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WORKability 2: SOLUTIONS Final report of the National Inquiry into Employment and Disability

8 International approaches to providing supports in the open workplace

8.1 Introduction

8.2 Research methodology

8.3 How does New Zealand seek to provide supports in the workplace?

8.3.1 Job Support

8.3.2 Training Support

8.3.3 Self Start

8.3.4 Mainstream Program

8.4 How does Canada seek to provide supports in the workplace?

8.4.1 Multilateral Framework for Labour Market Agreements for Persons with Disabilities

8.4.2 The Opportunities Fund for Persons with Disabilities

8.5 How does the United States seek to provide supports in the workplace?

8.5.1 Federal Vocational Rehabilitation Program

8.5.2 Extended services

8.5.3 The Ticket to Work program

8.5.4 Plan for Achieving Self Support (PASS)

8.5.5 Workplace modifications

8.6 How does the United Kingdom seek to provide supports in the workplace?

8.6.1 Job Centre Plus, Job Centre Personal Advisers and Disability Employment Advisers

8.6.2 Access to Work scheme

8.6.3 Job Introduction Scheme

8.6.4 New Deal for People with Disability

8.6.5 The Five Year Strategy and Pathways to Work

8.7 Comments in the Second Round Submissions to the Inquiry

8.8 Issues for Australia to consider in developing alternative approaches to providing ongoing supports and incentives

8.9 Recommendation regarding international approaches to providing supports

8.1 Introduction

WORKability I: Barriers noted some of the difficulties that arise from Australia's fragmented system of subsidies, supports, incentives, concessions and income support for people with disability. [1]

Several First Round Submissions suggested that Australia may benefit from a closer examination of models operating in other countries to increase participation of people with disability in the open workplace. [2]

As a result, WORKability I: Barriers made the following recommendation:

Interim Recommendation 4: Streamline support and subsidies

The Inquiry recommends research into international approaches to encouraging the participation and employment of people with disability with a view to developing:

(a) a more streamlined and comprehensive program of support, assistance and incentives; and

(b) a whole-of-government approach.

Using the First Round Submissions as a starting point, the Inquiry commenced researching the support and subsidy systems in Canada, New Zealand, the United Kingdom and the United States of America. Given the short period of time available, it has not been possible to provide a comprehensive survey of the systems in those four countries. However, this chapter sets out the results of the Inquiry's preliminary research as a platform for further study.

8.2 Research methodology

After analysing the First Round Submissions which had noted international programs of significance, the Inquiry sought further information from individuals and organisations who had some knowledge of programs operating in New Zealand, Canada, the United States and the United Kingdom.

The Inquiry also conducted internet searches of each country's government disability website and any specific programs that had been mentioned by those with experience in the area. Individuals, organisations and government departments in each country were then contacted to provide further general information or answer specific questions.

A general international request for information regarding models of support was also emailed to all members of GLADNET (Global Applied Disability Research and Information Network on Employment and Training; http://www.gladnet.org/).

The following questions were used as a guide to collect information:

• What are the eligibility criteria to qualify for government support to enter and remain in the open workplace? For example: Do you need to be in receipt of welfare or income support? Capacity to work a minimum number of hours per week? Level of disability? Any special measures for people with high support needs?
• What supports are provided? For example: Support in employment? Skills upgrading? Work experience? Job search?
• Who are the supports provided to? For example: People with disability currently in employment? People seeking to re-enter the workplace? Self-employed? People who acquire a disability during employment?
• For how long is support generally provided? Is there a maximum period?
• Are supports also provided to employers and other colleagues in the workplace?
• Is there a limit on the amount of funding available to each individual?
• What is the funding model? For example: Renewable amount per year? Capped amount over lifetime?
• Are there any restrictions on how to spend supports funding? For example: Can money be spent on travel expenses?
• Is a contribution expected from the employer or employee?
• Who provides the supports? For example: Government bodies? Agencies contracted by government? Private agencies?
• Is support available on an 'as needed' basis? For example: Can people with disability and their employers 'dip in and out' of the supports?

8.3 How does New Zealand seek to provide supports in the workplace?

New Zealand appears to have a uniform national model to assist and support all people with disability aged between 16 and 65 to enter and remain in the workplace. [3]

To be eligible for supports under the New Zealand model the applicant must be someone who:

... has been identified as having a physical, psychiatric, intellectual, sensory or age-related disability, or a combination of these, which is likely to continue for a minimum of six months and result in a reduction of independent function to the extent that on-going support is required. [4]

A person who falls within this definition is eligible for support whether or not they receive a pension and irrespective of their capacity or work. Further, it is irrelevant whether a person finds a job through a government-funded employment service, and assistance can be sought at any stage of the employment cycle. Importantly, there is no time-limit on the provision of supports.

