent of individuals with disabilities ages 16 to 64 in Ohio were employed compared to 77.3 percent of individuals without disabilities (percentages differ slightly from those shown in Table 4 due to statistical margin of error). This data reveals an employment gap of 39.0 percentage points between the two groups. Furthermore, only 24.0 percent of the total population of individuals with disabilities ages 21 to 64 were employed full-time and year-round, whereas 62.7 percent of the population without disabilities ages 21 to 64 were employed full-time and year-round in Ohio. This represents a gap of 38.7 percent. (Cornell University; http://disabilitystatistics.org)

Poverty and Earnings. Data regarding poverty are also collected through the ACS. A set of 14 standards are used to calculate poverty. Thresholds are based on family size and composition. In 2018, it was estimated that 29.5 percent of Ohioans with disabilities ages 21 to 64 were living in poverty as compared to 10.6 percent of individuals without disabilities (a gap of nearly 19 percentage points). In 2018 the median annual earnings for Ohioans with disabilities who worked full-time and year round was $39,000 compared to $48,600 for individuals without disabilities who worked full-time and year round (a difference of $9,600). (Cornell University; http://disabilitystatistics.org)

Insurance and Health. According to the 2018 ACS, approximately 93.2 percent of Ohioans with disabilities ages 21 to 64 have health insurance (nationally, this rate is 90.0 percent). In comparison, 91.0 percent of Ohioans without disabilities ages 21 to 64 have health insurance. (Cornell University; http://disabilitystatistics.org)

Social Security Administration Programs. The following information describes Ohio statistics regarding the number of beneficiaries and the amount spent on disability benefits by the Social Security Administration. Supplemental Security Income (SSI) distributes funds to adults and children with disabilities who have limited income or are 65 years of age or older who meet financial limits. Social Security Disability Insurance (SSDI) is paid to individuals and family members if they worked for a specific amount of time and paid taxes. Table 6 and Table 7 provide the number of Ohioans who received federally administered SSI and SSDI payments in 2017 and 2019. (Social Security Administration, 2021)

Workers with disabilities accounted for the smallest percentage change for beneficiaries receiving SSDI from 2017 to 2019. There was a 3.5 percent decrease in the number of workers who are classified as beneficiaries, as compared to the total population receiving federally administered payments. The number of applications for benefits for workers with disabilities per month from 1996 to 2017 in the U.S. is displayed in Chart 1 below. There was a steady upward trend in the number of monthly applications for SSDI by workers with disabilities from 1998 through 2012. Since that time, the trend has reversed with applications in steady decline over the last five years.

Social Security Administration, 2021 (https://www.ssa.gov/oact/STATS/dibGraphs.html#2)

Social Security Administration, 2021 (https://www.ssa.gov/oact/STATS/dibGraphs.html)

Chart 1 above represents the 25-year U.S. trend of SSDI applications and awards made as a twelve-month moving average. Chart 2 shows the number of SSDI beneficiaries receiving payments over the same time period. Despite a steady upward trend over the majority of the past two decades, both charts show a declining trend in the last seven to nine years. (Social Security Administration, 2021). Table 8 below shows the trends of Ohio’s SSI recipients between 2016 and 2019. The trend of the percentage of SSI recipients working has remained flat at 6.3 percent in that time period.

As part of the Disability Program, SSA completes Continuing Disability Reviews (CDRs) each year to ensure that only those beneficiaries and recipients who are still determined to have a disability continue to receive monthly benefits. These reviews can result in a cessation of benefits, mostly due to medical improvement and the ability to work.

