A Call To Action A Report on Increasing the Employment of People With Disabilities in the Federal Sector Based on the First National Symposium -- October 29, 1991 "Access 2000 and Career America Joining the Mainstream" Issued By: United States United States President's United States Office of Equal Committee on Department of Personnel Employment Employment of Education Management Opportunity People with Commission Disabilities July 1992 A CALL TO ACTION ACCESS 2000 In the same spirit of cooperation that was demonstrated in passing the Americans with Disabilities Act on July 26, 1990, the U.S. Office of Personnel Management came together with the U.S. Equal Employment Opportunity Commission, the President's Committee on the Employment of People with Disabilities, and the U.S. Department of Education to sponsor the Access 2000 Symposium on October 29, 1991. It was a forum that more closely examined what must be done now and in the fuwm to increase the number of people with disabilities employed in the Federal Government. As the doors of opportunity open for underrepresented Americans, it is our desire to meet the challenge issued by the President that Federal agencies hire more people with disabilities. We agree it is the responsibility of the Federal sector to be a leader in what it is asking of the private sector. Passive, reactive recruiting programs must be replaced with aggressive strategies in order to meet our goal. The Access 2000 Symposium was a beginning. We are following this with A CALL TO ACTION, which is before you. The resulting vision for the future links ideas and themes that were developed at the symposium. The goal is to integrate and incorporate the Federal Government's employment and training programs for people with disabilities into the human resource management plans of each agency. Honorable Douglas A. Brook Honorable Justin Dart Acting Director Chairman Office of Personnel Management President's Committee on the Employment of People with Disabilities Honorable Evan Kemp, Jr. Honorable Lamar Alexander Chairman Secretary Equal Employment Department of Education Opportunity Commission ACCESS 2000 SYMPOSIUM TABLE OF CONTENTS EXECUTIVE SUMMARY SYNOPSIS A CALL TO ACTION: A Report on Increasing the Employment of People with Disabilities in the Federal Sector I. Recruiting, Employment, and Retention II. Human Resource Development III. Partnerships APPENDIX: Co-Host, Panel of Experts and Closing Remarks ACCESS 2000 SYMPOSIUM EXECUTIVE SUMMARY In July 1991, on the first anniversary of the Americans with Disabilities Act of 1990 (ADA), the President of the United States issued a memo challenging Federal agencies to hire more people with disabilities. He spoke about the Nation's commitment to the ADA and the Federal Government's responsibility to be a leader in what it is asking of the private sector. He asked Federal agencies to share with the private sector the lessons in implementing the 1973 Rehabilitation Act in the Federal Government. Passage of the ADA has heightened the awareness of Federal managers, supervisors, and employees on the issues of employment, training, and advancing people with disabilities. The Access 2000 symposium laid the groundwork for a new direction in employment, training, and accommodating people with disabilities. Three key issues were identified, all of which include an emphasis on reasonable accommodations. These key issues are: 1. Ensuring compliance by Federal agencies with regulations for the employment of people with disabilities. By utilizing the exposure created by ADA, facilitate a renewed effort in awareness and education for managers and supervisors to ensure compliance. 2. Hiring qualified applicants with disabilities for Federal employment. Develop recruitment and employment strategies designed to attract and retain people with disabilities in the Federal Government. 3. Advancing people with disabilities employed in the Federal Government. Educate and assist managers and supervisors regarding their responsibility for promoting, developing, and expanding employment opportunties for people with disabilities. One strategy recommended to accomplish these key issues is a centralized reasonable accommodation and employment unit. As a minimum, this unit would be responsible for establishing: a national automated referral system; a Federal hotline to dispense accurate information of the legal requirements of employment, accommodations, accessible transportation, etc.; and technical assistance in the arms of recruiting, employment, training, and advancement. The resulting vision for the future links ideas and themes that were developed at the symposium. They have been organized in a way believed most beneficial to individuals responsible for hiring, retaining, developing, and advancing people with disabilities and will be used as a springboard in the development of a strategic plan. As you read A CALL TO ACTION, remember the words of Chairman Justin Dart, "to do for Americans with disabilities what is done for all other employees." I. RECRUITING, EMPLOYMENT, AND RETENTION RECRUITING Introduction OPM's Director Newman pointed out in her opening remarks at the Access 2000 Symposium that there are only pockets of success in the Federal hiring of people with disabilities. In 1990, 6 percent of Federal employees had disabilities and only 1 percent had severe disabilities. Too few people with disabilities are employed