There are three support programs designed to assist people with disability to enter and remain in the open workplace:

1. Job Support.
2. Training Support
3. Self Start

These programs are administered by Workbridge, a non profit employment agency, on behalf of the Ministry of Social Development's Work and Income Service. Services are provided free of charge and job seekers or employees with disability can either self-refer or be referred by another agency.

Workbridge is funded to cover the 'costs of disability' for people with disability participating in work or training programs:

Cost of disability: The funds must be used to cover the additional costs that a jobseeker has as a direct consequence of their disability, when undertaking the same job or training as a person without a disability or impairment. [5]

In addition, the Mainstream Program, run through the State Services Commission, facilitates employment opportunities for people with significant disability in selected public sector organisations. [6]

8.3.1 Job Support

Job Support is the main program used to assist people with disability to enter and remain in employment. It also assists people in self-employment.

Job Support provides funding of up to NZ$16,900 per person in any 12-month period. The funds are available for as long as the person needs assistance. There is no maximum time limit or lifetime budget limit associated with these funds:

We would however expect to see a drop off in supports such as support person, job coach or productivity allowance. Payments for job coaches are often replaced with a support person. Many clients will access a level of support over many years (if not for their working life). [7]

Initially, support funds are granted for six months with an automatic right of review for a further six months. After 12 months, the person with disability needs to reapply. After that, it seems that approval of subsequent applications is more straightforward.

The $16,900 limit includes any other work and income grants or subsidies being received for similar purposes (for example Job Plus subsidies; Modification Grants, etc). [8] It is unclear whether this combined total limit may disadvantage people with high support needs.

The Job Support funds can be used in a variety of ways. For example, the money can be used for initial training and workplace modifications as well as any ongoing supports that are required. Funds can also be used where a person's job is in jeopardy due to a sudden onset of a disability or worsening condition. [9] The following is a brief, but not exhaustive, list of some of the support services available:

Examples of the most common uses of Job Support include:

• workplace modifications
• job coaching (both short-term and on-going)
• mentoring
• purchase of additional physical support necessitated by the demands of the job (including on-the job physiotherapy or attendant care)
• interpreter services
• special equipment to accommodate a person's disability
• additional costs of transport and parking
• special induction training after placement into work
• either temporary or on-going assistance to cover shortfalls in productivity
• disability awareness training for fellow workers
• productivity assessments for long-term productivity allowances. [10]

Employees with disability in the public sector can only access Job Support once the State sector employer has met their statutory 'good employer' obligations. [11] It would seem that this means there is a higher level of accountability on State sector employers than a private employer to provide 'reasonable accommodations' before seeking support from Job Support. [12]

8.3.2 Training Support

The Training Support program is used to support people with disability undergoing training or education, work experience or a period of assessment as part of an individual plan to enter open employment. This program specifically targets people with high support needs and may be used:

• for the provision of a support person to help sustain access to a training course and/or associated expense
• to pay transport costs, not covered by the disability allowance, to attend a training opportunity or work experience
• to pay for special equipment which is not covered by other provisions. [13]

Training Support funds can only be used for training opportunities that are linked to the New Zealand Qualifications Authority framework, or which involve other educational institutions approved by the Ministry of Social Development. Further, while applicants are not subject to means testing, every effort is made to ensure that payment levels are consistent with equity and need.

In contrast to the Job Support scheme, Training Support has a lifetime funding limit of NZ$15,600 per individual. [14]

8.3.3 Self Start

The Self Start program is a scheme to assist people with disability to set up their own business ventures. The program covers the additional costs relating to a person with disability when self-employed.

This scheme has a lifetime funding limit for each individual of NZ$5,200. The following criteria apply:

It is not available to supplement business income. Only applications which are consistent with realistic and reasonable outcomes for the individual will be approved. . The applicant must be able to put in 20 hours of personal time into running the business each week. [15]

8.3.4 Mainstream Program

The Mainstream Program is a supported employment program for people with significant disability. [16]

The program assists people with disability who are not 'job-ready' to gain the necessary job skills and knowledge while working in State sector organisations:

After two years, it is expected that Mainstream participants will have gained the knowledge, skills and experience necessary to compete for employment on their own merit. Recently published research shows that 69% of Mainstream participants are still in employment up to five years after the completion of their Mainstream placements. [17]

The Mainstream program funds 100% of the wages for program participants in the first year of employment. In the second year the subsidy decreases to 50%. In the third year, program participants are expected to be ready for unsubsidised open employment.