Based on the Social Security Administration Annual Performance Report 2019 – 2021, the target number of CDRs nationally decreased from 850,000 in 2017 to 703,000 in 2019. Specifically, for the Ohio Disability Determination Service, Chart 3 below shows the annual CDR targets and actual determinations completed from federal fiscal year 2015 through federal fiscal year 2020. (OOD – Division of Disability Determination)
 

The decline in match over this period is due to a reduction in partnership match. While General Revenue Funds (GRF) increased by almost $1.9 million from 2017 to 2020, partnership match decreased by approximately $2.3 million. As a result of these changes, total VR federal funds matched decreased by approximately $1.4 million, or 1.4 percent. Funding information is illustrated below in Chart 5. (OOD – Division of Fiscal Management)
 

Findings

    The secondary data summarized in this section of the CSNA provides a variety of important findings. Findings indicate that Ohio is a large state with a number of urban areas. Though Ohio is divided into 88 counties, approximately half of the population resides in only nine counties. Ohio ranks sixth among states/territories in the number of residents with disabilities and 16th in the percentage of individuals with disabilities. (Cornell University, http://disabilitystatistics.org)

National data suggest that there is a significant gap between employment rates for individuals with disabilities and individuals without disabilities. From 2018 to 2020, individuals without disabilities were employed at more than twice the rate of individuals with disabilities.  Labor force participation rates for individuals with disabilities declined slightly over that time period while rates for individuals without disabilities increased.  Furthermore, the poverty rate for individuals with disabilities was significantly higher than the poverty rate for individuals without disabilities.

Other more specific findings are indicated as follows:

1. Ohio is a large state with a population of 11,655,397. More than half (50.8 percent) of the population resides in the following nine Ohio counties: Franklin, Cuyahoga, Hamilton, Summit, Montgomery, Lucas, Butler, Stark, and Lorain. Franklin is Ohio’s largest county with 1,290,360 residents.
2. Ohio is ranked sixth among the states in the number of individuals with disabilities, with 1.6 million individuals (14.0 percent of the total population). Of these, 834,506 (7.2 percent) were between the ages of 18 and 64.
3. Individuals with cognitive and ambulatory disabilities have the highest prevalence rates of disability among Ohioans. Individuals with independent living and self-care disabilities have the lowest employment rates.
4. It is estimated that 29.5 percent of Ohioans with disabilities ages 21 to 64 were living in poverty as compared to 10.6 percent of individuals without disabilities. In 2018, the median annual earnings for Ohioans with disabilities who worked full time and year-round was $39,300 compared to $48,600 for individuals without disabilities who worked full time and year-round.
5. The number of workers with disabilities receiving SSDI benefits has declined steadily over the last five years. The labor force participation rate of working-age individuals has remained relatively stable, with a slight decline of 0.1 percentage point between 2018 and 2020.
6. More than 236,000 Ohio students ages 6 to 21 are served through the Individuals with Disabilities Education Act (IDEA).
7. The VR budget decreased by approximately 1.4 percent from 2017 to 2020.  Over the same period, the number of service plans written decreased by 4.5 percent and the number of successful outcomes decreased by 17 percent.

Section III. Progress and Follow-up to 2018 CSNA Recommendations

Below is a summary of the recommendations presented in the 2018 CSNA and OOD’s progress towards addressing them. OOD has implemented programmatic changes and developed new program initiatives in response to all of these recommendations. 

Table 12 – Recommendations and Status Updates from the 2018 CSNA

Section IV. Disability Demographics and Employment Status

The information presented in the following section focuses on race, ethnicity, and age. A review of a variety of data suggests that, for both age and race, OOD proportionately serves Black or African American individuals and individuals ages 18 to 34 at a higher rate than the demographic makeup of the state. As Ohio’s largest minority race and ethnic populations are African Americans and Hispanic or Latino/a individuals, respectively, this analysis will first focus on statistics regarding those populations. Finally, data related to age and disabilities are summarized.