in the Federal Government and gaining employment in the Federal system was likened to an "iron curtain." Recruiting is an essential first step. In an effort to achieve the goal of more equitable employment, the focus was directed to the following action items. * Educate organizations and individuals who provide information concerning Federal hiring processes to people with disabilities; use an approach similar to the training OPM provides college placement officials. * Increase the knowledge of Federal agency recruiting staffs on all recruitment sources of people with disabilities. Also, increase the knowledge of the community of people with disabilities regarding qualifications needed for Federal jobs. * Establish a hotline staffed by specialists who can provide expert advice on the use of special appointing authorities for employment of people with severe disabilities and for readers, interpreters, and personal assistants upon whom some of these people depend. * Establish and maintain on-site recruitment efforts at high schools, colleges and universities, along with organizations serving people with disabilities. Make people with disabilities aware of job opportunities in the Federal Government and conduct on-site interviews with qualified candidates. * Ensure agency recruitment plans include specific college and university student service organizations for students with disabilities. * Develop focused outreach programs for minorities with disabilities. * Under the auspices of OPM, organize, and conduct jointly sponsored and funded area-wide job fairs for people with disabilities. * Develop targeted brochures and other materials about employment opportunities in the Federal sector. * Distribute accurate and timely job announcements on a regular basis to groups and organizations for people with disabilities. * Implement recruitment and training seminars for high school and college students with disabilities. * Promote a model Regional Recruitment Center, including a demonstration of flexi-place, telecommuting and how such actions have a positive affect on people with disabilities. This center would also ensure that vacancy announcements are receiving attention. * Build a national network that provides employers with names of applicants with disabilities. Federal agencies could access a national application pool utilizing today's modern technological tools (i.e., electronic bulletin board). I. RECRUITING, EMPLOYMENT, AND RETENTION EMPLOYMENT Introduction Agencies need to go beyond recruiting to the actual employment of people with disabilities. Managers and supervisors have a responsibility to be prepared for the appointment of people with disabilities and to be familiar with the programs in place. Management must also make recommendations for program improvement, including policy changes as appropriate. * Ensure that reasonable accommodation policy complies with the law. * Develop policies and procedures to spread the costs of accommodation. In larger agencies this can be done by setting pools at higher levels in the budgeting structure. In smaller agencies the setting of interagency contributory pools for accommodation costs may be a solution. * Utilize the exposure created by the ADA to increase the employment of people with disabilities. Ensure access to upward mobility programs and involvement at all levels so this community is adequately represented. * Utilize existing programs to "pipeline qualified people with disabilities into the Federal Government using methods such as the selective placement, summer employment, cooperative education or other student employment programs. Increase emphasis on using the student employment programs by publicizing ceiling exemptions provided by the Office of Management and Budget for such appointments. * Expedite and expand the certification process for people with severe disabilities to ensure that all registered applicants have the required certification prior to adding them to the referral system. For example, agencies would know up-front that any recent graduate listed in an automated job bank could be hired via the severe disabilities appointment authority, or those who qualify could be hired under the outstanding scholar provision. * Encourage employment of people with disabilities by carrying readers, interpreters, and personal assistants against an agency-wide ceiling rather than organizational ceilings. * Amend Full-Time Equivalent (FTE) regulations to allow easier waiver of FTE restrictions. * Ensure that pipeline and succession plans for Senior Executive Service (SES) selection include qualified people with targeted disabilities, particularly in the next few years when substantial SES turnover is anticipated. * Establish viable intraagency working relationships between employees responsible for employment compliance. * Improve the method of developing internal placement and promotion statistics. I. RECRUITING, EMPLOYMENT, AND RETENTION RETENTION Introduction After the recruiting and employment process is complete, emphasis must be placed on retention of people with disabilities. There is a need to examine reasonable accommodation, the education of managers, supervisors, and employees, and the best approach to human resource development for all concerned, particularly people with disabilities. With respect to access and accommodation the question is no longer what to do, but how to do it. In order to achieve