The aim of the program is to facilitate a move to unsubsidised employment and reduce the number of people dependant on welfare: [18]

The Mainstream Programme features:

• a 100% salary subsidy paid to State sector employers, for the first 12 months of the Mainstream placement.
• a 50% salary subsidy paid to State sector employers, for the second year of the Mainstream placement.
• access to funding for external training for Mainstream participant and direct supervisors.
• funding to meet the cost of adaptive technology or specialised assistance for Mainstream participants.
• induction training for Mainstream participants and direct supervisors.
• an advice and referral service for employers and Mainstream participants.
• Follow-up support for direct supervisors and Mainstream participants. [19]

Over 3,000 people with disability have participated in this program since it commenced 30 years ago. [20] There are currently over 230 Mainstream Program participants working in various State sector organisations in a variety of positions:

Although some of the created positions gained through the Mainstream Programme are at a basic clerical level, a growing proportion are in such diverse areas as case and project management, technical support and various roles within the education sector. [21]

People participating in the Mainstream Program are not eligible for Job Support funds.

8.4 How does Canada seek to provide supports in the workplace?

In Canada, a 'Multilateral Framework' agreement exists between federal and provincial governments to fund the majority of services and supports for people with disability to participate in the labour market.

While the Canadian government funds provincial labour market programs and services to assist people with disability under this Framework, programs and services vary from province to province in accordance with local priorities. [22]

A separate federal fund (the Opportunities Fund for Persons with Disabilities) exists to provide services to 'people with disabilities who have had little or no attachment to the workforce'. [23] The program funds are available irrespective of whether the individual receives welfare or income support.

Additional programs and supports are also available for people with high support needs who wish to work.

A recent study conducted by the Canadian Abilities Foundation examined 'why employment continues to be an elusive dream' for Canadians with disability. The study found one of the overarching problems to be 'the incredible disconnect between employers, people with disabilities, and the service providers who help these individuals enter the workforce'. [24] The study also identified the Canadian disability benefits and support structure to be a major disincentive to labour force participation:

Both employment services providers and those employers who were familiar with government disability benefit programs felt these programs were keeping people out of the workforce. In particular, they felt greater program flexibility would create incentives for people with disabilities to experiment with employment as long as they are not penalized if their attempts are unsuccessful. [25]

It appears that disability-related funding, while mainly delivered by the Canada Pension Plan, is also delivered by provincial and municipal governments.

A general description of the Multilateral Framework and the Opportunities Fund is provided below.

8.4.1 Multilateral Framework for Labour Market Agreements for Persons with Disabilities

In December 2003, Canadian federal and provincial governments endorsed the Multilateral Framework for Labour Market Agreements for Persons with Disabilities (LMAPD). [26] The Multilateral Framework replaced the Employability Assistance for People with Disabilities (EAPD) initiative. Social Development Canada - a government agency - administers the Labour Market Agreements for Persons with Disabilities.

The programs and services funded under the framework vary according to local priorities and it appears that eligibility criteria are not regulated on a national level. However, labour market programs and services must address one or more of the following priorities:

• education and training
• employment participation
• employment opportunities
• connecting employers and persons with disabilities
• building knowledge. [27]

Some of the types of supports funded under these programs include:

• job coaching and mentoring
• pre-employment training and skills upgrading
• post-secondary education
• assistive aids and devices
• wage subsidies and earning supplements
• employment counselling and assessment
• accessible job placement networks
• self-employment
• other workplace supports. [28]

In an effort to ensure that 'employment programs for persons with disabilities are more coherent and effective', the Canadian government is using the Labour Market Agreements for Persons with Disabilities framework to review its labour market initiatives. Provincial governments have agreed to issue baseline reports on a yearly basis, reporting on a variety of indicators including 'employment rates of working-age adults with disabilities, education attainment as well as employment income'. [29]

8.4.2 The Opportunities Fund for Persons with Disabilities

In addition to the Labour Market Agreements for Persons with Disabilities, Social Development Canada administers the Opportunities Fund for Persons with Disabilities (the Opportunities Fund). The Opportunities Fund commenced as a pilot program in 1997, with funding becoming permanent in December 2000.

