Introduction
by Ellen Condon

Poor post-school outcomes for students with disabilities have been a continual cause for concern for educators and policy makers since the 1980s. Two thirds of adults with disabilities between the ages of 16 and 64 are unemployed (Harris, 2000), and less than 8% of young persons with disabilities are fully employed or enrolled in post-secondary education, have active social lives, or are living independently in their communities (Hughes, et al., 1997). A 1999 report by the Office of Inspector General for the U.S. Department of Health and Human Services linked poor transition outcomes for youth with disabilities to the lack of employment preparation, transition planning, support services, and linkages to adult agencies prior to high school exit.

Forming linkages with agencies that provide supports and services to adults, and ensuring a smooth transition from school supports to adult supports is becoming increasingly difficult. Waiting lists for adult services average five years nationally (Wehman, 2001). Even if schools provide exemplary vocational preparation and transition planning for youth with disabilities, additional supports that they may need for employment once they exit school may not exist or be available for a long time.

One resource that may help bridge the gap between school and post school supports is Social Security Work Incentives. The Social Security Work Incentive Program, Plan for Achieving Self-Support (PASS), which allows Supplemental Security Income (SSI) recipients to set aside income and resources to fund vocational services and supports, has been in place since 1974. However, the number of individuals accessing this program nationally is minimal. According to the March 2003 Quarterly Report from Social Security: SSI Disabled Recipients Who Work, 1,762 PASS plans are currently active in the United States, but only three PASS plans are in active status for individuals under the age of 18. There are only 80 active PASS plans for young adults ages 18-21. According to the Social Security Administration (SSA), in 1999, 36,000 people aged 18-24 were receiving SSI and Social Security Disability Insurance (SSDI) benefits concurrently; potentially all 36,000 were eligible for PASS plans. According to the SSA’s 2001 statistical report, on average, only 0.4 % of working age (16-64) SSA recipients utilized the PASS program, Impairment Related Work Incentive (IRWE) program, or Blind Work Expense (BWE) program.

While PASS plans alone cannot meet all of the employment needs of unserved or under served people in the disabilities systems, the plans can make a significant dent in the problem. One population that is benefitting from the use of work incentives such as PASS plans is high school students. PASS funds are being used to enhance school-to-employment transition services for students while they are still in school, support a successful transition from school to adult life, and support employment of the individual after they graduate from school. PASS plans can bridge the gap in services between what the student was receiving in high school and what is available within the adult system. Another advantage of the PASS plan is that the money generated can be leveraged to bring in additional funds or services from other agencies like Vocational Rehabilitation (VR). PASS plans can be used to fund some student support needs, while IRWEs can fund ongoing supports indefinitely. Either could serve as a long-term sign off for some VR services.

With all of these advantages, it is not clear why PASS plans are underutilized. Theories attempting to explain the underutilization suggest a lack of assigned responsibility to prepare applications for benefits (Vogelsberg, Hammis, & McGregor, 2000), a lack of understanding of the Social Security system in general and work incentives programs in particular, too few people capable of writing PASS plans, and a lack of awareness (on the part of potential beneficiaries, families, and service providers) of these incentives and how they can be used to assist people with disabilities, as the major barriers to utilization. Families involved in a follow along study in Illinois cited several other drawbacks to PASS plans and the use of SSA work incentives: the complexity of application, maintenance, and reporting requirements; inadequate information about the SSI eligibility redetermination process at age 18; and the fear that overpayments will result in loss of benefits and services to individuals with disabilities (Schoeller, 2002).

Under IDEA legislation schools are required to connect families with appropriate agencies and resources as a component of transition planning, however, many school personnel have little information or experience with Social Security benefits or work incentives. Comprehensive surveys of school personnel and administrators, and adult service administrators and providers in Montana consistently show that although service personnel feel it is their responsibility to refer students and families to SSA, they seldom have any involvement, responsibility, or experience in the actual development of an application for SSA benefits or work incentives (Vogelsberg, McGregor, Buck, & Vanek, 2002). Virginia Commonwealth University estimated that only 15% of parents learn about the SSA program through school personnel (Johnson, 2002).

In order to promote the use of Social Security benefits and work incentives for students or recent high school graduates, the Transition Projects and the Adult Community Services and Supports Department at the Rural Institute disseminate information locally, statewide, and nationally. Some of the information distributed includes ways to enhance outcomes for students, such as, work upon graduation with the needed supports in place, and the effectiveness of proactive preparation utilizing a collaborative approach to funding and provision of services (Condon, 2002; Condon & Pesheck, 2002). Training, resources and strategies are provided to school and agency staff in the identification of eligible students and in the utilization and implementation of work incentives. On occasion support for families or schools in writing PASS Plans is also given.

This monograph shares some of our experiences in Montana schools and communities in developing and implementing systems to support the utilization of SSA work incentives for students. Included are scenarios and examples of how PASS plans are being utilized for students while they are in school and as they are exiting school. These examples demonstrate how to minimize the disruption of employment supports as students transition from school services to adult service or, more likely, to waiting lists for ongoing support services from adult agencies. Suggestions are offered for improving collaboration between schools and agencies. Finally, other areas in need of further exploration and development are indicated.

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