these goals, the focus was directed to the following action items. * Establish a Central Compliance Coordination Unit to facilitate the efforts necessary to achieve the legal requirements regarding employment and access for people with disabilities in the Federal Government. * Establish a central resource to make the full range of accommodations for various disabilities readily available in the Federal workplace. * Assure that all training programs are accessible to people with disabilities. Conduct meetings and training in accessible facilities. * Demonstrate how accommodations for people with severe disabilities can be incorporated in existing career development and training programs. This should include use of readers, interpreters, and personal assistants in SES development programs, supervisory training programs, the Presidential Management Internship Program, student programs, and apprenticeship programs for trades and crafts. * Improve transportation for people with disabilities to attend meetings, conferences, and training. other issues include communication, electronic access, and the full range-of individual accommodations such as job restructuring and provision of readers, interpreters, and personal assistants. On a collaborative basis, develop strategies to pool resources between Federal agencies. * Prepare the workplace (e.g., workforce analysis, job modification, removal of structural barriers) to provide access and job opportunities for people with disabilities and continue to educate applicants on these efforts. II. HUMAN RESOURCE DEVELOPMENT Introduction Training and development of employees with disabilities should be no different than with any other employee. As technology and work patterns change, all employees should be provided the training necessary to accomplish the work assigned. We no longer have the luxury of thinking in traditional ways. The changing workforce and human resource development needs require innovative thinking to got the job done in ways it may never before have been done. The focus was directed to the following action items. * Educate managers, supervisors and employees regarding the Rehabilitation Act of 1973, as amended. * Build the commitment to train both employees with and without disabilities regarding issues affecting people with disabilities. * Concentrate on the career development of people with disabilities, in addition to their recruiting and employment. * Initiate a broad set of strategies which will incorporate a combination of approaches including internal capacity building, recruiting, mobility, and executive leadership. * Integrate people with targeted disabilities into existing training and development programs for white-collar and blue- collar personnel, in particular SES Development Programs, Supervisory Training Programs, the Presidential Management Internship Program, student programs, and Federal agency apprenticeship programs for trades and crafts. * Ensure opportunities exist to move people with disabilities into higher level positions where they can affect hiring and employee development patterns in large segments of their organizations. * Involve people with disabilities in the planning process; plan up-front to make training materials and accommodations accessible; and train the trainer. * Create additional training and developmental efforts targeted specifically toward people with disabilities by incorporating innovative accommodations and special training techniques. Examples include use of special equipment and readers, interpreters, and personal assistants in supervisory training for employees who are deaf or blind or have other disabilities. * Establish an Executive Leadership Program for people with disabilities. * Sensitize managers, supervisors, and employees to work with people with disabilities and provide practical advice as to the etiquette that applies. By doing so, much of the discomfort that inhibits managers from hiring people with disabilities may be alleviated. * Train managers and supervisors on the issues of recruitment and placement, approving or disapproving reasonable accommodation, and perception. * Include disability awareness training in all supervisory and managerial training courses. * Conduct one-on-one meetings with hiring managers to determine specific job requirements and to identify and remove real or perceived barriers to the employment of people with disabilities. * Develop strategies and methods to educate all employees regarding the need to change attitudes. * Make annual assessments of the upward movement of employees with disabilities to determine training needs and assist in developing career goals. * Establish mentoring programs to advise and guide people with disabilities as they enter and progress in their careers. III. PARTNERSHIPS Introduction Success requires cooperation. In this particular case, Federal agencies and service organizations for people with disabilities need to enter into partnerships that are designed.to facilitate the hiring of people with disabilities. These partnerships should use their resources to set up job banks that match an individual's skills and abilities with Federal agency needs. Both sides must examine where they have been in the past and what can be accomplished together, in the future. * Successful programs and techniques regarding employment, training, and advancing people with disabilities should be made available