Need for Vocational Rehabilitation Services among Minorities

Race. ACS 2018 data indicate that the estimated prevalence of disability for working-age Ohioans (ages 16 to 64) was:

•    11.3 percent among Whites, estimated 670,700 individuals
•    15.0 percent among Black or African Americans, estimated 136,900 individuals
•    4.9 percent among Asians, estimated 9,700 individuals
•    36.4 percent among Native Americans or Alaskan Natives, estimated 7,400 individuals
•    14.3 percent among Other Races, estimated 35,500 individuals
 

The total number of working-age Black or African American individuals with disabilities in Ohio is estimated to be 189,489. The Bureau of Labor Statistics reported in 2019 that 69.1 percent of working-age individuals with disabilities were not working, and that 7.9 percent of these individuals were actively seeking employment at any given time.  This means that approximately 10,344 working-age Black or African American individuals with disabilities in Ohio were seeking employment.  OOD provided services to 6,597 of these individuals, resulting in a service rate: need ratio of 63.8 percent.  (Bureau of Labor Statistics, 2019)
 

Table 14 provides a summary of the six Ohio counties with Black or African American working-age populations between 7,000 and 20,000. These counties combine to make up 7.1 percent of the total Black or African American working-age population in Ohio. The remaining 74 counties contain 9.4 percent, or 88,813, working-age African Americans as shown below in Table 15.

Of the more than 29,000 individuals served by OOD in 2020, 22.4 percent or 6,597 were Black or African American. The Service Rate: Need Ratio refers to the number of individuals with a disability served as a percentage of the total number who could potentially be served. It is estimated that OOD’s service rate: need ratio for Black or African Americans with disabilities who may be seeking employment was 63.8 percent.  Additional discussion regarding services to Black or African American individuals with disabilities and the outcomes attained is provided in Section VII of this report.

Table 16 below provides a summary of the eight Ohio counties with Hispanic or Latino/a working-age populations of over 8,000 individuals.  In 2020, OOD served 580 out of the estimated 1,171 individuals with disabilities in those counties who were seeking employment, resulting in a service rate: need ratio of 49.6 percent for this group.

Table 17 provides a summary of the twelve Ohio counties with Hispanic or Latino/a working-age populations of 2,500 to 8,000. In 2020, OOD provided vocational rehabilitation services to 137 Hispanic or Latino/a individuals with disabilities in those counties, resulting in a service rate: need ratio of 44.1 percent for this group. 

Table 18 summarizes the Hispanic or Latino/a populations in the remaining 68 Ohio counties.  In 2020, OOD served 251 out of an estimated 349 individuals with disabilities in those counties seeking employment, resulting in a service rate: need ratio of 71.8 percent.  The service rate: need ratio for the Hispanic or Latino/a population with disabilities statewide is 52.9 percent.
 

Age and Disabilities in Ohio

Based on the U.S. Census Five-Year population projections from 2019, Ohio’s population ages 18 to 34 is approximately 2,533,133. Estimates indicate that approximately 7.5 percent of these individuals experience a disability, which represents 189,626 individuals. The ACS indicates that approximately 7.4 percent of the disability population in Ohio (ages 21 to 64) is not working but actively looking for work at any given time. Of the individuals with disabilities ages 18 to 34, approximately 14,032 individuals were likely to have benefitted from OOD services. In 2020, OOD served 14,150 individuals ages 18 to 34, representing a service rate: need ratio greater than 100 percent for this age group. It should be noted that OOD serves youth beginning at age 14 to help them prepare for employment as they transition from secondary education to postsecondary education or the workforce. Although the service rate appears greater than the need, this is because many of these youth are not actively seeking employment while still in school and preparing for adult life. 

U.S. Census projections indicate that Ohio’s population ages 35 to 64 is approximately 4,555,527, with 14.2 percent (644,880) of these individuals experiencing a disability. Of these, approximately 47,721 individuals were likely to have benefitted from OOD services. In 2020, OOD served 8,393 individuals ages 35 to 64, representing a service rate: need ratio of approximately 17.6 percent for this age group.