This Fund is a broad 'employability' program intended to assist unemployed people with disability who have had little or no attachment to the labour force. To be eligible for assistance from the Opportunities Fund, an individual must:

• self identify as having a permanent physical or mental disability which limits their daily activity
• be unemployed and seeking employment
• be eligible to work in Canada and
• require assistance to work or to become self-employed. [30]

The objectives of the program are described as follows:

• To assist persons with disabilities to prepare for and obtain employment or self-employment as well as to develop the skills necessary to maintain that new employment.
• To support effective and innovative activities such as, but not limited to, the following: encouraging employers to provide individuals with work opportunities and experience, assist individuals to increase their employment skill level and helping individuals to start their own business; and
• To work in partnership with organizations for persons with disabilities, including the private sector, to support innovative approaches to integrate individuals with disabilities into employment or self-employment and address barriers to an individual's labour market participation. [31]

The Opportunities Fund supports a diverse range of projects and directly contributes to the costs of developing new initiatives. For example, service providers may be funded to cover costs like:

• participant wages or related employer costs; and
• overhead costs related to planning, organizing, operating, delivering and evaluating approved activities, including costs such as staff wages and employment related costs. Eligible expenses will be negotiated with program officials. [32]

Project applicants may include businesses, public health and educational institutions, community organisations, band/tribal councils, or municipal governments, individuals and provincial/territorial government departments and agencies if specifically approved by the Minister. [33]

For the individuals with disabilities who participate in these programs, funding may be provided for the following:

• all or a portion of their living expenses;
• all or a portion of the incremental cost of participation such as expenses relating to specialized services, arrangements or equipment, dependant care, transportation and accommodation; and
• all or part of the cost of tuition for a course or a program of instruction (May not be available in all Provinces). [34]

Projects are normally approved and funded for a maximum period of 52 weeks, although there are provisions for funding to be extended to 78 weeks. The length of funding is dependent on the action plans developed to respond to each individual's need.

According to the 'Terms and Conditions' information sheet, the amount available per organisation is variable and substantial:

.the maximum contribution shall be $5M. The amount of the contribution will be determined by the number of eligible recipients who participate or are to be served. [35]

A 2004 report by the Government of Canada - Advancing the Inclusion of Persons with Disabilities - described the aims and outcomes of the Opportunities Fund as follows:

The program's main outcomes involve the labour market participation of people with disabilities and the degree to which the program helps them become more employable and find work. About 77% of clients are expected to enhance their employability and over 40% are expected to find jobs. The Opportunities Fund now serves about 3,900 people with disabilities a year. It has helped roughly 22,000 Canadians since it began. [36]

The report recommended continuing the Opportunities Fund on the basis of an earlier evaluation which had noted positive results for people with disability: [37]

In 2001 the Opportunities Fund was evaluated to measure its effectiveness. It was agreed that the federal government should continue to play a role in addressing employment barriers for persons with disabilities, and there was strong support for continuing a program such as the Opportunities Fund. According to the evaluators, one of the program's strengths is its individual, flexible approach to delivering services to clients. The program's overall design, management and implementation were seen as strong, and participants and service deliverers alike were largely satisfied with it. Assessments from Opportunities Fund participants, as well as the outcome data, show that the program has helped individuals find work and has improved their employability and quality of life. [38]

8.5 How does the United States seek to provide supports in the workplace?

As in Australia, the United States appears to have a patchwork of federal and state employment support programs for people with disability.

Overall, the system is regulated, and largely funded, by the federal government. States contribute to funding and administer the programs according to federal regulations. However there is a substantial distinction between the services assisting with job entry and initial support and the services providing ongoing job support.

Job entry and initial support services are federally funded and have strict criteria for eligibility and use of funds. As a result, there appears to be a fairly uniform national Vocational Rehabilitation Program to assist people with disability to find a job and provide short term support at work (for the first 3-6 months). [39]

Ongoing support services, on the other hand, are funded by federal, state and local governments. There is wide variability regarding eligibility criteria and the types of services offered. This patchwork results in different eligibility rules and services being offered from state to state and even from community to community within a state.

A general description of the programs and supports available to people with disability to enter and remain in open employment in the United States follows.

8.5.1 Federal Vocational Rehabilitation Program

The Vocational Rehabilitation Program is the primary federal funded program for employment services in the United States. [40] The program is described as a federal/state partnership as each state matches federal funding (calculated at approximately 20-25% of the federal contribution) and the states administer the federal funds. The program is regulated by the federal Rehabilitation Act 1973 (US). Each state operates its own program following regulations and guidelines set out in the Act.

It appears that the only eligibility criteria for participating in the Vocational Rehabilitation Program is that the individual has a disability-related impairment and requires assistance to find a job. Eligibility is not dependant on a person receiving a disability pension or income support. Nor is there a minimum number of employment hours per week to be eligible for support.