to share between Federal, State, and local governments and the private sector. * Establish close working relationships with rehabilitation agencies, Centers for Independent Living, Projects with Industry and others involved in the training and development of people with disabilities, to ensure that skills development programs are appropriate to meet the skills required for jobs in the Federal Government. Plan to initiate and promote partnerships between Federal agencies and the community of people with disabilities. * Develop a closer link between agency policy and employee groups advocating for people with disabilities. * Create a formal partnership structure with national disability groups. * Foster cooperative efforts between agencies and organizations serving people with disabilities by centralizing the function of publicizing agency needs, serving as the central point of contact, and making subsequent applications available to agencies. * Facilitate Federal agencies' participation in supported work programs that link local, educational, Federal, and vocational rehabilitation agencies. * Develop strategies to increase opportunities for people with disabilities at the elementary, middle, high school, and college levels to ensure that a pool of applicants is developed to meet the future labor market needs of employers in the public and private sector. III. PARTNERS * Provide information to career counselors and curriculum developers regarding types of jobs available (currently and projected) and qualifications needed for those jobs. Provide this information to educational institutions, vocational rehabilitation agencies, the Department of Veterans Affairs, Centers for Independent Living and Projects with Industry. * Seek to have all Federal agencies establish Disability Coordinator positions. * Form an executive advisory committee similar to the Hispanic and Historically Black Colleges and Universities (HBCU's) efforts formed in partnership with Federal agencies and other professional organizations now in effect. Through the partnership efforts, establish a national recruitment center with OPM as the primary lead. APPENDIX CO-HOSTS, PANEL OF EXPERTS and CLOSING RENRRXS Honorable Constance Berry Newman Office of Personnel Management Honorable Evan Kemp, Jr. Equal Employment Opportunity Commission Honorable Justin Dart President's Committee on the Employment of People with Disabilities Honorable Robert Davila Department of Education Panel of Experts Remarks Moderator: Susan Meisinger The Society for Human Resource Management Panel: George Covington Office of the Vice President Ronald Drach Disabled American Veterans Peter Eide U.S. Chamber of Commerce Jack Gannon Gallaudet University Paul Hearne The Dole Foundation Gordon Mansfield Department of Housing and Urban Development Sharon Mistler Endependence Center of Northern Virginia Sylvia Walker Howard University Closing Remarks Honorable Bill R. Phillips Office of Personnel Management Comments of the Co-Host Panel The Honorable Constance Berry Newman Director, OPM Today is an historic day for both the Federal Government and for people with disabilities. We gather together as four agencies--OPM, EEOC, the President's Committee, and the Department of Education--to make a difference. Our purpose is to move beyond rhetoric and to be honest about the challenges. As of December 31, 1990, only 6 percent of the Federal workforce employees had disabilities; far fewer, only 1 percent, had severe disabilities. We have, then, only pockets of success. Our purpose will be to ensure that the Federal Government reverses these trends and becomes a model employer for employees with disabilities. At present, not enough is being done by Federal agencies to employ people with disabilities. For decades, we have talked about equal opportunity requirements. Yet, in spite of our talk, the largest underemployed minority group in America are Americans with disabilities. We need people with disabilities; we need to make use of all of our resources. Each of us present at Access 2000 has the potential to make a difference. Clearly, today's workplace has a new set of requirements. If employers don't include those with disabilities, we are not going to become the great workforce that we have the potential to become. Our intention today is to identify barriers that prevent hiring those with disabilities, whether those barriers are attitudes or behaviors. Secondly, when this day is through, we will have identified goals and recommendations necessary for the development of a strategic plan. These goals and recommendations will become the mandates for all of us. Comments of the Co-Host Panel - continued The Honorable Evan Kemp, Jr. Chairman, EEOC Eighteen years after the passage of the Rehabilitation Act of 1973, we have accomplished very little. Why haven't we done better? For one thing, the media portrays people with disabilities as either "pathetic or heroic." Do we as managers want to hire people portrayed in this way? These portrayals are distorted perceptions and perceptions play an important role in the choices we make. Perceptions also cause us to focus on disabilities rather than on abilities. We should not hold people with disabilities to lesser standards; we should hold them to equal standards. Secondly, when we focus on disabilities, we focus on the wrong thing. Even when we do it in an admiring way, applauding some accomplishment that