U.S. Census projections indicate that Ohio’s population ages 65 and over is 1,872,384, with 34.2 percent (641,009) of these individuals experiencing a disability. Individuals in this age group, however, were much less likely to have been actively seeking work than the other groups. As noted in Table 5, approximately 1.5 percent of the individuals in this age group who were not in the labor force were actively seeking work. This equates to approximately 9,615 individuals that could potentially benefit from OOD services. OOD served 690 individuals in this age group in 2020, representing a service rate: need ratio of approximately 7.2 percent.
                                                         

Findings

1. In 2020, OOD provided VR services to 29,396 individuals; 6,597 or 22.4 percent were Black or African American and 968 or 3.3 percent were Hispanic or Latino/a individuals.
2. The American Community Survey (ACS) estimates that 15.0 percent of working-age Black or African American individuals experience disabilities.  This equates to approximately 189,489 Ohioans.  According to the Bureau of Labor Statistics, 69.1 percent of these individuals are not working at any given time, and 7.9 percent of these individuals are actively seeking employment.  Statewide, OOD served 6,597 Black or African American individuals with disabilities out of an estimated 10,344 who were seeking employment, resulting in a service rate: need ratio of 63.8 percent.
3. More than eight out of 10 working-age African Americans (83.5 percent) reside in the following eight Ohio counties: Cuyahoga, Franklin, Hamilton, Montgomery, Lucas, Summit, Mahoning, and Butler.
4. The ACS estimates that 11.6 percent of Hispanic or Latino/a working-age individuals experience disabilities.  This equates to approximately 33,533 Ohioans.  Statewide, OOD served 968 Hispanic or Latino/a individuals with disabilities out of an estimated 1,831 who were seeking employment, resulting in a service rate: need ratio of 52.9 percent.
5. More than six out of 10 working-age Hispanic or Latino/a individuals (63.9 percent) reside in the following eight Ohio counties: Franklin, Cuyahoga, Lucas, Lorain, Hamilton, Butler, Montgomery, and Mahoning.
6. The ACS 2019 five-year population projection indicates there are approximately 2.6 million individuals ages 18 to 34 in Ohio.  Estimates suggest that approximately 189,626 individuals in this population experience disabilities.  In 2020, OOD served 14,150 individuals between 18 and 34 years of age.
7. The ACS 2019 five-year population projection indicates there are approximately 4.5 million individuals ages 35 to 64 in Ohio.  Estimates suggest that approximately 644,880 individuals in this population experience disabilities.  In 2020, OOD served 8,393 individuals between 35 and 64 years of age.
8. The ACS 2019 five-year population projection indicates there are approximately 1.9 million individuals ages 65 and over in Ohio.  Estimates suggest that approximately 641,009 individuals in this population experience disabilities.  In 2020, OOD served 690 individuals ages 65 and over.  It is important to note that 92.4 percent of individuals with a disability in this age group are not considered to be part of the labor force and are not seeking employment. (Bureau of Labor Statistics, 2020)

Section V. Prevalence and Service Rate: Need Ratio Projections of Unmet Need

Projecting the number of Ohioans experiencing various categories of disability is a key tool for addressing the needs assessment questions. The purpose of developing such projections is to determine, with as much accuracy as possible, the estimated number of individuals in each county likely to experience a disability consistent with the categories of disability served by OOD. These projections assist planners in making resource allocation decisions based on reasonable estimates of the need for services.

Limitations of the Data

The findings summarized in this section of the CSNA are intended to be estimates of the magnitude of need in any individual county in Ohio. The precision of these estimates is not sufficient to address questions about the actual numbers of individuals likely to experience specific disabilities. Rather, the estimates are used to categorize counties into one of six groups representing a continuum of need from lowest to highest. It is important to point out that data reviewed in this section of the CSNA indicate that there are unmet needs in all counties in Ohio.

Methods for Developing Prevalence Estimates

Following the method utilized in previous CSNAs, OOD estimated county level prevalence rates based on population statistics published by the U.S. Census Bureau in the American Community Survey (ACS). Where an exact match did not exist between disability categories used in the ACS and those used by OOD, population and OOD service statistics were aligned using a “best fit” approach.  For example, the ACS uses a category labeled “Ambulatory Disability”.  This category was aligned with OOD’s Physical Disability category as the best fit.

Prevalence of Disabilities

Table 19 below provides the prevalence estimate for each category of disability and the source from which each estimate was obtained.

Blindness and Low Vision Disabilities. The 2018 ACS indicates that of the population ages 16 to 64, 1.9 percent in the U.S. and 2.0 percent in Ohio experience blindness or a low vision disability. Individuals were classified in this category if they answered yes when asked if they had serious difficulty seeing even when wearing glasses.