However it seems that, in practice, it is difficult to access the program. When there is high demand and limited funding, a state can initiate an 'Order of Selection' which places limits on how services operate and gives priority to people with significant disabilities. It seems that approximately two-thirds of Vocational Rehabilitation agencies are currently on such Orders. There does not appear to be any federal monitoring of adherence to those Orders.

One American academic, Grant Revell, described the Vocational Rehabilitation Program as a time-limited support service that is available to people with disability entering employment:

The federal Rehabilitation Act . requires that vocational rehabilitation agencies place time limits on the use of funds. Time-limited funding usually involves funding a series of intermediate steps toward a supported employment outcome. These steps are assessment, usually community-based assessment; job selection and attainment; job retention; and movement to extended services at a point of stability in employment. [41]

Thus, while the Rehabilitation Act 1973 states that support services are to be provided until the person achieves stability, it appears that most support from federally funded Vocational Rehabilitation programs is for three to six months. More often than not, the support ceases after three months - which is the minimum success standard.

In addition, it seems that when an assessment is made that the person is likely to need supports for longer than that provided by the Vocational Rehabilitation Program, the additional arrangements and funding must be in place (or reasonably expected to occur) before Vocational Rehabilitation funds can be spent on the initial period.

While the types of supports to be provided by agencies is not regulated, the 'typical' services offered by the Vocational Rehabilitation Program include:

• Business/employer mentoring programs/internships
• Career consulting (e.g., portfolio preparation, resume writing, interview skills)
• Career strategies (e.g., skills assessment and development, job coaching)
• Case management
• Employment (i.e. hiring of beneficiary to work for EN)
• Habilitation services (e.g., independent living training/assistance in support of work)
• Job accommodations
• Job service vouchers
• Job training
• Job placement/employment services (e.g., job search, placement assistance)
• Peer mentoring services
• Personal attendant support services
• Post-employment support (e.g., job/employment retention services)
• Psychosocial rehabilitation
• Referral to services or support from local mental health or developmental disabilities providers
• School to work transition services
• Self-employment/business start-up
• Services under a formal agreement with a Workforce Investment Board and/or One-Stop
• Special language capacity (e.g. Spanish, Vietnamese, Sign Language, etc...)
• Supported employment
• Situational assessment
• Transitional Employment Program
• Transportation assistance
• Work incentives counselling. [42]

8.5.2 Extended services

Ongoing support beyond the Vocational Rehabilitation Program is provided by a variety of public or non-profit organisations ('extended services'). It is also possible to bypass the Vocational Rehabilitation Program and use extended services only.

Extended services may be funded by a variety of sources - including federal, state and local government. It appears that funding is mostly person-centred (rather than program-centred) in that the funding moves with the individual to achieve desired outcomes.

The goal of extended services is to ensure as much support as needed to enable the employee with disability to maintain employment stability. In practice the length and type of support is determined by the funding available to each agency.

There does not appear to be any national policy or regulation regarding the provision of long-term supports. Furthermore, there is no regulated maximum amount of funding that can be used by any one individual. As a result, there appears to be substantial variations in the quality and quantity of ongoing support services provided to employees with disability and their employers across all fifty states.

8.5.3 The Ticket to Work program

People with disability receiving Social Security Income (SSI) or Social Security Disability Insurance (SSDI) are also eligible for support through the Ticket to Work program. [43]

The Ticket to Work Program is an initiative of the US Social Security System. Participation in the scheme is voluntary. Those who choose to participate, are provided with a 'ticket', or voucher to obtain:

.vocational rehabilitation, employment or other support services from an approved provider of their choice to help them go to work and achieve their employment goals. [44]

The service provider is entitled to receive payments, according to the achievement of milestones, for a period up to 60 months if the person with disability becomes employed at a wage level that means they no longer require income support or disability benefits.

It appears that the program was introduced to encourage SSI and SSDI recipients to use services from Vocational Rehabilitation agencies and increase their chances of successfully returning to, or entering, work.

A recent review of the Ticket to Work program by the United States Government Accountability Office to two Congressional Committees (Committee on Finance and Committee on Ways and Means) found that the program had not be very successful. [45] The report suggested a variety of areas for improvement, including:

• reform of the payment system
• reduction of the administrative burden for service providers
• strategies to improve limited participation in the program by people with disability
• a national marketing campaign.

The US Social Security Administration recently recommended a series of changes to the Ticket to Work program to address the Government Accountability Office recommendations. [46] It is believed that these changes will be implemented in 2006 and improve the viability of the program.