seems incredible, we are saying, "That's pretty good, for a person with a disability." As many of those present know, I am opposed to giving special awards to people with disabilities. I am not alone in that opposition. We think that the "Disabled Employee of the Year" awards send a dangerous message. Again, the message is, "That's pretty good, for a person with a disability." The fact is that these awards were originated many years ago by well-meaning individuals who were responding paternalistically to those with disabilities. That paternalism has been the greatest barrier to equality that we have faced. The awards themselves prevent us from achieving the equality that is the President's goal and the goal of the disabled rights' movement. Further, Federal managers who hear such messages are being told that employees with disabilities who do good work are heroic, or, at least, exceptional. Conversely, they may assume that most employees with disabilities, not being heroic, will not perform at a very high level. Additionally, managers may assume that their assessment is correct because there is a lesser standard for people with disabilities. However, that assessment is incorrect. In fact, people with disabilities must strive for the same excellence and be held just as accountable as all other Federal employees. The ADA is truly revolutionary: It says no more discrimination and it addresses the "old paternalism." The ADA forges the way for us to establish programs for people with disabilities; it affords us the opportunity to change inaccurate perceptions of Americans with disabilities. That should be our goal. Comments of the Co-Host Panel - continued The Honorable Justin Dart Chairman, PCEPD Not only is ADA a landmark, but also, it is essential for both equal employment opportunities and for full employment of people with disabilities. ADA is "a promise to be kept." Keeping the promise will be visible as we move people with disabilities into the mainstream of the workplace. Keeping the promise must include the concept of empowerment--an aggressive program of empowerment. Our top priority is that we have been charged by the President to create a positive Federal employment environment; our top priority must also be to showcase the Federal Government as an exemplary model. In addition to an aggressive national program of empowerment with the Federal workplace serving as an exemplary model, I suggest that we concern ourselves with meeting the needs of people with disabilities in the following three areas: * We need offices with systemized promotion procedures and offices with flexible work hours and flexible work environments; * We need to support employees with disabilities more adequately by providing such things as.on-the-job readers when necessary, and by providing state-of-the-art technology as required; and * We need to be more sensitive to those with whom we work. These issues are about empowerment; they are not about quotas. They are about full and equal employment. Further, we must motivate people toward passionate insistence for Federal employees with disabilities. We must motivate people to do whatever it takes to overcome barriers to empowerment. We must do for Americans with disabilities what we do for all other employees, and we can't afford to fail. Comments of the Co-Host Panel - continued The Honorable Robert Davila Assistant secretary Special Education and Rehabilitation Services Department of Education What we do today will have a lasting impact for years to come. We have much to learn from each other. Even though the Department of Education ranks first in the hiring of persons with disabilities, we realize that we have a long way to go. Our efforts are still insufficient. Today, therefore, we are looking for a process for change. That process for change that we are seeking depends upon all Americans, just as all Americans depend upon us to set the example. At present, we are committed to set the example in three specific ways. First, we are working toward improving employment opportunities, particularly for workers with disabilities. Secondly, we are working toward full implementation of AMERICA 2000, a long-term strategy that will ensure excellence in our schools. That same kind of aggressive program must become our goal today as we recognize the great contributions that Americans with disabilities can bring to the workplace. Third, we are concerned with implementing Skill Clinics, whereby employees can readily discover how their present skills compare with those they would like to have, and where they can acquire the skills and knowledge they need. Such Skill Clinics are particularly useful for American workers with disabilities. we are concerned with providing opportunities for Americans with disabilities because they have much to offer. The timing is perfect--full scale implementation of ADA should soon occur all across the Nation. Further, it is incumbent upon all of us to set an example for the rest of the Nation, and by setting an example for the private sector. We have a rare opportunity today to do just that. Panel of Experts Question: Who can we hire? Where do we find people with disabilities? Answer: Talk to people and organizations who are linked to those with disabilities. Most of us on the panel are not linked to receive job bulletins from agencies, yet we have lists of available, qualified applicants with disabilities containing