Deaf and Hard of Hearing and Communicative Disabilities. The 2018 ACS indicates that of the population ages 16 to 64, 1.9 percent in the U.S and 2.1 percent in Ohio experience deafness, are hard of hearing, or have a communicative disability. Individuals were classified in this category if they answered yes when asked if they were deaf or had serious difficulty hearing.

Physical Disabilities. The 2018 ACS indicates that of the population ages 16 to 64, 4.6 percent in the U.S. and 5.3 percent in Ohio experience physical [ambulatory] disabilities. Individuals were classified in this category if they answered yes when asked if they had serious difficulty walking or climbing steps.

Psychosocial Disabilities. The Substance Abuse and Mental Health Services Administration’s National Survey on Drug Use and Health for 2019 reported that 5.2 percent of U.S. adults, ages 18 and over, reported serious mental illness in the past year.

Cognitive Disabilities. The 2018 ACS indicates that of the population ages 16 to 64, 4.4 percent in the U.S. and 5.5 percent in Ohio experience cognitive disabilities. Individuals were classified in this category if they answered yes when asked if they had serious difficulty concentrating, remembering, or making decisions due to a physical, mental or emotional condition.

Service Rate: Need Ratio of Primary Disability Categories

“Service Rate: Need Ratio” refers to the number of individuals with a specific disability served as a percentage of the total number who could potentially be served; this is also known as a penetration rate. The total number who could potentially be served refers to estimates of working-age (15 to 64) individuals with disabilities looking for work. In order to accurately reflect the VR needs of individuals by disability that are actively seeking work, the working-age population was utilized in these estimates. This is particularly crucial when considering the Bureau of Labor Statistics estimate that 92.4 percent of individuals with a disability in this age group are not considered to be part of the labor force and are not seeking employment. The number of individuals that are looking for work is impacted by many factors. The formula for calculating the Service Rate: Need Ratio is:

A × B = C

A = Estimated population. Projected population age 15 and older was obtained from the U.S. Census American Community Survey 2019 – 5-year projection data.
B = Prevalence rate for a specific disability.
C = Estimated number of individuals who potentially experience a particular disability.
 

C × D = E

D = Estimated percentage of individuals in the working-age population with disabilities who are not working. The estimated percentage not working was obtained by subtracting the estimated employment rate from 100 percent.
E = Estimated number of working-age individuals with disabilities who are not working.
 

E × F = G

F = Estimated percentage seeking employment that could benefit from OOD VR services. U.S. Bureau of Labor Statistics suggest that 7.9 percent of the unemployed population with disabilities were actively seeking employment.
G = Estimated number of working-age individuals with disabilities seeking employment that could benefit from OOD VR services.
 

Number Served by OOD / G × 100 = Service Rate: Need Ratio

Map 1 provides 2020 estimated service rate: need ratios by county for all disability categories, races, and age groups combined. The darker shades of blue represent a better alignment of resources in meeting service needs, and lighter shades represent areas where greater opportunity exists for OOD. An interactive map is provided with the online version of the CSNA allowing the selection of a specific disability category, race, or age group.

This link goes to an interactive version of the map above which illustrates categories of disability by county, as well as the service rate: need ratio when all impairment categories are combined.

Table 20 offers service rate: need ratios by county for each of the five major OOD disability categories.  Table 21 offers these ratios for each race category, and Table 22 offers these ratios by age group. For accessible versions of Tables 20-22, click here.

Findings

Findings related to Service Rate: Need Ratios are as follows:

1. As shown below in Table 23, OOD has attained the lowest service rate: need ratios in the Blind and Low Vision category.  87 Ohio counties have ratios less than or equal to 20 percent; the remaining county, Union, has a ratio of 24.1 percent.  Low service rate: need  ratios are also prevalent in the Physical category (77 counties less than or equal to 20 percent) and the Deaf and Hard of Hearing and Communicative category (74 counties less than or equal to 20 percent).