8.5.4 Plan for Achieving Self Support (PASS)

The Plan for Achieving Self Support (PASS) is another Social Security System initiative designed to assist people with disability receiving SSI or SSDI to return to work. [47] This program seeks to assist people to 'set aside money and/or things he or she owns to pay for items or services needed to achieve a specific work goal':

How does PASS work?

Applicant finds out what training, items or services needed to reach work goal.

Can include supplies to start business, school expenses, equipment and tools, transportation and uniform requests.

Applicant finds out how much these items and services will cost.

PASS can help person save to pay these costs. PASS lets person set aside money for installment payments as well as a down payment for things like a vehicle, wheelchair or computer if needed to reach work goal. [48]

8.5.5 Workplace modifications

There does not appear to be any specific direct payment program to assist employers with the cost of making workplace accommodations, despite the legal requirement to do so under the Americans with Disabilities Act 1990 (ADA). [49] It seems that funding for accommodations is normally negotiated between the employer, the Vocational Rehabilitation Program and the person with disability to produce a list of low cost recommendations that the employer can implement.

However, tax incentive schemes are available to assist businesses with costs incurred with certain workplace modifications. For example, the Disabled Access Credit Scheme assists small businesses to cover expenditures for:

1.Removing architectural, communication, physical or transportation barriers which prevent a business from being accessible to, or usable by, individuals with disabilities;

2. Providing qualified interpreters or other effective methods of making aurally delivered materials available to individuals with hearing impairments;

3.Providing qualified readers, taped texts, and other effective methods of making visually delivered materials available to individuals with visual impairments;

4. Acquiring or modifying equipment or devices for individuals with disabilities; and

5. Providing other similar services, modifications, materials or equipment. [50]

Deductions are also available for businesses that make a facility or public transportation vehicle more accessible. [51]

8.6 How does the United Kingdom seek to provide supports in the workplace?

The employment services model in the United Kingdom has several similarities with the system in Australia.

Broadly speaking, across the United Kingdom, there are two types of employment services: one to assist people with disability with 'no' or 'low' support needs (Job Centre Plus or Job Centre Personal Advisers) and another for people who require specialist or long term support (Disability Employment Advisers). These services provide a range of advice, information and supports to people with disability and employers prior to, and during, employment.

In addition, the Access to Work program provides funding and support to employees and their employers for a maximum of three years, whereupon the need for support must be reviewed. Funding is not capped and appears to be more generous than in Australia.

Separate schemes - The New Deal for People with Disability and Pathways to Work - are available to assist people on incapacity benefits, disability allowances or income support to prepare for and find work. Participation in these schemes is voluntary.

Like Australia, new 'welfare to work' measures are being introduced in the United Kingdom with a view to assisting people on incapacity benefits to enter employment.

A general description of the programs and supports available to people with disability to enter and remain in open employment in the United Kingdom follows.

8.6.1 Job Centre Plus, Job Centre Personal Advisers and Disability Employment Advisers

As in Australia, people with different support needs are directed to different types of employment services.

People with disability who require 'no support' or 'low levels of support' are directed to Job Centre Plus or Job Centre personal advisers (equivalent to Job Network in Australia). Job Centre Plus or Job Centre Personal Advisers give advice and support to people whose disability or health condition is not causing particular difficulties in finding or keeping a job. [52]

People with disability who require specialist or longer-term support are directed to Disability Employment Advisers (equivalent to Australia's Disability Open Employment Services).

Disability Employment Advisers provide specialist support to 'people who are recently disabled or those whose disability or heath condition has deteriorated and who need employment advice'. They also provide support to people with disability who 'are having difficulty in getting a job because of their disability, and also to employed people who are concerned about losing their job because of a disability'. [53]

Disability Employment Advisers can provide a range of support, advice and information to people with disability and employers including:

• Employment Assessment, which can help you find out how your disability or health condition affects the type of work or training you want to do
• referral to a period of Work Preparation , which is an individually tailored programme designed to help disabled people, or those with health conditions, return to work following a long period of sickness or unemployment
• job seeking advice and support
• training advice and information
• advice and information on keeping your job
• information on the Job Introduction Scheme which pays a grant to your employer for the first few weeks in a job, helping to pay towards wages or other employment costs
• information on WORKSTEP which provides supported job opportunities for disabled people facing more complex employment barriers
• information on the Disability Symbol which enables employers to show their commitment to the employment , training, retention and career development of disabled people
• details of the New Deal for Disabled People to help sick or disabled people on health related benefits who want to work, find work. It is voluntary and you decide whether or not you want to join it. [54]

People with disability can seek assistance from Job Centre Plus, Job Centre Personal Advisers or Disability Employment Advisers providers prior to finding a job, at commencement of employment or during employment.