more than 20,000 names. The VA system's computer can notify veterans nationwide. Another avenue is found on college campuses in the Disabilities Issues Offices. Question: How important is the workplace atmosphere? Answer: The "opening the glass door" type of unfriendly environment is traumatic. Be aware, too, of where many work-related activities are held--on the second floor--which is frequently not accessible to people with disabilities. We need to network with you about such issues, something we have not had the opportunity to do in the past. Another issue deals with business cards. How many audience members have business cards with TDD numbers listed? If you don't, many people with disabilities cannot enter your environment. They have no way of reaching you. A final issue--people with disabilities need programmatic access as well as physical access. They have to not only get in but also use the facilities, whether that is a cafeteria, a fitness center, or any other type of facility. Question: How do you broach the subject of what kind of "reasonable accommodation" is necessary? Answer: Let's hire on credentials first before we hire or interview based on "reasonable accommodation." Also, learn from your existing employees with disabilities. Just ask. Ask the person who has the disability before spending money on things people don't need. Don't assume the worst. Also, the Job Accommodation Network (JAN) can tell you what is needed. In addition, we need to dispel the myth that it costs a great deal of money to hire and make special accommodations. Look at reasonable changes. Look at individual differences in a disability--most "reasonable accommodations" are, in fact, not costly. Question: What about a situation where someone asks for "reasonable accommodation" and you want to verify the validity of the request? Answer: Vocational Rehabilitation at the State level can assist you. The Social Services Administration can also assist. They have, for example, dollar amounts specifically earmarked for college students who need assistance with assisted devices. Network with the community; we can help you find the dollars--there is assistance available. Article 501 of the 1973 Rehabilitation Act holds the Federal Government to a standard: Don't make.the assumption that the accommodation will cost a great deal; and, learn agency regulations to see how you can get the accommodation in the most expedient, cost-effective way. Closing Remarks Mr. Bill R. Phillips Deputy Director, OPM I would like to express my gratitude for the time and effort devoted to this first in a series of historic conferences. The Federal Government should be the model employer concerning accessibility for people with disabilities, and we must be the model in recruitment, training, and retention. Today, we heard about the need for commitment leadership, sensitivity, and aggressive follow-through to ensure implementation of the President's directive. President Bush has said that we must reach out and include all groups, including people with disabilities, and we must use their talents by bringing them into the mainstream. The President has taken the leadership role. It is up to us to use that leverage to get a commitment, not only from top management, but also from all levels in our workforce. As expressed earlier today, America looks for the Federal Government, as the Nation's largest employer, to set the pace. In the area of sensitivity, we need to improve; we have a long way to go. We need to seek out what needs to be done to make the workplace accessible, both physically and psychologically. Further, we need to be aware that many different types of employees give us the opportunity to take advantage of wonderful yet diverse resources. Still, we must be aware that many barriers for people with disabilities do exist. We must take care that we do not patronize people with disabilities, but rather that we empower them. To empower people with disabilities will require change in our system. Perhaps the most significant change involves becoming very serious about training so that we develop all Federal employees, and employees with disabilities in particular, to their fullest potential. Training can provide the avenue to a rewarding career, allowing employees to reach their peak. To be successful, we must understand both the legal and the human side of mainstreaming people with disabilities into the workplace. Yet, having the best intentions will still not accomplish the task. We need to follow through, and we need to network to bring our diversity together. One suggestion for beginning the "pulling together" is to take advantage of the Annual Perspectives on Employment of People with Disabilities. Those in managerial and supervisory positions can attend and learn more. Those who have attended Access 2000 will be asked to submit an honest critique of our proceedings today. In addition, the four agencies represented today, the Office of Personnel Management, the President's Committee on Employment of People with Disabilities, the Equal Employment Opportunity Commission, and the Department of Education will begin work on a strategic report designed to improve recruitment, training, and retention of qualified persons with disabilities. Even so, we need to remember that today's meeting is not the action we need. It is just the beginning. The President has empowered us. Let's go do what needs to be done