Employees or job seekers with disability do not have to be, or have been, in receipt of a pension or income support to qualify for assistance. Additionally, people with disability can obtain ongoing support from these employment services despite the fact that they found a job independently of those services.

8.6.2 Access to Work scheme

An employer who is considering recruiting an employee with disability, or who already has an employee with disability, can arrange to meet an Access to Work Adviser to discuss assistance with any additional costs incurred as a result of disability.

Financial assistance through Access to Work (AtW) is provided in a number of ways, including:

• communicator support at interview (CSI) which meets the full cost of hiring an interpreter to remove barriers to communication at interview;
• a support worker, which allows the applicant to use the services of a helper. Types of support might include reading to a visually impaired person, communicating for a hearing impaired person via sign language (other than at interview which is covered by CSI), providing specialist coaching for a person with learning difficulties or helping a person with care needs;
• special aids equipment to help a disabled person function in the work place;
• adaptation to premises or to existing equipment;
• help with the additional costs of travel to, or in, work for people who are unable to use public transport. [55]

Support solutions are usually negotiated between the Access to Work Adviser, the employer and the person with disability. Generally the employer arranges to purchase the agreed support and claims the expenses back through a grant from Access to Work. [56] Reimbursement rates depend on the timeframe relative to the commencement date of employment and the type of support. For example:

If you take on an unemployed person or have recruited someone less than six weeks ago, the grant is up to 100% of the approved costs approved by the AtW Adviser.

Whatever the employment status of the applicant, AtW pays up to 100% of the approved costs of help with

• support workers and fares to work; and
• communicator support at interview.

AtW also pays additional travel costs incurred due to a disability.

For people working for an employer, and who have been in the job for six weeks or more and need special equipment or adaptations to premises, AtW pays a proportion of the costs of support, as follows:

Approved Cost Maximum Access to Work contribution

Less than 300 Nil

Between 300 and 10,000 80% of the cost over 300

Over 10,000 80% of the cost between 300 and 10,000

and 100% of the cost over 10,000. [57]

Support is provided for a maximum of three years under this scheme. If further support is required, the Access to Work Business Centre conducts a review and 'may provide help for a further period if your employee continues to be eligible for help under the rules that then apply'. [58]

A 2002 review of the Access to Work program suggested that the program was working well. People with disability and employers made the following comments:

• the provision of a Support Worker can be essential to taking up a job
• Travel to Work provision is also essential in taking up a job and very important in sustaining employment
• alterations to premises made a direct difference for people 'where medical condition put the job at risk and where environmental barriers made taking up a job completely impossible'
• funding for aids and equipment was an important factor in situations where the employer was uncertain about paying. [59]

8.6.3 Job Introduction Scheme

The Job Introduction Scheme provides 75 per week for six weeks to assist an employer with any additional training or other costs associated with a new employee's disability. [60] The funding may be extended to 13 weeks. The employer must pay the employee the going rate for the job.

This scheme is specifically targeted to circumstances where the employee or employer has some concerns about the job or work environment:

It's not always easy to be sure if a particular job or work environment will suit you because of your disability. You are keen to do the job, but may have some practical concerns about your disability that make you hesitant about accepting a job.

JIS can help with these concerns by paying a weekly grant to your employer for the first few weeks that you are employed in the job to help towards your wages or other employment costs, for example additional training. [61]

It would appear that the scheme operates as an incentive to employers. An application for the Job Introduction Scheme must be made before employment has commenced.

8.6.4 New Deal for People with Disability

The New Deal for People with Disability was part of a suite of 'New Deal' programs introduced to assist targeted groups of people into employment in the United Kingdom. [62] The target groups include young people, long-term unemployed, single parents and people receiving disability benefits.

While the framework for the programs targeted at each group were similar, budget and resource allocations varied according to whether the programs required mandatory or voluntary participation. Unfortunately the New Deal for People with Disability was a voluntary participation program and fewer resources were directed to this program.

It seems that the key innovation of New Deal for People with Disability was the introduction of front line New Deal Personal Advisers. These advisers were intended to 'personalise' employment assistance and work with claimants to identify and tackle employment barriers. [63] However, over time, New Deal Personal Advisers have struggled to place people with complex problems into employment. [64] The need for greater investment in this program was acknowledged in a recent report by the Department for Work and Pensions. [65]

8.6.5 The Five Year Strategy and Pathways to Work

The Department for Work and Pensions Five Year Strategy 2005 was released in early 2005 and contains many similarities with recent welfare-to-work reforms introduced in Australia. [66] For example, its primary focus is to encourage people with disability, with a specified future capacity to work, to move off welfare and into the workplace.

However, the strategy in the United Kingdom appears to have taken more of a whole-of-government approach to support this process. For example, it appears to have engaged general practitioners and the National Health Service and seeks to address occupational health and safety concerns, societal attitudes, and the built environment. [67]

A centrepiece of the Department for Work and Pensions reforms is to expand a recent pilot program called Pathways to Work. [68] The program, which is said to be showing promising results, aims to assist people on incapacity benefits to move into the workforce by focussing on early intervention and offering much greater support to overcome the barriers to entering the workforce.

In addition to reforming the welfare payments, the scheme to move people off incapacity benefits involves a full assessment of potential future work capacity and the provision of support. As in Australia, concerns have been expressed about the reduction in welfare benefit and the 'increased conditionality targeted on those on disability benefits'. [69]

8.7 Comments in the Second Round Submissions to the Inquiry

In the Second Round Submissions, the Association of Competitive Employment noted its support for 'exploring best practice and alternative models in order to streamline service delivery'. [70] Blind Citizens Australia also endorsed this approach:

.with an emphasis on the 'whole-of-government' approach to supporting people with disabilities find employment. Systemic barriers to employment including education, transport and access to premises must be tackled by government in harmony with all employment initiatives. [71]

The National Ethnic Disability Alliance is also of the view that a whole-of-government approach is the most appropriate way forward:

A Whole of Government Approach is required to address the issue of equity. Adopting a Whole of Government Approach Government should work towards ensuring home care services, transport services, and access to the built environment are improved as each impacts on a person with disability's ability to find and maintain employment. [72]

Vision Australia does not believe that streamlined systems for providing wage subsidies and financial incentives will, on its own, solve the fundamental problem of access to information technology. [73]

The City of Melbourne Disability Advisory Committee warns against streamlining to the point of reducing the availability of services:

This recommendation is supported, however, we wish to state concerns in relation to rationalisation of services as a result of streamlining or reductions in service provision. It is further recommended that an inter-governmental committee be established to oversee this and provide feedback to the research process and recommended outcomes. [74]

8.8 Issues for Australia to consider in developing alternative approaches to providing ongoing supports and incentives

The Inquiry's research into support models operating in New Zealand, Canada, the United States and the United Kingdom demonstrates alternative approaches to encouraging participation, employment and retention of people with disability in the open workplace. The Inquiry is of the view that the New Zealand and Canadian approaches offer the most interesting alternatives.

The Job Support program in New Zealand appears to enable people with disability to access job support on an as-needed basis, and for as long as support is required. The New Zealand model also appears to provide employers with the reassurance that support will be available to their employees - at no cost - if and when required.

The Inquiry considers these features to be essential to a support system which aims to:

• encourage people with disability to enter the open workplace
• assist people with disability to retain and progress within their jobs.

However there will need to be further research on the effectiveness of this model in increasing participation and employment. Further, it is unclear whether NZ$16,900 per annum does in fact cover all the necessary supports once any other work and income grants or subsidies are deducted. This is especially the case for those people who may require substantial expenditure on workplace accommodations at the outset, but who have lower costs in the long run.

Other New Zealand strategies for consideration in the Australian context include:

• the public sector employment program (the Mainstream Program) which assists people with high supports needs on disability benefits into the workplace and
• the education and training budget (Training Support).

In Canada, The Opportunities Fund is also worthy of further consideration in the Australian environment. The Inquiry is particularly attracted to an approach that seeks to foster innovation by employers, service providers and other organisations seeking to assist unemployed people with disability to enter or re-enter the workforce.

8.9 Recommendation regarding international approaches to providing supports

The Inquiry has amended Interim Recommendation 4 to direct further research into various programs in New Zealand and Canada, with a view to considering their adaptation in Australia.

Recommendation 4: International approaches to providing supports and subsidies

The Inquiry recommends further research into the following international support and subsidy programs (including collection of any program evaluation reports, cost analyses and changes in participation and employment rates):

(a) the Job Support, Training Support, Self Start and Mainstream programs in New Zealand; and

(b) the Opportunities Fund for Persons with Disabilities in Canada

with a view to improving the program of support, assistance and incentives in Australia.

 

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